THE PRACTICES OF IMPLEMENTING GOVERNMENTAL CONTROL IN MANAGING CONSTRUCTION WASTES IN HONG KONG Authors: Address:
E-mail address: Keywords:
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VWY Tam , LY Shen , CM Tam 1 Department of Building & Construction City University of Hong Kong 83, Tat Chee Avenue, Kowloon, Hong Kong 2 Department of Building & Real Estate, The Hong Kong Polytechnic University, Hong Kong
[email protected] construction, waste management, governmental control, Hong Kong
ABSTRACT Generation of construction wastes has been considered as the major impact to the environment. The Hong Kong Government is pressing waste minimization in construction as an alternative strategy for reducing filling-up of landfills areas by promoting the implementation of Environmental Management System (EMS), Waste Reduction Framework Plan (WRFP) and implementing various environmental regulations. As the construction activities are among the major sources for waste generation, various studies have investigated ways of reducing wastes during construction process. However, in referring to Hong Kong practice, the applications of these methods receive limited effectiveness. Contractors are less motivated in using resources for waste minimization, and they are very often less cooperative with governmental regulations. This paper examines the practices of implementing governmental controlling measures for waste reduction in Hong Kong. Measures are presented for improving the practices.
INTRODUCTION Construction wastes are considered as having major impacts to the environment construction. Waste is defined as the by-product generated and removed from construction, renovation and demolition workplaces or sites of building and civil engineering structure (Cheung, 1993). With the demands in implementing major infrastructure projects in Hong Kong, together with many commercial building and housing redevelopment programmes, a large amount of construction wastes is being produced in Hong Kong construction. Extra construction materials are usually planned due to the lack of considerations was give to waste reduction during planning and design stage to minimize the generation of wastes. The excessive wastage of raw materials, improper waste management and low awareness of the need for waste reduction are common in the local construction sites. Existing works have proposed various waste management approaches. Petts (1995) promoted the proactive community involvement in implementing waste management, and suggested consensus building among the public in order to control waste generation and mitigate the waste impacts to the environment. Coffey (1999) pointed out that construction solid waste management is generally seen as a low priority when financial constraints are present, and suggested that considerable waste reduction can be achieved if waste management is implemented as part of project management functions. He further suggested that whilst the choice of the optimum waste handling methods should be determined by considering the cost implications, any practices, which will induce waste reduction, must be encouraged. Lingard et al. (2000) and Shen and Tam (2000) considered the provision for training and education among staff and involving employees’ participation as more effective approaches in implementing waste management. However, Lingard et al. (2000) pointed out that employees’ participation could only be effective with genuine support from management. In fact, a previous survey reported that waste management has been receiving less attention from business senior management in comparing with construction cost and time. The cost for implementing waste management is often given more concern than the possible benefits that the organization can gain from the implementation (Shen and Tam, 2002). In recent years, waste reuse and recycle have been promoted in order to reduce wastes and protect the environment, but the effectiveness of their application has been suggested of limitation largely because the conditions for applying these approaches were not provided (Chun et al., 1997). These 113
conditions include proper site location and equipment for waste sorting out, good experience in waste recycling operations, trained supervisors and employees, knowledge of secondary materials markets and knowledge of environmental and safety regulations. The Hong Kong government is promoting the sense of environmental protection with various environmental measures, and has been addressed in 1989 white paper, which laid down the framework for a comprehensive 10-year plan to fight against construction waste and other pollution problems, including a commitment to review its progress in every two-year interval. The governmental controls in construction wastes in Hong Kong include the implementation of Environmental Management System (EMS), Waste Reduction Framework Plan (WRFP) and various environmental related Ordinances. This paper focuses on studying the extent of the existing governmental controls and their characteristics in construction waste minimization; assessing the effectiveness of governmental controls in construction wastes; and proposing alternative methods to enhance the effectiveness in controlling construction wastes.
