Construction and Demolition Waste Policy Report

Use Less, Waste Less Build a Zero Waste Hong Kong

1

Executive Summary ....................................................................................................... 3

Introduction .................................................................................................................... 5

Background.................................................................................................................... 6

3.1

Hong Kongs Current Situation ................................................................................ 6

3.2

Hong Kongs Vision and Targets ............................................................................. 7

3.3

Summary ................................................................................................................ 7

Overview on Worldwide Situation ................................................................................... 8

4.1

C&D Waste Reduction and Recycling Targets ........................................................ 8

4.2

Key Drivers Adopted to Reduce C&D Waste......................................................... 12

4.3

Summary .............................................................................................................. 14

Recommendations ....................................................................................................... 15
5.1

Reduce ................................................................................................................. 15

5.1.1

Review of Current Landfill Charges................................................................ 15

5.1.2

Revitalisation of Existing Buildings to Reduce Demolition Waste ................... 20

5.2

Reuse ................................................................................................................... 20

5.2.1

Information Sharing Platform ......................................................................... 20

5.2.2

Fully Utilise Inert Materials from Public Fill Reception Facilities ..................... 20

5.2.3
Development of Trading Channels for Unused Construction Materials and
Products
5.3

5.3.1

Green Procurement and Specification in Government Projects ...................... 21

5.3.2

Regional Sorting and Storage Facilities ......................................................... 22

5.3.3

On-Site Waste Management Plans and Reporting ......................................... 23

5.3.4

Government Funding Support ........................................................................ 23

5.3.5

Land Policy .................................................................................................... 24

5.3.6

Incentive Schemes for Reducing, Reusing and Recycling ............................. 26

5.3.7

Cross-Boundary Government Coordination ................................................... 26

5.4
6

Recycle ................................................................................................................. 21

Summary of Recommendations ............................................................................ 27

Likely Challenges to be Encountered ........................................................................... 27

6.1

Technical Challenges............................................................................................ 28

6.1.1

On-Site Difficulties ......................................................................................... 28

6.1.2

Deconstruction ............................................................................................... 28

6.1.3

Communication and Training ......................................................................... 28

6.2

Financial barriers .................................................................................................. 28

6.2.1

Economic Incentives ...................................................................................... 28

6.2.2

Fiscal Measures ............................................................................................. 29

6.3

Public Education Challenges ................................................................................ 29

6.3.1

Best Practice Training for the Construction Industry....................................... 29

6.3.2
Public Awareness Programme to Reduce Renovation Projects and Promote
Reuse of Interior Works ............................................................................................... 29
6.3.3
Promote the Collection, Reuse and Recycling of Second Hand or Unused
Construction Interior and E&M Materials and Products ................................................ 29
6.3.4
6.4

Training for Recycling Industry on Latest Technology .................................... 29

Summary .............................................................................................................. 30

Conclusions ................................................................................................................. 31

Appendix A - References for Table 1 and 2.................................................................. 32

1 Executive Summary
The Construction and Demolition Waste Policy Report is prepared by the Joint Working
Group (JWG), formed by the Business Environment Council (BEC) and Hong Kong Green
Building Council (HKGBC). The JWG aims to identify strategies and to provide solid and
practical recommendations to the Hong Kong Government on initiatives that could increase
the reduction, reuse and recycling of construction and demolition (C&D) waste in Hong Kong.
The report first provides a background of Hong Kongs current situation. Hong Kongs
construction and demolition (C&D) waste problem is increasing in line with the citys
economic growth. One of the main pressures to find a solution to reduce, reuse or recycle
C&D waste is the lack of landfill space. Therefore, the JWG proposes a target of 95% of all
C&D waste to be recovered for reuse or recycling by 2020 and 20% of inert materials to be
recycled into secondary construction materials.
Chapter 4 gives an overview on worldwide situation. Countries and municipalities which set
targets have the most impact in waste reduction or recycling. The findings indicate an
interesting phenomenon; waste reduction tends to be driven by initiatives, while recycling
(which includes reuse of materials) is mandated by legislation. In the majority of cases, C&D
waste reduction has been achieved. C&D recycling targets are either mandated through
wider directives (like the EU directive) or national waste management plans. Overall, 90%
recycling levels are achievable. As for the key drivers implemented in other municipalities or
countries listed, the following are pertinent to Hong Kongs needs:
a)
b)
c)
d)
e)
f)
g)
h)
i)

Landfill charge
Government procurement policies
Specify/incentivise leaner construction
Specification for recycled materials
Waste and recycling facilities license
Waste recycling law
Demolition requirements
Funding and grants for research and development
Green building schemes

In Chapter 5, 12 recommendations are proposed, taking both the stakeholders views and
worldwide policy reviews into account.
Recommendations

Importance 1

Timeline

Government projects green procurement

and specification

Short

Information sharing platform on Demolition

and Recycled Materials

Short

Short

Cross-Boundary Government
Coordination

No. of symbols represents the degree of importance for the policy recommendations, i.e. is the most
important in this case.

Recommendations

Importance

Timeline

Short Medium

Development of trading channels for

unused construction materials and
products

Short Medium

Regional sorting and storage facilities

Medium

Review of Landfill Charge

Medium

On-site waste management plans and

reporting

Medium

Land Policy

Medium Long

Fully utilise inert materials from Public Fill

Reception Facilities

Medium Long

Incentive schemes for reducing, reusing

and recycling of C&D waste

Long

Revitalisation of old buildings to reduce

demolition waste

Long

Governments Funding Support

Chapter 6 presents likely challenges to be encountered from technical, financial and social
aspects. From a technical perspective, the use of recycled materials on-site is constrained
by non-standardised products, insufficient space, and a lack of confidence in using second
hand or unused construction materials or products. From a financial perspective, contractors
and sub-contractors have little financial incentive to minimise waste due to cost of
transportation and storage of waste, cost of testing to verify and guarantee the physical
properties (quality) of the recycled products, and if landfill tipping fees are not high enough to
warrant the effort spent in separating and processing the materials. Lastly, public education
and training of construction personnel are important steps for reducing and recycling C&D
waste. Training for on-site separation by site staff effectively minimises waste at source,
while the public can help reduce C&D waste if they echo the less waste living style
advocated by the Government.
The underlying principle in all of these recommendations is that economically it must make
sense to the industry to reduce or recycle C&D waste. The economic measures comprise
charging a landfill fee to discourage the industry from disposal via this route and sufficient
incentive for the recycling sector to take up the waste for re-use and recycling. Government
should intervene as needed to correct market forces if the desired outcomes are not
achieved. Moreover, it needs to cooperate with the Guangdong authorities to develop a
closed loop economy between Hong Kong and the mainland so that a win-win situation can
be developed with a buoyant building materials recycling industry in PRD servicing the
needs of a healthy construction market in Hong Kong.

