Legislative Council of the Hong Kong Special Administrative Region - Measures to curb disposable plastic tableware

ISE22/20-21

Subject:

environmental affairs, waste management, disposable plastic, source reduction

Disposable plastic tableware ("DPT"), commonly defined to include cutlery, cups and takeaway containers made from expanded polystyrene ("EPS", also known as plastic foam) or polypropylene, is designed for a single use before disposal. Whilst cheap and convenient, DPT generates plastic waste that can persist for centuries^{1Legend symbol denoting See National Oceanic and Atmospheric Administration (2018).}, posing severe burden to the landfills and threats to the marine ecosystem.
Official data indicated that some 1 400 tonnes of plastic tableware, weighing as many as 90 double-decker buses, were discarded at landfills in Hong Kong every week in 2019.^{2Legend symbol denoting See Environmental Protection Department (2020).} The COVID-19 pandemic has exacerbated the situation by sparking a rush for food delivery/takeaway meals owing to dining restrictions and health concerns, resulting in a surging demand for DPT. Legislative Council Members have repeatedly urged the Government to introduce policies to reduce DPT use.^{3Legend symbol denoting See GovHK (2018b), GovHK (2018c), GovHK (2020) and 頭條日報(2021年).} Recently, the Government has launched a public consultation on regulating DPT, which forms part of the "Waste Blueprint for Hong Kong 2035" unveiled in February 2021.
Plastic waste management is often multi-pronged, involving both source reduction measures before the waste is created and processing of waste after it is generated. This issue of Essentials concerns the former, focusing on DPT specifically. According to the United Nations ("UN"), such measures can range from bans to financial incentives, and promoting reusable alternatives through public-private collaboration.^{4Legend symbol denoting See UN Environment Programme (2018).} This piece first reviews relevant measures in Hong Kong, followed by a discussion on Taiwan's experience given, among other factors, the similarity of dining culture in the two places.

Tackling DPT in Hong Kong

In Hong Kong, plastic waste accounts for the third-largest share of municipal solid waste ("MSW"), after food waste and paper. In 2019, close to 10% of plastic waste was disposable tableware.^{5Legend symbol denoting In 2019, plastic tableware made from polyfoam and other plastic accounted for 200 tonnes of plastic waste discarded every day, which marked a 12% increase from 179 tonnes in 2015. Overall, plastic tableware accounted for about 2% of MSW disposed of each day, although plastic waste can take a much longer time to decompose than most materials. See Environmental Protection Department (2020).} Currently, there is no restriction on the provision of DPT in catering premises.
In the public consultation document released in July 2021, the Government has proposed a sweeping ban on EPS-based DPT around 2025, covering both provision of such tableware by catering premises to their customers as well as the sale of these items to any local end-consumers (including catering premises).
For other DPT (i.e. the non-EPS varieties), the timetable of regulation will depend on the type of DPT: some will no longer be provided by catering outlets from 2025 onwards, regardless of whether the customers are dining in or purchasing takeaway; others would be first phased out for dine-in services and be extended to takeaway services in the second phase (Table 1). The Government has proposed to review its plan 12-18 months after the introduction of the first phase for the relevant non-EPS DPT, before determining when to launch the second phase, which would constitute a total ban on the provision of DPT by catering premises. Nevertheless, it is noted that the consultation document did not explicitly discuss whether the sale of non-EPS DPT will be prohibited at some point.

Table 1 – Proposed timeline of DPT regulation in Hong Kong

Type of DPT		Phase One (around 2025)	Phase Two (to be decided)
EPS	All tableware	Prohibited for dine-in and takeaway; Banning sale to catering premises and consumers
Non-EPS	Cutlery	Prohibited for dine-in and takeaway	Prohibited for dine-in and takeaway
	Plate
	Stirrer
	Straw
	Cup and lid	Prohibited for dine-in only
	Food container and cover

