Canada and Agenda
21Canada and Agenda
21
CHAPTER 21
Sustainable Management of Solid Wastes and Sewage-Related Issues
-- Gordon Clifford --
Gordon Clifford is a consultant with Consulting and Audit Canada. The views expressed in this chapter are those of the author who received comments from a number of stakeholders, and do not represent the views of Consulting and Audit Canada or the Projet de Société.
THE NATURE OF THE PROBLEM
Unsustainable patterns of production and consumption are increasing the quantities of wastes to be treated and disposed of. Reduction and elimination of wastes is, therefore, among the environmental issues of major concern in maintaining the quality of the Earth's environment and in achieving global sustainable development. In the context of this chapter, solid wastes include all domestic refuse and non-hazardous wastes such as commercial and institutional wastes, street sweepings and construction debris. If these wastes are determined to manifest hazardous or toxic characteristics, they should be treated as hazardous or toxic wastes (see chapters 19 and 20).
Reduction and elimination must go beyond the mere safe disposal or recovery of wastes that are generated and seek to address the root cause of the problem by attempting to change unsustainable patterns of production and consumption. This implies the application of the integrated management concept, which presents a unique opportunity to reconcile development with environmental problems.
Canada is one of the highest per capita generators of waste in the world and the environmental, health and economic costs in dealing with this problem are mounting rapidly. It is clear that the designs of many consumer products and their packaging are incompatible with notions of sustainability. There is a need to move toward the use of more durable, repairable and re-usable designs.
PROGRAM AREAS AND OBJECTIVES
The chapter identifies four major program areas, each with a number of objectives. These are briefly outlined below.
(1) Minimizing wastes
stabilize or reduce the production of wastes destined for final disposal, over an agreed time-frame, by formulating goals based on waste weight, volume and composition and to induce separation to facilitate waste recycling and reuse;and
strengthen procedures for assessing waste quantity and composition changes for the purpose of formulating operational waste minimization policies utilizing economic or other instruments to induce beneficial modifications of production and consumption patterns.
(2) Maximizing environmentally sound waste reuse and recycling
strengthen and increase national waste reuse and recycling systems;
create a model internal waste reuse and recycling program for waste streams, including paper, within the United Nations system; and
make available information, techniques and appropriate policy instruments to encourage and make operational waste reuse and recycling schemes.
(3) Promoting environmentally sound waste disposal and treatment
establish waste treatment and disposal quality criteria based on the assimilative capacity of the receiving environment;
undertake waste-related pollution impact monitoring and conduct regular surveillance; and
ensure that, progressively, all sewage and waste are disposed of in conformity with national and international environmental and health quality guidelines.
(4) Extending waste service coverage
provide health-protecting, environmentally safe waste collection and disposal services to all people;
have the necessary technical, financial and human resource capacity to provide waste collection services commensurate with needs by the year 2000;
provide all urban populations with adequate waste services by the year 2025; and
ensure that full urban waste service coverage is maintained and sanitation coverage achieved in all rural areas by the year 2025.
CANADIAN POSITIONS AT RIO
1. Official Canadian Positions
Canada currently spends approximately $2 billion annually for the management of our solid wastes (excluding sewage). Canada supports the principle that a percentage of expenditures associated with the management of wastes be devoted to waste minimization activities. Already, the sum of current federal and provincial expenditures on waste minimization programs far exceeds recommended amounts. Canada's three main objectives in negotiations around this chapter include the following.
(1)To assist developing countries with their immediate and pressing need to improve fundamental solid waste and sewage services.
(2)To promote the reduction of current excessive generation of solid waste and sewage in industrialized countries. To this end, Canada's position was that waste reduction targets as opposed to waste stabilisation ones should be encouraged to promote the lifestyle changes necessary to reverse current waste production trends.
(3)Avoid a commitment to restrict transboundary movements of solid wastes so the management of wastes on regional bases can be achieved. As a result, the transportation of wastes over long distances can be avoided where waste treatment facilities are regionally available.
Canada achieved its objectives, notably inclusion of an amendment which recognises that the transboundary movement of solid wastes should be allowed for environmentally sound reasons.
Canada was also supported in its view that proposals to reduce agricultural and toxic wastes are outside the scope of this chapter and should, therefore, be addressed elsewhere.
2. Non-Governmental Organizations
In general, the position of Canadian NGOs on this chapter, was that solid wastes should be approached from a position favouring restraint and prevention.
Given that the chapters' definition of solid wastes included all "non-hazardous wastes", many NGOs lobbied for the redefinition of hazardous waste classifications in order to increase environmental protection.
In addition, NGOs called for consistent multisectoral participation in policy making directed at solid wastes and sewage related issues. Although the chapter acknowledges that "all sectors of society should participate in all the program areas", it has nonetheless been criticized for giving insufficient emphasis to community involvement and participation in all aspects of decision making and management pertaining to solid wastes; the main efforts in such decision making are relegated to governments and industry.