2 Introduction
The Business Environment Council (BEC) and Hong Kong Green Building Council (HKGBC)
have formed a Joint Working Group (JWG) to identify strategies and to provide solid and
practical recommendations to the Hong Kong Government on initiatives that could increase
the reduction, reuse and recycling of construction and demolition (C&D) waste in Hong Kong.
A study on worldwide policies and waste management initiatives was conducted together
with a series of interviews with industry stakeholders.
This report provides twelve recommendations proposed by industry stakeholders on
strategies for minimising C&D waste quantities and maximising its recycling potential. It is
important that the industry realises that all C&D waste, with appropriate sorting and
treatment, can be readily recyclable.
The report is organised as follows:

Chapter 2: Background
Chapter 3: Overview of Worldwide Situation
Chapter 4: Recommendations
Chapter 5: Stakeholder Requirements
Chapter 6: Likely Challenges
Chapter 7: Conclusions

3 Background
3.1 Hong Kongs Current Situation
Hong Kong, like many other developed places, has seen its waste loads increasing in
tandem with its economic growth. As of 2011, Hong Kong has been generating over 50,000
tonnes of C&D waste daily 2, amongst which around 94% accounts for inert construction
materials and the remaining is non-inert construction waste 3. Inert materials are stockpiled in
public fill reception facilities pending reclamation and site formation, whereas non-inert
construction waste is disposed of in landfills. However, both the capacities of landfills and
public fill banks are projected to be exhausted by no later than 2020 4, hence the urgency to
identify solutions to managing C&D waste.
As stated earlier, the bulk of C&D waste in Hong Kong ends up in public fill. This comprises
inert materials such as debris, earth, rubble and concrete. C&D waste which ends up in
landfill are mainly packaging materials, paper, plastics and contaminated or broken building
products.
Figure 1 (a) Distribution of overall waste disposal at landfill and (b) Distribution of the disposal of
materials generated from construction activities

Since the setting of the Waste Disposal Ordinance in 1980, the Government has
implemented a series of C&D waste-related policies 5.
Notably, four policies are highlighted:

Production of G200 rock from public fill reception facilities for public projects (2002)
Trip ticket system for transportation of waste (2004)

Environment Bureau. (2013). Hong Kong Blueprint for Sustainable Use of Resources 2013-2022.
Retrieved from http://www.enb.gov.hk/en/files/WastePlan-E.pdf.
3
Environmental Protection Department. (2012). Monitoring of Solid Waste in Hong Kong: Waste
Statistics for 2011. Retrieved from https://www.wastereduction.gov.hk/en/materials/info/msw2011.pdf.
4
Environmental Protection Department. (2013). An Overview on Challenges for Waste Reduction and
Management in Hong Kong. Retrieved from
http://www.epd.gov.hk/epd/english/environmentinhk/waste/waste_maincontent.html.
5
Lu, W, (2013). Construction waste management in Hong Kong: 10 years, no change? Building
Journal, No. 5, pp.72-76.

Construction waste charging scheme (implemented in December 2005)

Implementation of BEAM Plus Standard in public projects (2012)

These will be further discussed in detail in Chapter 5 of this report. There are also other
policies which are being developed, such as Producer Responsibility Scheme (PRS) 6, and
landfill tax for municipal waste 7.

3.2 Hong Kongs Vision and Targets

Based on discussions with stakeholders from the construction and recycling industries, the
JWG would like to propose the following Vision Statement to promote the reduction and
recycling of C&D Waste:
Use Less, Waste Less Build a Zero Waste Hong Kong
The JWG proposes the following recycling targets for C&D waste:

Target 1: By 2020, 95% of all C&D waste will be recovered for re-use or recycling.
Target 2: By 2020, 20% of inert materials 8 will be recycled as secondary construction
materials

In Target 1, 95% is regarded as a reasonable goal as the re-use of C&D waste from public
fill is feasible for purposes such as site formation and reclamation (although the latter has
seen less and less activity in recent years). Composting is also included.
Target 2 is set in order to promote a market for secondary construction materials such as
paving blocks and low strength concrete as well as recycled aggregates recovered from
broken concrete for use as fill materials for earthworks (e.g. backfilling, pipe bedding, road
sub-base, etc.). This is the ultimate prospect for C&D waste. In view of the pressing
schedule to develop pioneering advancements in recycling technology before 2020, the
JWG has set a prudent goal of 20% inert materials to be recycled as secondary construction
products.

3.3 Summary

Hong Kongs C&D waste problem is increasing in line with the citys economic growth.
The lack of landfill space is one of the main pressures to find a solution to reduce,
reuse or recycle C&D waste.
The JWG proposes a target of 95% of all C&D waste to be recovered for reuse or
recycling by 2020 and 20% of inert materials to be recycled into secondary
construction materials.

Environment Bureau. (2010). Consultation Document - Safe and Sustainable: A New Producer
Responsibility Scheme for Waste Electrical & Electronic Equipment. Hong Kong: Environment Bureau;
Environmental Protection Department (2013). Consultation Document on a New Producer
Responsibility Scheme on Glass Beverage Bottles. Hong Kong: Environment Bureau.
Council for Sustainable Development. (2013). Waste Reduction by Waste Charging How to
Implement? Hong Kong: Environment Bureau.
8
Inert materials to be recycled (other than for reclamation) for secondary construction materials
include bricks, gypsum and concrete
7

4 Overview on Worldwide Situation

There are different policies and strategies on waste management (in particular for C&D
waste) adopted by governments worldwide. In this section, a brief overview of the targets
defined by local governments and their policies and strategies adopted will be reviewed,
while more detailed discussions on specific topics in Sections 4 to 6.

4.1 C&D Waste Reduction and Recycling Targets

Governments (national and municipal) often define clear waste reduction targets in their
strategic waste management plans. Setting targets drives value creation and reduces the
public burden of managing waste, especially C&D waste. Construction materials and
infrastructure are significant consumers of natural resources and enormous amounts of
embodied energy (and embodied carbon) hence management is part of driving a lowercarbon future economy.
Tables 1 and 2 below highlight countries and municipalities that have defined specific targets
for the reduction and recycling respectively of C&D waste 9 . The findings indicate an
interesting phenomenon; waste reduction tends to be driven by initiatives, while recycling
(also including reuse of materials) is mandated by legislation.

Legend for Tables 1 and 2

Mandatory

Prescribed in legislation

[1]

Prescribed in national legislation which is transposed from the

EU Directive

Initiative

Prescribed in the national waste management plan, which is

drafted according to law
Industry pledge
Government blueprint (and implementation plan)
Executive Order (but not intended to be legally binding to the
municipal government)

Please refer to Appendix A References for Table 1 and 2

[2]
[3]
[4]
[5]
[6]

Municipalities

Countries

Table 1. Summary of Worldwide Examples for Overall C&D Waste Reduction Targets

Baseline Year

Actual
C&D Waste Change

Legend

2009

12.7% in 2010

[3]

50%, by 2010

N/A

[3]

2006-2007

60.2%, by 2050

N/A

[3]

Germany

1995

50% , by 2005

2009

+2.3%, by 2011

[4]

UK

2005

50%, by 2015 11

N/A

[4]

South Korea

2009

11.3%, by 2015 12

2005

+32% by 2010

[5]

Japan

2010

1,750,000 tonnes,
by 2015 13

2006

-8.9%, by 2009

[5]

