Roadmap for the Development of a Sustainability …...CAPE REGION: The Southern Right, Steenbras...
Transcript of Roadmap for the Development of a Sustainability …...CAPE REGION: The Southern Right, Steenbras...
Roadmap for the Development of a Sustainability Programme for the 2022
Commonwealth Games, Durban
Contract Number: 7N-18364 Date of Report: 23 June 2016
KWAZULU-NATAL: 80 Davenport Square, 89 Helen Joseph Rd, Glenwood, DURBAN
CAPE REGION: The Southern Right, Steenbras Street, Brenton on Sea, KNYSNA | PO Box 2984, Knysna 6570
Tel: +27 (0)44 381 0712 | Fax: +27 (0)86 569 5554
www.futureworks.co.za
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 2
TABLE OF CONTENTS
CHAPTER 1 ‐ REVIEW OF GLOBAL SUSTAINABILITY CONTEXT & PRIORITIES .................................................. 23 1.1 Introduction ..................................................................................................................................... 23 1.2 Global Climate Change .................................................................................................................... 23 1.3 Sustainable Development ................................................................................................................ 29 1.4 Financial & Technical Support from the Global Community ........................................................... 33 1.5 Pointers for the Durban 2022 Commonwealth Games Sustainability Programme ........................ 34
CHAPTER 2 – REVIEW OF NATIONAL & LOCAL CONTEXT & PRIORITIES .......................................................... 37 2.1 Introduction ..................................................................................................................................... 37 2.2 Applicable National Legislation & Policy ......................................................................................... 37 2.3 Relevant Local / Regional Policies, Plans and Functions ................................................................. 45 2.4 Pointers for the Durban 2022 Commonwealth Games Sustainability Programme ........................ 52
CHAPTER 3 – LESSONS FROM PREVIOUS MUNICIPAL EVENT GREENING PROGRAMMES .............................. 56 3.1 Introduction ..................................................................................................................................... 56 3.2 Overview of the Greening Durban 2010 Programme ...................................................................... 56 3.3 Overview of the COP17/CMP7 Greening Programme..................................................................... 62 3.4 General Recommendations ............................................................................................................. 67 3.5 Pointers for the 2022 Commonwealth Games Sustainability Programme ..................................... 67
CHAPTER 4 – SUSTAINABILITY APPROACHES IN COMMONWEALTH GAMES EVENTS .................................... 70 4.1 Introduction ..................................................................................................................................... 70 4.2 Commonwealth Games Federation Sustainability Requirements .................................................. 70 4.3 Sustainability and the 2014 and 2018 Commonwealth Games ...................................................... 70 4.4 Pointers for the 2022 Commonwealth Games Sustainability Programme ..................................... 72
CHAPTER 5 – SUSTAINABILITY APPROACH IN THE DURBAN 2022 COMMONWEALTH GAMES BID ............... 74 5.1 Introduction ..................................................................................................................................... 74 5.2 Summary of the Bidding Process ..................................................................................................... 74 5.3 Key Aspects of the Durban 2022 Commonwealth Games Bid ........................................................ 74 5.4 Pointers for the Durban 2022 Commonwealth Games Sustainability Plan ..................................... 76
CHAPTER 6 ‐ ROADMAP ................................................................................................................................... 78 6.1 Introduction ..................................................................................................................................... 78 6.2 Summary of Key Underpinning Approaches / Concepts ................................................................. 78 6.3 Sustainability Workstreams, Goals and Objectives ......................................................................... 80 6.4 Sustainability Coordinating Structure.............................................................................................. 83 6.5 Human and Financial Resourcing .................................................................................................... 84 6.6 Further Stakeholder Engagements .................................................................................................. 85 6.7 Identifying Strategic Partnerships ................................................................................................... 85 6.8 Visual Roadmap ............................................................................................................................... 86
ANNEXURE A: KEY ORGANISATIONS / POTENTIAL PARTNERS ........................................................................ 87
ANNEXURE B: REFERENCES & BIBLIOGRAPHY ................................................................................................. 90
ANNEXURE C: UN SDGS AND TARGETS ........................................................................................................... 94
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TABLE OF FIGURES
Figure 1: Summary of Programme Workstreams and Goals ........................................................................... 19
Figure 2: Planetary Boundaries ....................................................................................................................... 32
Figure 3: The Oxfam Doughnut Model ............................................................................................................ 32
Figure 4: The South African Doughnut. ........................................................................................................... 33
Figure 5: Sustainability Programme organisational structure ......................................................................... 84
TABLE OF TABLES
Table 1: Environmental Impact Assessment Regulations ‐ list of relevant government notices .................... 40
Table 2: Waste Management Regulations ‐ list of relevant government notices ........................................... 40
Table 3: Summary of Key Approaches and Concepts underpinning the Roadmap Goals and Objectives ...... 78
Table 4: Sustainability Workstreams, Goals and Objectives ........................................................................... 80
Table 5: United Nations Sustainable Development Goals and Targets ........................................................... 94
LIST OF ACRONYMS 100RC 100 Resilient Cities Programme (Rockefeller Foundation)
ACCCRN Asian Cities Climate Change Resilience Network
B&B Bed and Breakfast
CO2e Carbon dioxide equivalent
CDM Clean Development Mechanism (in term of the Kyoto Protocol)
CEBA Community Ecosystem Based Adaptation
CER Certified Emissions Reduction
CGF Commonwealth Games Federation
CKZNCCC Central KwaZulu‐Natal Climate Change Compact
CMP Meeting of the Parties to the Kyoto Protocol (UNFCCC)
COP Conference of the Parties (UNFCCC)
DAC Durban Adaptation Charter
DBSA Development Bank of Southern Africa
DCCS Durban Climate Change Strategy
DEA RSA National Department of Environmental Affairs
DERO Desired Emissions Reductions Outcomes
DWS RSA National Department of Water and Sanitation
EDTEA KwaZulu‐Natal Department of Economic Development, Tourism & Environmental Affairs
EMS Environmental Management System
EPCPD EThekwini Environmental Planning and Climate Protection Department
ETA EThekwini Transport Authority
EU European Union
EWS eThekwini Water and Sanitation Unit
FIFA Fédération Internationale de Football Association
GBCSA Green Building Council of South Africa
GC2018 Gold Coast 2018 Commonwealth Games
GCF Green Climate Fund
GDP Gross Domestic Product
GHG Greenhouse Gas
GOLDOC Gold Coast 2018 Commonwealth Games Organising Committee
GRI Global Reporting Initiative
ICC International Convention Centre Durban
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IDP Integrated Development Plan
IEP Integrated Energy Plan
IFC International Finance Corporation
INDC Intended Nationally Determined Contributions
IPAP Industrial Policy Action Plan
IPCC Intergovernmental Panel on Climate Change
IRP Integrated Resource Plan
IRPTN Integrated Rapid Public Transport Network
LED Light Emitting Diode
LOC Local Organising Committee
LTDF Long term Development Framework
LTDP Long term Development Plan
MCPP Municipal Climate Protection Programme (eThekwini Municipality)
MDGs Millennium Development Goals (UN)
MILE Municipal Institute of Learning (eThekwini)
NCCRP National Climate Change Response Policy
NDP National Development Plan
NEMA National Environmental Management Act (Act 107 of 1998)
NEMWA National Environmental Management: Waste Act (Act 59 of 2008)
NGO Non‐governmental Organisation
NGP National Growth Path
NHRA National Heritage Resources Act (Act 25 of 1999)
NSRP National Sport and Recreation Plan
NWA National Water Act (Act 36 of 1998)
NWMS National Water Management Strategy
PBs Planetary Boundaries
REIPPP Renewable Energy Independent Power Producer Programme
RSA Republic of South Africa
SANBI South African National Biodiversity Institute
SASCOC South African Sports Confederation and Olympic Committee
SDGs Sustainable Development Goals (UN)
SMS Sustainability Management System
SSN SouthSouthNorth
UEIP UMngeni Ecological Infrastructure Partnership
UKZN University of KwaZulu‐Natal
UN United Nations
UNDP United Nations Development Programme
UNEP United Nations Environment Programme
UNFCCC United Nations Framework Convention on Climate Change
USD United States Dollar
WESSA Wildlife and Environment Society of Southern Africa
WWF Worldwide Fund for Nature
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EXECUTIVE SUMMARY
1. Introduction
EThekwini Municipality is successfully positioning itself to grow Durban’s tourism and associated logistics and
business services economy through the hosting of major international and national events. In line with this
objective, eThekwini Municipality, with support from National and Provincial Government and the
Commonwealth Games Federation (CGF), will act as the primary host for the 2022 Commonwealth Games in
Durban, and is now beginning preparations for this major event.
The Durban 2022 Commonwealth Games is proposed to be held over 14 days in July 2022. The event is to be
organised by the Durban 2022 Commonwealth Games Organising Committee, which is to be a legal entity
established as a non‐profit organisation with representation from the South African Sports Confederation
and Olympic Committee (SASCOC), National Government (through an inter‐ministerial committee to be
established), KwaZulu‐Natal Provincial government, and eThekwini Municipality. Further to this, the CGF has
indicated that it intends to play a partnering role with this organisation to ensure risks and delivery are
managed.
In seeking to continue to grow the achievements of the event greening programmes that eThekwini
Municipality has implemented for the Durban 2010 FIFA™ World Cup and 2011 United Nations Framework
Convention on Climate Change (UNFCCC) COP17/CMP7 events, as well as to use the opportunities presented
by hosting the 2022 Commonwealth Games in Durban to leverage further transitioning to sustainable built
and natural environments and governance systems in the greater Durban region, eThekwini Municipality
intends to develop and implement a Sustainability Programme for the 2022 Commonwealth Games. This
Sustainability Programme is not intended to be a stand‐alone initiative, but will rather develop the
municipality’s existing workstreams into a transformative, community‐focused adaptation programme to
achieve event sustainability objectives as part of its regular operations.
The Sustainability Programme that is developed for the Durban 2022 Commonwealth Games therefore needs
to be responsive to:
1. Emerging global climate change and sustainable development context and priorities;
2. National, regional and local sustainable development priorities and legislative / policy requirements;
and
3. Mega‐event sustainability benchmarks and lessons, particularly those from Durban itself and other
recently hosted Commonwealth Games events.
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2. Emerging Global Climate Change and Sustainability Priorities
With the achievement of the Paris COP21 Agreement and the adoption of the United Nations (UN)
Sustainable Development Goals (SDGs), 2015 stands out as a landmark year for the establishment of
enhanced global climate change action and sustainable development priorities. However, it is clear from the
global discourses that have emerged in response to these landmark events and policies that large‐scale and
comprehensive change in patterns of investment and governance is needed if the risks faced by people and
the planet resulting from past patterns of development and resource consumption are to be reduced. It is
for this reason that the world’s leading practitioners are calling for rapid transformative processes to be
adopted in respect of governance, spatial planning and human settlements, infrastructure, technology,
capacity building, and financing.
In South Africa, it is not possible or appropriate to focus on addressing global environmental change priorities
without directing attention towards its already high and rapidly increasing social and economic inequality
and development needs. For a country grappling with major issues of social inequality, weak economic
growth and increasing natural resource scarcities, any investment in addressing global priorities must clearly
demonstrate local developmental and transformative benefits to be justifiable.
It is in this context that the following key pointers emerge from the current and emerging global climate
change and sustainable development context, and which should be used in shaping a Sustainability
Programme for the Durban 2022 Commonwealth Games:
1. Leveraging transitionary processes
Recent global discourses on the Paris COP21 Agreement and the UN SDGs are fairly unanimous in identifying
that global patterns of unsustainable resource consumption and harmful greenhouse gas emissions can only
be diverted if there can be a rapid transitioning (or reform) in systems of governance and investment,
patterns and forms of human settlements, technology and human capital.
Mega‐events, such as the 2022 Commonwealth Games have been shown to present an important
opportunity for the host country, and host city in particular, to operate outside of ‘business as usual’
(Diederichs and Roberts, 2015), to test new approaches and establish new skills (Roberts et al. 2012). The
2022 Commonwealth Games therefore offers an opportunity for eThekwini Municipality to utilise the
elevated levels of international technical support and funding available to leverage a strategic realignment
and rapid enhancement of existing internal capacity, skills and systems for improved climate protection and
sustainability outcomes. This implies a legacy of enhanced governance that is more responsive to global and
national sustainability and climate protection priorities. It also implies a key opportunity to leverage new /
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additional sources of long term finance for workstreams embedded within the municipal administration that
have climate protection and urban resilience‐building goals.
2. Balanced mitigation‐adaptation focus for ‘resilience’ outcomes
The Paris COP21 Agreement makes a clear distinction that investment in climate protection should seek to
enhance the resilience of societies, economies and the natural environment to global climate change. South
Africa’s commitment to climate action is embodied in its Intended Nationally Determined Contribution
(INDC), which also articulates the country’s need to achieve its climate mitigation and adaptation goals
through developmental processes that address the country’s key social and economic needs.
These approaches set the climate mitigation and adaptation pathway for the Sustainability Programme for
the 2022 Commonwealth Games: investment in mitigation of the carbon emissions from the event are
imperative, but this investment needs to be directed in such a way as to achieve enhanced social equality
and resilience, sustainable (and low carbon) economic development, and enhanced resilience of ecological
systems. Such investment needs also to be centred on addressing locally specific vulnerabilities and risks,
such that the resilience outcomes are high impact and long‐lasting.
3. Emphasis on partnerships and collaboration
Global discourses on climate action and sustainability suggest that partnerships are key for achieving lasting
and impactful outcomes. This has been shown to be true in Durban in the hosting of the 2010 FIFA™ World
Cup and 2011 UNFCCC COP17/CMP7 (Roberts et al. 2012).
In order to leverage a transition towards enhanced systems of sustainability and climate action in the greater
Durban region, eThekwini Municipality should seek to establish / enhance meaningful partnerships with
business and industry, non‐governmental organisations, education / research institutions and other
government agencies. These partnerships should not be confined by the administrative boundaries of
eThekwini Municipality, and should seek to foster regional collaboration, capacity building, influence and
impact. They should seek to leverage enhanced investment in human capital, natural capital, institutional
capital and social capital, with the aim of contributing positively towards climate change mitigation, climate
resilience, sustainable development, social equity and social justice.
The concept of the ‘energetic society’ espoused by Hajer and Huitzing (2012) is worth further consideration
in the Durban 2022 Commonwealth Games Sustainability Programme (see Footnote 4). The direct
involvement and energy of civil society and business, both in the sustainability activities of the event and
beyond, could be leveraged through appropriate incentives, thereby increasing the footprint and impact of
the event sustainability programme.
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4. Environmental and social sustainability threshold considerations
While the sustainability initiatives for mega‐event needs to take into account the minimisation and mitigation
of a wide range of negative impacts, the work being done at an international, national and local scale on ‘safe
and just operating space’ needs to be taken into account when setting priorities and reporting frameworks
for the Durban 2022 Commonwealth Games Sustainability Programme.
According to Cole (2015), impoverished communities in South Africa are ‘below the social floor’ in terms of
issues such as: voice, healthcare, education, electricity, housing, sanitation, water, income, jobs, safety,
household goods and food security. Cole also indicates that in the South African context, environmental
sustainability boundaries have been crossed with respect to: marine resource harvesting, freshwater use,
climate change and biodiversity loss. Steffen et al. (2015) report that at a global scale, nitrogen and
phosphorus pollution have moved beyond ‘safe’ levels, as has loss of genetic diversity, land system changes
and climate change.
The above implies that for the Durban 2022 Commonwealth Games Sustainability Programme to be relevant
in the international context, the programme should not only be designed to respond to these ‘safe and just
operating space’ priorities, but should also be able to report on the contribution of the event to these issues.
The design of the monitoring and reporting frameworks will therefore require an innovative approach, and
it is suggested that collaboration with international researchers leading the work on the safe and just
operating space should be sought.
3. National and Local Climate and Sustainability Context and Priorities
National Policy Platform
South Africa’s National Development Plan (NDP) (2012), the primary economic and social development
strategy for the country, makes an urgent call for economic growth, job creation, and improvement of social
equality through appropriate development. The NDP, National Climate Change Response White Paper, and
the National Framework for Sustainable Development set out the need to ensure that South Africa’s
economic development path needs to be socially and environmentally sustainable. The checks and balances
to achieve this sustainability are provided by host of laws that govern the protection of water resources,
cultural heritage resources, natural ecosystems, human health and waste management systems. Additional
tools, such as the National Responsible Tourism Guidelines, National Minimum Standards for Responsible
Tourism, energy efficient Building Standards (SANS 204‐1, 204‐2 and 10400‐XA) and ISO14000 Environmental
Management System standards, provide additional technical guidance on how this sustainability should be
achieved in practice.
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Interestingly, the National Tourism Sector Strategy (2011) argues for sustainability not only in tourism
operators and associated service industries, but also through encouraging visitors to choose and participate
in responsible tourism: “Visitors – both domestic and international – could be encouraged to participate in
the protection and conservation of South Africa’s natural environment, and to enjoy a responsible travel
experience while in South Africa, helping the various tourism businesses in the country to achieve the triple
bottom‐line, namely economic growth, ecological sustainability and social responsibility”. This implies a need
for ensuring that visitors to South Africa as part of the Durban 2022 Commonwealth Games are actively
engaged through appropriate communication / awareness campaigns, and the provision of appropriate
‘responsible’ accommodation, transport etc. choices while in South Africa.
There is thus a wide and well‐developed national policy platform directing and supporting the need for
sustainability to be addressed as part of economic development and as part of the activities of all economic
sectors in South Africa, including in sports eventing and the tourism sector. This context provides a sound
basis for the development of a comprehensive set of sustainability principles and initiatives to be integrated
into all aspects of the Durban 2022 Commonwealth Games.
Local Policy Platform
EThekwini Municipality’s Long‐term Development Framework (LTDF), Long‐term Development Plan (LTDP)
and Integrated Development Plan (IDP) (2015‐16) all demonstrate a high level commitment to economic
development that respects and supports the protection of the natural environment (and the critical goods
and services that it delivers to people) and the fostering of socially equitable development.
These plans recognise that Durban is a rapidly growing African city, with significant social issues, high levels
of unemployment and accelerating pressure on the remaining natural capital within the city. These plans
strongly promote a developmental agenda for the city, which includes growing the local economy, addressing
social inequality and human health / risk issues, and protecting the natural capital base needed to ensure a
safe and good quality living environment for people. The implementation of a sustainability programme for
the Durban 2022 Commonwealth Games therefore needs to take this approach as its lead, and ensure that
the games delivers positive social, economic and environmental outcomes.
EThekwini Municipality also has a reasonably well‐developed set of environmental sustainability policies,
including the Durban Climate Change Strategy, that provide direction on the environmental and social risks,
issues and priorities that need to be addressed as part of the city’s development agenda. Further work on
this policy environment is ongoing, as the municipality moves to incorporate the new directions emerging
from the Paris COP21 Agreement and the UN SDGs (2015).
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EThekwini Municipality therefore has a local policy environment that is strongly supportive of the Durban
2022 Commonwealth Games as a means to fast‐tracking or supporting its economic and infrastructure
development agenda. However, this policy environment equally directs that the city’s activities and
development path should be socially and environmentally sustainable, and in particular should address risks
presented by social inequality, climate change, and increasingly scarce natural resources (such as water,
energy and food). The need to protect natural capital as a means of protecting human health, safety and
quality of life, including in the face of climate change, is a key aspect of this sustainability approach.
The above eThekwini Municipality policy context is clearly supportive of the establishment of a
comprehensive and integrated sustainability approach and set of initiatives as part hosting the Durban 2022
Commonwealth Games. The prioritisation of desired legacy outcomes from the hosting of this event should
also be informed by current and emerging policy within the municipality.
Building from existing foundations
A key thread that emerged from discussions with various line functions in eThekwini Municipality during the
preparation of the Roadmap, was that there is a significant amount of existing work / planning and capacity
that is already in place that should be used to “leap‐frog” key infrastructure, legacy or other sustainability
initiatives forward – rather than starting from scratch.
EThekwini Municipality has numerous line functions that already undertake activities which contribute
towards the building of a ‘sustainable city’. A key approach in the development of a sustainability programme
for the Durban 2022 Commonwealth Games would therefore be to use existing capacity in municipal line
function departments to implement the various sustainability objectives, but where necessary provide
technical support to those line functions which may need it. This will ensure that capacity is built within the
municipal institution on how to implement sustainability approaches, principles and projects, thereby leaving
a legacy of ‘sustainability in practice’.
The above approach, of building from existing foundations, will allow more to be achieved in a shorter space
of time. Where possible, existing resources, institutional platforms, plans already completed, work already
started, etc. should therefore be used in developing the sustainability initiatives required for the Durban
2022 Commonwealth Games.
Local Priorities
The sustainability priorities for the Durban 2022 Commonwealth Games that emerged from a review of
existing municipal policy, and engagement with various line functions are:
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The mitigation of global climate impacts from the hosting of the event is an imperative. Investment
should be in local initiatives that achieve this while enhancing local adaptive capacity and climate
resilience, including addressing social inequality.
Opportunities to fast track development of key infrastructure associated with eThekwini
Municipality’s Integrated Rapid Public Transportation Network (IRPTN) as part of the hosting of the
event (including the city’s cycle route network).
Opportunities to promote green buildings, including sustainable building management systems and
Environmental Management Systems for municipal eventing facilities. Use of highly visible iconic
infrastructure is important in association with the Commonwealth Games.
Further roll out of implementation of cycling infrastructure and other upgrades / investments in the
uMngeni Green Precinct.
Opportunities to implement renewable energy and promote energy efficiency.
Opportunities to promote sustainable urban settlement spatial patterns and forms, and sustainable
/ green servicing technologies and systems, including the design of the primary sports precinct(s).
Greening of the primary event precincts is key.
Opportunities to promote local economic initiatives that support more sustainable municipal
services and / or create jobs and sustainable livelihoods, for example informal recycling businesses
and community‐based eco‐tourism activities.
Opportunities to enhance sustainability policy, capacity and institutions locally in Durban and
regionally in KwaZulu‐Natal, such that emerging global priorities (e.g. Paris COP21 Agreement, UN
Sustainable Development Goals etc.) are better understood and integrated into municipal / other
sector plans, policies, functions and programmes.
Opportunities to leave an iconic educational / awareness raising and mind‐set shifting legacy for
South Africa’s youth that promotes a better understanding of the urgent need to choose sustainable
living and behaviour patterns.
The need to use the opportunity to actively engage business and industry in sustainability initiatives
and build partnerships and collaboration for the future.
Investment in climate change resilience building / adaptation should seek to be systematic, or
contribute towards a systematic intervention in interlinked socio‐ecological systems.
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Enhanced messaging about the full impact of mega‐events like the Commonwealth Games – using
tools like Ecological Footprinting to promote awareness of people’s impacts on the carrying capacity
of Earth’s ecosystems etc.
4. Lessons from eThekwini Municipality’s Event Greening Experiences
When reflecting on the experiences of having hosted the Durban 2010 FIFA™ World Cup and UNFCCC
COP17/CMP7 in 2011, it has recognised that Durban has built significant capacity and experience in mega‐
event hosting, and that the city has the capability to position itself as a major competitor in the global mega‐
event hosting arena. In the course of hosting these mega‐events, Durban has also gained important
experience in ‘green eventing’, something which is becoming a growing priority for cities that bid to host
events. Key lessons include:
1. Mainstreaming Sustainability in Event Organising Structures
The previous two eThekwini Municipality event greening programmes have shown that there is significant
value to be gained in mainstreaming the implementation of sustainability approaches into all other event
organising workstreams. If the sustainability programme is seen as a separate / add‐on initiative, the extent
of sustainability achievements is significantly reduced.
Effective mainstreaming will also assist in achieving an enhanced institutional legacy from the event
sustainability programme, as municipal officials working with sustainability targets around an event delivery
programme are able to build their technical build capacity and understanding of resource efficient
technologies and other sustainable development aspects, and are therefore more likely to continue to apply
these in their day to day work beyond the event.
The establishment of an effective institutional structure to coordinate and drive the event sustainability
programme is therefore a key requirement. The powers and functions of this institution, and its role and
powers in the main event organising structures, need also to be established such that effective
mainstreaming across all sectors can be achieved.
2. Resourcing the Sustainability Workstream
The preparations for and management of mega‐events is an intense process. The previous two greening
programmes have relied to a significant extent on the EPCPD core staff contingent to provide the capacity to
undertake additional work which falls outside of their normal daily tasks. While this approach has been good
in building capacity and providing opportunities for junior staff to be exposed to interesting new processes
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 13
and information, it has not always been easy. Even with assistance from contracted consultants, the pressure
on municipal staff was overwhelming at times.
It is therefore critical for the Durban 2022 Commonwealth Games that existing capacity, budgets and
commitments of municipal staff that are required to work on the Sustainability Programme are reviewed,
and where necessary staff may need to be re‐deployed or additional staff hired. This is an important
approach, as there are significant opportunities for capacity building and skills development through such
event sustainability programmes, and where possible these opportunities should be retained within the
municipal administration rather than outsourced (particularly in light of eThekwini Municipality’s intention
to grow its event‐hosting role over time).
3. Approach to managing event Climate Impacts
The measurement, reporting, reduction and offsetting of the carbon emissions associated with hosting a
mega‐event is both a complex and potentially very expensive process. Even a ‘low carbon’ goal for Durban
2022 Commonwealth Games event will come with a significant price tag, and in light of the recent Paris
Agreement, giving appropriate attention to the issue of mitigating the global climate impact of this major
international event in a proper way is no longer negotiable. Obtaining and securing funding for the
management of the climate impacts of the event will therefore need to be a key focus.
In this regard, although unlikely to stand as the primary source of required funding, much can be gained from
establishing a campaign which encourages event participants and spectators to offset their carbon footprints
through a voluntary contribution into a carbon offset fund, as this would continue to reinforce that
individuals should take responsibility for their contribution towards global climate change.
Identifying local carbon offset projects which benefit poor and marginalised sectors of society, and contribute
positively towards enhanced resilience and adaptive capacity to climate change, has been a key success of
eThekwini Municipality’s previous two event greening programmes. However, such interventions come with
a long term financial and management commitment, which need to be understood and factored into
decision‐making about which projects to pursue and how these will be funded.
4. Full Cost Accounting of Event Ecological Impacts
The development and application of Ecological Footprinting Tool for the COP17/CMP7 event highlighted the
fact that full cost accounting of mega‐events is almost never undertaken, and that this is a key gap in event
sustainability programmes worldwide.
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In a world where there is increasing competition for food, water, energy and biodiversity resources, there is
a rapidly accelerating need to develop a greater understanding of the full costs and benefits of mega‐events,
so that the impacts of these events on the host country’s ecosystems can be better managed. It would
therefore be important for Durban to show leadership on this aspect of mega‐event sustainability practices,
and undertake that the Durban 2022 Commonwealth Games considers how the ecological footprint of the
event may be minimised, and to report on this aspect alongside its carbon, economic and social impact
reporting processes.
Equally, with the increasing issues around water availability in South Africa, the event sustainability
programme should place special emphasis on water conservation (and water use reporting), and should
consider making a direct link between the investment into carbon offsets with investment in water offsets
(e.g. through ecosystem restoration projects).
5. Partnerships
The previous event greening programmes have shown how the range, extent and intensity of benefits and
impacts can be increased through the establishment of effective partnerships. These may be partnerships
set up to facilitate funding streams, implementation, communications and awareness raising and future roll
out of legacy initiatives.
Although an attempt was made to engage the hospitality sector in the COP17/CMP7 greening programme
through a Responsible Accommodation Campaign, it is felt that more could have been achieved with more
time in hand. This should be addressed going forward, particularly in light of the important legacy that more
resource efficient, “greener” accommodation facilities would offer Durban as a global event‐hosting
destination. Partnerships should be used to support the achievement of this aim.
The business / industry sector was also not well or extensively engaged in the previous greening programmes,
and it’s thought that more should be done in this regard in respect of the Durban 2022 Commonwealth
Games through the establishment of partnerships and appropriate collaboration platforms.
5. Sustainability Approaches in Recent Commonwealth Games Events
The CGF places a notable amount of emphasis on the desire for its events to leave a positive social and
economic legacy for host countries and cities. In so doing, the environmental legacy of the event should not
be negative, and the impacts of the event on the natural environment must be properly managed. The 2014
Glasgow sustainability programme appears to have put a significant amount of effort into this through
building capacity around sustainability during the event process, and after. Numerous events were held to
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share the sustainability programme experiences and promote the adoption of sustainability principles in city,
regional and state operations and capital programmes.
Durban 2022 should consider how to link the social, economic and environmental legacy objectives in a way
that is meaningful to the Durban and South African agendas focusing on sustainable economic development,
poverty and inequality, human and ecological vulnerability to climate change, and water and energy security.
Both Glasgow 2014 and Gold Coast 2018 have developed event sustainability management systems that
comply with ISO 20121 international standard. Given the CGF requirement to implement a credible
sustainability programme that meets international standards, the use of the ISO 20121 standard emerges as
a minimum requirement for the sustainability programme for Durban 2022.
Gold Coast 2018 aligned with the global One Planet Living initiative, which also was linked to the London
2012 Olympics. The benefits of engaging with this framework, and its associated organisations (WWF and
Bioregional) warrant further investigation to determine the applicability and potential benefits thereof for
Durban 2022. Exploration into other globally accepted sustainability frameworks should also be undertaken.
Gold Coast 2018 has indicated that it will use some of the Global Reporting Initiative (GRI) indicators for
reporting on the event sustainability performance. It is noted that there seems to have been some caution
taken in committing to using the GRI framework as the primary mechanism for reporting, and therefore only
some of the indicators will be used. This points to a need for Durban 2022 to further investigate the GRI event
sustainability reporting framework and whether it would be appropriate for use, in part or in full, or whether
there are other internationally recognised event sustainability reporting frameworks that may be preferable.
6. Sustainability Approach in the Durban 2022 Commonwealth Games Bid
The Durban 2022 Commonwealth Games Candidate City File presented South Africa’s plan to host the event.
