11.1 Notice of Motion – Cr Trish Cook – Reduction of Plastic Bags

File Code LE.LLW Author Briony Moran, Co-ordinator Environment & Sustainability Senior Employee Shane Purdy, Director Infrastructure Services Disclosure of Any Nil Interest

SUMMARY

Councillor Cook has advised of her intention to move the following motion.

“That Council –

1. directs the CEO to draft a “Shire of Mundaring Plastic Bag Reduction Local Law 2017” that –

a. bans single use plastic shopping bags to be provided or sold by a retailer with the Shire of Mundaring;

b. is consistent with other WA Local Governments’ Local Laws specifically Town of East Fremantle and City of Fremantle;

c. takes into account any future advice from the Joint Standing Committee; and

d. is in accordance with the Local Government Act 1995.

2. Writes to the following persons/organisations and conveys –

a. Council’s intent and reasons for drafting the Shire of Mundaring Plastic Bag Reduction Local Law 2017;

b. Council’s preference for the WA State Government to enact a State wide ban on single use plastic shopping bags - ・ Hon Premier Mark McGowan MLA; ・ Hon David Templeman MLA, Minister for Local Government; ・ Hon Stephen Dawson MLC, Minister for Environment and Disability Services; ・ Western Australian Local Government Association; and ・ Eastern Metropolitan Regional Council”.

This report seeks to provide Elected Members with advice regarding this notice of motion. BACKGROUND

Councillor Cook has provided the following information in support of the above motion:

“Reasons for motion one:

Our Environmental responsibilities are as follows:

Our Strategic Community Plan 2016-2026 tells us that we value;

LIVING SUSTAINABLY ENGAGED, RESPONSIBLE LEADERSHIP A PLACE WHERE THE ENVIRONMENT IS WELL MANAGED

Specifically, 3.2.1. Identify and Mitigate threats to the natural environment.

People of the Shire of Mundaring are ready for the change. This was identified in the Shire of Mundaring Strategic Community Plan 2016-2026 page 9.

Plastic bags are made from non-renewable energy and thus contribute to global climate change. The average useful life of each plastic bag is 12 mins. The majority of single use plastic bags end up in landfill or as litter. That does not easily degrade. Plastic bag litter is extremely harmful to wildlife and marine life. They are not easy to recycle like plastic bottles.

SA, Tasmania, NT and ACT have already acted to ban the single use plastic bag. Capital cities in India and some other countries have also banned the bag.

The new WA State Government has publicly expressed support for Local Governments enacting Local Laws to ban the use of Single Use plastic shopping bags.

The Town of East Fremantle has enacted a Local Law. The City of Fremantle is likely to enact a Local Law.

The new Local Law process will incorporate formal community consultation and feedback including businesses.

Community education program and Clean Up Australia will be supported and enhanced by legislative changes to eliminate single use bags. Banning the plastic bag will spread awareness regarding environmental protection. This is an opportunity to provide environmental education to others (including other Councils).

Reasons for motion two:

The Shire of Mundaring Council supports environmental sustainability at a local, state, national and global level.

SOM Community Strategic Plan objective - A place where the environment is well managed.

Support for other Councils that have led the way on this issue.

Honourable Stephen Dawson MLC has been quoted as commencing investigations into a state wide ban on single use bans and the Shire should show its clear support.

A state wide initiative is preferable to Local Governments introducing their own individual Local Laws as this may result in different practices across Districts and create confusion for the public and retailers.”

STATUTORY / LEGAL IMPLICATIONS

The Meeting Procedures Local Law details requirements for an elected member’s motion of which previous notice has been given.

1. A notice of motion is to be given at least seven clear working days before the meeting at which the motion is to be raised; and

2. A notice of motion is to be accompanied by supporting reasons and is to relate to the good governance of the district.

Cr Cook’s notice of motion has met the requirements of the Meeting Procedures Local Law.

Section 3.5 of the Local Government Act 1995 sub-section 1 states –

A local government may make local laws under this Act prescribing all matters that are required or permitted to be prescribed by a local law, or are necessary or convenient to be so prescribed, for it to perform any of its functions under this Act.

Sub-section 3 states –

The power conferred on a local government by subsection (1) is in addition to any power to make local laws conferred on it by any other Act.

A Iocal government therefore only has the power to make a local law if;

1. The local law is necessary for a Iocal government to perform its functions under the Local Government Act 1995; or 2. The power to make a Local Law is stipulated under another Act (eg. Health Act, Dog Act etc.). It may be argued that a local law on plastic bag reduction is not necessary for a local government to perform its functions under the Local Government Act 1995, nor is it stipulated as necessary under another Act. As such, it may be that there is not an appropriate head of power to enact the local law as proposed. As discussed under the “Risk Implications” section of this report, this is a matter which is likely to be canvassed by the Joint Standing Committee on Delegated Legislation when considering a similar local law proposed by the Town of East Fremantle.

POLICY IMPLICATIONS

Nil

FINANCIAL IMPLICATIONS

The costs of undertaking the preparation of a new Local Law have not yet been determined. There would be costs for legal advice and public advertising as a minimum. The format of engagement with business groups would need to be determined and thus costs of this are also unknown at this time.

Enforcement of a new Local Law will require resourcing, including probable additional staff resources. Costs are also likely to be incurred for legal advice and representation for such matters as prosecution of breaches of the proposed local law.

Neither the draft long term financial plan, workforce plan nor draft annual budget 2017/18 has included provision for these likely costs of enforcement of the local law.

STRATEGIC IMPLICATIONS

Effective measures to reduce litter and landfill are consistent with the Shire’s Strategic Community Plan Mundaring 2026: Priority 3 Natural Environment - Objective Two ‘A place where the environment is well managed’ and Strategy 3.2.1 ‘Identify and mitigate threats to the natural environment’ and Strategy 3.2.2 ‘Develop greater recycling opportunities’.

The development of a Local Law is a considerable body of work. Such work is not identified in the current or draft Corporate Business Plan, which Council has been developing over several months. As such no provision has been made for the work to be undertaken.

Should Council be inclined to support the introduction of the proposed Local Law, it is recommended that it first seek a report which would identify the various implications regarding the preparation and implementation of the proposed Local Law. The report could then be considered in determining whether the proposal proceeds, and if so, when it would proceed.

SUSTAINABILITY IMPLICATIONS

Environmentally, there are multiple impacts from the use of plastic bags, including:

 use of non-renewable resources to make plastic bags;  single use bags quickly become litter and thus are sent to landfill;  most plastic bags take hundreds of years to break down; and  plastic bags are a cause of deaths of marine animals that swallow or become entangled in plastic.

Socially, it is likely that many Shire of Mundaring residents would share wider community concerns about the effects of plastic bags, particularly in aquatic environments. It is likely that individual support for a local ban on plastic bags would vary widely. It is likely that those with higher levels of concern are already voluntarily using alternatives to single use plastic bags.

Economically, the costs to businesses and consumers of alternative bags or containers are not considered to be significant. However, if individual local governments adopt bans on plastic bags there is a likelihood that a small proportion of trade will shift to shops and businesses in other local government areas that still provide plastic bags for convenience. There may also be retailer confusion about which type of bags are banned or permitted if Local Laws are not consistent across Western Australia.