Denmark

N/A

2009

82.9%, by 2011

Taiwan

N/A

2007

10.2%, by 2012

Singapore

N/A

2011

+10.2% by 2012

Flanders, Belgium

N/A

2009

2.4%, by 2010

N/A

2009

47.9%, by 2012

N/A

2009

+47.2%, by 2012

Name

Baseline Year

Austria

Sweden

2004

Wales

Queensland,
Australia
South Australia,
Australia

C&D Waste Reduction

Target
7,395,000 tonnes,
by 2016 10

10

There is no percentage goal set by the authorities. However, a declining trend has been detected since 2007. By 2010, total C&DW amounted for 5,997,000 tonnes only.
This is aimed at halving the amount of C&D waste produced at site level (new build projects in particular).
12
This is based on the difference of estimated and actual quantities within the particular year.
13
This is targeted at mixed construction waste (most likely non-inert waste) which segregation is difficult.
11

Countries

Table 2. Summary of Worldwide Examples for Overall C&D Waste Recycling Targets

14
15

Name

Baseline Year

C&D Waste
Recycling Target

Baseline Year
(1)

Actual C&D Waste

Recycling % (2)

Difference
(2)-(1)

Legend

European Union
(EC Directive)

2008

70%, by 2020

46%, by 2006 14

[1]

Austria

EC Directive

2006

92.6%, by 2010

+33.1%

[2]

Belgium

EC Directive

1999

67.5%, by 2004

-6.3%

[2]

Germany

EC Directive

2009

89%, by 2011

0%

[2]

Norway

EC Directive

57%, by 2011

[2]

Netherlands

2006

95%, by 2021

2006

94%, by 2010

+4%

[3]

Sweden

70%, by 2020

N/A

[3]

Denmark

90%, by 2012

2009

91%, by 2011

-5%

[3]

Finland

2006

70%, by 2016

26.3%, by 1999

[3]

Wales

2006-2007

90%, by 2020

89.5%, by 2006

[3]

UK

2008

50% of 2008 level,

by 2012

64.8%, by 2006

[4]

Singapore

2001

90%, by 2012

2008

99%, by 2012 15

0%

[5]

South Korea

2009

98%, by 2015

2005

98.2%, by 2010

+1.5%

[5]

C&D waste recycling target includes only material recycling (composting included).
This is based solely on "construction debris". Energy recovery from incineration is calculated as well.

10

Municipalities

Countries

Table 2. Summary of Worldwide Examples for Overall C&D Waste Recycling Targets (Continued)

16

Countries

Baseline Year

C&D Waste
Recycling Target

Baseline Year
(1)

Actual C&D Waste

Recycling % (2)

Difference
(2)-(1)

Legend

Japan

2005

>94%, by 2015

2006

93.7%, by 2009

+1.5%

[5]

USA

50%, by 2015

N/A

[6]

Taiwan

N/A

2003

91%, by 2007

+8%

California, USA

50%

[1]

Brussels, Belgium

90%, by 2020

N/A

[3]

Flanders, Belgium

90%, by 2020

2009

97.4%, by 2010 16

-1.3%

[3]

New South Wales,

Australia

2000 (65%)

76%, by 2014

2007

72.5%, by 2009

+5.5%

[3]

Victoria, Australia

2005 (59%)

80%, by 2014

2005

83%, by 2011

+25%

[3]

2008 (35%)

75%, by 2020

2009

53%, by 2012

+16.3%

[3]

2009 (80%)

90%, by 2015

2009

80.2%, by 2012

+3.7%

[3]

2010 (29%)

75%, by 2020

38%, by 2012

[3]

New York, USA

60%

Florida, USA

39%, by 2012

Massachusetts, USA

80%

Queensland,
Australia
South Australia,
Australia
Western Australia,
Australia

This is based on all construction activities, and includes hazardous waste.

11

4.2 Key Drivers Adopted to Reduce C&D Waste

Table 2 shows the many countries and cities that have moved forward and made significant
progress. Various types of drivers have been adopted by countries and municipalities
worldwide to reduce C&D waste and maximise material/resource recovery in the same
context. The drivers are described below in Table 3 categorised into 13 key types:
Table 3. Summary of Key Drivers in Reduction of C&D Waste

1. Landfill Charge or Landfill Ban

Also called waste tax, landfill tax or landfill levy, this is a common economic incentive to
divert waste from final disposal (either landfill or incineration) to other treatments which
helps to shift the burden and responsibility for waste management away from local
government and towards industry. This is a way to raise revenue to provide funding for
waste minimisation initiatives.
Examples: EU Countries, United States, Canada, Australia, New Zealand, Hong Kong
2. Government Procurement Policies
These policies promote the reduction and recycling of C&D waste and expand the
market for leaner construction methods and recycled content materials.
Examples: Australia, the Netherlands, United States (varies with states), United
Kingdom
3. Specify/Incentivise Leaner Construction
Change codes and use of precast, modular methods are encouraged. Also include the
use of drywall and approval of recycled aggregate. Buildability score schemes are used.
Example: Singapore
4. Specification for Recycled Materials
This promotes the recycling of C&D waste to expand the market for recycled materials.
Examples: Germany, Australia, United Kingdom, United States (Florida and California),
Japan and South Korea
5. Product Stewardship Schemes
Incentives and standards are provided for manufacturers in the monitoring and
management of manufacturing process to minimise waste generation to incentivise the
take back of products and packaging materials.
Examples: United Kingdom (Forest Stewardship Scheme), and PVC Stewardship
Scheme in Australia
6. Waste and Recycling Facilities License
Legislative framework established for promoting recycling infrastructure and business
development for recycled C&D waste materials
Examples: Australia (New South Wales), United States
7. Waste Recycling Law
Mandatory requirement for the recycling of specific materials; usually implemented in
conjunction with the ban of landfill for those particular materials
Examples: United States (Florida and California), Canada, Japan

12

8. Producer Responsibility Schemes

Also called polluter-pays instruments, these help to shift the burden and responsibility
for waste management away from local government and towards industry. Such
schemes are widely adopted for packaging and electronic products in different
countries, and it is worth learning from their experiences.
Examples (C&D waste-specific): Germany, Australia (New South Wales and Western
Australia - mainly for packaging, PVC and treated timber), Canada (Ontario), Waste
Electrical and Electronic Equipment (WEEE) Directive of the European Union for
electrical and electronic products, the Netherlands
9. Demolition requirements
Demolition contractors are required to separate and recycle specific construction wastes
and to submit a site demolition plan together with the registration of demolition
operators, noise regulations and countermeasures for hazardous waste such as
asbestos for demolition projects
Examples: Japan, United Kingdom, Hong Kong (Voluntary Guidelines for Selective
Demolition and Onsite Sorting)
10. Funding and Grants for Research and Development
Government supports development of waste management facilities and the technology
of recycling as well as adoption of leaner, less waste producing, methods and materials.
Example: The Netherlands
11. Eco-Tax
Tax on products which pollute the environment which discourages the purchase of
environmentally unfriendly products
Examples: United Kingdom, France, the Netherlands, Denmark, Sweden, Australia,
New Zealand
12. Green Building Schemes
Green building schemes like BEAM Plus, LEED and others incentivise the adoption of
precast, modular or other less on-site waste producing methods. Credits are given for
recycled content materials and for recycling C&D waste, which encourages engaging
the entire supply chain to meet the targets.
Examples: Hong Kong, United States, China, Singapore, Australia, United Kingdom
13. Product Ecolabelling Scheme
Ecolabelling schemes are designed to display the environmental performance of
products to encourage purchasers looking for green products. Successful schemes
often take a life-cycle analysis approach showing recycled content.
Examples: European Union and Taiwan