While the file included a section on “Sustainability and Environment”, there are a number of aspects of the
plan that indicate South Africa’s level and form of commitment to hosting a financially, economically, socially
and environmentally sustainable event. These include:
1. “Focus on legacy”
The key motivation for hosting the 2022 Commonwealth Games in South Africa is cited as the role that the
event will play in supporting the development of infrastructure, human capital, the national and local
economy, and social cohesion / inclusivity. The event would add to a growing resume of global mega events
that have been successfully hosted in the country, giving weight to South Africa’s positive profile as an events
and tourism destination.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 16
Specifically, for Durban, the key investment precinct for the event will be the Moses Mabhida sports and
recreation precinct, which is in the inner city and is an area where redevelopment / renewal is a critical need.
This is also supportive of the city’s vision to develop Moses Mabhida as a mega multi‐sport events precinct
and to position it as a premier sports tourism destination.
Durban has a long term development plan that the hosting of the event has been motivated as being
supportive of. The event has been cited as being able to facilitate acceleration of planned investments in
social amenities and transportation infrastructure. The athletes’ village would be constructed to become gap
housing after the event.
There would be a strong element of youth outreach with the intention of building youth skills, capacity and
confidence through the hosting of the event.
2. “Compact Games”
At least 80 % of the sports activities (and a significant component of the accommodation requirements) are
proposed to be hosted within a 5km radius of Moses Mabhida Stadium This will reduce the complexity of
event logistics and reduce the requirement for transport.
3. “Use of existing infrastructure”
There is a strong focus on using existing facilities (with upgrades) to host the event, and limiting the need for
construction of new facilities. This includes sports facilities, administrative facilities and transportation
infrastructure.
In addition to these three underpinning concepts that are broadly supportive of a sustainable, efficient
approach to hosting the Commonwealth Games, the specific commitments made in the bid to ensuring
“sustainability” are as follows:
1. Establishment of a Social and Ethics Committee (to be named the Sustainability and Legacy Commission)
will be established to govern how sustainability will be incorporated into the entity’s governance
structure.
2. Stakeholder engagement will be achieved through the Community Participation and Action Support Unit
(CPASU), established by the City of Durban as a vehicle for community members to participate in the
governance of the Games and foster a sense of ownership of developments.
3. The bid asserts that Durban water can be safely consumed directly from` the tap.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 17
4. Guarantee(s) stating that all construction work necessary for the organisation of the Commonwealth
Games will comply with:local, regional and national regulations and acts; international agreements and
protocols regarding planning, construction and protection of the environment.
5. Six key environmental protection objectives were given:
a. Utilise existing facilities as far as possible.
b. Certify new venues to green building standards.
c. Ensure any construction or upgrades to new or existing facilities are conducted in accordance
with an Environmental Management Plan.
d. Ensure that greenfield development is in line with the City of Durban’s Metropolitan Open Space
System (DMOSS) requirements and objectives.
e. Minimise waste generation during the Games and ensure that waste is separated at source to
reduce volumes requiring landfilling.
f. Ensure public transport is available to minimise the need for private transport; the compact
venues plan will assist in achieving this.
g. Energy efficiency and renewable energy initiatives to be undertaken in alignment with the city’s
objectives.
Given the focus on creating a positive legacy from the hosting of the event, a key approach will be ensuring
that the municipal line functions (and other organisations with a role to play in implementation) are actively
involved both in developing the event sustainability plan, and implementing it. This will provide an important
opportunity to build human capital and to create a positive institutional legacy of proactively integrating
sustainability principles and approaches into projects and programmes.
7. Sustainability Programme Roadmap
The Roadmap includes the Sustainability Programme key approaches / concepts and workstreams with
associated goals and objectives alongside a timeline and anticipated resourcing requirements. Within each
workstream, detailed project plans will need to be developed. The Roadmap is therefore intended to be used
as a guiding framework, and should be updated and / or further detailed when necessary.
Eight sustainability workstreams are proposed, and for each there are a number of goals. These are
summarised in Figure 1.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 18
The Co‐ordinating Structure for the Sustainability Programme should be developed in a manner and form
that ensures that there is sufficient capacity and the right skills in place for effectively driving and overseeing
the implementation of the programme. It would be advantageous for this structure to include
representatives from the Host City, National and Provincial Government, and key non‐governmental and
private sector agencies that could bring additional skills, knowledge and networks into play. This multi‐
stakeholder approach would enhance not only the effectiveness of the structure, but also create better
opportunities for shared learning.
Given past experiences in mega‐event greening / sustainability initiatives in South Africa, it is likely that the
National Department of Environmental Affairs (DEA) will have a role to play in the Sustainability Programme
for the event. In the past, this has tended to play out such that the host city and the DEA sustainability efforts
are run completely separately, often resulting in tensions regarding reporting mandates and responsibilities.
It is therefore critical that discussions with this department begin early, in order that the respective roles,
functions and responsibilities between DEA and the host city are resolved early on, and that resources can
be pooled for optimum outcomes.
The Durban 2022 Commonwealth Games Sustainability Programme will require funding for the
implementation of short and medium term initiatives associated with the programme, as well as legacy
projects that have a lifespan beyond the event itself. In addition, adequate human resources will need to be
made available to perform the various roles and functions required. Therefore, as an early requirement of
the development of the Sustainability Programme, a human resourcing plan and programme budget must
be drawn up that identifies the requirements for all aspects of the programme, including the cost of
additional staffing or drawing in of expert assistance. It is anticipated that a portion of the programme
budget could be sourced from within the eThekwini Municipality fiscus. However, a range of other sources
of funding will need to be identified.
Attention should be given early on to the possible benefits of eThekwini Municipality establishing a strategic
partnership with a not for profit organisation with the requisite skills to assist in directing and managing the
implementation of the Sustainability Programme. This approach would provide the opportunity to transfer
skills from the partner to government actors, as well as secure sources of funding for the programme that
may not be possible for the host city, which cannot accept donations and is required to abide by the rules
set out in the Municipal Finance Management Act (2003).
In this regard, it would be beneficial to identify an international agency to partner with, which has experience
in implementing sustainability programmes for mega‐events, and has access to overseas funding networks
which could be leveraged to support a transfer of international skills into South Africa.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 19
Figure 1: Summary of Programme Workstreams and Goals
A: Sustainability Coordinating Structure
•A1. Establish a functional sustainability co‐ordinating structure with clear roles and responsibilities.
•A2. Establish and manage relationships and partnerships.
•A3. Secure and manage programme funding.
B: Climate‐smart buildings, infrastructure, transportation &
operations
•B1. Reduce the climate and ecological footprints of event hosting infrastructure, buildings and transportation systems; and leave a green building, infrastructure and transport legacy.
•B2. Reduce climate and ecological footprints and minimise environmental and social risks associatd with all event operations and facilities.
C: Climate‐smart waste management
•C1. Reduce the climate and ecological footprints of event waste in a manner that creates jobs and promotes social upliftment while promoting a cleaner city.
D: Responsible hospitality & tourism
•D1. Minimise the climate and ecological footprints of the hospitality and tourism sectors.
•D2. Establish a responsible hospitality and tourism legacy from the event.
E: Event climate & ecological footprinting
•E1. Measure and report on the event climate and ecological footprints, and associated social and economic impacts.
F: Climate resilience‐building mitigation & legacy projects
•F1. Implement local projects that mitigate and offset climate and ecological footprint impacts from the event, and leave a legacy of enhanced social and environmental resilience to climate change.
•F2. Develop a legacy project that drives changes in thinking and behaviour towards more sustainable and climate‐responsible business, lifestyle and consumer choices.
G: Sustainability awareness, education, communications, and
reporting
•G1. Raise awareness about climate change, sustainability and what individuals can do to reduce their impacts, adapt to change and become more resilient to environmental risks.
•G2. Provide a platform for event participants to contribute towards offsetting / mitigating their impacts.
•G3. Disseminate information on the event sustainability programme, its achievements, and the environmental, social and economic costs and benefits of the event to a range of audiences.
•G4. Leave a learning legacy through the promotion of shared learning and development of learning materials.
H: Legal compliance
•H1. Ensure that all event related construction and activities are compliant with local, regional & national policy and legislation.
•H2. Ensure that good practice in environmental management and sustainability are achieved at all new and refurbished event hosting facilities.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 20
INTRODUCTION
In 2022, the 22nd Commonwealth Games will be held in Durban, South Africa. All 71 member territories from
the Commonwealth of Nations are expected to compete in the event. Originally, both Canada (city of Edmonton)
and South Africa (city of Durban) were bidding to host the event, but Canada withdrew from its candidacy shortly
before the bids were submitted in 2015, citing economic reasons. Through South Africa’s bid, Durban was
awarded the rights to host the games at the Commonwealth Games Federation (CGF) General Assembly
meeting in Auckland, New Zealand on 2 September 2015. It will mark only the second time a Commonwealth
Republic will host the event, the first of which was held in Delhi, India, in 2010. The games are set to open on
18 July 2022, coinciding with the birthday of the late South African President and global icon, Nelson Mandela,
and will run for 14 days to 31 July 2022.
EThekwini Municipality is successfully positioning itself to grow Durban’s tourism and associated logistics and
business services economy through the hosting of major international and national events. In line with this
objective, eThekwini Municipality, with support from national and provincial government and the CGF, will
act as the primary host for the 2022 Commonwealth Games in Durban, and is now beginning preparations
for this major event.
EThekwini Municipality, primarily through the work of the Environmental Planning and Climate Protection
Department (EPCPD), has a strong focus on environmental sustainability and climate change adaptation. This
work has included developing and implementing event greening / sustainability programmes as part of
hosting mega‐events such as the 2010 FIFA™ World Cup and the 2011 UNFCCC1 COP17/CMP72 in Durban.
EThekwini Municipality is seeking to continue to grow the achievements of these previous event greening /
sustainability programmes, and to use the opportunities presented by hosting the 2022 Commonwealth
Games in Durban to leverage further transitioning to sustainable built and natural environments and
governance systems in the greater Durban region (including neighbouring municipalities). To this end, the
EPCPD intends to develop and implement an event greening / sustainability programme for the Durban 2022
Commonwealth Games. In so doing, the EPCPD does not seek to establish a stand‐alone initiative, but rather
intends to develop the municipality’s existing workstreams into a transformative, community‐focused
adaptation programme to achieve event sustainability objectives as part of its regular operations.
This does not imply that the EPCPD and other line functions within eThekwini Municipality are already geared
towards undertaking the sustainability work required for the 2022 Commonwealth Games. Rather, the
EPCPD recognises that the implementation of a sustainability programme for the Commonwealth Games
could play a key role in stimulating and supporting the strategic realignment of the EPCPD (and other key
municipal workstreams and capacity) to meet the requirements of emerging / new global sustainability
mandates, including the UNFCCC’s Paris Agreement and Paris COP21 Decision (2015) and United Nations
(UN) Sustainable Development Goals (SDGs) (2015).
The sustainability programme that is developed for the Durban 2022 Commonwealth Games therefore needs
to be responsive to:
1 United Nations Framework Convention on Climate Change.
2 17th Conference of the Parties (COP), serving as the 7th meeting of the Parties to the Kyoto Protocol (CMP).
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 21
1. Global climate change and sustainable development context and priorities, including but not limited
to:
a. The outcomes of the UNFCCC Paris COP21, including The Paris Agreement, Paris COP21
Decision and South Africa’s Intended Nationally Determined Contributions;
b. The UN SDGs;
c. Other global environmental change priorities, such as water, food and energy security;
2. National and local sustainable development priorities and legislative / policy requirements:
a. The requirements of national environmental, climate, water, pollution and waste
management legislation, policy and strategies;
b. EThekwini Municipality policy context and sustainable development priorities, including but
not limited to:
i. EThekwini Municipality’s Integrated Development Plan,
ii. EThekwini Municipality’s Long Term Development Framework and Long Term
Development Plan,
iii. The Durban Climate Change Strategy (DCCS),
iv. Outcomes of the 100 Resilient Cities workstream,
v. The concept of collaborative action in the Durban Region – including regional
partnerships through the uMngeni Ecological Infrastructure Partnership (UEIP),
Central KwaZulu‐Natal Climate Change Compact (CKZNCCC) and others.
3. Mega‐event sustainability benchmarks and lessons:
a. Lessons learnt from other mega‐event greening programmes implemented by eThekwini
Municipality in Durban, and associated climate protection and poverty alleviation efforts,
b. Sustainability benchmarks set in the hosting of other Commonwealth Games events,
c. Sustainability approach included in the Durban 2022 Commonwealth Games bid.
Chapter 1 presents a review of (1) above, i.e. the current and emerging global climate change and sustainable
development dialogues, context and priorities. This review is intended to inform the identification of a
globally relevant focus and approach for the Durban 2022 Commonwealth Games sustainability programme.
A review of (2), i.e. the current and emerging national and local sustainability, climate protection, event
greening, development and partnerships context and priorities is presented in Chapter 2, along with a review
of the key environmental legislative requirements that will need to be met.
Chapters 3, 4 and 5 present an overview of eThekwini Municipality’s experiences in implementing sustaining
programmes for other mega‐events hosted in Durban, sustainability benchmarks set in preceding
Commonwealth Games events, and the sustainability approach and commitments made in the Durban 2022
Commonwealth Games bid.
Chapter 6 of this report presents a roadmap for the development of a comprehensive and properly resourced
programme and process for the hosting of the Durban 2022 Commonwealth Games in an environmentally
and socially sustainable manner. This includes key pointers for establishing processes of strategic realignment
and enhancement of existing municipal capacity, as well as securing partnerships that extend the reach and
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 22
impact of sustainability interventions within and beyond the municipal boundary. The programme ultimately
aims to achieve not only a sustainable Durban 2022 Commonwealth Games, but also to stimulate a positive
transitioning towards enhanced capability to address local and global sustainability challenges in the greater
Durban region, and therefore a positive institutional legacy of sustainability in practice.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 23
CHAPTER 1 - REVIEW OF GLOBAL SUSTAINABILITY CONTEXT & PRIORITIES
1.1 Introduction
EThekwini Municipality has hosted numerous large and mega‐events in Durban in the past 6 years. It has
developed and implemented event greening (or sustainability) programmes for two of the largest of these
events: the 2010 FIFA™ World Cup and the 2011 UNFCCC COP17/CMP7. The experience gained and lessons
learned from these event greening programmes provides important context and therefore needs to be
carefully considered when developing a sustainability programme for the 2022 Commonwealth Games.
However, the global and local climate change, sustainability, environmental management and social context
has evolved substantially since Durban hosted these events. Therefore, the sustainability programme that is
developed for the Durban 2022 Commonwealth Games needs to be focused somewhat differently than the
greening programmes for these previous two Durban mega‐events, such that it is responsive to the emerging
global order on climate protection and sustainability, increasing natural resource scarcities, elevated risk to
people, governance challenges within South Africa’s municipalities, and the rapidly intensifying social needs
in Durban.
This chapter presents an overview of the key existing or emerging global sustainability context and priorities
that must be taken in account when shaping the sustainability programme for the Durban 2022
Commonwealth Games.
1.2 Global Climate Change
1.2.1 COP21 and the Paris Outcome
The UNFCCC COP21 held in Paris in December 2015 represents a turning point in the global order for
responding to climate change. Two weeks of negotiations culminated in a conference decision and
agreement, collectively known as the ‘Paris Outcome’. The Paris Outcome commits parties to limit global
temperature rise to 'well below 2C' with an aspirational target of a 1.5C limit (Gerrard and Mansour, 2015).
The Paris Outcome comprises:
The Paris Agreement: Adopted as an Annex to the Paris COP21 Decision, the Paris Agreement is
destined to become a separate, legally binding agreement on climate action which contains
emissions reduction commitments from 187 countries starting in 2020 (E3G, 2015). As at 20 May
2016, there were 177 signatories to the Paris Agreement. Of these, 17 States have also deposited
their instruments of ratification, acceptance or approval accounting in total for 0.04 % of the total
global greenhouse gas emissions (UNFCCC, 2016).
The Paris Agreement will enter into force once 55 countries covering 55 % of global emissions have
acceded to it. It covers all key elements of the post 2020 regime, including mitigation, adaptation,
loss and damage, finance, technology, capacity building, education, transparency, stocktaking,
compliance, procedural issues, and institutional arrangements. On all these issues, however, some
elements of the regime are left to the Paris COP21 Decision (Doelle, 2016). From a National and Local
Government perspective, the inclusion of non‐state actors in the Paris Agreement is an important
development.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 24
Paris COP21 Decision: The Paris COP21 Decision is a decision under the UNFCCC, does not require
further ratification or acceptance, is not a separate legal instrument, and supplements the Paris
Agreement in many key areas. It includes provisions on the process for bringing the Paris Agreement
into force, and on elements of the post 2020 regime that Parties decided not to include in the Paris
Agreement. The Paris COP21 Decision includes a number of provisions designed to enhance pre‐2020
ambition through elaborations and additions to the current climate regime (Doelle, 2016).
The agreements adopted in Paris mark the completion of a decade‐long transition from a top down binding
regime focused on developed‐country mitigation to a bottom‐up and substantively non‐binding approach for
global cooperation on climate change with key binding process elements. The new regime includes all nations
and aims to address mitigation, adaptation, loss and damage, finance, technology transfer and capacity
building (Doelle, 2016).
Adaptation, mitigation and loss and damage are all given equal weighting in the Paris Outcome. The basic
principle followed has been that the investments and resources mobilised for mitigation actions will save
fundamental resources for adapting to climate change impacts when these occur. Equally, without
mitigation, adaptation efforts become redundant. Efforts to reduce greenhouse gas emissions and to limit
the rise in global temperatures are determined at national level through Intended Nationally Determined
Contributions (INDC’s), which at the moment are considered largely insufficient (Doelle, 2016) and urgently
requiring more ambitious efforts.
Each country was required to submit an INDC prior to COP21, which set out country goals and objectives in
respect of addressing global climate change. According to Doelle (2016), the INDC’s of emerging economies,
such as China, India, South Africa and Brazil, seemed to be conflicted between concerns that commitment to
climate action will constrain future development required to meet basic human needs and a growing
awareness of the impact of unmitigated climate change on their ability to meet those same needs. South
Africa’s INDC submission highlights the country’s economic, poverty and inequality challenges, and sets out
climate mitigation and adaptation plans that will allow the country to build and sustain social, economic and
environmental resilience through addressing its development needs (President Jacob Zuma, SANews, 2015).
In terms of the Paris Agreement, all countries have to submit new INDCs every five years, with the
expectation that they will “represent a progression” beyond previous ones and reflect the “highest possible
ambition”. It is important to note, however, that implementation of the INDCs is not a binding obligation
(Roberts, 2016).
The Intergovernmental Panel on Climate Change (IPCC) has recognised that the impact of climate change is
likely to fall disproportionately on cities of the global south, such as Durban, which are already facing
developmental and other challenges (IPCC, 2014). Climate change is likely to undermine development efforts
and exacerbate poverty. Africa is particularly vulnerable because it lacks the capacity to cope with climate
change impacts due to its socio‐economic status, political constraints and limited access to technology (IPCC,
2014).
According to E3G (2015), the global commitment to climate protection that was achieved at the Paris COP21
event is anticipated to result in the following outcomes at the global level:
Fast tracking of the transition to a low carbon economy. Implementation of the Intended Nationally
Determined Conditions (INDCs) will mean that renewable energy will make up 78 % of new power
generation investment to 2030 in major economies. This will drive down the cost of renewable
energy. The long term goal of greenhouse gas neutrality in the second half of the century will require
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 25
a rapid phase out of fossil fuels. Delivering this will require major reforms to electricity markets,
business and financing models.
Enhanced access to finance for economic and governance reforms in emerging and developing
countries. The continuation of climate financing in the Paris Agreement beyond $100bn promised
up to 2020 will provide support to emerging and developing countries to deliver these necessary
economic and governance reforms.
Alignment of international development finance with international climate change protection
goals. Governments and investors will need to manage an orderly transition away from a fossil fuel
dominated economy in a way that avoids stranded assets and negative impacts on workers. The G20
has established a taskforce on the implications of climate policy on financial stability which will report
in 2016. In 2015 all international development financing institutions agreed to align their financing
with the Paris climate goals.
Improved adaptation, resilience and response in the most vulnerable countries. The Paris
Agreement has broken new ground and placed adaptation, resilience and response to climate
impacts at the heart of the new regime. This includes stronger early warning systems, addressing
treatment of environmental refugees, and providing extreme weather insurance to 400 million more
people in vulnerable countries by 2020.
1.2.2 The Role of Cities
Importantly, the Paris COP21 negotiations and the Paris Outcome included a stronger focus than ever on the
role of cities in addressing climate change. According to Tollin (2015), human settlements, and particularly
cities, are responsible for the current climate change trends and dynamics; and at the same time, human
settlements are vulnerable to the increasing negative effects of climate change, including intensifying existing
issues of poverty and inequality.
Cities are, however, playing a key role in defining and implementing much more ambitious mitigation goals,
both because the majority of world emissions are the responsibility of cities and an increasing number of
cities have started to develop local action plans and pledges that are already beyond the INDCs
communicated by their own countries (Tollin, 2015).
Tollin (2015) further reports that cities and associated climate change issues are the focus of a number of
United Nations initiatives, inter alia: the 2030 Agenda for Sustainable Development through Sustainable
Development Goals (SDGs); the International Strategy or Disaster Reduction (UNISDR) through Sendai
Framework for Disaster Risk Reduction; and the Habitat Program (UNHABITAT) through the Medellin
Collaboration on Urban Resilience and HABITAT III.
In addition, a number of international initiatives have been developed that specifically aim to address climate
change risk, mitigation and adaptation in cities, including:
Rockefeller Foundation’s 100 Resilient Cities: a network of over 100 cities worldwide, jointly working
to increase urban resilience against social, physical and economic major challenges, including climate
change related;
City Climate Leadership Group (C40): a network of world megacities, which aimed to develop actions
to mitigate climate change, by reducing emissions, and to adapt to its inevitable effects and impacts;
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 26
Covenant of Mayors: European Union (EU) initiative and network of local and regional authorities,
aimed to meet the EU 2020 20 % emission reduction target through increasing energy efficiency and
the use of renewable energy;
Mayors Adapt: launched by the European Union with the aim of strengthening resilience to the
impact of climate change;
UNHABITAT’s Cities Resilience Profiling Programs: a global program aimed at providing local and
national governments with tools to measure and to increase resilience;
RECNET’s International Program on Urban Resilience (RESURBE): a multi‐stakeholder platform
undertaking research, capacity building and urban development projects focusing on urban resilience
(Tollin, 2015);
Asian Cities Climate Change Resilience Network (ACCCRN): pioneered by the Rockefeller Foundation,
the ACCCRN is a membership‐based platform focused principally on supporting individual
practitioners working on climate change resilience in 50 rapidly urbanizing cities in Bangladesh, India,
Indonesia, the Philippines, Thailand and Vietnam, while building partnerships with institutions and
country networks (ACCCRN, undated);
Durban Adaptation Charter (DAC): launched during Durban’s hosting of the UNFCCC COP17 in 2011,
the Charter advocates for local level climate change adaptation responsibility. The City of Durban
(eThekwini Municipality) is a signatory to this charter and acts as the secretariat for its
implementation globally.
Cities are in a critical position as they cannot, in most cases, independently mobilise the necessary financial
resources to implement the actions required for addressing mitigation and adaptation needs, such as
resilient infrastructure, or to foster more radical innovation, such as a systemic low‐carbon emission
transition (Tollin, 2015). The support of national, sub‐national and international agencies is therefore
necessary to allow cities to engage in appropriate climate change responses.
Climate adaptation enjoyed an unprecedented level of attention during the Paris COP21 negotiations (Tollin,
2015). The key adaptation issues that cities are facing include more frequent extreme weather events and
patterns (including flooding and droughts), which endanger infrastructure and reduce capability to remedy
damages, and significantly increase human health and safety risks. However, there has been recognition of
the need to focus on urban resilience, which links climate mitigation, risk and adaptation.
The technological capacity of countries and cities to undertake necessary mitigation and adaptation actions
is a key factor for the successful implementation of the Paris Outcome (Tollin, 2015). Key enabling
technologies and / or processes for addressing climate change in cities include: low‐carbon and energy
efficient technologies, spatial layout, form and architecture that is resilient to extreme temperature and
weather events, conserves scarce resources, allows for food production, and addresses poverty and
inequality.
Capacity building to bridge knowledge gaps and to mainstream action is critical (Tollin, 2015). The exchange
of best practices, lessons learned and knowledge is of great importance for cities regarding adaptation
measures, innovations in the forms of governance, planning, management of cities, and methods and tools
to measure and evaluate the adaptive capacity of cities.
Cities tend to have the creative capacity and the innovation potential to start radical transformative
processes which are indispensable for shifting from the current unsustainable and over emitting patterns of
urban development to climate‐proof ones, requiring a radical re‐thinking of the very nature of cities and their
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 27
development pathways (Tollin, 2015). This fundamental change can be enabled by a radical transformation
in the forms of governance of cities, based on the simple idea that the challenge of implementing climate
solutions requires the active involvement and cooperation of local stakeholders, in liaison with national and
international ones.
1.2.3 South Africa’s INDC
In its INDC, South Africa states from the outset that it is committed to a climate change response that is based
on science and equity. Equity is considered to apply to mitigation and adaptation, and to support for both
(UNFCCC, 2015).
South Africa’s INDC was formulated in the context of the environmental right set out in section 24 of the
country’s National Constitution and its National Development Plan (NDP) (RSA National Planning
Commission, 2012), which provides a ‘2030 vision’ to guide the country’s sustainable development trajectory
where poverty is eliminated and inequalities are reduced. The implementation of the 2030 NDP vision is
further elaborated in the 2011 National Climate Change Response White Paper and the National Strategy
and Action Plan for Sustainable Development 2011‐2014 (2011). Good progress has been made in
implementing climate‐compatible sector‐specific plans, such as the Integrated Energy and Electricity plans,
Industrial Policy Action Plans and the New Growth Path. The full implementation of these policies and plans
is projected to bend the curve of South Africa’s Greenhouse Gas (GHG) emissions towards a peak, plateau
and decline trajectory range (UNFCCC, 2015).
The adaptation component of South Africa’s INDC includes six goals (extracted from UNFCCC, 2015):
Goal 1: Develop a National Adaptation Plan, and begin operationalisation as part of implementing
the NCCRP for the period from 2020 to 2025 and for the period 2025 to 2030.
Goal 2: Take into account climate considerations in national development, sub‐national and sector
policy frameworks for the period 2020 to 2030.
Goal 3: Build the necessary institutional capacity for climate change response planning and
implementation for the period 2020 to 2030.
Goal 4: Develop an early warning, vulnerability and adaptation monitoring system for key climate
vulnerable sectors and geographic areas for the period 2020 to 2030, and reporting in terms of the
National Adaptation Plan with rolling five‐year implementation periods.
Goal 5: Development of a vulnerability assessment and adaptation needs framework by 2020 to
support a continuous presentation of adaptation needs.
Goal 6: Communication of past investments in adaptation for education and awareness as well as for
international recognition.
In understanding that climate impacts are being driven by global inaction / action on mitigation, South Africa
views adaptation as a global responsibility. It is in that light that South Africa considers its investments in
adaptation as a contribution to the global effort (UNFCCC, 2015).
South Africa’s INDC mitigation component takes the form of a peak, plateau and decline GHG emissions
trajectory range. South Africa’s emissions by 2025 and 2030 will be in a range between 398 and 614 Mt CO2–
eq, as defined in national policy (the NCCRP). This is the benchmark against which the efficacy of mitigation
actions will be measured (UNFCCC, 2015).
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 28
The policy instruments under development to achieve this mitigation target include a carbon tax, desired
emission reduction outcomes (DEROs) for sectors, company level carbon budgets, as well as regulatory
standards and controls for specifically identified GHG pollutants and emitters. The planned mitigation efforts
are intended to enable South Africa’s greenhouse gas emissions to peak between 2020 and 2025, plateau for
approximately a decade, and then decline in absolute terms thereafter (UNFCCC, 2015). South Africa has
committed to reduce GHG emissions below business as usual by 34 per cent by 2020 and 42 per cent by 2025
(RSA National Treasury, 2015).
The INDC recognises that the key challenge for South Africa is to catalyse, at an economy‐wide scale,
financing of and investment in the transition to a low carbon and climate resilient economy and society. It
further recognises that South Africa needs time for development, which is necessary to eliminate poverty,
reduce inequality, increase employment and promote inclusive economic growth, while simultaneously
seeking to contribute to mitigation and assist vulnerable communities in adapting to climate impacts
(UNFCCC, 2015).
Like many other developing countries, South Africa faces the challenge of addressing climate change
mitigation and adaptation needs through a sustainable and equitable development path. This will require
substantial investment in technology, infrastructure and human capacity. It will also require rapid
transformative and evolutionary processes to take place in governance and financing, as well as much greater
emphasis being placed on the establishment of partnerships between government and the private sector, as
well as with international agencies.
1.2.4 Durban Adaptation Charter
The Durban Adaptation Charter (DAC) commits local governments to local climate action in their jurisdiction
that will assist their communities to respond to and cope with climate change risks thereby reducing
vulnerability. By signing the DAC, local governments commit to 10 clauses that promote action in addressing
climate change adaptation and mitigation needs, addressing climate risks and vulnerabilities, and recognising
the important role that natural ecosystems play in mitigation of and adaptation to climate change impacts.
The DAC was launched at the United Nations Framework Convention on Climate Change (UNFCCC) 17th
Conference of the Parties (COP17) held in Durban in December 2011. The City of Durban (eThekwini
Municipality) is a signatory to the DAC and acts as the global secretariat for its implementation.
Implementation is pursued through the Hub and Compact approach, which involves pairing climate change
adaptation‐leading cities (Hubs), who have similar climate change challenges, for mutually beneficial
exchanges. Lessons learnt are transmitted to municipalities surrounding each Hub through the establishment
of Compact partnerships where each Hub and its Compact partners engage in collective climate action at the
scale of the Compact. In this way, resources are pooled to increase the effectiveness of the response within
each Compact partner municipality.
