Japan's Experiences On Waste Management - en

Japan International Cooperation Agency
Japan's Experiences
on Waste Management
March 2022
Yachiyo Engineering Co., Ltd.
Japan Environmental Sanitation Center
Cover Photos
Upper left: Suginami Incineration Plant (Tokyo Metropolitan Government Bureau of
Environment)
Upper right: Separate Discharge of Recyclables in Omorideragou Town in 1977 (Tokyo
Metropolitan Government Bureau of Environment)
Bottom left: Municipal Waste Collection around 1957 (Tokyo Metropolitan Government
Bureau of Environment)
Bottom middle: Loading Waste in Lot No. 8 in 1961 (Tokyo Metropolitan Government Bureau
of Environment)
Bottom right: The Situation of Final Disposal in Lot No. 15 in 1970 (Tokyo Metropolitan
Government Bureau of Environment)
Japan’s Experiences
on Waste Management
March 2022
Yachiyo Engineering Co., Ltd.
Japan Environmental Sanitation Center

Preface
Proper management of waste generated from the economic and social activities is essential for
maintaining people's health and a hygienic living environment, and its importance has been recently
reconsidered in response to the global spread of COVID-19. In addition, the realization of a sound
material-cycle society through the 3Rs (reduce, recycle, reuse), contributes to solving global
environmental problems such as reduction of greenhouse gas emissions and conservation of natural
resources through reduction of marine plastic waste and efficient use of resources. However, in many
developing countries, the amount of waste is rapidly increasing and its compositions are becoming
more complex due to population growth, urbanization, and changes in consumer behavior. There are
substantial number of cases in which prioritizing economic growth has resulted in environmental
pollution and health hazards.
In Japan as well, inappropriate waste management has led to the deterioration of public health since
the period of rapid economic growth, resulting in the occurrence of social problems such as "Pollution"
and the "War on Waste.” However, administrative organizations such as local governments and
ministries have taken the lead in overcoming various problems step by step, in cooperation with
various stakeholders, especially the civil society and private companies. The experience and
knowledge accumulated in the process of establishing the current comprehensive waste management
system can provide useful insights for developing countries that are now facing the same waste
problems as what Japan experienced in the past.
In July 2021, the Japan International Cooperation Agency (JICA) launched the "JICA Clean City
Initiative" as part of its Global Agenda, a business strategy to comprehensively improve urban
sanitation. One of the pillars of the initiative is "improving waste management and realizing a sound
material-cycle society.” These efforts also contribute to the achievement of Goal 11 "Sustainable Cities
and Communities" and Goal 12 "Responsible Consumption and Production" of the Sustainable
Development Goals (SDGs) adopted by the United Nations in 2015.
In this study, while walking through the historical background and the socioeconomic conditions in
Japan, we have summarized the policy measures and technology which was introduced in the past to
improve waste management and extracted lessons that may be useful in solving current issues in
developing countries. Furthermore, the characteristics of waste challenges faced by developing
countries, success factors, and lessons learned were also analyzed, based on JICA's own experience of
cooperation in the field of waste management. With the results of these surveys, this text was created
with the intention of it being used by people in various positions, including administrative personnel
in developing countries, those involved in waste management, students majoring in environmental
management, and those involved in international cooperation.
In compiling this survey, we invited Mr. Hidetoshi Kitawaki, Professor of Faculty of Global and
Regional Studies, Toyo University, and Mr. Hideto Yuda, Chairman of the Japan Education Center of
Environmental Sanitation, as advisors, and asked Mr. Mitsuo Yoshida and Mr. Shiro Amano, senior
advisor of Global Environment Department of JICA, as supervisory committee members. With the
cooperation of waste professionals in Japan and overseas, we collected data, visited sites, conducted
interviews, and reviewed series of studies. We would like to express our sincere gratitude to all those
who cooperated in this study.
We hope that this text and the video materials which we have prepared will help solve waste
management problems in developing countries.
March, 2022
Director General, Global Environment Department
Eiji Iwasaki
Table of Contents
Texts
Overview ............................................................................................................................................... 1
Topic 1. Waste Management Facts and Plans................................................................................... 1-1
Topic 2. Legislation and Government Policy Pertaining to Waste ................................................... 2-1
Topic 3. Administrative Organization and Finance .......................................................................... 3-1
Topic 4. Waste Management Technologies ...................................................................................... 4-1
Topic 5. Modern Trend of Waste Management .............................................................................. 5-1
Topic 6. Efforts of the Municipalities in Japan ............................................................................... 6-1
Topic 7. Waste Management Challenges in Developing Countries and Lessons Learned from JICA
Projects .............................................................................................................................. 7-1
Appendices
Chronological Table ..........................................................................................................................A-1
Waste Management and Public Cleansing Law ................................................................................A-2
Basic Environment Law ..................................................................................................................A-39
The Fifth Basic Environment Plan ..................................................................................................A-48
List of Terminology ........................................................................................................................A-93
List of References ...........................................................................................................................A-97
Overview Contents
Japan’s Experiences on Waste Management:

Overview
Contents
Introduction ............................................................................................................. 1
Waste Management as Targeted by the SDGs and Japan's Experience ............................. 2
Purpose and Utilization of the Training Material .......................................................... 4
Purpose of the Training Material .................................................................................. 4
Utilization of this Training Material ............................................................................. 5
Waste Management Facts and Plans (Topic 1) ............................................................. 7
Present Status of Waste Management in Japan .............................................................. 7
Waste Collection and Transport/ Intermediate Treatment/ Final Disposal ........................ 9
Waste Composition ................................................................................................... 10
Waste Management Plans ........................................................................................... 11
Legislation and Government Policy pertaining to Waste (Topic 2) ................................ 13
History of Waste Management in Japan ...................................................................... 13
Legislation Pertaining to Waste Management .............................................................. 15
Policies Pertaining to Waste Management................................................................... 17
Administrative Organization and Finance (Topic 3) .................................................... 19
Government Organizations Involved in Waste Management ......................................... 19
Waste Management Utilizing the Private Sector with Private Finance Initiative (PFI) .... 22
Finances Concerning Waste Management ................................................................... 23
Waste Management Technologies (Topic 4) .............................................................. 25
Waste Discharge, Collection and Transport ................................................................. 25
Intermediate Treatment ............................................................................................. 27
Final Disposal .......................................................................................................... 34
Modern Trend of Waste Management (Topic 5) ......................................................... 41
Illegal Dumping ....................................................................................................... 41
Dioxins Problem....................................................................................................... 42
Hazardous Waste ...................................................................................................... 43
Disaster Waste .......................................................................................................... 44
Marine Plastic Waste Issue ........................................................................................ 46
Efforts of the Municipalities in Japan (Topic 6) .......................................................... 48
Waste Management Efforts Made by the 23 Special Cities of Tokyo ............................. 49
Contents Overview
Waste Management Efforts Made by Fujisawa City..................................................... 52

Waste Management Efforts made by Shibushi City ..................................................... 54
Waste Management Challenges in Developing Countries and Lessons Learned from JICA
Projects (Topic 7) .......................................................................................................... 57
Republic of the Sudan ～ Introduction of “Fixed-Time Fixed-Place (FTFP) Collection”～
............................................................................................................................... 58
Palestinian Interim Self-Government Authority, PA ～ Improving Waste Management
through the Introduction of Inter-Municipal Waste Management ～ ........................................ 62
Republic of El Salvador ～ Path to Proper Management of Sanitary Landfill Sites ～ . 65
People’s Republic of Bangladesh ～ Community Participation in Waste Management～...
............................................................................................................................... 68
Malaysia ～ Data Management Systems, Dissemination of 3R Activities and
Environmental Education ～ ............................................................................................... 72
Socialist Republic of Vietnam ～ 3R Activities Involving Multiple Stakeholders～ ..... 75
Overview 1
Introduction
This training material is intended to effectively utilize the knowledge, technology, and lessons
accumulated in Japan’s history of improving waste management and building a sound material-cycle
society in developing countries facing various challenges related to waste management.
This section firstly provides an overview of waste management as targeted by the Sustainable
Development Goals (SDGs) and Japan’s experience, in light of Goals 11 and 12 of the SDGs, and then
explains how this material can be used.
The next section reviews the history of waste management in Japan and outlines the various
measures taken by Japan to establish its current waste management system from the perspectives of
“planning”, “legislation”, “policy”, and “technology” in Topics 1 through 4. Topics 5 through 7
introduce the themes and trends that are increasingly posing challenges to the waste management
sector, the efforts of the Japanese municipalities to overcome these challenges, and case studies of
international cooperation projects provided by Japan to developing countries.
Each Topic
Topic 1：Waste Management Facts and Plans
Topic 2：Legislation and Government Policy Pertaining to Waste
Topic 3：Administrative Organization and Finance
Topic 4：Waste Management Technologies
Topic 5：Modern Trend of Waste Management
Topic 6：Efforts of the Municipalities in Japan
Topic 7：Waste Management Challenges in Developing Countries and Lessons Learned from JICA
Projects
2 Overview
Waste Management as Targeted by the SDGs and Japan's Experience
The Sustainable Development Goals (hereinafter “SDGs”) are international goals set forth in the
“2030 Agenda for Sustainable Development” adopted at the United Nations Summit in September
2015. The SDGs consist of 17 goals and 169 targets to achieve a sustainable and better society by
2030. The SDGs are universal, regardless of whether they are being addressed in developing or
developed countries, and the goal is to ensure that no one on earth is left behind in the process of
implementation. The goals and targets of the SDGs aim to achieve integrated improvements in
sustainable development in three dimensions: environmental, economic, and social.
Goal 11 of the SDGs is to “Make cities and human settlements inclusive, safe, resilient and
sustainable” and Target 11.6 of that goal is set as: “By 2030, reduce the adverse per capita
environmental impact of cities, including by paying special attention to air quality and municipal and
other waste management”. In Japan, each local government is responsible for waste management in
its area of jurisdiction as part of its administrative responsibilities to maintain a sanitary living
environment. The financial resources for waste management are covered by taxes, waste services fees
collected from waste generators, or subsidies from the central government.
Waste management in a region operates on the basis of the understanding of waste generators and
residents on the importance of waste management. In particular, the waste collection service is a
familiar point of contact between the administration and residents, and is provided to all residents
living in the area of jurisdiction of the local government. Although many of these services are
outsourced to the private sector, the local government manages the quality of the waste collection work
and the collection and transport private companies. High quality waste collection services are provided
to the residents by establishing a waste collection system based on consensus making and respect of
the opinions of the individual residents and the community. In response, residents have established a
relationship of trust by adhering to the prescribed waste separation methods, discharge times and
locations, etc. Through such mutual efforts between the local government and residents, a sanitary
living environment is maintained.
Regarding Goal 12 of SDGs “Ensure sustainable consumption and production patterns,” Target 12.4
of this goal is set as follows: “By 2020, achieve the environmentally sound management of chemicals
and all wastes throughout their life cycle, in accordance with agreed international frameworks, and
significantly reduce their release to air, water and soil in order to minimize their adverse impacts on
human health and the environment”. In Japan, administrative efforts have been made to reduce
environmental pollution and environmental impact throughout the product life cycle through Extended
Producer Responsibility (EPR), and monitoring illegal dumping, mainly to ensure that industrial
Overview 3
waste-generating business operators are aware of their responsibilities and held accountable. In
addition, through research and development of incineration and landfill technologies, treatment and
disposal methods that reduce environmental burden have been actively introduced.
SDGs’ Target 12.5 states that “By 2030, substantially reduce waste generation through prevention,
reduction, recycling and reuse”. In connection with this target, Japan has been vigorously promoting
efforts toward sustainable production and consumption.
In the process of achieving rapid economic growth, economic and social activities characterized by
mass-production and mass-consumption a mass-waste society emerged, and the frequent occurrence
of illegal dumping and the shortage of landfill sites became serious issues. In response to these issues,
from the late 1990s to the early 2000s, various laws were enacted to promote the formation of a sound
material-cycle society, the 3Rs (reduce, reuse, recycle), heat recovery, and development of appropriate
treatment and disposal methods. As a result, the amount of waste generation per capita has decreased
from 1.185 kg/person/day in FY12000 to 0.918 kg/person/day in FY 2019. Additionally, the recycling
rate reached approximately 20% in FY 2007, up from approximately 14% in FY 2000, and has
remained at the same level since then.
Thus, the Japanese experience in waste management is considered to contain many useful
suggestions for achieving the SDGs in developing countries.
1In Japan, Fiscal Year (FY) starts from April and ends in March. For example, FY 2019 means from April 2019 to
March 2020.
4 Overview
Purpose and Utilization of the Training Material
Purpose of the Training Material
Japan has a history of facing and overcoming various difficulties before establishing its current
waste management system.
Waste management in Japan began as a public health measure, and has continued to evolve over a
long period of time into the current waste management, while meeting the demands of each time period
against the backdrop of the social conditions of that period, such as the preservation of the living
environment and the establishment of a sound material-cycle society. In recent years, Japan has been
working on waste management with the aim of making further progress toward the promotion of a
sound material-cycle society and the establishment of a low-carbon society.
Furthermore, in order to achieve the goals of the SDGs, Japan is actively working on various issues
both in the domestic and international arenas, including the 3R Initiative and the Osaka Blue Ocean
Vision. In Africa, Japan is working to build proper waste management throughout the continent,
including the establishment and operation of the “African Clean Cities Platform” in collaboration with
relevant organizations to promote knowledge sharing for improved waste management.
This training material not only introduces the actual state of waste management in Japan, but also
explains the history and experiences that Japan has accumulated. The training material will also
present how Japan tried to solve the problems the waste management sector confronted in each period
and what measures were taken.
For many developing countries currently facing problems similar to those experienced by Japan in
the past, Japan's experience, knowledge, and lessons learned are expected to provide them with useful
suggestions. Obviously as circumstances differ from country to country and region to region, the same
measures taken in Japan may not necessarily be the best solution for other countries. The purpose of
this training material is to be used as a guideline for developing countries to consider how to tackle
and solve the waste problems in their countries, based on the lessons learned from Japan's experience.
Overview 5
Utilization of this Training Material
In order to provide a comprehensive study of the history of waste management in Japan to serve as
reference to developing countries, the seven Topics listed below are included in this training material.
Each Topic begins with an overview of relevant and important findings, technologies, lessons
learned, etc., followed by an explanation of specific experiences and approaches, as well as basic
information. Columns are also included to introduce case studies and technologies that may be useful
to developing countries.
Topic 2 Topic 3 Topic 1
Waste Management Administration
Central Administrative Organization

Government
Legislation
＜Basic Policy＞ (ordinances, standards) Plan
Legislation Plan
Prefectures (ordinances, standards)
Legislation
Municipalities (ordinances, standards) Plan Residents
＜Collection and Intermediate ＜ Final disposal＞ Businesses

transport＞ treatment＞
Private sector
Technologies
＜International Topic 5
Cooperation＞ Topic 6
Topic 7 Topic 4
Developing countries
Figure 1 Schematic Diagram of Topics Introduced in the Training Material