13

4.3 Summary
A review of worldwide situations on C&D waste shows that countries and municipalities
which set targets have the most impact in waste reduction or recycling. The findings indicate
an interesting phenomenon; waste reduction tends to be driven by initiatives, while recycling
(which includes reuse of materials) is mandated by legislation.
In the majority of cases, C&D waste reduction has been achieved although in countries like
Korea and Singapore and municipalities like South Australia C&D waste has increased this
may be due to economic growth factors.
C&D recycling targets are either mandated through wider directives (like the EU directive) or
national waste management plans. Recycling levels achieved are 57-99%, although there
are some lower level exceptions like Finland, Western Australia and Florida. Overall, though,
this suggests that 90% levels are achievable, assuming that the waste is sorted and that
there are sufficient outlets for reuse or for recycled materials.
Of the key drivers listed, the following are pertinent to Hong Kongs needs:

Landfill charge
Government procurement policies
Specify/incentivise leaner construction
Specification for recycled materials
Waste and recycling facilities license
Waste recycling law
Demolition requirements
Funding and grants for research and development
Green building schemes

14

5 Recommendations
In this chapter, we focus on the policies and regulations that need to be established to
provide a solid C&D waste management framework for the industry. The technical aspects
will be reported separately on the development of new materials derived from C&D waste
and the use of these products in the design, engineering and construction industry.
The recommendations are categorised in their respective areas according to the 3Rs
Principle.

Reduce avoid waste in the first place

Reuse reuse whatever can be reused, preferably back to its original purpose
Recycle where materials cannot be directly reused, find innovative ways to recycle
the waste back into resources

5.1 Reduce
5.1.1

Review of Current Landfill Charges

The Construction Waste Disposal Charging Scheme came into operation in December 2005.
Table 4 shows the C&D waste charges for all government waste disposal facilities including
public fill, sorting facilities, landfills and transfer facilities.
Table 4. Government Waste Disposal Facilities for Construction Waste and Charge Level

Government waste
disposal facilities
Public fill reception facilities
Sorting facilities
Landfills
Outlying Islands Transfer
Facilities

17

Type of construction waste accepted

Consisting entirely of inert construction waste
Containing more than 50% by weight of inert
construction waste
Containing not more than 50% by weight of inert
construction waste
Containing any percentage of
inert construction waste

Charge
per tonne
$27
$100
$125
$125

The charges for landfill and public fill have not been reviewed since its implementation.

17

Environmental Protection Department (2005). Construction Waste Disposal Charging Scheme.

Retrieved from Construction Waste: http://www.epd.gov.hk/epd/misc/cdm/scheme.htm#d

15

As shown in Figure 2 below, the Charging Scheme had significant effect reducing the total
amount of C&D waste going to both landfill and public fill reception facilities to almost half
immediately after its implementation in 2006. It has also increased the proportion of
materials going to public fill reception facilities to over 90%. The rising trend after 2007 is
mainly attributed to the Ten Major Infrastructure Projects which were announced in the 20072008 Policy Address. As of 2011, four of these Projects have already commenced their
works so the increase in C&D waste quantities in the last 5 years can be explained.
Figure 2. Statistics of construction waste disposal at landfill and public fill reception facilities (1991 2011)

70000
Construction
Waste Disposal
Charging Scheme
came into force

Tonnes per day

60000
50000
40000
30000
20000
10000
0
Public fill
facilities
Landfill

2003

2004

2005

2006

2007

2008

2009

2010

2011

44982

49398

52211

25759

19945

24918

39063

35781

48164

6728

6595

6556

4125

3158

3092

3121

3584

3331

(Year)

The impact of a landfill charge is apparent as an economic instrument to reduce dependency

on landfill and to increase the level of waste recovery. In Denmark, it has been shown that
there is a correlation between the landfill tax rate and the recycling rate 18.
Based on this evidence and from stakeholder views collected, an increment of the landfill
charges to HK$125, HK$700 and HK$1,200 per tonne in 2015, 2020 and 2025 respectively
is recommended. It is intended to progressively widen the price gap between charges of
public fill and sorting facilities and landfills from 2015 onwards so as to divert C&D waste
from landfills and encourage the industry to actively sort and recycle their waste.
Assumptions are:

Base year is set in 2015 considering that the report may only be available for public
consultation by 2014-2015. (*)
Transportation costs are not included in the calculations.
Loading per trip would be 8 - 12 tonnes, using a 20-tonne truck, so an average
amount of 10 tonnes per truck is adopted.
Landfill, sorting and public fill charges in 2015 are based on the current price setting
of Construction Waste Charging Scheme. 2020 and 2025 charges are based on

18

European Environment Agency. (2003). Case studies on waste minimisation practices in Europe.
Copenhagen, Denmark: Henrik Jacobsen, Merete Kristoffersen.

16

proposed costs in Intermediate and Worldwide Benchmark Scenario (see Figure 3

below).
Cost-basis Scenario
800
600
400

Intermediate Scenario
1200

Public Fill

Public Fill

1000

Sorting
Facilities
Landfill

800
600

Sorting
Facilities
Landfill

400

200

200
0

2013 2015 2020 2025

2013 2015 2020 2025

Sorting
Facilities
100

Landfill

2013

Public
Fill
27

Sorting
Facilities
100

Landfill

2013

Public
Fill
27

125

2015 (*)

27

100

125

2015 (*)

27

100

125

2020

200

400

600

2020

400

500

700

2025

300

500

700

2025

500

700

1000

125

Worldwide Benchmark Scenario

1500
1000

Public Fill

Figure 3. Three Proposed Scenarios

for Landfill, Sorting and Public Fill
Facilities (2013-2025)

Sorting
Facilities
Landfill

500
0

2013 2015 2020 2025

Sorting
Facilities
100

Landfill

2013

Public
Fill
27

2015 (*)

27

100

125

2020

400

600

900

2025

500

700

1200

125

It is projected that, in 2020, factoring in inflation, the price difference offsets the cost of
recycled aggregates ($200-$300). However, in 2025, the price gap is expanded wide enough
to drive the industry to turn to sorting facilities and allow sufficient room for revenues (>$200$300) in the production of recycled products, such as recycled aggregates.

17

Figure 4 below summarises the projected price differences from 2015 to 2025.
Figure 4. Projected Price Differences Between Sorting and Landfill Charges (2015-2020)

HK$1,200
Charges per tonne

HK$1,050

Intermediate
Scenario

HK$900

$500
(71.4%)

HK$750
HK$600

Worldwide
Benchmark
Scenario

$200
Cost-based
Scenario

HK$450

(40%)

HK$0

Sorting
facilities
Landfill
Price
difference

HK$300
HK$150

LEGEND

$25
(25%)

2015

2020
Year

2025

Base year is set in 2015 considering that the report may only be available for public consultation by
2014-2015.