^{Source: Environmental Protection Department (2021).}

Apart from legislation, Hong Kong has vowed to take forward other efforts to reduce DPT at source. Among others, the Government has launched promotional campaigns covering 700 eateries to encourage the public to bring their own reusable tableware to redeem rewards.^{6Legend symbol denoting See GovHK (2019).} It has also supported on-site meal portioning in schools, and has taken the lead to stop providing plastic straws and EPS containers in government canteens.
Following the Government's recent launch of a public consultation on regulating DPT, some initial views and concerns have been raised. First, some stakeholders have urged the Government to introduce more incentives and support measures to drive behavioural change ahead of the DPT ban.^{7Legend symbol denoting See 香港經濟日報(2021年) and 信報(2021年).} Second, some are concerned that the proposed legislation is unable to immediately address the concern over food delivery plastic amid the pandemic, and thus have called for more timely or interim measures to curb the rising volume of DPT waste.^{8Legend symbol denoting It was estimated that over 15 billion pieces of DPT were dumped in 2020, representing an increase of 1.5 times from 2018. See 綠惜地球(2020年) and 明報(2021年).} Although the proposed legislation is largely seen as a positive move, there are also views that Hong Kong lacks a definite timeline for a blanket ban on some DPT items.^{9Legend symbol denoting See 信報(2021年).}

Tackling DPT in Taiwan

While some Western developed places like France and Canada have made notable progress in tackling DPT through bans or proposed legislation, Taiwan's experience appears to offer more relevant lessons given a similarity in dining culture with Hong Kong. Taiwan is also among the first in East Asia^{10Legend symbol denoting More recently, the Mainland and South Korea have imposed restrictions on DPT. Since 2021, the Mainland has banned the production and sale of disposable EPS tableware, and the use of non-degradable disposable plastic straws in catering businesses. South Korea has banned the use of disposable plastic cups for dine-in customers in cafes since 2018, and plans to phase out disposable plastic cups and straws by 2027. See Walther et al. (2021), Environmental Protection Department (2021) and Yonhap News Agency (2020).} to implement a holistic plan to tackle plastic pollution since the 2000s, and the measures adopted are often in line with UN's recommendations.

Nicknamed by some as the "Garbage Island" in the 1980s, Taiwan was encumbered by a mounting waste crisis due to limited space to expand its landfills capacity and public concerns over large-scale incineration facilities. Against this backdrop, Taiwan's Environmental Protection Administration ("EPA") introduced in the early 2000s a "Zero Waste Policy", which has been considered a paradigm shift in Taiwan's approach to waste management - from end-of-pipe treatment (i.e. after the plastic waste is generated) to a greater emphasis on source reduction.^{11Legend symbol denoting See Chen and Houng (2004).} In 2002, EPA announced its plan to phase out DPT:

