Hong Kong has long been suffering from the serious municipal solid waste (MSW) problem due to its growing prosperity and population. In 2009, the total MSW produced in Hong Kong even reached to the high level of 6.5 million tonnes. The three strategic landfills which are used exclusively for accommodating the MSW are running out of space. If the amount of MSW generated continues to grow, it will spawn numerous negative effects to the long-term development of Hong Kong. In this paper, we will investigate the general situation of MSW in Hong Kong and discuss the existing policy adopted by the government in MSW reduction. It is found that the two main strategies, which are promoting source separation programmes and implementing producer responsibility schemes, have obtained limited achievement so far. We then review the model of Taiwan where has a more aggressive and comprehensive MSW reduction policy. Considering the successful experience of Taiwan, we recommend the Environmental Protection Department of Hong Kong to make the source separation programmes mandatory and launch the 'per-bag food waste collection fee' to solve the prolonged MSW problem.
Introduction
Early this year, in 2010, the project of extending the North East New Territories (NENT) landfill encountered vigorous resistance from the nearby residents during its consultation period. Not until the protest was widely reported by the local media did the shocking fact get the public attention it deserved five years ago: the three strategic landfills which are used to accommodate the municipal solid waste (MSW) are going to be full in 2015. Those landfills are supposed to last until 2020. However, the growth of total MSW in Hong Kong is much higher than expected. In this paper, we present findings in an attempt to review the MSW problem, examine the current policy adopted by the Hong Kong and Taiwan government, and analyse their effectiveness. Following the findings, conclusion is drawn and three recommendations are made to tackle the problem.
Overview
MSW grows inevitably over time with urbanisation in every city around the world. However, the case in Hong Kong is abnormal. The annual total MSW generated in Hong Kong shows no sign to drop, reaching to the high level of 6.5 million tonnes in 2009. As early in 2000, the 'Report on Progress with Protection against Environmental Pollution' already showed the worrying trend of MSW generated from 1989 to 2010 in Hong Kong.
Graph 1. Trend of MSW Generated (1989 - 2010)
Source: http://www.epd.gov.hk/epd/english/resources_pub/policy/files/e-report.pdf
One of the main points of the MSW problem in Hong Kong is that the MSW generated is growing faster than the population increased. According to the statistic released by Friends of the Earth, from 1998 to 2008, the growth rate of MSW (8.3%) is 1.5% higher than that of population (6.8%), meaning each individual is producing more MSW each year.
Another main point of the MSW problem in Hong Kong is the unsatisfactory MSW recovery rate, which leads to the enormous amount of recyclable MSW disposed of at landfills. When comparing with the other three advanced economies in Asia, Singapore, Taipei and Seoul, the MSW recovery rate of Hong Kong has long ranked at the bottom. See the following table:
Table 1. Comparison of MSW recovery rate between the four Asian cities in 2007
Place
Hong Kong
Singapore
Taipei
Seoul
MSW recovery rate
45%
54%
61%
64%
Source: http://www.legco.gov.hk/yr08-09/english/pac/reports/51/app_30.pdf
If the prolonged MSW problem stays unrelieved, it will spawn numerous negative effects, threatening the long-term development of Hong Kong. For example, hectares of precious and beautiful green land have to be sacrificed to accommodate the excessive MSW. The construction and maintenance of new landfills will also create greater burden on public funds. Most importantly, if the landfills are not managed properly, bad smell and leachate will be generated, causing harm to the public health and environment.
Existing Policy and Effectiveness
In view of the deteriorating MSW problem in the new millennium, the Hong Kong Government announced the 'A Policy Framework for the Management of Municipal Solid Waste (2005-2014)' (the Policy Framework) in December 2005. It outlines two main strategies to reduce and recover MSW in the domestic, business and industrial sectors. They are promoting source separation programmes and introducing producer responsibility schemes (PRS).
Source Separation of MSW Programmes
For the domestic sector, the Environmental Protection Department (EPD) amended the Buildings Ordinance (Cap. 123), which now makes the provision of refuse storage and material recovery room on every floor mandatory in every new domestic buildings and composite buildings. Source Separation of Domestic Waste programme has also been implemented at certain housing estates since 2005. However, there is only about 67% of population enrolled in the programme up to the end of 2009, which is still 13% lower than the goal set in the Policy Framework.
For the business and industrial sectors, the EPD organised Source of Commercial and Industrial Waste programme in October 2007 which encourages the management offices of the participating buildings to install waste separation and recycling facilities, and to record the recovery rate. Unfortunately, this programme is not actively supported by the sectors. Given by the P.A.C. Report No. 51, only 40% of the participants provided the quarterly returns in 2008.
