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Urban waste recycling in Taiwan
resources, conservation andrecycling Resources,
Conservation
and Recycling
13 (1995)
15-26
Urban waste recycling in Taiwan Gordon C.C. Yang * Insritute of Environmental
Engineering, National Sun Yar-Sen University, Kaohsiung, Taiwan, ROC Accepted
17 January 1994
Abstract The urban waste recycling program in Taiwan is discussed. During the past few years, the quantity of urban waste generated in Taiwan has greatly increased, about 8-10% per year. Approx., 50 wt.% or more of the waste items in urban waste are found to be valuable and worth recycling. Recycling is of much significance to Taiwan because of a lack of natural resources. Hence, ROC EPA has made many efforts to promote an urban waste recycling program, called the ’‘Hsi-Fu Recycling Project”. (This project now has a new name called “Urban Waste Recovery and Its Monitoring Project”.) The legal backing of this recycling project is Article 10.1 of the “(Solid) Waste Disposal Act”, which was revised and promulgated in November 1988. “The product life cycle cost” and “beneficiary pays and polluter pays” are the two important basic concepts incorporated in this Article. Through the promotion of the ‘‘Hsi-Fu Recycling Project”, these two fundamental concepts are being practiced in Taiwan for some items in urban waste. Currently, only ten out of the 17 waste items under the “Hsi-Fu Recycling Project” are regulated by ROC EPA. While this waste recycling project is in progress, many problems have occurred. These problems have caused many impacts on the public, industries, and government authorities. To proclaim a great success in this waste recycling project, these problems must first be solved. Keywords: Urban waste; Municipal solid waste; Taiwan; Recycling
1. Introduction Recently, pollution prevention has become the preferred waste management strategy rather than pollution control. Pollution control strategies through waste treatment and disposal (collectively, referred to as ‘end-of-the-pipe’ treatment) technologies have improved our environmental quality to some extent. However, they cause secondary pollution problems and are not cost-effective. Pollution prevention through source reduction and recycling may lower the extent of hazards imposed on the environment and human health. In addition, * Corresponding
author.
0921-3449/95/$09.50 0 1995 Elsevier Science B.V. All rights reserved SSDIO921-3449(94)00009-T
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G.C.C. Yang /Resources,
Conservation and Recycling 13 (1995) 15-26
source reduction of waste can lower waste treatment costs and recycling can conserve natural resources. Therefore, ‘pollution prevention pays’ or, more precisely, ‘waste minimization pays’ in this paper. Source reduction and recycling are important to both industrial and urban waste management. In this work, only recycling of urban waste in Taiwan is discussed. For convenience, the terms ‘urban waste’ and ‘municipal solid waste’ are to be treated or used interchangeably hereinafter in this report. The quantity of municipal solid waste (MSW) generated in Taiwan has greatly increased during the past decade. In 1990, the amount of MSW generated was 18 750 metric tons per day, which represents an increase of 115% in 10 years since 1980 [ 11. A 10% increase of MSW quantity for 1992 compared with that of 1991 was reported [2]. On a per capita basis, the MSW generation rates were 0.78, 0.82 and 1.0 kg per day in 1987, 1988 and 1991, respectively [ 1,3]. It was estimated that 1.09 kg/day per capita of MSW was generated in 1992 in the Taiwan area; 1.28 kg/day per capita in Taipei City; and 1.13 kg/day per capita in Kaohsiung City [ 21. During the period 1980 to 1990, the amount of recoverable materials in MSW has substantially increased as well. For example, paper in MSW increased from 23% to 32%; plastics from 11% to 20%; and metals from 5% to 7% [ 11. According to a recent report [4], the following useful materials were found in Taiwan’s MSW: ( I ) paper, 21.88-26.24%; (2) plastics, 19.72-22.79%; (3) rubber, 0.1 l-1.37%; (4) glass, 4.82-6.22%; and (5) metals, 7.12-8.08%. These five waste items totaled over 55% of MSW by weight. Thus, if a recycling program for MSW is well conducted, it not only could potentially recover, reuse, and/or regenerate useful resources but also could reduce the amount of waste to be disposed of.
2. Fundamental 2.1. Fundamental
concepts and legal basis for waste recycling concepts for waste recycling
The ‘product life cycle cost’ concept is the fundamental basis for waste recycling programs and regulations in Taiwan [ 31. The product life cycle cost theory described in this paper is derived from an environmental protection perspective. It is broader than the socalled product life cycle cost from a marketing viewpoint. The latter views the product life cycle as the market growth cycle of a product from development, promotion, growth, and saturation to decline. However, from the standpoint of environmental protection, the aforementioned concepts should be expanded to include the ultimate disposal of a product. In other words, the product life cycle is the cycle of a product’s whole life. It should include all stages from production to ultimate disposal of a product, i.e., every stage from cradle to grave inclusively. Therefore, the product life cycle cost should at least include the following costs: ( 1) R and D, (2) design, (3) manufacture, (4) marketing, (5) maintenance, and (6) disposal. The cost of disposal includes costs for recycling, other treatment(s), and ultimate disposal of a product. From the viewpoint of the zero base (unimpaired) environment, it is also evident that the disposal cost should be included in the product life cycle cost. Before the development and manufacture of a product, neither the product nor its waste exists in the natural envi-
G.C.C. Yang/Resources,
Conservation and Recycling 13 (199s) IS-26
17
ronment. This phenomenon is called the zero base environment [ 31. Once the consumer product is introduced to the natural environment, it will cause some degree of impact on the environment. If it is desired to reattain the zero base environment, someone has to pay for the costs of waste treatment and disposal. However, who should be responsible for the treatment/disposal costs? If the manufacturers and/or importers, and retailers do not pay for the costs of treatment/disposal, those costs would be borne by government authorities, and in turn, by taxpayers. Thus, while businesses profit from the production and retail of products, society carries the burden for the costs of their disposal. From the environmental protection’s viewpoint, it would represent an inequitable distribution of costs to the public. Due to the increasing demands of environmental protection, from now on, businesses must include expenses caused by the use and disposal of a product among overall costs. Therefore, the principle of equitably distributing liability for environmental costs has led to the current internalization of manufacturers’ social costs and the notion of ‘the polluter pays’. ‘Beneficiary pays and polluter pays’ is another concept that is imposed via waste recycling regulations upon the system in Taiwan. For example, tires are used for all kinds of transportation purposes for which there is a public benefit. Once the tires become waste, users and polluters should be responsible for the treatment/disposal costs. This concept is now being practiced in Taiwan for waste tires [ 51. Presently, a waste tire processing fee (depending on the size of tire) is charged to the buyer (user) when a new tire is purchased [ 5,6]. 2.2. Legal basis of the regulations for waste recycling In Taiwan the law governing the collection, recycling, treatment, and ultimate disposal of solid wastes is the “(Solid) Waste Disposal Act”. The Act was revised and promulgated in November 1988. This Act is also the legal basis of Taiwan’s various regulations for recycling of useful materials that would always be found within urban waste. Article 10.1 of the “(Solid) Waste Disposal Act” of 1988 states what kinds of waste should be recycled or properly disposed of, and who should be responsible for doing so. According to this Article, if an item or its packaging/container meets any of the following characteristics, the manufacturers and/or importers, and retailers are responsible for the collection, recycling, and disposal of the waste: 1. It is difficult to collect and dispose of once it becomes refuse. 2. It has non-biodegradable content(s) . 3. It contains hazardous constituent(s) . This Article provides the legal backing for ROC Environmental Protection Administration (ROC EPA) to promote 17 plans for waste recycling and related activities (known as “HsiFu Recycling Project”). Based on the same Article, ROC EPA has promulgated respective regulations for each of ten waste items out of 17 thus far. As a consequence, the concepts of ‘product life cycle cost’ and ‘beneficiary pays and polluter pays’ are realized and put into practice in Taiwan. 3. Hsi-Fu recycling project and its management
system
3.1. Hsi-Fu Recycling Project Due to a lack of natural resources, Taiwan is a country that needs desperately a good waste recycling program to conserve natural resources otherwise disposed in the refuse.