3. Business and Industry
Business and industry in Canada is heavily involved in solid waste reduction not only to meet goals such as the National Packaging Protocol or Ontario's waste reduction targets, but also as a cost reducing measure to enhance profitability and long term competitiveness. Business supported Canada's position on this chapter but strongly emphasized the need for voluntary programs and targets as opposed to legislated targets and solutions.
4. Indigenous
Indigenous Peoples identified the need for the development of protocols which requires the involvement of Indigenous Peoples at all levels of discussion and decision making since international activities always affect Indigenous Peoples. Under Agenda 21, Indigenous Peoples were to be informed, consulted and allowed to participate at the national level for decision making.
COMMITMENTS MADE BY CANADIANS
1. Legally-Binding Documents
None.
2. Political Pronouncements
During his disclosure of the National Statement of Canada on June 11 1992 at UNCED, Minister of the Environment Jean Charest announced that Canada would reduce its waste by 50% by the year 2000.
In a speech on June 12 1992 at UNCED, Prime Minister Brian Mulroney drew attention to a $250 million program for water and sewage services on Indian reserves, as one of a variety of projects to be undertaken as part of Canada's Green Plan.
3. Alternative NGO Treaties and Kari-Oca
NGO Treaties
At the same time as UNCED, two major international events were also held at Rio. One was the International Non-Governmental Organization Forum (Global Forum). At the Global Forum, 3,100 NGOs discussed a number of matters related to environment and development and produced a parallel set of documents: an NGO Earth Charter and 38 Alternative NGO Treaties. Canadian NGOs played a significant role in developing the Treaties and took a lead in coordinating their dissemination. Of these treaties, one addressed the issues discussed in Chapter 21.
Treaty on Waste
Over a hundred participants assisted in the development of the NGO Treaty on Waste. The Treaty defines principles and action plans and commitments for all kinds of waste including solid waste, hazardous waste, military waste and nuclear waste.
Some of the principles outlined include:
the precautionary principle should be applied with regard to waste production before a new technology or industrial process is adopted;
society should have the right to unrestricted access to information about the quantity of all wastes produced and the associated risks;
society has a right to access to full information about all steps in waste production and management, including different modes of waste storage and transportation;
the primary impact of waste is local, and the solution of this problem should therefore be initiated at the local level;
adoption of national and international regulations aimed at clean production technologies, waste minimization at source and eliminating non-biodegradable, non-reusable or non-recyclable packaging, is an essential step toward new social attitudes.
Some of the specific actions and commitments under the Treaty include:
enforce source separation for collection of urban waste;
promote education campaigns to change lifestyles so that urban waste can be reduced;
organize campaigns to abolish packaging that is non-recyclable, non-biodegradable and non-reusable;
identify experts and reference centres through an international network to provide independent and technically sound advice to municipalities with respect to waste;
enforce environmental impact studies prior to the implementation of any activity that generates waste and might cause negative impacts on the environment or the community.
The second alternative forum at Rio was the International Conference on Territory, Environment and Development (the Kari-Oca Conference). The Kari-Oca Conference was held immediately prior to UNCED by and for the world's indigenous peoples. More than 650 indigenous representatives participated in meetings and cultural events during the conference. They developed and adopted a 109-point Indigenous Peoples Earth Charter.
DEFICIENCIES, GAPS AND CONSTRAINTS WITHIN CHAPTER 21
There is no mention of hygiene education and its relevance to the effective use, operation and maintenance of waste collection and treatment facilities.
Little emphasis is placed on the promotion of inter-sectoral efforts to link waste management, health, nutrition, population growth and the socio-economic development of poor populations.
The role of reuse and recycling of wastes (e.g. use of treated sewage in agriculture) receives little emphasis, yet seems to be an important area within the realm of waste management.
The potential for cost recovery approaches to the provision of waste management services is given little emphasis, which is particularly surprising given the importance attached by Agenda 21 to the role of the private sector in promoting sustainable development.
Despite the support throughout much of Agenda 21 for community-based problem solving, this chapter does not place any emphasis on the role of the community in management of waste reduction and treatment services.
No clear definition is given as to exactly what "solid wastes" include.
The chapter fails to discuss the importance of pollution prevention as a means to achieve chapter objectives.
The chapter is too heavily oriented to the sewage and waste management needs of developed, rather than developing, countries. Many developing countries do not even have the most rudimentary of sewage and waste disposal infrastructure, and as such, much of what is recommended in this chapter is premature and largely academic from the perspective of these countries.