EThekwini Municipality’s commitment to the DAC implies a direct requirement for the Durban 2022
Commonwealth Games to be hosted in a manner that addresses climate mitigation and adaptation, and
leaves a positive legacy of increased resilience to climate change.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 29
1.3 Sustainable Development
1.3.1 UN Sustainable Development Goals
On 25th September 2015, the 193 countries of the United Nations (UN) General Assembly3 adopted a set of
17 Sustainable Development Goals (SDGs), with 169 associated targets. The SDGs build on the Millennium
Development Goals (MDGs) and seek to facilitate an end to poverty, protection of the planet, and to ensure
prosperity for all. The MDGs, adopted in 2000, aimed at an array of issues that included slashing poverty,
hunger, disease, gender inequality, and access to water and sanitation. While the UN reports that progress
has been made on the MDGs, highlighting the value of a unifying agenda underpinned by goals and targets,
the indignity of poverty has not been ended for all (United Nations Development Programme, 2015). The
new SDGs incorporate a broader sustainability agenda than the MDGs, and seek to address the root causes
of poverty and the universal need for development that works for all people. The tagline of the SDGs is ‘leave
no‐one behind’.
The SDGs are intended to stimulate action over the next 15 years in areas of critical importance for humanity
and the planet (United Nations, 2015). A summary of the 17 goals is as follows (the full set of goals and targets
is included in the Annexure to this report):
Goal 1. End poverty in all its forms everywhere.
Goal 2. End hunger, achieve food security and improved nutrition and promote sustainable
agriculture.
Goal 3. Ensure healthy lives and promote well‐being for all at all ages.
Goal 4. Ensure inclusive and equitable quality education and promote lifelong learning opportunities
for all.
Goal 5. Achieve gender equality and empower all women and girls.
Goal 6. Ensure availability and sustainable management of water and sanitation for all.
Goal 7. Ensure access to affordable, reliable, sustainable and modern energy for all.
Goal 8. Promote sustained, inclusive and sustainable economic growth, full and productive
employment and decent work for all.
Goal 9. Build resilient infrastructure, promote inclusive and sustainable industrialization and foster
innovation.
Goal 10. Reduce inequality within and among countries.
Goal 11. Make cities and human settlements inclusive, safe, resilient and sustainable.
Goal 12. Ensure sustainable consumption and production patterns.
Goal 13. Take urgent action to combat climate change and its impacts.
Goal 14. Conserve and sustainably use the oceans, seas and marine resources for sustainable
development.
Goal 15. Protect, restore and promote sustainable use of terrestrial ecosystems, sustainably manage
forests, combat desertification, and halt and reverse land degradation and halt biodiversity loss.
Goal 16. Promote peaceful and inclusive societies for sustainable development, provide access to
justice for all and build effective, accountable and inclusive institutions at all levels.
Goal 17. Strengthen the means of implementation and revitalize the global partnership for
sustainable development.
3 South Africa is a United Nations member state and member of the United Nations General Assembly.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 30
UN member states are able to access various global supporting forums which have been set up to assist
countries with implementation of the SDGs. In addition, the UN facilitates access to funding to assist
developing countries with developing action plans and undertaking implementation.
While the SDGs are considered by many to be ‘ground‐breaking’, highly ambitious, and having the potential
to become a powerful political vision that can support the urgently needed global transition to a shared and
lasting prosperity (Hajer et al. 2015), numerous critics have raised concerns over goal variability, omissions
and a disconnect between the goals and conditions on the ground (Tyson, 2015). Hajer et al. (2015) also
argue that the limited effectiveness of intergovernmental efforts and capacity of national governments to
affect change mean that the SDGs should have sought to mobilise new agents of change such as businesses,
cities and civil society. This would have required the integration of multiple perspectives on sustainable
development that respond to the various motives and logics of change of these different actors, including
the concepts of “planetary boundaries” to stress the urgency of addressing environmental concerns and to
target governments to take responsibility for (global) public goods; “the safe and just operating space” to
highlight the interconnectedness of social and environmental concerns and its distributive consequences;
“the energetic society4” to benefit from the willingness of a broad group of actors worldwide to take action;
and “green competition” to stimulate innovation and new business practices.
Other commentators have made the link between the SDGs and global climate protection, noting that several
of the SDGs, in addition to Goal 13 on climate change, already address both mitigation and adaptation
(Kelman, 2014). However, the point is made that the SDGs should not be considered a proxy for climate
response, because if development goals aim for climate adaptation only, without aiming for disaster risk
reduction across all hazards, then resilience cannot be achieved (Kelman, 2014). Placing climate change
within the wider contexts of disaster, development and sustainability will tackle both adaptation and
mitigation priorities, but not at the expense of other concerns.
At eThekwini Municipality level, the SDGs provide additional focal areas for the development of the 2016/17
Integrated Development Plan (IDP) (see Section 2.3.1.3 EThekwini Municipality Integrated Development
Plan (IDP)). During 2016 the individual targets for each of the gaols would be confirmed and adopted. Where
possible, these targets need to be incorporated into the Municipal IDP.
1.3.2 Planetary Boundaries and a Safe and Just Operating Space
The planetary boundary (PB) concept, introduced in 2009, aimed to define the environmental limits within
which humanity can safely operate. This approach has proved influential in global sustainability policy
development. In 2015, Steffen et al. presented an updated and extended analysis of the PB framework.
Two of the PBs—climate change and biosphere integrity—are recognised as “core” PBs based on their
fundamental importance for the Earth System. The climate system is a manifestation of the amount,
distribution, and net balance of energy at Earth’s surface; the biosphere regulates material and energy flows
in the Earth System and increases its resilience to abrupt and gradual change.
4 In the ‘energetic society’, city governments can make more and better use of the energy embedded within a society, shaping its policies through positive and negative incentives, and setting medium‐ and long‐term public goals (Hajer and Huitzing, 2012).
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 31
Of the original nine proposed boundaries, they identify four (including climate change, biosphere integrity,
biogeochemical flows, and land‐system change) in which human influence has resulted in transgression of
the proposed PB’s.
Transgression of the PBs thus creates substantial risk of destabilizing the state of the Earth System in which
modern societies have evolved. The PB framework does not dictate how societies should develop. These are
political decisions that must include consideration of the human dimensions, including equity, not
incorporated in the PB framework. Nevertheless, by identifying a safe operating space for humanity on Earth,
the PB framework can make a valuable contribution to decision‐makers in charting desirable courses for
societal development.
In 2012, Kate Raworth, an Oxfam researcher, further developed the PB theory by incorporating the concepts
of social justice and equity (Raworth, 2012). Raworth’s work combined the PB ‘environmental ceiling’ with a
proposed ‘social foundation’ below which it was ‘unjust’ for people to fall. The combination of environmental
ceiling and social foundation is presented diagrammatically in what has become known as the ‘Oxfam
Doughnut Model’ (Figure 33).
Megan Cole (2015) downscaled the global doughnut model by assessing the extent to which conditions in
South Africa exist below the environmental ceiling and above the social foundation. The study used 22
indicators to describe environmental and socio‐economic systems, while highlighting the interdependent
nature of those systems and identifying where people and the environment face unacceptable and
dangerous stresses.
Cole highlights that South Africa faces the ‘triple challenge’ of poverty, inequality and unemployment. It has
one of the highest official unemployment rates in the world (25 %) and is one of the most unequal countries,
with a Gini coefficient of 0.69 (RSA Department of Performance Management and Evaluation, 2013). The
wealthiest 4 % of households receive 32 % of total income while 66 % of households receive only 21 % of all
income (Visagie, 2013). Over half of South Africans live below the national poverty line and more than 10 %
live in extreme poverty, on less than $1.25 per day. The hopes of 54 million people depend on South Africa’s
ability to address such injustices and end social deprivation (Cole, 2015).
The South African government has an ambitious target of 5.4 % growth in gross domestic product (GDP) and
11 million new jobs by 2030 (RSA National Planning Commission, 2012). However, Cole (2015) indicates that
the path followed in the pursuit of these goals should avoid leaving significant people below the social
foundation. She argues for good‐quality growth that works for the poorest people first, and significantly
reduces inequalities.
Cole’s study concludes that South Africa has crossed its safe environmental boundaries for climate change,
freshwater use, biodiversity loss and marine harvesting and is within 10 % of crossing the boundaries for
arable land use, phosphorous loading and air pollution.
The study concludes that key shifts are required in governance, spatial development and job creation if
current PB and social justice issues are to be addressed going forward.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 32
Figure 2: Planetary Boundaries, from Steffen et al. 2015
Figure 3: The Oxfam Doughnut Model, from Raworth, 2012.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 33
Figure 4: The South African Doughnut, from Cole, 2015.
1.4 Financial & Technical Support from the Global Community
The previous sections have highlighted the extensive global focus on climate change, environmental and
economic sustainability, human well‐being, social equity and justice. The world’s leaders have recognised
that collaboration and co‐operation between countries and regions is key to addressing the most pressing
problems that put the future of the planet and people at risk. In light of this, there are a significant number
and diversity of initiatives in place (and being set up) that specifically seek to build capacity, provide technical
and financial support, and encourage positive and proactive action towards addressing the issues of global
environmental change that impact on people and economies. South Africa (including eThekwini Municipality
in some specific cases) is already an active member / participant in a number of these initiatives and has been
the recipient of both technical and financial support towards its sustainable development and climate
protection goals (see Section 1.2.2 The Role of Cities).
Under the banner of global climate protection, and in response to the recognised need for finance support
to be provided to developing countries, a number of climate funds have already been set up by numerous
different global agencies, with specific sectors or activities targeted by each. The website Climate Funds
Update (www.climatefundsupdate.org) lists 28 different multi‐lateral and bi‐lateral climate funds that are
administered through 15 different entities, including the World Bank, Global Environment Facility (GEF),
UNDP, the European Commission, and African Development Bank.
The Green Climate Fund (GCF) was established by 194 governments to limit or reduce greenhouse gas (GHG)
emissions in developing countries, and to help vulnerable societies adapt to the unavoidable impacts of
climate change. The GCF is accountable to the United Nations. It is guided by the principles and provisions of
the UNFCCC. It is governed by a Board of 24 members, comprising an equal number of members from
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 34
developing and developed countries, and is the only stand‐alone multilateral financing entity whose sole
mandate is to serve the Convention and that aims to deliver equal amounts of funding to mitigation and
adaptation (www.greenclimate.fund).
The GCF will be administered through “accredited agencies” who act as fund managers in each country. In
South Africa, the Development Bank of Southern Africa (DBSA) is likely to be the first accredited agency, and
would be able to issue funding of up to $250 million per project; the South African National Biodiversity
Initiative (SANBI) is expected to follow in the accreditation process, and would be able to issue funding for
projects of up to $50 million. Each accredited agency must develop a “portfolio”, which is essentially a set of
projects / programmes / types of projects that it will facilitate funding for. DBSA and SANBI had not developed
their portfolios at the time of this publication.
The GCF has developed a set of criteria that it uses to define whether funding applications will meet the
targets of the fund. While the GCF aims to fund implementation, there is also a provision for “readiness”
funding which can include programme / project development. This is funded to a maximum of $5 million.
1.5 Pointers for the Durban 2022 Commonwealth Games Sustainability Programme
With the achievement of the Paris COP21 Outcome and the adoption of the UN SDGs, 2015 stands out as a
landmark year for the establishment of enhanced global climate change action and sustainable development
priorities. These outcomes will have significant influence on the policies, actions and investments of countries
around the world for at least the next 10 to 15 years.
However, while the high level agreements achieved in 2015 undoubtedly represent a watershed moment in
history, it is clear that large‐scale and comprehensive change in patterns of investment and governance is
needed if the risks faced by people and the planet resulting from past patterns of development and resource
consumption are to be reduced. It is for this reason that the world’s leading practitioners are calling for rapid
transformative processes to be adopted in respect of governance, spatial planning and human settlements,
infrastructure, technology, capacity building, and financing.
In South Africa, it is not possible or appropriate to focus on addressing global environmental change priorities
without directing attention towards its already high and rapidly increasing social and economic inequality
and development needs. For a country grappling with major issues of social inequality, weak economic
growth and increasing natural resource scarcities, any investment in addressing global priorities must clearly
demonstrate local developmental and transformative benefits to be justifiable.
It is in this context that the following key pointers emerge from the current and emerging global climate
change and sustainable development context, and which should be used in shaping a Sustainability
Programme for the Durban 2022 Commonwealth Games:
1.5.1 Leveraging transitionary processes
Recent global discourses on the Paris Outcome and the UN SDGs are fairly unanimous in identifying that
global patterns of unsustainable resource consumption and harmful greenhouse gas emissions can only be
diverted if there can be a rapid transitioning (or reform) in systems of governance and investment, patterns
and forms of human settlements, technology and human capital. This transitioning implies a speedy move
away from ‘business as usual’ towards a new order of climate and resource risk‐cognisant development and
investment decision‐making, efficient technologies, enhanced human capacity and widespread changes in
behaviour. There has also been a recognition that such transitioning processes not only come with a
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 35
potentially high price tag, but may also be hampered by established patterns of economic investment and
political power. For a country such as South Africa, and a city such as Durban, the source and impetus for
such rapid transitioning processes is yet to be fully determined.
Mega‐events, such as the 2022 Commonwealth Games have been shown to present an important
opportunity for the host country, and host city in particular, to operate outside of ‘business as usual’
(Diederichs and Roberts, 2015), to test new approaches and establish new skills (Roberts et al. 2012). The
2022 Commonwealth Games therefore offers an opportunity for eThekwini Municipality to utilise the
elevated levels of international technical support and funding available to leverage a strategic realignment
and rapid enhancement of existing internal capacity, skills and systems for improved climate protection and
sustainability outcomes. This implies a legacy of enhanced governance that is more responsive to global and
national sustainability and climate protection priorities. It also implies a key opportunity to leverage new /
additional sources of long term finance for workstreams embedded within the municipal administration that
have a clear climate protection and urban resilience‐building goal.
1.5.2 Balanced mitigation-adaptation focus for ‘resilience’ outcomes
The Paris Outcome makes a clear link between investment in climate mitigation and adaptation: while
investment in mitigation is an imperative to secure the future of all humanity, the manner in which this
investment is made should be responsive to local risks and vulnerabilities, and should seek to enhance
capability to adapt to the unavoidable impacts of climate change. In essence, investment in climate
protection should seek to enhance the resilience of societies, economies and the natural environment to
global climate change.
South Africa’s commitment to climate action is embodied in its INDC, which also articulates quite clearly the
country’s need to achieve its climate mitigation and adaptation goals through developmental processes that
address the country’s key social and economic needs.
These approaches spell out a clear path for how sustainability in the 2022 Commonwealth Games should be
approached: investment in mitigation of the carbon emissions from the event are imperative, but this
investment needs to be directed in such a way as to achieve enhanced social equality and resilience,
sustainable (and low carbon) economic development, and enhanced resilience of ecological systems. Such
investment needs also to be centred on addressing locally specific vulnerabilities and risks, such that the
resilience outcomes are high impact and long‐lasting.
Importantly, an event of this magnitude also offers an important opportunity for Durban to demonstrate in
practical terms how cities can address the twin aims of climate mitigation and adaptation in a balanced
manner that is developmental in nature. Sharing experiences and outcomes of such work can provide an
important platform to encourage and assist other cities / agencies grappling with such issues, particularly
other African cities. Shared learning and collaboration should therefore form a key component of the
Sustainability Programme approach.
1.5.3 Emphasis on partnerships and collaboration
Global discourses on climate action and sustainability suggest that partnerships are key for achieving lasting
and impactful outcomes. This has been shown to be true in Durban in the hosting of the 2010 FIFA™ World
Cup and 2011 COP17/CMP7 (Roberts et al. 2012).
In order to leverage a transition towards improved systems of sustainability and climate action in the greater
Durban region, eThekwini Municipality should seek to establish / enhance meaningful partnerships with
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 36
business and industry, non‐governmental organisations, education / research institutions and other
government agencies. These partnerships should not be confined by the administrative boundaries of
eThekwini Municipality, and should seek to foster regional collaboration, capacity building, influence and
impact. They should seek to leverage enhanced investment in human capital, natural capital, institutional
capital and social capital, with the aim of contributing positively towards climate change mitigation, climate
resilience, sustainable development, social equity and social justice.
The concept of the ‘energetic society’ espoused by Hajer and Huitzing (2012) is worth further consideration
in the Durban 2022 Commonwealth Games sustainability roadmap (see Footnote 4). The direct involvement
and energy of civil society and business, both in the event sustainability initiatives and beyond, could be
leveraged through appropriate incentives, thereby expanding the beneficial footprint and impact.
1.5.4 Safe and Just Operating Space considerations
While the mega‐event sustainability initiatives need to take into account the minimisation and mitigation of
a wide range of negative impacts, the work being done at an international, national and local scale on ‘safe
and just operating space’ must to be taken into account when setting priorities and reporting frameworks
for the Durban 2022 Commonwealth Games Sustainability Programme.
According to Cole (2015), impoverished communities in South Africa are ‘below the social floor’ in terms of
issues such as: voice, healthcare, education, electricity, housing, sanitation, water, income, jobs, safety,
household goods and food security. Cole also indicates that in the South African context, environmental
sustainability boundaries have been crossed with respect to: marine resource harvesting, freshwater use,
climate change and biodiversity loss. Steffen et al. (2015) report that at a global scale, nitrogen and
phosphorus pollution have moved beyond ‘safe’ levels, as has loss of genetic diversity, land system changes
and climate change.
The above implies that for the Durban 2022 Commonwealth Games Sustainability Programme to be relevant
in the international context, the programme should not only be designed to respond to these ‘safe and just
operating space’ priorities, but should also be able to report on the contribution of the event to these issues.
The design of the monitoring and reporting frameworks will therefore require an innovative approach, and
it is suggested that collaboration with international researchers leading the work on the safe and just
operating space should be sought.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 37
CHAPTER 2 – REVIEW OF NATIONAL & LOCAL CONTEXT & PRIORITIES
2.1 Introduction
South Africa has a well‐developed policy and legislative environment dealing with economic development,
environmental management, water resource management and security, energy generation and security, and
waste and pollution management. National policy and legislation dealing with climate change exists in
various states of readiness and adoption, and is therefore considered to still be under development. Over
and above this national context, eThekwini Municipality has its own set of locally relevant policies, plans and
programmes dealing with sustainability in various ways.
The hosting of the Durban 2022 Commonwealth Games will need to be done in a manner that is compliant
with and supportive of both national and local legislation / policy, and associated sustainable development
and environmental protection priorities. In addition, the hosting of the event should seek to drive key
developmental and sustainability agendas in South Africa and Durban, including through building capacity,
transitioning institutions, and leaving a positive social, environmental and economic legacy.
It is the purpose of this chapter to highlight the key national and local legislation / policies, plans and
programmes, and associated priorities which need to shape the sustainability programme for the Durban
2022 Commonwealth Games.
2.2 Applicable National Legislation & Policy
2.2.1 The South African Constitution (Act 108 of 1996)
In accordance with Section 24 of the South African Constitution (RSA, 1996), “Everyone has the right to an
environment that is not harmful to their health or well‐being; and to have the environment protected, for the
benefit of present and future generations, through reasonable legislative and other measures that prevent
pollution and ecological degradation; promote conservation; and secure ecologically sustainable
development and use of natural resources while promoting justifiable economic and social development.”
This constitutional right, along with all other constitutional rights, must underpin the environmental
management and protection approach adopted by all state entities.
It is the above Constitutional Right that provides the basis for ensuring that the hosting of the Durban 2022
Commonwealth Games does not result in environmental degradation, pollution or other harm, that may
affect the health or well‐being of people.
2.2.2 South Africa’s National Development Plan (NDP)
The National Development Plan (NDP) (RSA National Planning Commission, 2012) is South Africa’s strategic
visioning document that sets out the high level directives for sustainable growth of the country’s economy,
improvement in social equality, development of the country’s human capital, and protection of the country’s
natural capital. This Act was cited as one of the key underpinning pieces of legislation motivating South
Africa’s bid to host the 2022 Commonwealth Games in Durban (Durban 2022, 2015).
The NDP aims to eliminate poverty and reduce inequality by 2030. According to the plan, South Africa can
realise these goals by drawing on the energies of its people, growing an inclusive economy, building
capabilities, enhancing the capacity of the state, and promoting leadership and partnerships throughout
society (RSA National Planning Commission, 2012).
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 38
The NDP states that “South Africa is the world’s 27th largest economy but the 12th largest CO2 emitter”. This
points to a clear recognition in the NDP that South Africa’s economy has been built on energy intensive
production, using cheap carbon‐intensive energy, and that this is neither sustainable nor desirable going
forward. The NDP notes that economic growth in South Africa faces a set of “binding constraints”, one of
which is energy security. Fundamentally, the NDP points to the need for a structural change in how energy is
both generated and used in South Africa as a central tenet of sustainable future economic growth. It sets a
target of an average of 5.4 % growth in the national economy until 2030.
The NDP therefore provides not only a strong economic development argument for the hosting of the 2022
Commonwealth Games in South Africa, but also provides direction on the need for the investment into the
infrastructure and systems for this event to be done in an energy efficient and climate responsible manner.
The NDP principles are therefore strongly supportive of opportunities to secure positive “green economy”
outcomes, or transitions, through the hosting of the event.
2.2.3 National Framework for Sustainable Development
The country’s sustainable development vision is outlined in the National Framework for Sustainable
Development (2008) as “South Africa aspires to be a sustainable, economically prosperous and self‐reliant
nation state that safeguards its democracy by meeting the fundamental human needs of its people, by
managing its limited ecological resources responsibly for current and future generations, and by advancing
efficient and effective integrated planning and governance through national, regional and global
collaboration”.
The purpose of this Framework is to set out South Africa’s national vision for sustainable development and
indicate strategic interventions to re‐orientate South Africa’s development path in a more sustainable
direction. It does not present detailed strategies or actions, but rather proposes a national vision, principles,
trends, strategic priority areas and a set of implementation measures that will enable and guide the
development of the national strategy and action plan.
It describes in broad terms how the existing activities of government and its social partners will be
strengthened, refined and realigned in a phased manner to achieve inter‐related sustainable development
goals relating to the economy, society and the environment, and how governance systems will be capacitated
to facilitate this process.
This Framework provides the basis for a long‐term process of integrating sustainability as a key component
of the development discourse and shows South Africa’s commitment to the principles developed at
international summits and conferences in the economic, social and environmental fields, including the 2002
World Summit on Sustainable Development.
2.2.4 National Sport and Recreation Plan (NSRP)
The focus of the National Sport and Recreation Plan (NSRP) (2012) is to reconstruct and revitalise the delivery
of sport and recreation towards building an active and winning nation that equitably improves the lives of all
South Africans. This Plan was cited as one of the key underpinning national policies motivating South Africa’s
bid to host the Durban 2022 Commonwealth Games (Durban 2022, 2015).
In addition to various objectives focusing on the development of sports codes, sports facilities, sports talent
and opportunities for South African sportsmen and women, the NSRP supports for the use of sport as a tool
to support and achieve a diverse range of national and global priorities, including the following strategic
objectives:
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 39
To use sport and recreation as a medium to attract tourists to South Africa.
To use sport and recreation as a mechanism for achieving peace and development.
To ensure that participation in sport and recreation activities is conducted in an environmentally
sustainable manner and to use sport as a tool for communicating environmental messages and
encouraging actions to clean up the environment.
To capitalise on the numerous benefits derived from participating in sport and recreation as a
mechanism towards achieving and supporting the priorities of National Government. This includes
among others:
o To build the sports economy to effectively contribute to shared economic growth and
development in South Africa, including through the creation of decent work.
o To use sport and recreation as a medium for building social cohesion and sustainable
communities.
o To harness the nation‐building characteristics of sport and recreation.
o To use sport and recreation as a medium of building a healthy nation.
The NSRP therefore provides the key national policy platform advocating for and supporting the hosting of
international sports events as a means of growing the tourism and sports economies, promoting economic
development, social upliftment, health and equality, and nation building. It also provides a basis for the
implementation of event sustainability programmes that address the environmental impacts of sports
events, and associated environmental communications and messaging.
2.2.4 National Environmental Management Act (NEMA) (Act 107 of 1998)
The National Environmental Management Act (NEMA) gives effect to Section 24 of the Constitution, which is
the environmental right. It is an overarching piece of environmental legislation in that it sets out the general
principles that organs of state must take into account when making decisions affecting the environment. The
underlying principle advocated by NEMA is that development must be socially, environmentally and
economically sustainable, and that environmental management must address human needs. This legislation
therefore directs the need to host the Durban 2022 Commonwealth Games in an environmentally sustainable
manner.
A set of regulations has been promulgated in terms of NEMA which identify development activities that may
have a detrimental impact on the environment, and so require “environmental authorisation” prior to being
undertaken. The process of applying for environmental authorisation for these activities is accompanied by
an Environmental Impact Assessment, or Basic Assessment. The regulations under which the lists of regulated
activities that require environmental authorisation are published are:
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 40
Table 1: Environmental Impact Assessment Regulations - list of relevant government notices
Government Notice Title Description
GNR 982 of 2014 Environmental Impact Assessment Regulations
Sets out the procedures, processes, timeframes and standards for applications for environmental authorisation, amendments to environmental authorisations, auditing of compliance with environmental authorisations and environmental management plans. This includes the requirements for public participation.
GNR 983 of 2014 Listing Notice 1 Sets out the listed activities that require environmental authorisation subject to Basic Assessment.
GNR 984 of 2014 Listing Notice 2 Sets out the listed activities that require environmental authorisation subject to Environmental Impact Assessment.
GNR 985 of 2014 Listing Notice 3 Sets out the listed activities, subject to location within South Africa,that require environmental authorisation subject to Basic Assessment.
Periodic amendments to the above regulations and listing notices are published in the Government Gazette.
The hosting of the Commonwealth Games, including all temporary and permanent infrastructure that may
be required to be constructed for the event, must therefore comply with the Environmental Impact
Assessment regulations. The competent authority which reviews such applications for environmental
authorisation is the KwaZulu‐Natal Department of Economic Development, Tourism and Environmental
Affairs (EDTEA) or National Department of Environmental Affairs (DEA).
2.2.5 National Environmental Management: Waste Act (NEMWA) (Act 59 of 2008)
The purpose of the National Environmental Management: Waste Act (NEMWA) was to reform the laws
regulating waste management in order to protect human health and the environment by providing
reasonable measures for the prevention of pollution and ecological degradation, and for securing ecologically
sustainable development.
A set of regulations promulgated under this act sets out a range of waste handling, storage, treatment and
disposal activities that require Environmental Authorisation subject to Environmental Impact Assessment or
Basic Assessment.
Table 2: Waste Management Regulations - list of relevant government notices
Government Notice Title Description
GNR 718 of 2009 List of Waste Management Activities
Sets out the listed waste management activities that require environmental authorisation subject to Basic Assessment (Category A) or Environmental Impact Assessment (Category B).
GNR 1113 of 2010 and GNR 921 of 2013
Amendment to List of Waste Management Activities
Sets out key amendments to the listed activities that require environmental authorisation subject to Basic Assessment or full Environmental Impact Assessment.
GNR 614 of 2012 Waste Classification and Management Regulations
Regulates the classification and management of waste, establishes a mechanism and procedure for waste management activities that do not require a license, prescribes requirements for the disposal of waste to a landfill, and prescribes general duties of waste managers, transporters and generators.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 41
The handling, storage and disposal of waste associated with the Durban 2022 Commonwealth Games event
will therefore need to comply with the provisions of NEMWA.
2.2.6 National Waste Management Strategy (NWMS)
As a requirement of the National Waste Management Strategy (NWMS) (2011), all municipalities are required
to develop an Integrated Waste Management Plan. The NWMS is structured around a framework of eight
goals, which include (amongst others):
Promote waste minimisation, re‐use, recycling and recovery of waste;
Ensure the effective and efficient delivery of waste services;
Grow the contribution of the waste sector to the green economy;
Ensure that people are aware of the impact of waste on their health, well‐being and the environment.
In terms of the above, eThekwini Municipality will be required to ensure that waste minimisation, re‐use,
recycling and recovery are included in the waste management approach and plans for the Durban 2022
Commonwealth Games event. In addition, opportunities to grow the green economy through sustainable
waste management should be sought as a legacy outcome from the event.
2.2.7 National Water Act (NWA) (Act 36 of 1998)
The National Water Act (NWA) is concerned with the overall management, equitable allocation and
conservation of water resources in South Africa. To this end, it requires registration of water users and
licenses to be obtained for water use except for certain limited instances set out in the Act. These instances
include domestic use, certain recreational use, where the use occurs in terms of an existing lawful use or
where the Department of Water and Sanitation (DWS) has issued a general authorisation that obviates the
need for a permit.
In the NWA, no obligations are imposed upon municipalities in relation to authorisation. Even though this is
the case, they still have the following obligations / powers under the NWA:
To give effect to the purpose of the Act.
To take reasonable measures to prevent pollution of water resources that it owns, controls, occupies or
uses the land in question.
To remedy situations where pollution of a water resource occurs following emergency incident and
where the municipality is responsible for the incident or owns or controls the substance which caused
the emergency incident.
Not to establish a township unless the layout plan shows, in a form acceptable to the local authority
concerned, lines indicating the maximum level likely to be reached by floodwaters on average once in
every 100 years.
EThekwini Municipality will need to ensure that all aspects of the event infrastructure and systems comply
with the provisions of the NWA, including obtaining Water Use Licenses where event activities /
infrastructure trigger the need for this. It will also need to take responsibility for the prevention of pollution
to water resources and response to any pollution that may be associated with the Commonwealth Games
event.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 42
2.2.8 National Heritage Resources Act (NHRA) (Act 25 of 1999)
The National Heritage Resources Act (NHRA) governs the protection and management of natural and cultural
heritage resources. It provides for the establishment of heritage authorities, whose purpose it is to
administer the Act and all regulations promulgated under it. The following sections of the Act have
implications for municipal projects, where permission for construction or demolition of infrastructure from
the relevant heritage authority is required:
Section 34 (1) of the National Heritage Resources Act, 1999:
No person may alter or demolish any structure or part of a structure which is older than 60 years without a
permit issued by the relevant provincial heritage resources authority.