18
Table 1 Annual generation
G.C.C. Yang/ Resources, Conservation and Recycling 13 (1995) IS-26
rates of 17 waste items under the “Hsi-Fu Recycling Project”
[7]
Waste item
Annual quantity generated in Taiwan ( 1990)
1. PET bottles 2. Tires 3. Lubricant oils 4. Iron cans 5. Aluminum cans 6. Lead-acid batteries 7. Mercury cell batteries 8, Pesticide containers 9. Containers for environmental sanitation chemicals 10. Fluorescent light tubes 11. Paper 12. Aluminum foil packaged containers 13. Glass bottles 14. cars 15. Motorcycles 16. Paper containers/cartons 17. Plastics
260 million pcs. 60000MT 34 million gal. 1.3 billion pcs. 1 billion PCS. 1OOOOOMT 3177 MT 18 million PCS. 23 million PCS. 30 million pcs. 3 million MT 1.5 billion PCS. 140 000 MT 110 000 units 540 000 units ? 1 million MT
Accompanied by the rapid increase of economic activity, the amount of urban waste that is discarded every day is increasing and become more varied. In general, urban waste contains many valuable waste materials that can be reused or recycled. Hence, it is particularly wasteful to throw away useful materials as if they were common rubbish. Because there is a need to cherish and make sparing use of those valuable materials, ROC EPA has to start to promote the so-called “Hsi-Fu Recycling Project”. (In Chinese, “Hsi-Fu” means to make sparing use of one’s wealth or valuables.) The main purpose of this waste recycling program is to bring about waste reduction through recycling of the valuable natural resources in urban waste. In 1991, the name of the ‘‘Hsi-Fu Recycling Project” was officially changed to “Urban Waste Recovery and Its Monitoring Project” by ROC EPA (Y.C. Lee-Wang, personal communication), However, this project is still known as the ‘‘Hsi-Fu Recycling Project” to the public. Therefore, the original name of “Hsi-Fu Recycling Project” will be used hereinafter for convenience. In accordance with the classifications in the “(Solid) Waste Disposal Act”, and in view of what the public is used to, and the need to maintain good hygiene, ROC EPA has planned to regulate and recycle 17 waste items in MSW. Table 1 lists the estimated generation rates in 1990 for the 17 waste items included in the “Hsi-Fu Recycling Project” [7]. 3.2. Establishment of a waste recycling system According to the concept of product life cycle cost and Article 10.1 of the “(Solid) ,Waste Disposal Act”, it is the responsibility of the industries to do the cleanup and disposal work for postconsumer products. Ideally, there is a trademark on each postconsumer product for identification. However, it is commonplace to find that the brands of products become indistinguishable after products are used and discarded. Thus, it is difficult to identify who
G.C.C. Yang/Resources,
Table 2 Official announcement dates for recovery “Hsi-Fu Recycling Project” [ 1]
Conservation and Recycling 13 (1995) 15-26
and promulgation
dates of regulations
to
19
for ten waste items under the
Waste item
Date of official announcement recover
PET bottles Tires Containers for environmental sanitation chemicals Pesticide containers Iron cans Aluminum cans Lubricant oils Lead-acid batteries Mercury cell batteries Styrofoam containers
1-31-89 6-24-89 8-8-89
6-26-89 9-20-89 8-20-90
10-18-89 12-21-89 12-21-89 l-22-90 4-24-90 5-31-90 7-11-91
9-21-90 8-3 l-90 8-31-90 5-25-90 8-31-90 8-31-90 8-30-91
Promulgation
date of regulations
should be responsible for the disposal of that particular product. Perhaps it is a good idea to unite the production, import, and marketing industries and have them establish a foundation of their own. In so doing, various industries in the same foundation can negotiate the degree of responsibility they are accountable for. They may decide to submit a certain sum for deposit fees and processing fees upon the product’s manufacture, importation, and/or distribution. Depending on the characteristics of each postconsumer product, they may also decide what recycling channel(s) to be used.
3.3. Management
system for Hsi-Fu Recycling Project
The current management system for waste recycling is based on various regulations for recovery and disposal of waste items included in the ‘‘Hsi-Fu Recycling Project.” To date, ROC EPA has selected 13 waste items in MSW and announced that these waste items should be recovered to more efficiently dispose of MSW. Of these, only ten are currently In other words, regulated by the EPA ( [ 41, Y.C. Lee-Wang, personal communication). regulations for the remaining three waste items have not been promulgated by the EPA yet. The ten presently regulated waste items are polyethylene terephthalate (PET) bottles, tires, iron cans, aluminum cans, mercury cell batteries, pesticide containers, lead-acid batteries, lubricant oils, containers for environmental sanitation chemicals, and Styrofoam containers. Tables 2 and 3 present information regarding the date of promulgation of regulations, required recovery rate, achieved recovery rate, etc., for each of the ten regulated waste items ( [ 11, Y .C. Lee-Wang, personal communication). The following are the key principles underlain in the current management system for waste recycling in Taiwan [ 1 ] : 1. Manufacturers, importers, and retailers must register at a local Environmental Protection Bureau and file necessary documents, which will be forwarded to the central EPA (i.e., ROC EPA) for reference.
20
Table 3 Announced Project”
G.C.C. Yang/Resources,
recovery rate requirements
Waste item
Conservation and Recycling 13 (1995) 15-26
and their achievements
for ten waste items under the “Hsi-Fu Recycling
Announced recovery rate requirement ( W)
Time period good for the required recovery rate
Achieved recovery rate
PET bottles
50
6-26-89 to 6-25-90 6-26-90 to 6-25-91 6-26-91 to 6-25-92 6-26-92 to 6-25-93 10-l-90 to 9-30-91 lo-l-91 to 9-30-92 lo-l-92 to 9-30-93 7-1-91 to 6-30-92
33.5 26.1 41.07
Tires
50 55 60 50 70 80 50
Containers for environmental sanitation chemicals Pesticide containers Iron cans
Aluminum
cans
Lubricant oils Lead-acid batteries Mercury cell batteries
Styrofoam containers
60 20 55 20 55 60 30 55 60 ? 30 50 5 30 40 50
7-l-92 4-1-91 4-l-92 1-1-91 l-l-92 l-l-93 1-1-91 l-l-92 l-l-93
to to to to to to to to to
6-30-93 3-31-92 3-31-93 12-31-91 12-31-92 12-31-93 12-31-91 12-31-92 12-31-93
7-l-9 1 to 7- 1-92 to 1-1-91 to l-l-92 to l-l-93 to 9-l-92 to
6-30-92 6-30-93 12-31-91 12-31-92 12-31-93 8-31-93
(%)
60.4 70 30
20.73 21.4
31.8
34.54 5.4
2.