RISK IMPLICATIONS

Should the Shire pursue its own Local Law banning the provision of single use plastic bags there is a risk that the Western Australian Parliament’s Joint Standing Committee on Delegated Legislation (which is required to approve any local laws proposed by local governments) may reject the Local Law. A previous similar Local Law proposed by the City of Fremantle was rejected by that Joint Standing Committee.

Further, with regard to the proposed local law sought by the Town of East Fremantle (which has not yet been determined by the Joint Standing Committee), the Department of Local Government recently provided comment. The Department’s advice highlighted that Parliament has previously raised the following concerns with local laws of this nature, where:

“a) it concerns a matter that may be best reserved for State-wide legislation; b) it imposes restrictions and costs on businesses in the district which may be perceived as anti-competitive; and c) the court may determine that the Local Law is not a lawful or reasonable use of the Local Governments lawmaking powers under the Local Government Act 1995. These issues may result in the local law being disallowed in Parliament. Even if the local law is not disallowed, it may potentially be vulnerable to legal challenge.” These comments are supported by the reference in the “Statutory / Legal Implications” section of this report to that part of the Local Government Act 1995 which deals with matters that are required or permitted to be prescribed by a local law. Accordingly, the risk that the Local Law (as proposed by this notice of motion) is rejected by the Joint Standing Committee is assessed as high. To mitigate this risk, it would be prudent for Council to await the decision of the Joint Standing Committee in regards to the proposed Town of East Fremantle Local Law before it commences action to develop its own Local Law. There is also a potential reputational risk to Council arising from a decision to develop a Local Law without any prior engagement or consultation on a matter which is likely to affect the local business community.

CONSULTATION

No consultation has been undertaken on this matter. Given the impact a ban on single use plastic bags on businesses within the Shire is likely to have, it is considered prudent that Council undertake engagement with the Shire’s business community prior to determining whether to commence with the proposed Local Law. Financial implications for such engagement would be included in a report (as proposed under the “Strategic Implications” section of this report) should Council wish to pursue the proposal.

COMMENT

State legislation restricting distribution of single use plastic bags is already in place in South Australia, Tasmania, Northern Territory and the Australian Capital Territory.

Queensland is also considering legislation, and in late 2016 released the Discussion Paper ‘Implementing a Lightweight Plastic Shopping Bag Ban in Queensland’ (ATTACHMENT 15). This Discussion Paper includes up to date information about the issues with various types of plastic bags and summaries of the approaches undertaken to date across Australia.

The Western Australian Minister for Environment and Disability Services has recently been quoted in the media saying that local governments can pursue their own bans via local laws, but has also requested the Waste Authority investigate options for State-wide action.

To prevent the potential confusion of ad hoc local law implementation of plastic bag bans by Western Australian local governments it would be preferable that this initiative is undertaken on a State wide basis, as per other States. Should the State, via the Waste Authority, not pursue a State wide ban on single use plastic bags, Council could at that time contemplate developing its own local law. It is also considered prudent, prior to contemplating development of a Shire of Mundaring Local Law, to await the outcome of a decision by the Joint Standing Committee on the proposed Local Law submitted by Town of East Fremantle. Costs and considerable time could be invested in the preparation and development of a Local Law which may be rejected. Summary

Given the risk in developing a Shire of Mundaring Local Law on Plastic Bag Reduction, as canvassed in this report, Council may wish to consider an alternative approach to that proposed in the notice of motion.

Council could express its support for a ban on the use of single use plastic bags by requesting State wide action on this initiative. For example Council might choose to resolve:

“That the Shire President, on behalf of Council, writes to the following persons/organisations and conveys Council’s preference for the WA State Government to enact a State-wide ban on single use plastic shopping bags:

 Hon Premier Mark McGowan MLA;  Hon David Templeman MLA, Minister for Local Government;  Hon Stephen Dawson MLC, Minister for Environment and Disability Services;  Western Australian Local Government Association; and  Eastern Metropolitan Regional Council”.

Should Council wish to consider developing of its own Local Law, it is recommended that it first seek a report canvassing all of the various implications regarding the preparation and implementation of a proposed Local Law. For example Council might choose to resolve:

“That Council directs the CEO to prepare a report detailing the implications and resources required to develop a local law on plastic bag reduction.”

Should Council wish to first await the outcome of other local government attempts to have a similar local law enacted, prior to requesting a detailed report from the CEO, then it might choose to resolve:

“That Council directs the CEO, once another local government has a Local Law on Plastic Bag Reduction or similar approved by the Joint Standing Committee on Delegated Legislation, to prepare a report detailing the implications and resources required to develop a Local Law on Plastic Bag Reduction”. VOTING REQUIREMENT

Simple Majority

MOTION

That Council –

1. directs the CEO to draft a “Shire of Mundaring Plastic Bag Reduction Local Law 2017” that –

a. bans single use plastic shopping bags to be provided or sold by a retailer with the Shire of Mundaring; b. is consistent with other WA Local Governments’ Local Laws specifically Town of East Fremantle and City of Fremantle; c. takes into account any future advice from the Joint Standing Committee; and d. is in accordance with the Local Government Act 1995; and

2. Writes to the following persons/organisations and convey –

a. Council’s intent and reasons for drafting the Shire of Mundaring Plastic Bag Reduction Local Law 2017; b. Council’s preference for the WA State Government to enact a State wide ban on single use plastic shopping bags –

 Hon Premier Mark McGowan MLA;  Hon David Templeman MLA, Minister for Local Government;  Hon Stephen Dawson MLC, Minister for Environment and Disability Services;  Western Australian Local Government Association; and  Eastern Metropolitan Regional Council

Attachment 15

Report 11.1

20 Pages Department of Environment and Heritage Protection

Implementing a lightweight plastic shopping bag ban in Queensland Discussion paper Message from the Minister

Queensland has one of the most beautiful and iconic natural environments in the world. Every year tens of thousands of people visit the Great Barrier Reef and every weekend scores of Queenslanders take to our beaches, waterways and bushland to relax and re-energise. The Queensland Government is committed to protecting this unique environment and there are a number of actions that we can take to achieve this. One of the most obvious actions is addressing the amount of plastic litter that we find in the environment. Plastic bags are the most conspicuous plastic litter item and they easily find their way onto our beaches and into our parks. Plastic bags are a convenient way for us to carry all sorts of things home from the shops and they have become a big part of our everyday lives. But we tend not to think about the consequences if they end up in the wrong place. All the scientific evidence is showing us that there is plastic at all levels of the food chain in our oceans. Plastic bags have one of the biggest impacts on our environment—and particularly on our marine environment and fauna. When plastic bags get into our waterways and marine environment animals like sea turtles and sea birds can ingest, or become entangled in, them. Beyond the amenity problem with plastic litter, the cumulative effect of plastic bags in our environment is a very real concern to the community. The good news is that we know we can do something to reduce the impact of plastic in the environment. When major supermarkets around Australia took voluntary action several years ago, consumers responded well to the message that we needed to find alternatives to the single-use plastic bag. In the three years of voluntary action, the number of lightweight bags in use was reduced by around 44 per cent. Unfortunately once the voluntary actions stopped our use of plastic bags started to increase. This is why four Australian states and territories have passed legislation banning the supply of lightweight plastic bags. The Queensland Government is introducing a similar legislated ban on lightweight plastic bags. What we are doing is certainly not new. Bans have been in place for many years around the world and individual companies and towns have been implementing voluntary initiatives for some time. The time is right for Queensland to take action to reduce the amount of plastic that is getting into our environment. The scientific evidence about the harmful impacts of plastic in the environment is growing every day. The Queensland Government sees a plastic bag ban as a critical step in a long term plastic pollution reduction plan. We also want to take the next step and take a lead role in working with retailers nationally to develop voluntary initiatives to reduce the use of the thicker department store-style bags. Complementary to the introduction of a lightweight plastic shopping bag ban, the Queensland Government will introduce a container deposit scheme. These two initiatives will work together to help reduce the amount of plastic litter in the environment. I invite you to have your say about the government’s plan to ban lightweight plastic bags by visiting www.getinvolved.qld.gov.au