From discussions, stakeholders in general could not reach a consensus on the exact landfill
charge rate but the common views expressed were:
a. Government should not solely depend on the landfill charge as the driver for
reduction of C&D waste, instead an overall strategic plan is needed to include other
policies, and support should be made available for the industry in a long run.
b. Transportation costs, which are not factored in the above proposed charges, should
follow:
Transportation costs to public fill
bank /recycling facilities plus the
recycling cost

<

Transportation cost to the landfill

plus the landfill charge

c. The total cost of recycling should be significantly less than that of disposing in
landfills in order to provide sufficient economic incentive to the industry to reduce and
recycle construction and demolition waste i.e. with a difference of $300 to $500 per
tonne of C&D waste.
d. The implementation process should allow a grace period or transition period for the
industry to prepare for the significant cost change. For example, tenders awarded
before the raising of landfill charge should be provided with trip tickets of the original
cost as the additional cost has not been considered during the tendering process.
e. Increase in landfill charge may lead to increase in illegal dumping, thus the
Government should consider enforcement action for the policy. Also, attracting new
business to Hong Kong and licensing of recycling and alternatives to landfill need to
be given priority.
f. The majority of C&D waste going to landfill is packaging materials, paper, plastics
and contaminated or broken building products, which may be of similar material types
to municipal waste. There are concerns whether the level of landfill charge for C&D
18

waste should be related to municipal waste. If the landfill charges for C&D waste and
municipal waste are of a significant difference, it may lead to adding practical
difficulties enforcing the type of waste at the landfill reception. However, learning
from the experiences of overseas, a large number of cities and countries endorsed
different landfill charge rates for different types of waste.
g. It has been suggested that if the first review of the landfill charge to be conducted in
2014, the charge on public fill reception facilities, sorting facilities and landfill should
be established on a cost-basis, so as to reduce the impact of the charge to the
construction industry and the general public. However, after few years of the review
(i.e. 2025), the industry should have sufficient time to improve their operation by then
and more recycling facilities would be available. Then, the landfill charge rate would
then be increased to an international benchmark level.
h. On top of transportation and labour costs, the Government should also consider the
cost for inert materials processed into recycled aggregates when deciding the landfill
charge and public fill charge rates. The estimated cost for further treatment of
recycled aggregates will be $200 - $300 per tonne. If the public fill charge is too low,
it will be very difficult for the recycling industry to collect sufficient concrete waste for
instance to make recycled aggregates unless the Government wants to subsidise
the aggregate recycling.
i. To magnify the effect of the escalated landfill charges, the Government should
introduce an incremental Environmental Cost, on top of administrative and
operational costs, at a certain percentage starting from 2016, as a sustainable source
of financial support to the recycling industry. It would be allocated to a proposed C&D
Waste Sorting Fund, subsidising acquisition of sorting equipment or machinery so as
to boost for a more competitive recycling market, and supporting anti fly-tipping
campaigns.
j. The revenue collected from the landfill charges should be used to subsidise or
supplement the recycling industry, in order to ensure the long-term development of
secondary (i.e. recycled) construction products from C&D waste. Provision of zoning
and suitable land also needs to be subsidised by Government in order to enable
quicker establishment of new businesses.
In summary, we recommend that landfill charges should be increased to HK$125, HK$700
and HK$1,200 per tonne in 2015, 2020 and 2025 respectively.

19

5.1.2

Revitalisation of Existing Buildings to Reduce Demolition Waste

In overseas examples, many old industrial buildings and residential buildings have been
revitalised and renovated instead of being demolished in order to minimise the
environmental impact. In Hong Kong, the Government has already implemented several
policies to promote the revitalisation of industrial buildings in the Kowloon East Area, for
example waiver of Land Premium and relaxation of Building Ordinance requirements.
However, the cases for successful revitalisation of buildings are still limited as it is found that
there are a number of economic factors supporting rebuilding such as significant increase in
plot ratio and flexibility in the design and use of new buildings. Nonetheless, we recommend
that the practice of revitalisation be considered as a long term strategy.

5.2 Reuse
5.2.1

Information Sharing Platform

Some inert materials like sand from demolition sites can readily be reused as fill materials at
other construction sites or public works. Such a strategy is now generally practiced at all
Government works and public projects. Stakeholders suggested that an online information
sharing platform could be a useful channel for the industry to find out where and when to
source these materials for reuse and reduce the public fill load as well as helping to save
logistics and storage costs for both contractors and the Government. We recommend the
setting up of such an online platform which would be operated by the Government.
5.2.2

Fully Utilise Inert Materials from Public Fill Reception Facilities

The Government is currently using inert materials from Public Fill Reception Facilities to
produce Grade 200 rocks in Tseung Kwan O Fill Bank for public works projects. However,
since Grade 200 recycled rockfill is not specified in private sector development projects to
avoid competing with the quarry products in the private market, only about 900,000 tonnes
have been produced as of April 2013. This quantity is roughly 5% of the annual quantity of
inert materials sent to public fill reception facilities. Stakeholders have requested the
Government to consider allowing Grade 200 recycled rockfill to be used in certain types and
scale of private projects to increase the demand.
Other than Grade 200 recycled rockfill, the Government set up a pilot recycling plant in Tuen
Mun Area 38 in 2002 to recycle hard C&D materials into 40mm, 20mm, 10mm and 5mm size
recycled aggregates for use in public works projects. Due to lack of demand, the plant was
closed around 2004. At present, there is not enough space in the two public fill banks for
setting up similar recycling facilities.
However, the Government may consider recycling broken concrete and other inert hard
materials into recycled aggregates of different sizes for use as back filling materials,
substrates, or raw materials for recycled aggregates. The cost of removing cement paste
from the surface of recycled aggregates is high at the moment, and it is estimated that the
cost of concrete (Grade 30 and above) made from recycled aggregates may be 40% to 50%
higher than virgin aggregates. The recycling industry is seeking technology to achieve more
economical removal of cement paste from waste concrete to produce recycled aggregates at

20

a competitive price. Detailed discussion on the possible applications for these recycled
materials will be discussed in the technical report.
We recommend the use of Grade 200 recycled rockfill in private sector projects and support
for advancing the level of technology in producing recycled aggregates of varying sizes.
5.2.3

Development of Trading Channels for Unused Construction Materials and

Products

Unused construction and materials can often be put to good use if the proper parties are
engaged and channels established. In particular the reuse of second-hand furniture is viable
due to the turnover of companies in commercial premises. Certain organisations in the civil
sector have established operations in this area 19 . We recommend that the Government
support the establishment and operation of trading platforms for construction materials and
products, and office/residential items like furniture and products. Although there are some
concerns on the quality assurance and validity of materials and products to be reused, it is a
possible means to support the underprivileged and to establish a culture for reuse and
recycling in society.