The relevant industries are responsible for the recovery and disposal of that specific waste item. The cleanup job can be done by the industries themselves or by any licensed public or private waste collection and disposal agency. 3. The relevant industries must fulfill the requirement of the minimum annual recovery rate promulgated by the central EPA for that specific waste item. 4. The relevant industries may unite to establish a foundation in order that recovery and disposal of that particular waste item will be done properly. 5. The central EPA may organize a supervising committee to oversee the operation of each specific foundation. Taken as a whole, the management system for waste recycling currently employed in Taiwan can be divided into two parts: ( 1) relevant industries are responsible for recovery and disposal of postconsumer goods, and (2) government authorities are responsible for promulgating regulations and supervising whether the recovery rate requirements are fulfilled and whether the ultimate disposal of each waste item is done properly. 4. Current waste recycling activities and encountered problems The “Hsi-Fu Recycling Project” promoted by ROC EPA is generally considered successful from day to day, but many problems need to be solved. The following paragraphs
G. C.C. Yang/Resources,
Conservation and Recycling 13 (1995) 15-26
21
will present a brief description of current waste recycling activities for each regulated waste item. The problems resulting from the promotion of this waste recycling project will also be discussed later in a different manner.
4.1, Waste recycling activities - the current status
1. (1) (2) (3) (4) (5) (6) (7)
2. (1) (2) (3) (4) (5)
(6)
(7)
3. (1) (2)
PET bottles ([ 1,7,8,10], Y.C. Lee-Wang, personal communication) The annual generation rate is 11 000 metric tons. Some 900 shops are participating in the waste PET bottle recovery program. Waste bottle recovery rates were 33.5%, 26.1% and 41.07% in 1990, 1991 and 1992, respectively. Three foundations are responsible for the recovery of this waste item. Upon manufacturing of PET bottles, a waste processing fee of NT $3.00 each is collected by the foundation. A returned waste bottle now can be refunded for NT $2.00 deposit fee. The Taiwan Recycling Corp. is capable of processing 7500 metric tons (MT) of waste PET bottles per year. Shredded bottle flakes are currently exported for recycling in many applications such as apparel fiber, strapping, and engineering plastics. Tires ( [1,5-lo], Y.C. Lee-Wang, personal communication) The annual generation rate is increasing every year; 67 000 MT and 78 000 MT in 1990 and 1991, respectively. At least 125 tire shops have registered for waste tire recovery. Waste tire recovery rates were 59% and 73% in 1991 and 1992, respectively. Two foundations have been established for this waste item. Depending on the tire size, a waste processing fee is collected by the foundation when the tire is entering the market. This fee is transferred to the buyer (user) when a new tire is purchased. Two private licensed waste collection and disposal companies, contracted by the foundations, are now collecting waste tires and then shredding them to tire chips of 2” X 2” and smaller in size. During the period of October 1990 and August 1992, the waste tires collected and shredded were about 678 000 MT and 430 000 MT, respectively. Waste Tire Processing Foundation of ROC has recently contracted with two private companies to recycle the waste tires in two manners: (i) material recycling through fine grinding of tire chips and (ii) conversion products recovery through pyrolysis. These two recycling plants will not be operating until July 1993 and April 1994, respectively. Containers for environmental sanitation chemicals ( [ 1,7], Y.C. Lee-Wang, sonal communication) The annual generation rate is about 260 000 pieces. The annual recovery rate is about 30%.
per-
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G.C.C. Yang/Resources,
(3) (4) (5) 4. ( 1) (2) (3) (4) (5)
5. ( 1) (2)
(3) (4) 6. ( 1) (2)
(3) (4) (5) 7. ( 1) (2)
(3)
8.
Conservation and Recycling 13 (1995) 15-26
A foundation for this waste item has been established. However, no licensed waste collection and disposal agency for this waste item exists. No deposit fee or processing fee is collected now. Plastic bottles of this waste category are now treated as general plastics. Pesticide containers ( [ 1,7], Y.C. Lee-Wang, personal communication) The annual generation rate is about 18 million pieces. A private licensed waste collection company is contracted with the pesticide manufacturers to do the collection job. The annual recovery rate is about 20.73%. Two organizations are taking charge of the recovery and disposal of this waste item. Processing fees are collected for raw materials upon importation and for consumer products upon manufacturing. Iron cans ( [ 1,101, Y.C. Lee-Wang, personal communication) The annual generation rate is about 100 000 MT. Iron cans have long been recovered through junkmen and an existing junk/scrap recycling system. The waste iron cans recovered were about 811 MT, 1800 MT and 2140 MT in 1990, 1991 and 1992, respectively. There are two foundations involved in the recycling of this waste item. No deposit fee or processing fee is charged or collected now. Aluminum cans ( [ 1, lo], Y.C. Lee-Wang, personal communication) The annual generation rate is about 220 000 MT. There are 15 contracted recycling centers for this waste item. The principal recovery channel is through the assistance of junkmen and junk/scrap recycling system. The waste aluminum cans recovered were about 84 MT, 200 MT and 70 000 MT in 1990, 1991 and 1992, respectively. There are two foundations involved in recycling of this waste item. A processing fee of NT $0.02 each is collected by the foundation for each canned product upon manufacturing. No deposit fee is charged to the consumer of any aluminum canned product. Lubricant oils ( [ 1,3,7], Y.C. Lee-Wang, personal communication) The annual generation rate is about 34 billion gallons. In the past, it was estimated that about 50% of waste lubricants were roughly processed and recycled by illegal factories. The rest were arbitrarily poured on the ground or into sewers, drainage channels, rivers, etc. Two foundations have been established for this waste item. Unfortunately, the Waste Lubricant Oil Recycling Foundation of ROC has temporarily ceased operation due to its poor financial management in the past 2 years or so. Lead-acid batteries ( [ 1,7], Y.C. Lee-Wang,
personal communication)
G.C.C. Yang/Resources,
(1) (2) (3) (4) (5) (6)
9. (1) (2)
(3) (4) (5)
10. (1) (2) (3) (4) (5)
Conservation and Recycling 13 (1995) 15-26
23
The annual generation rate is about 100 000 MT. (In 1990, 14 7 12 000 units were generated.) The annual recovery rate is about 34.54%. There were six recycling plants in Taiwan. Today, their operations are all suspended by ROC EPA due to severe pollution violations. No licensed collection and disposal agency for this waste item exists at this point. A foundation has been established for this waste item. Currently, a waste processing fee of NT $1 .OO/kg is collected by the foundation for later processing uses. Mercury cell batteries ( [ I], Y.C. Lee-Wang, personal communication) The annual generation rate is 450 MT. Two recovery stations are established in northern and central Taiwan. In addition, there are at least 244 shops (e.g., watch shops, electronic shops, etc.) voluntarily doing the recovery work. The recovered mercury cell batteries are further collected by a private licensed waste collection and disposal company. The annual recovery rate is about 5.4%. The foundation for this waste item has not been established. However, the recovery work is planned by the Foundation of the Importers for Environmental Protection. Styrofoam containers ( [ l,g,lO], Y.C. Lee-Wang, persoan communication) The annual generation rate is more than 12 000 MT. A foundation has been established for this waste item. An anticipated recovery rate of 70% is set for 1995. Three treatment and disposal technologies will be employed for this waste item: incineration, melt and landfilling, and recycling. A plant has been constructed in Taipei County for treating this waste item by means of shredding/recycling and incineration in two operating sections. The waste heat from incineration is not recovered.
4.2. Waste recycling problems encountered In Taiwan, promotion of the “Hsi-Fu Recycling Project” on one hand has conserved lots of natural resources; on the other hand it has resulted in many problems and impacts on the general public, governmental agencies, and various industries such as manufacturing, recycling, etc. Problems and impacts on the public Promotion of the “Hsi-Fu Recycling Project” switches the consumer behavior from ‘disposal-oriented’ to ‘recycling-oriented.’ Traditionally, Chinese are very industrious and frugal. Most goods are used over and over again even after several repairs. Much better economic conditions in Taiwan in recent years, however, have changed the consumer behavior from ‘reuse-oriented’ to ‘disposal-oriented’. Very recently, support for the “HsiFu Recycling Project” has been gradually increasing among the general public, due to
24
2.C.C. Yang /Resources,
growing demands recycling. To support the several problems. sumer goods and recycling.