6 Overview
Important Points for each Topic

Topic1：Waste Management Facts and Plans
To learn the importance of having an accurate understanding of the actual status of waste
management and planning based on quantitative data
Topic 2：Legislation and Government Policy Pertaining to Waste
To learn approaches and efforts to improve the legal systems in developing countries
Topic 3：Administrative Organization and Finance
To learn about waste management systems and roles/ responsibilities, and measures that
contribute to securing financial resources
Topic 4：Waste Management Technologies
To learn about the characteristics and utilization of various technologies related to waste
collection and transport, intermediate treatment, and final disposal
Topic 5：Modern Trend of Waste Management
To learn the efforts, issues and important points regarding responses and measures for key
waste management themes
Topic 6：Efforts of the Municipalities in Japan
To learn about the efforts and experiences of Japanese local governments
Topic 7：Waste Management Challenges in Developing Countries and Lessons Learned from JICA
Projects
To learn about Japanese experiences and technologies applied in JICA projects and the
lessons learned from each project
Items covered in the training videos are marked with the icon .
Overview 7
Waste Management Facts and Plans (Topic 1)
This Topic introduces the actual status of waste management in Japan and the various plans that
have been formulated, and teaches the importance of understanding the actual status of waste
management and formulating plans based on quantitative data. In order to quantitatively grasp the
actual status of waste management represented by the waste management flow from discharge to
recycling and final disposal, the relevant data is collected and accumulated every year, and various
plans are discussed based on the data analysis results. Numerical targets in the plans will be
considered and set based on reliable data and with clear definitions.
Present Status of Waste Management in Japan
Definition and Categorization of Waste
The Waste Management and Public Cleansing Law (Waste Management Act) of Japan defines waste,
which is unwanted matter in a solid or liquid state (excluding gases), and earth and sand are outside
the scope of the Waste Management Act. Categories of waste in Japan is shown in Figure 2.
Note that this text generally deals with municipal waste. Additionally, the term “waste” is used to
mean municipal waste unless otherwise specified. However, the term may include industrial waste
when policies, laws, hazardous waste, dioxin-related problems, and the like are discussed in the
relevant text.
The scope of Waste Management Act

The scope of this training material
＜ Disposal Responsibilities of Business Operators＞
From among the waste generated during business
Industrial activities, 20 types of waste are specified by law
Waste
Specially Controlled
Industrial Waste
The main scope of this training material

Waste
＜Disposal Responsibilities of Municipalities＞ Combustible Waste
Recyclables
Non- Combustible Waste
Household Waste
Waste Bulky Waste
Municipal Business Waste
Waste
＝Waste other than Raw Sewage

industrial waste
Municipal Waste
Figure 2 Categories of Waste in Japan

8 Overview
Waste Management Conditions
(a) Waste Generation Amount

During Japan’s period of high economic growth (1960s and 1970s), factors such as rising incomes
and changes in consumer behavior drove the development of an economic structure based on mass
production and mass consumption, causing both municipal and industrial waste to rapidly increase
and diversify. Later, during the bubble era 2 (late 1980s and early 1990s), the amount of waste
increased swiftly as consumption and production activities expanded further. However, the total
amount of waste generated and the unit generation rate per person per day have trended downward
since 2000, in part due to the efforts to develop a sound material-cycle society. Accordingly, the total
amount of waste generated is also changing in response to social and economic changes.
(b) Waste Management Flow

The Ministry of the Environment and municipalities regularly prepare waste management flows that
visualize the path waste travels from discharge to recycling and final disposal. This waste management
flow makes it possible to develop an appropriate understanding of the relationships between amounts
of waste at the different stages of treatment, recycling, and disposal, which is useful for understanding
the status of waste and formulating plans.
Unit:1,000 tons
Group
Collection Total
Amount Recycling
amount
1,909 Direct Reclamation
Recycling Amount after 8,398
Amount Intermediate
1,884 Treatment Treatment
Planned Residue 4,605
Collection （4.6％） Amount （11.2％）
Total Amount Total Intermediate 8,006
Waste 37,020 Treatment Treatment (19.6％) Final Disposal
Generation Amount Amount Amount after
amount Intermediate
Direct 40,949 38,668 Treatment
42,736 Transported (94.4％)
Reduction
Waste (100％) Amount 3,401
Domestic Amount to 30,662 （8.3％）
Self Treatment Direct Final Final
Disposal Facilities Disposal (74.9％) Disposal
Amount 3,808 Amount Amount
8 398 3,798
(1.0％) （9.3％）
Planned
Treatment
Amount
40,828
Source：Ministry of the Environment Website “Annual Report on the Environment, the Sound Material-Cycle Society
and Biodiversity in Japan 2021” (2021)
Figure 3 Waste Management Flow in Japan (FY 2019)
2The bubble era refers to the economic boom in Japan, especially in the late 1980s and very early 1990s, when asset prices
soared. The name is derived from the way asset prices expanded like a bubble and burst under certain circumstances.
Overview 9
Waste Collection and Transport/ Intermediate Treatment/ Final Disposal
Discharged waste is collected using collection

vehicles, which transport the waste to treatment
plants or transfer facilities. Collection vehicles are
commonly referred to as “packers” in Japan.
Collected waste is transported to intermediate
treatment plants. There are many types of
intermediate treatment plants for different wastes;
examples include incineration plants, bulky waste
treatment plants, and composting plants. Source: Ministry of the Environment “Solid Waste
3 Management and Recycling Technology of Japan” (2013)
In FY 2019, the total treated waste amount
Photo 1 Waste Collection by Compactor
was 40.95 million tons, of which 32.94 million
tons, or roughly 80%, underwent incineration
treatment (direct incineration amount).
Recycling is the recapture and reuse of resources
that have been discarded (here, recycling means
material recycling, in which materials are reused as
raw materials, and does not include thermal
recycling4, in which thermal energy is recovered and
utilized). In Japan, the recycling rate is defined as the Source: Yachiyo Engineering Co., Ltd.
percentage the total recycled waste amount (Direct Photo 2 Funabashi North Incineration
Plant
recycling amount + Group collection amount 5 +
Recovery amount after intermediate treatment) of the total treated waste amount (Total treatment
amount + Group collection amount).
Direct Recycling Amount＋Group Collection Amount

＋Recovery Amount after Intermediate Treatment
Recycling Rate (%)＝ ×100
Total Treatment Amount＋Group Collection Amount
3Total treatment amount = Intermediate treatment amount + Direct final disposal amount + Direct recycling amount
4 In the EU, the concept of energy recovery is used to distinguish it from thermal recycling, and recovery of thermal
energy is not included in recycling.
5 All the Group collection waste is considered to be thoroughly sorted at source and composed only of recyclables.
10 Overview
“Final disposal” means that waste is ultimately

disposed into landfill sites at the last stage of the
waste management flow. The final disposal
amount is the sum of the amount of waste sent
directly to final disposal without intermediate
treatment (direct final disposal amount) and the
amount of waste sent to final disposal after
intermediate treatment (final disposal amount after
intermediate treatment). Source: Sagamihara City “Landfill site for municipal
waste in Sagamihara City” (2019)
Photo 3 Landfill of Sagamihara City
Waste Composition
Understanding the waste composition incoming to intermediate treatment facilities and final
disposal facilities is essential for
considering recycling methods and
feasibility of introducing incineration
facilities, as well as for determining of
facility specifications. In particular,
obtaining the values of moisture content,
ash content, and combustible content
(these are called the three components of
waste) leads to knowing the combustibility
of the waste. Knowing the unit volume
capacity is also important for the
remaining life of the landfill site and
designing the waste pit of the facility.
Source: Ministry of the Environment Website “Results of the
survey on municipal waste management (FY2019)”
https://www.env.go.jp/recycle/waste_tech/ippan/
（accessed January 25, 2022）
Figure 4 Result of Waste Composition (Dry Weight Base)
(2019)
Overview 11
Waste Management Plans
Management of Waste-Related Data
In Japan, the Ministry of the Environment publishes the results of an annual survey on the state of
municipal waste management. Since the 1970s the Ministry of the Environment has been conducting
a survey in the form of a questionnaire to municipalities and associations for the purpose of obtaining
basic data on municipal waste administration. The central government then collects and accumulates
the data from municipalities to build a nationwide database, which is characteristic of data
management in Japan.
The survey items are broadly divided between the conditions of facility operation and the
conditions of treatment. The data obtained is aggregated by municipalities in each prefecture, and the
statistical tables are available to the public. This data fulfills an important role in examining and
setting specific priority targets, achievement indicators, and other criteria when formulating plans for
waste management.
In the course of carrying out waste management, municipalities continuously collect a variety of
data and use it to formulate policies and plans for the future.
Planning and policy review

Facilities Operation Plan
Basic Plan Facility maintenance and
Policy and Plan for Recycle management Plan
Waste Collection and and Promotion of Resource
Transport Plan Recycling
Life Extension Plan
Potential for Introduction
Future Waste (Combustion efficiency, etc.)
Generation Amount
Forecast of
Future Waste Survey Data Study on
Generation Introduction of
Amount Incineration Facility
Weight and Volume Three Components
Waste composition
Bulk Density Low Calorific Value
Weighing of Waste Waste composition Survey of Three

（Survey of the amount of survey Components and
waste carried in）
Calorific Value
Type of Waste
How much waste is generated Combustibility of Waste
Proper operation and management of facilities
Figure 5 Examples of Utilization of Waste Survey Data

12 Overview
National-Level and Municipality Level Waste Management Plans
Plans and facility development for waste management at the national and municipal levels are
shown in Table 1.
Table 1 Waste Management Plans

Level Plan Description
Fourth Fundamental The plan was established to comprehensively and
Plan for Establishing systematically promote measures for forming a sound
National- a Sound Material- material-cycle society based on the Basic Act on
level waste Cycle Society Establishing a Sound Material-Cycle Society.
management
Waste Management The plan defines the targets and outline of the waste
plans
Facility management facility development project for the planning
Development Plan period, based on the Waste Management Act.
Based on the Waste Management Act, the municipality
establishes a plan for municipal waste disposal in the area
Municipal Waste of the municipality in order to properly dispose of general
Management Plan waste while preserving the living environment and
Plan for waste improving public health, which are the objectives of the
management Act.
at the Set by municipalities for implementing separate collection
municipality Municipal Separate of waste containers and packaging based on the Containers
level Collection Plan and Packaging Recycling Act and the Plastic Resource
Recycling Promotion Act.
Inter-Municipal The prefecture and the municipalities in its jurisdiction
Waste Treatment collaborate to formulate an inter-municipal waste
Plan treatment and consolidation plan.
Based on the Environmental Impact Assessment Act and
the Waste Management Act, technical guidelines for
Technical guidelines
environmental impact assessment to ensure that
for environmental
environmental impact assessment and post-
impact assessment
Plan for the implementation studies of waste treatment facilities are
development properly conducted based on scientific knowledge.
of waste- Comprehensive Plan
The purpose of this plan is to extend the service life of
related for Extending the
waste treatment facilities by introducing the concept of
facilities Service Life of
stock management, proper daily operation and
Waste Treatment
management, appropriate annual inspections and
Facilities (Waste
maintenance, and plan for periodic renewal of major
Incineration
facilities and equipment.
Facilities)
Overview 13
Legislation and Government Policy pertaining to Waste (Topic 2)
This Topic introduces how legislation and policies have been developed to respond to various
waste management issues - such as improvement of public health, preserving living environments,
and establishing a sound material-cycle society - arising from economic growth, industrialization,
urbanization, and changing lifestyles in the process of building a modern society.
The efforts and approaches to systematically develop the basic laws, laws for individual issues
and plans at the national and municipal levels in response to changes in social conditions, are
introduced here. These can be useful as references for the development of legal systems in
developing countries.
History of Waste Management in Japan

Since the late 19th century, the social environment in Japan has changed as modernization progresses,
and residents’ lifestyles and living environments have changed accordingly. Although Japan has
successfully created a highly convenient society, it has also confronted many waste management-
related issues from one era to the next. “Waste management” is also referred to as “waste treatment”
in the law, and the two are synonymous.
Table 2 Changes in the Social Situation in Japan and Issues and Legislation
related to Waste Management
Period Major Issues Laws Enacted
Post-war • Waste management for environmental sanitation • Public Cleansing Act (1954)
period • Maintenance of a healthy and comfortable living
to the 1950s environment
• Increase in the amount of industrial waste and • Act on Emergency Measures concerning the Development of
1960s to emergence of pollution problems as a result of Living Environment Facilities (1963)
Pollution problems and living environment protection
1970s rapid economic growth • Waste Management Act (1970)
• Waste management for environmental protection • Revision of the Waste Management Act (1976)
• Promotion of the development of waste • Wide-area Coastal Environment Development Center Act (1981)
Public health improvement
management facilities • Private Sewerage System Act (Johkasoh Law) (1983)

1980s • Environmental protection required for waste
management
Establishment of a sound material-cycle society
• Waste generation control and recycling • Revision of the Waste Management Act (1991)
• Establishment of various recycling systems • Act to Promote the Development of Specified
• Management of hazardous substances (including Facilities for the Disposal of Industrial Waste (1992)
dioxins) • Japanese Basel Act (1992)
1990s • Introduction of a proper waste management system • Basic Environment Law (1993)
to cope with diversification in the type and nature • Containers and Packaging Recycling Law (1995)
of waste • Revision of the Waste Management Act (1997)
• Home Appliance Recycling Law (1998)
• Law Concerning Special Measures against Dioxins (1999)
• Promotion of 3R measures aimed at the • Basic Act for Establishing a Sound Material-Cycle Society (2000)
establishment of a sound material-cycle society • Construction Material Recycling Law (2000)
• Enhancement of industrial waste management • Food Waste Recycling Law (2000)
• Enhancement of illegal dumping regulations • Revision of the Waste Management Act (2000)
• Act on Special Measures concerning Promotion of Proper
Treatment of PCB Wastes (2001)
2000- • End-of-life Vehicle Recycling Act (2002)
• Act on Special Measures concerning Removal of Environmental
Problems Caused by Specified Industrial Wastes (2003)
• Revision of the Waste Management Act (2003 to 2006, 2010)
• Small Home Appliance Recycling Act (2013)
• Revision of the Waste Management Act (2015, 2017, 2020)
• Plastic Resource Recycling Promotion Act (2022)
Source: Ministry of the Environment “History and Current State of Waste Management in Japan” (2017)
4 Beginning of 4
public
service for Strengthening
industrial countermeasures
waste Waste reduction for illegal dumping
and recycling by
Improvement of Industrial waste business operators
public cleansing Waste was generation amount
system by recognized Modernization Opposition
movement Beginning of Limitation of Establishing a
government as social of waste
against government management at Sound Material-

and problem treatment
facility initiative for waste disposal stage Cycle Society 1
1 municipalities
constriction reduction
Source: JICA “Technical Expertise of Japan in Solid Waste Management” (2005)

0.5 Municipal waste 0.5
generation amount
Billion GDP per capita (US$*) Billion
tons *145 Yen per USD 7,737 14,445 19,539 25,353 26,405 tons
(Year 1990)
Main Market
Unit Waste
Generation Rate (g) 693 1,003 982 1,105 1,132
TMovement United Nations Conference on the United Nations Conference World Summit on
for the Human Environment (‘72) on Environment and Sustainable Development,
Environment “The Limits to Growth”(‘72) Development (‘92) “(WSSD”(‘02)
he Global
Introduction of extended Basic Act for
Waste Management and Public Cleansing Establishing a Sound
production responsibility
Law (‘70) Material-Cycle Society
Related laws The Basic Environment
Introduction of discharge responsibility. Law(‘93) (‘00)
Policy Public
Pollution Control Establishment of Environment Agency (‘71)
Figure 6
development Cleansing Law for the Promotion
Basic Law (‘67) (→ Ministry of the Environment (‘01)) Law for the Promotion of
Act (‘54) Utilization of Recycled of Effective Utilization
Resources(‘97) of Resources→ (‘00)
Social Goals Maintenance and
Changes in Environmental Establishing a Sound
improvement of Material-Cycle Society
social goals Preservation
Overview
sanitation
Osaka World Exposition (‘70) Rapid depreciation Yen against the highest Aichi Expo (‘05)
Tokyo Olympics,
Economic Post-war Transition to a floating exchange of the yen US dollar exchange rate
Shinkansen opens (‘64)
Characteristics reconstruction rate system for the yen (‘73) record (‘95)
High economic growth Stable growth
Oil shock Low growth
1950s 1960s 1970s 1980s 1990s 2000s
14
Overview 15
Legislation Pertaining to Waste Management
Changes in Legislation Pertaining to Waste Management
The first law pertaining to waste was the

