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2011/9/30
1
3R POLICY IMPLEMENTATION IN
MALAYSIA
Strategic
Gap Analysis & Recommendations
Agamuthu P.
Institute of Biological Sciences, Faculty of Science, University of Malaya, 50603 Kuala Lumpur, Malaysia
Tel: +603 7967 6756 Email: [email protected]
Introduction
The Project research theme for Malaysia is “Impact of
3R related policies on-going 3R activities in Malaysia:
Theory and Practice” with the aim of conducting
policy research on reducing gaps between 3R
policies and actual practice.
The Malaysian 3R Research Project will analyze
possible development or impacts of national level
policy in response to specific challenges in priority
policy areas.
2011/9/30
2
3R Approach
The Malaysia 3R Research Project was developed in
4 main stages :-
Stage 1 : 3R Policy Review and Analysis
Stage 2 : 3R Data Collection and Surveys
Stage 3 : 3R Gap Analysis
Stage 4 : 3R Policy Recommendations
Introduction
Solid waste management (SWM) in Malaysia has
become a national concern due to the increasing rate
of municipal solid waste (MSW).
Currently daily generation of MSW is estimated to
have exceeded 28,000 tonnes and with the existing
trend, it is expected to reach more than 38,000
tonnes by 2020.
The increasing solid waste generation in the country
has been a driver behind the development of 3R
policies in Malaysia
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3
3R Gap Analysis
3R Gap Analysis involved analyzing the 3R gaps
between the 3R policy formulation and
implementation in Malaysia and consists of the
following components :-
3R Perception Analysis
3R SWOT Analysis
3R Multi-Criteria Analysis
3R Perception Analysis
The 3R public perception survey was conducted in
two stages namely a preliminary survey of 30 people
and a complete survey of 694 people.
Each survey form contained questions comprising of
various issues pertaining to 3R concept addressed in
the SWMA 2007.
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4
3R Perception Analysis
The 3R public perception indicates that only 42%
currently segregate their waste and only 31% were
aware of the SWMA 2007 though it was gazetted in
August 2007.
In terms of the future direction of 3R and solid waste
management in Malaysia more than 96% of the
respondents agreed that the implementation of the
SWMA 2007 will improve the current situation and
promote a more sustainable waste management.
Public Feedback on SWMA 2007
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5
3R Perception Analysis
In terms of feedback on the Pay-As You-Throw
(PAYT) concept the public perception survey
indicated that a majority of the respondents agreed
that it is a fair system (89%) and its implementation
could potentially reduce solid waste generation in
Malaysia (86%).
However, a majority of the disagreed that PAYT is
suitable to be implemented in Malaysia (66%).
Public Feedback on PAYT
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6
3R Perception Analysis
The comparative analysis of the public respondents
and 3R stakeholder perception generally indicate that
for 3R policy implementation in Malaysia, there is a
high degree of consensus between the public
respondents and 3R stakeholders that Malaysia can
achieve a 22% recycling rate.
Furthermore there is also positive feedback from both
the public respondents and 3R stakeholders that
Malaysia is ready for source separation and that
recycling should be mandatory though it may be
more effective if it was voluntary.
3R Issues and The Perception Issues 3R
Stakeholders
Public
Positive that Malaysians are
ready to separate waste for
recycling
54% 64%
Positive that 22% recycling
target in year 2020 can be
achieved
80% 96%
Agreed that inconvenience is
the factor that hinder
recycling
68% 70%
Agreed that the current rate
of recycling in Malaysia is
low
100% 99%
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7
The Challenges in 3R Implementation in Malaysia
Challenges 3R
Stakeholders
Public
Positive that Malaysians
would be more participative
if recycling is made
mandatory
100% 96%
Positive that additional
charges are necessary to
improve waste management
40% 30%
Agreed that voluntary
recycling is ineffective to
promote recycling
20% 60%
3R Perception Analysis
The implications of these findings on 3R policy
implementation is that 3R initiatives such as source
separation and mandatory have a higher probability
of acceptance from the public and 3R stakeholders
and thus should be implemented the soonest.