(a)	First phase of regulation: EPA started with prohibiting eight main trades/sectors, such as supermarkets, fast-food chains, and shopping malls, from providing disposable plastic cups, plates and food containers, for both dine-in and takeaway customers (except pre-packaged food products). Offenders are subject to a fine of NT$1,200-NT$6,000 (HK$340-HK$1,680). Other sectors or smaller businesses were not subject to regulation at the time, partly in consideration of enforcement difficulties and potential hardship for small businesses.
(b)	Support measures for businesses: In response to concerns among plastic producers and food retailers over job loss and/or declining profits, EPA pledged to subsidize eligible trades on the cost of buying reusable tableware and dishwashing equipment (capped at NT$40,000 (HK$11,097) per project), and to provide loan and advisory support for affected companies.^{12Legend symbol denoting See 中華經濟研究院(2002年).} It also allowed temporary exemptions to ease business concerns. For example, first-time offenders were only given warnings in the first three months of regulation. Initially, EPA allowed the eight trades/sectors to use disposable alternatives such as those made from paper or plant fibre with low plastic content^{13Legend symbol denoting Other examples include disposable tableware primarily made from wood, sugar cane, reed and/or rice husk, with plastic content accounting for less than 10% of the total weight.} for both dine-in and takeaway services, but a ban on the use of all types of disposable tableware (including non-plastic items) was eventually imposed from 2006 for dine-in services in selected trades/sectors (e.g. schools).^{14Legend symbol denoting The ban was extended to all types of disposable tableware (e.g. paper ones), barring the use of these items for dine-in services in selected trades/sectors (e.g. schools) since 2006, and later, in department stores and shopping malls (e.g. food courts) from 2020. While local authorities are allowed a different implementation timeline, most cities and counties have fully complied with the regulation on department stores and shopping malls as at end-2020.} Currently, using disposable alternatives for takeaway services is still permitted.
(c)	Next phase of regulation: Since the implementation of the DPT ban in 2002, the eight regulated trades/sectors, covering a wide spectrum of establishments, saved some 2 billion DPT items, which represented a plunge of over 85% by volume.^{15Legend symbol denoting See 台灣環境保護署：《免洗餐具管制規定與成果》(2021年).} Yet there remained concerns that some heavy users of DPT, such as small vendors in night markets offering takeaway services, remained exempted.^{16Legend symbol denoting See 台灣環境保護署(2010年) and The Taipei Times (2021).} In part to address this regulatory gap, EPA unveiled in 2018 the "Action Plan of Marine Debris Governance in Taiwan", which included a definite timeline to phase out DPT. More specifically, Taiwan will prohibit free distribution of plastic utensils, cups and straws to customers in all stores by 2025.^{17Legend symbol denoting Based on public domain information, it is unclear whether the current DPT policy applying to the eight main trades/sectors will be accordingly adjusted. The Research Office had contacted EPA for more information. In an email reply dated 26 July 2021, EPA stated that it would review its policy and make public announcements on a continuing basis.} EPA is considering the introduction of a levy on DPT under the concept of "controlling the quantity with price" (以價制量) regardless of dine-in or takeaway services, although the exact levy rate has yet to be announced. By 2030, a blanket ban on providing these items to customers will be fully implemented (Table 2). As this ban is considered far-reaching, Taiwan has introduced supportive measures to help the public make a smooth transition ahead of the ban.^{18Legend symbol denoting See Walther et al. (2021).}

Table 2 - Timeline of major DPT regulation in Taiwan

Table 2 - Timeline of major DPT regulation in Taiwan

^{Notes: (1)}	^{These include public offices; private schools; department stores and shopping centres; supermarkets; wholesale stores; convenience store chains; fast-food chains; and catering businesses with seating areas.}
⁽²⁾	^{These include plastic utensils (e.g. cutlery, containers), cups and straws.}
^{Sources: 台灣環境保護署(2021年) and Environmental Protection Administration (2018).}

Driving behavioural change with incentives

To prepare small businesses for the transition, the authorities offer free promotion for food and beverage outlets providing rebates (e.g. free drinks and service charge waivers) to customers bringing their own containers, through different channels including a mobile app featuring a map of eateries providing relevant discounts.^{19Legend symbol denoting See 台北市環境保護局(2013年).} Taiwan has also pledged NT$60 million (HK$16.7 million) to promote eco-friendly night markets in 2020-2021.^{20Legend symbol denoting See 中央通訊社(2020年).} A total of 22 night markets across Taiwan have been selected as pilot sites, where waste reduction practices are adopted. Among others, customers receive discounts for avoiding the use of DPT and can rinse their containers at designated washing areas, while participating vendors are awarded an "eco-friendly vendor" label for display.
Besides, Taiwan has put in place incentives targeting specific types of DPT. For example, the booming bubble tea culture in Taiwan has prompted a surge in the use of takeaway plastic cups. To tackle this, Taiwan introduced a policy in 2011 requiring beverage chains to provide extra portions or discounts (e.g. up to 10% off) for customers bringing reusable cups. Stores opting out must give customers NT$1 (HK$0.3) for every two returned cups to encourage recycling. Over the last decade, the policy has resulted in 150 million fewer plastic cups being disposed of every year, or a 10% drop in usage.^{21Legend symbol denoting See 台灣環境保護署：《一次用飲料杯管制規定與成果》(2021年).} EPA has pledged to review the programme with enhanced incentives, following suggestions to raise the discount rates after a decade of implementation.^{22Legend symbol denoting See 綠色和平(2020年).}