Waste Cleaning Act (1900). In light of the
subsequent worsening of public health
problems caused by the rapid increase in
municipal waste associated with postwar
economic development and increasing
urban population density, the Public
Cleansing Act was enacted in 1954 for the
purpose of improving public health, and the
Waste Cleaning Act was repealed. Source: Tokyo Metropolitan Archives
As Japan entered its period of high Photo 4 Fukagawa Incineration Plant –
Technology of the Time did not Provide Adequate
economic growth in the 1960s, the further
Exhaust Gas Treatment (Completed in 1933)
increase and diversification of municipal
waste, pollution caused by hazardous waste,
and other social problems prompted the 1970
repeal of the Public Cleansing Act and
concurrent enactment of the Waste
Management Act. This concurrent act details
requirements to conserve living environments
in addition to improving public health as
stated in the former Public Cleansing Act.
In the 1970s, the social structure based on Source: Tokyo Metropolitan Government Bureau of Environment
mass production, mass consumption, and Photo 5 Transport Vehicle that were Often Used-
circa 1961
mass disposal continued to progress as
Japan sought greater material wealth. Consequently, the amount of waste generated continued to
increase and the remaining capacity of landfill site was shortened. These and other problems made it
necessary to concentrate efforts toward radical solutions. Given that the focus of policy had shifted to
reducing amounts of waste generated and recycling, the Waste Management Act was amended.
Furthermore, the Basic Act for Establishing a Sound Material-Cycle Society and other laws on
recycling were enacted in due order, and a shift toward forming a sound material-cycle society was
promoted.
16 Overview
Legal Structure to Waste Management
The legal laws and regulations pertaining to waste management was established to support the
formation of a sound material-cycle society, and comprises the Basic Act for Establishing a Sound
Material-Cycle Society - which sets out the basic philosophies and approaches to forming a sound
material-cycle society based on the Basic Environment Law, which sets out the core elements of
environmental policies - and the individual laws that embody the acts.
Many laws have been established toward the formulation of a sound material-cycle society. The
Waste Management Act aims to preserve living environments and improve public health through
efforts such as waste minimization and proper treatment of waste. The Law for the Promotion of
Effective Utilization of Resources (the Effective Resource Utilization Promotion Act) aims to ensure
the effective utilization of resources, reduce the generation of waste, and conserve the environment.
The seven laws on recycling were enacted to correspond to the properties of individual items. The Act
on Promotion of Procurement of Eco-Friendly Goods and Services by the State and Other Entities
(the Act on Promoting Green Purchasing) aims to establish a society capable of sustainable
development by having public agencies take the lead in promoting the procurement of products and
services that help reduce environmental impact.
Overview 17
Basic Environment Law

Enacted November, 1993
Basic Environmental Plan

Enacted December 1994, Revised June 2012
・Ensuring material-cycle in the society

Basic Act for Establishing a Sound ・Prevention of consuming natural resource
Material-Cycle Society (Enacted May 2000) ・Reduction of Environmental burden
The Fundamental Plan for Establishing a Sound Material-Cycle Society Established March 2003
The fundamentals for other plants designed by the State Revised May 2013
Appropriate Waste Treatment Promotion of recycling
Waste Management and Public Cleansing Law Law for the Promotion of Effective Utilization of
Enacted December 1970 Resources Enacted April 1991
(1) Reduction of waste generation (1) Recycling of reusable resources Reduce
(2) Appropriate treatment of waste (including recycling) (2) Development of easy-to-recycle Recycle → Reuse
(3) Regulations on the establishment of waste treatment facilities structures and materials Recycle
(4) Regulations on waste treatment businesses (3) Labelling for sorted waste collection
(5) Establishment of waste disposal standards, etc. (4) Promotion of the effective use of by （1R）（3R）
products
Regulations in accordance with the properties of individual products

Containers Home End-of-Life Construction Small Home Plastic Resource
Food Waste
and Packaging Appliance Vehicles Material Appliance Recycling
Recycling Law
Recycling Law Recycling Law Recycling Law Recycling Law Recycling Act Promotion Act
Enacted Enacted Enacted Enacted Enacted Enacted Enacted
June 1995 May 1998 May 2000 July 2002 May 2000 August 2012 April 2022
Bottles, plastic Air conditioner,
bottles, paper refrigerators, Wood, concrete, Small electronic
and plastic freezers, TVs, and Food waste Automobiles Plastic products
containers and washing and drying and asphalt devices. etc.
packaging, etc. machines
Act on Promotion of Procurement of Eco-Friendly Goods and Services by the State and Other Entities
Enacted May 2000
Figure 7 Legal Framework for a Sound Material-Cycle Society
Policies Pertaining to Waste Management
In Japan, the Ministry of the Environment has taken the lead in adopting important measures to
respond to issues such as proper waste treatment, pollution control and efficient waste management.
18 Overview
Table 3 Policies Pertaining to Waste Management

Policies Description
The Ministry of the Environment has established technical standards and
guidelines for waste treatment plants, landfill sites, and other facilities in line
Standards and
Guidelines for with the related laws in order to respond to pollution problems, implement
Proper Waste proper waste treatment, and achieve other goals. Japan has made efforts to
Treatment
resolve those problems using technical methods with technical and financial
support from the Ministry of the Environment.
The utilization of energy from incineration power generation is promoted
because of the enhanced caloric content of waste associated with changes in
Thermal Recovery
lifestyles, and the improvement in power generation efficiency brought about
by technical innovations.
When pollution and other problem that threaten human life and health occur,
Pollution the necessary laws are established and comprehensive countermeasures are
Countermeasures
implemented through technical and regulatory methods based on the results
(for Dioxins, etc.)
of the experts’ investigations.
Against a backdrop that includes the need to secure a certain scale of
treatment capacity to promote efficient and proper waste treatment, dioxins
Inter-municipal
countermeasures, and waste power generation, Japan has promoted inter-
Waste Disposal
municipal waste disposal as a national policy, and has achieved a certain
degree of success.
In order to reduce consumption of natural resources and minimize waste,
Japan has long engaged in efforts related to the 3Rs, including reducing waste,
reusing unwanted articles, sorting recyclables, and group collection
(voluntary resource collection systems run by local residents and others).
3R Promotion Furthermore, amid a growing awareness of the importance of establishing a
society capable of sustainable development, efforts toward establishing a
sound material-cycle society have been promoted, namely through the
enactment of the Basic Act for Establishing a Sound Material-Cycle Society
in 2000.
Overview 19
Administrative Organization and Finance (Topic 3)
This Topic explains an overview of the administrative structure centered on the central
government, the roles and responsibilities of each entity involved in waste management, including
local governments, private companies, and residents, as well as the financial structure.
For proper waste management, it is important to establish a system that systematically covers the
entire country based on administrative classifications such as central, prefectural, and municipal
governments, and to ensure that each entity involved is aware of its roles and responsibilities. This
Topic also provides an overview of the system of subsidies to local governments and fee collection
based on the principle of responsibility of waste-generating business operators, and introduces
measures which may be referred to by developing countries in their efforts to secure financial
resources for their waste management.
Government Organizations Involved in Waste Management
The Structure of Government Organizations
Under the central government of Japan there are 47 geographic administrative areas referred to as
prefectures, major cities and districts. Within these prefectures there are different types of
municipalities and special cities, and each of the prefectures, cities, towns, villages and special cities
have their own administrative organization. These are the local governments responsible for
administration within their administrative areas. (Special cities and municipalities number 1,741
(2020), of which 23 are special cities, 792 cities, 743 towns, and 183 villages).
Japanese government agencies are made up of the Cabinet Office and 12 government ministries, of
which the Ministry of the Environment is responsible for central management of the waste
management system. Divisions have been set up in many prefectures and municipalities (in this text
municipalities include special wards) to manage waste, and the respective responsibilities of the
various levels of government agencies are determined by law.
20 Overview
Department/Division
Administrative Administrative
responsible for
Classification Organization
Waste Management
Nation
Cabinet Office and
12 ministries
Ministry of the Environment
Dept. of Environment Recovery
and Material Cycle
Prefecture
47 Agency of Prefecture
Div. of Waste
Prefectures Management / Div. of
Environment
Municipalities
1,741 Municipality Office

Div. of Waste
Municipalities Management / Div. of
Environment
Note: The 1,741 municipalities include cities designated by government ordinance that are at the prefectural level.
Figure 8 Waste Management System in Japan
The main waste management responsibilities of the central government, prefectures, and
municipalities, together with the responsibilities of waste-generating business operators and
individuals generating waste are shown in below. In addition to the responsible government agencies,
both business operators and citizens generating waste also have roles to fulfill in waste management
from their respective positions.
Overview 21
Relationships between central and local governments and waste-generating business operators
in the Waste Management Act
Support for waste management facility development expenses
Municipal waste
Central Prefectures Waste generators

Government Municipalities Authorized
business
(and ordinance- Business
Advice
Municipal waste operators
Advice
designated cities) Residents operators
Supervision
management responsibility
Permission
•Formulation of basic
Outsourcing
Management
policies •Appropriate independent waste
•Formulation of waste management
•Establishment of waste •Formulation of municipal management
plans
management standards waste management plans •Cooperation with municipalities
•Granting of permission for
• Establishment of facility •Management of municipal •Generation control
installation of waste management
standards waste, etc. • Waste reduction, etc.
facilities (acceptance of reports on
•Establishment of
the installation of municipal
outsourcing standards
facilities)
•Technological
•Granting of permission for industrial Waste-generating
development, information
waste management operations
Industrial waste
collection, etc. business operators
•Administrative orders, etc. Industrial waste management
Guidance, supervision, and administrative orders responsibility
Authorized •Appropriate independent waste
business management
Permission operators Management
Outsourcing • Recycling/reduction
Supervision
•Compliance with outsourcing
standards
•Issuance of manifests
•Formulation of waste reduction
plans by business operators that
generate large amounts of waste
Figure 9 Division of Waste Management Responsibilities amongst Various Entities
Government Waste Management Services
Under the Waste Management Act municipalities are designated as the management entities for
municipal waste operations. Thus, waste management is one of the important services municipalities
must provide for citizens within the administrative area under their jurisdiction.
In addition to waste collection and the various work processes leading to final disposal,
municipalities are also responsible for public awareness directed to citizens. Many municipalities have
a specialized division dealing with waste management, but in the case of collection, transport and
managing the operation of facilities, some municipalities do this work directly and some by
outsourcing part of it to the private sector.
Also, some municipalities with relatively low populations join with other nearby municipalities and
set up joint waste management (referred to hereafter as “Clean Association”). Thus, specialized
associations are set up to provide government waste management services so that the municipalities
can carry out their responsibility to provide waste management in an efficient way. These Clean
Associations provide the government waste management services for all the administrative areas under
the jurisdictions of the member municipalities. The parts of the work done directly by each
municipality differs depending on each municipality’s population size and area characteristics,
however each municipality is responsible for the overall waste management under its jurisdiction.
22 Overview
Waste Management through Outsourcing and Collaboration with the Private Sector
In many municipalities in Japan, the government administrators outsource part of the waste
management service to the private sector for which the government is responsible for, such as the
collection and transport of waste or the operation of facilities.
Municipalities must set up fairly large organizations within their administrations to provide citizens
directly with waste management government services, and they have to ensure the necessary personnel
and budget to do the work. They also need to secure and implement budgets on an ongoing basis for
the operation and maintenance of equipment and facilities. For these reasons, in order to supply
services for waste collection and transport efficiently and economically, many municipalities
outsource waste collection and transport services to private sector collection and transport businesses.
Many municipalities outsource the operation and management of their own waste treatment facilities
(incineration facilities, recycling facilities, etc.) and final disposal sites to the private sector in order
to ensure stable operation and management by highly skilled engineers.
Residents Participation and Consensus Building
Proper waste treatment depends on the cooperation of residents in properly sorting and discharging
waste. Each municipality clarifies the roles of residents, business operators, and the government in its
ordinances and basic plans, and stipulates what each of them should respectively do.
When constructing waste treatment plants or landfill sites, it is essential to consider residents living
near the planned locations of the plants and sites. Opposition from local residents or environmental
groups could arise if sufficient consideration and explanation are not given to them, hindering the
progress of projects. In order to establish proper waste management systems, it is important for
residents, business operators, and governments to understand their respective roles, and for the three
parties to work together as one.
Waste Management Utilizing the Private Sector with Private Finance Initiative (PFI)
PFI (Private Finance Initiative) is one way of implementing public works, such as constructing
facilities and their operation and management, using private sector finance and technical knowhow.
Special Purpose Companies (SPCs) are companies established to carry out one particular PFI project.
SPCs use their earning power from the project as collateral to gain financing, using a funding method
known as project finance, and they carry out the project by financing part of the construction and other
costs by loans from financial organizations. Also, SPCs are compensated for the services they provide,
being paid for construction funding and management costs by local governments.
Overview 23
Finances Concerning Waste Management
In FY 2019, the total expenditure was JPY 2,319.4 billion, comprising waste management expenses
of about JPY 2,088.5 billion and human waste management expenses of about JPY 230.8 billion.
Concerning the revenues breakdown for waste management in the municipalities of Japan in FY
2019, the costs of waste management were covered by revenue of about JPY 1,383.3 billion (about
66% of the total revenue) which came from general finances, with other sources contributing 5-15%
each including fee income contributing JPY 272.5 billion (13%). Concerning the expenditure
breakdown, the operation and maintenance costs for intermediate treatment was about JPY 680 billion ,
taking up the largest share (33%), followed by the operation and maintenance cost for collection and
transport of about JPY 600 billion (29%) and the facilities construction and improvement cost of JPY
415 billion (20%).
The major portion of waste management costs, 66% is covered by general finances, and waste
treatment facility improvement costs, which requires large funds, are financed by grants or subsidies
and local government bonds
Grant Program for Establishing a Sound Material-Cycle Society