Conservationand Recycling I3 (1995) 15-26
for a better living environment
and awareness
of the significance
of
waste recycling program, the public, however, has to face and solve For example, the public lacks knowledge of the recyclability of postconspace at home for storing recyclables before they are picked up for
Problems and impacts on the governmental
agencies
Several governmental agencies have also faced many problems and impacts as a result of supporting the ‘‘Hsi-Fu Recycling Project”. ROC EPA and Ministry of Economic Affairs (MOEA) are the two agencies having the most direct impacts. ROC EPA has received criticisms since the kickoff of the “Hsi-Fu Recycling Project”. A few examples are presented below. First, the present garbage trucks provided by ROC EPA are not designed and not suitable for waste separation and recycling. Separating the valuables from the true refuse in garbage at home will not do any good, because the present garbage trucks will mix all waste items again anyhow. Second, ROC EPA currently does not regulate all waste containers in the same way. There is a processing fee of NT $3.00 for each PET bottle, but no processing fees for polyvinyl chloride (PVC) bottles, iron cans and aluminum cans. Third, the industries are often complaining that the EPA’s regulations are too strict to obey. Fourth, regulations for many recoverable waste items have not been promulgated. ROC MOEA probably is the governmental agency on which has fallen most impacts resulting from the support of the ‘‘Hsi-Fu Recycling Project”. To support the EPA’s waste recycling program, MOEA on one hand has to agree on EPA’s regulations for various waste items; on the other hand, MOEA has to help the industries to do a better job of waste recycling and disposal. Problems and impacts on the industries
Promotion and supports of the “Hsi-Fu Recycling Project” have resulted in increasing impacts and conflicts among the relevant industries. A few examples are given below. Competition exists among manufacturers of different consumer goods containers [ 11. For example, soft drinks can be contained in glass bottles, PET bottles, iron cans, or aluminum cans. The costs for raw materials of different containers are different. The deposit fees and/or processing fees for different containers are also different. Moreover, some containers (e.g., PVC bottles) are currently not regulated by the EPA, thereby giving an attraction for using such kinds of containers to avoid regulatory impacts [ 81. The employment of a specific kind of container would certainly affect the businesses of other kinds of container manufacturers. Particularly, it will be a crisis for those containers that are not recyclable, because eventually they may be substituted by the recyclable containers. Competition also exists between imported goods and domestic goods [ 11. In many instances, domestic manufacturers of consumer goods are financially much stronger than importers. The former is much more capable of paying the waste processing fees in advance than the latter. Also, the former may not want to help processing waste goods for the latter. These phenomena may result in the shrinkage of imported goods business.
G.C.C. Yang/Resources,
Conservation and Recycling 13 (1995) 15-26
25
Competition between the markets of primary (virgin) materials and secondary materials exists as well [ 1,101. Currently, the markets for many primary materials are much better than that of secondary materials due to the following reasons: ( 1) a lower price; (2) a more steady supply; and (3) a better quality. How to promote the employment of secondary materials is a challenging problem for government authorities and industries. Large-sized manufacturers and small-sized manufacturers of the same goods are also competing [ 11. The waste processing fee sometimes is a real burden for a small-sized manufacturer. Profit-wise, this disadvantages small-sized manufacturers and they might eventually drop out of the market of particular goods. Likewise, promotion of the waste recycling program in Taiwan has resulted in many impacts on the recycling industries [ 1, lo]. Presently, a majority of the recycling industries in Taiwan are small in size and lack pollution control equipment. In addition, some recycling industries also are facing the following problems: ( 1) lack of economic incentives for recovery/recycling; (2) lack of advanced technologies for separation and recycling; and (3) lack of markets for secondary materials. Promotion of the ‘‘Hsi-Fu Recycling Project” has made the above problems outstanding. Thus, how to upgrade the recycling industries in Taiwan is very challenging for both the industries per se and government authorities.
5. Conclusions Today, pollution prevention is the preferred strategy rather than pollution control for waste management in developed countries. Source reduction and recycling are the two technologies employed for waste minimization. Source reduction has the highest priority in waste management program, whereas recycling the next. Recycling should, where practical, be carried out before other treatment and disposal technology options. With the above principle in mind, ROC EPA has started the so-called ‘‘Hsi-Fu Recycling Project” for municipal solid waste generated in Taiwan. (The name of this project has been changed to “Urban Waste Recovery and Its Monitoring Project” by ROC EPA in 1991.) Taiwan is a small island country with a very high population density. The quantity of urban waste generated has increased by an annual rate of 8 to 10% in recent years. In addition, over 50% by weight of waste items in urban waste are considered to be recyclable. Landfilling of MSW without practical recycling would be a thousand pities. Besides, due to a lack of natural resources in Taiwan, it would be very wasteful to bury recyclable materials underground. Since the “not-in-my-backyard” (NIMBY) syndrome also exists in Taiwan, a well-planned waste recycling program is urgently needed. As a result, ROC EPA began to promote the ‘‘Hsi-Fu Recycling Project’ ’a few years back. Incorporating the concepts of the ‘product life cycle cost’ and ‘beneficiary pays and polluter pays’ in it, Article 10.1 of the “(Solid) Waste Disposal Act” provides a legal basis for the “Hsi-Fu Recycling Project”. There are 17 waste items under this waste recycling program, but only ten are currently regulated. The recycling activities are still underway. Promotion of the “Hsi-Fu Recycling Project”, however, has resulted in many problems that remain to be solved. To better accomplish the waste recycling program in Taiwan, the public, relevant industries, and governmental agencies should strive to work towards a harmonized goal of conserving natural resources for generations to come.
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References [ 11 Liu, KS., 1991. The current status and its perspective of the waste recovery and recycling in the Taiwan area. In: G.C.C. Yang (Ed.), Proceedings of the Workshop on Solid Waste Treatment and Disposal. November 4-8, Kaohsiung, Taiwan, pp. 39-76 (in Chinese). [ 21 China Times, February 8, 1993. p. 5 (in Chinese). [3] Chien, E., 1991. Working towards environmental quality in the 21st century, ROC EPA Code No. 34082790054, pp. 60-77. [4] Liu, K.S., 1992. Planning of the waste treatment and disposal in the Taiwan area. In: Proceedings of the Conference on Research Findings of ROC National Science Council’s Group Investigation on Overall Planning of the Water Pollution Control at MSW Landfills and Incineration Technologies for Solid Wastes, December 6-7, Taipei, Taiwan, pp. 14.1-14.5 (in Chinese). [5] Yang, G.C.C., 1993. Recycling of discarded tires in Taiwan. Resources, Conservation and Recycling, 9: 191-199. [ 61 ROC EPA, 1990. Waste Tire Processing Q and A, 11 pp. (in Chinese). [7] Anonymous, 1990, Achievements of the Bureau of Solid Waste Control, ROC EPA, Environmental Protection and Economy Monthly, September Issue, pp. 22-25 (in Chinese). [ 81 Hsi-Fu News Letter Bimonthly, 1992, December Issue, pp. 2-3 (in Chinese). [9] WTPF (Waste Tire Processing Foundation of ROC) News, 1993, January Issue, p. 1 (in Chinese). [ lo] Hsi-Fu News Letter Bimonthly, 1992, January Issue, p. 3 (in Chinese).
