NATIONAL ZERO WASTE COUNCIL I PLASTICS ADVISORY PANEL

Regulatory Approaches for Priority Plastic WastesAMENDED, DECEMBER 6, 2019

About the National Zero Waste Council

The National Zero Waste Council, an initiative of Metro Vancouver, is a leadership initiative bringing together governments, businesses and non-government organizations to advance waste prevention in Canada and the transition to a circular economy.

For more information, please visit www.nzwc.ca.

I.Objectives

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I. OBJECTIVESPlasticsserveusefulpurposesandcanbepartofmoreefficientpackagingandproducts,savingenergy,preventingothertypesofwastes,andprotectinghumanhealth.Thatsaid,someusesof(ormismanagementof)plasticcanbeproblematic,andcouldbeaddressedthroughtheapplicationofthe5Rshierarchy–thatis,focusingonmaterialsandproductredesignforsourcereductionandreuse,thenimprovedcollectionandrecycling,andfinallydisposalinaresponsiblemanner.Theobjectivesofthisdocumentareto:

• Identifyaselectionof‘priority’plasticwastes• Suggestspecificregulatorymeasurestoprevent,andbettermanage,thoseplasticwastes

ThisdocumenthasbeencompiledandreviewedbytheNationalZeroWasteCouncil’sPlasticsAdvisoryPanel;aPanelco-chairedbyrepresentativesofMetroVancouverandtheCommunautémétropolitainedeMontréalwhoaremembersoftheCouncil.InformingthisanalysisistheworkoftheCircularEconomyLeadershipCoalition(ofwhichtheCouncilisafoundingmember),theCCMEPlasticsStrategyandtheG7OceansPlasticsCharteraswellasrelevantresearch,analysisandactionsbylocalgovernmentsacrossCanada.Duetotimeconstraints,notallmembersofthePlasticsAdvisoryPanelwereabletoreviewtherecommendationsinfulldetail.Therefore,whilethePanelwasingeneralagreementwiththeoverallrecommendationsmade,itshouldbenotedthattheopinionsexpressedinthisdocumentarenotnecessarilythoseofallthePanelmembersortheirrespectiveorganizations.

II.GuidingPrinciplesandSelectionCriteria

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II. GUIDINGPRINCIPLES&SELECTIONCRITERIA

Theguidingprinciplesandcriteriausedtoselectpriorityplastics,andthesuggestedregulatorymeasures,include:

• SOURCEREDUCTION/PREVENTION:the5Rshierarchyandthepreferredorderofreduction,reuse,recycling,recoveryandresidualmanagement.Historically,mostregulatorymeasureshaveprovideddriversforincreasedrecyclingwhilereuseorsourcereductionhavebeenoverlooked.Inimplementingtheregulatorymeasuresrecommendedinthisdocument,regulatorsshouldincluderequirementsforwastepreventionbyreducingplasticuseatthesource.InordertomeetthetargetsoftheG7OceanPlasticsCharter,mandatoryandincrementallyincreasedrecycledplasticcontentwouldneedtobeimposedonallplasticsmarketedinCanada;

• MUNICIPALIMPACT:theimpactoftheplasticitemsonmunicipaloperations,particularlymunicipallitterandillegaldumping,oronmunicipalwastewatertreatment;

• ENVIRONMENTALIMPACT:impactonthereceivingenvironments,particularlyasacontributortooceanplasticsandimpactonmarinelife;

• ALTERNATIVES:thepracticalavailabilityofalternativestotheplasticmaterialusedintheitem,oralternativestotheitemitself;and

• BENEFITS:economic,environmentalorsocialbenefitsoftheplasticitem.

Otherconsiderationsarelistedbelow.

• OnesizedoesnotfitallNosingleregulatorymethodisuniversallyapplicable.Measuresmayinclude:

o Outrightprohibitionoftheuse/saleofaproductormaterial.o ‘Traditional’ExtendedProducerResponsibility(EPR)makingthe

manufacturer/brandownerofaproductfinanciallyandlegallyresponsibletocollectanddispose/recycletheirproductafteritsuse.Adeposit/refundsystemmaybeused,andtheEPRprogrammayincluderequirementstodrivewastepreventionthroughproductredesign,asopposedtosimplyincreasedrecycling.

o Otherproductstewardshipmodelsinwhichgovernmentstakeonaportionofthefundingand/oroperationofcollectionanddisposal/recyclingofaproductafteruse.

o Taxationorotherincentivesforproductcollection&recycling,orwasteprevention.

o Voluntaryindustryprogramsforwasteprevention/wasterecycling,withpossiblebackdropregulations,ifvoluntaryeffortsareunsuccessfulinagiventimeframe.