The Grant Program for Establishing a Sound Material-Cycle Society is essential to municipalities
improving waste treatment facilities in their districts. Improvement of waste treatment facilities are
large projects that municipalities implement only every few decades and temporarily pose a huge
financial burden on them. As such projects are important for the formation of a sound material-cycle
society, the central government has created this grant program to provide not only technological
support but also financial support necessary for such facility development.
Fee Collection Methods by Local Governments and Fee Bearing by Residents and Business
Operators
While water supply service adopts the independent accounting system of consumption as the
principal financial revenue in the form of “water charges” collected from residents, in the case of
municipal waste management service the expenses are covered by taxes (such as resident taxes) as
principal financial revenues.
With the aim of promoting the reduction of waste generation and reuse, the government examined
how waste should be managed by municipalities to create a sound material-cycle society. In 2010, The
“Basic Policy for the Comprehensive and Systematic Promotion of Measures for the Reduction and
Other Appropriate Disposal of Waste” was revised. This basic policy identified that the roles of
municipalities should be to “promote charging fees for municipal waste management, in order to
minimize waste and promote recycling by utilizing economic incentives, to advance fairness of burden
sharing in proportion to generated-waste amounts, and to build residents’ awareness”. In response to
24 Overview
this basic policy, each municipality is either already charging fees for waste management services, or
considering to do so.
In line with the principle of “extended producer responsibility”, the Containers and Packaging
Recycling Law has established a mechanism that obliges business operators to bear recycling-related
expenses for waste containers and packaging. As it is difficult for municipalities to conduct proper
treatment or to recycle large and heavy home appliances, the Home Appliance Recycling Law provides
a mechanism by which waste-generators bear waste collection and transport fees as well as recycling
fees when discharging their own home appliances. Regarding automobiles, the End-of-Life Vehicle
Recycling Law provides a mechanism by which, in general, automobile owners should bear recycling
fees when purchasing their own automobiles.
Table 4 shows laws and regulations providing for expense sharing mechanisms.
Table 4 Expense Sharing Mechanisms by Laws and Regulations and their Expected Impacts
Law and
Financial revenues
regulations /
secured Expense bearers Expected impacts
Targeted
(Use of financial revenue)
products
Containers and Outsourcing Fees for Designated Reduction of waste, life extension of
Packaging collection, transport and business operators landfill site, promoting of recycling
Recycling Law / recycling (recycling and (retailers,
Containers and merchandising) of manufacturers,
Packaging containers and packaging etc.)
Home Appliance Fees for collection, Waste-generators Reduction of illegal dumping of
Recycling Law / transport and recycling of of used home used home appliances, reduction of
Four Items of Home Appliances appliances waste, life extension of landfill site,
Home appliances promotion of recycling
End-of-Life Recycling fees for end-of- Vehicle owners Reduction of illegal dumping of
Vehicle Recycling life vehicles end-of-life vehicles, reduction of
Law / End-of-life wastes, life extension of landfill site,
vehicles promotion of recycling
Waste discharged Forming part of financial Residents Reduction of wastes, life extension
from household revenue for waste of landfill site, ensuring fairness of
management (used for expense sharing, raising residents’
public awareness building, awareness, building awareness and
etc.) technology capacities of business
operators, securing part of financial
resource necessary for waste
management
Overview 25
Waste Management Technologies (Topic 4)
This Topic provides an overview of the various technologies for collection and transport,
intermediate treatment, and final disposal, as well as the evolution of these technologies. In
developing countries it is important to select and appropriately apply technologies that meet the
conditions of the target region, and satisfy the demands for efficient collection and transport,
appropriate waste treatment, and sanitary landfill disposal. Therefore, in addition to introducing the
characteristics of each technology, this Topic also discusses effective utilization methods and key
points in operation and maintenance.
Waste Discharge, Collection and Transport
Collection Methods
Storage and Discharge of Waste
Waste is generated every day from each household and
it is important to collect the waste generated effectively
and efficiently to secure the sanitary condition of each
household and its surrounding area. For this reason, in
principle, it is important for residents to collect the waste
that is generated in each household, and store the waste
inside the house until it is time to discharge it to the
designated location at the specified time according to the Source: Yachiyo Engineering Co., Ltd.
predetermined collection plan. Photo 6 Station Collection
Door-to-door Collection and Station Collection
Waste collection services that are provided by the
municipality are mainly carried out by door-to-door
collection or station collection methods. In the door-to-
door collection method, waste is discharged in front of
each household which is then collected. In the station
collection method, a specific location is set as a waste
discharge station and a number of households discharge
their wastes there for collection. Source: Yachiyo Engineering Co., Ltd.
Photo 7 PET Bottle Separated and
Discharged by Residents in Tokyo
Source Separation and Separate Collection
It is extremely important to separate waste at the source
of generation (source separation) in order to promote
recycling. In each municipality, the categories for
separation are determined according to the characteristics
and actual condition of the region. On the other hand,
since an increase of the number of categories for waste
materials separation requires development of a system for
Source: Yachiyo Engineering Co., Ltd.
sorting and increases the burden on the residents, further Photo 8 Bins and Cans Separated
cooperation of residents becomes necessary. and Discharged by Residents in Tokyo
Resource Recovery
In addition to source separation and separate collection that are implemented by municipalities,
community group collection is exercised as a recycling activity, where a voluntary association of
community residents such as a neighborhood association and a children’s group voluntarily collects
recyclable waste and delivers it to a recycle business operator.
26 Overview
Maintenance Management of Waste Collection and Transport Vehicles
Collection vehicles must be constantly kept in good condition to operate them stably and
continuously according to the collection plan. For this reason, regular and appropriate vehicle
inspection and maintenance is very important. To maintain vehicles in good condition, it is desirable
to apply the concept of preventive maintenance and inspection that prevents faults occurring during
operation, and that not simply takes measures swiftly to rectify the faults that are detected as a result
of inspection or occur during collection operation.
Transfer Station
A transfer station is a facility where waste is transferred from a small or a medium-size collection
vehicle to a large transport vehicle, either with or without compression of the waste, in order to allow
the collection truck to speedily return to its collection activities. The transfer station operation thereby
enhances the efficiency of waste collection and transport for urban areas where waste is to be collected
across wide areas. Figure 10 shows an example of a transfer station processing flow
(compactor/container type).
Waste Collection Vehicle Hopper
Hopper Stage
え
Discharge
Carrying in Weighing
Transfer Loading Carrying out

Supply
Arm-roll type container vehicle

Compressing with steel arm for loading and
Carrying in Weighing unloading containers
Combustible Compressor
（Waste Collection （ truck scale ） waste carried in
Vehicle）
Discharge （Receiving hopper）
Supply （Feeder equipment）
Compressing Transfer Loading Carrying out

（ Container transfer （ Container vehicle ）
equipment ）
Source: Ministry of the Environment “Guidance for application for subsidy for establishing a Sound Material-Cycle
Society (For Facility)” (2021)
Figure 10 Example of Process at Compactor/Container Type Transfer Station
Overview 27
Intermediate Treatment
Transition of the Intermediate Treatment Technologies
Since Japan has a small land and the usable land

area is limited, reduction of waste amount is
extremely important. Therefore, incineration has
historically been considered an effective treatment
method and was mandated under the amendment of
the Waste Cleaning Act, in 1930. However, even
with this mandate the burning of waste in open fields
and the dumping of waste into rivers continued to be
frequent occurrences, and in reality incineration
Source: Tokyo Metropolitan Government
technologies were not introduced as centralized Photo 9 Shin-Koto Incineration Plant
intermediate treatment.
From the period of the 1960s’, the treatment of the increased waste amount that was associated with
the rapid economic growth, the improvement of the living environment, and enhancement of public
sanitation became serious issues. In order to resolve these issues and from the perspective that
incineration of waste is very effective in sanitary treatment of waste and reduction of the waste amount,
the development of intermediate treatment facilities using incineration technology was promoted.
Under this development policy, the introduction of a waste incineration facility was promoted in all
urban areas through the provision of technical and financial support based on the laws and plans
established by the central government, and promising results were achieved for sanitary treatment and
amount reduction of waste. At the same time, in response to the pollution issues caused by waste
incineration, the central government established the Facility Technical Standards Including Exhaust
Gas Treatment (1971) for proper waste treatment by intermediate treatment facilities. Since then, the
incineration technology has significantly progressed to become a highly reliable waste treatment
method, through the process of responding to new and updated standards, regulations, and structural
guidelines (1979) and performance guidelines (1998) which ensured the necessary countermeasures
against dust, dioxins, organic pollutant, and mercury.
28 Overview
Incineration Technologies
Figure 11 shows an example of the structure of an intermediate treatment facility that utilizes stoker-
type incineration technology.
Residual Heat
Utilization
Plant Water Discharge
(1) Platform (9) Incinerator (17) Steam condensate Tank

(2) Waste pit (10) Ash extruder (18) Induced draft fan (IDF)
(3) Waste crane (11) Boiler (19) Steam type gas re-heater
(4) Forced draft fan (FDF) (12) Cooling tower (20) Catalytic reaction tower
(21) Wastewater treatment
(5) Secondary positive blower (13) Fly ash treatment device
facility
(6) Ash pit (14) Filter type dust collector (22) Steam Condensers
(7) Ash crane (15) Steam receiver (23) Stack
(8) Induced fan at ash pit (16) Turbine generator
Source: JICA “Guideline for Promoting Waste to Energy Facility Projects” (2017)
Figure 11 Example of Waste Incineration Plant with a Stoker Furnace
Other Uses of Incineration Technology

The thermal energy that is generated by combustion in an incineration facility is
used for heating, and hot water supply within the facility in the forms of air,
Use of Waste steam, and hot water. The energy is stored and distributed to the local residents
Heat as an energy source for hot water for swimming pools in recreational centers,
social welfare facilities, and community centers of the region, in addition to
heating inside the incineration facility.
Incineration Steam is created by the waste heat that is generated during the incineration of
Power waste. The steam is then utilized to turn a turbine, a device that converts thermal
Generation energy into kinetic energy and uses it as power to generate electricity
Overview 29
RDF/RPF Conversion Technology
RDF (Refuse Derived Fuel) is a solid fuel that is produced from combustible waste - kitchen waste,
paper waste, plastic waste, and so on. The combustible waste is solidified through the processes of
shredding, sorting, drying, and molding. RDF can be stored for a comparatively long period of time
due to its low biodegradability and can be transported more easily than waste due to its reduced amount
and molding into more usable shapes.
Stable combustion is another major feature of RDF because of its generally constant shape and heat
value.
RPF (Refuse derived Paper and plastics densified Fuel) is a solid fuel that is manufactured mainly
from paper and waste plastics discharged in industrial waste and specifically selected municipal waste,
that are difficult to recycle as raw materials. RPF can be used as a fuel in the same way as RDF,
however, since RPF is produced from selected waste, it is characterized by having less foreign matter
content, lower moisture content, and higher heat value (5,000kcal/kg or more).
Photo 10 RDF Photo 11 RPF

Source: Study Group on Appropriate Management of RDF “Report of Study Group on Appropriate Management
of RDF (2003)” (RDF) (Photo 10)
Source: Japan RPF Association Website “What is RPF?” https://www.jrpf.gr.jp/rpf-1
(accessed January 10, 2022) (Photo 11)
30 Overview
Figure 12 shows the treatment methods at the intermediate treatment facility where RDF/RPF
conversion technology is applied.
1）Method with molding process before dry process
Additive
Receiving Crushing
Sorting Molding Dry Cooling Storage
waste and/or sorting
2）Method with molding process after dry process

Additive
Receiving Crushing
Dry Sorting Molding Cooling Storage
3）Method without dry process and additive

It is applied when there is no need to store RDF for a long period of time, such as when the target is waste that is not
easily decomposed, or when it is used immediately after production.
Receiving Crushing
Mixing Molding Storage
Crushing
means crushing and sorting, or crushing or sorting.
and/or sorting
Source: Japan Waste Management Association “Planning and Design Guidelines for Waste Treatment Facility
Maintenance, 2017 Revised Version” (2017)
Figure 12 Treatment Process of RDF Facility
Organic Waste Recycling Technology
(a) Overview and Types of Technologies Related to Organic Waste Recycling

Biomass refers to organic resources from animals and plants, excluding fossil fuels. It is a
sustainable and renewable resource that can be utilized as renewable energy and may be produced as
long as there is life and solar energy. In Japan, utilization of biomass is being promoted according to
the regional characteristics, and promoting the utilization of biomass included in organic waste is part
of Japan’s efforts to construct a sound material-cycle society.
(b) Overview of Methane Gasification Technology

Methane gas facilities ferment the organic waste that is acquired by separate collection and from
mechanical sorting of collected mixed waste, and recover the biogas from the produced methane.
Figure 13 shows the process.
Overview 31
Biogas Product 1. Biogas and fermentation residue are

（CH4+CO2）
Fermentation produced from methane gasification.
Residue
Recyclable Eluate
2. Dehydrated solids are used as
Methane Solid-liquid Wastewater
material
fermentation separation treatment fertilizer, etc. Or, after drying into solids,
they can be incinerated.
Dehydrated solids
3. Fermentation residue is used as liquid
fertilizer, after disinfection. Or, after
Solid resourcing Incineration
Composting, (composting, fueling, (Heat utilization, dehydration, the eliminated liquid is
Fuel etc.) etc.) treated as wastewater.
Source: Ministry of the Environment Website “Methane Gasification Technology”
https://www.env.go.jp/recycle/waste/biomass/technical.html (accessed January 20, 2022)
Figure 13 Process of Methane Fermentation
(c) Overview of Composting Technology

In composting, the organic waste in kitchen waste and the like is broken down and made into
compost by microbes under aerobic conditions. This technology has been used for recycling kitchen
waste in Japan for ages.
Composting
Grab Crane Crushing and Screening
Hammer Mill
Feeding Chain Conveyor
Hopper
Receiving Bunker Screening Drum
Slat Conveyor
Overband Magnetic Separator
Shovel Loading Composting Maturation Areas

Flow
Receiving
Aerated Primary Windrows
Inclined Chain Conveyor Windrow Turning Machine
Coarse Compost
Fine Compost Lump
Breaker Belt Conveyor for Rejects
Chain Conveyor
for Fine Compost
Screening Machine Fermentation
Storage for
Fine Compost
Hammer Mill
Storage and Shipment Foreign Material Removal
Source: JAPAN ENVIRONMENTAL SANITATION CENTER “Waste management technology in Japan (JICA
training text)” (2017)
Figure 14 Flow of Composting
32 Overview
(d) Overview of Technology Related to Turning Waste into Livestock Feed

Under this technology livestock feed is produced from kitchen waste and other organic waste. As is
the case with composting, this is a food recycling technology that has been used in Japan for ages. The
main technologies involved in turning waste into livestock feed are reducing the water content through
thermal treatment and drying, and adjusting the oil and fat content.
Livestock feed
【Fermentation and Dry Method】
Kitchen Fermentation Heat dry Grinding and Feed

Waste sieving
Addition of fermentation
bacteria
【Boil and Dry Method】

Solid Dry Grinding Feed
Flow Kitchen Heat Solid-
Waste treatment liquid
Liquid Oil
separation Recycled oil
separation
【Liquid Feed Method】
Kitchen Sorting/
Sorting/ Composition and Sterilization Fermentation Feed
Waste Crashing
Crushing moisture adjustment
Addition of fermentation bacteria

Moisture
Source: Ministry of the Environment Website “Types and uses of waste biomass”
http://www.env.go.jp/recycle/waste/biomass/biomass.html (accessed January 27, 2022)
Figure 15 Flow Chart of Recycling to Feed
Recycling Technology
In order to create a sound material-cycle society, the effective use of resources and recycling is very
important. In Japan, various recycling laws have been enacted to promote recycling. It is necessary to
economically and safely process waste using methods suitable for source separation and separate
collection. The main technologies related to recycling are sorting, shredding, compression, drying, and
solidifying.
Recycling technologies such as sorting, shredding, and compressing can also perform the following
roles for promoting efficient recycling.
Roles of recycling technology

 Shredding combustible bulky waste into sizes that can be incinerated.
 Shredding organic waste into sizes suitable for intermediate treatment.
Overview 33
 Shredding and sorting incombustible waste and bulky waste to enable recovery of recyclable
materials.
 Reducing waste disposal by shredding and compressing waste.
 Reducing final disposal amount by recovering recyclable materials.
 Reducing waste generation amount.
 Resources recovery.
Maintenance Related to Intermediate Treatment Facilities
The construction and operation of a waste treatment facility must consider the surrounding
environment. The technical standards related to the operation and maintenance management of general
waste treatment plants are regulated by the Waste Management Act. There are detailed standards that
specifically regulate incineration plants which must be met. Waste treatment plants must be operated
and maintained under the strictest control to satisfy the related standards.
Radio Law Air Pollution Civil

Building Control Act Aeronautics
Vibration Standard Heat Supply Act
Regulation Law Business Act Poisonous and
Fire Law Deleterious
Service Act Noise Substances Control
Regulation Law Off-site heat Act
supply
High Pressure
Gas Safety Act
Electricity
Business Act
Offensive Odor
HCl and other hazardous gas
Control Law Steam turbine generator removal equipment
Industrial Safety
and Health Act
Measurement Act Dust collector
Labor Standards Act
Platform Central
灰ｸﾚｰﾝ
Ash crane control room
Wastewater （Excavation of
Treatment combustible Electrical
materials）
Room room
Pump room
Water Pollution Ash pit