Section 38 (1) of the National Heritage Resources Act, 1999:
Subject to the provisions of subsections (7), (8) and (9), any person who intends to undertake a development
categorised as –
(a) the construction of a road, wall, powerline, pipeline, canal or other similar form of linear development
or barrier exceeding 300m in length;
(b) the construction of a bridge or similar structure exceeding 50m in length;
(c) any development or other activity which will change the character of a site –
(i) exceeding 5 000 sq. m in extent; or
(ii) involving three or more existing erven or subdivisions thereof; or
(iii) involving three or more erven or divisions thereof which have been consolidated within the
past five years; or
(iv) the cost of which exceed a sum set in terms of regulations b SAHRA or a provincial heritage
resources agency;
(d) the re‐zoning of a site exceeding 10 000 sq. m in extent; or
(e) any other category of development provided for in regulations by SAHRA or a provincial heritage
resources agency,
must at the very earliest stages of initiating such a development, notify the responsible heritage resources
authority and furnish it with details regarding the location, nature and extent of the proposed
development.
In terms of the above, eThekwini Municipality will need to comply with any cultural heritage permit
requirements for all event hosting infrastructure, systems and operations associated with the Durban 2022
Commonwealth Games.
2.2.9 National Climate Change Response White Paper (2011)
In 2011 the Department of Environmental Affairs published the National Climate Change Response White
Paper, which documents the vision and policy of the South African government to developing an effective
response to climate change and moving towards a low carbon economy.
Both climate adaptation and mitigation responses are incorporated into the White Paper. The main
objectives of the Paper are to manage climate change impacts through various interventions (adaptation
response) and to reduce the emissions that South Africa produces (mitigation response).
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 43
The overall approach of the policy is the promotion of “climate change resilient development” and
incorporates both mitigation and adaptation interventions. The definition given is as follows:
“Climate change resilient development refers to all interventions – mitigation, adaptation or both – that
contribute to a fair and effective global solution to the climate change challenge while simultaneously building
and maintaining South Africa’s international competitiveness, its social, environmental and economic
resilience to the adverse effects of global climate change, and any unintended consequences of global climate
change response measures” (RSA Department of Environmental Affairs, 2011).
Under the climate adaptation section, the policy identifies key adaptation sectors and sets out policy actions
for each. The key sectors include water, agriculture and commercial forestry, health, biodiversity and
ecosystems, human settlements ‐ a distinction is made between urban, rural and coastal ‐ and disaster risk
reduction and management. The policy asserts that adaptation responses have a stronger local context than
mitigation responses and their benefits may appear faster and are often more tangible. The policy also states
that adaptation responses can help to create green economy jobs and therefore adaptation responses can
be included in sustainable development policies.
South Africa’s mitigation efforts are framed within two contexts by the White Paper. The first is to contribute
to the reduction in global emissions and the second is to promote development and eradicate poverty. With
support from the developed world, South Africa has set a goal of achieving a 34 % reduction in GHG emissions
against business as usual by 2020, and 42 % reduction in GHG emissions against business as usual by 2025.
With this support, GHG emissions are expected to peak between the years 2020 and 2025, and thereafter
plateau for about a decade, and then decline. These targets were informed by a long term scenario study
compiled for South Africa.
Local governments are tasked with incorporating climate change considerations and constraints into
municipal development tools including their Integrated Development Plans and service delivery
programmes. As such, appropriate climate change considerations will need to be addressed in the manner
in which eThekwini Municipality hosts the Durban 2022 Commonwealth Games.
2.2.10 Disaster Management Amendment Act (DMA) (Act 16 of 2015)
The Disaster Management Act (2004) and Amendment Act (2015) sets out a range of actions to be taken by
a municipality. These actions including formulating disaster management plans and short‐term contingency
arrangements. Section 53 of the Act requires that each municipality must conduct a disaster risk assessment,
identify and map risks, areas, ecosystems, communities and households that are exposed or vulnerable to
physical and human‐induced threats and prepare a disaster management plan. This includes its role and
responsibilities regarding emergency response and post‐disaster recovery and rehabilitation, but also
providing measures and indicating how it will invest in disaster risk reduction and climate change adaptation,
including ecosystem and community‐based adaptation approaches.
It is in the 2015 Amendment of the Act that the role of climate change adaptation, and especially ecosystem
and community‐based approaches, and its relation to disaster risk reduction, is acknowledged. This provides
a clear link between disaster management and climate change adaptation within eThekwini Municipality,
and provides a legislated mandate for Durban to implement its climate change strategy.
The above context sets out a clear rationale for addressing the climate impacts of the Durban 2022
Commonwealth Games in an integrated way, where investment in the mitigation of global climate impacts
(i.e. greenhouse gas emissions) attributable to the event, is balanced with an investment in building the
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 44
adaptive capacity and resilience of infrastructure, people and the local economy to the effects of unavoidable
climate change.
2.2.11 National Tourism Sector Strategy (2011), National Tourism and Climate Change Action Plan (2011), National Responsible Tourism Development Guidelines (2002) & Minimum Standards for Responsible Tourism (2011)
Responsible Tourism is defined by the National Department of Tourism as a tourism management strategy
in which the tourism sector and tourists take responsibility to protect and conserve the natural environment,
respect and conserve local cultures and ways of life, and contribute to stronger local economies and a better
quality of life for local people. Responsible tourism is also about enabling local communities to enjoy a better
quality of life, through increased socio‐economic benefits and an improved environment. It is also about
providing better holiday experiences for guests and good business opportunities for tourism enterprises.
The 2002 National Responsible Tourism Development Guidelines for South Africa set out clear principles for
economic responsibility, social responsibility and environmental responsibility in tourism related activities,
facilities and industries. In 2011, the National Department of Tourism facilitated the development of National
Minimum Standards for Responsible Tourism (SANS 1162). The purpose of these minimum standards were
to establish a common understanding of responsible tourism and align the different sets of criteria that are
used for certifying the sustainability of tourism businesses. The standard consists of 41 criteria divided into
the following four categories:
Sustainable operations and management,
Economic criteria,
Social and cultural criteria,
Environmental criteria.
Also in 2011, the National Department of Tourism produced the Draft National Tourism and Climate Change
Action Plan, which aims to address the implications of climate change on tourism. The reduction of GHG
emissions through energy efficiency and other actions is a major focus of the response programme, which
also aims to raise awareness in the tourism industry of the need to address climate change risks. The National
Tourism Sector Strategy (2011) mandates the National Department of Tourism and the tourism industry to
commit to the reduction of GHG emissions (particularly through tourist travel) through a Voluntary Accord.
The above strategies, guidelines and national minimum standards set out the policy platform, and tools, that
can be used to promote sustainability in the tourism sector as part of the hosting of the Durban 2022
Commonwealth Games. This includes in the air and ground transportation industry, hospitality facilities, tour
companies, event hosting facilities and operators.
2.2.12 National Building Standards and Regulations
South Africa faces an energy generation capacity backlog, which has resulted in the country encouraging
energy efficiency in all sectors while fast‐tracking the development of renewable energy generation capacity
through the Department of Energy’s Renewable Energy Independent Power Producers Programme (REIPPP).
These actions are supportive of the aims of the National Climate Change Response White Paper (2011), which
require a significant change in the country’s Greenhouse Gas Emissions trajectory over the next 10 to 20
years. This can only meaningfully be achieved by changing the country’s energy generation mix from its
current scenario, which comprises a predominance of coal‐fired electricity generation, to a greater
renewable energy generation capacity.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 45
As part of the process of addressing energy efficiency, the National Building Regulations have been updated
to include a number of energy efficiency building standards. These are included in SANS 204‐1, 204‐2 and
204‐2 (thermal efficiency in buildings) and SANS 10400‐XA (energy usage in buildings). All new buildings
constructed for the Durban 202 Commonwealth Games will need to comply with these standards.
2.2.13 ISO 14000 Environmental Management Systems
It is common practice for major event hosting facilities in South Africa, such as the Durban International
Convention Centre (Durban ICC), to have an established Environmental Management System (EMS) that is
compliant with the ISO14001 international standard, and that the facility’s compliance with the EMS is
validated / certified locally. While such ISO14001 compliant EMS was developed for the Moses Mabhida
Stadium as part of the Greening Durban 2010 Programme, certification of the facility’s compliance with the
ISO standard has not been undertaken.
The ISO 14000 family of standards provides practical tools for companies and organizations of all kinds
looking to manage their environmental responsibilities. ISO 14001:2015 and its supporting standards such as
ISO 14006:2011 focus on environmental systems to achieve this. The other standards in the family focus on
specific approaches such as audits, communications, labelling and life cycle analysis, as well as environmental
challenges such as climate change (http://www.iso.org/iso/iso14000).
2.3 Relevant Local / Regional Policies, Plans and Functions
2.3.1 Local Policies and Plans
2.3.1.1 EThekwini Long-term Development Framework (LTDF)
EThekwini Municipality established its Long‐term Development Framework (LTDF) in 2001, which mapped
the strategic vision for eThekwini Municipality over the next twenty years (to 2021). In its Candidate City File,
the Durban 2022 Commonwealth Games Bid Committee motivated that the hosting of the event would be
supportive of Durban’s long term development vision as set out in the LTDF. The event has been cited as
being able to facilitate acceleration of planned investments in social amenities and transportation
infrastructure.
The main focus of the LTDF is to improve the quality of life for all the people of eThekwini Municipality. The
LTDF strategy to achieve this aim is based on three key pillars:
1. Meeting basic needs,
2. Strengthening the economy, and
3. Building skills and technology.
In terms of the second pillar, strengthening the economy, tourism is one of the sectors identified for growth
that could assist towards meeting the LTDF target of increasing jobs by 3% per annum. In addition, it is
suggested that a strong regeneration thrust is needed within key economic areas aimed at improving services
and infrastructure (CBD, beachfront etc.).
The LTDF recognises the importance of growing the economy and addressing social needs in a manner that
is sustainable. The LTDF states that, “Sustainability requires that we balance the social, economic and
environmental needs of our society to ensure that all development occurs within the carrying capacity of the
natural environment. This is particularly important in a city such as ours where the environment continues to
act as a service provider, meeting the basic needs of many of the city's poorest communities and providing
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 46
critical services to large‐scale industrial development, by providing raw materials for building, water for
drinking and the treatment of waste from human and manufacturing activities.”
The LTDF therefore provides not only a key local policy platform on which the hosting of the 2022
Commonwealth Games in Durban is motivated, but also provides a framework of principles that guide the
manner in which the hosting of the event should be undertaken. The need to ensure that the event
contributes to the overarching long term development goal of the City of Durban – i.e. improving quality of
life for all its people – is therefore a fundamental requirement.
2.3.1.2 Imagine Durban Long-term Development Plan (LTDP)
In 2010 the LTDF was revised through the Imagine Durban Long‐term Development Plan (LTDP) project. The
main purpose of this project was to develop a visionary plan that can inspire citizens, nongovernmental
organisations, businesses and government to work together to refine the vision statement and key strategies.
The revised vision statement as outlined in the Imagine Durban process and as adopted by the 2010 and
beyond IDP reads: “By 2020 eThekwini will be Africa’s most caring and liveable city”. This vision will be
achieved by growing its economy and meeting people’s needs so that all citizens enjoy a high quality of life
with equal opportunities, in a municipality that they are truly proud of.
The LTDP outlined the following key strategies through the development framework:
1. Creating a Safe Municipality;
2. Promoting an Accessible Municipality;
3. Creating a Prosperous Municipality where all enjoy Sustainable Livelihoods;
4. Celebrating our Cultural Diversity, Arts and Heritage;
5. Ensuring a more Environmentally Sustainable Municipality; and
6. Fostering a Caring and Empowering Municipality.
2.3.1.3 EThekwini Municipality Integrated Development Plan (IDP)
The LTDP has been divided into smaller, five year draft Integrated Development Plans (IDP’s) that will guide the development of eThekwini Metropolitan Municipality so that all services are provided in a co‐ordinated
way, considering all aspects of people’s lives.
In line with the LTDP vision, strategies and outcomes, eThekwini Municipality’s 2015/16 IDP Eight Point Plan
outlines the short term strategies and outcomes intended at addressing the key challenges and achieving the
long term vision. The eight point plans are the Municipality’s delivery plan, which despite being separate
plans are supportive of each other to ensure effective delivery. The eight plans are:
1. Develop and Sustain our Spatial, Natural and Built Environment.
2. Developing a Prosperous, Diverse Economy and Employment Creation.
3. Creating a Quality Living Environment.
4. Fostering a Socially Equitable Environment.
5. Creating a Platform for Growth, Empowerment and Skills Development
6. Embracing our Cultural Diversity, Arts and Heritage.
7. Good Governance and Responsive Local Government.
8. Financially Accountable and Sustainable Municipality.
The United Nations Sustainable Development Goals provide an additional focal area for the development of
the 2016/17 IDP (see Section 1.3.1 UN Sustainable Development Goals). During 2016, the individual
targets for each of the gaols will be confirmed and adopted globally. Where possible, these targets would
need to be incorporated into the Municipality’s revised IDP.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 47
The Municipal IDP is the policy which is used to determine actions taken by the municipality, and the
allocation of budgets for the completion of these actions.
2.3.2 Relevant Municipal Line Functions & Associated Activities
2.3.2.1 Environmental Planning & Climate Protection Department
The function of eThekwini Municipality’s Environmental Planning and Climate Protection Department
(EPCPD) is to facilitate and promote the conservation of biodiversity and the ecosystem goods and services
it provides for the benefit of present and future generations, and to plan for mitigation of and adaptation to
the impacts of climate change.
Through its various branches, the EPCPD co‐ordinates and implements a range of programmes and projects,
reviews development applications, inputs into municipal planning processes, develops and communicates
relevant information, and develops policy that is required to ensure that all international, national and local‐
level environmental management and climate protection obligations, requirements and mandates are met.
A brief overview is provided here of some of the key departmental programmes and functions that are
notably relevant to the Durban 2022 Commonwealth Games event hosting process.
Municipal Climate Protection Programme (MCPP)
In 2004 eThekwini Municipality initiated a Municipal Climate Protection Programme (MCPP). An important
intervention included in the MCPP is the mainstreaming of climate change considerations into all aspects of
the work undertaken by the municipality. The MCPP has resulted in the production of:
Phase 1‐ Impact Assessment: Climatic Future for Durban Report (2006) assessed the local impacts of climate
change on the Municipality and proposed possible responses.
Phase 2‐ Adaptation Planning: Headline Adaptation Strategy, which highlighted some of the key
interventions required by the eThekwini Municipality if it is to adapt successfully to inevitable climate change.
This adaptation work is currently being extended through a range of adaptation initiatives including the
development of reforestation projects, pilot green roofs, sea level rise modelling, community adaptation
plans and the development and implementation of municipal adaptation plans for the water, health and
disaster management sectors.
Phase 3‐ Developing the Tool Box: the development of an Urban Integrated Assessment Framework (in
progress) that will enable the simulation, evaluation and comparison of strategic plans and policies in the
context of climate change.
Phase 4‐ Mainstreaming: mainstreaming of climate change considerations into city planning and
development. Interventions include hosting a carbon neutral COP17/CMP7 Climate Change meeting and a
carbon‐reduced 2010 FIFA™ World Cup in Durban and the creation of a Climate Protection Branch within the
EPCPD.
Durban Climate Change Strategy (DCCS)
The Durban Climate Change Strategy (DCCS) (2014) was developed as part of eThekwini Municipality’s MCCP
with the aim of defining a city‐wide approach to adapting to climate change and mitigating Durban’s
contribution to climate change.
As a result of these changes, there are a number of risks that Durban may face in the future. These include
changes from year to year in water availability, potential damage to infrastructure, threats to biodiversity
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 48
and ecosystems, impacts on agriculture and food security, higher energy consumption, and health impacts.
The urban poor are likely to be the most at risk. These impacts are likely to be compounded by indirect or
non‐climate change‐related risks, such as population growth rate.
Ten interrelated climate change response themes were identified through the strategy development process:
Water; Sea level rise; Biodiversity; Food security; Health; Energy; Waste and pollution; Transport; Economic
development; and Knowledge generation and understanding. A set of goals, objectives and responses was
developed for each theme.
Durban Adaptation Charter (DAC)
The EPCPD has hosted the Durban Adaptation Charter (DAC) global secretariat since the DAC was launched
at the UNFCCC COP17/CMP7 in Durban in 2011. This important international role places a clear onus on
eThekwini Municipality to continue to show leadership in the implementation of the Charter in its own
operations and development planning processes.
Central KwaZulu‐Natal Climate Change Compact (CKZNCCC)
To aid in the implementation of the DAC, a Central KwaZulu‐Natal Climate Change Compact (CKZNCCC) was
formed to facilitate regional information sharing and collaboration on climate change adaptation projects.
The CKZNCCC was established in February 2014 and comprises eThekwini Municipality and a number of other
district and local municipalities in surrounding areas. To date the CKZNCCC has acted to building capacity
and share information, but is in the process of obtaining funding and planning to collaborative climate change
adaptation and mitigation projects.
100 Resilient Cities Programme (100RC)
At the end of 2013, Durban was selected as one of the first 33 cities to be included in the Rockefeller
Foundation’s International 100 Resilient Cities (100RC) Programme. The Rockefeller Foundation launched
100RC to assist cities around the world in building urban resilience in the face of a future where stresses (i.e.
inequality, unemployment and degradation of the natural environment) and shocks (i.e. floods and other
disasters) are likely to become more prevalent.
With most of the world’s population now living in cities, building urban resilience is important in helping
cities (people, communities, infrastructure and ecosystems) to prepare for these challenges so that they can
recover effectively to a state better prepared to cope with both extreme and chronic events.
As one of the first cities to be selected for 100RC, Durban has been given the opportunity and responsibility
to work in a new and emerging field. 100RC will provide a significant global platform to share local innovation
and thinking and to learn from others, which is becoming increasingly important as the world moves into an
uncertain and unpredictable future. A key output of 100RC is to develop a ‘Resilience Strategy’ for Durban.
Durban’s involvement in 100RC is being coordinated under Dr Debra Roberts, Deputy Head: Environmental
Planning and Climate Protection Department (EPCPD) as the ‘Chief Resilience Officer’ and is being supported
by a Project Management team from the EPCPD, as well as by a cross‐departmental municipal team and a
number of external stakeholder groupings.
UMngeni Ecological Infrastructure Partnership
The eThekwini Water and Sanitation (EWS) Unit’s ability to deliver the volume and quality of fresh water
required within Durban and to provide sanitation services is becoming increasingly compromised by
catchment conditions and dynamics, many of which are external to eThekwini Municipal Area, specifically in
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 49
the uMngeni, upper Mooi and Mkomazi catchments. In order to facilitate collaborative management of
ecological infrastructure in the uMngeni River catchment system such that water related ecosystem services
are enhanced in a manner that improves regional water security, a partnership has been established between
EWS, EPCPD, the KZN office of the National Department of Water and Sanitation (DWS), Umgeni Water, the
South African National Biodiversity Institute (SANBI) and a host of other stakeholder organisations.
There are three pilot projects for the programme, one of which falls within eThekwini Municipal Area. The
local pilot project is the Palmiet Rehabilitation Project, which involves a range of interventions aiming to
improve living conditions and remove solid waste pollution for communities living in the lower catchment,
and the installation of wetlands in the system for flood management and water quality improvement.
Community Ecosystem Based Adaptation (CEBA) Programme
The EPCPD has established a number of projects that are actively restoring and managing biodiversity assets
with the key purpose of conserving biodiversity, creating jobs, enhancing ecosystem services delivery, and
improving human and ecological resilience to climate change. Within this programme are a number of
community reforestation projects, which have also been undertaken to secure carbon sequestration benefits
to offset the event‐related carbon emissions of the Durban 2010 FIFA™ World Cup and UNFCCC
COP17/CMP7. These projects have been hailed as global leaders demonstrating the links between climate
mitigation, adaptation and social upliftment of impoverished and vulnerable communities.
Biodiversity Planning & Impact Assessment
The EPCPD proactively undertakes biodiversity conservation planning and development impact assessment.
The purpose of these functions is to inform the preparation of strategic and local level municipal planning
and development decision‐making, to ensure that development in the municipal area is environmentally and
socially sustainable. The expertise of this unit could play an important role in the planning and development
of infrastructure and facilities for the Durban 2022 Commonwealth Games, including advising on the
environmental legislative compliance requirements that need to be met.
2.3.2.2 Architectural Services
The Architectural Services Department plays the primary role of designing and project managing the
construction of buildings. This function includes urban design and master plans for precinct‐scale
developments. The Architectural Services Department has a keen interest in promoting the development of
green buildings and was responsible for the design and construction of the uMngeni Green Hub that was
implemented as part of the Greening Durban 2010 initiative, as well as a wide range of other event‐related
facilities. This department is currently involved in the development of the precinct masterplan for the Moses
Mabhida Sports Precinct and the Durban Inner City Regeneration Plan.
The Architectural Services Department was also integrally involved in the development of the uMngeni Green
Precinct Plan, as well as a host of other plans, as part of the hosting of the 2010 FIFA™ World Cup, UNFCCC
COP17/CMP7 and other events. Some of the interventions identified in these plans were implemented, while
others still remain to be implemented when resources become available. In this regard, the department has
indicated that there is much existing planning that could be used to take important initiatives forward as part
of the Durban 2022 Commonwealth Games.
2.3.2.3 EThekwini Transport Authority
The eThekwini Transport Authority (ETA) is responsible for transportation systems planning and
development in the municipal area. This includes the development of the Integrated Rapid Public Transport
Network (IRPTN) and bicycle routes and bike‐share systems. This transportation system is known as
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 50
Go!Durban. The IRPTN “wall to wall” plan defines the ultimate (2025) public transport network for the
Municipality to ensure that the incremental implementation of the IRPTN achieves a number of objectives,
including equitable access to transport, reduced impact of transport on the environment, and promotion of
a liveable city.
ETA will be responsible for the development and management of transportation systems associated with the
Durban 2022 Commonwealth Games event in Durban. Previous events, such as the 2010 FIFA™ World Cup,
have provided the opportunity to fast‐track the development of non‐motorised and other forms of public
transport infrastructure that have left an important legacy for the city.
2.3.2.4 Economic Development & Investment Promotion Unit
The Economic Development and Investment Promotion Unit is mandated to promote economic
development; job creation, economic transformation and economic intelligence within the municipal region,
as well as to promote investment in Durban in order to grow the local economy.
It is guided by policies established by National and Provincial Government and articulates the approach to
economic development through the Municipality’s Integrated Development Plan (IDP) and an Economic
Development Strategy, from which all activities are guided by, but not restricted to, as the Unit also responds
to the broader challenges facing the greater region by endorsing other initiatives such as the UN’s Sustainable
Development Goals.
This unit is also responsible for promoting and seeking to grow the green economy in Durban.
2.3.2.5 EThekwini Water and Sanitation Unit
The eThekwini Water and Sanitation Unit (EWS) is responsible for the provision of water and sanitation
services to all customers in the municipality. This includes the provision of water and sewerage bulk and
reticulation systems, wastewater treatment services, and pollution control. EWS also plays an active role in
water quality management and monitoring in the municipal area, and is a leading partner in the uMngeni
Ecological Infrastructure Partnership Project. The unit has been a leader in innovating around establishing
renewable energy generation associated with its wastewater treatment works and bulk water transfer
pipelines. It also undertakes water conservation education amongst its consumers.
2.3.2.6 Energy Office
The Energy Office’s mission is to transform Durban’s governance, social, development and economic systems
in order to effectively mitigate climate change. It is responsible for conceptualising and initiating projects in
the following areas:
Renewable Energy (generating energy from renewable sources, such as the sun);
Energy Efficiency (helping use less energy); and
Climate Change Mitigation (reducing our greenhouse gas (GHG) emissions).
The Energy Office is implementing key elements of the Durban Climate Change Strategy and has indicated
that the Sustainability Programme for the Durban 2022 Commonwealth Games should be directed towards
supporting the implementation of this strategy.
The Energy Office was instrumental in developing and implementing the project involving installation of solar
water heaters in low income households and community residential units to generate a carbon offset as part
of the Greening Durban 2010 Programme. It also took this project through a validation process with the
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 51
UNFCCC Clean Development Mechanism such that tradeable Certified Emissions Reductions (CER) could be
generated to help fund the maintenance of the infrastructure.
The Energy Office is working to overcome a number of legislative obstacles preventing eThekwini
Municipality from generating its own renewable energy. While renewable energy can be generated for own
use, it cannot be sold. The Energy Office has indicated a desire to implement a major renewable energy
project as a means of offsetting the event carbon footprint and leaving a significant climate adaptation /
mitigation legacy for Durban.
2.3.2.7 Durban Tourism
The role of Durban Tourism is to market Durban as a “must visit” destination to the Domestic and
International tourism markets, and in so doing achieve Economic development and facilitate job creation for
the benefit of All the people of the Metropolitan region. This unit was involved in promoting responsible
practices in hospitality facilities used for the UNFCCC COP17/CMP7 in Durban (2011), and has a key role to
play in providing the linkages between major events such as the Commonwealth Games and tourism /
hospitality facilities and infrastructure in the greater Durban region.
2.3.3 Other Entities
2.3.3.1 Durban ICC
The Durban International Convention Centre (Durban ICC) is the primary convention centre in Durban, and
includes the Durban Exhibition Centre. The company is defined as a municipal entity and is 100 % controlled
by eThekwini Municipality.
The Durban ICC was the primary venue at which the UNFCCC COP17/CMP7 event was held in 2011. As part
of the greening of this event, energy efficiency was addressed in the ICC complex, and the Durban ICC
achieved ISO14001 compliance for its Environmental Management Systems for the first time (and which it
has maintained ever since). It is likely that the Durban ICC will be the venue for certain activities associated
with the Durban 2022 Commonwealth Games.
2.3.3.2 Moses Mabhida Stadium and Sports Precinct
EThekwini Municipality constructed and operates the Moses Mabhida Stadium. Along with the Kings Park
Stadium and adjacent sports grounds, Kings Park Swimming Pool, Peoples Park, and Cyril Geoghan
Velodrome, the Moses Mabhida Stadium is part of the central sports precinct within which the Durban 2022
Commonwealth Games will be hosted.
The usual stadium seating capacity is 56 000, and can be up‐scaled to 85 000 for major events. The stadium
includes a variety of green design elements, including passive ventilation and lighting, rainwater harvesting
and storage for sports field irrigation, energy efficient lighting and air conditioning.
2.3.3.3 Durban Green Corridor Initiative
The Durban Green Corridor initiative is a non‐profit initiative that is supported by eThekwini Municipality and
which develops, manages and promotes various eco‐tourism activities and infrastructure in the municipality.
The programme actively seeks to create employment and upliftment of low income and needy communities,
especially in rural areas and low income urban townships.
The Durban Green Corridor initiative took up residency and has further developed the uMngeni Green Hub
that was constructed as part of the Greening Durban 2010 programme. The Green Hub is an environmental
friendly building, which is designed to inspire through building design and technology to reduce water and
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 52
energy consumption. The Green Hub serves as an eco‐tourism information and environmental education
centre which is active in promoting local environmental clean‐ups, outdoor activities and education
programmes for schools and local residents.
2.4 Pointers for the Durban 2022 Commonwealth Games Sustainability Programme
2.4.1 National Policy Platform supporting a Sustainable Durban 2022 Commonwealth Games
South Africa’s National Development Plan (2012), which acts to provide the primary economic and social
development directive for the country, makes an urgent call for economic growth, job creation, and
improvement of social equality through appropriate development. The National Development Plan, and
National Climate Change Response White Paper, and the National Framework for Sustainable Development
provide clear direction on the need to ensure that South Africa’s economic development path needs to be
socially and environmentally sustainable. The checks and balances to achieve this sustainability are provided
by host of laws that govern the protection of water resources, cultural heritage resources, natural
ecosystems, human health and waste management systems. Additional tools, such as the National
Responsible Tourism Guidelines, National Minimum Standards for Responsible Tourism, energy efficient
Building Standards (SANS 204‐1, 204‐2 and 10400‐XA) and ISO14000 Environmental Management System
standards, provide additional technical guidance on how this sustainability should be achieved in practice.
Growth of the sport and tourism sectors has been identified as playing an important role in the achievement
of the economic and social development aims contained in the National Development Plan (2012). In this
regard, the National Sport and Recreation Plan (2012) and National Tourism Sector Strategy (2011) stand out
as the overarching national plans directing the desired growth paths in these sectors. Both strategies
highlight the need for economic growth in these sectors to be undertaken in a manner that addresses social
equality and environmental sustainability.
Interestingly, the National Tourism Sector Strategy (2011) argues for sustainability not only in tourism
operators and associated service industries, but also through encouraging visitors to choose and participate
in responsible tourism: “Visitors – both domestic and international – could be encouraged to participate in
the protection and conservation of South Africa’s natural environment, and to enjoy a responsible travel
experience while in South Africa, helping the various tourism businesses in the country to achieve the triple
bottom‐line, namely economic growth, ecological sustainability and social responsibility”. This implies a need
for ensuring that visitors to South Africa as part of the Durban 2022 Commonwealth Games are actively
engaged through appropriate communication / awareness campaigns, and the provision of appropriate
‘responsible’ accommodation, transport etc. choices while in South Africa.
There is thus a wide and well‐developed national policy platform directing and supporting the need for
sustainability to be addressed as part of economic development and as part of the activities of all economic
sectors in South Africa, including in sports eventing and the tourism sector. This context provides a sound
basis for the development of a comprehensive set of sustainability principles and initiatives to be integrated
into all aspects of the Durban 2022 Commonwealth Games.
2.4.2 Local Policy Platform supporting a Sustainable Durban 2022 Commonwealth Games
EThekwini Municipality’s Long‐term Development Framework (LTDF), Long‐term Development Plan (LTDP)
and Integrated Development Plan (IDP) (2015‐16) all demonstrate a high level commitment to economic
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 53
development that respects and supports the protection of the natural environment (and the critical goods
and services that it delivers to people) and the fostering of socially equitable development.