Facilitating consumers' behavioural change

To help customers in overcoming the inconvenience of bringing their own containers, EPA has sponsored container rental schemes initiated by local authorities and organizations. Though varying in scale and features, these schemes mostly operate on a borrow-use-return model, allowing customers to rent a reusable container/cup without any deposit fee from a participating business, by scanning a QR code with their smartphones to check out. Customers can simply rinse and return the containers at any of the collection stations in exchange for discounts off future purchases.^{23Legend symbol denoting Each customer can borrow up to a certain number of containers, and must return the containers before he/she can borrow again.} These containers are then sanitized through commercial dishwashers before reuse by other customers.
These rental schemes have garnered financial support from the relevant authorities. In 2018-2019, EPA spent NT$68.9 million (HK$19.3 million) on funding such schemes in selected cities and counties, along with other source reduction measures.^{24Legend symbol denoting See 台灣環境保護署(2020年).} For example, first launched in Tainan City in collaboration with a start-up in 2017, the Zhengxing Cup Plan (正興杯杯計劃) has reduced some 120 000 disposable cups since then, and with support from EPA, expanded its service to include 70 eateries in Tainan and other cities.^{25Legend symbol denoting See 正興杯杯計劃(2017年).} Similar schemes have mushroomed in Taoyuan, New Taipei City and on Liuqiu Island.^{26Legend symbol denoting As for Hong Kong, the Government has started a free lending scheme on reusable tableware, but it currently targets large-scale events and has yet to reach local eateries. Sponsored by the Government-led Environment and Conservation Fund, the scheme provides free delivery and cleaning services of tableware for large-scale event organizers since 2018. Yet these services have been suspended since the outbreak of the pandemic. See GovHK (2018a).}

Introducing specific measures amid the pandemic

Meanwhile, the rise of food delivery services in Taiwan amid the pandemic has taken a toll on the environment.^{27Legend symbol denoting See Environmental Protection Administration (2021).} In response to concerns that reusable containers could become a potential vector for spreading the COVID-19 virus, Taiwan has allowed a relaxation of the DPT ban amid the pandemic. Regulated trades/sectors can apply for exemptions to use DPT. However, such exemptions are temporary and need to be re-applied after 90 days^{28Legend symbol denoting See 台灣環境保護署：《各縣市可視疫情同意暫時提供免洗餐具》(2021年).}, so as to strike a balance between hygiene concerns and impact on the environment.
To ease public concern and restore confidence in reusable tableware, Taiwan has also reminded catering businesses to follow the "Guidelines for Good Dishwashing Practices" (餐具清洗良好作業指引) issued previously. Though non-binding, this guideline sets the standard for washing reusable tableware with regard to rinse temperature, duration, delivery and storage.^{29Legend symbol denoting See 衛生福利部(2021年) and (2012年).}
Through public-private collaboration, Taiwan has tapped into its thriving network of container rental services to launch a pilot programme targeting food delivery plastic. Funded by EPA and operated by a food delivery platform and a container rental service, this programme allows customers in Tainan City to rent reusable containers when placing orders from 22 partner restaurants via the food delivery app between November 2020 and February 2021. Customers who returned the containers within three days at any of the drop-off points would receive a NT$30 (HK$8.4) discount code for the next purchase via the app. In the first two months of the trial period, it was estimated that some 1 100 reusable containers were rented.^{30Legend symbol denoting See 環境資訊中心(2021年).} EPA is using big data to fine-tune the distribution of collection stations before planning to expand the programme to more locations.^{31Legend symbol denoting See 台灣環境保護署：《七、廢棄物減量及資源循環》(2021年).}

Concluding remarks

Growing DPT use has emerged as a pressing environmental issue globally and in Hong Kong, and the problem was brought to the fore amid the pandemic. Taiwan spent almost two decades in making strides in tackling DPT, with a forward-looking roadmap and progressive roll-out of initiatives. To help small businesses and customers make a smooth transition ahead of tightening DPT regulation, Taiwan has experimented with measures ranging from boosting incentives to promoting reusable alternatives through collaborations with businesses and start-ups. These initiatives have yielded initial positive results, potentially offering insights for Hong Kong in incentivizing both consumers and businesses to reduce the indiscriminate use of DPT and fostering tripartite partnerships among the Government, enterprises and customers in contributing to the global trend of plastic waste reduction.