Control Law
Water Supply
Service Act
Figure 16 Relevant Laws and Regulations Pertaining to the Planning of Facilities
34 Overview
Final Disposal
History of Disposal Sites
Before the introduction of intermediate treatment,

kitchen waste and other types of waste were disposed
of at designated locations. However, this caused
problems for the surrounding environment such as the
generation of odor, pests (mosquitos, flies, etc.), and
spontaneous fires caused by gas produced from the
disposed waste.
During the period of high economic growth in the
Source: Tokyo Metropolitan Government Bureau
1960s, waste increased, the remaining capacity of of Environment
landfill site was shortened and it became necessary to Photo 12 A Landfill Site in Tokyo where
Spontaneous Combustion was
promote the reduction of waste disposal amount at Occurring Because the Waste was
landfills by incineration. Directly Disposed with no Intermediate
Treatment and no Soil Cover
In the 1970s, the Waste Management Act was Application – circa 1957
revised and technical standards for disposal sites
covering construction, operation and maintenance, and decommissioning were established. Disposal
sites were divided into three categories, namely inert landfill sites, controlled landfill sites, and isolated
landfill sites and standards were established for each.
Then, the “Structural Guidelines for Final Waste Disposal Sites” were established in 1979 and the
“Performance Guidelines for Final Waste Disposal Sites” were established in 2000. These guidelines
dealt with the issues of suitable landfill control, and helped to alleviate the shortage on landfill sites
and solved the problems related to the surrounding environment, such as the generation of hexavalent
chromium and hydrogen sulfide.
The shortage of landfill sites furthered the need for more sites which was one problem, but on the
other hand it was becoming more difficult to gain the understanding of surrounding residents to
construct new sites. Therefore, local harmonized landfill sites were proposed, underpinned by the
operation and maintenance being strictly controlled and implemented with the understanding of
residents. As a result, closed system landfills were adopted as landfill sites for municipal waste. There
were 1,620 municipal waste final disposal sites in FY2019, and 83 closed system landfill sites in
FY2018.
Functions and Features of Landfill Site Facilities and Equipment
The main functions required of landfill sites are as follows: waste storage function to stably store
the waste in the landfill; water sealing functions to prevent groundwater from entering the landfill site,
Overview 35
and prevent water from the waste in the landfill from being discharged outside the disposal area; and
cleaning functions to facilitate the decomposition of organic waste and washing out contaminated
matter. The main facilities are storage structures, waterproofing liner system construction, leachate
treatment facilities, monitoring facilities, and generated gas treatment facilities.
Types of disposal sites
Landfill sites are facilities for disposing of wastes

that are difficult to undergo intermediate treatment -
such as incineration, recycling, etc., waste items that
are difficult to reuse, and the residue from
intermediate treatment. They are facilities where
waste is appropriately stored without negatively
impacting the surrounding environment.
Generally, landfill sites are constructed in
Source: Minami-Ashikaga City Website “Landfill”
mountainous terrain by adopting the topographical https://www.city.minamiashigara.kanagaw
a.jp/shisetsu/kankyou/saisyusyobunjyou.ht
features there or by excavation in plains. In Japan due ml (accessed March 1, 2022)
to limitations of finding sites for constructing Photo 13 Landfill of Minami-Ashikaga
City
landfills, the method of constructing a seawall in a
coastal area and constructing a landfill at sea, i.e. land
reclamation, is also implemented.
In Japan, learning from past experience that
construction of landfills was difficult due to
opposition from local residents, in recent years closed
system landfill sites in which waste is disposed of in
Source: Tokachi Environmental Complex Office
enclosed structures have been constructed as regional- Association, "Municipal Waste Final Disposal
friendly facilities that are accepted by the residents. Facility Ume-ru Center Mikato Pamphlet"
(2021)
Moreover, operation and maintenance of closed Photo 14 Outside View of the
Landfill
system landfill sites are not affected by the weather “Ume-ru Center Mikato” Landfill of
and has the advantage of being able to effectively Tokachi Environmental Complex
Office Association
minimize leachate generation as intake of rainwater
can be controlled.
Landfill sites are categorized into landfill sites for municipal waste and landfill sites for industrial
waste. Landfill sites for industrial waste are categorized into inert, controlled and isolated landfill sites.
Landfill sites for municipal waste are almost identical to controlled landfill sites for industrial waste.
36 Overview
＜Industrial Waste＞＜Municipal Waste＞

（Landfills maintained by municipalities）
Inert landfill site
Landfill Controlled landfill site Landfill for municipal waste
Isolated landfill site
Figure 17 Types of Landfill
Sign Administration office

Inspection of board Ventilation equipment
groundwater quality (gas venting equipment)
Retaining walls,
embankments,
Other facilities
(Storage structures)
Discharge water
Liner
Leachate Regulating facilities
treatment facility reservoir Inspection of
Retained water collection
groundwater quality
and discharge facility
Groundwater collection
and drainage facilities
Source: Ministry of the Environment “Annual Report on the Environment and the Sound Material-Cycle Society in
Japan 2007” (2007)
Figure 18 Example of Controlled Landfill Site Structure
The semi-aerobic landfill construction method was researched and developed by professor emeritus
Hanashima of Fukuoka University with the cooperation of Fukuoka City. At the time, Fukuoka City
was confronted with pollution issues from landfill sites used for kitchen waste that caused water
pollution, odor, gas, and pests. Therefore, professor Hanashima and Fukuoka City jointly conducted a
study for three years from 1973 to improve the leachate quality and in turn the landfill sites. As a result
of these experiments, the basic concept of semi-aerobic landfill construction that uses leachate
collection pipes to supply air to the interior of landfill sites was proposed. In 1975, the first semi-
aerobic landfill site was constructed at the Shinkamata landfill site. Then, the semi-aerobic landfill
construction method was adopted throughout Japan under the name of the Fukuoka Method.
Overview 37
Source: Fukuoka Prefecture “Guide to Introducing The Fukuoka Method” (2020)

English: https://www.pref.fukuoka.lg.jp/uploaded/life/613855_61086159_misc.pdf
Vietnamese: https://www.pref.fukuoka.lg.jp/uploaded/life/613855_61086163_misc.pdf
Thai: https://www.pref.fukuoka.lg.jp/uploaded/life/613855_61086164_misc.pdf
Figure 19 Conceptual Figure of Semi-Aerobic Landfill Construction
Operation and Maintenance Management of Landfill Sites
When local governments need to develop landfill sites, they must apply to their prefectural
governments. Together with their application, they must submit an operation and maintenance
management plan. The understanding and cooperation of local residents are extremely important to
facilitate the operation and maintenance of the facility, and the prepared operation and maintenance
plan should carefully consider local conditions and aspirations and the plan contents need to be
thoroughly discussed with local residents. Once commissioned, the facility should be operated and
maintained in accordance with the prepared plan.
38 Overview
Waste Delivery Control

In order to manage and operate a landfill site according to plans, it is important to understand the
types, quantities, and characteristics of the waste that will be delivered to the landfill.
Landfill Work Management

Carrying out landfill work as planned is necessary not only for securing disposal capacity at the
landfill site, but also for stabilizing landfill waste and managing leachate and landfill gas generated
from the landfill. Information on the types and amounts of waste disposed in each landfill disposal cell
is also necessary from the perspective of long-term landfill management, including the prevention of
environmental pollution during the period after completion of disposal operations and abolition of the
landfill and consideration of the land use after abolition.
Facility Operation and Maintenance Management

If the functions of each facility are not fully utilized, the disposal site will become unsanitary,
causing problems such as environmental pollution to the surrounding area and negative impacts on the
health of workers. In addition, since it takes a long time, in some cases several decades, from the
completion of disposal operations to the abolition of the landfill, it is necessary to keep in mind that
each facility will be operated for a long period of time.
Appropriate Closing and Use of the Site
(a) Appropriate Closing

In Japan, when waste is no longer received at a landfill site and landfilling work is terminated,
facility services are ended by taking actions, such as the final covering with soil to close it
appropriately. When a facility is closed, although there is no new delivery of waste, the disposed waste
has not completely decomposed, so the water quality of leachate and gas from the landfill must
continue to be controlled according to the facility standards, and operation and maintenance standard.
Once a landfill site is closed, entrance to the site is limited and managed so that landfill waste is not
agitated.
After a monitoring period during which the decomposition of the landfill waste has stabilized, the
water quality of leachate, landfill gas emissions, and landfill waste temperature are confirmed to make
sure that they comply with the standards. If the abolition standards are met, a new project may be
commenced at the site according to the guidelines related to site usage of landfill sites.
Figure 20 shows the flow from the start of a landfill site until the site is reused for another purpose.
Overview 39
Start of End of
landfill landfill Closing Abolition
Final
Landfill （ Landfill period ） Soil
Cover
Designated area
Landfill Disposal Application for
Notification of Confirmation of
Termination Discontinuance
Site reuse※
Site Reuse
Site reuse ※
*Only the surface of landfill
（No maintenance problems）
Structure Standard
Related Operation and Maintenance standard
Standards
Abolition standard
of landfill
Construction Guideline for altering
the shape of a former final
disposal site
Source: Japan Waste Management Association "Planning, Design, and Management Procedures for Preparing Waste
Landfill Sites, Revised 2010 Edition" (2010).
Figure 20 Final Disposal Site Utilization and Related Standards
Abolition standard of landfill

Leachate must be below The temperature in the
the effluent standard disposal area is not
abnormal in relation to
BOD＜60ppm the surrounding ground
COD＜90ppm temperature.
Downstream SS ＜60ppm
observation wells No gas generation
Water quality below Final cover soil
standard value Above 50cm
*: BOD : Biochemical Oxygen Demand

COD : Chemical Oxygen Demand
SS : Suspended Solids
Figure 21 Abolition Standard of Landfill
40 Overview
(b) Site Reuse

After landfilling at landfill sites has been terminated, the site will be relatively large and flat and
similar to a vacant lot very much like the condition just before the development of the landfill. It is
therefore possible, after a site has been used as a landfill site, to reuse it effectively to help develop or
revitalize the area. The site reuse is expected to deepen residents’ awareness and understanding of the
construction of landfill sites and promote the locating of new landfill sites.
Overview 41
Modern Trend of Waste Management (Topic 5)
This Topic introduces Japan’s domestic and international cooperation efforts to manage the
issues of illegal dumping, dioxins, hazardous waste, disaster waste, and marine plastics waste as
social issues and global trends related to waste management.
In order to deal with these issues, cooperation and consensus building not only within
administrative institutions but also with residents, local communities, and industry are
indispensable. This Topic covers economic and regulatory measures taken in actual cases in Japan,
as well as specific lessons learned and considerations regarding responses and countermeasures that
can be used as reference for developing countries.
Illegal Dumping
Cases in the Past
In managing waste, illegal dumping is strictly forbidden in Japan and the law prescribes penalties
as will be described in this section. However, in the process of industrial development, illegal dumping
occurs repeatedly, and it is extremely difficult to discover and control it in a timely manner.
Illegal Industrial Waste Dumping Case in Teshima, Kagawa Prefecture
The illegal dumping of industrial waste in Teshima, Kagawa Prefecture in the 1990s is one of the
largest cases of illegal dumping that occurred in Japan. Triggered by this case, responses to illegal
dumping in Japan became stricter and government officials and citizens have since been cooperating
to establish a system to prevent illegal dumping.
Photo 15 Polluted Situation in Teshima Photo 16 Campaign by the Residents

Source: Material for Teshima Residents' Council of Countermeasure for Waste Treatment (Photo 15 taken in 1990,
Photo 16 taken in 1996)
42 Overview
Various measures have been taken against illegal dumping, such as enactment of necessary laws,
strengthening cooperation between the central government and municipalities, strengthening the
surveillance system, improving the reporting system, and others and, as a result, the number of newly
detected illegal dumping sites has greatly decreased compared with the respective numbers during the
peak period of the late 1990s.
Waste amount
(1,000 tons) Number of cases
1,400 1,400
Waste amount of illegal dumping
1,200 1,200
Number of cases of illegal dumping
1,000 1,000
800 800
600 600
400 400
200 200
0 0
1996
1999
2002
2003
2006
2009
2012
2013
2016
2019
1995
1997
1998
2000
2001
2004
2005
2007
2008
2010
2011
2014
2015
2017
2018
2020
Fiscal Year
Source: Ministry of the Environment “Survey results of illegal dumping, etc. (FY2020)” (2022)
Figure 22 Transition of Number and Amount of Newly Discovered Cases of Illegal Dumping
Dioxins Problem
What are Dioxins
Dioxins are a generic term for Polychlorinated dibenzo-p-dioxins (PCDDs) and Polychlorinated
dibenzofurans (PCDFs). Although the substances that show toxicity like dioxins such as coplanar-
polychlorinated biphenyl (coplanar PCB) are called dioxin-like compounds, dioxins in this document
refer not only to PCDDs and PCDFs but also coplanar PCB in accordance with the definition in Act
on Special Measures concerning Countermeasures against Dioxins enacted in 1999.
Dioxins have basically a structure where two benzene rings are combined with oxygen and chlorine
is attached there. There are 75 types of PCDD, 135 types of PCDF, and dozens of types of coplanar
PCB since the shape varies depending on the number of attached chlorine and where they are attached,
and only 29 types of them are regarded as toxic.
Overview 43
*PCBs, in which benzene rings are on the same plane and have
a flat structure, are called “coplanar PCBs”.
Some PCBs have benzene rings on different planes and have
similar toxicity as Dioxins. In Japan, they are also called
“coplanar PCBs”.
Source: Brochure shared with related ministries “Dioxins” (2012)
Figure 23 Molecular Structure of Dioxins
Measures Taken Against Dioxins in Japan
Based on the Dioxins Measures Promotion Basic Policy and the Act on Special Measures
concerning Countermeasures against Dioxins formulated in 1999 with the aim of preventing
environmental pollution caused by dioxins, the central government, municipalities, business operators,
and citizens worked to implement various pollution prevention measures. As a result, the total amount
of emission of dioxins to the environment was reduced by 90% at the end of 2002 compared with 1997.
Hazardous Waste
Waste generated by industries, businesses, and our daily life contains hazardous waste that is
difficult to treat. Mercury, PCB, and asbestos have been selected as major hazardous wastes to be
discussed; an overview of their properties and toxicity is presented, together with current
countermeasures in Japan, and past cases of pollution caused by these wastes. Through the description
of actual cases, the necessary measures and the challenges for their implementation are also introduced.
44 Overview
Table 5 Summary of Hazardous Waste

Hazardous
Summary
Waste
Mercury has an effect on living organisms, which is a disorder due to “corrosive
action of inorganic mercury compounds” and “uptake of methyl mercury”.
Minamata disease is widely known as the most famous disorder that has occurred in
Mercury Japan from mercury pollution. Globally, research was conducted by the United
Nations in 2000s and the Minamata Convention went into effect in 2017. Japan
ratified this convention and is engaged in developing and applying the
countermeasures.
Although PCB was used for various uses in the past, at present orders were issued
PCB for discontinuing production, collection, and prohibition of importation. Collected
PCB is treated by the Japan Environmental Storage & Safety Corporation (JESCO).
Asbestos that is taken into the human body and remains there causes diseases such
as lung fibrosis, lung cancer, and malignant mesothelioma. Its use is regulated in
Japan and at present is not imported into the country.
Asbestos
Source: Environmental Restoration and Conservation Agency (ERCA) Website