These plans recognise that Durban is a rapidly growing African city, with significant social quality issues, high
levels of unemployment, and a high rapidly accelerating pressure on the remaining natural capital within the
city. These plans strongly promote a developmental agenda for the city, which includes growing the local
economy, addressing social inequality and human health / risk issues, and protecting the natural capital base
needed to ensure a safe and good quality living environment for people. The implementation of a
sustainability programme for the Durban 2022 Commonwealth Games therefore needs to take this approach
as its lead, and ensure that the games delivers the best set of balanced and sustainable social, economic and
environmental outcomes possible.
EThekwini Municipality also has a reasonably well‐developed set of environmental sustainability policies,
including the Durban Climate Change Strategy, that provide direction on the environmental and social risks,
issues and priorities that need to be addressed as part of the city’s development agenda. Further work on
this policy environment is ongoing, as the municipality moves to incorporate the new directions emerging
from the Paris COP21 Agreement, and the United Nations Sustainable Development Goals (2015).
EThekwini Municipality therefore has a local policy environment that is strongly supportive of the Durban
2022 Commonwealth Games as a means to fast‐tracking or supporting its economic and infrastructure
development agenda. However, this policy environment equally directs that the city’s activities and
development path should be socially and environmentally sustainable, and in particular should address risks
presented by social inequality, climate change, and increasingly scarce natural resources (such as water and
food). The need to protect natural capital as a means to protecting human health, safety and quality of life,
including in the face of climate change, is a key aspect of this sustainability approach.
The above eThekwini Municipality policy context is clearly supportive of the establishment of a
comprehensive and integrated sustainability approach and set of initiatives as part hosting the Durban 2022
Commonwealth Games. The prioritisation of desired legacy outcomes from the hosting of this event should
also be informed by current and emerging policy within the municipality.
2.4.3 Building from existing foundations
A key thread that emerged from discussions with various line functions in eThekwini Municipality during the
preparation of this report, was that there is a significant amount of existing work / planning and capacity that
is already in place that should be used to “leap‐frog” key infrastructure, legacy or other sustainability
initiatives forward – rather than starting from scratch.
Examples included extensive planning that was done for the uMngeni Green Precinct during the build up to
the Durban 2010 FIFA™ World Cup – only some parts of which have been implemented, and the existence of
an important opportunity to use this planning to complete the upgrades needed around the uMngeni Estuary
as set out in these plans as part of the Durban 2022 Commonwealth Games preparations. This resonates with
the fact that this precinct will form a key venue for certain water‐sports associated with the event. Another
example given was the ability to use existing regional collaborative platforms, such as the Central KZN Climate
Change Compact and uMngeni Ecological Infrastructure Partnership to fast track regional collaborative
sustainability initiatives (and stakeholder engagement) for the Durban 2022 Commonwealth Games – rather
than to establish new forums or institutional platforms for this.
The above approach, of building from existing foundations, will allow more to be achieved in a shorter space
of time, than starting from scratch. Where possible, existing resources, institutional platforms, plans already
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 54
completed, work already started, etc. should therefore be used in developing the sustainability initiatives
required for the Durban 2022 Commonwealth Games.
2.4.4 Using existing capacity and plugging technical gaps
EThekwini Municipality has numerous line functions that already undertake activities which contribute
towards the building of a ‘sustainable city’. This is in line with the LTDF, LTDP and IDP which direct that
sustainability be integrated into all aspects of municipal functions and operations. It is noted from engaging
with various line functions, however, that some units are more directly focused on sustainability (social,
environmental or economic) than others, and some line functions may benefit from opportunities to enhance
their understanding of how to implement this mandate within their core workstreams.
A key approach in the development of a sustainability programme for the Durban 2022 Commonwealth
Games would therefore be to use existing capacity in municipal line function departments to implement the
various sustainability elements required, but where necessary provide technical support to those line
functions which may need it. This will ensure that capacity is built within the municipal institution on how to
implement sustainability approaches, principles and projects, thereby leaving a legacy of ‘sustainability in
practice’.
2.4.5 Sustainability Priorities
The sustainability priorities for the Durban 2022 Commonwealth Games that emerge at a preliminary level
from a review of existing municipal policy, and engagement with various line functions are:
The mitigation of global climate impacts from the hosting of the event is an imperative, and more
specifically, investment in local initiatives that achieve this while enhancing local adaptive capacity
and climate resilience, including addressing social inequality.
Opportunities to fast track development of key infrastructure associated with eThekwini
Municipality’s Integrated Rapid Public Transportation Network (IRPTN) as part of the hosting of the
event (including the city’s cycle route network).
Opportunities to promote green buildings, including sustainable building management systems and
Environmental Management Systems for municipal eventing facilities. Use of highly visible iconic
infrastructure important in association with the Commonwealth Games.
Further roll out of implementation of cycling infrastructure and other upgrades / investments in the
uMngeni Green Precinct.
Opportunities to implement renewable energy and promote energy efficiency.
Opportunities to promote sustainable urban settlement spatial patterns and forms, and sustainable
/ green servicing technologies and systems, including the design of the primary sports precinct(s).
Greening of the primary event precincts is key.
Opportunities to promote local economic initiatives that support more sustainable municipal
services and / or create jobs and sustainable livelihoods, for example informal recycling businesses
and community‐based eco‐tourism activities.
Opportunities to enhance sustainability policy, capacity and institutions locally in Durban and
regionally in KwaZulu‐Natal, such that emerging global priorities (e.g. Paris COP21 Agreement, UN
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 55
Sustainable Development Goals etc.) are better understood and integrated into municipal / other
sector plans, policies, functions and programmes.
Opportunities to leave an iconic educational / awareness raising and mind‐set shifting legacy for
South Africa’s youth that promotes a better understanding of the urgent need to choose sustainable
living and behaviour patterns.
The need to use the opportunity to actively engage business and industry in sustainability initiatives
and build partnerships and collaboration for the future.
Investment in climate change resilience building / adaptation should seek to be systematic, or
contribute towards a systematic intervention in interlinked socio‐ecological systems.
Enhanced messaging about the full impact of mega‐events like the Commonwealth Games – using
tools like Ecological Footprinting to promote awareness of people’s impacts on the carrying capacity
of Earth’s ecosystems etc.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 56
CHAPTER 3 – LESSONS FROM PREVIOUS MUNICIPAL EVENT GREENING PROGRAMMES
3.1 Introduction
Over the past 10 years, Durban has hosted an increasing number of large national and international sports
and other events, including the 2010 FIFA™ World Cup and the 2011 UNFCCC COP17/CMP7. Due to the high
international profile of these events, and the central role of eThekwini Municipality in hosting them, event
greening programmes were developed and implemented for both of these events by the municipality.
EThekwini Municipality’s Environmental Planning and Climate Protection Department (EPCPD) led both of
these programmes. The lessons learned from these event greening programmes presents important context
for the structuring of an event sustainability programme for the 2022 Commonwealth Games.
3.2 Overview of the Greening Durban 2010 Programme
3.2.1 Scope of the Programme
The Greening Durban 2010 Programme, implemented by Durban for the 2010 FIFA™ World Cup5 was the first
mega‐event greening programme implemented by eThekwini Municipality and the lessons learned informed
the subsequent greening of the UNFCCC COP17/CMP7 held in Durban less than 18 months later. The key
focus area of the programme was climate protection6, offering a unique, high profile opportunity to
mainstream climate change issues within municipal structures and processes. The programme was
conceptualised, developed and implemented by the EPCPD, with assistance from a contracted Programme
Manager from a local consultancy.
The programme was comprehensive in its focus, and was modelled on previous event greening programmes
that had been implemented for FIFA™ World Cup events as well as international best practice in event
greening. The Greening Durban 2010 Programme was also aligned with 2010 World Cup event greening
programmes that were run in other South African Host Cities, and by the national Department of
Environment Affairs. The Greening Durban 2010 Programme included five Core Focus Areas and three Cross‐
cutting Focus Areas, namely:
Core Focus Areas
1. Energy Efficiency and Renewable Energy.
2. Conservation of Water Resources.
3. Sustainable Management of Waste.
4. Environmentally Efficient Transportation Systems.
5. Biodiversity Conservation.
Cross‐cutting Focus Areas
1. Climate Protection.
2. Communication.
5 Durban was one of 9 host cities in South Africa for the event.
6 Greening Durban 2010 thus constituted a critical component of the municipality’s emerging Municipal Climate Protection Programme at the time.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 57
3. Monitoring and Evaluation.
A set of targets, and an implementation strategy, was developed for each of the above eight Focus Areas. In
terms of these strategies and targets, a total of 21 priority projects were implemented through the
programme at a total cost of R25.4 million.
3.2.2 Key Achievements
3.2.2.2 Carbon Offsets
The Greening Durban 2010 Programme achieved a significant amount in a very short space of time. One of
the main focal areas of the programme was the target which eThekwini Municipality set to host a climate
neutral 2010 FIFA™ World Cup in Durban. Durban was the only host city that set this target.
The carbon footprint for hosting the 2010 FIFA™ World Cup events in Durban was estimated at 307,208
tonnes CO2 equivalent. The total embodied carbon emissions associated with building the new Moses
Mabhida Stadium were incorporated into Durban’s carbon footprint for the 2010 World Cup (making up 62
% of the local event carbon footprint). This is an unusual carbon footprint calculation method, as ordinarily
an event carbon footprint would apportion the embodied emissions of new infrastructure for a single event
rather than account for the total embodied emissions footprint. However, the use of this approach was a
strategic decision to ensure that Durban would have a “climate neutral” stadium to offer for future events,
assisting Durban in building its strategic advantage in future sports event hosting bids. Durban was the only
2010 FIFA™ World Cup Host City to adopt this inclusive carbon footprinting approach.
Rather than purchasing carbon credits from international projects to offset the event carbon footprint, the
municipality invested in the development of local emissions reduction projects that would generate a range
of local co‐benefits including job creation, renewable energy generation and ecosystem services
enhancement. There was also an in principle decision to ensure that all climate mitigation initiatives would
enhance adaptive capacity, and that carbon neutrality targets would support, rather than undermine, the
biodiversity agenda.
Two types of offset projects were developed. The first being the reforestation of degraded and deforested
areas and the second, the generation and use of renewable energy. Both required buy‐in and support from
multiple municipal departments and the establishment of new partnerships with private business and non‐
governmental organisations (NGOs).
The two community reforestation projects were estimated to have the capacity to sequester 61,008 tonnes
CO2e7 over a 20‐year period. These projects will sequester 20 % of the Durban 2010 FIFA™ World Cup event
carbon footprint. In order to achieve the required carbon storage, the reforested areas will need to be
protected from fire, degradation and loss in perpetuity. This is a substantial long term financial commitment
for the municipality, whose budgeting cycles do not usually extend beyond 5 year cycles.
One community solar water heater project was implemented and registered with the UNFCCC Clean
Development Mechanism (CDM) under the Kyoto Protocol. A number of other projects were also
investigated but were not pursued due to lack of buy‐in to the CDM registration process by the line functions
that would come to own the project.
7 Buffelsdraai Landfill: 45,008 tonnes CO2e; Inanda mountain: 16,000 tonnes CO2e
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 58
The solar water heater project is capable of offsetting the remaining 80 % (246,200 tonnes CO2e) of the
carbon footprint generated by the 2010 FIFA™ World Cup in Durban, but this can only be achieved through
the cancellation of a portion of the Certified Emissions Reductions (CERs) that would be awarded for the
project. The value of these CERs was estimated at the time to be approximately $300,0008. The municipal
department administering the project indicated that the income from the sale of the CER’s was critical for
maintaining the solar water heaters, and cancellation of the CERs would threaten the financial sustainability
of the project. The offsetting costs were therefore considered unaffordable and unsustainable, and a decision
was taken set aside the carbon neutral target for the Durban 2010 FIFA™ World Cup event.
Consequently, eThekwini Municipality has learnt that, for a developing city such as Durban, the financial and
opportunity costs of taking on the sole responsibility for offsetting the total carbon footprint of mega events
hosted in Durban are significantly high, and in most cases will be too high for the municipality to accept.
Certainly in the case of the Durban 2010 FIFA™ World Cup, it is likely that the “climate neutral” target for this
event will not be met.
3.2.2.3 Greening of Infrastructure and Operational Systems
The Greening Durban 2010 Programme invested in the greening of the new Moses Mabhida Stadium
constructed for the World Cup events, as well as the upgrading of three training venues in former township
areas. A significant reduction in the energy and water requirements of the new Moses Mabhida Stadium was
achieved through a greener building design, and more efficient systems and fittings:
Energy footprint: reduced by 30 % through the selection of energy efficient architectural design,
technologies and fittings. These measures will save around R1 million in electricity costs per annum.
Water footprint: reduced by 74 % through the use of water capture and recycling systems, efficient
irrigation systems and water efficient fittings. These will save approximately R700 000 per annum and
secure the sustainability of “water‐hungry” landscapes (including the pitch) that may otherwise be
threatened by future regional water shortages.
The investment made in reducing the energy and water requirements of three smaller stadia in former
township areas which were upgraded as potential training venues for the World Cup left an important legacy
for these upgraded “sports hubs”, in areas where impoverished communities are in need of improved social
infrastructure. The reduced energy and water requirements of the facilities will represent important
operational cost savings, with potential reduced hire / user charges.
Environmental Management Systems (EMSs) and Waste Management Plans were developed and piloted
during the World Cup at Moses Mabhida Stadium, King Zwelethini Stadium, Princess Magogo Stadium, Sugar
Ray Xulu Stadium and Durban’s Beachfront Promenade and Fan Park. These guided the operation of these
venues towards reduced resource requirements and negative outputs, and will ensure a more
environmentally sustainable operation of these facilities in the future. In addition, a 2‐bin system was
implemented at all Durban’s World Cup event venues, resulting in 24 % of the waste collected being sent for
recycling (4 % above target).
A highly successful waste clean‐up weekend was held along the uMngeni River Estuary, the Greening Durban
2010 environmental investment area, in which a large number of local businesses, residents and schools
participated, and which saw 2500 bags of waste collected. This was a highly effective way of getting citizens
practically involved in cleaning up their city for the World Cup.
8 Average price per CER on the global market of 1.2USD / carbon credit at 4 December 2012, www.eex.com.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 59
The Greening Durban 2010 Programme actively lobbied the Transport Sector around the development of
improved pedestrian and cycling networks and linkages within Durban, to serve the 2010 World Cup events
but also leave a permanent non‐motorised transport legacy. The Greening Durban 2010 Programme provided
support to the process of upgrading Durban’s Beachfront Promenade as the major pedestrian and cycling
link between the beachfront hotel belt and the Moses Mabhida Stadium.
EThekwini Municipality successfully implemented Park and Ride, and Park and Walk systems for the World
Cup events which reduced traffic congestion in the city and around event venues, reduced carbon emissions
and promoted the use of public transportation usage in sectors of the population that ordinarily do not use
it.
3.2.2.4 Green Investment Area
The Greening Durban 2010 Programme adopted the uMngeni River Estuary Precinct as an environmental
investment area. A Precinct Planning process was undertaken for the area to guide its future upgrade as a
unique and highly important biodiversity conservation and recreation area in Durban. As part of the Greening
Durban 2010 Programme, the process of upgrading the area was started with the implementation of the
following:
Financial support was given to a local community co‐operative to clear alien plants from 15.5 hectares of
densely infested open spaces within the uMngeni River Estuary Precinct, and undertake a follow up
clearing exercise.
In collaboration with the 2010 City Beautification Programme (eThekwini Municipality’s Strategic
Projects Unit), an upgrade of Blue Lagoon Park in the uMngeni River Estuary Precinct was undertaken to
improve social amenity and promote use of this area for nature‐based recreation.
The construction and fitting out of the uMngeni River Estuary Green Hub, including development and
installation of branding and signage, and a new public toilet block. The Green Hub will become Durban’s
central portal for the promotion of outdoor, nature‐based activities, and green technologies and
approaches that can be adopted by individuals, businesses and schools. The Green Hub building design
incorporated a range of “green building approaches”, including: natural lighting and ventilation; solar
photovoltaic power source; rainwater harvesting from the roof area; use of low carbon timber over steel
or aluminium for structural support, windows and doors; no geysers or air conditioners; and low energy
lighting (including LED).
3.2.2.5 Green Communications
The Greening Durban 2010 Programme provided information into the city communications programme for
the 2010 FIFA™ World Cup, which resulted in around 100 press releases, radio and television interviews and
magazine articles at a local and international level.
In addition to this a number of popular publications were produced with the aim of stimulating broad level
action around greening in the city. This included a “Green Guideline Series” made up of:
Energy Efficiency Guideline,
Water Conservation Guideline,
Sustainable Waste Management Guideline,
Green Landscaping Guideline,
Green Roof Guideline.
These publications were intended to utilise the platform of the 2010 World Cup to highlight environmental
sustainability issues, shift perceptions and create practical informational tools to guide people towards more
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 60
sustainable behaviour and technologies. The Green Guideline Series was designed to provide a significant
amount of technical detail, but in a way which was accessible and understandable for homeowners, schools
and businesses.
The Greening Durban 2010 Programme also undertook the process of updating and expanding the
municipality’s “Durban’s Nature Reserves” booklet that was produced in 2002. This was done to develop a
publication which could be used at the uMngeni River Estuary Green Hub to offer information on nature‐
based activities throughout Durban and KwaZulu‐Natal. The output of this process was A Guide to Durban’s
Nature Attractions and Outdoor Experiences.
3.2.2.6 Recognition of the Greening Durban 2010 Programme Achievements
Important public recognition of the achievements of the Programme have been as follows:
Impumelelo Innovations Trust Gold Award for “Greening of Moses Mabhida Stadium”.
Mail and Guardian 2010 Greening the Future Award for the Greening Durban 2010 Programme in
the category “Energy Efficiency and Carbon Management”.
3.2.3 Lessons
3.2.3.1 Event greening needs to be mainstreamed in the event co-ordination / management function
The Greening Durban 2010 Programme was sectorally located and lead from the environmental department
of eThekwini Municipality. This was seen as having created limitations to the integration of “greening”
principles and approaches into other sectors that undertook event preparations and logistics. It was felt that
future event greening programmes needed to be located within the central event coordination / logistics
hub.
3.2.3.2 Partnerships are important
The Greening Durban 2010 Programme both leveraged existing partnerships (e.g. with funders) and created
new partnerships that were fundamental to the success of many of the aspects of the programme. It was
felt that future event greening programmes should seek to build partnerships with a range of other actors to
expand the influence and success of such programmes.
3.2.3.3 Harnessing the enthusiasm and interest of the private sector and the public
The Greening Durban 2010 Programme’s waste clean‐up weekend demonstrated the incredible energy and
interest that local business and local residents were prepared to pour into helping prepare their city for the
big event. It was felt that future event greening programmes should seek to create opportunities for business
and the public to engage and participate.
3.2.3.4 Innovation in funding event greening is required
EThekwini Municipality funded the majority of the Greening Durban 2010 Programme (63 % of programme
budget), with significant financial support in the form of grant funding from DANIDA (37 % of programme
budget). No systems were in place to facilitate event visitors donating or contributing to greening initiatives,
and event organisers FIFA™ did not provide funds in support of greening initiatives in Durban or other Host
Cities. There were significant lost funding opportunities as a result of this, partly because it was difficult for
Durban (one of nine Host Cities) to invest the time and resources needed to get such financial support
systems operational.
It was felt that for future event greening programmes, the principle where the parties that contribute directly
to negative environmental and social impacts associated with the events they own or attend should
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 61
contribute to mitigating them. It was felt that, at a minimum, this should involve the Host City providing the
opportunity for these parties to contribute voluntarily to mitigating such impacts. This would not only ensure
that the Host City is not left to cover these costs at the ratepayers’ expense, but also creates awareness in
the people / agencies paying for their unintended negative impacts. It was felt that innovation would be
required in future event greening programmes to secure alternative or supplementary funding streams for
event greening initiatives, which are aimed at securing public goods and health.
3.2.3.5 Event greening targets should be set that push boundaries and set new benchmarks
Owing to the fact that “greening” is an emerging field, there is still substantial room for an Event Hosting City
to test new approaches, and contribute not only to its own basket of innovative projects, but also to the
global knowledge base around how sustainability challenges can be met. Event greening targets should
therefore always be set such that they represent levels not of “what can be achieved based on current
operating systems”, but rather on what could be achieved if current operating systems are optimised or
improved. The increased funding and “business unusual” approach that tends to surround the preparations
for hosting major events, provides unsurpassed opportunities for cities to test new approaches or aim for
higher targets and see what can be achieved. These experiences can leave a great legacy for the host city.
3.2.3.6 Programme and resourcing timeframes need to be sufficiently long
The Greening Durban 2010 Programme was initiated after many of the major infrastructure development
projects for the 2010 FIFA™ World Cup were already designed and under construction. This limited the
influence that the programme had on the greening of this infrastructure, or the sectors that were involved,
in that the core design features were already fixed. Furthermore, the Greening Durban 2010 Programme was
initiated in 2007, with project implementation beginning in 2008. This did not provide sufficient lead‐in time
to develop partnerships, integrate with all sectors or establish alternative funding streams to those that were
readily available. Future event greening programmes thus need to be aligned with the mainstream event
infrastructure and co‐ordination programme timeframes, and with sufficient lead‐in time to create an
integrated platform for implementation.
3.2.3.7 Budgeting
The Greening Durban 2010 Programme did not budget beyond the World Cup event. This proved to be
problematic given that a number of the projects initiated through the programme had a long term focus. The
event should thus not be seen as the end‐point of future event greening programmes, but rather a milestone
in the programme.
3.2.3.8 Lost opportunities in communications
Major events pose unprecedented opportunities for messaging around green issues, given the inherent
media interest in the event. The Greening Durban 2010 Programme did not have the time or resources to
run a comprehensive communications programme, and this is considered to be a lost opportunity. Event
greening communications should ideally be mainstreamed within the event communications programme
rather than run as a specific or stand‐alone initiative. This would assist in ensuring that effective green
messaging and profiling of event greening initiatives is achieved across a wide range of audiences.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 62
3.3 Overview of the COP17/CMP7 Greening Programme
3.3.1 Scope of the Programme
The COP17/CMP7 Greening Programme provided an opportunity to build on and extend the work of the
Greening Durban 2010 programme. It was strongly influenced by the UNFCCC’s event sustainability
requirements, which included that the event must be carbon neutral and the UNEP Green Meetings Guide
(2009) should be used, as well as the desire to showcase Durban as an innovative and proactive in local level
climate protection.
The Durban COP17/CMP7 Event Greening Programme was developed and implemented by eThekwini
Municipality’s Environmental Planning and Climate Protection Department (EPCPD). The Programme
included the following focal areas:
Climate Neutrality,
Sustainable Transportation Systems,
Greening the Durban International Convention Centre (ICC),
Green Procurement Policy9,
Greening Event Accommodation Facilities,
Ecological Footprinting,
Sustainable Management of Waste,
Communications
Monitoring, Assessment and Reporting.
The programme thus focused on greening the core infrastructure and operational systems that would be
service the event (I.e. the Durban ICC, transportation systems, waste management systems etc.), and
included new innovations in event greening (i.e. reporting on the ecological footprint of the event, which had
not been done before). The hosting of a climate neutral event remained a key target of the event greening
programme. In picking up on an important lesson learned from Greening Durban 2010, the COP17/CMP7
Greening Programme included a focus on “greening” accommodation facilities that would service delegates.
Communications was central part of the COP17/CMP7 logistics and greening programmes.
3.3.2 Key Achievements
Key achievements of the programme included:
3.3.2.1 Carbon Offset
Unlike the Durban 2010 FIFA™ World Cup experience, eThekwini Municipality committed to and achieved
carbon neutrality for the event, as was required by the UNFCCC in their host country agreement for the event.
The local carbon footprint of the COP17/CMP7 event was calculated by an external specialist consultant and
reported as 9,289 tonnes CO2e (Arup, 2012). The emission areas considered included: energy and water
usage in event venues and delegate accommodation; intra‐city delegate transport; transport of event related
equipment, materials and waste. The national event carbon footprint ‐ which included international travel
9 The Green Procurement Policy was not taken to implementation owing to limited timeframes available to effect changes to established procurement and supplier systems at the Durban International Convention Centre.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 63
for delegates and COP‐related activities of the South African government ‐ was reported as 36,815 tonnes
CO2e (Carbon Calculated, 2012) giving an overall footprint of 46,104 tonnes CO2e.
Following the challenge of achieving carbon neutrality for the 2010 FIFA™ World Cup, eThekwini Municipality
looked to more clearly define its carbon offset responsibilities for COP17/CMP7. A ‘cost and control’10
boundary was used to define the aspects of the carbon footprint the municipality was responsible for. In this
regard, emissions associated with all activities and venues that were controlled by the municipality, or
formed part of the host city agreement, or were paid for by the municipality, were defined as being the direct
responsibility of the municipality. The emissions that were not a municipal responsibility (which included
delegate accommodation and local private transport) made up 64 % (5,986 tonnes CO2e) of the total local
footprint.
In order to investigate the full range of potential offsets available, eThekwini Municipality requested
proposals for offset projects that could deliver the necessary carbon credits. Of the five submissions received,
none passed a sustainability evaluation which used criteria developed, in part, using the United Nations
Development Programme’s (UNDP) Millennium Development Goal (MDG) Carbon11 Safeguard Principles12.
This process highlighted that not all carbon offset projects are sustainable and that caution should be
exercised to ensure that carbon offsetting does not unintentionally result in other negative social, cultural or
environmental impacts.
Given that lack of suitable offset proposals, it was decided to build on and extend the climate, community
and biodiversity benefits achieved through the Greening Durban 2010 Programme by initiating a third
reforestation project adjacent to Paradise Valley Nature Reserve on 210 hectares of municipal‐owned land.
The project was estimated to be able to sequester 16,000 tonnes of CO2e over a 10 to 20‐year period and as
a result, the municipality decided to commit to offsetting the total local carbon footprint of 9,289 tonnes
CO2e, rather than limiting itself to the portion that it was directly responsible for. The project was
subsequently implemented by the municipality in partnership with local communities, Non‐governmental
Organisations and the private sector.
The project was also significant in that it catalysed the emergence of the Community Ecosystem Based
Adaptation (CEBA) concept (Roberts et al. 2012) which looks to extend the reforestation approach to
embrace a more complete understanding of the link between communities and the ecosystems that
underwrite their welfare and livelihoods ‐ not only through the restoration of natural ecosystems ‐ but also
by creating cleaner and greener neighbourhoods that are less dependent on costly utilities and services (e.g.
through water recycling and the use of renewable energy). This integrative concept has produced a significant
legacy for all the project partners.
10 This included emissions associated with: the UNFCCC Precinct; delegate shuttles operated by eThekwini Municipality; transport of volunteers and transport of staff to and from the King Shaka International Airport in Durban; eThekwini Municipality organised / controlled / funded events at other venues which are associated with the COP17/CMP7.
11 MDG Carbon is a United Nations Development Programme (UNDP) initiative aiming to harness the resources of the carbon market in order to bring long‐term sustainable development, at scale, to wide range of developing countries, and so contribute towards the achievement of the Millennium Development Goals.
12 These safeguard principles were adapted from the Ten Principles of the Global Compact, the World Bank Environmental and Social Safeguard Policies, the IFC Environmental and Social Standards and the IFC Equator Principles.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 64
For COP17/CMP7 purposes, a Durban CEBA brand was created and the project was promoted as the official
offset. Each Durban CEBA credit was marketed at $11 and paid for one “green person day”, that is, a day’s
wage for a local person to undertake ecosystem restoration work as part of the project. Aside from funds
invested by the municipality, a donation of $57,000 was received from a local corporate, which contributed
substantially towards the costs of first phase of the project. National government also purchased $6,300
Durban CEBA credits to offset the South African COP17/CMP7 delegation’s footprint. Durban CEBA credit
sales to individuals amounted to $2,900 which was disappointingly low.
3.3.2.2 Greening of Infrastructure and Operational Systems
In terms of emissions reductions, the focus of the greening programme was on the core infrastructure and
operational systems servicing the event such as municipal transportation and waste management systems,
and included the Durban International Convention Centre. An energy efficiency retrofit implemented in the
convention centre resulted in a 7 % reduction in energy demand and the resultant savings have prompted
investigations into further potential energy efficiency options. Informed by the 2010 FIFA™ World Cup
experience, where it was determined that energy usage in accommodation was the second highest
contributor to the event’s carbon footprint, the COP17/CMP7 Event Greening Programme prioritised and
promoted the greening of delegate accommodation. Additionally, for the first time in Durban, a delegate
bicycle sharing programme was implemented.
3.3.2.3 Ecological Footprinting
In moving on from the accepted norm of reporting on carbon emissions from an event, for COP17/CMP7 the
municipality raised the bar by reporting on the ecological footprint of the event. This was a critical move
towards a point where the municipality could be in a position to offer climate neutral, water neutral and low‐
ecological impact events as the market for these evolve.
The Ecological Footprint project produced a model which can be further developed and utilised by eThekwini
Municipality for future events and other aspects of the municipality’s operations. The ecological footprint
calculated for COP17/CMP7 can be constructively used to guide future event sustainability programmes
towards reduced use of resources/products which are particularly land and water hungry – thereby reducing
the ecological footprint of future events. Similarly, the ecological footprint approach can be used to help
develop “Water Neutral” eventing approaches as this becomes an increasingly important focus of greening
initiatives. This could possibly be linked into the CEBA approach at a later stage, where such projects aim to
build the adaptive capacity of communities and the city to climate change, while offsetting both the carbon
and water footprints of events or city operations.
The ecological footprint calculated for COP17/CMP7 showed how events such as this one generate different
winners and losers in different places and over different time scales. The production of the food and other
resources used for the event generally take place at locations far from Durban – but the wastes that are
generated by the event have to be dealt with in Durban. The timeframes for production of resources used
for the event and for waste from the event to be treated are vastly longer than the timeframe of the event
itself – locking large parcels of land water for long periods.