II.GuidingPrinciplesandSelectionCriteria

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• UnintendedconsequencesmustbeconsideredForexample,replacingaplasticitemwithanalternativematerialmayhaveanevengreaternegativeenvironmentalimpactsoveritslifecycle.

Therecanalsobeunintendedsocio-economicimpactswhichmaynecessitatesomeexemptionswhenimplementingbansandotherregulations.Forinstance,therearepeopleforwhomstrawsarenecessarynotoptionalandforwhomstrawsofalternativematerialsarenotideal.

• Biodegradable/compostableplasticsarenotacompletesolutiono Certificationstandardsforbiodegradable/compostableplasticsare

currentlysetoutonlyasasingle-level‘pass-fail’system.Thosecertifications(e.g.thoseestablishedbyAmericanSocietyforTestingandMaterialsandbytheBiodegradableProductsInstitute)allowsaplastictobecalledbiodegradable/compostableifitbreaksdowntoaspecifieddegree,overaminimumperiodoftime,whenexposedtoacertainminimumtemperatureandotherphysicalconditions.However,thatrequiredperiodoftimeisusuallylongerthanthenormalresidencetimeofmostcommercialcompostinganddigestionfacilities,andtheminimumrequiredtemperaturesarefarbelowthatofsay,amarineenvironment.

Theresultisthatmany‘certifiedbiodegradable’plasticswillnotsufficientlybiodegradeinexistingcommercialcompostingordigestionfacilities,letaloneinthenaturalenvironmentoflandoroceans.Someadvocateregulationstorequireorganicsprocessingfacilitiestomodifytheirdesignandoperationstoaccommodatethelongerprocessingrequirementsofsomebiodegradableplastics.However,itwouldbemorerealistictoexpectnewproductstobedesignedtofitthecapabilitiesofexistinginfrastructure.Thiscouldbedonethroughrequirementsbyseniorgovernments.

o Thewidespreaduseofbiodegradableplasticscouldhavetheunintendedconsequenceofincreasinglitteringandmarineplastics,ifthepublicmistakenlythinkssuchmaterialswillalwaysbiodegradeinthenaturalenvironment.

• Compromisesmaybenecessary

o Insomecases,areductionofplasticwastemaybepreferable,evenifitresultsinotherenvironmentalimpacts.Forexample,itmaybepreferableandmorepracticaltooffsetGHGs,thantotrytocompensateforoceanplasticspollution.

o Someregulatorymeasuresmayneedpartialinterimfundingfromgovernmentsinorderfortimelyimplementation.

II.GuidingPrinciplesandSelectionCriteria

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• RegulatorymeasuresneedsupportingprogramsSupportingprogramsforregulatorymeasuresincludebutarenotlimitedto:o Institutionalizingsourcereduction/wastepreventionthrough:

• Publicandprivatesectorprocurementpolicies,• Legislatedtargetsforsourcereduction/wasteprevention• Coordinated,harmonizedregulationsincludingEPR(including

requirementsforsourcereduction),andrestrictionsontheuseofunnecessarysingle-useitems.ManyCanadianmunicipalitiesincludingVictoria,Vancouver,MontrealandTorontohavebegunimplementingrestrictionsontheuse,distributionandsaleofcertainsingle-useitems.However,suchrestrictionsareproblematicforretailersandindustriesoperatingacrossmanydifferentlocationswithdifferentrequirements.Whereverpossible,theseshouldbecoordinatedorharmonizedataProvincialorevenFederallevel

o Institutionalizingrecyclingthrough:• Legislatedminimumrecycledcontentrequirementsinindividual

itemsorwithinanindustryoverall(notethatminimumrecycledcontentshouldalsobeconsideredinimplementingEPRprograms),

• Legislatedrequirementsforlabelling/disclosingofrecycledcontento Suitableenforcementtodrivecomplianceo Community-basedsocialmarketingandothermethodstoencourage

voluntarybehaviourchangeo Publiceducationprogramstoincreaseawarenesso Guidelinesby/forlocalgovernmentstoban,restrict,ormanagea

particularplastic

III.PriorityPlasticTypes

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III.PRIORITYPLASTICTYPES(inalphabeticalorder)

Alloftheplasticsinthissectionarepriorities.Rankingthembasedontonnageandothercriteriaisnotfeasiblegiventhetimeavailabletocompletethisdocument,andbecausecredibletonnagedataonmanyoftheseitemsissimplynotavailable.Asaresult,theplasticshavebeenlistedinalphabeticalorder,andnorankingisimplied:

Bags(singleuse)