Conservation
and Recycling
13 (1995)
15-26
Urban waste recycling in Taiwan Gordon C.C. Yang * Insritute of Environmental
Engineering, National Sun Yar-Sen University, Kaohsiung, Taiwan, ROC Accepted
17 January 1994
Abstract The urban waste recycling program in Taiwan is discussed. During the past few years, the quantity of urban waste generated in Taiwan has greatly increased, about 8-10% per year. Approx., 50 wt.% or more of the waste items in urban waste are found to be valuable and worth recycling. Recycling is of much significance to Taiwan because of a lack of natural resources. Hence, ROC EPA has made many efforts to promote an urban waste recycling program, called the ’‘Hsi-Fu Recycling Project”. (This project now has a new name called “Urban Waste Recovery and Its Monitoring Project”.) The legal backing of this recycling project is Article 10.1 of the “(Solid) Waste Disposal Act”, which was revised and promulgated in November 1988. “The product life cycle cost” and “beneficiary pays and polluter pays” are the two important basic concepts incorporated in this Article. Through the promotion of the ‘‘Hsi-Fu Recycling Project”, these two fundamental concepts are being practiced in Taiwan for some items in urban waste. Currently, only ten out of the 17 waste items under the “Hsi-Fu Recycling Project” are regulated by ROC EPA. While this waste recycling project is in progress, many problems have occurred. These problems have caused many impacts on the public, industries, and government authorities. To proclaim a great success in this waste recycling project, these problems must first be solved. Keywords: Urban waste; Municipal solid waste; Taiwan; Recycling
1. Introduction Recently, pollution prevention has become the preferred waste management strategy rather than pollution control. Pollution control strategies through waste treatment and disposal (collectively, referred to as ‘end-of-the-pipe’ treatment) technologies have improved our environmental quality to some extent. However, they cause secondary pollution problems and are not cost-effective. Pollution prevention through source reduction and recycling may lower the extent of hazards imposed on the environment and human health. In addition, * Corresponding
author.
0921-3449/95/$09.50 0 1995 Elsevier Science B.V. All rights reserved SSDIO921-3449(94)00009-T
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Conservation and Recycling 13 (1995) 15-26
source reduction of waste can lower waste treatment costs and recycling can conserve natural resources. Therefore, ‘pollution prevention pays’ or, more precisely, ‘waste minimization pays’ in this paper. Source reduction and recycling are important to both industrial and urban waste management. In this work, only recycling of urban waste in Taiwan is discussed. For convenience, the terms ‘urban waste’ and ‘municipal solid waste’ are to be treated or used interchangeably hereinafter in this report. The quantity of municipal solid waste (MSW) generated in Taiwan has greatly increased during the past decade. In 1990, the amount of MSW generated was 18 750 metric tons per day, which represents an increase of 115% in 10 years since 1980 [ 11. A 10% increase of MSW quantity for 1992 compared with that of 1991 was reported [2]. On a per capita basis, the MSW generation rates were 0.78, 0.82 and 1.0 kg per day in 1987, 1988 and 1991, respectively [ 1,3]. It was estimated that 1.09 kg/day per capita of MSW was generated in 1992 in the Taiwan area; 1.28 kg/day per capita in Taipei City; and 1.13 kg/day per capita in Kaohsiung City [ 21. During the period 1980 to 1990, the amount of recoverable materials in MSW has substantially increased as well. For example, paper in MSW increased from 23% to 32%; plastics from 11% to 20%; and metals from 5% to 7% [ 11. According to a recent report [4], the following useful materials were found in Taiwan’s MSW: ( I ) paper, 21.88-26.24%; (2) plastics, 19.72-22.79%; (3) rubber, 0.1 l-1.37%; (4) glass, 4.82-6.22%; and (5) metals, 7.12-8.08%. These five waste items totaled over 55% of MSW by weight. Thus, if a recycling program for MSW is well conducted, it not only could potentially recover, reuse, and/or regenerate useful resources but also could reduce the amount of waste to be disposed of.
2. Fundamental 2.1. Fundamental
concepts and legal basis for waste recycling concepts for waste recycling
The ‘product life cycle cost’ concept is the fundamental basis for waste recycling programs and regulations in Taiwan [ 31. The product life cycle cost theory described in this paper is derived from an environmental protection perspective. It is broader than the socalled product life cycle cost from a marketing viewpoint. The latter views the product life cycle as the market growth cycle of a product from development, promotion, growth, and saturation to decline. However, from the standpoint of environmental protection, the aforementioned concepts should be expanded to include the ultimate disposal of a product. In other words, the product life cycle is the cycle of a product’s whole life. It should include all stages from production to ultimate disposal of a product, i.e., every stage from cradle to grave inclusively. Therefore, the product life cycle cost should at least include the following costs: ( 1) R and D, (2) design, (3) manufacture, (4) marketing, (5) maintenance, and (6) disposal. The cost of disposal includes costs for recycling, other treatment(s), and ultimate disposal of a product. From the viewpoint of the zero base (unimpaired) environment, it is also evident that the disposal cost should be included in the product life cycle cost. Before the development and manufacture of a product, neither the product nor its waste exists in the natural envi-
G.C.C. Yang/Resources,
Conservation and Recycling 13 (199s) IS-26
17
ronment. This phenomenon is called the zero base environment [ 31. Once the consumer product is introduced to the natural environment, it will cause some degree of impact on the environment. If it is desired to reattain the zero base environment, someone has to pay for the costs of waste treatment and disposal. However, who should be responsible for the treatment/disposal costs? If the manufacturers and/or importers, and retailers do not pay for the costs of treatment/disposal, those costs would be borne by government authorities, and in turn, by taxpayers. Thus, while businesses profit from the production and retail of products, society carries the burden for the costs of their disposal. From the environmental protection’s viewpoint, it would represent an inequitable distribution of costs to the public. Due to the increasing demands of environmental protection, from now on, businesses must include expenses caused by the use and disposal of a product among overall costs. Therefore, the principle of equitably distributing liability for environmental costs has led to the current internalization of manufacturers’ social costs and the notion of ‘the polluter pays’. ‘Beneficiary pays and polluter pays’ is another concept that is imposed via waste recycling regulations upon the system in Taiwan. For example, tires are used for all kinds of transportation purposes for which there is a public benefit. Once the tires become waste, users and polluters should be responsible for the treatment/disposal costs. This concept is now being practiced in Taiwan for waste tires [ 51. Presently, a waste tire processing fee (depending on the size of tire) is charged to the buyer (user) when a new tire is purchased [ 5,6]. 2.2. Legal basis of the regulations for waste recycling In Taiwan the law governing the collection, recycling, treatment, and ultimate disposal of solid wastes is the “(Solid) Waste Disposal Act”. The Act was revised and promulgated in November 1988. This Act is also the legal basis of Taiwan’s various regulations for recycling of useful materials that would always be found within urban waste. Article 10.1 of the “(Solid) Waste Disposal Act” of 1988 states what kinds of waste should be recycled or properly disposed of, and who should be responsible for doing so. According to this Article, if an item or its packaging/container meets any of the following characteristics, the manufacturers and/or importers, and retailers are responsible for the collection, recycling, and disposal of the waste: 1. It is difficult to collect and dispose of once it becomes refuse. 2. It has non-biodegradable content(s) . 3. It contains hazardous constituent(s) . This Article provides the legal backing for ROC Environmental Protection Administration (ROC EPA) to promote 17 plans for waste recycling and related activities (known as “HsiFu Recycling Project”). Based on the same Article, ROC EPA has promulgated respective regulations for each of ten waste items out of 17 thus far. As a consequence, the concepts of ‘product life cycle cost’ and ‘beneficiary pays and polluter pays’ are realized and put into practice in Taiwan. 3. Hsi-Fu recycling project and its management
system
3.1. Hsi-Fu Recycling Project Due to a lack of natural resources, Taiwan is a country that needs desperately a good waste recycling program to conserve natural resources otherwise disposed in the refuse.