PRESENTATION OF CONSTRUCTION WASTE IN HONG KONG PRACTICE The Hong Kong Environmental Protection Department (EPD) has identified five major categories of construction wastes, namely, roadwork material, excavated material, demolition waste, site clearance and renovation waste (EPD, 1992). Table 1 and 2 show the quantity of the five categories of wastes and the composite of construction wastes received at Tseung Kwan O landfill, which is one of the major landfills for waste disposal. Demolition and renovation activities have been generating more than 50% of the local construction wastes. Soil and the slurry are the major composition of construction wastes. Table 1: Construction waste category received by Tseung Kwan O landfill in 1992 (Source: EPD, 1992)
Waste category Roadwork material Excavated material Demolition waste Site clearance Renovation Total quantity
Total weight (tonnes per day) 675.25 1560.44 3853.51 1067.97 2963.05 10120.23
Percentage 6.7 15.4 38.1 10.6 29.3 100.0
Table 2: Composition of construction waste received at Tseung Kwan O landfills in 1992 (Source: EPD, 1992)
Constituent Asphalt Brick/tiles Concrete/mortar Reinforced concrete Rock/rubble Sand Soil Bamboo Ferrous metal Non-ferrous metal Glass Junk/fixtures Plastic Slurry/mud Trees Wood Other organics and garbage Total
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% of weight 0.2 9.3 17.1 1.7 5.5 0.4 27.2 0.4 3.0 0.5 0.3 0.4 0.6 18.4 0.2 9.4 5.4 100.0
Throughout the life cycle of a construction project, there are a number of factors leading to the production of wastes (Graham and Smithers, 1996), which are summarized as in Table 3. The implications of the five phases, namely, design, procurement, materials handling, construction / renovation, and demolition, to the waste generation are described by Graham and Smithers (1996) as follows. Table 3: Causes of waste in different project phase
Project Phase Design Procurement Materials handling Construction / renovation
Demolition
Cause of waste Plan errors Detail errors Design changes Shipping error Ordering error Improper storage Deterioration Improper handling (on-site or off-site) Human error Trades person Other labour Equipment error Others (e.g. catastrophe, accident and weather) Tipping
Design Carelessness at the design stage can lead to the excessive cutting wastes and create a shortage of materials on site. Architectural design and rare standard formwork and components can also greatly affect the constructability and assemblies of a building. Plan errors or incomplete details, as a result of time constraint, can also cause variations that require input of additional materials.
Procurement Faults in taking-off, unfinished detailing and small quantity of materials required in renovation work are the main cause of over-ordering. Lack of care during transportation will also result in material damage.
Handling Lack of confined space always causes storage problem of materials. Consequently, waste results from bad stacking, rusting of steel, damage and aging of formwork, etc.
Construction / renovation The construction process accounts for the physical generation of waste materials. Human errors are lack of supervision by main contractors over the labour and sub-contractors on the site where works are differently distributed. Over-mixing and materials surplus frequently happen for wet trades like concreting and brick or block walling because the raw materials are usually packed in bag or box and the excess mixed materials cannot be reused. Malfunction of equipment or carelessness of worker using equipment can also cause damage to materials and subsequently waste is unavoidable. Drivers cutting corners and running over materials are the typical examples.