Nevertheless 3R policy implementation should also
focus more on awareness initiatives on the SWMA
2007 and its implications to the general public as well
as proceed cautiously in terms of monetary and
financial initiatives to minimize its probability of being
resisted or rejected…
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8
3R SWOT Analysis
Strengths, weaknesses, opportunities and threats
(SWOT) analysis on the 3R Policy Implementation for
Malaysia was conducted based on a ranking of high,
moderate or low for each of the categories below
where the SWOT analysis indicates the following
findings :-
3R Policy Analysis
Strengths
The SWOT analysis generally indicates that the main
strength for the 3R policy implementation is in the
existence of formal policies and legislation on 3R in
Malaysia namely the SWMA 2007.
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9
3R Policy Analysis
Weaknesses
Nevertheless the SWOT analysis also indicates that
there are numerous weaknesses such as the lack of
political will for policy implementation followed by lack
of 3R facilities, 3R capacity building, 3R economic
incentives and government purchasing of recycled
products.
Many of the weaknesses outweigh the strength for
the 3R policy implementation which is the existence
of formal policies and legislation.
3R Policy Analysis
Opportunities
The SWOT analysis indicates in terms of
opportunities there is a high level of awareness for
3R policies followed by a strong willingness for
source separation, mandatory recycling laws and
purchasing of recycled products by the public.
Threats
Finally the SWOT analysis indicates in terms of
threats there is a lack of willingness to pay for better
recycling services by the public and a lack of support
from the producers and industries for recycling.
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10
SWOT Analysis of 3R Policy Implementation
3R
Pol
icy
& L
egis
lati
on
3R P
olit
ical
Will
3R F
acili
ties
3R C
apac
ity
Build
ing
3R E
cono
mic
Ince
ntiv
es
3R G
ov P
urch
asin
g
3R P
ublic
Aw
aren
ess
3R W
illin
gnes
s to
Pra
ctic
e
3R W
illin
gnes
s to
Pen
aliz
e
3R P
ublic
Pur
chas
ing
3R W
illin
gnes
s to
Pay
3R P
rodu
cer S
uppo
rt
+High
+Moderate
+Low
-Low
-Moderate
-
High
Strengths Weaknesses Opportunities Threats
3R Policy Analysis
The implications of these findings on 3R policy
implementation are that 3R policy makers should
consider matching 3R strengths with 3R opportunities
to obtain maximum policy implementation advantage.
This entails the soonest implementation and
enforcement of the SWMA 2007 and the related 3R
policies especially in the area of mandatory source
separation and recycling as well as implementing
initiates for recycled product labeling and marketing. .
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11
3R Multi-Criteria Analysis
A 3R Strategic Consultative Meeting (SCM) for policy makers in Malaysia was conducted where representatives from key of ministries, departments & organizations participated in the 3R multi-criteria analysis e.g EPU, JPSPN, MHLG, DOE
The multi-criteria analysis was conducted using the PROMETHEE (Preference Ranking Organization Method For Enririching Evaluations) method.
PROMETHEE (Preference Ranking Organization
Method For Enririching Evaluations)
PROMETHEE is based on the positive (out-) and negative (in-) preference flows for each alternative in the valued outranking relation to derive the ranking of alternatives.
Decision problems may involve multiple decision makers in the decision process or stakeholders with different interests surrounding the problem.