Prepared by Jennifer LO
Research Office
Information Services Division
Legislative Council Secretariat
5 August 2021

Endnotes:

1.	See National Oceanic and Atmospheric Administration (2018).
2.	See Environmental Protection Department (2020).
3.	See GovHK (2018b), GovHK (2018c), GovHK (2020) and 頭條日報(2021年).
4.	See UN Environment Programme (2018).
5.	In 2019, plastic tableware made from polyfoam and other plastic accounted for 200 tonnes of plastic waste discarded every day, which marked a 12% increase from 179 tonnes in 2015. Overall, plastic tableware accounted for about 2% of MSW disposed of each day, although plastic waste can take a much longer time to decompose than most materials. See Environmental Protection Department (2020).
6.	See GovHK (2019).
7.	See 香港經濟日報(2021年) and 信報(2021年).
8.	It was estimated that over 15 billion pieces of DPT were dumped in 2020, representing an increase of 1.5 times from 2018. See 綠惜地球(2020年) and 明報(2021年).
9.	See 信報(2021年).
10.	More recently, the Mainland and South Korea have imposed restrictions on DPT. Since 2021, the Mainland has banned the production and sale of disposable EPS tableware, and the use of non-degradable disposable plastic straws in catering businesses. South Korea has banned the use of disposable plastic cups for dine-in customers in cafes since 2018, and plans to phase out disposable plastic cups and straws by 2027. See Walther et al. (2021), Environmental Protection Department (2021) and Yonhap News Agency (2020).
11.	See Chen and Houng (2004).
12.	See 中華經濟研究院(2002年).
13.	Other examples include disposable tableware primarily made from wood, sugar cane, reed and/or rice husk, with plastic content accounting for less than 10% of the total weight.
14.	The ban was extended to all types of disposable tableware (e.g. paper ones), barring the use of these items for dine-in services in selected trades/sectors (e.g. schools) since 2006, and later, in department stores and shopping malls (e.g. food courts) from 2020. While local authorities are allowed a different implementation timeline, most cities and counties have fully complied with the regulation on department stores and shopping malls as at end-2020.
15.	See 台灣環境保護署：《免洗餐具管制規定與成果》(2021年).
16.	See 台灣環境保護署(2010年) and The Taipei Times (2021).
17.	Based on public domain information, it is unclear whether the current DPT policy applying to the eight main trades/sectors will be accordingly adjusted. The Research Office had contacted EPA for more information. In an email reply dated 26 July 2021, EPA stated that it would review its policy and make public announcements on a continuing basis.
18.	See Walther et al. (2021).
19.	See 台北市環境保護局(2013年).
20.	See 中央通訊社(2020年).
21.	See 台灣環境保護署：《一次用飲料杯管制規定與成果》(2021年).
22.	See 綠色和平(2020年).
23.	Each customer can borrow up to a certain number of containers, and must return the containers before he/she can borrow again.
24.	See 台灣環境保護署(2020年).
25.	See 正興杯杯計劃(2017年).
26.	As for Hong Kong, the Government has started a free lending scheme on reusable tableware, but it currently targets large-scale events and has yet to reach local eateries. Sponsored by the Government-led Environment and Conservation Fund, the scheme provides free delivery and cleaning services of tableware for large-scale event organizers since 2018. Yet these services have been suspended since the outbreak of the pandemic. See GovHK (2018a).
27.	See Environmental Protection Administration (2021).
28.	See 台灣環境保護署：《各縣市可視疫情同意暫時提供免洗餐具》(2021年).
29.	See 衛生福利部(2021年) and (2012年).
30.	See 環境資訊中心(2021年).
31.	See 台灣環境保護署：《七、廢棄物減量及資源循環》(2021年).