Dr Steven Miles MP Minister for Environment and Heritage Protection Minister for National Parks and the Great Barrier Reef

2 | Table of contents

Message from the Minister...... 2 Overview ...... 4 The concern...... 4 International and national responses...... 4 Queensland’s response...... 4 Your views...... 4 Definitions ...... 5 Types of plastic bags ...... 6 The nature of the problem...... 7 Plastic in the environment...... 7 Impact of plastic bag litter...... 7 Amount of plastic bag litter...... 8 Persistence and ‘biodegradable’ plastics...... 8 Plastic bags and consumer behaviour...... 8 National and international responses...... 10 International action...... 12 National action on plastic bags...... 12 Business and voluntary responses...... 12 Jurisdictional action on plastic bags...... 13 Developing a Queensland Government response...... 14 Queensland policy context...... 14 Preliminary consultation on options for Queensland...... 14 Feedback from consultation to date ...... 14 The way forward for Queensland ...... 14 Inclusion of biodegradable plastic shopping bags ...... 15 Voluntary reduction measures...... 15 Research...... 15 What will a plastic bag ban in Queensland look like?...... 16 What would a ban mean for consumers?...... 16 What would a ban mean for retail businesses? ...... 16 What might the voluntary approach for heavy weight bags look like?...... 16 Key dates...... 16 Have your say...... 17 References...... 18 Appendix 1 ...... 19

Discussion paper | 3 Overview

This discussion paper seeks feedback on the Queensland Government’s decision to introduce a ban on the supply of lightweight single-use supermarket-style plastic shopping bags to consumers. The paper also seeks to start a discussion around the options for voluntary action to reduce the use of heavier- weight ‘department store’ plastic bags.

The concern

»» Approximately 900 million single-use lightweight plastic bags »» When plastic bags break down in micro-pieces, the chemical are used in Queensland each year. additives and plastic compounds are able to more easily enter food chains creating cumulative risks »» The majority of these bags end up in landfill; however around 2 per cent of the bags are littered—which means up to 16 million for animals and humans. bags entering the environment in Queensland each year. »» Research is also indicating that the Great Barrier Reef is suffering from the impacts of plastic litter pollution. »» Although they represent only a small proportion of the litter stream, plastic bags are a highly conspicuous source of plastic »» Apart from discarded fishing gear, plastic bags are the most pollution that can be avoided. dangerous item of marine debris in terms of potential for wildlife to become entangled in or ingest the bags. »» Recent CSIRO research has shown that plastic pollution in coastal waterways is killing and seriously impacting on marine »» When they are littered, plastic bags also significantly impact on wildlife, notably endangered leatherback turtles, vulnerable the visual amenity of an area. green turtles and seabird chicks. »» Restricting the number of plastic bags is part of work in Australia »» The research notes that some marine turtles will preferentially and internationally to reduce the total plastic load in the eat plastic bags. environment.

International and national responses

»» Governments in Australia and around the world have taken action to reduce plastic bag pollution. »» International and national policy measures to date have tended to focus on lightweight ‘supermarket’ shopping bags as these account for the bulk of bag usage and littering. »» Between 2003 and 2005, major Australian supermarkets voluntarily reduced the use of lightweight plastic shopping bags by around 44 per cent. However, by 2007 numbers were rising and approaching four billion. »» Since the end of the national voluntary Code in 2005, there has been no successful co-ordinated national approach to restricting the supply of plastic bags. »» South Australia, the Northern Territory, the Australian Capital Territory and Tasmania have all introduced legislated bans on the supply of lightweight plastic shopping bags, with exemptions for biodegradable bags.

Queensland’s response

»» The Queensland Government has decided to introduce a legislated ban on the lightweight supermarket-style plastic shopping bags which make up the bulk of plastic bag use. »» At the same time the government wants to lead national action to work with department stores on voluntary initiatives to reduce the use of the heavier plastic bags.

Your views

»» Your feedback on how the government should go about implementing a plastic bag ban is sought. The government is also interested in your views on voluntary measures that could be introduced to reduce the use of the heavier department store plastic bags. »» Go to page 17 to Have your say.

4 | Definitions

Barrier bag Smaller bags without handles used to contain unpackaged perishable food, including fruit, vegetables, meat and fish. Other types of bags without handles include bin liners, bread bags etc.

Biodegradable bag A bag made from natural material such as corn-starch (rather than petrochemical HDPE or LDPE plastic) which breaks down into organic material and water in the environment. This includes compostable bags. Biodegradable bags are different from (but are commonly confused with) bags made of degradable material. (Refer degradable bag).

Department store plastic bag A heavier-weight plastic bag designed for single-use, commonly provided by department and specialty stores such as electronic and clothing retailers. These bags are often made of LDPE plastic.

Compostable bag A type of biodegradable bag made of material that has been assessed as compostable in a commercial composting environment in accordance with Australian Standard ‘AS 4736—2006 Biodegradable plastics—Biodegradable plastics suitable for composting and other microbial treatment’.

Degradable bag, including oxo- Petrochemical-based plastic bags designed to break up into fragments when triggered by light (oxo- degradable or hydro-degradable degradable) or water (hydro-degradable). These are different from biodegradable or compostable bags made from natural materials.

Green bag A type of reusable bag with handles designed for multiple reuses, often made of woven polypropylene and commonly sold by supermarkets as a single-use plastic shopping bag alternative.

Macroplastics Plastic litter consisting of packaging, fishing debris and other items.

Microplastics Tiny plastic fragments, less than five millimetres in size, principally resulting from the breakdown of plastic litter or macroplastics in the environment.

Plastic HDPE bag A plastic bag made of high density polyethylene (HDPE), typically a lightweight single-use plastic shopping bag. This includes degradable bags.

Plastic LDPE bag A plastic bag made of low density polyethylene (LDPE). Often a single-use heavier-weight department store plastic bag, although some reusable bags are also made from heavy-duty LDPE.

Retailer A business or person that sells goods to a consumer as opposed to selling to another business.

