THE INEFFECTIVE MANAGEMENT OF PLASTIC WASTE
You may first want to read How we filled the oceans with plastic in just over 60 years for some context about plastic waste.
The standard for the rational management of plastics and other materials through their life cycle is the concept of waste hierarchy. Loosely implemented by Western countries over the past forty years, it has led to more or less sustainable outcomes in Europe and the United States.The waste hierarchy concept was first formulated in Europe by the 1975 Waste Framework Directive (75/442/EEC), which encouraged the “reduction of quantities of certain wastes, the treatment of waste for its recycling and re-use, the recovery of raw materials and/or the production of energy from certain waste”. Refined by The Netherlands in 1979, the waste hierarchy became known as the Lansink Ladder, which ranked waste management options from the most to the least desirable for the environment.
Today, the sustainable logic that inspired the waste hierarchy and Lansink Ladder makes sense from an environmental and resource-efficiency perspective. However, few developed countries adopted it as it is at the time and two different approaches developed as a result:
- A preventive system that maximizes waste avoidance and recovery and minimizes disposal in The Netherlands, Germany, Denmark, Austria, Switzerland, Norway, Sweden, Belgium, and Luxembourg.
- A corrective system that relies on safe waste disposal without making waste avoidance and recovery a priority in the United Kingdom, Ireland, France, Spain, Portugal, Greece, Eastern European countries, and the United States.
This divergence remained strong until the 1990’s and persists today, even at regional levels where legislative harmonization exists like in the European Union (EU).
When the EU, then the EC, began addressing the issue of plastic waste both systems already existed in Europe. States with corrective systems did not welcome change and the EC had to compromise. This is why the first packaging waste directive of 1994 set low targets, especially for plastics, and a far-off deadline: by 2008, 60% of all packaging waste had to be recovered or incinerated and 55% recycled, including 22.5% of plastic packaging (against 60% for glass, paper and cardboard, and 50% for metals).
Subsequent texts addressed plastics as part of the global waste stream but never revised the 1994 target.
For example, the 1999 Landfill Directive (99/31/EC) allowed landfilling for municipal waste (i.e. post-consumer waste) without mentioning the word “plastic” once. The 2008 Waste Framework Directive (2008/98/EC) introduced a general 50% re-use and recycling target for household waste with no plastic-specific target―it did however introduce separate waste collection by material type (plastics, paper, glass, and metal). The importance of waste prevention for all waste streams, including plastic waste, was often reiterated but never made mandatory. For example, the 1997 Resolution on a Community strategy for waste management stressed that “waste prevention should be first priority for all rational waste policy”.
These various texts have failed to harmonize state policies and plastic waste management performances are lagging as a result.
Over 45 million tons of plastics are used in Europe each year and nearly half of it just for packaging. Post-consumer plastic waste is the primary source of plastic waste and represents about 25 million annual tons (EU, Norway and Switzerland together). This means more than 50% of the plastics we use end up in the trash, and presently, about half of that trash is landfilled. Indeed, only seven EU countries plus Norway and Switzerland achieve recycling and recovery rates above 90% and passed a landfill ban for plastics. In contrast, the rest of Europe generally lies well below 60% for that matter (see graph).
It should be noted that EU countries, especially those with the best waste management policies, export a significant part of their waste for treatment, mainly to China. Such exports increased by 250% between 2000 and 2008. In 2010 alone 7.4 million tons of discarded plastic were shipped from Europe to China and Hong Kong. Germany and the UK count among the top five global exporters.
Now that plastic waste is increasingly valued as a resource worldwide, the EU sees poor waste management as a waste of economic potential and is trying to speed up harmonization. In 2014, the Commission declared that “waste management performances [in Europe] need to be redressed as a matter of urgency” to maximize resource efficiency by turning more waste into energy, and thereby create “a circular economy in support of sustainable growth”. A new directive was proposed to that effect which would finally rise recycling and re-use targets to 60% for plastic packaging (out of a 70% target for all packaging waste) and ban landfilling for recyclable plastics by 2025. The Commission withdrew its proposal in 2015 and adopted an action plan for the circular economy and new proposals to amend past directives. For a recap of the situation as of January 2016, click here.
In the United States, concerns about the environmental impact of waste also arose in the 1970’s, originally to prevent pollution of national water resources. The approach remained essentially corrective until the 1990’s with safe waste disposal as the privileged tool under the 1976 Resource Conservation and Recovery Act (RCRA). This federal law, which regulates the disposal of solid and hazardous waste, did not make waste prevention a priority. States were individually responsible to develop environmentally sound disposal methods to manage their municipal solid waste (MSW), which includes post-consumer plastic waste, under the guidance (but not the authority) of the Environmental Protection Agency (EPA).
This system still exists today but priorities have been reorganized since the Pollution Prevention Act of 1990 (known as the “P2 law”), which marked a clear shift towards waste prevention at the source. This law adopted the waste hierarchy and stressed that “Source reduction is fundamentally different and more desirable than waste management and pollution control”. The EPA was commissioned to “address the historical lack of attention to source reduction”, develop and implement a strategy to promote it and track its progress.
However, the responsibility to meet the P2 law objectives ultimately lies on each individual state and local governments.
Since the P2 law was adopted, Americans have more than doubled the amount of MSW they recycle. However, given the weak recycling performance of the early 1990’s—about 16% of the total MSW—only 34% of the 254 million annual tons of MSW generated are presently being recycled (2013 data, see below graph). The share of plastic waste is 32 million annual tons, of which 9% is recycled or composted (2013 data); the rest is incinerated or landfilled.
The US continue to generate more solid waste per capita per year than any other country―China and Brazil are quickly catching up. However, this amount has been relatively stable from the 1990’s and even slightly diminished since the 2000’s. If this trend persists and concurrently the amount of waste recovered continues to increase, less plastic waste would end up on landfills and threaten to pollute the environment. It should be noted that the US also count among the top five global exporters of waste.
Overall, landfilling remains an important waste management tool for post-consumer waste in the West. The best landfill plants can capture the methane produced by anaerobic waste degradation and reuse it for energy.
Despite these insufficiencies of modern waste management systems, the top contributors to marine plastic pollution are outside of the Western world. The map below ranks contributors by the amount of mismanaged plastic waste they generated in 2010.
The astounding amount of mismanaged plastic waste worldwide proves the urgency of shifting away from a convenience, throwaway culture. Global plastic production must be reduced and products made more durable and reusable, which implies systemic changes and lifestyles adjustments.