• Recommendedmethodsofmanagement:a. Controlledusage(e.g.bans/restrictionsonuse)[Localgovernments]b. Economicincentives(e.g.mandatoryfeesatpointofsale)[Localgovernments]c. Increasedlitteringfines[Localgovernments]d. Expansionof/inclusioninexisting/newEPRforpackaging,preferablywithadeposit-

refundrequirement[Seniorgovernments]• Plasticbagsareeasilywindblown,frequentlylittered,andreadilymistakenforfoodby

manymarineanimals.Alternativestosingle-useplasticbagsarewidely-knownandpractical,althoughdependingonthematerialused,asufficientlyhighnumberofreusesmustbemadeinordertooffsetimpactsofproduction.PlasticbagsarecurrentlysomewhatcoveredbyexistingpackagingEPRprograms.Althoughlogisticallymoredifficulttoadminister,adeposit-refundsystemcouldensurehigherrecoveryratesandlesslittering.Specificcollectionordropoffpointsareusedsomewhatsuccessfullyinsomeprovincesalready.Similarly,studies(AustralianStateofVictoria,StateEnvironmentandClimateChangeMinister)haveshownthatchargingasufficientfeeforsuchsingle-useitemsismoreeffectivethanofferingadiscountforbringingareusablealternative.Increasedrequirementsforminimumrecyclablecontentshouldbeconsideredwhereverpossible.Acountry-wideban(asperFrance)couldbeconsidered.

Balloons

• Recommendedmethodsofmanagement:a. Consumereducation/guidesonalternativestoballoons[Localgovernments]b. Controlledusage(e.g.bans/restrictionsonuse)[Localgovernments]c. Increasedlitteringfines[Localgovernments]d. EPRthroughdepositsonhelium-filledballoons[Seniorgovernments]

• Althoughnotalargecontributortomarineplasticsormunicipallitterintermsofweight,balloonshaveanotableanddisproportionateimpactontheenvironment.Releasedballoonshavethepotentialtotravellongdistances,particularlyhelium-filledballoons.TheyhavebeencitedbyorganizationssuchasOceanConservancyandtheMarineConservation

III.PriorityPlasticTypes

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Societyasoneofthedeadliestoceanplasticitemsastheyaremistakenforfoodbymarineanimalssuchasseaturtles,dolphins,andbirds.Whileitmaybechallengingtoplacedepositsonsuchalow-valueitem,theyshouldstillbeconsidered,astraditionalEPRmakesitunlikelythatlow-valueitemslikeballoonswouldbereturnedforrecycling,anddepositshaveworkedwellonotherlow-valueitemssuchasbeveragecontainers.

BottlesandCaps

• Recommendedmethodsofmanagement:a. Sourcereductionthroughthepromotionofreusablebottlesandtheconsumptionof

tapwater[Localgovernments]b. Expansionof/inclusioninexisting/newEPRforpackaging[Seniorgovernments]

• WherebeveragecontainerEPRprogramsexist,recoveryratesarehigh-particularlyinthoselocaleswithdepositrefundsystems.Depositsystemshaveaproventrackrecordofveryhighrecoveryratesoverthelast5decades.PlasticcapsaresomewhatcoveredbythoseEPRprograms,thoughconsistentEPRrequirementsacrossCanada,andeducationtoencouragetheinclusionofcapsintherecyclingofbottlesisneeded.Recyclersandmanufacturersshouldalsoworktoencouragethatplasticcapsandbottlesaremadeofthesameplastic,wheneverpossible.WerecommendnationalharmonizationofEPRforbeveragecontainersandcaps.Increasedrequirementsforminimumrecyclablecontentshouldbeconsideredwhereverpossible.

Cigarettefilters

• Recommendedmethodofmanagement:Anationalprohibitionontheuseofcelluloseacetate(oranynon-biodegradablematerial)asafilterforcigarettemanufacturing.Thisprohibitionwouldnecessitatesourcereductionofplasticwastethroughthesubstitutionofalternativebiodegradablenon-plasticfiltersand/orinnovationinthephysicaldesignofcigarettes.[Seniorgovernments].

AnalternativeapproachwouldbeforanationallyharmonizedEPRprogrammakingthemanufacturerslegallyandfinanciallyresponsiblefortheassociatedcostsofcollectingcigarettefilterslitteredonlandandintheoceans.Whilethiswouldnotnecessarilyeliminateplasticcigarettefiltersentirely,itcouldprovideanincentiveforredesignofcigarettes.Itcouldpossiblyalsoincluderesponsibilityforenvironmentalimpactsrelatedtothedisposaloftheassociatedtobaccocomponentslitteredintheenvironment.

