3r policy implementation in malaysia ... 1 3r policy implementation in malaysia strategic gap...

2011/9/30

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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.

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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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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


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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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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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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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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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%


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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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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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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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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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

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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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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.


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...

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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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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.

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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.


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.

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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.


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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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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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.


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.

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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.


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

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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.

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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

3r policy implementation in malaysia ... 1 3r policy implementation in malaysia strategic gap...

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