The document summarizes Hong Kong's Producer Responsibility Scheme for plastic shopping bags which introduced a 50 cent levy per bag in 2009. It discusses the background of the problem of plastic bag waste, the government proposal for a levy, and the civic engagement process. Stakeholders like citizens, Legislative Council, and environmental groups generally agreed with the levy while plastic bag manufacturers and retailers disagreed. The policymaking process involved agenda setting, formulation, implementation and evaluation over many years.

1. Producer Responsibility Scheme (Plastic Shopping Bags Levy) Community College of City University Division of Social StudiesAssociate Degree of Social Science in Public Administration and ManagementDSS20002 Social Policy and Administration Lau Jeffrey (52224761)Li Chun Hei Joshua (52224054)TseSiu Mei (52248119) Mr. Benny H.P. TODate of Presentation: 7-Mar-2011

3. Background Environmental Levy on Plastic Shopping Bags

4. Difficult to deal with waste plastic bags It is difficult to be decomposed Releases dioxin when burned The Reason Behind…

5. Indiscriminate use of plastic bags Eight billion plastic bags are disposed each year 3.3 plastic bags are disposed per person a day Landfill will be saturated The Reason Behind…

6. Voluntary waste reduction activitiesare ineffective Bring Your Own Bag (1993) No Plastic Bags Please (1999) The Reason Behind…

7. Time Line Product Eco-responsibility (Plastic Shopping Bags) Regulation is passed 2002 2004 2006 2008 2010 2009 2003 2001 2005 2007 1993... Proposed Legislation for the Implementation of Producer Responsibility Schemes Sustainable Development - Making Choices for Our Future (2004) Public Consultation on the Environmental Levy on Plastic Shopping Bags “Bring Your Own Bag” Scheme The 2007/2008 Budget A First Sustainable Development Strategy in Hong Kong (2005) Legislative Council on Product Eco-responsibility Bill Implementation of Environmental Levy Scheme Policy Framework for the Management of Municipal Solid Waste (2005-2014)

8. Encourage city citizens to reduce and recycle Examine charging for waste disposal under the "Polluter Pays" principle directly Sustainable DevelopmentMaking Choices for Our Future (2004)

9. Exhaustion of existing landfill space in Hong Kong within the next decade Apply the “user pays” principle to reduce volumes of waste for disposal. A First Sustainable Development Strategy in Hong Kong (2005)

10. Clear and socially acceptable objectives for solid waste management Apply the "user-pays principle" to reduce volumes of waste for disposal. A Policy Framework for the Management of Municipal Solid Waste 2005-2014 (2005)

11. Implementation of Producer Responsibility Schemes (PRS’s) in Hong Kong Introduced an imposition of fee, tax or levy on plastic bags Finance recycling programs or to deter indiscriminate use Proposed Legislation for the Implementation of Producer Responsibility Schemes (2006)

12. The Department has completed its study, and put forward specific proposals. Expected that the relevant Bill will be introduced into this Council within the year. The 2007-08 Budget(2007)

13. A Proposal on the Environmental Levy on Plastic Shopping Bags (May 2007) Public Consultation (May to July 2007) Meetings Telephone Interviews Public Affairs Forum Consultation Session Receive Written comments Public Consultation

14. In 2008, the Bills introduced to LegCo In April of 2009, Product Eco-responsibility (Plastic Shopping Bags) Regulation is passed In July of 2009, Environmental Levy Scheme is now in effect Legislative Process

15. Government Proposal

16. Meaning of plastic shopping bags Made wholly or partly of plastic With a handle or any other carrying device Exclude the bags with prepackaged goods Levy on Plastic Shopping Bags 50 cents per plastic shopping bag Details

17. Meaning of prescribed retailers 5 or more qualified retail outlets in Hong Kong at lease one qualified retail outlet in Hong Kong with more than 200 square meters floor area Sell the following kinds of goods in the outlets any food or drink any medicine or first-aid item any personal hygiene or beauty product Details

18. Civic Engagement

19. Government has taken the initiative to involve citizens in all stages of policy development Identification of problems Clarification of values and interests Development of policy alternatives Prioritization of proposals Definition

20. Committee Engagement Participation within the Advisory Committee Meeting within the Advisory Council Public Engagement Participation with the public Public Fora Classification

21. Actor Institutional Arrangement Process Result Elements

22. Government Officials and Civil Society Actors Background Attitudes towards Civic Participation Actor

23. Functions and Powers Stakeholder Representation Institutional Arrangement

24. Common Aims The level of transparency in the process The amount of accountability Process

25. Brings improved policy quality Higher degree of legitimacy to the policy Result

26. Citizen (Agree) Legislative Council (Agree) Environmental Advisory Committee (Agree) Manufacturers of plastic bags (Disagree) Retailers (Disagree) Environmental Groups (Agree) Public Consultation

27. Plastic Shopping Bag Levy Fees Poll Proposal 66.2% of respondents support the Environmental Levy on Plastic Shopping Bags Levy Accounting for 55.9% of all respondents supported the phased implementation of the Levy Fee 1,102 telephone interviews successfully conducted Citizen (Agree)

28. Legislative Council Panel on Environmental Affairs(立法會環境事務委員會) Consistent with the “Polluter Pays” Principle The abuse of plastic shopping bags is very serious implemented as soon as possible Levy income Green Fund to support environmental protection Levy reduced to the amount of $0.1 to $0.2 Legislative Council (Agree)