With regards to the definition of solid wastes, many NGOs were critical of the Chapter. Defining solid wastes as "all domestic refuse and non-hazardous wastes such as commercial and institutional wastes, street sweepings and construction debris", the Chapter assumes a clear definition of what is hazardous wastes. Consequently, it is not clear whether certain substances, such as paint, would be covered under this chapter or Chapter 19 on Toxic Chemicals or Chapter 20 on Hazardous Wastes. Moreover, no explanation of what is meant by "sewage-related issues" is given in the Chapter.
Related to Chapter 21, some NGOs felt that the separation of the waste issues into separate chapters was not beneficial, detracted from consideration of the entire waste issue, and lost the linkages between the various types of wastes. In particular the separation of hazardous waste, toxic chemicals and radioactive wastes was questioned in that they are related both in nature and remediation approaches. This concern is emphasized in that the four chapter on waste were not consistent ion their general approach or specific actions recommended, despite their similarities. In addition, not only were the waste issues discussed in isolation of each other, but there was inadequate discussions of other Agenda 21 issues, (such as freshwater, atmosphere, technology transfer, and financial resources), which are strongly related to the issue of solid wastes.
COMPARISON BETWEEN CURRENT CANADIAN GOVERNMENT POLICY AND COMMITMENTS MADE
As a result of UNCED, the issues of sewage treatment and waste management are now on the international agenda (including, for example, at the OECD). Canada is not, however, formally involved in solid waste and sewage management outside of North America, except with regard to ocean discharges and waste-related research. Canada may wish to examine further to what extent it should be participating in international forums around this issue.
This chapter calls for nationally coordinated sewage treatment plans. Such national coordination does not currently exist in Canada. An effort should be made to discuss whether or not such an initiative would be appropriate in this country.
National networks have been established as a result of recent federal and CCME activities in the area of waste management. Such networks, however, are not active in the area of waste water, and some effort should be made to develop these.
CANADIAN ACTIVITIES EVOLVING THROUGH THE SUSTAINABILITY PROCESS
Office of Waste Management (OWM) of Environment Canada
The OWM has the responsibility for managing key elements of the federal waste management program and for coordinating the federal input to the development of the CCME comprehensive National Waste Management Strategy. The OWM has set the goal of Canada becoming "the lowest generator, the greatest re-user and recycler and the most safe, prudent and efficient manager of waste in the world by the year 2020."
Canadian Council of Ministers of the Environment (CCME)
In 1989, the CCME committed to reducing waste generation by 50% by the year 2000. Most provincial governments have launched their own programs to achieve this goal.
In 1990, the Council of Ministers endorsed the National Packaging Protocol, a set of six packaging policies for Canada which were developed by the National Task Force on Packaging in an effort to help Canada meet its waste reduction goal. At that time, it was estimated that per capita consumption of packaging in Canada amounted to one tonne of packaging per family per year.
In 1992, the National Task Force on Packaging, a multistakeholder group, contributed to meeting the first reduction milestone of 20% reduction in packaging waste from 1988 levels. It has also produced a Canadian Code of Preferred Packaging Practices and a Packaging Audits and Packaging Waste Reduction Plan.
Office of Environmental Stewardship of Environment Canada
The Office of Environmental Stewardship coordinates in-house or internal (to the federal government) waste minimization initiatives under the Code of Environmental Stewardship.
National Round Table on the Environment and the Economy (NRTEE)
One objective of the NRTEE is to encourage Canadians to reduce the production of waste, then to reuse, recycle and recover waste by-products of our domestic and industrial activities. The NRTEE is responsible for publishing The National Waste Reduction Handbook designed to serve as a starting point for Canadian municipalities in investigating and implementing options regarding source reduction and recycling. In August 1992, the NRTEE published A Report on Waste Management for the Construction Industry, which provides members of the construction industry with information about waste management as it relates to regulations and the variety of emerging methods of dealing with solid waste.
Federation of Canadian Municipalities (FCM)
The FCM launched a Municipal Action Plan on Packaging and through a working group, Governments Incorporating Procurement Policies to Eliminate Refuse (GIPPER), have developed procurement policies to support markets for recycled materials and encourage waste reduction.
Composting Council of Canada (CCC)
The CCC was formed in 1991 and has been actively working to sponsor research, disseminate information to encourage the application of composting and ensure realistic composting quality standards.
City of London, Ontario
The City of London has initiated a five year Waste Management Planning Study with other local municipalities which will examine environmentally sound management of solid wastes and sewage-related issues.
Basel Convention
The 1992 ratification of the Basel Convention allowed for the transboundary movement of recyclables. As part of the ratification of the Basel Convention, Environment Canada amended the Canada-U.S. Agreement on the transboundary movement of wastes to include non-hazardous solid wastes.
A number of NGOs have articulated positions on waste management; in general they have strongly advocated movement by governments, industry and the public toward the recycling, reuse and reduction of materials which contribute to solid wastes.