5.3 Recycle
5.3.1

Green Procurement and Specification in Government Projects

Government procurement policy together with specifications on recycled products forms one
of the crucial driving forces in the market to encourage the use of recycled materials in
building and civil works projects. The joint green procurement circular issued by Environment
Bureau and Development Bureau in January 2011 sets out the existing framework for
procurement of new recycled and other green materials in public works projects. According
to the joint circular, the existence of at least one supplier of recycled/green materials will
suffice for trying out the use of the materials in public works projects. Wider use of the
recycled/green materials will be considered when there are at least two suppliers in the
market. If there are at least three suppliers in the market to meet the anticipated demand
and the technical performance is confirmed, full implementation of priority use will then be
considered in public works projects. Individual technical specification will be developed for
any material/product once it is identified for the trial use.
Through the Development Bureau (DEVB), the Government has already laid down some
specifications allowing the use of recycled materials. For example, in construction projects,
Construction Standard CS3:2013 Aggregates for Concrete (May 2013) approves the use
of recycled aggregates in non-structural applications. Other than using recycled aggregates
in concrete, other specifications for using recycled aggregates in pipe bedding and general
filling have been included. Furthermore, other recycled materials or products are covered in
the current General Specification for Civil Engineering Works which includes:
19

Examples of NGOs and social enterprises collecting and distributing second hand furniture and
products: Cross Roads http://www.crossroads.org.hk ; Chu Kong Plan
http://www.chukongplan.org.hk/2hand-shop.html; IRI -
http://www.iri.org.hk/2nd_shop_team.html; and Green Dot Home http://www.green-dothome.com.hk

21

Recycled rock fill materials (i.e. recycled rock or inert C&D materials)
Concrete paving blocks containing recycled aggregates and recycled glass
Reclaimed asphalt pavement in wearing course and base course materials of
carriageways.

The next step for the Government to consider expanding the green procurement circulars
scope to private projects to significantly increase the use of recycled materials in the market.
In reviewing the worldwide context on this area, it is found that the recycled materials are
mainly specified in public works, like roads and bridge works and a few overseas examples
of specification requirements can be found in Table 5. More details on the possible green
specification for recycled materials and their applications in Hong Kong will be discussed in
the technical report.
Table 5. Overseas Specifications on Use of Recycled Materials for Public Works

Country/City

Specifications

United
Kingdom

United States

Pavement construction for

highway applications
Asphalt concrete
Portland cement concrete
Granular base
Embankment or fill
Stabilised base
Flowable fill
Pavement, earthworks and
drainage
Roadworks and bridgeworks

Australia (New
South Wales)
Australia
(Victoria)

Highway works
Roads and bridges

Recycled Construction Materials

-

Reclaimed asphalt
Recycled concrete aggregate
Recycled aggregate
Reclaimed asphalt pavement
Roofing shingle scrap
Reclaimed concrete

Crushed concrete, brick and reclaimed asphalt

blends
Crushed rock
- Crushed scoria
Crushed concrete - Sands for sprayed
for pavement subbituminous surfacing
base
- Recycled asphalt
Cementitious
product
treated concrete

Apart from relaxation in procurement strategies allowing for the use of recycled materials in
certain types of construction projects, we recommend that Government provide more
comprehensive specifications detailing physical properties and green requirements so that
the recycled product applications are standardised and can be regulated to strengthen the
contractors and end-users confidence.
5.3.2

Regional Sorting and Storage Facilities

The existing centralised sorting facilities in Hong Kong are considered to be inefficient and
insufficient in driving the recycling of C&D waste. It is recommended that there should be
more extensive and careful sorting and storing practices at the public fill banks, so that
different grades of concrete and rocks can be directly reused as near virgin materials for
filling material, non-structural concrete products and recycled aggregates.
In order to minimise the burden on current public fill banks and landfill, more regional sorting
facilities should be built in different districts. Areas where sea transportation is available
22

should be exploited to reduce the need for road transportation thereby reducing the impact
to the surrounding urban areas. Locations suggested by stakeholders for regional sorting
facilities include:

Shek O
Outlying Island (utilising water transport)
Tuen Mun (next to recycling facilities and landfill)

It is recommended that the Government should set up strategic areas for C&D waste sorting
& storage facilities and treatment (i.e. recycling facilities) in the above places such that the
impact to the neighbouring environment can be minimised. This is further discussed in
Section 4.3.5.
5.3.3

On-Site Waste Management Plans and Reporting

In order to set up on-site C&D waste policies and to drive on-site reduction and recycling of
C&D waste, an onsite waste management plan is an effective tool. Since 2000, Waste
Management Plans are a requirement in public works contracts according to Works Bureau
Technical Circular 29/2000. The latest Government guidelines regarding Waste
Management Plans were rolled out in 2006 in the Environment, Transport and Works Bureau
Technical Circular 19/2005.
Starting from January 2006, ETWB TCW No. 19/2005 states that contractors are also paid
for the implementation of waste management measures (including arranging and conducting
on-site sorting of C&D materials, and arranging recycling contractors to collect the sorted
reusable and recyclable materials) under the Pay for Safety and Environment Scheme. For
overseas examples, the UK 20 and Japan cases 21 are worth considering.
We recommend that Waste Management Plans be mandated for both private and public
projects and that a requirement is imposed on contractors to submit detailed reports and
quantitative information on waste generated on construction sites to substantiate
achievements of the plans. More details on the waste management report and technical
details involved in onsite sorting procedures will be discussed in the technical report.

5.3.4

Government Funding Support

Currently, there is only limited funding support for waste treatment and recycling facilities in
Hong Kong. The application for environment-related funding usually involves complicated
procedures and a long approval time. The Environment and Conservation Fund (ECF) is
specifically for Community Waste Recovery Projects with the following application details:
20

The UK Environment Agency has the authority to enforce its applications through penalties and
prosecutions. According to the Site Waste Management Plans Regulation 2008, all construction
projects worth over 300,000 are required to submit a plan which includes: types of waste removed
from the site; identity of the person who removed the waste and their waste carrier registration
number; description of the waste; site where the waste was taken to; and environmental permit or
exemption held by that site.
21
The Construction Material Recycling Law of Japan also promotes recycling by making it obligatory
that designated construction materials used for construction of the specified size or larger are sorted
and demolished at the construction site and resulting wastes are recycled.

23

Only local non-profit making organisations (e.g. community bodies, green groups)
are eligible to apply.
Normally, grants for each project will not exceed HK$500,000. Funds may be
granted for full or partial support of projects.
Projects applying for grants exceeding HK$2,000,000 will need to be approved by
the ECF Committee.

In order to speed up the development of the waste treatment and recycling industry in Hong
Kong, we recommend that financial support should be provided by the Government for the
industry to import new technologies, conduct research and development projects on the
applications for the recycled products. Based on overseas research, we propose the
following sources of support be set up.
Table 6. Summary Table of Financial Support Sources

Financial sources
Extension and
Enhancement of ECF

Details
-

The funding should be open to private companies in

establishing waste recycling or sorting facilities.
The funding should be increased to at least $1,000,000
per project, in the view of the cost of existing
technologies in the treatment or recycling of construction
and demolition wastes.

Setting up a Waste Fund

from the revenue
generated from the
landfill charge

With the increase in landfill charge, a significant amount

of revenue will be generated and thus should be
reinvested back to the industry to sustain the
development of the local waste and recycling industry.

