2.4 Recovery, re-use and recycling
Figure 5: Waste Hierarchy, NWMS 2010
2.4(1)
Recovery, re-use and recycling comprise the second step in the waste hierarchy. Recovery, re-use and recycling are very different physical processes, but have the same aim of reclaiming material from the waste stream and reducing the volume of waste generated that moves up the waste hierarchy. Section 17 of the Waste Act sets out standards regulating recovery, reuse and recycling and describes a range of additional regulatory measures available to the Minister in this respect.
2.4(2)
Recycling rates within South Africa are relatively well established12 , driven primarily by industry-led, voluntary initiatives with funds managed independently of government via non-profit associations, which oversee recovery/recycling processes and facilities.
2.4(3)
Approximately one and a half billion tons of packaging and paper waste (40% of the consumption of packaging and paper products) is recycled per annum13 . Whilst this is still slightly behind developed country statistics, this provides an established base upon which to build and set future targets for the recycling industry.
2.4(4)
Current recycling rates in South Africa are set out in the table below:
| Example of recyclate | % recycled in 2007 |
|---|---|
| Metal beverage cans | 70% |
| Paper | 54.5% |
| Glass | 25% |
| Plastic | 22% |
*based on 2007 figures from PACSA
2.4(5)
Waste generation and recycling activities are broadly linked to income levels - the more affluent the household, the higher the proportion of recyclable material in the waste stream, making recycling initiatives more viable commercially. As a result, the right balance needs to be found between a mix of initiatives, based on income levels per area.
2.4(6)
Norms and standards for recovery, reuse and recycling of waste will be developed in terms of the Waste Act. Amongst others, norms and standards will be set to facilitate separation at source of waste for municipal collection. In order to encourage reuse of industrial wastes, norms and standards which allow for “acceptable use” of waste will be developed. In order for a waste to be considered for ‘acceptable use’ specific requirements will need to be met, including detailed risk assessments.
2.4(7)
Norms and standards for recovery, reuse and recycling will also be developed to support the implementation of IndWMPs and extended producer responsibility initiatives. For example, norms and standards will regulate the recycling of used oil by the garage and motor vehicle maintenance industry in support of an IndWMP for the sector.
2.4(8)
Realistic and defendable targets and measures for recovery, reuse and recycling of waste will be included in IndWMPs. Targets for recovery, reuse and recycling of waste for all the main waste categories will be developed progressively over five years, in line with the development and implementation of IndWMPs as per section 30(2) of the Waste Act. The IndWMP for the paper and packaging industry will set clear targets for the recovery, reuse and recycling of metal beverage cans, paper, plastic and glass, for which there are accurate baseline statistics. In relation to other waste streams, the initial focus of IndWMPs for these sectors will be to establish accurate baseline data.
2.4(9)
Voluntary industry led initiatives for recovery, reuse and recycling of waste will be promoted, and DEA will not intervene where they are working successfully. In some instances additional supporting regulatory or financial mechanisms are required. Formalising initiatives within for example, EPR schemes, will enable DEA to produce supportive regulations which can assist with uptake and compliance in relation to the measure.
2.4(10)
The Waste Act allows the Minister, after consultation with the Minister of Trade and Industry, to require the recovery, reuse and recycling of products or components, and to determine a percentage of recycled material in products. These provisions will be used to reinforce EPR schemes, and to address instances in which voluntary initiatives by industry have proved unsuccessful. Guidelines for the application of these provisions will be developed in consultation with all stakeholders.
2.4(11)
The original design of a product impacts greatly on the recoverability and recyclability of the materials contained within it. Product design which facilitates reduced hazardous components, reduced mixed materials, and ease of separation, is an important measure to support recycling. DEA and the dti will establish a bilateral committee to coordinate initiatives impacting on product design and minimum recyclate content for products, as well as other regulatory measures such as priority wastes and EPR programmes. The dti will complement product design initiatives by setting standards for the product in question.
2.4(12)
Sustainable job creation in relation to recovery, reuse and recycling of waste will be promoted. There are approximately 90,000 jobs14 in the recycling industry at present, although estimates of jobs within the informal recycling sector are unreliable. Employment opportunities are concentrated within the collection and sorting phases of recycling, as well as informal recycling activities such as ‘waste-picking’ on landfills. Government is keen to see the expansion of the recycling sector, and promotion of SMMEs, cooperatives and EPWP projects through the implementation of separation at source and establishment of Materials Recovery Facilities (MRFs).. Measures to achieve this are to be included in IndWMPs.
2.4(13)
At the same time health and safety standards within the sector need attention. While waste-picking on landfills contributes to the livelihoods of those involved, the health and safety hazards related to informal waste-picking on landfills are of grave concern to both government and industry. Accommodating the informal recycling sector within the recycling industry through establishing waste collectives and other measures is vital, and IndWMPs should set out the manner in which industry proposes to achieve such measures within their sector.
2.4(14)
Separation at source is an important means to both improve the quantity of recyclates, and reduce waste sent to landfill. Separation at source will also result in a better quality of recyclates in terms of lower contamination levels. Over the next five years it is intended that measures to implement separation at source will be piloted by the paper and packing industry though the implementation of the IndWMP with a view to rolling out a successful system country wide. This process will have minimal impact on municipal waste collection capacity requirements, whilst meeting recycling objectives. Separation at source is likely to result in much higher volumes of recyclates, and in order to ensure demand meets supply, measures to stimulate the market for recyclates may be required. Industry will need to develop markets for recyclable material which government should support. The introduction of a levy on some virgin materials sold for use within South Africa could provide an incentive for the use of recyclates as an alternative.
2.4(15)
Education and awareness of the benefits associated with recovery, re-use and recycling are important to ensure public participation in re-use and recycling initiatives, and in facilitating mutually beneficial initiatives between government and industry. Education and awareness can affect the level of the demand for recycled products. DEA will support the national education and awareness campaigns rollout by Indalo Yethu and Buyisa-e-bag, whilst industries are encouraged to provide education and awareness through their own initiatives, which can be formalised in terms of their IndWMP and EPR schemes.
2.4(16)
Reporting and monitoring of waste recovery, reuse and recycling measures requires an accurate baseline figure, and a baseline study of waste quantities and flows through reduction, re-use, recycling and recovery techniques will be undertaken by DEA within the next year. This baseline data will then be used to set and measure against firm targets.
Footnotes:
12Geoff Purnell, Munitech, “National Waste Quantification and the Waste Information System”, 2009, paper produced for Department of Environmental Affairs as part of NWMS.
13PACSA 2007 figures.
14Figure based on a research paper entitled Macroeconomic trends, targets and economic instruments, 2009, Mike Goldblatt, Palmer Development Group.