https://www.erca.go.jp/asbestos/what/whats/whatAsbestos.html
(accessed February 1, 2022)
Disaster Waste
Due to its location, geography, geology, climate, and other natural conditions, Japan frequently
experiences typhoons, severe rainstorms, earthquakes, and other natural disasters. The percentage of
global disasters that Japan accounts for is 20.8% of earthquakes with a magnitude over 6, and the
percentage of disaster damage costs is 18.3%. As Japan accounts for only 0.25% of the world's land
area, these figures are very high. When a disaster occurs, vast quantities of waste are immediately
generated and they must be speedily disposed of to help the residents recover.
Overview 45
Changes in the System
Based on the lessons learned from the Ise Bay Typhoon of 1959, the Disaster Countermeasure
Basic Act was enacted in the same year and has been revised several times since then. The purpose
of the act is to protect the lives, health, and property of the citizens from disasters and thereby
contribute to maintaining social order and assuring public welfare.
In 2011 Japan was struck by the Great East Japan Earthquake, and once more the lessons learned
in that disaster led to the establishment of the Basic Act to Strengthen National Resilience to
Contribute to Disaster Prevention and Alleviation to Achieve Strong and Flexible Citizens' Lives
(hereinafter referred to as the Basic Act to Strengthen National Resilience) established in 2013, and
activities have since been carried out based on the concepts of this act.
Based on these laws, the Basic Plan to Strengthen National Resilience was established in June
2014, and “situations to be avoided” was defined as “situations in which recovery and reconstruction
are delayed due to stagnation in the treatment of the vast quantities of waste produced by disasters”.
Therefore, countermeasures for disaster waste were included as part of the policies to strengthen
national resilience.
Current Situation of Disaster Waste Management
The Ministry of the Environment’s Disaster Waste Countermeasure Guidelines (Revised Edition)
describes the basic flow of disaster waste management after a disaster has occurred. In principle,
disaster waste is managed according to the descriptions in the guidelines.
The Ministry of the Environment is at the center of national level disaster waste countermeasures
in Japan. Specifically, the ministry formulates legislation, basic plans, and guidelines as described
earlier in this section. The ministry also monitors the efforts by the various local governments, makes
suggestions as necessary, and at the same time, it archives information about waste from past
disasters and makes it available to the public through its “Disaster Waste Countermeasures Site”.
The Ministry of the Environment also operates the Disaster Waste Treatment Assistance Network
(D.Waste-Net) as a secretariat to support disaster waste management implemented by local
governments. Numerous research and specialized organizations, as well as municipal waste related
organizations, are members of D.Waste-Net.
Japan’s International Cooperation
As an example of Japan’s international cooperation related to disaster waste, the debris treatment
support provided to Nepal after the major earthquake that struck that country in 2015 and the creation
of the “Asia-Pacific Disaster Waste Management Guidelines” are introduced in this section.
From April to May 2015, earthquakes of a maximum magnitude of 7.8 struck the municipality of
46 Overview
Gorkha which is about 77 km northwest of the capital city of Kathmandu. Over 50,000 homes were
destroyed and there were over 8,000 casualties. In response, the Japanese government, through the
Japan International Cooperation Agency (JICA) dispatched an international emergency relief team
and provided about JPY 25 million of emergency relief supplies (tents, blankets, etc.) as humanitarian
support for the victims. In addition, based on requests from the government of Nepal and the United
Nations Environment Programme (UNEP), the Ministry of the Environment provided technical
support for formulating disaster waste treatment plans centered on the recycling of the bricks from the
buildings destroyed in Nepal.
At the G7 Toyama Environment Ministers’ Summit in May 2016, the “Toyama Material Cycle
Framework” was adopted for the field of disaster waste management. The G7 countries agreed to
provide support for nations and regions in the Asia-Pacific region that experienced natural disasters.
Based on this agreement, from fiscal 2017, the Ministry of the Environment examined the natural
disasters occurring around the world, centering on the Asia-Pacific region, and the treatment of
disaster waste, then it organized the issues and lessons learned.
Based on the Japanese know-how on disaster waste countermeasures and the needs of other
countries that were identified through the aforementioned study, in October 2018 the Ministry of the
Environment created the “Asia-Pacific Disaster Waste Management Guidelines” to describe the points
necessary to accurately, smoothly, and quickly process disaster waste.
Marine Plastic Waste Issue
Global Situation
Since the introduction of plastic products around the 1950s, their applications have expanded due
to the ease of processing and stable non-corrosive characteristics, and the gross production amount
so far is said to exceed 8.3 billion tons. Of this, 6.3 billion tons are disposed of as waste, much of
which is landfilled or dumped in the ocean. Recently, large amounts of plastics were found from the
stomachs of dead seabirds and whales in various regions around the world. A video showing a scene
in which a plastic straw was removed from the nose of a turtle was aired in the media and this image
galvanized global attention to the marine plastic waste issue. The issue of marine plastic waste is now
being addressed as a global scale.
Overview 47
Photo 17 Plastic Waste on the Beach Photo 18 Sea Turtle and Plastics
Source: DigArt “Plastic bottles and waste washed up on a beach by the incoming tide, covering the entire beach at
Umkomaas in KZN, South Africa” (Photo 17), Willyam Bradberry “Water Environmental Pollution Problem
Underwater animal Sea turtle eating Plastic” (Photo 18）
Current Situation in Japan
Strongly encouraged by this international momentum, Japan is also promoting countermeasures to

combat plastic pollution.
At the G20 Osaka Summit that was held in Osaka on June 28, 2019, as the chair country Japan
promoted “Osaka Blue Ocean Vision” to each country as a universal global vision. The aim is to
completely eliminate extra pollution caused by marine plastic waste by 2050 through the
comprehensive approach to life cycle including the reduction of the outflow of plastic waste caused
by poor management. This is to be achieved by the improvement of waste management and innovative
solutions that are achieved while recognizing the important role of plastics in the society.
In this Summit, Japan also announced the country’s intention to support capacity building and
infrastructure development relating to waste management in developing countries. To achieve this
objective, the Japanese Government established the “Marine Initiative” to support effective global
countermeasures for marine plastic waste, by focusing on (1) waste management, (2) recovery of
marine waste, (3) innovation, and (4) capacity enhancement. The Japanese Government supports
capacity enhancement of developing countries to promote waste management, recovery of marine
waste, and innovation through the following specific policies under this initiative.
Japan’s International Cooperation
In terms of countermeasures to prevent marine plastic waste, it is important for the world as a
whole, including developing countries, to promote efforts to curb the outflow of plastic waste into
the ocean. Accordingly, the Japanese Government is promoting effective support for developing
countries through the "MARINE Initiative" and other programs mentioned earlier.
48 Overview
Efforts of the Municipalities in Japan (Topic 6)
In discharging their responsibilities for waste management practices, the challenges the
municipalities face and the countermeasures they adopt, differ depending on the size of the city, its
geography, and economic and social conditions. Based on the history and case studies of waste
management in Tokyo (large-scale and capital city), Fujisawa City (medium-scale city), and
Shibushi City (small-scale city), this Topic aims to provide experiences and lessons learned that
will be useful references for local governments in developing countries to handle similar issues,
such as responding to increasing waste amount and waste diversification associated with economic
growth, pioneering efforts in intermediate treatment and recycling, and building public consensus
for source separation and waste reduction.
Topic 6 introduces the waste management practices of the following three municipalities, selected
based on their size and characteristics: the 23 special cities of Tokyo representing a large municipality,
Fujisawa City a medium-sized municipality, and Shibushi City a small municipality.
The 23 special cities of Tokyo (hereinafter refer to as Tokyo 23 Cities), the capital of Japan, located
at the center of Tokyo, have experienced the challenges of waste management while Tokyo was
developing into the large-scale metropolitan capital city of today, and have finally established their
current waste management system. Tokyo 23 Cities have also led Japan's waste management program
and assisted other municipalities. Local governments in developing countries, especially in capitals
and large cities with similar conditions as that of Tokyo, can benefit from the lessons learnt from
Tokyo 23 Cities and their experiences.
Fujisawa City is a medium-scale municipality with a population of 430,000. Medium-scale
municipalities are suitable for helping to understand the comprehensive system adopted by Japan’s
municipalities to manage waste. Fujisawa City has from early on actively engaged the private sector
in waste recycling and facilities improvement activities. Thus, Fujisawa City was selected as a
representative of medium-scale municipalities. Furthermore, Fujisawa city has maintained records of
their waste management efforts for many years, and there are many lessons that can be gleaned from
the city’s experiences by municipalities in developing countries aiming to build a comprehensive
waste management system including intermediate treatment in the future.
The third municipality selected here, Shibushi City does not have incineration plants and is known
for its high recycling rate. Although it has a short history of waste treatment, the city has reduced the
amount of waste disposal at landfill by implementing multi-item sorted waste discharge and separate
collection to support recycling, and thereby the life of landfill sites has been successfully extended.
The case in Shibushi City may be thought-provoking for municipalities of developing countries that
are either planning to promote, or are already engaged in recycling. The Shibushi case study
demonstrates how the city reached an agreement with its residents and obtained their cooperation
Overview 49
during the development process of their multi-item waste recycling system as well as overcoming
other issues.
Waste Management Efforts Made by the 23 Special Cities of Tokyo
History of Waste Management in Tokyo
From 1900 to the present, the 23 special cities of Tokyo have overcome various waste management
problems in changing historical backgrounds. The waste management measures taken in each time
period are introduced in this section.
(a) Dawn of the Waste Problem, 1900 - 1955

In the latter half of the 19th century, cholera and plague pandemics were spreading globally and
taking measures to protect public health became an issue in Japan as well. The Tokyo Metropolitan
Government (TMG) had identified unsanitary conditions as one of the causes of the spread of these
infectious diseases, and recognized that prompt and proper disposal of waste and human waste was
essential to improve the situation. In 1900 the government of Japan enacted the Waste Cleaning Act
and municipalities assumed responsibility for waste management. In response, Tokyo introduced a
waste collection system and started to contract out collection services to business operators. However,
in 1908 problems of unreliable waste collection by business operators arose and TMG reversed its
decision of contracting out collection and returned to directly-managing waste collection.
Furthermore, to cope with the rapidly increasing amount of waste associated with urbanization,
Tokyo constructed the first waste incineration plant in Osaki in 1924 and a municipal waste treatment
plant in Fukagawa in 1929.
(b) Period of High Economic Growth - Escalation of the Waste Problem, 1955 - 1973
Tokyo’s population grew due to the return of evacuees and military personnel, and sanitary
conditions worsened, underlining the urgent need to implement drastic waste management
countermeasures. In response, Tokyo improved the related ordinances and organization. During this
period, the mechanization of waste collection progressed. Furthermore, in 1963, a subsidy system
was introduced to support the development of the increasingly required larger waste treatment
facilities. The Waste Management Act was enacted in 1970, and Tokyo revised the waste ordinances
to clearly specify the responsibility of business operators who generate business waste and the
importance of obtaining the understanding of residents on the waste management system. Under these
circumstances, in 1971, the Governor of Tokyo declared a “war on waste” at the Tokyo Metropolitan
Assembly and promoted the development of incineration technology and treatment.
50 Overview
(c) Period of Stable Economic Growth - Addressing the Environmental Problem, 1973 - 1985
Following the enactment of the Waste Management Act by the central government in 1970, Tokyo
revised the ordinance to clearly specify the responsibility of business operators who generated
business waste. As the necessity for reuse and recycling of waste increased, recycling activities and
group waste collection were promoted, and thorough discussions were conducted with local residents
through explanatory and consultative meetings. In 1985, incineration plants were in operation at only
13 locations and in order to ensure that the combined incineration capacity was sufficient, source
separation and separate collection of combustible and incombustible waste were started.
(d) Significant Increase of the Amount of Waste, 1985 - 1990

Rapid economic growth led to redevelopment in Tokyo and a rush to construct new buildings and
condominiums. People’s lifestyles also changed resulting in generation and disposal of large amounts
of waste and increased variation in waste compositions. TMG reacted by calling for waste reduction
and recycling.
(e) Introduction of a Sound Material-Cycle Society, 1990 - Present Day

With the revision of the Waste Management Act in 1991, promotion of waste reduction and
recycling heightened. After the central government enacted the Act on the Promotion of Effective
Utilization of Resources in 1991, Tokyo started to fully charge for bulky waste collection in the same
year and for business waste collection in 1996. Tokyo also established a new ordinance that strictly
promoted the reduction of waste generation and reuse of waste in 1992. In 1997, TMG started
resource recovery and collection of PET bottles from stores.
More efforts were needed to achieve waste reduction and coming closer to developing a sound
material-cycle society, and these included the expansion of waste treatment plants. In the 1990s,
dioxins generated from incineration plants by the incomplete combustion of waste became a major
social problem in Japan. Tokyo was under pressure to respond to the dioxins problem. Incineration
plants were reconstructed, upgraded or altered and new technologies were introduced. During the
period from 2002 to 2008 gasification fusion furnaces and ash melting facilities were improved, by
2009 all waste plastics that were not recycled were fully incinerated accompanied by heat recovery,
and by 2015 all the ash produced in the incineration plants were reformed into raw material for use
in the cement production industry.
Overview 51
Photo 19 Itabashi Incineration Plant Photo 20 Separate Discharge of

(Completed in 1961) Recyclables in Omorideragou Town (1977)
Source: TMG Bureau of Environment
Noteworthy Experience: War on Waste
“War on Waste” refers to disputes over the treatment and disposal of waste in the Tokyo 23 Cities,
particularly those between Koto City and Suginami City from the late 1950s through the 1970s, which
erupted into protests and court battles involving local residents over the construction of an incineration
plant. In response to the rapid increase in waste amount, TMG continued to landfill waste in the bay
area, and attempted to promote the construction of an incineration plant without the full understanding
of local residents. In this background, this was an opportunity to reaffirm the importance of dialogue
and cooperation between the local governments and residents regarding the operation of waste
management, a common practice today, and the “Principle of waste treatment within the administrative
boundary where the waste was generated”.
(a) Rapidly Increasing Amount of Waste Generation and Waste Management Dependent on
Landfill during the Period of High Economic Growth
The period of high economic growth ushered in changes in the lifestyle of the people towards mass
production of products and goods, their increased consumption and early disposal. As a consequence,
the waste generated by the citizens of Tokyo increased. In addition, the composition of the generated
waste became much more diverse. The increase in waste plastics, bulky waste, and hazardous
industrial waste was making the waste management significantly difficult. TMG planned to construct
an incineration plant in response to this situation, but the project was promoted without sufficient
explanation to the local residents which showed a lack of consideration for their feelings.
(b) Opposition Movement against Construction and Principle of In-City Treatment

The principle of waste treatment within the administrative boundary where the waste was generated
was born during the “War on Waste”. This principle remains a basic policy of waste management in
Tokyo 23 Cities even at present. In some instances a treatment facility in one special city accepts waste
52 Overview
from a neighboring special cities. In such instances adjustments are made to distribute the burden of
nuisance impartially amongst the 23 cities.
(c) Path toward Reconciliation and the Terms of Settlement

The Suginami incineration plant construction problem was resolved after a long process spanning
eight years since the Takaido district was first announced as the planned site in November 1966. The
basic determining factors of the settlement were the acknowledgement of the need for reliable
pollution control and the importance of residents’ participation from the planning phase. Since then,
when facilities are to be developed, resident participation is ensured from the planning phase.
(d) Lessons Learned - Changes in Tokyo Residents’ Awareness of Waste Treatment

The background of the movements against the construction of incineration plants that took place
in various regions during the era of the “War on Waste”, was local residents’ concerns about pollution
and that the importance and seriousness of municipal waste management were not fully shared with
the local residents. Since the declaration of the “War on Waste”, the awareness of Tokyo residents
regarding the waste problem changed dramatically through the blocking of waste coming into Koto
City and the problem of constructing Suginami Waste incineration plant. Although waste
management is one of the most fundamental urban issues, along with urban planning and water and
sewerage systems, the people of Tokyo did not necessarily have such awareness. Rather, they were
more conscious of avoiding waste. The declaration of the “War on waste” greatly changed such
conception and raised awareness that waste is a very serious problem. It also led to the realization
that it is important for project implementers to repeatedly communicate the necessity and safety of
the facility and promote the understanding of local residents. Since the “War on waste”, the
construction of waste treatment facilities has been conducted with the participation of local residents,
including careful explanation and incorporation of their requests from the planning stage. In addition,
agreements were signed with representatives of residents’ groups to operate the facility in compliance
with laws and regulations and self-imposed limits, disclose various data on the facility’s operations
and provide tours of the facilities.
Waste Management Efforts Made by Fujisawa City
History of Waste Management in Fujisawa City
Fujisawa City has developed its waste management along with the times, from the improvement
of waste collection to the full-scale introduction of 3Rs, and the period from the 1945s to the present
is divided into four periods.
Overview 53
(a) Period of Seeking a Better Waste Collection Method, 1945 - 1964

