Jamie:
Again, the local rule designation of "waste area" is a relatively new wrinkle in golf and the rules (the local rules of some golf COURSES and consequently used by Tournament Committees within their "Conditions of Competition"). As far as I know a "waste area" is only a "local rule" of a golf COURSE and not yet found within the USGA/R&A Rules of Golf. As such, and at this time “waste area” may fall very much into a gray area in the Rules of Golf.
If it does, and I think it does, it would relate to the USGA/R&A Rules of Golf something like this at the present time;
Rule 33-8 Local Rules
A. Policy
The Committee may establish Local Rules for local abnormal conditions if they are consistent with the policy set forth in Appendix I.
What is Appendix I? It’s that section of the USGA/R&A Rules of Golf that deals with local rules, specimen local rules and the “Conditions of Competition”. These “Local Rules” and “Specimen Local Rules” and “Conditions of Competition” could be looked at as situations which are evolving into golf generally or tournament golf. The “One Ball Rule” is such a “Local Rule” as is the “Embedded Ball Rule”. The “One Ball Rule” will always remain in the Appendix I section for the obvious reason that it’s only recommended for use in competitions involving expert players and not in golf generally. However, the “Embedded Ball” local Rule is becoming so widely used that I’d expect before long it will make its way from the Appendix I section into the regular Rules of Golf, perhaps under Rule 13. A “local Rule” to be used in a competition must be on the “Conditions of Competition” or technically it can’t be enforced by the tournament committee under the “Conditions of Competition”.
Also under Rule 33, which is the Rule involving “The Committee” and is under the general heading “Administration” with Rule 34 (Disputes and Decisions) is Rule 33-1.
Rule 33-1 Conditions; Waiving Rule
The Committee must establish the conditions under which the competition is to be played.
The Committee has no power to waive a Rule of Golf.
The Definition of “Loose Impediments” does not include sand unless it’s on the putting green. So in a “Through the Green” area which that “waste area” Cink was in is a player would not be able to remove any sand, in my opinion, other than in fairly taking his stance or in making a stroke including during his backswing if the stroke is made. Dec. 13-2/9 is very clear on this so presumably any action regarding removing sand other than during those two permitted actions above would be a violation of Rule 13-2 which specifically prohibits that kind of thing in Rule 13-2 when it says;
“creating or eliminating irregularities of surface”
“removing or pressing down sand, loose soil, replaced divots or other cut turf placed in position”
It would be permissible though for Cink to ground his club lightly on the sand in the "waste area" in taking his stance and in preparatory for making his stroke. This is no different than that ruling the other day with Sutherland when a rules official told Sutherland he would not be able to ground his club on a sand filed divot in the fairway. That official was wrong, and later admitted it.
But, as you say, all this “waste area” local COURSE rule stuff just complicates things as the designation (“Waste Area”) is not in the regular rules of golf that I’m aware of, and contradicts and probably violates, and if not at the very least certainly complicates some of the rule wording that's in the regular rules of golf. I’d expect at some point soon the Joint Rules Committee of the USGA/R&A will get on this issue and define "waste area" either in the Rules or in some decision or Local Rule in Appendix I.