Producer Responsibility Schemes
The first mandatory PRS, Environmental Levy Scheme on Plastic Shopping Bags (the Levy Scheme), was launched in July 2009. Its objective is to reduce the reliance on plastic shopping bags among the public. Customers will be charged $0.5 for every plastic bag they ask for. Under the Levy Scheme, the number of shopping bags distributed has dramatically reduced by 90% in the first year. It seems that the government has gained initial success. However, after reviewing the reports of 'Waste Statistics for Monitoring Solid Waste in Hong Kong' in the past decade, it is found that the largest component in the composition of MSW in Hong Kong is food waste. For example, in 2009, food waste occupied 41% of the total MSW generated, while plastic bags only took up 8.5%. Regulating the use of plastic bags through the levy scheme causes little influence in reducing the overall amount of MSW.
Under the principle of PRS, the government has also implemented four voluntary recycling programmes to date in the corresponding trades, which are the Computer Recycling Programme, the Fluorescent Lamp Recycling Programmes, the Glass Container Recycling Programme for the Hotel Sector and Rechargeable Battery Recycling Programme. Nevertheless, as mentioned, participation in these PRSs is not compulsory. When comparing with the other developed Asian cities like Taiwan, Singapore, Japan and Seoul where comprehensive mandatory PRSs were already introduced, most PRS in Hong Kong are still mainly relies on voluntary participation. The progress of developing mandatory PRSs in Hong Kong is very slow and far behind the Asian trend.
Broadly speaking, the current policies of promoting Source Separation of MSW Programmes and Producer Responsibility Schemes have limited achievement in reducing the total MSW. In the Policy Framework, the government set a target of "reducing the amount of MSW generated in Hong Kong by 1% per annum up to the year 2014". However, as shown by the following Table 2, the target was not fulfilled every year.
Table 2. Percentage increased in the amount of MSW generated in that year comparing with that of previous year
Year
2006
2007
2008
2009
% increased
10.1
0.3
5.6
-1.5
The amount of MSW generated was not decreased by 1% as stated but increased every year during 2006 to 2008. Though there was finally a drop in 2009, the degree of reduction is much smaller than that of increase in the years before. These figures act as concrete evidence that the existing primary policies fail to reduce MSW at source in a very large extent.
Model of Municipal Solid Waste Reduction Policy in Taiwan
In contrast to Hong Kong, many neighbouring advanced countries and cities have showed a much aggressive attitude to reduce and recycle MSW, such as Japan, South Korea and Taiwan. Considering the similarity in lifestyle under the influence of Chinese culture, the relevant MSW reduction policy adopted in Taiwan especially serves as a good example for Hong Kong to tackle the problem.
To reduce MSW at source, the Taiwan government first made a comprehensive producer responsibility scheme of "per-bag trash collection fee" into mandatory in 2001. Under this levy scheme, citizens are required to purchase government-issued trash bags at convenience stores. Only the approved bags will be accepted by the local trash collection team. As such, the more household waste citizens generated, the more they have to pay for compensation.
To enhance the recovery rate of MSW, the Taiwan government launched a state-wide mandatory garbage separation programme in 2006. The public needs to separate their waste into three categories: recyclable, food waste and other general refuse. Otherwise, they have to pay a penalty of NT$1,200.
Though the above policy caused chaos on the society at the early stage of implementation, they provided great economic incentives for the public to join the reduction and recovery campaign. Given by the Environmental Protection Administration Executive Yuan, the daily MSW generated per capita in Taiwan dropped nearly 50% between 2001 and 2009. The successful case in Taiwan sets up a perfect model for the Hong Kong Government.
Conclusion
The above findings clearly indicate that the ineffectiveness of the current environmental policies on MSW reduction and recovery in Hong Kong is partly due to the voluntary participation in source separation programmes. Therefore, limited percentage increased in recovery rate is recorded. Our research also shows that food waste occupies the largest component of the total MSW. However, the government enacted the first PRS on regulating shopping bags instead of food waste. Besides, the operation of most PRSs largely relies on voluntary participation. The progress of developing mandatory PRSs in Hong Kong is still far behind than those of the advanced nations in Asia. In order to catch up the standard and solving the MSW problem more efficiently, Hong Kong should learn from the experience in Taiwan.
Recommendations
Since the participation rate in source separation programmes is generally low, the Environmental Protection Department (EPD) should turn those programmes into mandatory like Taiwan. We believe with the help from the public in separating the MSW at source, more recyclable MSW can be defined and then recovered before ending up at the landfills.
Given the lack of producer responsibility scheme on regulating food waste, we recommend the "per-bag food waste collection" be launched in Hong Kong from the experience of Taiwan. This scheme aims to provide economic incentive to reduce food waste production in domestic and business sectors.
In view of the slow progress of developing mandatory producer responsibility schemes, we suggest the government shortening the legislative procedures and investigation time in enacting related schemes. The promised levy schemes on drink container, packaging paper and rechargeable battery should be put into practice before 2012.