The history of waste management in Fujisawa City began in this period. Waste collection carried
out by private sector operators started in 1947 and three years later, the collection operation was
changed to direct management by the city. Late in this period, the amount of generated waste
significantly increased due to the expansion of the urban district, increase in population, and
enhanced standards of living. Accordingly, door-to-door collection was changed to station collection,
and use of mechanized collection vehicles was promoted.
(b) Period of Seeking Proper Waste Treatment for Bulky Waste, 1965 - 1974
Accompanied by the high economic growth, consumption styles diversified and discharging of
bottles, cans, and home appliances in the waste increased. Both the quantity and quality of waste
significantly changed. In addition, the central government thoroughly revised its former Public
Cleansing Act and enacted the Waste Management Act with the aim to secure and preserve
appropriate living environment, and regulate waste management from a broad perspective, thereby
fundamentally addressing waste management issues throughout the entire municipality.
(c) Dawn of 3Rs and Period for Development of Intermediate Treatment Facilities, 1975 -
1994
The amount of waste continued to increase and the contents of waste were diversified as well.
Consequently, it became difficult to conduct proper treatment and disposal of waste collected based
on only two categories: municipal waste and bulky waste. To find an effective means for waste
reduction, the “Fujisawa City Waste Reduction Promotion Office” was established in April, 1977,
and waste reduction and recycling measures were regularly discussed. Fujisawa City invited citizens
to participate in the discussions at the early design phase of the waste management system instead of
asking citizens for their cooperation after the system had been designed. As a result, a waste
separation system was successfully established. It was favorably accepted by the citizens. In October
1990, Fujisawa City established the “Fujisawa City Waste Control Conference” with the participation
of four parties: citizens, business operators, academic experts, and municipal administration officials.
The Conference proposed measures to reduce the amount of waste by 20% by the year 2000, to the
mayor of Fujisawa City in October 1991.
(d) Period of Full-Scale 3Rs Introduction, after 1995

The amount of generated waste nationwide began to increase in the 1980s. Municipalities hastened
to improve landfill sites, and started to seriously engage in waste management based on the 3Rs
policies, and increased source separation and separate collection activities for some recyclables. In
1999, the collection of PET bottles was initiated citywide, followed by source separation and separate
collection of miscellaneous waste paper resources in 2001. In the same year, with the implementation
54 Overview
of the Small Home Appliance Recycling Act, four home appliance items were excluded from the
general collection, and the separate collection of plastic containers and packaging was introduced in
2002.
In 2014, the Recycle Plaza Fujisawa was completed. The Recycle Plaza incorporated a recycling
facility and a public educational facility, thereby greatly contributing to public awareness of waste
management. This type of recycle plaza has been constructed nationwide since 1990.
Noteworthy Experience: Recycling of Recyclables - Fujisawa Method
In the 1970s Japan’s major municipalities became involved in separated waste collection. At the
time the objective behind separate waste collection was to support the proper treatment of waste, and
was not for the promotion of recycling. In those days, incineration was the main method of waste
treatment and therefore, incombustible waste and bulky waste that could interfere with the
incineration process were separately collected and not taken to incinerators. Many municipalities
started to separate recyclables for the purpose of recycling in the 1990s. However, Fujisawa City was
engaged in recycling of recyclables earlier, in the 1970s through the joint activities of citizens,
municipal administration, and collection operators. This method was referred to as the “Fujisawa
method” which attracted countrywide attention.
Experience of Construction and Renovation of Incineration Facilities
Construction of waste incineration facilities requires the understanding and agreement of local
neighborhood residents through having a dialogue with them. When the new plant, Ishinazaka
Environment Center was constructed at the site of the old Ishinazaka incineration plant in Fujisawa
City, the neighboring areas were crowded residential areas and strict environmental measures were
required. Furthermore, as the service life of incineration facilities is long, ranging from 30 to 35 years,
it was necessary to respond to changes both in waste quality, as well as in laws and regulations during
the long operation period. Fujisawa City also took countermeasures against high-calorie heat
generation and dioxins.
Waste Management Efforts made by Shibushi City
History of Waste Management - Waste Recycling Project around the Time Shibushi
City was Established
The former towns of Shibushi, Ariake, and Matsuyama did not have any incineration plants and
the collected waste was discarded in a landfill located in a depressed area surrounded by mountains.
However, with the rising concern for environmental problems, it became impossible to continue
discarding waste in this location. Accordingly, in 1990, the South Soo Welfare Association,
consisting of the former towns of Shibushi, Ariake, and Osaki, constructed a controlled-type landfill
Overview 55
site with a landfill capacity of 720,000 m3 to directly receive waste generated from those three towns
without separating waste items. Since waste was simply dumped in the landfill site, the site became
a breeding ground for flies, mosquitos, rats, and crows, causing an offensive odor, and as a
consequence a large number of complaints from neighboring residents were lodged with the South
Soo Welfare Association. Furthermore, estimates showed that the landfill site would become full in
1998 if direct landfill continued without separating waste items. Thus, waste reduction became an
urgent issue. From that time, Shibushi City started to actively work on the recycling.
Table 6 Shibushi City’s Efforts in Waste Management

from the Inauguration of the City to the Present Date
Start
Event and project
year
The former towns of Shibushi, Ariake, and Osaki (South Soo Welfare Association)
1990
constructed a controlled-type landfill site with a landfill capacity of 720,000 m3.
1998 Source separation of cans, bottles, and PET bottles started using designated bags.
Started the sorting process of the above at the Soo Recycle Center, which was
1999
completed in 1999.
1999 Collection of 19 items of resources was started at 500 stations in the city.
2003 Started the source separation of 24 items.
The source separation of kitchen waste started three times a week at 600 stations in the
2004
former town of Shibushi and Ariake. Composting started in the Soo Recycle Center.
Shibushi City was established through the merger of 3 towns.
2006
The source separation of kitchen waste started at the former town of Matsuyama.
2007 The door-to-door collection of bulky waste started.
2011 JICA Partnership program (Grass-roots technical cooperation) project (Fiji)
Collection of small home appliances started. The number of items to be separated
2013
became 27.
2018 The source separation of disposable diapers started in model districts.
2019 The model districts for the sorted collection of disposable diapers were expanded.
Source: by interview to Shibushi City
Photo 21 Collected Recyclables Photo 22 Waste Discharge by Resident

at Collection Area
56 Overview
Noteworthy Experience: History of Separation of 27 Waste Items - Shibushi Model
The three former towns of Shibushi, Ariake, and Osaki constructed a full-scale final disposal
facility in 1990. However, as the amount of waste brought in increased year by year, it was estimated
that the facility would become full by 2004, even with the introduction of separate collection of cans,
bottles, and PET bottles. Although construction of full-scale incineration facilities was discussed,
there was concern that costs for construction, maintenance, and management of incineration facilities
would become a huge burden on the city in the future. As a result, Shibushi City decided to carry out
a thoroughgoing recycling for the purpose of waste reduction so as to extend the life of the landfill
site.
In contrast to the previous stance of “It is OK to put anything in a black bag”, municipal personnel
in charge visited neighborhoods to explain to residents to “Write your name on the waste bag and
discharge it responsibly”. The black plastic bags with no names on them were not designed to raise
awareness that the person putting out the waste should be responsible for separating it properly, as
long as it was impossible to tell who put out what and what was put out.
The city actively promoted public awareness activities. Briefing sessions with residents were
frequently held to provide an opportunity for each resident to express an opinion. In briefing sessions,
the current conditions of the landfill site and the necessity of recycling were explained in detail. Some
residents objected on the grounds that it was troublesome to separate waste, but administrators visited
them and respectfully explained the reasons for change. In addition, environmental education
programs were implemented 76 times in 2016 and altogether 1,868 people participated in the
programs.
The city’s painstaking efforts changed residents’ consciousness about waste management. It
seemed that the attitude of sorting waste being “troublesome” changed into an attitude of “gratitude”.
This was because residents do not need to store the kitchen waste at home.
The city successfully reduced waste to be disposed of in the landfill by 80% in 2008 and the
recycling rate remained very high in comparison with the national average. The landfill site
significantly changed because kitchen waste was not being landfilled there anymore. The offensive
odor, flies, crows, and rats disappeared. The reduction of the amount of waste being deposited into
the landfill made it possible to extend the life of the landfill site.
Overview 57
Waste Management Challenges in Developing Countries and Lessons Learned from JICA
Projects (Topic 7)
This topic introduces examples of JICA projects that were implemented in developing countries
to support their waste management systems and tackle specific issues related to improvement of
collection and transport, introduction of inter-municipal treatment, appropriate disposal site
management, and promotion of 3R activities.
In order to solve these issues, this topic provides Japan’s past experience in addressing similar
issues and the technologies applied, as well as the lessons learned from the implementation of the
project, as a reference, that can be used by developing countries to address similar issues.
An overview of Japanese experiences, technologies, and lessons learned from international

図７－１ cooperation projects in Sudan, Palestine, El Salvador, Bangladesh, Malaysia, and Vietnam are
summarized hereafter.
Palestine
Bangladesh Japan
Sudan
Vietnam
El Salvador
Malaysia
Figure 24 Locations of Countries Covered in Topic 7

58 Overview
Background
In Khartoum, the capital of the Republic of Sudan

(hereinafter referred to as “Sudan”), waste was collected and
transported by aging and inadequately maintained collection
vehicles due to deterioration of the security situation and
financial constraints. As a result, uncollected waste was
scattered around the city, degrading the sanitary environment,
especially in low-income neighborhoods. Residents were not
sure when the waste they discharged would be collected.
Residents also had very little interest in waste management
because adequate waste collection services were not provided, Figure 25 Sudan Location Map
and waste management were implemented without their
cooperation or involvement.
Application of Japan’s Experiences and Technologies
(a) Introduction of Fixed-Time Fixed-Place (FTFP) Collection

A decision was made to introduce FTFP collection - which has become a mainstream system in
Japan - in Khartoum to improve waste collection. FTFP collection is a method of collecting waste
discharged at designated collection times and locations. There are a number of advantages in
introducing FTFP collection, which include maintaining the cleanliness of communities by prohibiting
the discharge of waste outside of designated collection times, reducing time period collection that
vehicles spend on routes, and increasing collection efficiency. However, FTFP collection also comes
with its own set of challenges: residents may feel burdened because they need to bring waste to specific
places at designated times, the sense of individual responsibility may be diminished because it is
impossible to identify the generators of the waste discharged, and it can sometimes be difficult to select
and coordinate collection sites.
Overview 59
Collection Collection Collection

point C point B point A
10:20 10:10 10:00
Figure 26 Image of FTFP Collection
Pilot Project
In Khartoum, pilot projects (PP) were carried out in several areas to examine the possibility of full-
scale introduction of FTFP collection. A PP is the process of implementing a system that is being
considered for full-scale implementation, together with collecting data to test the system and determine
whether it is suitable and achieves the objectives set out. Collecting, analyzing, and verifying data
before and after PP implementation makes it possible to measure the effectiveness of PP. The
implementation of PP will provide decision-making materials necessary for examining the future
direction of the project and knowledge on matters to be considered during the full-scale introduction.
Public Awareness
A public awareness campaign was conducted in Khartoum to promote FTFP collection. FTFP
collection places comparatively high burden on residents, which poses a challenge, and the system
will not be successful without their cooperation. Therefore, government staff in Khartoum
implemented public awareness building activities for the project team (consisting of government
officials, community representatives, and other concerned parties) and residents. Through these
activities, it was possible to provide residents with opportunities to realize the benefits of FTFP
collection and recognize that waste is their own problem.
60 Overview
Photo 23 During PP Implementation Photo 24 Study Tour

Lessons
(a) Evaluation of Feasibility through PP Implementation, Identification of Ongoing

Challenges and Improvements, and Reflection in Collection Plans
By implementing PP for collecting and analyzing data before and after the introduction of FTFP
collection, it is possible to quantitatively evaluate FTFP effectiveness. The issues identified in
Khartoum at the time of the introduction of the FTFP collection were also found in projects in other
countries, and lessons learned can be utilized to other cases. In the planning stage, information
necessary for FTFP collection - type and number of collection vehicles, characteristics of the area to
be collected (road conditions, etc.), collection routes, number of households to be collected, location
of collection sites, etc. - should be shared in advance among the heads of administrative agencies in
charge of waste management, officials in charge of collection planning (personnel and vehicle
allocation planning), collection staffs, resident representatives, and other relevant parties. It is
important to discuss solutions to possible problems through a series of collection and transportation
processes. It is equally important to identify issues and points for improvement through periodic
monitoring after the introduction of the FTFP collection, and to continuously review the collection
plan.
(b) Need for Continuous Awareness Building Activities

While cooperative at the start of a project, residents can become less motivated with the passage of
time. In order for the administration and residents to jointly work together continuously while
recognizing their respective responsibilities, administration officials must promote understanding by
local residents on waste management through regular meetings and awareness building activities,
including public awareness programs and environmental education, and reflect the ideas and opinions
collected from residents in waste management services. Regarding awareness-raising, it is important
Overview 61
to combine various activities, such as holding community meetings and study tours as well as to
maintain the continuity of these activities. There also needs to be a mechanism to involve key persons
in the community in the activities and to encourage residents to change their behavior and ways of
thinking. On the other hand, residents are also expected to be aware of their own responsibilities for
the waste they generate and be actively involved in waste management services provided by the
government.
62 Overview
Palestinian Interim Self-Government Authority, PA

～ Improving Waste Management through the Introduction of Inter-Municipal Waste
Management ～
Background
The Palestinian Interim Self-Government Authority

(hereinafter referred to as “Palestine”) is divided into the
West Bank bordering Jordan to the east and the Gaza Strip
bordering the Mediterranean Sea to the west and Egypt to
the south. The municipalities that make up Palestine are
small and each municipality is responsible to collect and
dispose of its waste. The waste collection rates were
extremely low due to a lack of collection vehicles because
of the short supply of financial resources in the
municipalities providing the cleaning services. The Figure 27 Palestinian Location Map
collected waste was not disposed of properly, and instead
was openly burned or dumped, and sanitary conditions were poor. With population growth and
transportation barriers, Palestine faced challenges centered around a lack of access to disposal sites,
waste management businesses that were not economically viable due to increasing operation and
maintenance costs, and improper disposal practices, such as open burning, which created health
hazards for residents and environmental pollution problems.6
(a) Creating a Foundation for the Introduction of Inter-Municipal Waste Management

Waste management in Palestine, which had been carried out by smaller municipalities, is to be
implemented by a regional association called the Joint Service Council (hereinafter referred to as
“JSC”), under a collaborative initiative by several municipalities. The JSC aims to create an inter-
municipal waste management system that will place a small burden on each municipality and provide
stable waste management services throughout the entire region. In addition to reducing the budgetary
burden on each municipality through the efficient operation and maintenance of collection vehicles
and sharing the final disposal site, the inter-municipal system will allow for an increase in the size of
the disposal sites and improve the efficiency of construction and operation.
6 Due to the long-standing conflict with Israel over land, Palestine has become an enclave, and its land area
continues to shrink due to repeated Israeli settlement activities. In order to travel between Palestinian areas, one must
pass through “checkpoints” set up by Israel on the border. Palestinians are not allowed to enter without an Israeli
permit.
Overview 63
(b) Activities to Build Public Awareness on Waste Fee Collection

Costs related to inter-municipal waste disposal in Palestine are covered by waste disposal fees
collected from residents. In general, compared to other public services (e.g., electricity and water),
waste management is often not a top priority for residents, and it is difficult to enforce fee collection
systems without their understanding of the importance of collecting fees. While Palestinian residents
tend to be less environmentally conscious, some are not aware of the JSC’s activities or may be
concerned whether the introduction of inter-municipal waste management will actually improve waste
management conditions. Therefore, a variety of activities were implemented to help residents
understand the need to collect fees, such as the organization of information sessions for residents, and
production of newsletters, leaflets and posters, documentary films, and TV advertisements.
Photo 25 Waste Collection Photo 26 Workshop with Residents

（Ramallah - Al Bireh JSC）
Lessons
(a) Improvement of Efficiency of Waste Management through Inter-Municipal Waste

Management
Smaller municipalities, where resources are in chronically short, have difficulty continuing to
implement quality waste management. One proposed solution is the introduction of a system called
“inter-municipal waste management”, in which surrounding municipalities come together to jointly
implement waste management. When introducing inter-municipal waste management, an inter-
municipal association that will function as a secretariat must be established that will be run through
the cooperation of participating municipalities.
In order to reduce the burden on each municipality during the organization creation phase, it is
important to first investigate the existing equipment, human resources, capabilities, systems, financial
resources, mechanisms, and facilities possessed by the municipalities comprising the JSC, and
combine them for effective utilization, rather than purchasing new equipment or hiring new personnel
64 Overview
at the outset. Reducing the burden in the initial stages will lead to the smooth establishment of the JSC
and the continuation of its subsequent operations.
(b) Introduction of Waste Collection Fees