Many Canadian NGOs at the local, regional and national level continue to be actively focused on waste issues, including each of the four program areas outlined in Chapter 21. For example, both the Canadian Environmental Network and the Ontario Environment Network have active waste caucuses which are involved in promoting awareness and lobbying to eliminate and reduce wastes. NGOs have been actively involved with raising awareness about and developing composting depots and blue-box recycling systems, both residential and municipal. Many NGOs advocate incineration bans, and have been supportive of Ontario's incineration and transport ban. In essence, NGOs are involved in providing construction alternatives to both products and processes; participate in multi-stakeholder groups, round tables, waste management master planning and government consultations; elevate the awareness and debate of the public; focus discussions on the human dimension of environmental impacts and decisions; and provide a diversity of interests and strategies.
Some large utilities have implemented zero waste programs in office buildings, which have proven to be both highly effective at waste reduction, as well as a means of saving significant amounts money during day-to-day operations.
OTHER RELEVANT INTERNATIONAL SUSTAINABILITY-RELATED FORA
Organization for Economic Cooperation and Development (OECD) Waste Management Policy Group and Pollution Prevention Control Group
United Nations Commission for Sustainable Development (CSD)
SUGGESTED READINGS AND INFORMATION SOURCES
Canadian Institute for Environmental Law and Policy (CIELAP). "A Regulatory Agenda for Solid Waste Reduction", Report prepared for SWEAP by S. Shrybman, (Toronto: Solid Waste Environmental Assessment Plan, Metropolitan Toronto Works Department, July 1989).
Government of Canada. Canada's Green Plan, (Ottawa: Environment Canada, 1990).
. Canada's Green Plan and the Earth Summit, (Ottawa: Environment Canada, 1992).
. Canada's National Report: United Nations Conference on Environment and Development Brazil, June 1992, (Ottawa: Environment Canada, 1991).
International Development Research Centre (IDRC). Agenda 21: Abstracts, Reviews, and Commentaries, (Theodora Carroll-Foster, editor), (Ottawa: IDRC, 1993).
. Agenda 21: Green Paths to the Future, (D. Spurgeon, editor), (Ottawa: IDRC, 1993).
. A Guide to Agenda 21: Issues, Debates, and Canadian Initiatives, (Theodora Carroll- Foster, editor), (Ottawa: IDRC, 1993).
International Reference Centre for Waste Disposal (IRCWD), Manuals and Technical Reports on Waste Disposal, (Dubendorf, Switzerland: IRCWD).
Keating, Michael. Agenda for Change: A Plain Language Version of Agenda 21 and the Other Rio Agreements, (Geneva: Centre for Our Common Future, 1993).
National Round Table on the Environment and the Economy (NRTEE). The National Waste Reduction Handbook, (Ottawa: NRTEE, 1991).
President's Commission on Environmental Quality (PCEQ). "Partnerships to Progress the Report of the President's Commission on Environmental Quality", (Washington, D.C.: PCEQ, January, 1993).
. "Total Quality Management - A Framework for Pollution Prevention", (Washington D.C.: PCEQ, January, 1993).
"The Road to a Conserver Society", Speech to the Ontario Management Conference, 17 June 1991. (Toronto: Ministry of the Environment, 1991).
"The Waste Management Crisis: A Shared Responsibility", Brief presented to Provincial/Municipal Policy Forum, (Toronto: Association of Municipalities of Ontario (AMO), 1989).
United States Environmental Protection Agency (EPA). A Decision-Maker's Guide to Solid Waste Management, (Washington, D.C: EPA, 1990).
United States Environmental Protection Agency (EPA). The Solid Waste Dilemma: An Agenda for Action, (Washington, D.C: EPA, 1989).
World Commission on Environment and Development. Our Common Future, (Oxford: Oxford University Press, 1987).
Information Sources:
Canadian Council of Ministers of the Environment, 326 Broadway Suite 400, Winnipeg, Manitoba R3C 0S5, tel (204) 948-2090, fax (204) 948-2125.
Environment Canada, Environmental Choice Program, Birks Building, 107 Sparks Street, Ottawa, Ontario, K1A 0H3, tel, fax (613) 952-9465.
Environment Canada, Office of Waste Management, Place Vincent Massey, 351 St. Joseph boulevard, Hull, Quebec K1A 0H3, tel (819) 953-1712, fax (819)953-0509.
National Round Table on the Environment and the Economy (NRTEE), 1 Nicholas Street, Suite 1500, Ottawa, Ontario, K1N 7B7, tel (613) 992-7185, fax (613) 992-7385.
Cite as: Projet de société: Canada and Agenda 21.Winnipeg: IISD, 1995. Online. Internet. http://iisd.ca/worldsd/canada/projet/c21.htm.