Using PROMETHEE, ranking of strategies based on multiple conflicting criteria is possible
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The Decision Making Process & Criterion:
Setting weight based on criteria comparison
Setting scores for various strategies based on
Multiple conflicting criteria
Ranking of strategies
Decision Making
Decision makers assigned a weightage to each criteria according to the importance :-
Cost Criterion - Capital & Operational/Maintenance expenses,
Social Criteria - Job creation, accessibility & public acceptance
Government Support – Policy, Funding & Political Will
STRATEGIES FOR EVALUATION
STRATEGY 1
EDUCATION
Billboard
Advertisement
Carnival,
exhibition,
briefing, workshop
Printed matters Electronic
media
Formal
education
(Schools, Uni)
STRATEGY 2
INFRASTRUCTURE Recycling bin Silverbox Recycling Lorry Recycling Van
Recycling/
collection
centre
STRATEGY 3
ECONOMIC Tax Relief
Pay As You Throw
(PAYT) Penalty
Incentives on
Recycled
Products
STRATEGY 4
ENVIRONMENT
Green
Economy
Public
Procurement
Green Product
Labelling
STRATEGY 5
ENFORCEMENT/
REGULATION
(MANDATORY)
Source
Separation
Use of
recycled product
Product with
minimum
recycled
content
Products with
3Rs
indication label
Waste
management
option (e.g.
composting
STRATEGY 6
PRIVATE SECTOR
PARTICIPATION
(VOLUNTARY)
Source
Separation
Use of
recycled product
Product with
Minimum
recycled
content
Products with
3Rs
indication label
Waste
management
option (e.g.
composting
2011/9/30
13
MULTICRITERIA PROMETHEE FINDINGS 1
Based on Table 1, cost criterion is more important than
other criterion.
This can be seen from the weights derived, where, 5
out of 8 decision making units have given more
emphasis on cost CRITERION.
Based on the importance given by KPKT, JSPSN and
EPU, Government support criterion is more important
as compared to cost criterion
DM’s CRITERIA
ECONOMIC SOCIAL GOVERNMENT SUPPORT
Cap. Ex Main.
Ex
Job
Creation
Accessibility/
Convenience
Public
acceptance
Policy Funding Political Will
SWM 0.359 0.220 0.141 0.119 0.053 0.042 0.029 0.038
1 2 3 4 5 6 8 7
DOE 0.359 0.220 0.154 0.124 0.059 0.039 0.021 0.022
1 2 3 4 5 6 8 7
PPSP 0.294 0.243 0.117 0.142 0.075 0.047 0.059 0.024
1 2 3 4 5 7 6 8
MPSJ 0.287 0.165 0.116 0.103 0.107 0.078 0.066 0.078
1 2 3 5 4 6 7 6
KPKT 0.014 0.043 0.041 0.066 0.073 0.169 0.227 0.367
8 6 7 5 4 3 2 1
JSPSN 0.044 0.042 0.086 0.086 0.074 0.184 0.283 0.199
6 7 4 4 5 3 1 2
E-Idaman 0.264 0.195 0.059 0.139 0.209 0.070 0.041 0.022
1 3 6 4 2 5 7 8
EPU 0.18 0.04 0.02 0.04 0.09 0.11 0.12 0.40
2 6 7 6 5 4 3 1
Table 1: Weightage on different criteria
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14
MULTICRITERIA PROMETHEE FINDINGS 2
The importance of criterion varied, group ranking
could not be carried out.
PROMETHEE’s method requires the policy makers to
have a decisive opinion on the importance of
criterion.
In other words, there can be as many DM as one
wants, but when a decision is made it must be an
aggregated one.
MULTICRITERIA PROMETHEE FINDINGS 3
Next PROMETHEE conducted a ranking of strategies by each of the key DM where it provides the preference, indifference, veto threshold and summary of scores for each strategies based on all the 8 criteria provided by the policy maker where higher scores are preferable.
Visually, if a DM wants to minimize capital expenses, a12, a13, a14 and a23 are better strategies with score of 5 but if job creation is important, then, a6 is the best strategy
PROMETHEE allows us to consider all 8 criteria simultaneously and rank strategies...