Reusable bag A bag with handles that is specifically designed for multiple reuses and is made of washable cloth or fibre, or other long-wearing material including heavy-duty LDPE plastic. This includes green bags.

Single-use lightweight A thin (less than 35 microns) plastic bag with handles that is designed for single-use, principally to supermarket-style plastic enable the consumer to transport purchases from the point-of-sale to another destination. Usually shopping bag provided by supermarkets, convenience stores, liquor stores or takeaway food and other retail outlets. Also commonly referred to as supermarket, singlet, checkout or carry bags. May be a plastic HDPE, biodegradable or degradable bag.

Discussion paper | 5 Types of plastic bags

There are many different types of plastic bags that have a wide range of uses. The pictures following illustrate the types of bags that will be included in a ban and those that fall outside the scope of a ban. Each type of bag is more fully described in the Definitions section of this discussion paper. The Queensland Government’s ban relates to single-use lightweight shopping bags, whether made of HDPE plastic, biodegradable, or degradable material. The ban does not cover bags without handles such as fruit and vegetable bags or barrier bags, or bags that have been designed to be used multiple times. The proposed complementary voluntary initiative would focus on reducing the number of single-use heavier-weight plastic department store bags. These bags, while lower in numbers than lightweight supermarket-style bags, still form part of the litter stream which impacts on the environment and in most cases can readily be replaced by non-plastic alternative bags.

Lightweight single-use plastic supermarket-style bags included in the ban:

HDPE plastic bag Biodegradable and compostable bag Degradable bag

Heavier-weight plastic bags included in proposed voluntary measures:

Heavier-weight (>35 micron) department store bag (LDPE plastic)

Examples of plastic bags without handles—not included in the ban:

6 | The nature of the problem

In Australia and internationally, there is increasing evidence about the cumulative impact that plastic has on soils, waterways, marine environments and fauna. Impacts include entanglement and ingestion. Over time plastics in the environment break down into smaller and smaller pieces, so compounding the problem. Marine debris is recognised under the Environmental Protection and Biodiversity Conservation Act 1999 (the Act) as a ‘key threatening process’ which is a process that ‘threatens or may threaten the survival, abundance or evolutionary development of a native species or ecological community’. The Threat Abatement Plan for the Impacts of Marine Debris on Vertebrate Marine Life was established under the Act in 2009. Following a review a revised plan is currently under development that is intended to better address the impact of plastics. Work is currently underway through the national Environment Ministers forum to address single-use plastic packaging and microplastics in the environment. The immediate focus of the microplastic work is on microbeads present in personal care products such as toothpaste and face scrubs. Restricting the number of plastic bags is an important part of the response to reduce the overall amount of plastic entering our environment. Around 900 million lightweight plastic shopping bags are estimated to be used annually in Queensland. These plastic bags are designed to be used as single-use carry bags for people to use to take goods from the shops to their homes. The majority of plastic bags end up in landfill and 1–2% are littered—which means almost 20 million plastic bags could enter the Queensland environment each year.

Plastic in the environment Impact of plastic bag litter Numerous studies have shown that plastics, including plastic bags, are The impact of plastic bag litter on wildlife is well documented. A persistent in the environment and have significant aesthetic and South East Queensland study found 54% of pelagic and 25% of wildlife impacts. benthic marine turtles had ingested plastic marine debris. Studies Because they can take hundreds of years to break down, plastics also indicate that turtles select clear or white soft buoyant plastics, can have long-term impacts on the environment, including posing some of which resemble their natural prey such as jellyfish. a threat to marine life and contributing to flooding due to blocking A 2016 assessment of the ecological threat posed by the most drains and waterways. common types of coastal litter found that, apart from discarded In addition, many plastics will break down into small fragments, fishing gear, plastic bags posed the greatest threat to seabirds, which increase the plastic (and chemical) load in the environment. turtles and marine mammals through ingestion, entanglement and contamination. The report noted that: When plastic bags break down into small fragments (known as microplastics) the chemical additives are able to enter the ‘Plastic bags generally have handles which pose an environment. Environmental and health exposure to plastic-related entanglement risk as well as a three-dimensional chemical compounds does not occur in isolation but as a ‘cocktail effect’ of mixed plastics in the environment. structure that creates a space in which an animal or parts of an animal can become entwined; indeed Plastics in the ocean also absorb other chemicals and toxins that may be present. If these chemicals are ingested by marine animals, plastic bags have been shown to entangle pinnipeds humans will also ingest them by eating the contaminated fish. [seals] … compared to most other consumer plastic Aside from chemical toxicity, plastics in the marine environment items, plastic bags pose one of the greatest impacts pose significant ingestion and choking hazards to numerous marine to ocean wildlife and thus, from an environmental species, including turtles, birds, zooplankton and corals. Plastic does impact perspective, plastic bags warrant the specific not break down in the animals’ digestive system so its presence, attention they have received from governments and even in small amounts, can cause starvation and a build-up of gases in the body cavity that contributes to floating disease in turtles. advocates to address their usage.’ (Wilcox et al 2016). Plastics, including plastic bags, have significant littering potential. Plastics are a significant contributor to the litter stream and marine debris and contribute the largest volume of scattered material found in open spaces such as beaches, highways and recreational parks. Flexible plastics such as bags are highly mobile and easily blown into inaccessible places on land and into waterways. As well as the impact on wildlife, plastic bags are unsightly in the environment, creating visual pollution.