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Table 1 Annual generation
G.C.C. Yang/ Resources, Conservation and Recycling 13 (1995) IS-26
rates of 17 waste items under the “Hsi-Fu Recycling Project”
[7]
Waste item
Annual quantity generated in Taiwan ( 1990)
1. PET bottles 2. Tires 3. Lubricant oils 4. Iron cans 5. Aluminum cans 6. Lead-acid batteries 7. Mercury cell batteries 8, Pesticide containers 9. Containers for environmental sanitation chemicals 10. Fluorescent light tubes 11. Paper 12. Aluminum foil packaged containers 13. Glass bottles 14. cars 15. Motorcycles 16. Paper containers/cartons 17. Plastics
260 million pcs. 60000MT 34 million gal. 1.3 billion pcs. 1 billion PCS. 1OOOOOMT 3177 MT 18 million PCS. 23 million PCS. 30 million pcs. 3 million MT 1.5 billion PCS. 140 000 MT 110 000 units 540 000 units ? 1 million MT
Accompanied by the rapid increase of economic activity, the amount of urban waste that is discarded every day is increasing and become more varied. In general, urban waste contains many valuable waste materials that can be reused or recycled. Hence, it is particularly wasteful to throw away useful materials as if they were common rubbish. Because there is a need to cherish and make sparing use of those valuable materials, ROC EPA has to start to promote the so-called “Hsi-Fu Recycling Project”. (In Chinese, “Hsi-Fu” means to make sparing use of one’s wealth or valuables.) The main purpose of this waste recycling program is to bring about waste reduction through recycling of the valuable natural resources in urban waste. In 1991, the name of the ‘‘Hsi-Fu Recycling Project” was officially changed to “Urban Waste Recovery and Its Monitoring Project” by ROC EPA (Y.C. Lee-Wang, personal communication), However, this project is still known as the ‘‘Hsi-Fu Recycling Project” to the public. Therefore, the original name of “Hsi-Fu Recycling Project” will be used hereinafter for convenience. In accordance with the classifications in the “(Solid) Waste Disposal Act”, and in view of what the public is used to, and the need to maintain good hygiene, ROC EPA has planned to regulate and recycle 17 waste items in MSW. Table 1 lists the estimated generation rates in 1990 for the 17 waste items included in the “Hsi-Fu Recycling Project” [7]. 3.2. Establishment of a waste recycling system According to the concept of product life cycle cost and Article 10.1 of the “(Solid) ,Waste Disposal Act”, it is the responsibility of the industries to do the cleanup and disposal work for postconsumer products. Ideally, there is a trademark on each postconsumer product for identification. However, it is commonplace to find that the brands of products become indistinguishable after products are used and discarded. Thus, it is difficult to identify who
G.C.C. Yang/Resources,
Table 2 Official announcement dates for recovery “Hsi-Fu Recycling Project” [ 1]
Conservation and Recycling 13 (1995) 15-26
and promulgation
dates of regulations
to
19
for ten waste items under the
Waste item
Date of official announcement recover
PET bottles Tires Containers for environmental sanitation chemicals Pesticide containers Iron cans Aluminum cans Lubricant oils Lead-acid batteries Mercury cell batteries Styrofoam containers
1-31-89 6-24-89 8-8-89
6-26-89 9-20-89 8-20-90
10-18-89 12-21-89 12-21-89 l-22-90 4-24-90 5-31-90 7-11-91
9-21-90 8-3 l-90 8-31-90 5-25-90 8-31-90 8-31-90 8-30-91
Promulgation
date of regulations
should be responsible for the disposal of that particular product. Perhaps it is a good idea to unite the production, import, and marketing industries and have them establish a foundation of their own. In so doing, various industries in the same foundation can negotiate the degree of responsibility they are accountable for. They may decide to submit a certain sum for deposit fees and processing fees upon the product’s manufacture, importation, and/or distribution. Depending on the characteristics of each postconsumer product, they may also decide what recycling channel(s) to be used.
3.3. Management
system for Hsi-Fu Recycling Project
The current management system for waste recycling is based on various regulations for recovery and disposal of waste items included in the ‘‘Hsi-Fu Recycling Project.” To date, ROC EPA has selected 13 waste items in MSW and announced that these waste items should be recovered to more efficiently dispose of MSW. Of these, only ten are currently In other words, regulated by the EPA ( [ 41, Y.C. Lee-Wang, personal communication). regulations for the remaining three waste items have not been promulgated by the EPA yet. The ten presently regulated waste items are polyethylene terephthalate (PET) bottles, tires, iron cans, aluminum cans, mercury cell batteries, pesticide containers, lead-acid batteries, lubricant oils, containers for environmental sanitation chemicals, and Styrofoam containers. Tables 2 and 3 present information regarding the date of promulgation of regulations, required recovery rate, achieved recovery rate, etc., for each of the ten regulated waste items ( [ 11, Y .C. Lee-Wang, personal communication). The following are the key principles underlain in the current management system for waste recycling in Taiwan [ 1 ] : 1. Manufacturers, importers, and retailers must register at a local Environmental Protection Bureau and file necessary documents, which will be forwarded to the central EPA (i.e., ROC EPA) for reference.
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Table 3 Announced Project”
G.C.C. Yang/Resources,
recovery rate requirements
Waste item
Conservation and Recycling 13 (1995) 15-26
and their achievements
for ten waste items under the “Hsi-Fu Recycling
Announced recovery rate requirement ( W)
Time period good for the required recovery rate
Achieved recovery rate
PET bottles
50
6-26-89 to 6-25-90 6-26-90 to 6-25-91 6-26-91 to 6-25-92 6-26-92 to 6-25-93 10-l-90 to 9-30-91 lo-l-91 to 9-30-92 lo-l-92 to 9-30-93 7-1-91 to 6-30-92
33.5 26.1 41.07
Tires
50 55 60 50 70 80 50
Containers for environmental sanitation chemicals Pesticide containers Iron cans
Aluminum
cans
Lubricant oils Lead-acid batteries Mercury cell batteries
Styrofoam containers
60 20 55 20 55 60 30 55 60 ? 30 50 5 30 40 50
7-l-92 4-1-91 4-l-92 1-1-91 l-l-92 l-l-93 1-1-91 l-l-92 l-l-93
to to to to to to to to to
6-30-93 3-31-92 3-31-93 12-31-91 12-31-92 12-31-93 12-31-91 12-31-92 12-31-93
7-l-9 1 to 7- 1-92 to 1-1-91 to l-l-92 to l-l-93 to 9-l-92 to
6-30-92 6-30-93 12-31-91 12-31-92 12-31-93 8-31-93
(%)
60.4 70 30
20.73 21.4
31.8
34.54 5.4
2.