2011/9/30
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IMPLICATION FOR 3R POLICY
IMPLEMENTATION
The most preferred strategies are Tax Relief, source separation and product with minimum recycled content
The second most preferred strategies are printed matters,formal education (Schools, university etc)& Recycling/collection centre
The third most preferred strategies are transportation, Silverbox , Pay As You Throw (PAYT), incentives on Recycled Products , and product with 3R indication label
The implication of these findings on 3R policy implementation is that 3R initiatives such as tax reliefs, mandatory source separation and voluntary minimum recycled content should be given priority in the initial phases of 3R implementation
3R Strategies & Recommendations
Sustainable 3R policy implementation may require an
innovation in SWM thinking and planning and one
that may be based on dynamic 3R policy systems
rather static 3R policies or plans.
This means 3R policy planning may have to adopt an
interactive approach that considers that some of its
policies and plans may require modification or
reinvention over time to cater for evolving situations
and political and socio-cultural conditions as opposed
to static plans that have to be implemented
irrespective of the situation.
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16
3R Strategies & Recommendations
Consequently this policy reports presents three (3)
main 3R policy strategies and recommendations to
minimize the gap between of 3R policy
implementation as well as to enhance 3R policy
implementation in Malaysia. The proposed 3R policy
strategies and recommendations are :-
Economic Strategy
Educational Strategy
Governance Strategy
3R Economic Strategy
Economic strategies play important role in 3R related
activities since 3R has been considered to be a base
of environmental awareness and a way of promoting
ecological balance through conscious behaviour and
choices.
3R economic strategies in Malaysia is recommended
to integrate economic incentives and penalties such
tax reliefs, pay as you throw (PAYT), fines and
incentives on recycled products to 3R practices.
2011/9/30
17
3R Economic Strategy
Recommendation 1
Tax reliefs for the production and or purchases of products with
minimum recycled content are recommended to be incorporated
in the Malaysian National Budget.
Recommendation 2
An extended producer responsibility (EPR) tax is recommended
to be imposed on products that will potentially generate
significant quantities of waste or that may be considered
consumer generated hazardous waste such as product
packaging, end-of-life vehicles and electric & electronic
equipments.
3R Economic Strategy
Recommendation 3
A Government Green Purchasing Policy is recommended to be
formulated and implemented for key public sector procurement
especially those that are regulated by the Ministry of Finance
(MOF) Malaysia.
Recommendation 4
A detailed feasibility and implementation study on the
application of the pay-as-you-throw (PAYT) programs is
recommended to be initiated before the PAYT is implemented in
Malaysia due to its potential low acceptance level by the public.
2011/9/30
18
3R Educational Strategy
Education has always been an essential tool to
develop a nation and is considered as one of the
most important factor to provide knowledge and
understanding to the community. The education
strategies are grouped into two main streams,
namely the formal education and the informal
education.
3R Educational strategy in Malaysia is recommended
to promote awareness, knowledge and voluntary
participation on 3R both through formal and
information educational systems.
3R Educational Strategy
Recommendation 1
3R promotional material is recommended to be established to
engagement public and stakeholder participation on 3R
awareness and practices beginning with coffee table books and
series of video documentaries on 3R which should preferably be
broadcast at a national level and cover :-
State of 3R practice in Malaysia depicting the good, bad and
ugly.
Good practices of 3R including source separation and recycling
Potential future scenario of 3R implementation in Malaysia –
The Ideal Scenario
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3R Educational Strategy
Recommendation 2
A 3R Corporate Responsibility Accord (3R-CRA) is
recommended to be established to recognize good corporate 3R
citizens in Malaysia with the following features :-
3R-CRA would consist of organizations who are willing on a
voluntary basis to network with each other under the umbrella of
an overseeing agency such as JPSPN to promote 3R initiatives.
Membership to 3R-CRA would require that the organization
publicly commit to 3R sustainability, publish their 3R
performance on a yearly basis and use product from recycled
materials.
Membership to 3R-CRA would result in the overseeing agency
formally acknowledging and supporting members of the 3R-CRA
to other government technical agencies in Malaysia.