• Mostcigarettefiltersaremadefromcelluloseacetatewhichisnotbiodegradable.Worldwide,anestimated4.5trillioncigarettebuttsarelitteredeachyear,makingthemthesinglemostlittereditem.Similarly,OceanConservancylistscigarettebuttsasthesingle

III.PriorityPlasticTypes

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mostcommoniteminbeachlitterenteringoceans.AccordingtotheWHO,StanfordUniversityandSanDiegoStateUniversity,cigarettefiltersdonotserveanyactualfunctioninmakingcigarettessafer,andareessentiallyamarketingtool.TraditionalEPRisnotagoodoption,aseffectivecollectionof,andaccountingforcigarettebuttswouldbelogisticallyimpractical.Previousattemptsbythecigaretteindustrytopromoteportableashtraysandeducatethepublicagainstlitteringbuttswereverylimitedinscopeandalmostcompletelyineffective.

ClothingandOtherTextiles(madewithsyntheticfibers)• Recommendedmethodofmanagement:ModifiedEPRmakingsyntheticfiberclothing

manufacturerscontributetothecostofplasticmicrofibermitigation,and/orresearchtowardnewtechnologies[Seniorgovernments].

• Itisnowwell-knownthatthelaunderingofclothingmadeofsyntheticfiberssuchaspolyester,acrylic,andnylonresultsinthereleaseofhugenumbersofplasticmicrofibers.Muchofthiscanbecapturedatsewagetreatmentplants,buttheuncapturedmicrofibersarestillplentifulandarenowdetectedinourmunicipaldrinkingwatersaroundtheworld.Whilethescienceregardingtheimpactofplasticmicrofibersonhumansisnotyetcertain,plasticsareknowntopreferentiallyabsorbcertaintoxinsandmayreleasetheminthebody.Itisnotrealistictothinkthatsyntheticclothingfiberscouldbebannedorreplacedatthistime.Similarly,atraditionalEPRprogram(whereindustrycollectsandrecycles/disposesoftheproductafteritbecomesawaste)wouldnotaddressthereleaseofmicrofiberswhichoccursmostlyduringtheuseoftextilesratherthanafterthetextilesbecomeawaste.However,EPRprogramscouldtakeanotherformwheretextilemanufacturersmakeamandatorycontributiontoafundthatwould

a. upgrademunicipalsewagetreatmenttofurtherreducethereleaseofmicrofibersb. incentivizehomeownerstoinstallfiltersformicrofibersonwashingmachines(until

suchtimeasthesefiltersaremadeastandardfeatureonnewwashingmachines)c. gotowardsresearchintonewandemergingmethodstoredesign/treat/recover

syntheticfibers

FishingGear(especiallynets)

• Recommendedmethodofmanagement:IndustryEPRdeliveredinconjunctionwithgovernment[Seniorgovernments]

• Thoughnotamunicipallitterissueinanyway,fishingnetsareincludedinthisdocumentgivenitsveryhighrankingasaproblematicoceanplastic.AccordingtosomestudiessuchasthosebyWorldAnimalProtection,abandonedfishingnetscomprisealmosthalfoftheweightofoceanplastics,andorganizationssuchasOceanConservancylistabandonedfishingnetsasthedeadliestofallplasticitemsinthemarineenvironment.Internationalprohibitionsagainstabandonmentoffishinggearhasexistedsince1973,butislargelyunenforceableandineffective.

III.PriorityPlasticTypes

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Giventheurgentneedtoaddressabandonednets,andthelackofenforcedregulation,ourrecommendationistoregulatethefishinggearmanufacturersunderaproductstewardshipprogramimmediately.However,whiletraditionalEPRisusuallyfundedentirelybythemanufacturersandbrandownersoftheproduct,thehighcost,lowturnover,andthesmallnumberofmanufacturersoffishingnetswilllikelyrequireadifferentmodelinordertoallowforquickimplementation.Inthiscase,itwilllikelyrequirepartialfundingfromthefederalgovernment,andstrictenforcementofminimumrecoveryrates.Discussionsbetweenthefederalgovernmentandthefishingindustryshouldbeinitiatedimmediately.Incentivessuchasdepositsor‘bounties’onfishingnetsshouldbeconsidered,recognizingthattheamountofasuitablyincentivizingdepositmayneedtobehighbecauseoftherelativelylargeinitialpurchasecost.

FoamCushions(especiallymattressesandfurniture)

• Recommendedmethodofmanagement:EPRformattressesandfurniture[Seniorgovernments]

• Thecushioningmaterialsusedinmattressandupholsteredfurniturearemostlycomposedofpolyurethanefoamrubbermaterials.Theseitemsarenotcommonlylitteredonbeachesorfoundinthemarineenvironment.However,illegaldumpingofmattressesandfurnitureisaverycostlyproblemformunicipalgovernments.IntheMetroVancouverareaalone,therearetensofthousandsofillegaldumpingincidentseachyear,withclean-upcostsrepresentingseveralmilliondollars.Similarly,inQuebec,followingJuly1st“OfficialMovingDay”(whenthevastmajorityofleasesarerenewed),significantresourcesneedtobedeployedbymunicipalitiestocollectmattressesandfurniture.MattressandbulkyfurniturearewellsuitedfortraditionalEPR,whichisbeingconsideredinanumberofprovinces.