References:

Hong Kong
1.	Environmental Protection Department. (2020) Waste Data & Statistics.
2.	Environmental Protection Department. (2021) Consultation Paper on Regulation of Disposable Plastic Tableware.
3.	GovHK. (2018a) ECC and EPD Launch Reusable Tableware Lending Programme to Promote Waste Reduction at Source.
4.	GovHK. (2018b) LCQ6: Disposable Plastic Tableware.
5.	GovHK. (2018c) LCQ6: Reducing the Use of Disposable Plastic Tableware.
6.	GovHK. (2019) Second phase of "Plastic-Free Takeaway, Use Reusable Tableware" Saves over 1 million sets of Disposable Tableware.
7.	GovHK. (2020) LCQ3: Use, Recovery and Recycling of Plastics.
8.	《2025年擬禁即棄膠餐具未定減塑目標環團稱步伐慢未回應疫下外賣增》，《明報》，2021年7月10日。
9.	《可降解塑膠未獲豁免環團支持》，《香港經濟日報》，2021年7月10日。
10.	《民建聯憂禁塑膠餐具打擊飲食業倡推動替代品》，《頭條日報》，2021年7月9日。
11.	綠惜地球：《兩屋苑首回收即棄餐具兩月收約6萬件綠惜地球促請政府全面落實中央收膠提高回收率》，2020年。
12.	《環保署倡2025年起禁發泡膠餐具兩個月諮詢展開次階段食肆全「走塑」》，《信報》，2021年7月10日。
Taiwan
13.	Chen, H.W. and Houng, H. (2004) Toward a Zero Waste Society in Taiwan.
14.	Environmental Protection Administration. (2018) Action Plan of Marine Debris Governance in Taiwan.
15.	Environmental Protection Administration. (2021) EPA Launches New Environmental Options on Food Delivery App.
16.	The Taipei Times. (2021) Taiwan Govt Policy Lacking When it Comes to Plastic Product Usage.
17.	Walther, B.A. et al. (2021) Strategies, Actions, and Policies by Taiwan's ENGOs, Media, and Government to Reduce Plastic Use and Marine Plastic Pollution. Marine Policy, vol. 126, article 104391.
18.	中央通訊社：《讓夜市減塑低碳清新環保署全台選22處作示範》，2020年。
19.	中華經濟研究院：《台灣環保事業之發展及港台環保事業之合作》，2012年。
20.	台北市環境保護局：《自備餐具及環保杯提供優惠店家 Android app上架了》，2013年。
21.	台灣環境保護署：《夜市不環保，環保署呼籲作環保》，2010年。
22.	台灣環境保護署：《環境保護署業務概況書面報告》，2020年。
23.	台灣環境保護署：《一次用飲料杯管制規定與成果》，2021年。
24.	台灣環境保護署：《七、廢棄物減量及資源循環》，2021年。
25.	台灣環境保護署：《各縣市可視疫情同意暫時提供免洗餐具》，2021年。
26.	台灣環境保護署：《免洗餐具管制規定與成果》，2021年。
27.	正興杯杯計劃：《累積成果》，2017年。
28.	綠色和平：《飲料杯用量增加五億個減塑不成反加塑》，2020年。
29.	衛生福利部：《餐具清洗良好作業指引》，2012年。
30.	衛生福利部：《民眾外食安心使用可重複清洗餐具》，2020年。
31.	環境資訊中心：《紙塑盒你叫外送呈倍數成長的外送垃圾》，2021年。
Others
32.	National Oceanic and Atmospheric Administration. (Undated) Marine Debris is Everyone's Problem.
33.	UN Environment Programme. (2018) Single-use Plastics: A Roadmap for Sustainability.
34.	Yonhap News Agency. (2020) COVID-19 Adds to S. Korea's Plastic Headache as Waste Spikes amid Pandemic.

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