Operational subsidies
for facilities

Research and
Development Funding

Government should consider providing subsidies to the

industry in terms of the total amount of waste treated
within the facilities and use this as a measure to control
and monitor the performance and work quality of the
recycling facilities.
R&D is needed for recycling technologies and industry
standards or specification for the use of recycled
materials in order for the industry to adopt recycled
materials. Government should consider setting up a
specific R&D fund for this type of projects, which may be
conducted by industry bodies or associations as well as
academic institutes.

5.3.5

Land Policy

According to research 22 , the operation of a C&D recycling facility requires a minimum

allocation of 4000 m for equipment and a similar area for processed materials. The EcoPark
(Chinese: ) located in Tuen Mun Area 38 is first of its kind in Hong Kong and is more
or less an industrial park exclusively for waste recycling and environmental engineering. The
lots in EcoPark are tendered for specific use to recover materials and recycling of local
22

Peng, C. L., Scorpio, D. E., & Kibert, C. J. (1997). Strategies for successful construction and
demolition waste recycling operations. Construction Management & Economics, 15(1), 49-58.

24

wastes and comprise areas of 4,000 to 6,000 m for setting up recycling facilities, which are
below the minimum operational requirements.
Learning from the past experience of Tuen Mun District 38, recycling facilities are usually
labour-intensive and face difficulties to be financially sustainable. Table 7 below summarises
the operational details of the Tuen Mun Area 38 recycling plant:
Table 7. Summary of Operational Details of Tuen Mun Area 38 Recycling Plant

23

Recycling Plant at Tuen Mun District 38

Operation Period
Received waste
Requirement of
waste
Applications

Properties

Cost

Limitations

July 2002 to June 2005

20% hard inert C&D waste for making recycled aggregate
Other 80% too fine or made up of mud that ended up in landfill
Size of concrete waste limited to a minimum of 250mm or above

New concrete (1%) as foundation, retaining wall, ground

beam, pile cap
Drainage surround and haunching (15%)
Rockfill / filter layer (over 50%)
Subbase (15%)
Paving blocks (20%)
Differs from natural aggregate by:
Higher water absorption rate
Higher demand for water
Longer mixing time
Operational cost increased
Operational cost: HK$40 per tonne (including testing,
management and labour cost)
Capital cost of the plant is about HK$25,000,000
1. Intake from private sector normally needed for further
sorting, which increased the cost of operation.
2. In demolition process, concrete waste is often dropped from
height which significantly reduces the size of the concrete,
thus not meeting the requirement of the recycling facility.
3. During the salvation of the reinforcing bars, the size of the
concrete waste was often reduced to below 250mm.

Our recommendations based on collected views from stakeholders from the recycling
industry and others on future land policy for recycling are:

The leasing period for such type of recycling facilities should be longer, i.e. at least
10 to 15 years.
The current rental rates for EcoPark are high. The Government should consider
lowering the rate or to provide subsidies to the industry in order to ensure the
sustainability of those facilities.
The designated areas should have adequate spacing for setting up large scale C&D
recycling facilities.
The Government should consider providing different locations for recycling facilities.

23

Tam, Vivian W.Y. & Tam, C.M. (2006). Evaluation of existing waste recycling methods: A Hong
Kong study. Building and Environment. 41. 1649-1660.

25

Governments overall future land policy will be very important to ensure that the
environmental impacts to different districts in Hong Kong will be kept at minimum. For
example, strategic areas for C&D waste sorting and recycling should be in areas that are far
away from urban areas and can be accessed via sea so that road traffic impacts are
minimised.
5.3.6

Incentive Schemes for Reducing, Reusing and Recycling

From stakeholder discussions, there have been proposals that a quota system for the landfill
charge of construction waste could be developed, in which construction sites would have a
specific quota for waste generation (depending on site area). If construction sites do not
\exceed the quota for the waste generation, a lower rate of landfill charge would be charged.
However, practical difficulties may be encountered in the implementation of such an
incentive scheme as there is no current benchmarking on the rate or volume of total waste
generation per construction site.
Other possible incentives to the contractors and developers can be eco-tax and a
corresponding tax credit scheme, which offers rebates after using a certain portion of
recycled products in construction, so as to promote the use of recycled products in
construction projects.
We recommend that Government consider these options as incentives for the industry.
5.3.7

Cross-Boundary Government Coordination

The HKSAR Government has established an agreement with the Mainland to deliver surplus
materials to the latter for beneficial reuse known as A Cooperation Agreement between the
State Oceanic Administration (SOA) and the Government since 2004. The HK Government
is responsible for all preparatory costs, such as transportation and material unloading.
Taishan, which is located in the Pearl River Delta, has been established as the first standing
reception point of public fill by Hong Kong. In view of the fact that reclamation projects in
Hong Kong in recent years have been reduced, about 10 million tonnes of unused public fill
is expected to be delivered in 2013.
In the long run, the Government should address the externality posed in Mainland in a more
sustainable approach. Therefore, we recommend that closed loop material recycling should
be encouraged. It is intended to maximise resource efficiency and be mutually beneficial for
both Hong Kong and the Mainland Governments. Instead of using the surplus public fill in
Mainland reclamation projects, it should be recycled as green construction products, such as
pre-cast faade for application in Hong Kong in construction projects. The Taishan model
can be used as a reference to establish closer cross-boundary ties with the Guangdong
Provincial Government to formulate supporting policies and subsidies to benefit both
Mainland and local recyclers. Moreover, we recommend that the Government negotiate a
relaxation of import limits of foreign waste, such as waste plastic, with the Guangdong
Provincial Government to alleviate pressure on local recyclers.

26

5.4 Summary of Recommendations

All the recommendations on policies and regulations are summarised in Table 8 below. Their
corresponding importance to the C&D waste reduction strategies and possible
implementation timeline are also proposed, based on the stakeholders discussion.
Table 8. Summary of Recommendations

Recommendations

Importance 24

Timeline

Government projects green procurement

and specification

Short

Information sharing platform on Demolition

and Recycled Materials

Short

Short

Short Medium

Development of trading channels for

unused construction materials and
products

Short Medium

Regional sorting and storage facilities

Medium

Review of Landfill Charge

Medium

On-site waste management plans and

reporting

Medium

Land Policy

Medium Long

Fully utilise inert materials from Public Fill

Reception Facilities

Medium Long

Incentive schemes for reducing, reusing

and recycling of C&D waste

Long

Revitalisation of old buildings to reduce

demolition waste

Long

Cross-Boundary Government
Coordination
Governments Funding Support

6 Likely Challenges to be Encountered

In this chapter we look at the likely challenges to be encountered in three key areas:

Technical challenges
Financial challenges

No. of symbols represents the degree of importance for the policy recommendations, i.e. is the most
important in this case.