The relevant industries are responsible for the recovery and disposal of that specific waste item. The cleanup job can be done by the industries themselves or by any licensed public or private waste collection and disposal agency. 3. The relevant industries must fulfill the requirement of the minimum annual recovery rate promulgated by the central EPA for that specific waste item. 4. The relevant industries may unite to establish a foundation in order that recovery and disposal of that particular waste item will be done properly. 5. The central EPA may organize a supervising committee to oversee the operation of each specific foundation. Taken as a whole, the management system for waste recycling currently employed in Taiwan can be divided into two parts: ( 1) relevant industries are responsible for recovery and disposal of postconsumer goods, and (2) government authorities are responsible for promulgating regulations and supervising whether the recovery rate requirements are fulfilled and whether the ultimate disposal of each waste item is done properly. 4. Current waste recycling activities and encountered problems The “Hsi-Fu Recycling Project” promoted by ROC EPA is generally considered successful from day to day, but many problems need to be solved. The following paragraphs
G. C.C. Yang/Resources,
Conservation and Recycling 13 (1995) 15-26
21
will present a brief description of current waste recycling activities for each regulated waste item. The problems resulting from the promotion of this waste recycling project will also be discussed later in a different manner.
4.1, Waste recycling activities - the current status
1. (1) (2) (3) (4) (5) (6) (7)
2. (1) (2) (3) (4) (5)
(6)
(7)
3. (1) (2)
PET bottles ([ 1,7,8,10], Y.C. Lee-Wang, personal communication) The annual generation rate is 11 000 metric tons. Some 900 shops are participating in the waste PET bottle recovery program. Waste bottle recovery rates were 33.5%, 26.1% and 41.07% in 1990, 1991 and 1992, respectively. Three foundations are responsible for the recovery of this waste item. Upon manufacturing of PET bottles, a waste processing fee of NT $3.00 each is collected by the foundation. A returned waste bottle now can be refunded for NT $2.00 deposit fee. The Taiwan Recycling Corp. is capable of processing 7500 metric tons (MT) of waste PET bottles per year. Shredded bottle flakes are currently exported for recycling in many applications such as apparel fiber, strapping, and engineering plastics. Tires ( [1,5-lo], Y.C. Lee-Wang, personal communication) The annual generation rate is increasing every year; 67 000 MT and 78 000 MT in 1990 and 1991, respectively. At least 125 tire shops have registered for waste tire recovery. Waste tire recovery rates were 59% and 73% in 1991 and 1992, respectively. Two foundations have been established for this waste item. Depending on the tire size, a waste processing fee is collected by the foundation when the tire is entering the market. This fee is transferred to the buyer (user) when a new tire is purchased. Two private licensed waste collection and disposal companies, contracted by the foundations, are now collecting waste tires and then shredding them to tire chips of 2” X 2” and smaller in size. During the period of October 1990 and August 1992, the waste tires collected and shredded were about 678 000 MT and 430 000 MT, respectively. Waste Tire Processing Foundation of ROC has recently contracted with two private companies to recycle the waste tires in two manners: (i) material recycling through fine grinding of tire chips and (ii) conversion products recovery through pyrolysis. These two recycling plants will not be operating until July 1993 and April 1994, respectively. Containers for environmental sanitation chemicals ( [ 1,7], Y.C. Lee-Wang, sonal communication) The annual generation rate is about 260 000 pieces. The annual recovery rate is about 30%.
per-
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G.C.C. Yang/Resources,
(3) (4) (5) 4. ( 1) (2) (3) (4) (5)
5. ( 1) (2)
(3) (4) 6. ( 1) (2)
(3) (4) (5) 7. ( 1) (2)
(3)
8.
Conservation and Recycling 13 (1995) 15-26
A foundation for this waste item has been established. However, no licensed waste collection and disposal agency for this waste item exists. No deposit fee or processing fee is collected now. Plastic bottles of this waste category are now treated as general plastics. Pesticide containers ( [ 1,7], Y.C. Lee-Wang, personal communication) The annual generation rate is about 18 million pieces. A private licensed waste collection company is contracted with the pesticide manufacturers to do the collection job. The annual recovery rate is about 20.73%. Two organizations are taking charge of the recovery and disposal of this waste item. Processing fees are collected for raw materials upon importation and for consumer products upon manufacturing. Iron cans ( [ 1,101, Y.C. Lee-Wang, personal communication) The annual generation rate is about 100 000 MT. Iron cans have long been recovered through junkmen and an existing junk/scrap recycling system. The waste iron cans recovered were about 811 MT, 1800 MT and 2140 MT in 1990, 1991 and 1992, respectively. There are two foundations involved in the recycling of this waste item. No deposit fee or processing fee is charged or collected now. Aluminum cans ( [ 1, lo], Y.C. Lee-Wang, personal communication) The annual generation rate is about 220 000 MT. There are 15 contracted recycling centers for this waste item. The principal recovery channel is through the assistance of junkmen and junk/scrap recycling system. The waste aluminum cans recovered were about 84 MT, 200 MT and 70 000 MT in 1990, 1991 and 1992, respectively. There are two foundations involved in recycling of this waste item. A processing fee of NT $0.02 each is collected by the foundation for each canned product upon manufacturing. No deposit fee is charged to the consumer of any aluminum canned product. Lubricant oils ( [ 1,3,7], Y.C. Lee-Wang, personal communication) The annual generation rate is about 34 billion gallons. In the past, it was estimated that about 50% of waste lubricants were roughly processed and recycled by illegal factories. The rest were arbitrarily poured on the ground or into sewers, drainage channels, rivers, etc. Two foundations have been established for this waste item. Unfortunately, the Waste Lubricant Oil Recycling Foundation of ROC has temporarily ceased operation due to its poor financial management in the past 2 years or so. Lead-acid batteries ( [ 1,7], Y.C. Lee-Wang,
personal communication)
G.C.C. Yang/Resources,
(1) (2) (3) (4) (5) (6)
9. (1) (2)
(3) (4) (5)
10. (1) (2) (3) (4) (5)
Conservation and Recycling 13 (1995) 15-26
23
The annual generation rate is about 100 000 MT. (In 1990, 14 7 12 000 units were generated.) The annual recovery rate is about 34.54%. There were six recycling plants in Taiwan. Today, their operations are all suspended by ROC EPA due to severe pollution violations. No licensed collection and disposal agency for this waste item exists at this point. A foundation has been established for this waste item. Currently, a waste processing fee of NT $1 .OO/kg is collected by the foundation for later processing uses. Mercury cell batteries ( [ I], Y.C. Lee-Wang, personal communication) The annual generation rate is 450 MT. Two recovery stations are established in northern and central Taiwan. In addition, there are at least 244 shops (e.g., watch shops, electronic shops, etc.) voluntarily doing the recovery work. The recovered mercury cell batteries are further collected by a private licensed waste collection and disposal company. The annual recovery rate is about 5.4%. The foundation for this waste item has not been established. However, the recovery work is planned by the Foundation of the Importers for Environmental Protection. Styrofoam containers ( [ l,g,lO], Y.C. Lee-Wang, persoan communication) The annual generation rate is more than 12 000 MT. A foundation has been established for this waste item. An anticipated recovery rate of 70% is set for 1995. Three treatment and disposal technologies will be employed for this waste item: incineration, melt and landfilling, and recycling. A plant has been constructed in Taipei County for treating this waste item by means of shredding/recycling and incineration in two operating sections. The waste heat from incineration is not recovered.
4.2. Waste recycling problems encountered In Taiwan, promotion of the “Hsi-Fu Recycling Project” on one hand has conserved lots of natural resources; on the other hand it has resulted in many problems and impacts on the general public, governmental agencies, and various industries such as manufacturing, recycling, etc. Problems and impacts on the public Promotion of the “Hsi-Fu Recycling Project” switches the consumer behavior from ‘disposal-oriented’ to ‘recycling-oriented.’ Traditionally, Chinese are very industrious and frugal. Most goods are used over and over again even after several repairs. Much better economic conditions in Taiwan in recent years, however, have changed the consumer behavior from ‘reuse-oriented’ to ‘disposal-oriented’. Very recently, support for the “HsiFu Recycling Project” has been gradually increasing among the general public, due to
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2.C.C. Yang /Resources,
growing demands recycling. To support the several problems. sumer goods and recycling.