Main heandingDiscussion goes paper here || 77 Amount of plastic bag litter Plastic bags and consumer behaviour By volume, plastic bags contribute around 3.5% of the total of In 2002 a Nolan ITU Report Plastic Shopping Bags: Analysis of Levies plastic litter. According to Clean Up Australia reports, plastic has and Environmental Impacts stated: remained the most common category of rubbish picked up on Clean Up Australia Day over the past 20 years. In 2009, it made up 29% ‘The production of 6.9 billion plastic shopping bags of all rubbish found. Of the plastic rubbish found, plastic bags consumes approximately 36,850 tonnes of plastic, accounted for 17.6% with an average of 40 plastic bags found at or 2% of total plastics produced in Australia each each Clean Up site, totalling 500,000 bags every year. year. This is a small percentage of the total amount of Lightweight single-use plastic bags make up the largest proportion packaging consumed in Australia each year, which is of littered plastic bags. Although bags are small in volume, they rate highly in terms of overall impact. Evidence from littering and estimated to be around 3 million tonnes. It has been behaviour surveys also suggests that people will litter more in estimated that plastic shopping bags make up 2% places where litter is already visible, as they view that area as of all items in the litter stream, however, they pose already degraded. This means that the presence of plastic bag litter real ecological impacts and hazards and as such can also exacerbate the litter problem. need to be effectively addressed along with other Marine debris surveys along the Queensland coast between 2011 components of the litter stream.’ and 2015 resulted in an average of 12 to 24 bags per site, with a maximum of over 640 items at one location. Six billion of the estimated 6.9 billion bags were lightweight plastic While lightweight plastic bags make up the largest proportion of shopping bags. The report went on to identify that: plastic bags in the litter stream this is most likely due to the fact that lightweight plastic use is far greater than heavier-weight department ‘Plastic bag litter is not actually coming from the store bag use. supermarket retail sector but predominately from Not all litter is deliberate. An estimated 47% of wind-borne litter away-from-home destinations and retail such as escaping from landfills is plastic with the majority of this being convenience stores and takeaway food outlets. plastic bags. While these bags make up a relatively small number in plastic bag consumption, they contribute a Persistence and ‘biodegradable’ plastics relatively high number to the litter issue. These outlet operators did not by and large participate in While plastic bags are only part of the total litter stream they have the potential to significantly add to the plastic load already present. or support the ARA Code.’ This is due to the persistent nature of plastics and the fact they can A 2014 CSIRO report Understanding the effects of marine debris on fragment, with subsequent potential to significantly harm marine life. wildlife identified general consumer behaviour and illegal dumping All existing plastic bag legislation in Australia exempts as the main factors contributing to the release of plastic litter into the biodegradable bags from the ban where they meet the Australian ocean. The report also suggested that local education campaigns may Standard for compostability. However, while there has been help to reduce the amount of plastic debris found in coastal areas. considerable research into biodegradable plastics studies have Data on the number of plastic bags used in Australia is difficult to shown there is no significant difference between standard and obtain. In 2002, an estimated 6.9 billion plastic bags were used in ‘biodegradable’ plastics in the way these plastics behave when Australia each year. Six billion of these were lightweight bags with ingested. These studies suggest that biodegradable plastics the remainder being heavier-weight, department store bags. Plastic bags do not break down any faster when ingested than a ‘normal’ bags are Australia’s highest volume of add-on packaging and the petrochemical plastic bag. use of plastic bags has become habitual. For food scrap recycling purposes, compostable biodegradable bags The service life of the single-use plastic bag is relatively short. are becoming increasingly useful. However, as shopping bag, single- The majority of lightweight bags are reused as bin liners or as use biodegradable bags and oxo-degradable plastic bags are not secondary wrapping/carry bags for other items. Most of these bags considered to be a suitable substitute for conventional HDPE plastic will ultimately end up in landfill where they present a problem both bags. Oxo-degradable bags in particular fragment into small plastic as a wasted resource and as a potential litter management issue. pieces or powder residue, adding more plastic load to the environment. Each year more than three billion bags—or around 20,000 tonnes of plastic (or equivalent to 12 family cars)—are disposed of in landfills throughout Australia. Supplying plastic bags costs Australian retailers millions of dollars annually. This price is built into product costs, however, plastic bags are perceived by customers to be ‘free of charge’. This cost applies to all consumers regardless of whether they bring reusable bags or not. The cost to government, principally local governments and transport departments, of cleaning up plastic bags and other types of litter is borne by the community through rates and taxes, but is not a visible cost to consumers.

Replacing HDPE plastic bags with biodegradable bags may also send the wrong message to the consumer. If people believe that the bags will biodegrade quickly then it may not be seen as that much of a problem if it is littered.

8 | Discussion paper | 9 National and international responses

It is not just Queenslanders who are concerned about plastic pollution and plastic bags in the environment. Governments elsewhere in Australia and around the world have taken action to reduce plastic bag pollution. This provides an opportunity to learn from the experiences in other places and select the best features of these policies that are most suited to Queensland.

National action 2002 »» Major retailers National action National action develop voluntary »» Estimated 45% »» National work to look at options Code of Practice for reduction in to restrict plastic bag use the Management of lightweight commences. Plastic Bags. plastic bag use under the International action International action voluntary Code »» UK supermarkets adopt voluntary »» Ireland introduces of Practice. reduction target of 50% by 2009. a charge of 15p, achieving more than 90% reduction in six months. »» Bangladesh bans 2005 2006 polyethylene bags.

2003 2007

National action »» Australia’s Environment Protection and Heritage 2008 Council (EPHC) committed National action to phase out lightweight, »» EPHC re-confirms plastic single-use plastic bags bag phase-out commitment. by 1 January 2009. International action »» Code of Practice National action commences. »» California’s 2007 Plastic »» Following consultation on a Bag Recycling Bill Decision Regulatory Impact International action encourages cities to ban Statement, no national agreement »» South Africa banned ‘thin’ checkout bags. reached on a preferred approach. plastic bags <30 microns. »» Irish bag levy raised due to increase in bag use. International action »» China regulates to ban thin bags, mandate a charge for thicker bags, and limit plastic bag production.

10 | National action »» Qld Waste Strategy 2014– 2024 identifies single-use plastic packaging as a priority.

International action National action »» European Union Plastic Bag »» Tasmania bans single- Directive passed to reduce use plastic bags. plastic bag use by 50% by National action 2017 and 80% by 2019. »» Queensland and »» California bans single-use New South Wales bags and mandates charge co-host a Plastic for reusable bags. Bag Roundtable in 2012 February. »» Queensland, New South Wales, Western Australia and Victoria 2014 form a working group National action to develop an east coast solution for »» South Australia bans plastic bags. single-use plastic bags.

2009 2016

2011

National action »» Northern Territory bans single-use plastic bags.

International action 2015 »» Wales introduces a charge for all single- use carry bags, achieving a 70–97% reduction in nine months. »» At least 25% of the world’s population National action now lives in areas with bans or fees on »» Queensland Government plastic bags. holds plastic bag 2010 stakeholder workshop.

International action »» England imposes a charge National action on plastic bags. »» ACT bans single-use plastic bags.

Discussion paper | 11 International action More than 30 countries and 18 states in the USA have some form of voluntary or regulatory approach to restricting the use of single-use plastic bags. The most common regulatory approach is a direct point-of-sale charge on plastic bags. However no one intervention has been used exclusively—voluntary measures, bans and charges have been introduced at various points with a mix of actions often implemented. There have been various drivers for this action. In Bangladesh there was a need to prevent plastic litter entering drains which had been found to contribute to the severity of flooding. In South Africa, plastic bags became known as ‘the flower of South Africa’ due to their prevalence in the environment and there was a need to reduce the aesthetic impact of plastic bags. In many countries, new industries in reusable bags have been established, creating jobs in some of the poorer areas of the country.

National action on plastic bags In 2003, Australia’s Environment Protection and Heritage Council committed to phase out lightweight, single-use plastic bags by 1 January 2009. It reaffirmed this commitment in June 2007. Consultation on a Regulatory Impact Statement in 2007 indicated that while retailers expressed concern over any regulation, they did state that any option needed to allow them to continue to provide their customers with a choice. In light of all the considerations, the most appropriate option at the time was considered to be the introduction of a mandatory charge on the supply of a plastic bag by a retailer. Following the release of a Decision Regulatory Impact Statement in 2008, no national agreement was reached as some states supported a ban while others preferred a Commonwealth charge.

Business and voluntary responses

Voluntary retailer Code of Practice Between 2003 and 2005, major supermarkets reduced the use of lightweight plastic shopping bags by around 44% under a Voluntary Code of Practice for the Management of Plastic Bags. During this time, numbers fell from close to six billion in 2002 to around 3.4 billion in 2006. However, by 2007 numbers had started to increase once again.