Demolition Demolition at the end of a building’s operational life and subsequent tipping of materials also create a large proportion of wastes. In recent years, more than 800 buildings have been demolished each year and generated nearly 400 tonnes of demolition waste per day in urban re-development (Graham and Smithers, 1996). Construction wastes are the major types of solid wastes disposed. There is always a substantial amount of materials that require disposal, either at reclamation projects or at landfills. It is running out of both reclamation sites and landfill spaces in Hong Kong construction. Peng and Scorpio (1997) stated that landfill space rapidly disappearing, many communities are considering burning 115
their waste, but there are still unanswered questions about the environmental impacts of municipal wastes. It is reported in Hong Kong that the landfills will be filled up in 10 to 15 years, and approved reclamation projects will only provide outlets for the landfill until 2004 (EPD, 2002). In recent years, the mixed construction waste accounts for more than 40% of the total waste intake at the three strategic landfills. If there are insufficient public filling areas and no waste reduction measures, more land resources will be diverted to landfills and the landfill life will be further shortened. For the solid waste disposed at landfills in 2000, the total waste received was 17,910 tonnes per day, and the construction wastes took 42%, which was 7,740 tonnes (EPD, 2002). The waste generation has been doubled, from 1990 to 1999, which has a waste growth rate of 20% per annum. This growth rate demonstrates the poor waste management performance, when compared with the other developed countered, such as United Status, German and Neverlands, which have less than 10% increase of growth rate. Land filling will not be a sustainable solution of disposal of construction waste as land resource is limited. Construction industry is facing a challenging problem of looking for landfill sites for construction wastes (Peng and Scorpio, 1997). Furthermore, building construction accounts for 25% of the virgin wood and 40% of the raw stone, gravel and sand used worldwide each year (Dimson, 1996). Globally, building consumes 16% of the water, 40% of energy used annually, and about 70% of the sulphur oxides produced by fossil fuel combustion are produced through the creation of the electricity used to power housed and offices. It is realized that construction industry is one of the major consumers of the natural resources in the world. The continuous generation of construction wastes will contribute to the exhaust of the natural resources. The economic and environmental benefits to be gained from waste minimization and recycling are enormous (Guthrie et al., 1999), since it will benefit both the environment and the construction firms in terms of cost reduction. The waste would be meaningful and come back to its cycle again if some kind of re-processing is carried out. Waste minimization as defined as any technique, process or activity which either avoid, eliminates or reduces waste at its source or allow reuse or recycling of waste for benign purpose. The economic benefits of waste minimization and recycling include the possibilities of selling specific waste materials and the removal from site of other wastes at no charge or reduced cost, with a subsequent reduction in materials going to landfill at a higher cost (Snook et al., 1995). In fact, the reduction of construction waste is highly beneficial to the community. CIRIA’s research (1993) indicated that the environmental benefits of waste minimization include prolonging the life of landfill sites and reducing primary resource requirements. Lingard et al. (2000) added that social benefits include the avoidance of creating new and undesirable landfill sites, stemming potential environmental health risks associated with waste and its disposal reducing the cost of construction. Peng and Scorpio (1997) has supported that reduction of construction waste is one of the best solutions; reduction is the best and most efficient method for minimizing the generation of waste and eliminating many of the waste disposal problems. However, recycling of construction materials may also have its limitation. Peng and Scorpio (1997) also stated that the recycling requires an aggressive marketing effort to locate markets and sell materials at the highest possible prices. The present rather low level of market developments means that significant time and money must be invested in establishing relationships, keeping track of pricing changes, and becoming a reliable supplier of materials, in order to ensure a continuous intake of construction materials. The operator also has to locate, and develop relationship with, demolition and general contractors with projects in the area to sell their construction recycling business as the disposal option of choice for the contractors. Faniran and Caban (1998) considered that, among various existing waste management methodologies, the typical methodology is to adopt a waste management hierarchy, which classifies and prioritizes in descending order the waste management options (a) reducing waste; (b) re-using waste; (c) recycling waste; and (d) disposing waste where the first three options are not possible. An increasingly popular approach in controlling construction wastes is using environmentally friendly construction methods for the aim of reducing the waste generation during construction stage, such as using large panel system, applying prefabrication components, and reducing the application of wet trade (Ho, 2001).
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GOVERNMENTAL CONTROL Legislative controls For protecting the environment by legal enforcement, Hong Kong government had issued a lot of laws and ordinances on environmental protection. The ordinances related to environmental protection on construction industry include Water Pollution Control Ordinance (issued in 1980), Noise Control Ordinance (issued in 1989), Waste Disposal Ordinance (issued in 1980) and Air Pollution Control Ordinance (issued in 1985) (EPD, 2002). Hong Kong government had also issued Environmental Impact Assessment (EIA) ordinance for construction industry in 1998. The summaries of the environmental ordinances are shown in Table 4. Table 4: Legislation controls in Hong Kong construction
Laws Water Air Waste Noise Construction
Hong Kong Water Pollution Control Ordinance (issued in 1980) Dumping at Sea Ordinance Air Pollution Control Ordinance (issued in 1985) Waste Disposal Ordinance (issued in 1980) Noise Control Ordinance (issued in 1989) Environmental Impact Assessment (EIA) ordinance for construction industry (issued in 1998)
For controlling the waste management in Hong Kong construction, waste disposal ordinance is the major ordinances in enforcing serious waste situation. The waste disposal ordinance (Cap. 354), enacted in 1980, along with its subsidiary regulations is the principal legislation for waste management in Hong Kong. It provides a comprehensive framework for the management of waste from the point of arising to the point of final disposal. As stated in EPD (2001), some of the major ordinances concerning construction waste are the following: • • • • •
Waste disposal ordinance (Cap. 354); Waste disposal (charges for disposal of waste) regulation; Waste disposal (designated waste disposal facility) regulation; Town planning ordinance (Cap. 131); Building ordinance (Cap. 123).