3.3.2.4 Institutional Arrangements
A stronger focus on integrating “event greening principles and approaches” into the central event
coordinating logistics team. The COP17/CMP7 Event Greening Programme was significantly more successful
in this as compared to Greening Durban 2010. For example, the implementation of the Bicycle Share
programme by eThekwini Transport Authority (ETA) was done independently and without much
encouragement from EPCPD – and is demonstrative of a shift in the level of buy‐in to non‐motorised
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 65
transport as part of event mobility programmes. Similar shifts had occurred elsewhere and event greening
was considered a core part of the hosting function rather than an add‐on.
3.3.2.5 Engagement with the Hospitality Sector
The COP17/CMP7 Responsible Accommodation Campaign was a significant effort by the municipality to
engage the hospitality sector on a constructive basis around events hosted in Durban. It was also an
acknowledgement of the important role that these businesses play in event hosting in Durban. It became
clear during the project that the hospitality sector desires more interaction with the municipality around
events, particularly information on what the events are about, who the participants are, and greater
interaction around how event accommodation pre‐booking services should work. The Responsible
Accommodation Campaign was favourably received by a wide range of sizes of hospitality businesses, from
some of the largest Durban hotels to small B&B’s. It would be a strong recommendation that such a campaign
be continued and expanded as a permanent eThekwini Municipality programme. In particular, if Durban is
to build its reputation as a globally responsible event‐hosting destination, promoting “greening” of the
hospitality industry is an important priority. This would also help to address existing city priorities of energy,
water and waste reduction.
3.3.2.6 Bicycle sharing Legacy
The bicycle sharing programme implemented by eThekwini Transport Authority for COP17/CMP7 was the
first such scheme that the municipality had undertaken. The programme was considered a success, and has
left a legacy of infrastructure and operational systems that can be implemented on a permanent, or event‐
by‐event basis, helping to promote and establish cycling as a climate friendly mode of transport in Durban.
In addition, a municipal bicycle programme has been set up in that promotes the use of bicycles to commute
between municipal buildings.
3.3.2.7 Communications
The Greening of the COP17/CMP7 included a much stronger public communications element than the
Greening Durban 2010 Programme had, considering that the event itself was climate focused rather than a
sports event. This communications process is thought to have been moderately successful in highlighting
climate change issues amongst Durban’s society. In particular, the Climate Change Expo, which was arranged
by National Government, with certain associated activities (such as Green Tours) arranged by EPCPC, was
considered a good approach for making the science accessible to school children and the general public.
3.3.3 Lessons
3.3.3.1 Understanding the Event and its Participants
Prior to COP17/CMP7 there was much hype around the potential numbers of delegates that could be
expected to attend the event (30,000 to 40,000 was touted as a likely number). This, and unrealistic
expectations about the behaviour of delegates as “tourists to the city”, coupled with high expectations
around the mobilisation of Durban’s residents around the event, led to significant investment in city events
along the beachfront and at the Green Hub that were not well attended. Hospitality facilities complained
that the promised number of bed bookings were not forthcoming. The municipal waste management unit
(DSW) catered for significantly greater waste generation along the beachfront than was necessary. In
addition, the event transportation shuttles over‐catered in terms of bus sizes and too‐frequent timing of
trips, although this was primarily at the insistence of the UNFCCC and against the recommendations of
eThekwini Transportation Authority (ETA).
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 66
For future events it has been suggested that more realistic projections of participant numbers and more
prudent use of resources for servicing the event, and establishment of side events, be applied.
3.3.3.2 Working with Event Owners whose Priorities differ from the Host City’s Greening Aims
A complaint that has been raised is the limited support given to the municipality and the ICC by the UNFCCC
in working constructively around event greening principles. Aside from the fact that this was a confusing
message given that the event was about addressing global environmental concerns, it was felt that wasteful
and imprudent resourcing and servicing of the event was a problem. Issues such as massive amounts of waste
paper, excessive demands for air conditioning and lighting in the event venue, and inefficient shuttle bus
sizes and trip schedules have been raised by the Durban Organising Committee. As a future path it is felt that
the municipality needs to be more insistent with event‐owners regarding prudent and wise resourcing and
servicing of events, such that cost efficiency and greening aims are achieved.
3.3.3.3 Marketing vs Communications
The Durban COP17/CMP7 Event Greening Programme included a substantial communications programme
which was important in building local and regional awareness of COP17/CMP7 and the climate issues on
which it was focused. It is felt that this campaign was a success. However, the marketing of the event, and in
particular the fact that there were side events such as the Climate Change Response Expo, that were open
to the public and worth visiting, was not adequate. In addition, information on shuttle bus systems and the
Bicycle Share programme was not well marketed / made available to delegates and this is thought to have
created confusion and limited the use of the bicycles. For future events the communications programme
needs to consider both educational/awareness raising components, and good marketing of the event and
associated logistics.
3.3.3.4 Building the Relationship with the ICC
In order for eThekwini Municipality to develop an integrated vision and offering regarding “green events” in
Durban, it will need to constructively engage with the operators / owners of the key event hosting
infrastructure in Durban. This includes the ICC Durban and Moses Mabhida Stadium.
3.3.3.5 Critical Thinking about Climate Neutral Eventing
As part of the Durban COP17/CMP7 Event Greening Programme, consideration was given to the
responsibility that a city such as Durban should be taking in regards to the hosting of “climate neutral events”.
Experience from hosting of the Durban 2010 FIFA™ World Cup was that the carbon footprint of mega‐events
can be significant, and the costs and resources required to offset such footprints can become a major burden
on the host city. It was agreed that the principle of hosting “climate neutral” events as a globally responsible
event hosting approach was unquestionable, however the source of the funding for the offsets was
debatable. Through the Durban COP17/CMP7 Event Greening Programme the beginnings of an approach
were developed for identifying which elements of an event carbon footprint eThekwini Municipality should
be taking full responsibility for offsetting, and which elements it should not. This will need to be taken
forward in future event greening programmes to further develop the municipality’s policy and approach on
this to ensure that costs are fairly apportioned and do not become the sole responsibility of the host city to
bear.
In addition to this, up until now eThekwini Municipality has produced event carbon footprints that reflect
“local carbon footprints”, i.e. national and international travel related emissions are not counted. Going
forward the municipality will need to calculate and report on the full carbon footprint of events, and indicate
which portions it intends to offset. This will be important to harness contributions by event owners and
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 67
participants towards offsetting the event carbon footprint, and for reporting in a consolidated way on the
full global climate impact of events hosted in Durban.
3.4 General Recommendations
When reflecting on the experiences of having hosted the Durban 2010 FIFA™ World Cup and UNFCCC
COP17/CMP7 in 2011, it has recognised that Durban has built significant capacity and experience in mega‐
event hosting, and that the city has the capability to position itself as a major competitor in the global mega‐
event hosting arena. In the course of hosting these mega‐events, Durban has also gained important
experience in ‘green eventing’, something which is becoming a growing priority for cities that bid to host
events. With this unique ability to successfully deliver from both a logistics and a greening perspective,
Durban has the potential to position itself as a competitive ‘Green Event’ destination.
In line with international trends and key learnings from the event greening programmes implemented by
eThekwini Municipality to date, fundamental to the municipality’s event greening approach going forward it
was recognised that the following would be needed:
1. Strong commitment to minimising the impacts of events on global climate, on ecosystems, people and
the economy – through proper integration of “green” principles, approaches and technologies in all
aspects of event hosting in Durban:
The Durban ICC, Moses Mabhida Stadium and other city eventing infrastructure need to be
retrofitted and operated for maximum resource use efficiency and sustainable management of
waste – and all need to be engaged to work towards a common set of principles and goals;
Transportation systems that are efficient, use green technologies and prioritise non‐motorised
forms of transport;
Waste management systems that minimise waste at source, and maximise recycled fractions in
unavoidable waste;
Accommodation facilities that practice responsible tourism approaches.
2. Commitment to measuring the impacts of events on global climate, ecosystems, people and the
economy;
Carbon and ecological footprinting need to be undertaken;
Social and economic impact reporting will be required.
3. Commitment to offsetting global climate and ecosystem impacts through responsible, community
based projects that build adaptability to climate change while mitigating negative impacts, and promote
climate resilience in eThekwini Municipal Area;
Community‐Ecosystem Based Adaptation (CEBA) projects;
Renewable energy projects.
3.5 Pointers for the 2022 Commonwealth Games Sustainability Programme
3.5.1 Mainstreaming Sustainability in Event Organising Structures
The previous two eThekwini Municipality event greening programmes have shown that there is significant
value to be gained in mainstreaming the implementation of sustainability approaches into all other event
organising workstreams. If the sustainability programme is seen as a separate / add‐on initiative, the extent
of sustainability achievements is significantly reduced. In order to achieve this mainstreaming, the
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 68
sustainability approach and targets need both high‐level and universal buy in from the start, so that individual
sectors (e.g. transportation, infrastructure, waste management etc.) can internalise these in all aspects of
what they do.
Effective mainstreaming will also assist in achieving an enhanced institutional legacy from the event
sustainability programme, as municipal officials working with sustainability targets around an event delivery
programme are able to build their technical build capacity and understanding of resource efficient
technologies and other sustainable development aspects, and are therefore more likely to continue to apply
these in their day to day work beyond the event.
The establishment of an effective institutional structure to coordinate and drive the event sustainability
programme is therefore a key requirement. The powers and functions of this institution, and its role and
powers in the main event organising structures, need also to be established such that effective
mainstreaming across all sectors can be achieved.
3.5.2 Resourcing the Sustainability Workstream
The preparations for and management of mega‐events is an intense process. The previous two greening
programmes have relied to a significant extent on the EPCPD core staff contingent to provide the capacity to
undertake additional work which falls outside of their normal daily tasks. While this approach has been good
in building capacity and providing opportunities for junior staff to be exposed to interesting new processes
and information, it has not always been easy. Even with assistance from contracted consultants, the pressure
on municipal staff was overwhelming at times.
It is therefore critical that in preparing to oversee the implementation of a sustainability workstream for the
Durban 2022 Commonwealth Games, the existing capacity, budgets and commitments of the EPCPD (and
other relevant municipal departments) is reviewed, and where necessary staff may need to be re‐deployed
or additional staff hired. This is an important approach, as there are significant opportunities for capacity
building and skills development through such event sustainability programmes, and where possible these
opportunities should be retained within the municipal administration rather than outsourced (particularly in
light of eThekwini Municipality’s intention to grow its event‐hosting role over time).
3.5.3 Approach to managing event Climate Impacts
The measurement, reporting, reduction and offsetting of the carbon emissions associated with hosting a
mega‐event is both a complex and potentially very expensive process. Given the difficulties observed in
achieving the ambitious carbon neutral target for the Durban 2010 FIFA™ World Cup, it is likely that the costs
of hosting the Commonwealth Games event as a carbon neutral event will be unaffordable for a developing
city such as Durban, unless significant financial assistance can be obtained from the CGF or other sources.
Even a ‘low carbon’ goal for the event will come with a significant price tag, and in light of the recent Paris
Agreement, giving appropriate attention to the issue of mitigating the global climate impact of this major
international event in a proper way is no longer negotiable. Obtaining and securing funding for the
management of the climate impacts of the event will therefore need to be a key focus of the event
sustainability plan.
In this regard, although unlikely to stand as the primary source of required funding, much can be gained from
establishing a campaign which encourages event participants and spectators to offset their carbon footprints
through a voluntary contribution into a carbon offset fund, as this would continue to reinforce that
individuals should take responsibility for their contribution towards global climate change.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 69
Identifying local carbon offset projects which benefit poor and marginalised sectors of society, and contribute
positively towards enhanced resilience and adaptive capacity to climate change, has been a key success of
eThekwini Municipality’s previous two event greening programmes. However, such interventions come with
a long term financial and management commitment, which need to be understood and factored into
decision‐making about which projects to pursue and how these will be funded.
3.5.4 Full Cost Accounting of Event Ecological Impacts
The development and application of Ecological Footprinting Tool for the COP17/CMP7 event highlighted the
fact that full cost accounting of mega‐events is almost never undertaken, and that this is a key gap in event
sustainability programmes worldwide.
In a world where there is increasing competition for food, water, energy and biodiversity resources, there is
a rapidly accelerating need to develop a greater understanding of the full costs and benefits of mega‐events,
so that the impacts of these events on the host country’s ecosystems can be better managed. It would
therefore be important for Durban to show leadership on this aspect of mega‐event sustainability practices,
and undertake that the Durban 2022 Commonwealth Games considers how the ecological footprint of the
event may be minimised, and to report on this aspect alongside its carbon, economic and social impact
reporting processes.
Equally, with the increasing issues around water availability in South Africa, the event sustainability
programme should place special emphasis on water conservation (and water use reporting), and should
consider making a direct link between the investment into carbon offsets with investment in water offsets
(e.g. through ecosystem restoration projects).
3.5.5 Partnerships
The previous event greening programmes have shown how the range, extent and intensity of benefits and
impact of the greening initiative can be increased through the establishment of effective partnerships. These
may be partnerships set up to facilitate funding streams, implementation, communications and awareness
raising and future roll out of legacy initiatives.
Although an attempt was made to engage the hospitality sector in the COP17/CMP7 greening programme
through a Responsible Accommodation Campaign, it is felt that more could have been achieved with more
time in hand. This should be addressed going forward, particularly in light of the important legacy that more
resource efficient, “greener” accommodation facilities would offer Durban as a global event‐hosting
destination. Partnerships should be used to support the achievement of this aim.
The business / industry sector was also not well or extensively engaged in the previous greening programmes,
and it’s thought that more should be done in this regard in respect of the Durban 2022 Commonwealth
Games through the establishment of partnerships and appropriate collaboration platforms.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 70
CHAPTER 4 – SUSTAINABILITY APPROACHES IN COMMONWEALTH GAMES EVENTS
4.1 Introduction
Starting with the 2006 Commonwealth Games in Melbourne, Australia, sustainability issues have been
proactively addressed in Commonwealth Games events. The depth and scope of sustainability interventions
in these events has increased with each successive event. In October 2007, the United Nations Environment
Programme (UNEP) signed a Memorandum of Understanding with the organisers of the Commonwealth
Games, and has since acted as an advisor for promoting environmental awareness and ensuring that the best
of international practices are being implemented to ensure a green sporting event.
4.2 Commonwealth Games Federation Sustainability Requirements
The Commonwealth Games Federation sets out its sustainability policy / requirements in a Candidate City
Manual, which candidate cities must respond to in their bid documents. This manual includes a theme
covering “Environment, Legacy/Sustainability and Meteorology”, in which the Commonwealth Games
Federation seeks to establish the general geographical, environmental and climatic features of a candidate
city and its surroundings. The CGF also seeks to understand a candidate city’s environmental approach as it
relates to geographical features, public authorities, environmental management systems, venue
construction and development projects. This theme also seeks to understand what legacy is planned for the
host city and region after the Commonwealth Games (CGF, 2011).
In accordance with the Candidate City Manual (CGF, 2011), candidate cities must supply guarantees stating
that all construction work necessary for the organisation of the Commonwealth Games will comply with:
local, regional and national regulations and acts; and international agreements and protocols regarding
planning, construction and protection of the environment. It also requires that the candidate city provide
information on the natural and cultural environment, ambient air quality, drinking water quality, a
stakeholder engagement plan and the event organising committee’s planned environmental protection
objectives, targets and priorities.
The scope of the sustainability interventions proposed by the candidate city must cover at least: sustainable
venue design and construction; transport; air and noise pollution; solid waste management; water
management and sewage treatment; soil; energy supply and conservation, renewable energy use and
management; protection and enhancement of significant features of the natural environment and cultural
heritage; and environmental awareness raising.
4.3 Sustainability and the 2014 and 2018 Commonwealth Games
4.3.1 Glasgow 2014
The following information has been extracted from The Scottish Government website
(http://www.gov.scot/Topics/ArtsCultureSport/Sport/MajorEvents/Glasgow‐2014/Commonwealth‐
games/Indicators/GCCGLP):
The sustainability programme implemented for the Glasgow 2014 Commonwealth Games had two main
aims:
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 71
To maximise, manage and record the sustainability of the Glasgow 2014 Commonwealth Games,
raising the bar for sustainability at future Commonwealth Games; and
To provide the Scottish events industry with the knowledge and tools necessary to increase the
sustainability of events throughout Scotland, as a Legacy from Glasgow 2014 and the other major
events hosted in Scotland in 2014.
Glasgow 2014 developed a Sustainable Management System (SMS) which was certified to the internationally
recognised standard ISO 20121 Sustainable Event Management. ISO 20121 is a management system standard
designed to help organisations in the events industry improve the sustainability of their event‐related
activities.
The SMS underpinned the way the Organising Committee operated as a business and as an event organiser.
It therefore took place across the whole organisation – from the Games Headquarters through to all the
venues and places of operation.
The ‘How to plan and deliver sustainable events guide’ was developed as a free online sustainable events
guide with input gathered from events across the UK, including the lessons from the London 2012 Olympics,
Glasgow 2014 Commonwealth Games venues, Ryder Cup and Festival 2014. Covering all aspects of resource
efficiency, it was written in collaboration with a number of policy officers, partners such as EventScotland
and colleagues across Zero Waste Scotland with specialisms in for example litter or recycling. Predominantly
written for event organisers, it is also a useful reference for suppliers of venues, catering and other services.
The SMS was led by Glasgow 2014, working with other key partners, including Glasgow City Council, Scottish
Government, Resource Efficient Scotland (a programme of Zero Waste Scotland), Glasgow Life and
EventScotland. As part of this, the Organising Committee developed environmental management plans for
their venues, implementing initiatives to minimise and recycle waste, improve resource efficiency, and
worked to ensure sustainability was embedded within the procurement process for the Games.
The Glasgow 2014 Sustainability Team grew in the lead up to the Games partially through Legacy programme
partner support. Resource Efficient Scotland seconded a member of their staff into the Organising Committee
as a Sustainability Coordinator in the lead up to and during the Games. Additionally, together with Glasgow
Life, Resource Efficient Scotland also funded a Sustainability Manager for Festival 2014, the cultural arm of
the Games celebrations. The Festival 2014 Sustainability Manager worked to ensure the three Live Zones
around Glasgow during the Games were sustainable events and was supported closely by Glasgow 2014 and
Resource Efficient Scotland to ensure continuity and the sharing and capture of learning and successes.
4.3.2 Gold Coast, Australia, 2018
According to the Gold Coast Operating Committee’s (GOLDOC) document, “Towards a Sustainable GC2018”
(GOLDOC, 2014), the concept of sustainability is a guiding principle which underpins the Gold Coastal 2018
Commonwealth Games (GC2018) and will deliver legacy outcomes which will extend beyond the events
themselves. Sustainability has been defined as ‘an enduring and balanced approach to economic activity,
environmental responsibility and social progress’. The aim of sustainability in the GC2018 context is to
incorporate these concepts as concrete actions and programs which bring a lasting benefit to the region. The
international standard ISO 20121: Event Sustainability Management Systems (ISO 20121), along with the
Global Reporting Initiative’s Event Organiser Sector Supplement (GRI EOSS), provides the framework for the
management and reporting of the event sustainability initiatives.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 72
Key operational areas recognised as potentially having a major impact on the sustainability performance of
GC2018 are: procurement; waste management; energy management; water management; travel and
transport; venues management; and logistics.
Sustainability and legacy are therefore intended to underpin GC2018, with a major goal being the delivery of
significant and positive economic, environmental, social and community legacies.
In designing its sustainability approach, GOLDOC has adopted the ‘One Planet Principles’ sustainability
framework. One Planet Living is a global initiative based on 10 sustainability principles developed by WWF
and Bioregional. This approach was also used in the sustainability programme for the 2012 Olympic Games
in London.
The sustainable events management system developed also uses and complies with the ISO 20121: Event
Sustainability Management Systems standard. This is an international standard created specifically for the
events industry. This standard provides guidance for the development of a management system and
processes which take into consideration the economic, environmental and social impacts of decisions made
in GOLDOC’s planning, delivery and post‐event processes. The implementation of the ISO 20121 international
standard will help GOLDOC to ensure that sustainability considerations are embedded within organisational
decision‐making and will facilitate the identification of appropriate and practical actions to be taken.
GOLDOC will report on Global Reporting Initiatives (GRI) performance indicators that are relevant to GC2018
and that align with the One Planet Principles and other commitments. These performance indicators will be
regularly reviewed by GOLDOC and key stakeholders to ensure continued relevance to identified issues.
A panel of experts has been set up to guide the development and implementation of the event sustainability
programme, as well as a working group consisting of a range of GC2018 stakeholders including GOLDOC, the
City and the State. This is an external working group which will ensure that a consistent approach to
sustainability is implemented by the Games delivery partners.
4.4 Pointers for the 2022 Commonwealth Games Sustainability Programme
4.4.1 Legacy
The Commonwealth Games Federation places a notable amount of emphasis on the desire for its events to
leave a positive social and economic legacy for host countries and cities. In doing so, the environmental legacy
of the event should not be negative, and the impacts of the event on the natural environment must be
properly managed.
While the above may be the CGF requirement, there is a need to consider how the hosting of a
Commonwealth Games event may contribute a positive environmental legacy, alongside the desired social
and economic legacy. The 2014 Glasgow sustainability programme appears to have put a significant amount
of effort into this through building capacity around sustainability during the event process, and after.
Numerous events were held to share the sustainability programme experiences and promote the adoption
of sustainability principles in city, regional and state operations and capital programmes.
Durban 2022 should consider how to link the social, economic and environmental legacy objectives in a way
that is meaningful to the Durban and South African agendas focusing on sustainable economic development,
poverty and inequality, human and ecological vulnerability to climate change, and water and energy security.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 73
4.4.2 Internationally Recognised Sustainability and Reporting Frameworks
Both Glasgow 2014 and Gold Coast 2018 have developed event sustainability management systems that
comply with ISO 20121 international standard. Given the CGF requirement to implement a credible
sustainability programme that meets international standards, the use of the ISO 20121 standard emerges as
a minimum requirement for the sustainability programme for Durban 2022.
Gold Coast 2018 aligned with the global One Planet Living initiative, which also was linked to the London
2012 Olympics. The benefits of engaging with this framework, and its associated organisations (WWF and
Bioregional) warrant further investigation to determine the applicability and potential benefits thereof for
Durban 2022. Exploration into other globally accepted sustainability frameworks should also be undertaken.
Gold Coast 2018 has indicated that it will use some of the Global Reporting Initiative (GRI) indicators for
reporting on the event sustainability performance. It is noted that there seems to have been some caution
taken in committing to using the GRI framework as the primary mechanism for reporting, and therefore only
some of the indicators will be used. This points to a need for Durban 2022 to further investigate the GRI event
sustainability reporting framework and whether it would be appropriate for use, in part or in full, or whether
there are other internationally recognised event sustainability reporting frameworks that may be preferable.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 74
CHAPTER 5 – SUSTAINABILITY APPROACH IN THE DURBAN 2022 COMMONWEALTH GAMES BID
5.1 Introduction
The Durban 2022 Commonwealth Games Candidate City File presented South Africa’s plan to host the event.
While the file included a section on “Sustainability and Environment”, there are a number of aspects of the
plan that indicate South Africa’s level and form of commitment to hosting a financially, economically, socially
and environmentally sustainable event. It is the purpose of this chapter to critically review the commitments
made by South Africa in its Candidate City File, in light of eThekwini Municipality’s intention to develop a
comprehensive Sustainability Programme for the event.
5.2 Summary of the Bidding Process
Two Commonwealth Games Associations endorsed cities to submit their candidacy to the Commonwealth
Games Federation (CGF) to host the 2022 Commonwealth Games. These included Canada (with the City of
Edmonton) and South Africa (with the City of Durban). In February 2015, Canada withdrew from the 2022
candidacy, citing financial ramifications of the global fall in oil prices as the reason for withdrawal (CGF, 2015),
leaving South Africa as the sole candidate for hosting the event.
The Durban 2022 Commonwealth Games Bid Committee was established by the South African Sports
Confederation and Olympic Committee (SASCOC), the controlling body for all the performance sports of
South Africa, to prepare and submit South Africa’s bid to host the 2022 Commonwealth Games in Durban.
The Bid Committee included the Minister of Sport and Recreation, Honourable Fikile Mbalula, Mayor of
Durban, Cllr James Nxumalo, various Ministers from the Province of KwaZulu‐Natal, as well as official sports
ambassadors, Cameron van der Burgh, Khotso Mokoena and Dyan Buis. The Committee indicated that South
Africa’s National Development Plan (NDP) and the National Sport and Recreation Plan (NSRP) had
underpinned the country’s decision to bid to host the 2022 Commonwealth Games.
A comprehensive Candidate City File was prepared and submitted by the Durban 2022 Commonwealth
Games Bid Committee to the CGF on 2 March 2015. The details of submissions required by Candidate Cities
was described in a comprehensive Candidate City Manual issued to all Commonwealth Games Associations
on 13 December 2013 by the CGF. The Candidate City Manual also described the rules and procedures
applicable to Candidate Cities and their Commonwealth Games Associations and provided detailed
specifications for the information to be submitted.
The CGF Evaluation Commission visited the city of Durban on 25 April 2015 for four days. The CGF Evaluation
Commission then produced an evaluation report on the Durban 2022 bid in July 2015 (Commonwealth Games
Federation, 2015). Finally, Durban’s bid was voted on by all 71 nations and territories of the CGF membership
at their General Assembly on 2 September 2015 in Auckland, New Zealand, where it was approved.
5.3 Key Aspects of the Durban 2022 Commonwealth Games Bid
The Durban 2022 Commonwealth Games is proposed to be held over 14 days in July 2022. The event is to be
organised by the Durban 2022 Commonwealth Games Organising Committee, which is to be a legal entity
established as a non‐profit organisation with representation from SASCOC and National Government
(through an inter‐ministerial committee to be established), KwaZulu‐Natal Provincial government, and
eThekwini Municipality. Further to this, the CGF has indicated that it intends to play a partnering role with
this organisation to ensure risks and delivery are managed.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 75
The Durban 2022 Commonwealth Games Candidate City File presents a number of key concepts, which
underpin the proposed approach for hosting the event:
4. “Focus on legacy”. The key motivation for hosting the 2022 Commonwealth Games in South Africa is
cited as the role that the event will play in supporting the development of infrastructure, human capital,
the national and local economy, and social cohesion / inclusivity.
The event would add to a growing resume of global mega events that have been successfully hosted
in the country, giving weight to South Africa’s positive profile as an events and tourism destination.
Specifically, for Durban, the key investment precinct for the event will be the Moses Mabhida sports
and recreation precinct, which is in the inner city and is an area where redevelopment / renewal is a
critical need. This is also supportive of the city’s vision to develop Moses Mabhida as a mega multi‐
sport events precinct and to position it as a premier sports tourism destination.
Durban has a long term development plan that the hosting of the event has been motivated as being
supportive of. The event has been cited as being able to facilitate acceleration of planned
investments in social amenities and transportation infrastructure. The athletes’ village would be
constructed to become gap housing after the event.
There would be a strong element of youth outreach with the intention of building youth skills,
capacity and confidence through the hosting of the event.
5. “Compact Games”. At least 80 % of the sports activities (and a significant component of the
accommodation requirements) are proposed to be hosted within a 5km radius of Moses Mabhida
Stadium This will reduce the complexity of event logistics and reduce the requirement for transport.
6. “Use of existing infrastructure”. There is a strong focus on using existing facilities (with upgrades) to host
the event, and limiting the need for construction of new facilities. This includes sports facilities,
administrative facilities and transportation infrastructure.
The above three underpinning concepts are broadly supportive of a sustainable, efficient approach to hosting
the Commonwealth Games. In addition to these, the specific commitments made in the bid to ensuring
“sustainability” are as follows:
6. Establishment of a Social and Ethics Committee (to be named the Sustainability and Legacy
Commission) will be established to govern how sustainability will be incorporated into the entity’s
governance structure.
7. Stakeholder engagement will be achieved through the Community Participation and Action Support
Unit (CPASU), established by the City of Durban as a vehicle for community members to participate
in the governance of the Games and foster a sense of ownership of developments.
8. The bid asserts that Durban water can be safely consumed directly from` the tap.
9. Guarantee(s) stating that all construction work necessary for the organisation of the Commonwealth
Games will comply with:local, regional and national regulations and acts; international agreements
and protocols regarding planning, construction and protection of the environment.
10. Six key environmental protection objectives were given:
h. Utilise existing facilities as far as possible.
i. Certify new venues to green building standards.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 76
j. Ensure any construction or upgrades to new or existing facilities are conducted in accordance
with an Environmental Management Plan.
k. Ensure that greenfield development is in line with the City of Durban’s Metropolitan Open
Space System (DMOSS) requirements and objectives.
l. Minimise waste generation during the Games and ensure that waste is separated at source
to reduce volumes requiring landfilling.
m. Ensure public transport is available to minimise the need for private transport; the compact
venues plan will assist in achieving this.
n. Energy efficiency and renewable energy initiatives to be undertaken in alignment with the
city’s objectives.
5.4 Pointers for the Durban 2022 Commonwealth Games Sustainability Plan
South Africa is a country with significant social and economic challenges. In the context of bidding to host a
major international sports event like the Commonwealth Games, it has been critical to demonstrate how the
investment of national, regional and local resources in the event infrastructure and operations would
contribute positively towards addressing pressing social and economic development needs. Without this, the
bid may have been unlikely to find the level of broad public and political support that was needed.
The commitment in the bid document to a compact games and limited need for construction of new facilities
and infrastructure are the key approaches that demonstrate that the event can be hosted in a financially
efficient manner, and presumably also in a financially affordable manner.
The commitments made in the bid document to focusing on building a positive legacy of social amenities
(including upgrading of community sports facilities) and building of human capital through the event speak
directly to the social equity and inclusivity benefits intended to be achieved from the event.
Although not particularly explicit in the bid, it is suggested that the hosting of the 2022 Commonwealth
Games in Durban, South Africa, would not only generate a direct positive economic impact to local businesses
in various sectors in the build up to and during the event, but that it would also support the development of
the local and national tourism economy through contributing towards the Durban / South Africa profile as a
desirable global event destination. The achievement of these intended financial efficiencies / affordability,
social and human development impacts, and local / regional economic impacts, are therefore critical event
sustainability commitments that the event Sustainability Programme will need to encourage / support, as
well as measure and report on.