In 2008, the Australian National Retailers’ Association conducted a trial levy of 10 cent per plastic bag at Coles and Woolworths Supermarkets and IGA retailers in Narre Warren, Wangaratta and Warrnambool in Victoria. The trial was approved by the Australian Competition and Consumer Commission. During the four weeks of the trial there was a 79% reduction in plastic bag use at these supermarkets and the funds raised were channelled into environmental projects. Several towns across Australia have introduced voluntary bans on the use of plastic bags. In 2003, Coles Bay in Tasmania became the first Australian town to introduce a voluntary plastic bag ban. In November 2012, Woorabinda Shire Council in Central Queensland became the first local government area to introduce a plastic bag ban to reduce the amount of litter in the community. A number of retailers, including Bunnings, IKEA, Aldi and Super Retail’s BCF and Supercheap Auto stores, has also voluntarily stopped using single-use plastic bags. Target phased out ‘free’ plastic bags in 2009, instead charging for heavier bags based on size. However, they reintroduced the lightweight bag in 2013.

Retailer case study: Bunnings In September 2003, Bunnings became the first major retailer to impose a charge on plastic bags in their stores. In a joint initiative with Keep Australia Beautiful (KAB), Bunnings added a 10 cent levy to disposable plastic bags distributed in its stores throughout the country. This action achieved an 80% reduction rate by the end of 2003 and raised around $180,000 for KAB. In 2008 single-use plastic bags were removed altogether from Bunnings stores as plastic bag use had reduced by 99% over the five years since the introduction of the charge.

12 | Community case study: Coles Bay In April 2003, Coles Bay retailers decided to reduce the number of plastic bags used in the area and stopped supplying them to customers. Instead they introduced ecologically sensitive alternatives including Australian-made recycled paper bags and reusable calico shopping bags. In the first 12 months, they stopped the use of 350,000 plastic checkout bags. The Tasmanian Government moved to ban plastic bags 10 years later and promotes Coles Bay as Australia’s first ‘plastic bag-free town’.

Jurisdictional action on plastic bags As a result of failure to reach national agreement on action, and following a steady increase in the use of plastic bags after the end of the voluntary Code of Practice, two states and two territories have banned the supply of lightweight single-use plastic shopping bags. In 2008, the South Australian Government became the first Australian state to introduce legislation that banned the supply of single-use lightweight plastic shopping bags. Legislation banning the use of plastic shopping bags has now been enacted in the Northern Territory, Australian Capital Territory and Tasmania (Table 1). At a late 2015 Meeting of Environment Ministers, Ministers agreed that Queensland and New South Wales would co- convene a ministerial roundtable to inform a harmonised approach to reducing the environmental impact of plastic shopping bags. At the plastic bag roundtable held in February 2016, stakeholders examined the scientific evidence, the experiences of jurisdictions that have banned plastic bags, and next steps for government. Queensland, New South Wales, Victoria and Western Australian formed a working group to guide discussion on the development of a joint solution to reducing the impact of plastic bags on the environment.

Table 1: Summary of regulated plastic shopping bag bans in Australia

Applies to Date of ban Coverage Exemptions Results all retailers South Australia 2009 <35 micron Biodegradable bags Yes Reports of reduction of almost 400 million plastic plastic bags bags per year, and substantial reduction in shopping bag litter. Northern Territory 2010 <35 micron Biodegradable bags Yes Review in 2014 claimed annual reduction of 31 million plastic bags banned bags. ACT 2011 <35 micron Biodegradable bags Yes Review in 2014 indicated amount of landfilled plastic plastic bags bag waste decreased by one-third. Tasmania 2013 <35 micron Biodegradable bags Yes Reduction in shopping bag litter. plastic bags

Australian case study: Australian Capital Territory plastic bag ban The Australian Capital Territory brought in a ban on lightweight single-use shopping bags in November 2011. A survey of consumers and grocers in 2012 found that: »» Most primary shoppers (84%) reported taking reusable bags always or most of the time. »» The majority of shoppers (58%) supported the ban, with support strongest amongst younger age groups. »» Most shoppers (73%) did not feel they had to plan their shopping trips as a result of the ban, with 85% more likely to bring their own reusable bags. »» Most shoppers (69%) did not want to see the ban extended to cover all plastic bags. »» Two-thirds of shoppers would like the ban to be implemented nationally. A review of the ban in 2014 found it had reduced the plastic bag material going to landfill and had been successful in reducing the incidence of plastic bags as litter.

Discussion paper | 13 Developing a Queensland Government response

Queensland policy context Feedback from consultation to date In 2015, the Queensland Government committed to investigate Feedback from discussions at these forums indicated that possible restrictions on single-use plastic bags. Single-use plastic consistency with other states is extremely important to industry. bags represent the most obvious packaging item that needs to be Additional feedback indicated that: addressed and the item where the options to restrict use are known and demonstrable. »» The retail sector prefers voluntary measures, but agrees that any government regulation should be consistent with other Beverage containers are another highly littered item, and are jurisdictions and apply to all retailers who distribute single-use, increasingly made of plastic. The Queensland Government is lightweight plastic shopping bags. introducing a container deposit scheme, in order to prevent littering and improve recycling rates. »» If regulation is introduced, the retail sector favours a ban on the supply of lightweight plastic bags, rather than a charge. These two initiatives are part of an overall plastic pollution reduction plan for Queensland aimed at reducing the amount of plastic »» There is no support for exempting degradable or biodegradable entering the environment. bags from a ban, due to concerns over their environmental impact. It is acknowledged that plastic is a bigger issue than bags and »» There is consensus in the environment sector for measures to bottles and that the end-of-life management of other problematic also restrict the use of other plastic bags, principally heavier- plastic items will need to be investigated in the future; however weight department store bags. action on these two issues provides a starting place for future work. »» All stakeholders agreed on the need for an effective Marine debris is recognised as a threat to the Great Barrier Reef in communication and education program to support any the Reef 2050 Long-Term Sustainability Plan. The Great Barrier Reef regulation, and a lengthy transition period to allow the retail Marine Park Authority five-yearly Outlook Report identifies land- sector and consumers to make preparations. based run-off, including marine debris, as one of the four highest risks to the Reef’s ecosystem. Based on these findings, the Reef 2050 The way forward for Queensland Long-Term Sustainability Plan notes that marine debris continues to affect the Reef, including species of conservation concern. Based on the preliminary consultation and the feedback received to date, a lightweight plastic bag charge is not being considered. The Preliminary consultation on options Queensland Government’s preferred approach is to: »» ban the supply of single-use, lightweight plastic bags (with no for Queensland exemption for biodegradable bags), and The Queensland Government convened a plastic bag stakeholder »» work with retailers on voluntary actions to reduce the use of workshop in October 2015 in Brisbane. The workshop involved heavier-weight department store bags. representatives from the business and retail, resource recovery, The main advantages of a ban are ease of administration, simplicity environmental and local government sectors. for retailers and customers, certainty of environmental outcome Workshop participants were asked to provide feedback on three (including over time), and consistency with other jurisdictions that options to improve the management of plastic bags: have implemented bag bans. »» voluntary reduction measures International and national experience indicates that in banning »» banning plastic bags plastic bags consideration needs to be given to: »» requiring a charge for plastic bags. »» Clear description of the banned bags including specification of thickness and material. The three broad options considered by workshop participants, and »» Exemptions from the ban, such as for biodegradable bags. the advantages and disadvantages of each, are summarised at Appendix 1. More information on the consultation to date can be »» Suitable alternatives to replace the banned bags. found on the Department of Environment and Heritage Protection »» Type of retailers the ban applies to (e.g. large supermarkets website at www.ehp.qld.gov.au/waste. only, or all retail outlets including convenience stores, take-away Following the workshop, bilateral meetings were held with key restaurants, and non-grocery retailers such as chemists). stakeholders and written submissions on the options for managing »» The use of complementary reduction measures for thicker bags plastic bags were received from workshop participants. or bags made out of other materials. In February 2016, Queensland also co-hosted a Plastic Bag »» Careful planning, and extensive education and awareness Roundtable with the New South Wales Government. campaigns to assist retailers and consumers prepare for the transition to the ban regime.