The Waste Disposal Ordinance (WDO) provides the statutory framework for the management of all wastes from where they arise to the point of final disposal (WDO, 2002). The WDO prohibits any person from using any land or premises for the disposal of wastes unless he has been authorized by or has obtained a license from the waste disposal authority, who is the Director of Environmental Protection. The WDO has licensing provisions to control the environmental conditions at waste treatment and disposal facilities. In particular, manufacturers must comply with the WDO in the disposal of chemical waste, toxic, hazardous and difficult wastes, and the management of sludge arising from water/sewage treatment systems. The WDO also controls the import and export of wastes.
Public filling facilities Public filling facilities include public filling areas, barging points and stockpiling areas, are managed by the civil engineering department and the territory development to accept inert public fill from various construction activities. These facilities will only accept waste composes mainly of granular materials such as concrete, brick, sand, rubble and rock which are suitable for reclamation. According to the statistics from the EPD (2002), the inert construction material delivered to public filling areas in 1999 was 29,220 tonnes. Public filling area is a designated part of a development 117
project, which accepts public fill in lieu of general fill as filling material. These sites are usually land reclamation or site formation projects.
Landfill areas Craven et al. (1994) reported that construction activity is approximately to generate 20-30% of all wastes deposited in Australian landfills. Ferguson et al. (1995) found that more than 50% of the waste deposited in a typical landfill in UK comes from construction wastes. According to Rogoff and Williams (1994), 29% of the solid-waste stream in the USA is construction waste. In line with the Polluter Pays Principle in Hong Kong, the government intends to introduce charges for the disposal of wastes at landfills (WDO, 2002). The charging proposal will initially apply to non-domestic waste delivered to landfills by private waste collectors. The government has developed a range of billing options, which allow landfill users to pay the charges in arrears. Moreover, landfill users may choose to pay the charges either on a per tonne basis or on a per vehicle load basis.
On-site sorting facilities in landfills On site sorting facilities was set up at the landfill in 1988 to recover usable materials (cover, roads, filling, landscaping and aggregate) and to reduce the amount of materials landfilled (WDO, 2002). A temporary facility at Tseung Kwan O Area 137 was provided by civil engineering department in the early 2000, and the one at Chai Wan would be in operation by 2004. Besides, another permanent sorting facility is also planned to be set up at Kwai Chung in the near future. These facilities will be capable of sorting about 2,000 tonnes of construction materials each day.
Environmental management system Environmental management system (EMS) is an evolving series of standards which lays out a broad range of environmental disciplines, including the basic management system, auditing, performance evaluation, labeling, life-cycle assessment and product standards. Rather than focusing directly on environmental performance, the standard addresses the management systems used to control environmental performance. There are five main elements in EMS, namely, environmental policy, planning, implementation and operation, checking and corrective actions, and management review and improvement (Figure 1).