FoodwareforTakeout

Containers(RigidandFoamPlastic)Cupsandlids(singleuseplastic)Straws(single-use,plastic)Utensils(singleuseplastic)

• Recommendedmethodsofmanagement:

i. Controlledusage(e.g.bans/restrictionsonuse)[Localgovernments]ii. Supportforreusablealternativeswherepractical[Localgovernments]iii. Economicincentives(e.g.mandatoryfeesatpointofsale)[Localgovernments]iv. Increasedlitteringfines[Localgovernments]v. InclusionunderEPR,preferablyharmonizednationwide[Seniorgovernments]

• Apopularbeliefisthatconventionalplastics,especiallyfoodware,canbewidelyreplacedwithcertifiedbiodegradableplastics,butthisisnotyetacompletesolution.Asdiscussedinthe‘considerations’sectionoftheGuidingPrinciplesandSelectionCriteria,notall‘certifiedbiodegradable’plasticscanbesufficientlybiodegradedinexistingcommercialcomposting

III.PriorityPlasticTypes

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ordigestionfacilities,letaloneinthenaturalenvironment(i.e.onlandorinoceans).Seniorgovernmentscouldregulatethatthetimeframeandphysicalconditionsunderwhicha‘certified’plasticmustbiodegradeshouldbe(a)comparabletothosefoundinthenaturalenvironment,or(b)comparabletothosefoundintypicalexistingcommercialcomposting/digestionfacilities.

• Containers(singleuserigidandfoamplastic):Bothrigidplasticandexpandedpolystyrenetakeoutcontainersarefoundasbeachlitter,andaspartofmunicipallitter.Althoughtheyarenotassignificantacontributorasotherplastics(e.g.cigarettebutts,fishingnets,bottles,orbags),theyarestillinthetop10ofbeachlitteredplasticitems.Foamplasticsinparticularhavealowdensityandtendencytobreakaparteasilyintosmallfragments,whichmakethemproblematicaswindblownplasticsintheenvironment.Recognizingtherangeofdifferentmeasuresbeingusedbydifferentlocales,werecommendsupportingprojectsthatswitchfromsingleuseitemstoreusablecontainers,nationalharmonizationofbans,fee/incentives,and/orEPRforplastictake-outcontainers.Wherepossible,andnotinconflictwithotherregulationsorperformancestandards,requirementsforlocalproductionandminimumrecycledcontent(whetherthroughconventionalplasticsrecycling,orthroughemergingrecyclingtechnologiessuchasdepolymerization)mayalsobeconsidered.

• CupsandLids:Plasticandplastic-coatedcupsandlidsareanothercategorythatisnotnecessarilythelargestcontributortolitter,butstillinthetoptenofbeachlittereditems.TheyarealreadysomewhatcoveredbyEPRprogramsinthoseprovincesinwhichEPRforpackaginghasbeenimplemented,andcouldbereadilyaddedtoprogramswherecoveragedoesnotalreadyexist.Forlocalesrelyingoneconomicincentives,behavioraleconomicsstudieshaveshownthatchargingafeeforsuchsingle-useitemsismoreeffectivethanofferingadiscountforbringingareusablealternative.Voluntaryreductionofsingle-usecupsandlidsisalreadyoccurringinsomelocales.Recognizingtherangeofdifferentmeasuresbeingusedbydifferentlocales,werecommendsupportingprojectssuchascupshareprogramsthatswitchfromsingleusetoreusablecups,nationalharmonizationofbans,fee/incentives,and/orEPRforplasticcupsandlids.Increasedrequirementsforminimumrecyclablecontentshouldbeconsideredwhereverpossible.

• Straws:Asahigh-profilesingle-useitem,theplasticstrawhasreceivedmuchattention,thoughotherplasticitemsarearguablymoreconcerningintermsofweight,numberofoccurrences,anddirectimpactonmarinelife.Nonetheless,theimpactoftheplasticstrawissignificant,alternativesarereasonablypractical,andtheycanbecoveredunderexistingandfutureEPRprograms.Thereisanecdotalevidencethatseveralbusinesses(e.g.,restaurants)havealreadyvoluntarilymovedtosupplystrawsonlyuponrequestfromthecustomer.Bestpracticestoreducetheuseofstrawscouldbeformalizedwithinavoluntaryagreementwithindustrytoavoidtheuseofstraws.Thatsaid,manycommunitiesarealsousingprohibitions,and/oreconomicincentivestoreduceplasticstrawuse.Similarly,behavioraleconomicsstudieshaveshownthatchargingafeeforsuchsingle-useitemsismoreeffectivethanofferingadiscountforbringingareusablealternative.Recognizingtherangeofdifferentmeasuresbeingusedbydifferentlocales,werecommendsupportingprojectsthatswitchfromsingleusestrawstoreusablestrawsorotheralternatives,nationalharmonizationofbans,fee/incentives,and/orEPRforplasticstraws.