The section of the bid covering sustainability and environmental protection is fairly broad, indicating that
resource use efficiencies and environmental protection will be dealt with, and that a green building /
infrastructure legacy should be left as a result of the event. This will require the integration of appropriate
sustainability principles, aims and objectives into all event infrastructure, services and operational plans.
The bid document and CGF Evaluation Report both indicate that the Durban Climate Change Strategy aligns
with the National Climate Change Response Strategy, and presumably this was considered to ensure that
national and local climate protection aims would therefore be properly dealt with in the hosting of the event.
Given that there were no specifics given on how the Durban Climate Change Strategy would apply to the
event, this is one gap which would need to be addressed in the development of a detailed sustainability plan.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 77
Given the focus on creating a positive legacy from the hosting of the event, a key approach will be ensuring
that the municipal line functions (and other organisations with a role to play in implementation) are actively
involved both in developing the event sustainability plan, and implementing it. This will provide an important
opportunity to build human capital and to create a positive institutional legacy of proactively integrating
sustainability principles and approaches into projects and programmes.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 78
CHAPTER 6 - ROADMAP
6.1 Introduction
This Chapter presents a Roadmap for the establishment of the Sustainability Programme for the Durban 2022
Commonwealth Games. The Roadmap has been developed through desk‐top level study, personal interviews
and communications with a number of municipal and other stakeholders, as well as a multi‐stakeholder
workshop.
The Roadmap includes the Sustainability Programme key approaches / concepts and workstreams with
associated goals and objectives, alongside a timeline and anticipated resourcing requirements. Within each
workstream, detailed project plans will need to be developed. The Roadmap also contains an indication of
where partnerships should be established to facilitate the effective execution of each workstream and / or
escalate the beneficial outcomes of the Programme.
In order to drive and co‐ordinate the Sustainability Programme, a co‐ordinating committee is proposed. The
establishment of this institution and its activities have been included in the Roadmap.
The Roadmap is intended to be used as a guiding framework, and should be updated and / or further detailed
when necessary.
6.2 Summary of Underpinning Approaches / Concepts
The background research conducted for the preparation of the Roadmap has identified the following key
underpinning approaches and concepts which inform the direction of the Sustainability Programme,
including the identified goals and objectives.
Table 3: Summary of Key Approaches and Concepts underpinning the Roadmap Goals and Objectives
APPROACH / CONCEPT DESCRIPTION
1. Leveraging transitionary
processes
The Durban 2022 Commonwealth Games offers an opportunity for eThekwini Municipality
to utilise the elevated levels of international technical support and funding available to
leverage a strategic realignment and rapid enhancement of existing capacity, skills and
systems, leaving a legacy of enhanced governance that is increasingly responsive to global
and national sustainability and climate protection priorities.
This should also include leaving an iconic educational / awareness raising and mind‐set
shifting legacy for South Africa’s youth that promotes a better understanding of the urgent
need to choose sustainable living and behaviour patterns.
2. Building on existing
foundations
There is a significant amount of existing work / planning and capacity that is already in
place. Key infrastructure, legacy or other sustainability initiatives should be “leap‐frogged”
forward as part of the Durban 2022 Commonwealth Games event hosting process. Where
possible, existing resources, institutional platforms, plans already completed, existing
infrastructure, existing municipal workstreams, etc. should therefore be used in developing
the sustainability initiatives required for the Durban 2022 Commonwealth Games. This will
achieve faster wins, reduce costs, and facilitate capacity building, leaving a legacy of
‘sustainability in practice’.
In line with this concept is the idea of involving eThekwini Municipality line functions as
core capacity to implement the Sustainability Programme. In so doing, local capacity and
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 79
experience will be built to support a transitioning in local governance structures towards
enhanced sustainability and climate‐change resilience outcomes.
3. Enhancing ‘resilience’
through a balanced
mitigation‐adaptation
focus
Investment in mitigation of the carbon emissions from the event is imperative, but this
investment needs to be designed to also address local climate risks, vulnerabilities and
adaptation needs, thereby promoting enhanced social and ecological resilience,
sustainable (and low carbon) economic development.
4. Escalating benefits
through partnerships,
collaboration and shared
learning
Meaningful partnerships need to be established with business and industry, non‐
governmental organisations, education / research institutions and other government
agencies. These partnerships should not be confined by the administrative boundaries of
eThekwini Municipality, and should seek to foster regional, national and global
collaboration, capacity building, influence and impact. They should seek to leverage
enhanced investment in human capital, natural capital, institutional capital and social
capital.
Sharing learning experiences and outcomes of such work can provide an important
platform to encourage and assist other cities / agencies grappling with sustainability issues,
particularly other African cities.
5. Accounting for the full
range of environmental,
social and economic costs
and benefits of the event
In a world of increasing competition for resources, it is important for Durban to show
leadership by considering the full ecological footprint of the event, and to report on this
aspect in tandem with its carbon, economic and social impact reporting processes. A full
cost and benefit accounting approach should therefore be adopted with respect to the
event’s environmental, social and economic impacts.
The programme should also be designed to respond to issues associated with
environmental and social thresholds (i.e. ‘safe and just operating space’ priorities), and be
able to report on the impact of the event within the context of such thresholds. The design
of the monitoring and reporting frameworks therefore requires an innovative approach,
and it is suggested that collaboration with international researchers leading the work on
the safe and just operating space should be sought.
Event participants and spectators should be encouraged to understand their role in
creating climate and other environmental costs in attending the event, and should
therefore be provided with both the awareness of these costs and a platform to contribute
towards minimising and offsetting them.
6. Using internationally
recognised sustainability
frameworks and reporting
systems
Both Glasgow 2014 and Gold Coast 2018 have developed event sustainability management
systems that comply with ISO 20121 international standard. Given the CGF requirement to
implement a credible sustainability programme that meets international standards, the use
of the ISO 20121 standard is a minimum requirement for the sustainability programme for
Durban 2022. Exploration into globally accepted sustainability frameworks, particularly for
event impact reporting, should also be undertaken.
7. Leading in legislative
compliance
The hosting of the Durban 2022 Commonwealth Games will need to be done in a manner
that is fully compliant with and supportive of all national and local legislation, policy, by‐
laws and associated sustainable development and environmental, cultural and social
priorities. Not only is this a requirement of the CGF, but demonstrating leadership in
legislative compliance is an important principle in an increasingly complex regulatory
environment in South Africa.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 80
6.3 Sustainability Workstreams, Goals and Objectives
The Sustainability Programme Workstreams, Goals and objectives are as follows:
Table 4: Sustainability Workstreams, Goals and Objectives
WORKSTREAMS GOALS OBJECTIVES
A. Sustainability
Coordinating
Structure
A1. Establish a functional
sustainability co‐ordinating
structure with clear roles
and responsibilities.
A2. Establish and manage
relationships and
partnerships.
A3. Secure and manage
programme funding.
A1.1 Develop an organogram with defined roles and
responsibilities, and identify and secure individuals to fulfil the
required committee roles and functions.
A1.2 Direct and co‐ordinate the Sustainability Programme and
all associated activities, partnerships and programme‐level
funding streams.
A2.1 Establish relationships with and between relevant
government departments, private sector agencies, event
organising committees etc. as required to facilitate the
effective implementation of the Sustainability Programme and
leave a legacy of collaboration.
A2.2 Manage relationships and partnerships.
A3.1 Develop programme‐level financial plans and secure the
required funding for programme implementation.
A3.2 Manage and report on programme funding.
B. Climate‐smart
buildings,
infrastructure,
transportation &
operations
B1. Reduce the climate and
ecological footprints of
event hosting
infrastructure, buildings
and transportation systems,
and leave a green building,
infrastructure and transport
systems legacy.
B2. Reduce climate and
ecological footprints and
minimise environmental
and social risks associated
B1.1 Implement green building principles, technologies and
approaches in the design, build, upgrading or refurbishment of
the event precinct and all event hosting infrastructure
(including sports and administrative), to reduce energy
consumption, use renewable energy, conserve water, reduce
ecological footprints, and facilitate access to non‐motorised
and public transportation systems.
B1.2 Certify new venues to green building standards, and
where major refurbishments are undertaken to existing
buildings, seek to incorporate green building principles.
B1.3 Implement, promote and incentivise the use of public and
non‐motorised transportation systems.
B1.4 Utilise low carbon motorised transport technologies for
all event transportation systems.
B1.5 Develop or utilise renewable energy at event facilities.
B1.6 Build the athlete’s village as a low energy and water
resource consuming facility, in a location that permits easy
access to public and non‐motorised transportation systems,
and which can be used as social housing post‐event.
B2.1 Develop an ISO‐accredited Event Environmental
Management System (EMS), including a Sustainable
Procurement Protocol.
B2.2 Implement the EMS in all event operations and facilities.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 81
with all event operations
and facilities
C. Climate‐smart waste
management
C1. Reduce the climate and
ecological footprints of
event waste in a manner
that creates jobs and
promotes social upliftment
while promoting a cleaner
city.
C1.1 Develop a waste minimisation, recycling and re‐use
protocol for inclusion in the EMS.
C1.2 Establish and implement a waste separation and recycling
system that creates benefits for both the informal and the
formal recycling sectors.
C1.3 Establish innovative non‐recyclable and sports waste re‐
use / waste beneficiation projects that create jobs, build skills
and create a long‐term demand for non‐recyclable waste.
These projects should seek to benefit disadvantaged
communities and other identified social needs.
C1.4 Ensure all beaches, tourist areas, event precincts and
activity areas are kept clean and litter free. Partnerships with
local communities and businesses should be considered to
achieve this for the event and beyond wherever possible.
D. Responsible
hospitality & tourism
D1. Minimise the climate
and ecological footprints of
the hospitality and tourism
sectors.
D2. Establish a responsible
hospitality and tourism
legacy from the event.
D1.1 Establish a responsible hospitality and tourism campaign
targeting both consumers and businesses.
D1.2 Identify and implement an appropriate green grading
system for hospitality and tourism operations.
D2.1 Establish and manage partnerships between government
and the private sector for implementation of responsible
tourism as a permanent fixture.
D2.2 Develop relevant tools, educational programmes, and
implement a capacity building programme targeting
consumers and hospitality / tourism businesses.
D2.3 Develop and implement green tourism experiences for
the event period and beyond.
E. Event climate &
ecological
footprinting
E1. Measure and report on
the event climate and
ecological footprints, and
associated social and
economic impacts.
E1.1 Develop and adopt a climate and ecological footprinting
toolset and system.
E1.2 Collect data for the footprint.
E1.3 Develop estimates of the climate and ecological
footprints before the event, which can be used to direct key
interventions that will reduce these footprints.
E1.4 Calculate and report on the climate and ecological
footprints of the event, including the reductions in these
footprints that were achieved through sustainable design and
operations.
F. Climate resilience‐
building mitigation &
legacy projects
F1. Implement local
projects that mitigate and
offset climate and
ecological footprint impacts
from the event, and leave a
legacy of enhanced social
and environmental
F1.1 Develop and implement a suite of local projects that build
enhanced social, economic and ecological resilience to climate
change while mitigating climate and ecological footprint
impacts from the event.
F1.2 Establish partnerships for project implementation.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 82
resilience to climate
change.
F2. Develop a legacy project
that drives changes in
thinking and behaviour
towards more sustainable
and climate‐responsible
business, lifestyles and
consumer choices.
F2.1 Identify at least one high impact legacy project that will
achieve the goal.
F2.1 Establish partnerships for project implementation.
G. Sustainability
awareness,
education,
communications,
and reporting
G1. Raise awareness about
climate change,
sustainability and what
individuals can do to reduce
their impacts, adapt to
change and become more
resilient to environmental
risks.
G2. Provide a platform for
event participants to
contribute towards
offsetting / mitigating their
impacts.
G3. Disseminate
information on the event
sustainability programme,
its achievements, and the
environmental, social and
economic costs and
benefits of the event to a
range of audiences.
G4. Leave a learning legacy
through the promotion of
shared learning and
development of learning
materials.
G1.1 Undertake a stakeholder / audience mapping exercise to
identify target audiences and associated communication
pathways and requirements.
G1.2 Develop and implement a climate and sustainability
awareness campaign, including driving key messages and
information to target audiences.
G1.3 Develop standard communications materials to be used
by Sustainability Programme workstreams in communicating
about the programme.
G2.1 Develop an online tool for individuals and event teams to
estimate their climate and ecological footprints, with
associated mechanism to select mitigation projects to
contribute towards financially.
G2.2 Develop other opportunities for people to be physically
active in offsetting their impacts or participating in green
activities.
G3.1 Investigate and identify appropriate internationally‐
recognised reporting protocols or systems that should be
used.
G3.2 Collect information relevant to the identified reporting
framework.
G3.3 Prepare and disseminate technical reports.
G3.4 Prepare and disseminate popular reports.
G3.5 Present key findings at key conferences and events.
G4.1 Develop learning materials based on the experiences,
outcomes and lessons from the event Sustainability
Programme and projects.
G4.2 Host an event sustainability convention or workshop
post‐event.
G4.3 Disseminate learning materials in relevant ways to
various target audiences.
H. Legal compliance H1. Ensure that all event
related construction and
activities are compliant
with local, regional &
H1.1 Identify and operationalise legal compliance capacity to
assist with monitoring all event related activities and
facilitating processes to achieve legal compliance.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 83
national policy and
legislation.
H2. Ensure that good
practice in environmental
management and
sustainability are achieved
at all new and refurbished
event hosting facilities.
H1.2 Establish a working group with relevant provincial and
national government authorities to fast track legislative
compliance processes.
H2.1 Ensure any construction or upgrades to new or existing
facilities are conducted in accordance with an Environmental
Management Plan.
6.4 Sustainability Coordinating Structure
In the Durban 2022 Commonwealth Games Bid, it was proposed that a Sustainability and Legacy Commission
would be established to govern how sustainability will be incorporated into the Local Organising Committee
(LOC) for the event. The Sustainability Programme Co‐ordinating Structure mentioned here would therefore
form a component of, and/or report to this Commission.
In terms of the above, clarity will need to be sought on whether additional co‐ordinating resources and
workstreams, over and above those presented in this Roadmap document, would be needed to address all
Legacy requirements that may be stipulated by the Sustainability and Legacy Commission. This Roadmap has
focused specifically on Sustainability and associated legacy opportunities, but it is likely that other Legacy
opportunities may exist in other event organising activities as well.
The Co‐ordinating Structure for the Sustainability Programme should be developed in a manner and form
that ensures that there is sufficient capacity and the right skills in place for effectively driving and overseeing
the implementation of the programme. It would be advantageous for this structure to include
representatives from the Host City, National and Provincial Government, and key non‐governmental and
private sector agencies that could bring additional skills, knowledge and networks into play. This multi‐
stakeholder approach would enhance not only the effectiveness of the structure, but also create better
opportunities for shared learning.
One approach would be to establish a core co‐ordinating structure, with key individuals that play a driving
and co‐ordinating role, supported by a technical committee, which is designed to bring key technical
competencies in when required.
Given that sustainability principles and approaches need to be integrated into all event hosting workstreams,
the Sustainability Co‐ordinating Structure would need to be constituted in a way that gave it adequate
influence within the broader event co‐ordinating structure / process.
Given past experiences in mega‐event greening in South Africa, it is likely that the National Department of
Environmental Affairs (DEA) will have a role to play in the Sustainability Programme for the event. In the past,
this has tended to play out such that the host city and the DEA sustainability efforts are run completely
separately, often resulting in tensions regarding reporting mandates and responsibilities. It is therefore
critical that discussions with this department begin early, in order that the respective roles, functions and
responsibilities between DEA and the host city are resolved early on, and that resources can be pooled for
optimum outcomes.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 84
A suggested institutional structure for the Sustainability Programme is therefore as follows:
6.5 Human and Financial Resourcing
The Durban 2022 Commonwealth Games Sustainability Programme will require funding for the
implementation of short and medium term initiatives associated with the programme, as well as
sustainability legacy projects that have a lifespan beyond the event itself. In addition, adequate human
resources will need to be made available to perform the various roles and functions required.
As an early requirement of the development of the Sustainability Programme, a human resourcing plan and
programme budget must be drawn up that identifies the requirements for all aspects of the programme,
including the cost of additional staffing or drawing in of expert assistance. While the involvement of
municipal staff as core capacity in the programme is desired, this must be done in an informed manner
through a proper evaluation of staff capacity to take on the required additional functions of the Sustainability
Programme. It is also critical that the long‐term human resource and project operational costs of legacy
projects are considered in the budgeting process.
It is anticipated that a portion of the programme budget could be sourced from within the eThekwini
Municipality fiscus. Where this is the case, the Sustainability Programme and associated projects should be
incorporated into the municipal IDP and departmental budgets and plans as soon as possible. However, a
range of other sources of funding will also need to be identified. These may include National Government,
international development and aid agencies such as the United Nations Environment Programme (UNEP),
United Nations Development Programme (UNDP) and GIZ, and may also include dedicated climate and
sustainability response funds such the Green Climate Fund (GCF). It is further anticipated that certain projects
may be implemented through partnerships with business or non‐profit organisations, where such
partnerships leverage additional sources of funding or resourcing into these projects.
Sustainability and
Legacy Commission
Local Organising Committee
(LOC)
Workstreams
Workstreams
Workstreams
Workstreams Workstreams
Workstreams
Workstreams
Workstreams
Sustainability
Coordinating
Structure
Event organising structure with
National, Provincial and Local
Government representation
National body with local
representation, ensures sustainability
and legacy objectives are addressed by
LOC
Co‐ordinates
sustainability
activities
locally and
reports to
Sustainability
and Legacy
Commission
Figure 5: Sustainability Programme organisational structure
Workstreams
implement
sustainability projects
and activities
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 85
6.6 Further Stakeholder Engagements
It is suggested that further engagement with business and industry, non‐governmental organisations,
academia, and the youth, is undertaken in the process that needs to follow for the identification of projects
and activities for the various Sustainability Programme workstreams. These engagements should be focused
such that specific groups are engaged in the identification of projects which are of specific relevance to those
groups. For example, the hospitality sector should be engaged in developing a detailed plan for the
Sustainability Programme workstream dealing with Responsible Hospitality and Tourism; and the youth
should be engaged in identifying projects that will leave a mind‐set shifting legacy around sustainable
behaviour and adaptation to climate change. Early engagement with these groups is critical to achieve their
buy‐in and active participation in relevant Programme implementation activities.
6.7 Identifying Strategic Partnerships
Attention should be given early on to the possible benefits of eThekwini Municipality establishing a strategic
partnership with a not for profit organisation with the requisite skills to assist in directing and managing the
implementation of the Sustainability Programme. This approach would provide the opportunity to transfer
skills from the partner to government actors, as well as secure sources of funding for the programme that
may not be possible for the host city, which cannot accept donations and is required to abide by the rules
set out in the Municipal Finance Management Act (2003).
In this regard, it would be beneficial to identify an international agency to partner with, which has experience
in implementing sustainability programmes for mega‐events, and has access to overseas funding networks
which could be leveraged to support a transfer of international skills into South Africa.
Sustainability Programme Roadmap: Durban 2022 Commonwealth Games 86
6.8 Visual Roadmap
Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4
Goal A1
Goal A2
Goal A3
Key Responsibilities
Goal B1
Goal B2
Key Responsibilities
Goal C1
Key Responsibilities
Goal D1
Goal D2
Key Responsibilities
Goal E1
Key Responsibilities
Goal F1
Goal F2
Key Responsibilities
Goal G1
Goal G2
Goal G3
Goal G4
Key Responsibilities
Goal H1
Goal H2
Key Responsibilities
Goal C
Goal H
Goal G
Goal F
Goal E
Goal D
20232016 2021 20222017 2018 2019 2020Programme Workstreams
Climate smart buldings,
infrastructure, transportation
& operations
Climate resilience building
mitigation & legacy projects
Event climate & ecological
footprinting
Climate smart waste
management
Sustainability awareness,
education, communications
and reporting
Responsible hospitality &
tourism
Legal compliance
Sustainability Coordinating
StructureGoal A
Goal B
PHASE 1: Plan development and detailing PHASE 2: Resourcing and preparation PHASE 3: Implementation PHASE 4: Post implementation & reporting
A1.1 Establish coord. structure
A2.1 Establish relationsips and partnerships
A3.1 Develop financial plans and secure funding
A2.2 Manage relationsips and partnerships
A3.2 Manage sand report on programme‐level funding
A1.2 Direct and coordinate the Sustainability Programme
EPCPD
B1.1 Implement green building and design principles, technologies etc. in event infrastructure and buildings
B1.3 Implement, promote and incentivise the use of non‐motorised transport infrastructure
B1.2 Certify new venues ‐ green building stds
B1.4 Low carbon transport
B1.5 Develop renewable energy and use for event and legacy
B1.6 Build the athletes village as green social housing with access to NMT and public transport systems
B2.1 Develop ISO accredited Event EMS B2.2 Implement EMS ‐ all venues
Architectural Services, Energy Office, EWS, ETA, Electricity, Planning, EPCPD, Supply Chain Management / Procurement
C1.1 Waste protocol for inclusion in EMS
C1.2 Establish & implement waste separation & recycling system
C1.3 Establish waste re‐use / beneficiation projects
DSW, EDU
D1.1 Responsible hospitality & tourism campaign
D1.2 Green grading system
D2.1 Establish and manage partnerships
D2.2 Develop & implement capacity building programme
D2.3 Green tourism experiences
Durban Tourism, Durban Green Corridor
All line departments involved in the Structure
E1.1 Develop climate and ecological footprinting toolset and system
E1.2 Collect data
E1.4 Calculate footprints
EPCPD, Energy Office
F1.1 Develop and implement suite of climate resilience building mitigation projects
F1.2 Establish implementation partnerships
F2.1 Identify and implement high impact legacy project for long term educational and sustainable consumption/development behaviour change outcomes
F2.2 Establish implementation partnerships
EPCPD, Energy Office, Architectural Services
G1.2 Develop & implement climate & sustainability awareness campaign
G2.1 and G2.2 Online tool for impact footprint calculation & mitigation contribution; other offset activities
G3.1 Identify reporting framework G3.2 Collect information
G3.3 and G3.4 Technical & popular reporting
G3.5 Share info / experiences at conferences
G4.1 and G4.3 Develop and disseminate learning materials
EPCPD, Energy Office, Communications, MILE
H1.1 Identify & operationalise legal & policy compliance capacity
H1.2 Establish compliance working group
H2.1 EMPr for all construction
EPCPD, Planning
C1.4 Ensure all event areas and tourist areas are clean and litter free
E1.2 Collect data
E1.3 Estimate footprints
G1.1 Stakeholder map
G1.3 Std materials
G4.2 Convention
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ANNEXURE A: KEY ORGANISATIONS / POTENTIAL PARTNERS
NAME DESCRIPTION WEBSITE ADDRESS
Event Owner
Commonwealth Games Federation
The Commonwealth Games Federation (CGF) is the organisation that is responsible for the direction and control of the Commonwealth Games. Underlying every decision made by the CGF are three core values: ‐ HUMANITY ‐ EQUALITY ‐ DESTINY. These values help to inspire and unite millions of people and symbolise the broad mandate of the CGF within the Commonwealth.
www.thecgf.com
Funding / Support Agencies
Green Climate Fund The Green Climate Fund (GCF) was established by 194 governments to limit or reduce greenhouse gas (GHG) emissions in developing countries, and to help vulnerable societies adapt to the unavoidable impacts of climate change.
www.greenclimate.fund
Development Bank of Southern Africa
The Development Bank of Southern Africa (DBSA) is a development bank focusing on sustainable delivery of infrastructure and economic development in Southern Africa. The DBSA is an accredited agency with the Green Climate Fund.
www.dbsa.org
South African National Biodiversity Institute
The South African National Biodiversity Institute (SANBI) is South Africa’s governmental agency dealing with biodiversity and ecosystems protection, research and information. SANBI has applied to become a Green Climate Fund accredited agency. SANBI is also a key partner in the uMngeni Ecological Infrastructure Partnership Project.
www.sanbi.org
United Nations Environment Programme
The United Nations Environment Programme (UNEP) is often involved in reporting on the greening of mega‐events, and funds a range of programmes intended to support the protection of the environment.
www.unep.org
United Nations Development Programme
The United Nations Development Programme (UNDP) runs a number of programmes supporting governments with implementation of the SDGs’.
www.za.undp.org
Technical / Research
Oxfam Oxfam is the world leader in the research on ‘safe and just operating space’ theory, which focuses on linking social equity and justice to environmental and ecological system limits.
www.oxfam.org.uk
Green Building Council of South Africa
The Green Building Council of South Africa (GBCSA) leads the transformation of the South African property industry to promote buildings that are designed, built and operated in an environmentally sustainable way.
www.gbcsa.org.za
Stockholm Resilience Centre
Stockholm Resilience Centre advances research on the governance of social‐ecological systems with a special emphasis on resilience ‐ the ability to deal with change and continue to develop. This centre leads the global research on Planetary Boundary theory.
www.stockholmresilience.org
University of KwaZulu‐Natal
The University of KwaZulu‐Natal (UKZN) has an established research partnership with eThekwini Municipality.
www.ukzn.ac.za
Business and Industry
KwaZulu‐Natal Business Chambers Council
The KwaZulu‐Natal Business Chambers Council (KBCC) is the representative voice of organised business in KwaZulu‐Natal. KBCC's objective is to build KZN into a business powerhouse that is an attractive destination for investments.
www.kznchamber.co.za
Tourism Grading Council of South Africa
The Tourism Grading Council of South Africa is mandated to undertaking quality assurance grading of accommodation and meetings, exhibitions and special events.
www.tourismgrading.co.za
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Federated Hospitality Association of Southern Africa (FEDHASA)
The representative of the South African Hospitality Industry on a local, provincial, national and global level.
www.fedhasa.co.za
National and Provincial Government
South African Sports Confederation and Olympic Committee (SASCOC)
SASCOC is the Commonwealth Games Association in South Africa and is likely to lead the Organising Committee for the Durban 2022 Commonwealth Games.
www.sascoc.co.za
KZN Department of Economic Development, Tourism and Environmental Affairs (EDTEA)
EThekwini Municipality will need to work with the Provincial Government’s environmental sector in the development and implementation of an event sustainability programme that covers the region.
www.kzndedt.gov.za
National Department of Environmental Affairs (DEA)
EThekwini Municipality will need to work with the National Government’s environmental sector in the development and implementation of an event sustainability programme that covers the region.
www.environment.gov.za
National Department of Tourism (NDT)
The National Department of Tourism is responsible for the growth of the tourism economy in South Africa. It is also part of the department’s mandate to promote responsible tourism and would therefore be a key partner in developing a sustainability response relevant to the hospitality sector for the Commonwealth Games event.
www.tourism.gov.za
National Department of Water and Sanitation (DWS)
Given the possibility that event infrastructure may require water use licenses / authorisation, a working relationship with the DWS should be established early in the event planning process.
www.dwa.gov.za
Regional Forums for Collaboration
UMngeni Ecological Infrastructure Partnership
Intergovernmental and multi‐stakeholder programme providing a possible platform for regional‐scale projects focusing on ecosystem services enhancement / social upliftment and climate protection (mitigation, adaptation and resilience building).
www.durban.gov.za/City_Services/development_planning_management/environmental_planning_climate_protection/Projects/Pages/Investment‐in‐Ecosystem‐Services.aspx
Central KZN Climate Change Compact
An intergovernmental panel promoting regional collaboration in KZN around climate adaptation and mitigation action.
www.durbanadaptationcharter.org/news/dac‐central‐kwazulu‐natal‐climate‐change‐compact
Not for profit Organisations
Wildlands Conservation Trust
The Wildlands Conservation Trust implements environmental and conservation projects with a specific focus on social upliftment. It is currently partnering with eThekwini Municipality in its implementation of a major Community Reforestation and Community‐ecosystem Based Adaptation Programme.
www.wildlands.co.za
WWF‐South Africa WWF South Africa’s integrated strategy is underpinned by three primary goals to ensure that South Africa’s biodiversity is conserved and that our footprint remains within the Earth’s capacity to sustain life.
www.wwf.org.za
Wildlife and Environment Society
WESSA implements environmental and conservation initiatives in southern Africa. WESSA is currently a partner to eThekwini
www.wessa.org.za
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of Southern Africa (WESSA)
Municipality in the implementation of its Working for Ecosystems Programme.
Bioregional Bioregional is an international organisation that champions sustainable living within the earth’s natural limits. They have developed the One Planet Living approach which has been used in the Gold Coast 2018 sustainability programmes, and which also was linked to the London 2012 Olympics. Bioregional South Africa was founded in 2010 and is an Environmental Trust and a registered Non‐Profit organisation. It is also a Public Benefit Organisation with the Tax Exemption Unit of SARS.
www.bioregional.com
SouthSouthNorth SouthSouthNorth assists governments, the private sector and research institutions in understanding the economic, social and environmental choices that climate change presents. They also have an involvement in the administration of the Green Climate Fund. The SouthSouthNorth Group is composed of two separate entities: the SSN Trust and SSN NPC (non‐profit company).
www.southsouthnorth.org
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Carbon Calculated, 2012. COP17 Carbon Footprint. Report produced for the South African Department of
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Commonwealth Games Federation, 2011. Candidate City Manual: 2018 Commonwealth Games. Commonwealth
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Commonwealth Games Federation, 2015. 2022 Commonwealth Games Candidature, Report of the CGF Evaluation
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Diederichs, N. and Roberts, D., 2010. Summary Review of eThekwini Municipality’s 2010 FIFA™ World Cup Event
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Diederichs, N. and Roberts, D., 2015. Climate protection in mega‐event greening: the 2010 FIFA™ World Cup and COP17‐
CMP7 experiences in Durban, South Africa. Climate and Development. DOI: 10.1080/17565529.2015.1085361.