24

27

Public education challenges

6.1 Technical Challenges

6.1.1

On-Site Difficulties

Considering the onsite or offsite reuse of building materials, the size and dimension of
product components and material specifications are often not standardised, which makes the
reuse of these products difficult. There is usually insufficient storage space for recovered
products. Building contractors and engineers will also lack confidence in using second hand
or unused construction materials or products from other projects due to the lack of detailed
knowledge of the products properties and history of use (this may be important, for example,
if the component has been subject to fatigue loading) and quality assurance.
6.1.2

Deconstruction

Due to the robustness of products in the deconstruction process, many lighter products
would not survive the deconstruction process, or are significantly contaminated.
Deconstruction as opposed to demolition has significant impacts on the health and safety
precautions required. In addition, there are practical difficulties in deconstructing composite
components. Overall, demolition programmes are too short to enable contractors to
deconstruct buildings
6.1.3

Communication and Training

Often, within the tight timeframe for construction projects, there is reduced concern for
environmental measures and waste reduction and an on-site Waste Management System
which involves active participation from different parties (contractors and sub-contractors),
will require extra time and efforts to ensure targets and best practices are communicated
and implemented. Changes in design during construction phase can also lead to the
generation of greater volumes of construction waste than expected. In general, there is a
lack of environmental training for construction workers, designers, developers and other
stakeholders in the construction process

6.2 Financial barriers

6.2.1

Economic Incentives

In tender or procurement requirements, requirements on material utilisation are generally not

stated thus contractors and sub-contractors do not have any incentive to minimise waste. In
addition, in private projects, the design and specifications of materials are often unique and
the cost of transportation and storage of the waste is often high. Therefore, the reuse of
some building materials and products is not economical. Space is also a cost factor as with
limited size of construction sites, it is generally observed that the storage of reusable
materials on site is not feasible.
The cost of testing to verify and guarantee the physical properties (quality) of the recycled
products, if high, directly affects the incentive to use recycled products.

28

6.2.2

Fiscal Measures

As stated in the previous section, C&D debris processing facilities charge a tipping fee, so
they are generally only economically viable where landfill tipping fees are high enough to
warrant the effort spent in separating and processing the materials.
To counter these disincentives for recycled materials, some governments (such as Australia
and EU) have imposed tax for the use of virgin materials and policies to limit the extraction of
resources, in order to promote the use of recycled products.

6.3 Public Education Challenges

6.3.1

Best Practice Training for the Construction Industry

In terms of reducing C&D waste generation in construction sites, all parties involved during
the construction process need to be well-informed and trained to ensure that waste reduction
policies and recycling targets can be reached. The most important step for recycling of
construction waste is on-site separation. Initially, this will involve training of construction
personnel. Once separation habits are established, on-site separation can be done at little or
no additional cost.
In the current construction practice in Hong Kong, a large number of subcontractors are
involved at different stages of the construction process. While the targets and policies are
set by the developers (and/or the main contractors), training with continuous monitoring and
information sharing is essential for such waste management systems to be successful.
6.3.2

Public Awareness Programme to Reduce Renovation Projects and Promote

Reuse of Interior Works

On top of construction and demolition activities, renovation projects in commercial and

residential sectors also contribute to a significant amount of C&D waste annually. On
average, offices and homes undergo minor renovations every 1 3 years, and major
renovations every 5 years. Therefore, if the buildings and interiors are designed for reuse, it
will help the public to reduce large amount of waste from the renovation projects. The
Government can also promote a living style of less waste, in particular for home
renovations and reuse of furniture and building products.
6.3.3

Promote the Collection, Reuse and Recycling of Second Hand or Unused

Construction Interior and E&M Materials and Products

The renovation habits of the public can contribute to a significant part of waste reduction in
Hong Kong. There are already some NGOs and social enterprises collecting second hand
products to help the less privileged in Hong Kong, but the promotion and support for this
type of meaningful business are not sufficient.
6.3.4

Training for Recycling Industry on Latest Technology

There is a lack of new technology and research on waste treatment and recycling industry in
Hong Kong. In order to enhance the productivity and quality of the recycling and waste
treatment facilities in Hong Kong, the Government should consider cooperating with
29

worldwide governments and industry experts to enhance the knowledge and improve or
update the technologies used in the facilities so as to sustain the long-term development of
the recycling industry.

6.4 Summary
From a technical perspective, the use of recycled materials on-site is constrained by nonstandardised products, insufficient space, lack of confidence in using second hand or
unused construction materials or products. The deconstruction process is complicated due
to health and safety issues and time required. The involvement of all parties on-site is
necessary to communicate and implement best practices and deal with changes in design
during construction phase which can lead to the generation of greater volumes of
construction waste than expected.
Contractors and sub-contractors have little financial incentive to minimise waste due to cost
of transportation and storage of waste, cost of testing to verify and guarantee the physical
properties (quality) of the recycled products, and if landfill tipping fees are not high enough to
warrant the effort spent in separating and processing the materials.
The most important step for recycling of construction waste is on-site separation. Initially,
this will involve training of construction personnel. Once separation habits are established,
on-site separation can be done at little or no additional cost. Training with continuous
monitoring and information sharing is essential for such waste management systems to be
successful.
The public can help reduce C&D waste from the renovation projects if properly educated.
The Government can also promote a living style of less waste, in particular for home
renovations and reuse of furniture and building products.
In order to enhance the productivity and quality of the recycling and waste treatment facilities
in Hong Kong, the Government should consider cooperating with worldwide governments
and industry experts to enhance the knowledge and improve or update recycling
technologies.

30

7 Conclusions
Solid and practical recommendations have been developed for the Government on initiatives
to increase the reduction, reuse and recycling of C&D waste in Hong Kong.
Our vision is: Use Less, Waste Less Build a Zero Waste Hong Kong
Based on the following recycling targets for C&D waste:

Target 1: By 2020, 95% of all C&D waste will be recovered for re-use or recycling.
Target 2: By 2020, 20% of inert materials will be recycled as secondary construction
materials

In this report, we present 12 recommendations proposed by industry stakeholders on

strategies for minimising C&D waste quantities and maximising its recycling potential.
The underlying principle in all of these recommendations is that economically it must make
sense to the industry to reduce or recycle C&D waste. The economic measures comprise
charging a landfill fee to discourage the industry from disposal via this route and sufficient
incentive for the recycling sector to take up the waste for re-use and recycling. Government
should intervene as needed to correct market forces if the desired outcomes are not
achieved. This can be done through procurement policy, technical specification in works
contracts, land policy for recycling facilities and investment in recycling technologies.
Whilst the industry can, and should, play a role in designing out waste prior to construction
and maintaining best practices on-site involving on-site sorting and storage of waste,
keeping reports and training of site staff, there will still be challenges that require the support
of Government. The latter can facilitate waste exchange through online platforms and
regional sorting sites, connect second-hand agencies with sites and make public fill material
available for site formation and construction works. It is important that the industry realises
that all C&D waste, with appropriate sorting and treatment, can be readily recyclable.
At another level, Government can educate the public to reduce C&D waste by promoting a
living style of less waste, in particular for home renovations and reuse of furniture and
building products. Revitalisation of old buildings rather than demolition should be
encouraged.
Lastly the Hong Kong Government needs to cooperate with the Guangdong authorities to
develop a closed loop economy between Hong Kong and the mainland so that a win-win
situation can be developed with a buoyant building materials recycling industry in PRD
servicing the needs of a healthy construction market in Hong Kong.

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8 Appendix A - References for Table 1 and 2

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