• Utensils(singleuseplastic):Intermsofweight,plasticutensilsarenotalargecontributortobeachlitter/oceanplastics,andnotaparticularlylargecomponentofmunicipallitter.

III.PriorityPlasticTypes

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However,accordingtoOceanConservancy,thesmallparticlesthatresultfromthemicro-fracturingoftheseitemsisparticularlyharmfultomarineanimalsthatmistakethemforfood.Thesamemethodsofmanagingotherfood-relatedsingle-useplasticscouldapplytoutensils.Forlocalesrelyingoneconomicincentives,behavioraleconomicsstudieshaveshownthatchargingafeeforsuchsingle-useitemsismoreeffectivethanofferingadiscountforbringingareusablealternative.Asisthecasewithstraws,voluntaryreductionofplasticutensilsisalsooccurringinsomelocales.Recognizingtherangeofdifferentmeasuresbeingusedbydifferentlocales,werecommendsupportingprojectsthatswitchfromsingleusetoreusableutensilsorotheralternatives,andnationalharmonizationofbans,fee/incentives,and/orEPRforplasticutensils.Increasedrequirementsforminimumrecyclablecontentshouldbeconsideredwhereverpossible.

FoodWrappers(singleuse,flexible/filmplastic)

• Recommendedmethodsofmanagement:a. Voluntarilyorthroughgovernmentdirective,thepackagingindustryshould

formalizeanewefforttowardsreducingpackagingatthesource(e.g.anewprogramsimilartothatoftheformerNationalPackagingProtocolledbytheCCMEinthe1990s).[Seniorgovernments]

b. Expansionof/inclusioninexisting/newEPRforpackaging[Seniorgovernments]• Byweight,foodwrappers(e.g.candywrappers)arearelativelysmallcontributorto

municipallitter,althoughsomeshorelinecleanupevents(e.g.InternationalCoastalCleanupDay2017)foundfoodwrapperstobethesecondmostprevalentitemofbeachlitter(aftercigarettebutts).FoodwrappersarealreadysomewhatcoveredbyEPRprogramsinthoseprovincesinwhichEPRforpackaginghasbeenimplemented,andcouldbereadilyaddedtoprogramswherecoveragedoesnotalreadyexist.

Tires

• Recommendedmethodofmanagement:Mandatoryrequirementforresearchanddevelopmentbythetiremanufacturingindustryandotherstakeholders(e.g.CanadianAssociationofTireRecyclingAgencies),complementedbypubliceducationtoimprovepublicawareness[Seniorgovernments]

• Thishasbeenincludedinthisdocument,asmicroparticlesfromtiresareasignificantcontributortooceanplastics,buttheyhavenotbeencategorizedasapriorityperse,asnoimmediateapparentsolutionscanberecommendedyet,regulatoryorotherwise.Automotivetiresincludeamixtureofnaturalandsyntheticrubbers.Intheirnormaluse,thewearandtearofbeingdrivenovertheirlifetimecausesupto20%oftheoriginalweightoftirestobelostasmicroscopicrubberdust(mostlyunder100nanometersinsize),depositedontoroads,parkinglots,driveways,etc.Many,ifnotmostofthosemicroscopicparticlescanentersurfacewatersystemsorotherwatercoursesandeventuallyreachlakesandoceanswithoutgoingthroughmunicipalsewagetreatment.

III.PriorityPlasticTypes

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Likemicrobeadsfrompersonalcareproducts,theparticlesfromtiresarealreadymicroplasticswhentheyreachtheocean–noperiodoffracturingfromUV,saltwater,orwaveactionisneeded.TheIUCNin2017estimatedthat28%ofthemicroplasticsinouroceanscomefromcartires.Withabout20milliontiresreplacedeachyearinCanadathisrepresentstensofthousandsoftonnesofrubbermicroparticles.Inmanyprovinces,tiresarealreadycollectedandrecycledunderregulatedEPRprograms.However,justasisthecasewithtextiles,thisoccursafterthetiresareworn,andthemicroparticleshavealreadybeenreleased.Butunliketextiles,therearenopotentialin-situfilters,ortreatmentplantsthatcouldinterceptallstormwater.Furthermore,thereisnorealisticcommerciallydevelopedalternativetotheautomotivetire,andnobiodegradablerubbermaterialthatcouldberealisticallysubstituted.Becauseofthesereasons,aregulationoradditionalEPRrequirementfortireswouldnotappeartobeviable.Werecommendthatdirectedresearchisneeded–intomechanicalalternativestothetireitself(suchaslonger-lastingnon-pneumaticdesigns),alternativestothesyntheticrubbermaterialsused(suchasnaturalGuayuleorTaraxacumrubbers),newmethodstocaptureofrubbermicroparticlesfromsurface/stormwater,increasingadhesionofwornrubberparticlestoroads,etc.