14 | Inclusion of biodegradable plastic shopping bags Those Australian states and territories that have legislated to restrict plastic bags have all allowed ‘biodegradable’ bags to continue to be used if they comply with the Australian Standard for biodegradable plastics suitable for composting. Increasingly, plastic packaging products carry ‘environmentally-friendly’ labelling such as degradable, biodegradable, oxo-degradable or compostable. These competing claims are confusing for retailers and consumers alike. Retailers in jurisdictions with plastic bag bans have experienced difficulty sourcing genuine Australian Standard compliant biodegradable products. In addition, these products do not avoid some of the most concerning environmental impacts. As litter, prior to totally breaking down, they are just as much an eyesore as the non-degradable bags. Petrochemical-based oxo or hydro-degradable bags that break down into tiny pieces of microplastic can actually spread contamination in the environment. This is now a growing concern in overseas countries which have seen a proliferation of degradable bags. Even fully biodegradable or compostable plastics can still have the same physical impacts as conventional plastics when they are eaten by animals. Plastics that comply with the Australian Standard are only biodegradable under commercial composting conditions that do not exist generally in the environment. Research shows these plastics do not break down quickly when ingested by animals. Biodegradable plastics can also contaminate loads of plastic collected for recycling. They are not easy to identify or separate out and can end up causing faults in products manufactured with recycled plastics. Some of the most recent international laws on controlling plastic bags have not exempted biodegradable bags. The UK Department for Environment, Food and Rural Affairs 2015 Review of standards for biodegradable plastic carrier bags found that: ‘It is not currently possible to assemble a standard specification that would ensure that plastic bags claiming to be biodegradable would biodegrade in all environments, in particular in the open environment.’

The review found that further detailed research would be needed before any types of carrier bag could be excluded from the charge on the grounds of biodegradability.

Voluntary reduction measures There are a number of voluntary mechanisms that can help reduce the use of plastic bags. A number of towns and communities, and individual retailers, have taken their own voluntary action to ban plastic bags. Industry’s preference is for voluntary measures. However, while some large businesses have already adopted voluntary measures, others have not. Rising numbers of shopping bags following the end in 2005 of the Code of Practice showed the effect of this voluntary initiative wearing off and indicates that ongoing action is needed to have a lasting impact. As not all retailers took part in the voluntary Code, some retailers were affected more than others. Previous voluntary programs have focused on lightweight bags. However, given that heavier-weight plastic ‘department store’ bags also pose a littering risk and environmental hazard, there is an opportunity to begin a new voluntary process partnering with department stores and other retailers to phase out heavier-weight single-use plastic bags. These heavier-weight plastic bags are lower in numbers than lightweight supermarket bags and so present in the litter stream at a lower rate. There may be a risk that acting to restrict lightweight plastic supermarket bags would lead to an increase in the number of heavier-weight bags in the environment. As plastic department store bags can readily be replaced by non-plastic alternatives, voluntary measures are likely to be an effective way to reduce their usage. There are already numerous examples of shops moving from heavier-weight LDPE plastic department store bags to cardboard or reusable alternatives.

Research The Queensland Government intends to facilitate further research to collect detailed baseline data on plastic bag use, plastic bag litter and environmental impacts. This will help to understand the effects of the interventions—both regulatory and voluntary—that are put in place, and assist with the evaluation of the interventions.

Discussion paper | 15 What will a plastic bag ban in Queensland look like?

The intention is to introduce a regulation that prohibits any retailer What would a ban mean in Queensland from providing consumers with single-use lightweight plastic shopping bags. for retail businesses? To ensure consistency for the retail sector, Queensland is seeking Retailers would be prohibited by legislation from supplying single- to adopt a similar law to South Australia, the Australian Capital use lightweight shopping bags made from any kind of plastic, and Territory, Tasmania and the Northern Territory. fines would apply. However, unlike other jurisdictions, biodegradable bags would be Any ban would only come into effect after extensive consultation included in the ban in Queensland, as these bags still pose a risk to and preparation, with sufficient lead time to allow retailers and aquatic fauna such as turtles. consumers to adjust to the change. The ban will apply to the following bags: »» lightweight bags, less than 35 microns thick, with handles What might the voluntary approach for (‘singlet’ bags)—consistent with other states heavy weight bags look like? »» biodegradable singlet-style bags. The Queensland Government will lead a national initiative on The regulation will apply to all retailers—including supermarkets, behalf of all jurisdictions to work with department store retailers on convenience stores, take-away food stores, pharmacies, liquor voluntary measures to reduce the use of the heavier weight bags. stores, and other retail businesses. At the same time the Queensland Government will work with The ban will not apply to the following bags: department stores to implement voluntary actions to reduce the »» barrier bags (typically fruit and vegetable and deli-style bags supply of the heavier single-use plastic bags. without handles) This may take the form of a Code of Practice similar to that »» reusable bags implemented by major supermarkets in 2003; however, the government is interested in hearing about the available actions that »» heavier-weight department store bags have been and could be developed. A number of stores have already »» bags that are integral to a product’s packaging (such as a voluntarily stopped using plastic bags and the government wants to bread bag) build on these approaches. »» kitchen tidy bags. Surveys in other jurisdictions show that householders and retailers Key dates quickly adjust to a plastic bag ban and that there is a high degree of support for the environmental objective of reducing plastic litter. 25 November 2016 Release of discussion paper ‘Implementing a lightweight plastic What would a ban mean for consumers? shopping bag ban in Queensland’ 27 February 2017 Close of public consultation on Consumers would no longer be able to obtain lightweight plastic discussion paper shopping bags at supermarkets, convenience stores, service stations and other retail outlets. Early 2017 Development of legislation for lightweight plastic bag ban Reusable bags would still be available, or consumers could bring Commence consultation with retail their own bags. sector on voluntary measures to A ban will mean that the so-called ‘free’ plastic bag is no longer reduce the numbers of heavier-weight available to the consumer. The single-use plastic bag is currently not department store plastic bags free to the consumer. The cost of a bag is incorporated into the price Mid-2017 Introduction of legislation to ban of goods purchased. While a ban may mean that the consumer will lightweight shopping bags have to purchase reusable bags, this should usually be a one-off cost. Development of measures for heavier- weight plastic bags Mid-2017 to end-2017 Preparation for ban on lightweight bags, including education and training for retailers and consumers 1 July 2018 The ban on lightweight shopping bags comes into force