Conservationand Recycling I3 (1995) 15-26
for a better living environment
and awareness
of the significance
of
waste recycling program, the public, however, has to face and solve For example, the public lacks knowledge of the recyclability of postconspace at home for storing recyclables before they are picked up for
Problems and impacts on the governmental
agencies
Several governmental agencies have also faced many problems and impacts as a result of supporting the ‘‘Hsi-Fu Recycling Project”. ROC EPA and Ministry of Economic Affairs (MOEA) are the two agencies having the most direct impacts. ROC EPA has received criticisms since the kickoff of the “Hsi-Fu Recycling Project”. A few examples are presented below. First, the present garbage trucks provided by ROC EPA are not designed and not suitable for waste separation and recycling. Separating the valuables from the true refuse in garbage at home will not do any good, because the present garbage trucks will mix all waste items again anyhow. Second, ROC EPA currently does not regulate all waste containers in the same way. There is a processing fee of NT $3.00 for each PET bottle, but no processing fees for polyvinyl chloride (PVC) bottles, iron cans and aluminum cans. Third, the industries are often complaining that the EPA’s regulations are too strict to obey. Fourth, regulations for many recoverable waste items have not been promulgated. ROC MOEA probably is the governmental agency on which has fallen most impacts resulting from the support of the ‘‘Hsi-Fu Recycling Project”. To support the EPA’s waste recycling program, MOEA on one hand has to agree on EPA’s regulations for various waste items; on the other hand, MOEA has to help the industries to do a better job of waste recycling and disposal. Problems and impacts on the industries
Promotion and supports of the “Hsi-Fu Recycling Project” have resulted in increasing impacts and conflicts among the relevant industries. A few examples are given below. Competition exists among manufacturers of different consumer goods containers [ 11. For example, soft drinks can be contained in glass bottles, PET bottles, iron cans, or aluminum cans. The costs for raw materials of different containers are different. The deposit fees and/or processing fees for different containers are also different. Moreover, some containers (e.g., PVC bottles) are currently not regulated by the EPA, thereby giving an attraction for using such kinds of containers to avoid regulatory impacts [ 81. The employment of a specific kind of container would certainly affect the businesses of other kinds of container manufacturers. Particularly, it will be a crisis for those containers that are not recyclable, because eventually they may be substituted by the recyclable containers. Competition also exists between imported goods and domestic goods [ 11. In many instances, domestic manufacturers of consumer goods are financially much stronger than importers. The former is much more capable of paying the waste processing fees in advance than the latter. Also, the former may not want to help processing waste goods for the latter. These phenomena may result in the shrinkage of imported goods business.
G.C.C. Yang/Resources,
Conservation and Recycling 13 (1995) 15-26
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Competition between the markets of primary (virgin) materials and secondary materials exists as well [ 1,101. Currently, the markets for many primary materials are much better than that of secondary materials due to the following reasons: ( 1) a lower price; (2) a more steady supply; and (3) a better quality. How to promote the employment of secondary materials is a challenging problem for government authorities and industries. Large-sized manufacturers and small-sized manufacturers of the same goods are also competing [ 11. The waste processing fee sometimes is a real burden for a small-sized manufacturer. Profit-wise, this disadvantages small-sized manufacturers and they might eventually drop out of the market of particular goods. Likewise, promotion of the waste recycling program in Taiwan has resulted in many impacts on the recycling industries [ 1, lo]. Presently, a majority of the recycling industries in Taiwan are small in size and lack pollution control equipment. In addition, some recycling industries also are facing the following problems: ( 1) lack of economic incentives for recovery/recycling; (2) lack of advanced technologies for separation and recycling; and (3) lack of markets for secondary materials. Promotion of the ‘‘Hsi-Fu Recycling Project” has made the above problems outstanding. Thus, how to upgrade the recycling industries in Taiwan is very challenging for both the industries per se and government authorities.
5. Conclusions Today, pollution prevention is the preferred strategy rather than pollution control for waste management in developed countries. Source reduction and recycling are the two technologies employed for waste minimization. Source reduction has the highest priority in waste management program, whereas recycling the next. Recycling should, where practical, be carried out before other treatment and disposal technology options. With the above principle in mind, ROC EPA has started the so-called ‘‘Hsi-Fu Recycling Project” for municipal solid waste generated in Taiwan. (The name of this project has been changed to “Urban Waste Recovery and Its Monitoring Project” by ROC EPA in 1991.) Taiwan is a small island country with a very high population density. The quantity of urban waste generated has increased by an annual rate of 8 to 10% in recent years. In addition, over 50% by weight of waste items in urban waste are considered to be recyclable. Landfilling of MSW without practical recycling would be a thousand pities. Besides, due to a lack of natural resources in Taiwan, it would be very wasteful to bury recyclable materials underground. Since the “not-in-my-backyard” (NIMBY) syndrome also exists in Taiwan, a well-planned waste recycling program is urgently needed. As a result, ROC EPA began to promote the ‘‘Hsi-Fu Recycling Project’ ’a few years back. Incorporating the concepts of the ‘product life cycle cost’ and ‘beneficiary pays and polluter pays’ in it, Article 10.1 of the “(Solid) Waste Disposal Act” provides a legal basis for the “Hsi-Fu Recycling Project”. There are 17 waste items under this waste recycling program, but only ten are currently regulated. The recycling activities are still underway. Promotion of the “Hsi-Fu Recycling Project”, however, has resulted in many problems that remain to be solved. To better accomplish the waste recycling program in Taiwan, the public, relevant industries, and governmental agencies should strive to work towards a harmonized goal of conserving natural resources for generations to come.
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References [ 11 Liu, KS., 1991. The current status and its perspective of the waste recovery and recycling in the Taiwan area. In: G.C.C. Yang (Ed.), Proceedings of the Workshop on Solid Waste Treatment and Disposal. November 4-8, Kaohsiung, Taiwan, pp. 39-76 (in Chinese). [ 21 China Times, February 8, 1993. p. 5 (in Chinese). [3] Chien, E., 1991. Working towards environmental quality in the 21st century, ROC EPA Code No. 34082790054, pp. 60-77. [4] Liu, K.S., 1992. Planning of the waste treatment and disposal in the Taiwan area. In: Proceedings of the Conference on Research Findings of ROC National Science Council’s Group Investigation on Overall Planning of the Water Pollution Control at MSW Landfills and Incineration Technologies for Solid Wastes, December 6-7, Taipei, Taiwan, pp. 14.1-14.5 (in Chinese). [5] Yang, G.C.C., 1993. Recycling of discarded tires in Taiwan. Resources, Conservation and Recycling, 9: 191-199. [ 61 ROC EPA, 1990. Waste Tire Processing Q and A, 11 pp. (in Chinese). [7] Anonymous, 1990, Achievements of the Bureau of Solid Waste Control, ROC EPA, Environmental Protection and Economy Monthly, September Issue, pp. 22-25 (in Chinese). [ 81 Hsi-Fu News Letter Bimonthly, 1992, December Issue, pp. 2-3 (in Chinese). [9] WTPF (Waste Tire Processing Foundation of ROC) News, 1993, January Issue, p. 1 (in Chinese). [ lo] Hsi-Fu News Letter Bimonthly, 1992, January Issue, p. 3 (in Chinese).