Wetwipes(singleuse)

• Recommendedmethodsofmanagement:a. Controlledusagethroughbans/restrictionsonuseofplasticsinmanufacturing[Senior

governments]b. Controlledusagethroughrestrictionsonsales[Localand/orSeniorgovernments]c. Economicincentives(e.g.mandatoryfeesatpointofsale)[Localgovernments]

Concurrentwiththis,exploreupstreamapproachessuchasfederally-mandatedrequirementsforimplementationbyprovincesandmunicipalities[Seniorgovernments]

d. InclusioninExtendedProducerResponsibilityprograms[Seniorgovernments]e. Prohibitionfrombeinglabelledoradvertisedas“flushable”[Seniorgovernments]

• Wetwipesareagroupofsingle-useitemsgenerallyusedforcleaningpurposes.Somewipessuchasthoseusedforautomotivedetailingandhouseholdcleaningarepredominantlydisposedingarbage.Wetwipesusedforcleaningtoiletsandbathroomsaswellasforpersonalhygienepurposes(baby/adult)aremostoftenflusheddowntoilets.

• Whileaminorityofwetwipesaremadefromnaturalfibres,mostarecomposedofpolyester,polyethyleneorotherplasticmaterials.

• Wetwipesflusheddowntoiletsaccumulateinsewersystemsandareamajorcauseofblockagesandclogging,amountingtoanestimated$250MperyearindirectcleanupandmaintenancecostsformunicipalwastewatersystemsinCanada.Thisdoesnotincludeanyindirectcosts(e.g.floodingdamage,microplasticsinreceivingwaters)ofdisposal.

• AnInternationalWaterServicesFlushabilityGroup(IWSFG)hasdevelopedcriteriafor‘flushable’products.Onlyproductsthatmeettheirproposedcriteriawouldbedeemedto

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becompatiblewithmunicipalsewersystemsandwouldbeallowedtousetheterm“flushable”.AstudybyRyersonUniversity(March2019)testedatleast64differentwetwipeproductssoldinCanada,anddemonstratedthatnoneofthem,whetherusingnaturalorsyntheticmaterials,currentlymeetthecriteria.

• ControlledusagethroughbansontheuseofplasticsinmanufacturingofwetwipeswouldrequireactionbytheSenior(likelyFederal)government.Therearewetwipeproductsavailableforsalethatuseonlynaturalmaterials.Restrictionsonsalescouldbedoneatthelocallevel(inthesamewaythatsaleofcosmeticpesticidesisbannedbysomemunicipalities),butaharmonizedrestrictionattheProvincial,orpreferablyFederallevelwouldbemuchmoreeffectiveandefficient.

• EPRforwetwipescouldbeimplementedprovincially,butwouldbemoreeffectiveandefficientattheFederallevel.EPRmakesthemanufacturersresponsibleforrecoveringtheirwasteproductsforrecyclingand/ordisposal.Becauserecoveryofflushedwipesisimpractical,inpracticethemanufacturersofwetwipescouldbe(a)madefinanciallyresponsibleforannualcompensationtomunicipalwastewatersystemsfortheirincrementalmaintenancecosts,and(b)requiredtoconductsubstantialpubliceducationtoredirectwipesfromtoiletstothegarbage.Manufacturersmighttherebybesignificantlymotivatedtoproposeproductredesignasanalternative.

• Therecommendationtoprohibitplasticwetwipesfrombeinglabelled“flushable”isanalogoustoCalifornia’splasticslabelinglawthatprohibitsthesaleofanyplasticproductorpackagingwitha"biodegradable"orotherunprovenclaimimplyingthattheitemwillbreakdown,fragmentordecomposeinalandfillorotherenvironment.