16 | Have your say

Your feedback on how the government should go about implementing a plastic bag ban is sought. The government is also interested in your views on voluntary measures that could be introduced to reduce the use of the heavier department store plastic bags. A carefully-planned transition period is required before the ban comes into force on 1 July 2018. This transitional period will mean that: »» retailers will have time to adjust their operations and practices and source alternatives to plastic bags »» consumers will have time to purchase reusable bags and know when they will no longer be provided with a single-use plastic bag »» new business opportunities can be identified and developed »» a public awareness program on the new arrangements can be delivered well before the changes take effect. Consultation questions What implementation issues should the government take into consideration when introducing the ban? 1. Do you think that 1 July 2018 allows enough time for consumers and retailers to transition to plastic bag alternatives? Why/why not? 2. Do you agree that biodegradable bags should be included in a ban? Why/why not? 3. Do you support the Queensland Government working with other states and territories to encourage industry to reduce the number of heavier-weight plastic department store bags? Why/why not? 4. What else can be done by the Queensland Government to address plastic pollution?

Make a submission Submissions are encouraged from interested parties including members of the public, environment and community groups, local councils, and retailers and retail associations. You can provide your feedback on the consultation questions by: »» completing the online survey at www.getinvolved.qld.gov.au, or »» emailing a written submission to [email protected] »» posting a written submission to: Department of Environment and Heritage Protection ATTN: Waste Policy and Legislation GPO Box 2454 Brisbane QLD 4001

Submissions close 5pm 27 February 2017.

Important note about confidentiality In the interests of transparency and to promote informed discussion, the Department of Environment and Heritage Protection would prefer submissions to be made publicly available where this is reasonable to do so. However, if a person making a submission does not want that submission to be published publicly, that person should indicate that the document (or any part of the document) is confidential. Confidentiality should be clearly noted on the front page of the submission and the relevant sections of the submission should be marked as confidential, so that the remainder of the document (where applicable) can be published. In this circumstance, it would be appreciated if two versions of the submissions could be provided (i.e. the complete version and a version excising the confidential information). While the Department of Environment and Heritage Protection will endeavour to identify and protect material claimed as confidential as well as exempt information and information disclosure which would be contrary to the public interest (within the meaning of the Right to Information Act 2009), it cannot guarantee that submissions will not be made publicly available. There is a possibility that the Department of Environment and Heritage Protection may be required to reveal confidential information as a result of a right to information request.

Main heandingDiscussion goes paper here || 1717 References

ACT Government – Environment and Sustainable Development Keep Australia Beautiful. n.d. Keep Australia Beautiful National Litter Directorate, April 2014. Review of the Plastic Shopping Bags Ban Index 2013/2014

ACT Government – Environment and Sustainable Development Mudgal, Shailendra, Lorcan Lyons, Mary Ann Kong, Nejma Andre, Directorate, September 2012. Survey of Consumer Attitudes to the Veronique Monier, and Eric Labouze. 2011. Assessment of impacts ACCT Plastic Bag Ban of options to reduce the use of single-use plastic carrier bags. Report to the European Commission - DG Environment, ENV.G.4/ Britta Denise Hardesty, Chris Wilcox, TJ Lawson, Matt Landsell and FRA/2008/0112, Paris: Bio Intelligence Service Tonya van der Velde, CSIRO August 2014. Understanding the effects of marine debris on wildlife Nolan ITU. 2002. Plastic Shopping Bags: Analysis of Levies and Environmental Impacts Aspin, M. 2012. Review of the Plastic Shopping Bags (Waste Avoidance) Act 2008. Adelaide: Report to the Government of South Ocean Concervancy and McKinsey Center for Business and Australia Environment. 2015. Stemming the Tide: Land-based strategies for a plastic - free ocean. Washington, D.C.: Ocean Concervancy and Cole, Matthew, Pennie Lindeque, Claudia Halsband, and Tamara McKinsey S Galloway. 2011. Microplastics as contaminants in the marine environment: A review. Marine Pollution Bulletin 62: 2588–2597 O’Farrel, K. 2009. LCA of Shopping Bag Alternatives to Zero Waste South Australia. Adelaide: Report to Zero Waste South Australia by Department for Environment, Food & Rural Affairs. 2015. Policy paper Hyder Carrier bags: why there’s a charge. Schuyler, Q. A., C. Wilcox, K.A. Townsend, K. R. Wedemeyer- Department for Environment, Food & Rural Affairs. December 2015. Strombel, G. Balazs, E. van Sebille, and B.D. Hardesty. 2016. Risk Review of standards for biodegradable plastic carry bags analysis reveals global hotspots for marine debris ingestion by sea turtles. Global Change Biology, 22: 567–576 Edwards, Chris and Jonna Meyhoff Fry. 2011. Life cycle assessment of supermarket carrier bags: a review of the bags available in 2006, Townsend, Kathy, Chris Wilcox, Denise Hardesty, Mark Hamann, and Report SC030148. Bristol: Environment Agency Qamar Schuyler. 2015. Letter: Response to the Background Paper: Managing Plastic Bags in Queensland The Senate - Environment and Communications References Committee, April 2016. Toxic tide: the threat of marine plastic UNEP. 2015. Biodegradable Plastics and Marine Litter. pollution in Australia Misconceptions, concerns and impacts on marine environments. Nairobi: United Nations Environment Programme (UNEP) Environment Protection and Heritage Council. 2008. Decision Regulatory Impact Statement - Investigation of options to reduce the Wilcox, Chris, Nicholas J Mallos, George H Leonard, Alba Rodriguez impacts of plastic bags and Britta Denise Hardesty. 2016. Using expert elicitation to estimate the impacts of plastic pollution on marine wildlife. Marine Policy 65 Gunn, John. 2015. Submission to the Senate Inquiry into the threat of (2016): 107-114 marine plastic pollution in Australia and Australian waters. Canberra: Parliament of Australia World Economic Forum. 2016. The New Plastics Economy - Rethinking the future of plastics. Industry Agenda, Geneva: WEF Jeftic, Ljubomir, Seba Sheavly, and Ellik Adler. 2009. Marine Litter: A Global Challenge. DEP/1176/NA, Nairobi: UNEP, Marine and Coastal Ecosystems Branch

18 | Appendix 1

The following table summarises the main options for managing plastic bags and their relative advantages and disadvantages.

Table 2: Summary of advantages and disadvantages

Desired outcome Voluntary reduction Banning single-use Requiring a charge for Inclusion of single-use measures plastic bags plastic bags biodegradable bags in a ban or charge

Litter prevention

Resource conservation

Convenience (for consumers)

Consistency across states

Equity (for business)

Enforceability (for government)

Discussion paper | 19 #31104