Econ Poyry. (2009). Feasibility Study on Carbon Neutral 2010 World Cup in South Africa. Report for Norad and
Department of Environmental Affairs and Tourism (DEAT).
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EThekwini Municipality, 2015. Spatial Development Framework 2015/16 Review. Available: www.durban.gov.za/Resource_Centre/reports/Framework_Planning/Documents/SDF%20Review%202015‐2016.pdf [accessed on 26 April 2016].
Doelle, M., 2016. The Paris Agreement: Historic Breakthrough or High Stakes Experiment? Climate Law, 6(1‐2)
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Durban 2022 Commonwealth Games Bid Committee (Durban 2022), 2015. Durban 2022 Commonwealth Games
Candidate City File, Executive Summary. Available at: http://www.durban‐2022.com/assets/files/durban‐2022‐cg‐
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E3G, 2015. Judging the COP21 Outcome and What’s Next for Climate Action? Online Article:
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Gold Coast Organising Committee (GOLDOC), 2014. Towards a Sustainable GC2018. GOLDOC, Queensland,
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Hajer, M., Nilsson, M., Raworth, K., Bakker, P., Berkhout, F., de Boer, Y., Rockström, J., Ludwig, K., and Kok, M.
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Hajer, H and Huitzing, H. 2012. Energetic Society. LSE Cities. Online article:
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Raworth, K., 2012. A safe and just space for humanity: Can we live within the doughnut? Oxfam Discussion Paper.,
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Roberts, D., 2016. EThekwini Municipality Environmental Planning and Climate Protection Department (EPCPD)
Newsletter: Special Edition: Climate Change: From COP17 in Durban to COP21 in Paris ‐ A Global Road Map for
Tackling the Greatest Challenge of the 21st Century? Online article:
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Roberts, D. Boon, R. Diederichs, N. Douwes, E, Govender, N. McInnes, A. McLean, C. O’Donoghue and Spires, M. 2012.
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RSA National Department of Environmental Affairs, 2011. Climate Change Response Strategy White Paper.
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RSA National Department of Tourism, 2011. National Tourism Sector Strategy. Government printers, Pretoria.
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RSA National Department of Tourism, 2011. Draft National Tourism and Climate Change Action Plan. Available at:
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RSA National Department of Environmental Affairs and Tourism, 2002. National Responsible Tourism Development
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Spalding‐Fecher, R., 2009. Update of FIFA™ 2010 World Cup Carbon Footprint for Durban. Report to eThekwini
Municipality.
Stahl, H., Hochfeld, C. and Schmied, M., 2007. Green Goal™ Legacy Report. Organising Committee 2006 FIFA™ World
Cup and Federal Ministry for the Environment, Nature Conservation and Nuclear Safety.
Steffen, W., Richardson, K., Rockstrom, J., Cornell, S.E., Fetzer, I., Bennett, E.M., Biggs, R., Carpenter, S.R., de Vries, W.,
de Wit, C., Folke, C., Gerten, D., Heinke, J., Mace, G.M., Persson, L. M., Veerabhadran, R., Reyers, B., Sorlin, S., 2015.
Planetary Boundaries: Guiding human development on a changing planet. Science 347 (6223) DOI:
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Tollin, N., 2015. The role of cities and local authorities following COP21 and the Paris Agreement. Sostenible? 16(9)
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Visagie, J., 2013. Who are the middle class in South Africa? Does it matter for policy? Available at:
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ANNEXURE C: UN SDGS AND TARGETS Table 5: United Nations Sustainable Development Goals and Targets, extracted from https://sustainabledevelopment.un.org/post2015/transformingourworld
Goals Targets
1. End poverty in all its forms everywhere.
1.1 By 2030, eradicate extreme poverty for all people everywhere, currently measured as people living on less than $1.25 a day 1.2 By 2030, reduce at least by half the proportion of men, women and children of all ages living in poverty in all its dimensions according to national definitions 1.3 Implement nationally appropriate social protection systems and measures for all, including floors, and by 2030 achieve substantial coverage of the poor and the vulnerable 1.4 By 2030, ensure that all men and women, in particular the poor and the vulnerable, have equal rights to economic resources, as well as access to basic services, ownership and control over land and other forms of property, inheritance, natural resources, appropriate new technology and financial services, including microfinance 1.5 By 2030, build the resilience of the poor and those in vulnerable situations and reduce their exposure and vulnerability to climate‐related extreme events and other economic, social and environmental shocks and disasters 1.a Ensure significant mobilization of resources from a variety of sources, including through enhanced development cooperation, in order to provide adequate and predictable means for developing countries, in particular least developed countries, to implement programmes and policies to end poverty in all its dimensions 1.b Create sound policy frameworks at the national, regional and international levels, based on pro‐poor and gender‐sensitive development strategies, to support accelerated investment in poverty eradication actions
2. End hunger, achieve food security and improved nutrition and promote sustainable agriculture.
2.1 By 2030, end hunger and ensure access by all people, in particular the poor and people in vulnerable situations, including infants, to safe, nutritious and sufficient food all year round 2.2 By 2030, end all forms of malnutrition, including achieving, by 2025, the internationally agreed targets on stunting and wasting in children under 5 years of age, and address the nutritional needs of adolescent girls, pregnant and lactating women and older persons 2.3 By 2030, double the agricultural productivity and incomes of small‐scale food producers, in particular women, indigenous peoples, family farmers, pastoralists and fishers, including through secure and equal access to land, other productive resources and inputs, knowledge, financial services, markets and opportunities for value addition and non‐farm employment 2.4 By 2030, ensure sustainable food production systems and implement resilient agricultural practices that increase productivity and production, that help maintain ecosystems, that strengthen capacity for adaptation to climate change, extreme weather, drought, flooding and other disasters and that progressively improve land and soil quality 2.5 By 2020, maintain the genetic diversity of seeds, cultivated plants and farmed and domesticated animals and their related wild species, including through soundly managed and diversified seed and plant banks at the national, regional and international levels, and promote access to and fair and equitable sharing of benefits arising from the utilization of genetic resources and associated traditional knowledge, as internationally agreed 2.a Increase investment, including through enhanced international cooperation, in rural infrastructure, agricultural research and extension services, technology development and plant and livestock gene banks in order to enhance agricultural productive capacity in developing countries, in particular least developed countries 2.b
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Correct and prevent trade restrictions and distortions in world agricultural markets, including through the parallel elimination of all forms of agricultural export subsidies and all export measures with equivalent effect, in accordance with the mandate of the Doha Development Round 2.c Adopt measures to ensure the proper functioning of food commodity markets and their derivatives and facilitate timely access to market information, including on food reserves, in order to help limit extreme food price volatility
3. Ensure healthy lives and promote well‐being for all at all ages.
3.1 By 2030, reduce the global maternal mortality ratio to less than 70 per 100,000 live births 3.2 By 2030, end preventable deaths of newborns and children under 5 years of age, with all countries aiming to reduce neonatal mortality to at least as low as 12 per 1,000 live births and under‐5 mortality to at least as low as 25 per 1,000 live births 3.3 By 2030, end the epidemics of AIDS, tuberculosis, malaria and neglected tropical diseases and combat hepatitis, water‐borne diseases and other communicable diseases 3.4 By 2030, reduce by one third premature mortality from non‐communicable diseases through prevention and treatment and promote mental health and well‐being 3.5 Strengthen the prevention and treatment of substance abuse, including narcotic drug abuse and harmful use of alcohol 3.6 By 2020, halve the number of global deaths and injuries from road traffic accidents 3.7 By 2030, ensure universal access to sexual and reproductive health‐care services, including for family planning, information and education, and the integration of reproductive health into national strategies and programmes 3.8 Achieve universal health coverage, including financial risk protection, access to quality essential health‐care services and access to safe, effective, quality and affordable essential medicines and vaccines for all 3.9 By 2030, substantially reduce the number of deaths and illnesses from hazardous chemicals and air, water and soil pollution and contamination 3.a Strengthen the implementation of the World Health Organization Framework Convention on Tobacco Control in all countries, as appropriate 3.b Support the research and development of vaccines and medicines for the communicable and non‐communicable diseases that primarily affect developing countries, provide access to affordable essential medicines and vaccines, in accordance with the Doha Declaration on the TRIPS Agreement and Public Health, which affirms the right of developing countries to use to the full the provisions in the Agreement on Trade‐Related Aspects of Intellectual Property Rights regarding flexibilities to protect public health, and, in particular, provide access to medicines for all 3.c Substantially increase health financing and the recruitment, development, training and retention of the health workforce in developing countries, especially in least developed countries and small island developing States 3.d Strengthen the capacity of all countries, in particular developing countries, for early warning, risk reduction and management of national and global health risks
4. Ensure inclusive and equitable quality education and promote lifelong learning opportunities for all.
4.1 By 2030, ensure that all girls and boys complete free, equitable and quality primary and secondary education leading to relevant and effective learning outcomes 4.2 By 2030, ensure that all girls and boys have access to quality early childhood development, care and pre‐primary education so that they are ready for primary education 4.3 By 2030, ensure equal access for all women and men to affordable and quality technical, vocational and tertiary education, including university 4.4 By 2030, substantially increase the number of youth and adults who have relevant skills, including technical and vocational skills, for employment, decent jobs and entrepreneurship
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4.5 By 2030, eliminate gender disparities in education and ensure equal access to all levels of education and vocational training for the vulnerable, including persons with disabilities, indigenous peoples and children in vulnerable situations 4.6 By 2030, ensure that all youth and a substantial proportion of adults, both men and women, achieve literacy and numeracy 4.7 By 2030, ensure that all learners acquire the knowledge and skills needed to promote sustainable development, including, among others, through education for sustainable development and sustainable lifestyles, human rights, gender equality, promotion of a culture of peace and non‐violence, global citizenship and appreciation of cultural diversity and of culture’s contribution to sustainable development 4.a Build and upgrade education facilities that are child, disability and gender sensitive and provide safe, non‐violent, inclusive and effective learning environments for all 4.b By 2020, substantially expand globally the number of scholarships available to developing countries, in particular least developed countries, small island developing States and African countries, for enrolment in higher education, including vocational training and information and communications technology, technical, engineering and scientific programmes, in developed countries and other developing countries 4.c By 2030, substantially increase the supply of qualified teachers, including through international cooperation for teacher training in developing countries, especially least developed countries and small island developing States
5. Achieve gender equality and empower all women and girls.
5.1 End all forms of discrimination against all women and girls everywhere 5.2 Eliminate all forms of violence against all women and girls in the public and private spheres, including trafficking and sexual and other types of exploitation 5.3 Eliminate all harmful practices, such as child, early and forced marriage and female genital mutilation 5.4 Recognize and value unpaid care and domestic work through the provision of public services, infrastructure and social protection policies and the promotion of shared responsibility within the household and the family as nationally appropriate 5.5 Ensure women’s full and effective participation and equal opportunities for leadership at all levels of decision‐making in political, economic and public life 5.6 Ensure universal access to sexual and reproductive health and reproductive rights as agreed in accordance with the Programme of Action of the International Conference on Population and Development and the Beijing Platform for Action and the outcome documents of their review conferences 5.a Undertake reforms to give women equal rights to economic resources, as well as access to ownership and control over land and other forms of property, financial services, inheritance and natural resources, in accordance with national laws 5.b Enhance the use of enabling technology, in particular information and communications technology, to promote the empowerment of women 5.c Adopt and strengthen sound policies and enforceable legislation for the promotion of gender equality and the empowerment of all women and girls at all levels
6. Ensure availability and sustainable management of water and sanitation for all.
6.1 By 2030, achieve universal and equitable access to safe and affordable drinking water for all 6.2 By 2030, achieve access to adequate and equitable sanitation and hygiene for all and end open defecation, paying special attention to the needs of women and girls and those in vulnerable situations 6.3 By 2030, improve water quality by reducing pollution, eliminating dumping and minimizing release of hazardous chemicals and materials, halving the proportion of untreated wastewater and substantially increasing recycling and safe reuse globally 6.4
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By 2030, substantially increase water‐use efficiency across all sectors and ensure sustainable withdrawals and supply of freshwater to address water scarcity and substantially reduce the number of people suffering from water scarcity 6.5 By 2030, implement integrated water resources management at all levels, including through transboundary cooperation as appropriate 6.6 By 2020, protect and restore water‐related ecosystems, including mountains, forests, wetlands, rivers, aquifers and lakes 6.a By 2030, expand international cooperation and capacity‐building support to developing countries in water‐ and sanitation‐related activities and programmes, including water harvesting, desalination, water efficiency, wastewater treatment, recycling and reuse technologies 6.b Support and strengthen the participation of local communities in improving water and sanitation management
7. Ensure access to affordable, reliable, sustainable and modern energy for all.
7.1 By 2030, ensure universal access to affordable, reliable and modern energy services 7.2 By 2030, increase substantially the share of renewable energy in the global energy mix 7.3 By 2030, double the global rate of improvement in energy efficiency 7.a By 2030, enhance international cooperation to facilitate access to clean energy research and technology, including renewable energy, energy efficiency and advanced and cleaner fossil‐fuel technology, and promote investment in energy infrastructure and clean energy technology 7.b By 2030, expand infrastructure and upgrade technology for supplying modern and sustainable energy services for all in developing countries, in particular least developed countries, small island developing States, and land‐locked developing countries, in accordance with their respective programmes of support
8. Promote sustained, inclusive and sustainable economic growth, full and productive employment and decent work for all.
8.1 Sustain per capita economic growth in accordance with national circumstances and, in particular, at least 7 per cent gross domestic product growth per annum in the least developed countries 8.2 Achieve higher levels of economic productivity through diversification, technological upgrading and innovation, including through a focus on high‐value added and labour‐intensive sectors 8.3 Promote development‐oriented policies that support productive activities, decent job creation, entrepreneurship, creativity and innovation, and encourage the formalization and growth of micro‐, small‐ and medium‐sized enterprises, including through access to financial services 8.4 Improve progressively, through 2030, global resource efficiency in consumption and production and endeavour to decouple economic growth from environmental degradation, in accordance with the 10‐year framework of programmes on sustainable consumption and production, with developed countries taking the lead 8.5 By 2030, achieve full and productive employment and decent work for all women and men, including for young people and persons with disabilities, and equal pay for work of equal value 8.6 By 2020, substantially reduce the proportion of youth not in employment, education or training 8.7 Take immediate and effective measures to eradicate forced labour, end modern slavery and human trafficking and secure the prohibition and elimination of the worst forms of child labour, including recruitment and use of child soldiers, and by 2025 end child labour in all its forms 8.8 Protect labour rights and promote safe and secure working environments for all workers, including migrant workers, in particular women migrants, and those in precarious employment 8.9 By 2030, devise and implement policies to promote sustainable tourism that creates jobs and promotes local culture and products 8.10
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Strengthen the capacity of domestic financial institutions to encourage and expand access to banking, insurance and financial services for all 8.a Increase Aid for Trade support for developing countries, in particular least developed countries, including through the Enhanced Integrated Framework for Trade‐Related Technical Assistance to Least Developed Countries 8.b By 2020, develop and operationalize a global strategy for youth employment and implement the Global Jobs Pact of the International Labour Organization
9. Build resilient infrastructure, promote inclusive and sustainable industrialisation and foster innovation.
9.1 Develop quality, reliable, sustainable and resilient infrastructure, including regional and transborder infrastructure, to support economic development and human well‐being, with a focus on affordable and equitable access for all 9.2 Promote inclusive and sustainable industrialization and, by 2030, significantly raise industry’s share of employment and gross domestic product, in line with national circumstances, and double its share in least developed countries 9.3 Increase the access of small‐scale industrial and other enterprises, in particular in developing countries, to financial services, including affordable credit, and their integration into value chains and markets 9.4 By 2030, upgrade infrastructure and retrofit industries to make them sustainable, with increased resource‐use efficiency and greater adoption of clean and environmentally sound technologies and industrial processes, with all countries taking action in accordance with their respective capabilities 9.5 Enhance scientific research, upgrade the technological capabilities of industrial sectors in all countries, in particular developing countries, including, by 2030, encouraging innovation and substantially increasing the number of research and development workers per 1 million people and public and private research and development spending 9.a Facilitate sustainable and resilient infrastructure development in developing countries through enhanced financial, technological and technical support to African countries, least developed countries, landlocked developing countries and small island developing States 9.b Support domestic technology development, research and innovation in developing countries, including by ensuring a conducive policy environment for, inter alia, industrial diversification and value addition to commodities 9.c Significantly increase access to information and communications technology and strive to provide universal and affordable access to the Internet in least developed countries by 2020
10. Reduce inequality within and among countries.
10.1 By 2030, progressively achieve and sustain income growth of the bottom 40 per cent of the population at a rate higher than the national average 10.2 By 2030, empower and promote the social, economic and political inclusion of all, irrespective of age, sex, disability, race, ethnicity, origin, religion or economic or other status 10.3 Ensure equal opportunity and reduce inequalities of outcome, including by eliminating discriminatory laws, policies and practices and promoting appropriate legislation, policies and action in this regard 10.4 Adopt policies, especially fiscal, wage and social protection policies, and progressively achieve greater equality 10.5 Improve the regulation and monitoring of global financial markets and institutions and strengthen the implementation of such regulations 10.6 Ensure enhanced representation and voice for developing countries in decision‐making in global international economic and financial institutions in order to deliver more effective, credible, accountable and legitimate institutions 10.7 Facilitate orderly, safe, regular and responsible migration and mobility of people, including through the implementation of planned and well‐managed migration policies
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10.a Implement the principle of special and differential treatment for developing countries, in particular least developed countries, in accordance with World Trade Organization agreements 10.b Encourage official development assistance and financial flows, including foreign direct investment, to States where the need is greatest, in particular least developed countries, African countries, small island developing States and landlocked developing countries, in accordance with their national plans and programmes 10.c By 2030, reduce to less than 3 per cent the transaction costs of migrant remittances and eliminate remittance corridors with costs higher than 5 per cent
11. Make cities and human settlements inclusive, safe, resilient and sustainable.
11.1 By 2030, ensure access for all to adequate, safe and affordable housing and basic services and upgrade slums 11.2 By 2030, provide access to safe, affordable, accessible and sustainable transport systems for all, improving road safety, notably by expanding public transport, with special attention to the needs of those in vulnerable situations, women, children, persons with disabilities and older persons 11.3 By 2030, enhance inclusive and sustainable urbanization and capacity for participatory, integrated and sustainable human settlement planning and management in all countries 11.4 Strengthen efforts to protect and safeguard the world’s cultural and natural heritage 11.5 By 2030, significantly reduce the number of deaths and the number of people affected and substantially decrease the direct economic losses relative to global gross domestic product caused by disasters, including water‐related disasters, with a focus on protecting the poor and people in vulnerable situations 11.6 By 2030, reduce the adverse per capita environmental impact of cities, including by paying special attention to air quality and municipal and other waste management 11.7 By 2030, provide universal access to safe, inclusive and accessible, green and public spaces, in particular for women and children, older persons and persons with disabilities 11.a Support positive economic, social and environmental links between urban, per‐urban and rural areas by strengthening national and regional development planning 11.b By 2020, substantially increase the number of cities and human settlements adopting and implementing integrated policies and plans towards inclusion, resource efficiency, mitigation and adaptation to climate change, resilience to disasters, and develop and implement, in line with the Sendai Framework for Disaster Risk Reduction 2015‐2030, holistic disaster risk management at all levels 11.c Support least developed countries, including through financial and technical assistance, in building sustainable and resilient buildings utilizing local materials
12. Ensure sustainable consumption and production patterns.
12.1 Implement the 10‐year framework of programmes on sustainable consumption and production, all countries taking action, with developed countries taking the lead, taking into account the development and capabilities of developing countries 12.2 By 2030, achieve the sustainable management and efficient use of natural resources 12.3 By 2030, halve per capita global food waste at the retail and consumer levels and reduce food losses along production and supply chains, including post‐harvest losses 12.4 By 2020, achieve the environmentally sound management of chemicals and all wastes throughout their life cycle, in accordance with agreed international frameworks, and significantly reduce their release to air, water and soil in order to minimize their adverse impacts on human health and the environment 12.5 By 2030, substantially reduce waste generation through prevention, reduction, recycling and reuse 12.6 Encourage companies, especially large and transnational companies, to adopt sustainable practices and to integrate sustainability information into their reporting cycle
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12.7 Promote public procurement practices that are sustainable, in accordance with national policies and priorities 12.8 By 2030, ensure that people everywhere have the relevant information and awareness for sustainable development and lifestyles in harmony with nature 12.a Support developing countries to strengthen their scientific and technological capacity to move towards more sustainable patterns of consumption and production 12.b Develop and implement tools to monitor sustainable development impacts for sustainable tourism that creates jobs and promotes local culture and products 12.c Rationalize inefficient fossil‐fuel subsidies that encourage wasteful consumption by removing market distortions, in accordance with national circumstances, including by restructuring taxation and phasing out those harmful subsidies, where they exist, to reflect their environmental impacts, taking fully into account the specific needs and conditions of developing countries and minimizing the possible adverse impacts on their development in a manner that protects the poor and the affected communities
13. Take urgent action to combat climate change and its impacts.*
13.1 Strengthen resilience and adaptive capacity to climate‐related hazards and natural disasters in all countries 13.2 Integrate climate change measures into national policies, strategies and planning 13.3 Improve education, awareness‐raising and human and institutional capacity on climate change mitigation, adaptation, impact reduction and early warning 13.a Implement the commitment undertaken by developed‐country parties to the United Nations Framework Convention on Climate Change to a goal of mobilizing jointly $100 billion annually by 2020 from all sources to address the needs of developing countries in the context of meaningful mitigation actions and transparency on implementation and fully operationalize the Green Climate Fund through its capitalization as soon as possible 13.b Promote mechanisms for raising capacity for effective climate change‐related planning and management in least developed countries and small island developing States, including focusing on women, youth and local and marginalized communities * Acknowledging that the United Nations Framework Convention on Climate Change is the primary international, intergovernmental forum for negotiating the global response to climate change.
14. Conserve and sustainably use the oceans, seas and marine resources for sustainable development.
14.1 By 2025, prevent and significantly reduce marine pollution of all kinds, in particular from land‐based activities, including marine debris and nutrient pollution 14.2 By 2020, sustainably manage and protect marine and coastal ecosystems to avoid significant adverse impacts, including by strengthening their resilience, and take action for their restoration in order to achieve healthy and productive oceans 14.3 Minimize and address the impacts of ocean acidification, including through enhanced scientific cooperation at all levels 14.4 By 2020, effectively regulate harvesting and end overfishing, illegal, unreported and unregulated fishing and destructive fishing practices and implement science‐based management plans, in order to restore fish stocks in the shortest time feasible, at least to levels that can produce maximum sustainable yield as determined by their biological characteristics 14.5 By 2020, conserve at least 10 per cent of coastal and marine areas, consistent with national and international law and based on the best available scientific information 14.6 By 2020, prohibit certain forms of fisheries subsidies which contribute to overcapacity and overfishing, eliminate subsidies that contribute to illegal, unreported and unregulated fishing and refrain from introducing new such subsidies, recognizing that appropriate and effective special and differential treatment for developing and least developed countries should be an integral part of the World Trade Organization fisheries subsidies negotiation
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14.7 By 2030, increase the economic benefits to Small Island developing States and least developed countries from the sustainable use of marine resources, including through sustainable management of fisheries, aquaculture and tourism 14.a Increase scientific knowledge, develop research capacity and transfer marine technology, taking into account the Intergovernmental Oceanographic Commission Criteria and Guidelines on the Transfer of Marine Technology, in order to improve ocean health and to enhance the contribution of marine biodiversity to the development of developing countries, in particular small island developing States and least developed countries 14.b Provide access for small‐scale artisanal fishers to marine resources and markets 14.c Enhance the conservation and sustainable use of oceans and their resources by implementing international law as reflected in UNCLOS, which provides the legal framework for the conservation and sustainable use of oceans and their resources, as recalled in paragraph 158 of The Future We Want
15. Protect, restore and promote sustainable use of terrestrial ecosystems, sustainably manage forests, combat desertification and halt and reverse land degradation, and halt biodiversity loss.
15.1 By 2020, ensure the conservation, restoration and sustainable use of terrestrial and inland freshwater ecosystems and their services, in particular forests, wetlands, mountains and drylands, in line with obligations under international agreements 15.2 By 2020, promote the implementation of sustainable management of all types of forests, halt deforestation, restore degraded forests and substantially increase afforestation and reforestation globally 15.3 By 2030, combat desertification, restore degraded land and soil, including land affected by desertification, drought and floods, and strive to achieve a land degradation‐neutral world 15.4 By 2030, ensure the conservation of mountain ecosystems, including their biodiversity, in order to enhance their capacity to provide benefits that are essential for sustainable development 15.5 Take urgent and significant action to reduce the degradation of natural habitats, halt the loss of biodiversity and, by 2020, protect and prevent the extinction of threatened species 15.6 Promote fair and equitable sharing of the benefits arising from the utilization of genetic resources and promote appropriate access to such resources, as internationally agreed 15.7 Take urgent action to end poaching and trafficking of protected species of flora and fauna and address both demand and supply of illegal wildlife products 15.8 By 2020, introduce measures to prevent the introduction and significantly reduce the impact of invasive alien species on land and water ecosystems and control or eradicate the priority species 15.9 By 2020, integrate ecosystem and biodiversity values into national and local planning, development processes, poverty reduction strategies and accounts 15.a Mobilize and significantly increase financial resources from all sources to conserve and sustainably use biodiversity and ecosystems 15.b Mobilize significant resources from all sources and at all levels to finance sustainable forest management and provide adequate incentives to developing countries to advance such management, including for conservation and reforestation 15.c Enhance global support for efforts to combat poaching and trafficking of protected species, including by increasing the capacity of local communities to pursue sustainable livelihood opportunities
16. Promote peaceful and inclusive societies for sustainable development, provide access to justice or all and
16.1 Significantly reduce all forms of violence and related death rates everywhere 16.2 End abuse, exploitation, trafficking and all forms of violence against and torture of children 16.3 Promote the rule of law at the national and international levels and ensure equal access to justice for all 16.4
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build effective, accountable and inclusive institutions at all levels.
By 2030, significantly reduce illicit financial and arms flows, strengthen the recovery and return of stolen assets and combat all forms of organized crime 16.5 Substantially reduce corruption and bribery in all their forms 16.6 Develop effective, accountable and transparent institutions at all levels 16.7 Ensure responsive, inclusive, participatory and representative decision‐making at all levels 16.8 Broaden and strengthen the participation of developing countries in the institutions of global governance 16.9 By 2030, provide legal identity for all, including birth registration 16.10 Ensure public access to information and protect fundamental freedoms, in accordance with national legislation and international agreements 16.a Strengthen relevant national institutions, including through international cooperation, for building capacity at all levels, in particular in developing countries, to prevent violence and combat terrorism and crime 16.b Promote and enforce non‐discriminatory laws and policies for sustainable development
17. Strengthen the means of implementation revitalise the global partnership for sustainable development.
Finance 17.1 Strengthen domestic resource mobilization, including through international support to developing countries, to improve domestic capacity for tax and other revenue collection 17.2 Developed countries to implement fully their official development assistance commitments, including the commitment by many developed countries to achieve the target of 0.7 per cent of ODA/GNI to developing countries and 0.15 to 0.20 per cent of ODA/GNI to least developed countries; ODA providers are encouraged to consider setting a target to provide at least 0.20 per cent of ODA/GNI to least developed countries 17.3 Mobilize additional financial resources for developing countries from multiple sources 17.4 Assist developing countries in attaining long‐term debt sustainability through coordinated policies aimed at fostering debt financing, debt relief and debt restructuring, as appropriate, and address the external debt of highly indebted poor countries to reduce debt distress 17.5 Adopt and implement investment promotion regimes for least developed countries Technology 17.6 Enhance North‐South, South‐South and triangular regional and international cooperation on and access to science, technology and innovation and enhance knowledge sharing on mutually agreed terms, including through improved coordination among existing mechanisms, in particular at the United Nations level, and through a global technology facilitation mechanism 17.7 Promote the development, transfer, dissemination and diffusion of environmentally sound technologies to developing countries on favourable terms, including on concessional and preferential terms, as mutually agreed 17.8 Fully operationalize the technology bank and science, technology and innovation capacity‐building mechanism for least developed countries by 2017 and enhance the use of enabling technology, in particular information and communications technology Capacity‐Building 17.9 Enhance international support for implementing effective and targeted capacity‐building in developing countries to support national plans to implement all the sustainable development goals, including through North‐South, South‐South and triangular cooperation Trade 17.10 Promote a universal, rules‐based, open, non‐discriminatory and equitable multilateral trading system under the World Trade Organization, including through the conclusion of negotiations under its Doha Development Agenda 17.11
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Significantly increase the exports of developing countries, in particular with a view to doubling the least developed countries’ share of global exports by 2020 17.12 Realize timely implementation of duty‐free and quota‐free market access on a lasting basis for all least developed countries, consistent with World Trade Organization decisions, including by ensuring that preferential rules of origin applicable to imports from least developed countries are transparent and simple, and contribute to facilitating market access Systemic issues Policy and Institutional coherence 17.13 Enhance global macroeconomic stability, including through policy coordination and policy coherence 17.14 Enhance policy coherence for sustainable development 17.15 Respect each country’s policy space and leadership to establish and implement policies for poverty eradication and sustainable development Multi‐stakeholder partnerships 17.16 Enhance the global partnership for sustainable development, complemented by multi‐stakeholder partnerships that mobilize and share knowledge, expertise, technology and financial resources, to support the achievement of the sustainable development goals in all countries, in particular developing countries 17.17 Encourage and promote effective public, public‐private and civil society partnerships, building on the experience and resourcing strategies of partnerships Data, monitoring and accountability 17.18 By 2020, enhance capacity‐building support to developing countries, including for least developed countries and small island developing States, to increase significantly the availability of high‐quality, timely and reliable data disaggregated by income, gender, age, race, ethnicity, migratory status, disability, geographic location and other characteristics relevant in national contexts 17.19 By 2030, build on existing initiatives to develop measurements of progress on sustainable development that complement gross domestic product, and support statistical capacity‐building in developing countries