IV.OtherPlasticTypes

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IV.OTHERPLASTICTYPES

Thefollowingplasticsarenotlargecontributorstooceanplastics,ortoproblemswithmunicipallitter,orsewagetreatment.Nonetheless,theyarelistedhereforconsideration:AgriculturalPlastics

• Recommendedmethodofmanagement:TraditionalEPRthroughneworexistingprograms[Seniorgovernments]

• Agriculturalplastics(suchasbalertwine,grainbags,balewrap,silageplasticandfeedbags)contributeverylittletotheproblemofoceanplasticsortourbanlitter/illegaldumping,althoughimpactsinruralcommunitiesareofgreaterconcernduetoissuessuchasopenburningonfarms.Agriculturalplasticsdocontributetolandfillplasticwastes,andhavebeenidentifiedasaLevel1EPRpriorityinQuebecandarethetargetofsomevoluntaryprogramsandpilots(e.g.Alberta,Saskatchewan,NovaScotia,etc.)

VinylSidingfromConstructionandDemolition

• Recommendedmethodofmanagement:TraditionalEPR[Seniorgovernments]• SignificanttonnagesofplasticscanbefoundinConstructionandDemolition(C&D)wastes

goingtolandfills.However,C&Dplasticswasteisnotasignificantissueforoceanplastics,norisitalargeissueformunicipallitter(illegaldumpingofdemolitionmaterialsfromsmallcontractorsisamunicipallitterissue,butsuchincidentsgenerallydonotincludelargeamountsofplastics).SignificantlogisticalchallengesforrecoveryofmostC&Dplasticswouldneedtobeworkedout.ThepredominantplasticswillbePVCintheformofvinylsidingandPVC,PEandPPinplasticplumbing.Otherminorcontributorsincludewindowanddoorframes,blindsandshutters,filmplasticsfrompackagingofbuildingmaterials,etc.C&DmaterialshavebeenontheCCMEplanforEPR,butnogenerally-acceptedmodelshavebeendevelopedtodate.Fromalogisticalstandpoint,andfocusingonthetwolargestcontributorstoplastics,whicharesidingandpiping,onlysidinglendsitselftoapotentialEPRsolution.Sidingiseasilyaccessibleontheexteriorofbuildinganddoesnotrequirehighlevelsofphysicaldeconstructionorexcavation.Piping,ontheotherhand,existsinsideofcabinetsandwalls,orisburiedonthebuildingproperty,soremovalforrecyclingisconsiderablymoreonerous,andmoreworkwouldneedtobedonetodeveloparealisticregulatorymethodofmanagement.Somelocaleshaveuseddepositsondemolitionswhichare

IV.OtherPlasticTypes

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refundedinwholeorinpartaftermaterialshavebeenrecoveredforrecycling,butthesearedonebyindividualmunicipalitiesthroughtheirlocalbuildingpermittingsystems,andtendtofocusonmoreeasilyrecoveredmaterials.

Miscellaneous

Asdescribedattheoutset,priorityplasticswereselectedbasedoncriteriathatincludednegativeimpactonmunicipaloperations(particularlylitterandsewagetreatment)andontheenvironment(particularlyoceans).Thereareanumberofotherplasticitemsnotdiscussedinthisdocumentdueinparttotimeconstraints,butalsobecausetheyhavenosignificantimpactonmunicipaloperationsoroceanenvironments(pertheselectioncriteria).Theseincludebutarenotlimitedtoplastictoys,plasticsfromelectronics,plasticmaterialsinautomobiles,andinchildcarseats.Astheregulatorymeasuresrecommendedforthehigherpriorityplasticsareimplemented,someoftheseotherplasticsshouldalsobeaffected.Forexample,

o EPRforelectronicsnaturallycapturesplasticsfrome-wasteandelectronictoys.o Minimumrequirementsforindustrysourcereductionandrecycledcontentshould

affectmanyoftheseplasticitemsNonetheless,astimeandresourcespermit,theseotherplasticitemsshouldbeaddressedastheydorepresentopportunitiesforsolidwastediversionfromdisposal.

V.Acknowledgement

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V.ACKNOWLEDGEMENT

WegiveoursincerethankstothemembersofthePlasticsAdvisoryPanel.ThePanelmembersare:MajaVodanovic,CommunautéMétropolitainedeMontréal(Co-Chair)AndrewMarr,MetroVancouver(Co-Chair)(inalphabeticalorder)CharlotteUeta,CityofTorontoChristinaSeidel,RecyclingCouncilofAlberta/SonnerveraInternationalCorp.EtienneAngers,Recyc-QuebecJasonGale,CascadesMattGemmel,FederationofCanadianMunicipalitiesMichelAllaire,CommunautéMétropolitainedeMontréalMikhaelMetauro,CascadesMonicaKosmak,CityofVancouverSophieLanglois-Blouin,RecycQuebecWiththesupportoftheNationalZeroWasteCouncilsecretariatandMetroVancouver:AndrewDoiAnnRowanHeatherSchoemakerJoanneGauci