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Continuing improvement
V. Management review and improvement
I. Environmental policy
II. Planning
IV. Checking and corrective action
III. Implementation and operation
Figure 1: Environmental management system model (Source: ISO, 1998)
Waste reduction framework plan The government has drafted a Waste Reduction Framework Plan (WRFP) in 1998 and launched on 5 November 1998 (WDO, 2002) to change the wasteful habits in the public, thus acknowledges that environmental awareness in Hong Kong is relatively low and so prevention of waste programme and institutional programme is suggested. The WRFP sets out programmes to avoid and minimize wastes; promote recovery, recycling and reuse of materials; prolong the life of existing landfills and reduce the increasing costs of waste transportation, treatment and disposal. The WRFP also contains suggestions on how different sectors can incorporate various waste reduction measures into their every day life or business practices. It seeks to change the commodity attitudes and approaches to waste, from collecting and transporting waste to prevent and reuse of waste materials and three programmes over a ten-year period were established. Six objectives of WRFP was produced for: i) extending the useful life of the strategic landfills; ii) minimizing the amount of waste produced that requires disposal; iii) helping conserve the earth’s non-renewable resources; iv) increasing the waste recycling rate; v) identifying the true costs of waste management so that we can maximize efficiency and minimize the costs of collection, treatment and disposal of wastes; and vi) improving the institutional arrangement. One of the targets of WRFP is to reduce 84% of the construction materials, if this target is met, the life of the existing landfills can be extended by 6 months. Management of waste should into just emphasize how waste is disposed of but how it is reduced, reused and recycled (EPD, 2001) and the public should always be concerned about the detrimental effects of waste to the environment.
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Development of recycling scheme by the government According to EPD (2001), it is claimed that a whole recycling industry has been developed in the territory but such waste is only confined to the commercial and industrial sectors and environmental awareness activities, like the “use less plastic bags”, which is a long ways from the construction industry. To promote recycling in the private sector, there is a DEMOS scheme that aims to encourage the adoption of new technologies in waste minimization and recycling and entrepreneurs can apply for a grant from the environmental conservation fund. One official from the EPD claimed that the government will try to provide incentives for people set up recycling plants or get agents who can ship the waste elsewhere where it can be usefully employed. Meanwhile, intermediate sorting plants for construction waste are being provided as one means of ensuring that the minimum amount ends up in landfills and that the majority is recycled of reuse on land reclamation sites. In fact, the general mixed waste is transferred to landfill while the waste transferred to public dump requires several sorting.
INVESTIGATION METHODOLOGY AND RESULT ANALYSIS For measuring the opinion about governmental legislation, a questionnaire survey had been conducted. Questionnaires were sent to 200 construction organizations. 22 questionnaires were properly completed and returned. Correspondents were requested to indicate the properly significance by selecting one of five levels of significant, namely, 1, 2, 3, 4 and 5, from the lowest significant to the highest significant. Five interviews are conducted for further elaborate the information and results from the questionnaire survey, which including one large-sized main contractor, two medium-sized main contractors and two sub-contractors. Table 5 shows the survey results about the legislation control.
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Table 5: Survey result on the governmental control in Hong Kong construction
Legislation a. The ordinance is an effective measure on construction waste minimization. b. The government has imposed adequate legal control towards construction waste minimization. Public filling facilities a. The number of public filing facilities operated by government is adequate. b. The location of public filling facilities is convenient to the construction organization. c. The operating hours of public filling facilities matched with the construction organization. d. The charge of the public filling facilities is acceptable. Landfill areas a. The number of landfill areas operated by government is adequate. b. The location of landfill areas is convenient to the construction organization. c. The operating hours of landfill areas matched with the construction organization. d. The charge of the landfill areas is acceptable. On site sorting facilities in landfill a. The number of on-site sorting facilities is adequate. b. The location of on-site sorting facilities is convenient to the construction organization. c. The scale of on-site sorting facilities is large enough to match with the construction organization’s dumping scheme. Environmental management system a. EMS is an effective certification to reflect the achievement made by your company on waste minimization. b. EMS can improve the reputation of your company. c. EMS can generate more business opportunities for your company. Waste reduction framework plan a. Waste reduction framework plan has enough to provide effect in minimizing construction waste. Recycling scheme by the government a. The Government has provided adequate guidelines on how to reuse and recycle construction waste. Subsidies by government a. The Government should provide subsidies to the company which are carry out green investment