3R Governance Strategy
Governance is the sum of organisations, policies
instruments, mechanisms and processes to achieve
policy objectives and targets. 3R governance forms
the framework for 3R policy implementation involving
inter-agencies, multi-stakeholders and cross-sectoral
3R issues.
3R governance strategy in Malaysia is recommended
to adopt a facilitative and partnership approach that
seeks to integrate and coordinate inter-agency and
stakeholder collaboration to achieve 3R policy
implementation with the following recommendations
for implementation :-
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20
3R Governance Strategy
Recommendation 1
A 3R Inter-Agency Strategic Consultative Group (3R-SCG) is
recommended to be established chaired by representative of
JPSPN and consisting of key policy makers from the Economic
Planning Unit (EPU), Ministry of Housing and Local Government
(KPKT), Ministry of Natural Resources & Environment (MNRE),
National Solid Waste Management Department (JPSPN), Solid
Waste Management & Public Cleansing Corporation (PSPP)
Department of Environment (DOE), representative of solid
waste concessionaires, local authorities and NGOs.
3R Governance Strategy
The main functions of the 3R-SAG will be to :-
Coordinate, facilitate and integrate 3R policy implementation in
Malaysia to minimise gaps and enhance existing 3R policy
implementation without limiting or replicating the jurisdiction of
existing ministries/departments or the SWM Corporation.
To review and formulate policies, plans and programmes for 3R
policy implementation in Malaysia.
To establish linkages with regional and international
organisations for the enhancement of 3R policy implementation
in Malaysia.
To promote awareness, education and knowledge in 3R.
2011/9/30
21
3R Governance Strategy
Recommendation 2
A 3R Knowledge Information System (3R-KIS) consisting of a
Geographical Information System (GIS) and Decision Support
System (DSS) is recommended to be established for the
purpose of collating, maintaining, updating and disseminating
data, inventory and studies on 3R in Malaysia and :-
To establish and maintain a database of all data, inventory,
study, reports and publications related to 3R in Malaysia.
To provide a virtual knowledge hub for agencies, organisations,
researchers to enhance knowledge on 3R in Malaysia.
To identify priority research and development areas for 3R
policy implementation in Malaysia.
To provide accurate data and information on the status,
distribution, and activities of 3R in Malaysia.
3R Governance Strategy
Recommendation 3
The following policy planning tools are recommended to be
integrated in 3R policy planning in Malaysia to enhance 3R
policy implementation :-
Stakeholder Impact Assessment (SIA) which is a tool to
integrate stakeholder considerations in 3R policy planning.
Green Economy Assessment (GEA) which is a tool to integrate
green economy credentials and investments in 3R policy
planning.
Strategic Environmental Assessment (SEA) which is a tool to
integrate environmental sustainability in 3R policy planning
2011/9/30
22
Conclusions
The Malaysian strategic policy gap analysis generally
indicates that the main strength for the Malaysian
SWM policies is the existence of formal policies and
legislation in Malaysia namely the SWMA 2007.
However there are also weaknesses such as the lack
of political will for policy implementation followed by
lack of facilities, capacity building, economic
incentives and government purchasing of recycled
products.
Conclusions
Sustainable 3R policy implementation in Malaysia
may require an acknowledgment of the inherent
obstacles in the 3R policy implementation and as
such as may require an innovation in SWM thinking
and planning and one that may be based on dynamic
3R policy systems rather static 3R policies or plans.
Consequently, three key 3R policy strategy
recommendations to minimize 3R policy gaps as well
as to enhance 3R policy implementation are
economic strategies, educational strategies and
governance strategies.
2011/9/30
23
3R Project Team
Prof .Dr. P. Agamuthu (Project Leader)
Dr. Santha Chenayah (Env. Economist)
Dr. Fauziah Shahul Hamid (Solid Waste)
Mr Dennis J Victor (Policy Analyst)
THANK YOU