31. Extending the scheme to other retail stores Environmental Advisory Committee(Agree)

34. Concerned on the use of levy income Doubts  Effectiveness and long-term benefits Environmental Groups (Agree)

35. Policymaking

36. Policy Making Process in Hong Kong Some of the Problems Faced Policy Making Model Policymaking

37. Policymaking Process Theories

38. Christiane Miethe (HKDF) Problem / Issue  Policy / Law Decision-makers Policymaking Process

39. Generally 4 stages Agenda Setting Policy formulation Policy implementation Policy Evaluation Examine the policy-making process in HK Use case studies to illustrate (PRS) Shortcomings & Benefits Hong Kong Policymaking Process

40. Start of Producer Responsibility Scheme (2004) First Stage Problem perceive by decision makers Agree to solve this issue through actions Factors affect the agenda E.g. Pressures due to crisis or actors Process (Agenda Setting)

41. Major Actor Chief Executive Decide government policies / executive order Secondary Actors Authorities of Civil Service & Secretaries Powers limited & report to Chief Executive Article 54: assist the Chief Executive in policy-making Actors (Agenda Setting)

42. Tertiary actors Affect ExCo & Chief Executive Choose which voices to listen E.g. Civil Service Interest Groups International Actors Lawmakers Media Actors (Agenda Setting)

43. Second stage Process of using normative and empirical methods of defining a policy goal Exploring alternatives to achieve the goal Choosing a preferred policy solution that will become the basis of a public policy plan Policy Formulation

44. Consultation of experts & public Seek advice and encourage public participation Make government decisions more transparent Encourage public to interact with government Encourage discussion & awareness Policy Formulation

45. Third stage Two approaches Top-down Understand the implementation of policy through means of discovering the goals & strategies Bottom-up Lowest level  upper level to acquire better information Policy Implementation

46. High technical process Whether meet the goals or not Officials make changes if defect Diverse of people’s comments Policy Evaluation

47. Properly done  Allow learning Provide feedback for improving future policy E.g. Second stage of plastic bags levy Offer experience Deal with same issues in the future Apply similar solution to similar policy area Policy Evaluation

48. Any Problem Faced?

49. Agenda Although emphasis on transparency Often remain mysterious Policy Formulation Consulted by experts’ concern Process dominated by secretary Problem

50. Plastic Bags Levy Official Reason Reduce amount of waste disposal Reduce treatment cost Schedule delay Settle companies & markets Cannot find new locations / Land Opposition of real estate Problem

51. Policymaking Model

52. Incrementalism (Muddling through) The “Three streams Model” Policymaking Models

53. Charles Lindblom Incrementalism More political & feasible Change bit by bit Affect less interest groups per policy Less amount of operating procedures in bureaucracy Shorter period of time & cost Incrementalism

54. Plastic big levy  Incrementalism Share similar values & goals E.g. Reduce use of plastic bags & landfill Limited analysis Values and goals are not so different Analysis always agree on the policy Neglect other alternatives Policy based on overseas experiences E.g. Taiwan, Denmark, Australia, Ireland Incrementalism

55. John Kingdon Indicates reasons in particular time Problem got into official agenda Solutions selected Three streams Problem, policy & politics Run parallel & independently Window of opportunity opens Three streams converge allows policy to change The “Three streams Model”

56. “Three Streams Model” – Plastic bag is difficult to dispose – Indiscriminate use of plastic bags – Not enough landfill Problem Stream – Citizens tend to agree the reduction use of plastic bags – Green groups started promotion and launch BYOB Window opens tostructure decision agenda:Three stream converge PoliticalStream PolicyStream A lot of solutions are proposed by bureaucrats

57. The Application of Plastic Shopping Bags Levy on Policymaking Model Further Discuss the Civic Engagement later Conclusion

58. Reference Environmental Protection Department. (2007). A Proposal on An Environmental Levy on Plastic Shopping Bag. Retrieved March 1, 2011 from Hong Kong Special Administrative Region Government, Environmental Protection Department Web site: http://www.epd.gov.hk/epd/tc_chi/news_events/legco/files/EAP_Plastic_Bag_Levy_C.pdf. Council for Sustainable Development. Sustainable Development: Making Choices for Our Future. (2004). Hong Kong: Hong Kong Special Administrative Region Government. Sustainable Development Unit. First Sustainable Development Strategy in Hong Kong.(2005). Hong Kong: Hong Kong Special Administrative Region Government. Environmental Protection Department.A Policy Framework for theManagement of Municipal Solid Waste 2005-2014. (2005). HongKong: Hong Kong Special Administrative Region Government.

59. Reference Environmental Protection Department. (2006). Proposed Legislation for Implementation of Producer Responsibility Schemes.Retrieved March 1, 2011 from Hong Kong Special Administrative Region Government, Legislative Council Web site: http://www.legco.gov.hk/yr05-06/english/panels/ea/papers/ea0424cb1-1300-4-e.pdf. Tang, H. The 2007-08 Budget. (2007). Hong Kong: Hong Kong Special Administrative Region Government. Environmental Protection Department. (2007). Public Consultation Report on the Proposal on An Environmental Levy on Plastic Shopping Bags, Hong Kong: Hong Kong Special Administrative Region Government. Legislative Council, (2008). Product Eco-Responsibility Ordinance.Hong Kong: Hong Kong Special Administrative Region Government.

60. Reference House, V. W. (1987). A Proposal on An Environmental Levy on Plastic Shopping Bag. In Models Of Policy Making. Retrieved March 5, 2011 from University of Minnesota Department of Applied Economics and the University of Minnesota Libraries, Agricultural and Applied Economics Association Web site: http://purl.umn.edu/17839. Hong Kong Democratic Foundation (2007). A Description and Critical Review of: The Policy-Making Process in Hong Kong. Hong Kong: Hong Kong Democratic Foundation.

61. MMXI The End