1
2
3
4
5
2
13
6
1
0
Avg 2.55 2.27
0
6
14
2
0
2.82
6
9
6
1
0
2.50 2.09
6
7
6
3
0
2.27
3
10
7
2
0
2.36
0
2
14
4
2
3.27
1
5
12
4
0
3.03 2.86
3
9
6
4
0
2.50
0
3
7
11
1
3.45
0
1
15
4
2
10
3
8
1
0
3.32 2.01 2.00
9
3
9
1
0
2.09
10
4
7
1
0
1.95
0
7
10
5
0
3.09 2.91
0
3
9
10
0
3.32
0
7
7
8
0
3.05
0
2
10
8
2
3.45 3.45
0
4
16
2
0
2.91 2.91
0
0
2
14
6
4.18 4.18
As Ngowi (2001) stated that most of the governmental policies do not provide competitive advantage to the firms that adopt them, the overall results of implementing governmental control in controlling construction wastes were not effective in Hong Kong, which had a response significant of 2.55 from the survey analysis. In the interview discussion with main contactors, they also found the current legislations on waste management have many “gray” areas; some of it may be difficult to implement on site activities, such as the treatment of chemical wastes before dumping. 121
In Table 5, it has been found that performance in landfill areas had a relatively higher significant of 3.03 when compared with performance in public filling facilities and performance in on site sorting facilities in landfill of 2.50 and 2.01 respectively. Although performance in landfill areas was higher, sorting is also important to recover waste for reuse and recycle. To facilitate sorting, a specific area should be allocated for on-site sorting of waste while suitable containers should be provided to temporary store the sorted materials such as metals, concrete, timber, plastics, glass, excavated spoils, bricks and tiles. If the site is of limited space, waste materials should at least be separately put into inert and non-inert portions. Indeed, avoiding and minimizing production of waste but maximizing the recovery of reusable and recyclable waste products makes good business sense. A long-term strategy is to reduce the generation of construction materials and to reuse and recycle as much construction waste materials as possible. Furthermore, land is a scare resource in Hong Kong, and establishment of new public filling area may be quite difficult. However, the operating hours of these facilities should be able to extend, which had the response significant of 2.36 in the survey. These facilities are generally closed at 67p.m., but may construction sites end their work after 6p.m., thus the operating time should be relaxed in order to give a more elastic timing to the contractors. Reuse and recycling the useful material should be a major objective of waste minimization. The government should take the leading role in providing more on-site sorting facilities; otherwise it is quite difficult for the contractors to do it by themselves since most of their sites are rather small in operating these facilities. Spivey (1974) suggested to sort out wastes into specific categories which allows the adoption of specific techniques in dealing with different types of wastes, such as demolition materials, packaging materials, wood, concrete, asphalt, garbage and sanitary waste, scrap metal products, rubber, plastic and glass, and pesticides and pesticide containers. Therefore, government should consider establishing new sorting facilities to other landfill or public filling areas for dealing other specific wastes. The scale of these facilities should also be increased so that the handling capacity or recycling rate can be increased. Although the responsive significance on WRFP is 3.45 in the survey analysis, most of the programmes in the WRFP still require years of time for building-up and preparation. More fasttracked strategy should be employed to deal with the current situation, and together with the longterm strategy, will be a much appropriate solution to the problem. Since WRFP requires voluntary involvement from private companies, the result may not be a satisfactory one. If the result cannot meet a satisfactory level, the government should consider a mandatory scheme to get a better participation rate. More legislation and enforcement mechanisms should also be set up concurrently with voluntary initiatives to provide the appropriate level of motivation. It is easy to understand that contractors will not have too much green investment if such investment only increases their operating cost. Thus, the use of tax break and subsidiaries may be a better motivator to the contractors, and this measure is considered very important in the survey, giving the significance score of 4.18. Careful control in using the public money for implementing waste reduction is important so that there will be less repulsion from the public.
CONCLUSION The professionals in the Hong Kong construction industry share the view that the ordinances laid down by the government are of limited effectiveness in the practice. The study indicates that further amendments of the Waste Disposal Ordinances need to undertaken, and developing new ordinances is necessary in the areas of waste disposal, and of enforcing the implementation of the governmental control system in Hong Kong. The study shows that the government has devoted many effects over previous 10 years in reducing construction waste, but many problems are still outstanding whilst some measures are proven effective. This reflects the necessity of reviewing its strategy. Nevertheless, effectiveness can only be gained with incorporating efforts. By doing this, the government should provide guidelines for contractors in implementing waste reduction in line with governmental ordinances.
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