When starting the collection of waste disposal fees, it is important to set an amount that the residents
can afford and accept. In the Jericho and Jordan Valley areas, as a result of discussions within JSC, a
waste disposal fee was set at an amount that would cover the JSC operating costs and that would not
be a burden on the residents. After repeated explanations and discussions with the local residents
through explanatory meetings and other means, the residents finally agreed that the waste disposal fee
was appropriate.
On the other hand, the actual collection of fees is difficult, and in order to continue the waste
management, it is necessary to consider measures such as increasing the fees. In order to improve the
rate of fee collection, not only the quality of waste disposal service needs to be improved, but also
various measures such as continuous dialogue with residents, suspension and resumption of service,
and fee collection together with other public services (electricity, water, etc.) are required.
Overview 65
Republic of El Salvador ～ Path to Proper Management of Sanitary Landfill Sites ～
Background
El Salvador did not have a waste management system in place,

and waste was usually disposed in open dumps. The resulting
increase in disposed waste caused groundwater pollution and
contaminated the soil, creating adverse effects on people’s health
and ecosystems. To improve conditions, El Salvador enacted an
Environmental Law in 1998 requiring all municipalities to close
open dumping sites and build sanitary landfills by September
2007. There was an urgent need for the systematic and phased
development of sanitary landfill sites and to reduce the volume of
waste, leading the government of El Salvador to decide that it was
necessary to bolster the waste management capacities of Figure 28 El Salvador Location
Map
municipalities.
(a) Construction and Proper Maintenance, Management and Expansion of Sanitary Landfill
Sites Using the Fukuoka Method
ASINORLU is an inter-municipal association, which was responsible for operation and
maintenance of the final disposal site. In 2006 the Santa Rosa de Lima Landfill, managed by
ASINORLU was being operated as an open dump site. During the project improvement works were
constructed at the site to transform the open dump into a semi-aerobic landfill, applying the Fukuoka
method 7 developed in Japan. As a result of the improvement project, waste is no longer scattered
around the sanitary landfill site as it was with open dumping, which indicates a dramatic improvement
in environmental conditions as well. The reasons behind the site’s proper maintenance as a sanitary
landfill is the application of daily soil cover over the freshly disposed waste, thorough cleaning of
storm water drains and site roads, and preventive maintenance of heavy equipment.
(b) Introduction and Expansion of Regional Waste Treatment through Inter-Municipal

Cooperation
ASINORLU is composed of nine cities. It is necessary to reach agreements with each of the nine
cities on setting disposal (tipping) fees to be paid to ASINORLU in order for waste to be accepted at
7 In the semi-aerobic landfill system, gas venting pipes and leachate collection and drainage pipes are installed to allow
air to flow naturally into the interior waste layers. The supply of oxygen to the interior of the disposed waste layers
increases the speed of waste decomposition, decreases the concentration of pollutants in the leachate, and suppresses
odors and methane gas emissions. As a result, the stabilization period of the landfill site is shortened. The Fukuoka
method is becoming popular in developing countries because inexpensive local materials such as waste tires, drums,
bamboo, and rubble can be substituted as materials for pipes and paving stones.
66 Overview
the landfill site. Since waste management is not always a high priority for mayors, ASINORLU
provided detailed explanations to each mayor and obtained their consent to increase the cost for
disposal. In addition to that, the citizens’ understanding of waste management was promoted through
environmental education and 3R activities at schools and government offices, and tours of disposal
sites.

Photo 27 Newly Constructed Sanitary Landfill (Phase 2)
Photo 28 Briefing to the Mayor Photo 29 Site Visit at the Regional and
National Seminar
Lessons
(a) Political - Examining the Impacts of Changes in Government Administration

In El Salvador, the term of office for the President is five years, while the term of office for mayors
is three years. A change in government, including political party, can result in significant changes in
policy. In some cases, waste management falls in priority, budgets are reduced and, the introduction
of inter-municipal waste management by associations has been postponed for reasons such as these.
Every time the mayor of a city in the association changes, it is important for staff from the association
to visit the city and provide a detailed explanation of the situation to the new mayor and city council.
(b) Financial - Securing Funding

It is important for the central government to establish a budgetary framework for the development
Overview 67
of inter-municipal waste management facilities. Only with this framework can inter-municipal
cooperation be promoted in detail, and it will be easier to obtain the commitment of each municipality.
The role of the central government should be to raise funds from donors and promote the allocation of
the country’s budget.
(c) Public Participation - Importance of Disclosing Information

An important factor in promoting inter-municipal waste management is the fair disclosure of
information about project plans and outlines, and impacts on areas around facilities from the early
stages of the planning process. As a first step, it is important to provide examples of proper
development and operation and maintenance of landfill sites to avoid NIMBY-related problems.
Participation by residents and communities is an essential part of the waste management process,
and incorporating their opinions, including opposing views, into project plans from an early stage and
solving problems that arise will put the project on a fast track to implementation. There have been
several cases where projects did not make it to the implementation phase due to failures to disclose
information. Encouraging residents to actually visit sites through field trips to landfill sites and
treatment facilities will also help them see waste issues as something that concerns them and will
dispel causes for concern.
(d) Organizational - Securing Human Resources

As counterparts of projects move on, the experience and knowledge from the project and results of
training in Japan may leave with them. However, in ASINORLU, counterparts are still directly
involved in waste management, and significant developments have been observed even after the
project ended. When staff are replaced within an organization, it is necessary to devise ways to retain
the skills and methods developed through the project within the organization.
(e) Organizational - Improvement of Staff Motivation

In order to continuously maintain and manage a facility, it is important to motivate and maintain the
staff involved in operation and maintenance management. In addition to a good working environment
and a stable salary, visualization of work results, appropriate evaluation of work, and attention from
others can also effectively motivate employees.
(f) Country Differences - Challenges in Expanding Systems to Other Countries

El Salvador is working on expanding lessons learned to other countries in Latin America based on
ASINORLU’s experience. However, it is not always possible to be applied successfully due to
differences in laws and political systems in target countries. Conditions in other countries must be
taken into account, and cooperation is needed to develop countermeasures to address this.
68 Overview
People’s Republic of Bangladesh ～ Community Participation in Waste Management～
Background
The population of Dhaka, the capital of Bangladesh 8, is

estimated to be over 20 million. With rapid urbanization,
the city is facing growing urban environmental problems,
such as waste, air and water pollution. In Dhaka, waste
management was being collectively implemented by the
city government, but in such a large city it was difficult for
an individual organization to be consistent in managing the
discharge, collection and transport, intermediate treatment,
and final disposal of waste. In addition, waste management
in Dhaka City had been stagnating due to weak Figure 29 Bangladesh Location
Map
organizational structures, lack of equipment, and low
sanitary awareness among the population.
(a) Ward Based Approach (WBA)

The Ward Based Approach (WBA), a management method for stable and continuous
implementation of field-led waste management in wards9, which are the smallest administrative units
in Dhaka City, was introduced. Through WBA, for each ward, various activities such as staff training
and awareness raising, improvement of organizational functions, improvement of equipment, and
improvement of collection systems are combined in a synergistic manner to improve waste
management. WBA consists of four activities: (1) Construction of ward cleaning offices and
strengthening field management, (2) Improvement of working environment for cleaner, (3) Promotion
of public participation, and (4) Improvement of collection and transportation.
WBA1 - Construction of Ward Cleaning Offices and Strengthening Field Management

In order to create a base in each ward to help wards improve waste management on their own, ward
cleaning offices were constructed, and their functions strengthened. The offices were built to serve a
8 The term “Dhaka City” refers to the former Dhaka City before the partition of the city into North and South Dhaka
in 2011, which is now the combined area of Dhaka North City and Dhaka South City. In this material, “Dhaka City”
is used for the sake of convenience.
9 The smallest administrative unit of a city area. Multiple wards make up a single zone. As of 2022, there are
approximately 130 wards in Dhaka City (Dhaka North City: 54 wards in 10 zones; Dhaka South City: 75 wards in 10
zones). The population per ward consists of tens to hundreds of thousands of people.
Overview 69
number of functions, including; as a point of contact for residents to reach out with complaints, a base
for labor management and guidance for cleaner, a place for cleaner to take breaks, and a storage space
for cleaning tools.
WBA2 - Improvement of the Working Environment for Cleaner

In Dhaka City, a safety and health committee was established to raise safety and health awareness
and improve work efficiency, thereby providing a foundation for ensuring the occupational safety of
the cleaner. A manual with diagrams was prepared for cleaner so that even those who couldn’t read
were able to understand the contents, and points to be kept in mind relating their work were made
known to them. In addition, safety gear such as masks and gloves were distributed to cleaner to protect
their health and safety, and information on how to use first aid kits and nearby hospitals were provided.
Furthermore, a workshop was held to share with the cleaner the aims of waste management in Dhaka
and to encourage their awareness that they, as city employees, are involved in the waste management.
WBA3：Promotion of Public Participation

In order to implement community-based participatory waste management, it was necessary to attract
the attention of many residents and encourage them to change their behavior, and the participation of
influential figures in the community was essential. Therefore, a survey was conducted to identify
representatives and influential figures of local residents’ organizations in each ward and new residents’
organizations for waste management were established, with the identified individuals as key persons.
Activities were mainly carried out through these community organizations to encourage the
participation and cooperation of local residents in waste management. Activities included a march by
local residents calling for city beautification projects, campaigns to raise awareness of the environment
through plays and musical events, and clean-up campaigns organized together with cleaner.
WBA4：Improvement of Collection and Transportation

In order to remove large dustbins and containers causing unsanitary conditions in the city and traffic
congestion, Dhaka City introduced compactor trucks for secondary collection. In parallel, the city
introduced fixed-point collection, in which waste is discharged at a designated time and place. Unlike
dustbins and containers, the time that waste was kept in the city was reduced, contributing to improved
sanitation.
70 Overview
Photo 30 Meeting with Cleaners in Ward Photos 31 Part of the Cleaner Work
Cleaning Office Manual
Photo 32 Residents Cleanup Activities Photo 33 Waste Collection by Compactor

(Fixed-Place Collection at Regular Intervals)
Lessons
(a) To Improve Integrated Waste Management

WBA is an effective method for developing site-driven participatory waste management in the
community. The construction of the ward cleaning 0ffice provides administrative work space for the
cleaning supervisors and a place for the cleaner to rest and store their safety gear. It also serves as a
point of contact for residents to casually discuss waste management issues, helping to build a
relationship between the government and residents.
Protecting the occupational safety of cleaner is also important to avoid the sudden absence of cleaner
due to injury or illness, especially if weakness in occupational safety interferes with collection work.
Collection services can be improved by selecting appropriate collection methods, allowing services to
be provided that not only consider the sanitation of local residents and the surrounding environment,
but also the health and safety of the cleaner who perform collection work.
In order to encourage the participation of residents, who play an essential role in promoting proper
Overview 71
waste management, it is important to identify local representatives and influential people in the
community and establish a resident’s organization led by these individuals. The existence of such an
organization will establish a foundation for local residents to work together and contribute to the
implementation of activities to improve the sanitation environment in the community.
72 Overview

Environmental Education ～
Background
In Malaysia, prior to the transfer of waste management

and recycling administration to the central government
(National Solid Waste Management Department) in 2011,
waste management was a local government task and the
Ministry of Housing and Local Government (MHLG) was
in charge of waste administration. Since the mid-1980s,
Malaysia has experienced an increase in the amount of
waste generated due to urbanization and diversification of
lifestyles in line with economic development, as well as
problems with disposal costs and securing landfill sites. Figure 30 Malaysia Location Map
Therefore, the National Development Policy has

emphasized the concepts of reduce, reuse, recovery, and recycling, and made recommendations on the
use of environmentally friendly products. In addition, the Ministry of Housing and Local Governments
(MHLG) has been promoting recycling and raising awareness with citizens on the 3Rs at the national
level, while local governments have promoted recycling activities. However, these efforts were limited
to only a few local governments that had an advanced level of environmental awareness, and recycling
rate was only 2% to 5%.
(a) Development of a Data and Information Management System

One of the Japanese technologies that has been applied under the project in Malaysia is for creating
databases on waste. A database was created in an information management system using data on the
collection of recyclable materials digitally submitted by local governments and key information
related to recycling shown below.
・General information about the local government: address, contact information of officer(s) in
charge, website URL, etc.
・Collection centers, collection container locations, administrators
・Types of recyclable materials collected
・List of related organizations submitted by the local government
This database has made it possible to access and search key data, as well as create tables and graphs
for purposes of research, analysis, and publication.
Overview 73
(b) Source Separation

Five target groups were selected in this project to verify source separation under different
conditions: (1) general households (single-family houses), (2) general households (apartment
complexes), (3) office buildings, (4) mega-marts, and (5) hotels. After targets were selected, waste
was separated at source through the establishment of separation methods and collection routes for
resources, and the organization of workshops and briefings to obtain stakeholders’ understanding and
cooperation. Finally, source separation guidelines were developed to promote separation at source. For
each business operator, it took time to coordinate with the pilot project for introduction of source
separation, because they were required to bear the costs of labor for sorting the waste, costs to purchase
containers for the sorted recyclables, as well as to allocate personnel and consider a location for placing
the containers.
(c) 3R Activities and Environmental Education

Prior to the start of activities, guidelines were developed for promoting the 3Rs in schools in
collaboration with the ministries in charge of waste management, Ministry of Education, local
governments, and school teachers. Based on these guidelines the schools were classified into levels
according to the extent existing waste reduction programs were already being implemented. The
guidelines also indicated the need to incorporate PDCA (Plan, Do, Check, Act) cycles to review and
improve 3R activities that have been planned and implemented. It was important to initially provide
appropriate guidance to school teachers so that guidelines could be properly implemented in
educational settings, and therefore 3R workshops were also organized for teaching staff. Based on
these activities, 3R programs were implemented in schools in Miri City, Johor State and other areas.
Photo 34 Briefing on Source Separation Photos 35 Awareness Survey on 3Rs in

Activities to Residents Schools
Source: JICA, Yachiyo Engineering Co., Ltd., EX Research Institute Ltd. “The Study on National Waste
Minimization in Malaysia Final Report” (2006)
74 Overview
Lessons
(a) Training and Securing Competent and Appropriate Human Resources

Data management, updates to networks, and monitoring are essential aspects of waste management
operations. Therefore, in order to maintain data management systems, it is necessary to educate not
only the central ministries and agencies that manage the databases, but also the local government
administrators who collect and submit data, and to appoint competent, appropriate, and trained
personnel to maintain the systems.
(b) Coordination between Stakeholders on Source Separation

It took time to coordinate with the parties concerned, as they were required to bear the costs of labor
and sorting containers for the introduction of source separation, as well as to allocate personnel and
secure an installation site. Source separation programs for commercial facilities, such as supermarkets
and hotels, faced various problems such as informing customers and gaining their understanding of
cost burdens, etc. in terms of coordinating and negotiating with stakeholders. These problems lay
beyond the control of local governments and the project team, and caused significant delays in the
implementation of the program. For separation at source, it is necessary to coordinate with households
and commercial facilities separately, and pay particular attention to the interests of stakeholders of
commercial facilities.
(c) Strategic Implementation of Educational and Dissemination Programs through Inter-

Agency Collaboration
In order to introduce sustainable waste reduction practices, it is necessary to teach the philosophy
of the 3Rs to the younger generation through practical school education and extracurricular activities.
Collaborative activities between ministries responsible for waste management (in this case, the
Ministry of Housing and Local Government) and the Ministry of Education are essential for the
introduction of sustainable and strategic educational and awareness programs suitable to students. The
Ministry of Education and teachers were involved from the initial stage in developing guidelines to
promote 3R activities in schools, which made the guidelines even more applicable in educational
settings. It is important for multiple ministries and agencies to collaborate in order to efficiently
implement educational and awareness programs.
Overview 75
Socialist Republic of Vietnam ～ 3R Activities Involving Multiple Stakeholders～
Background
Environmental pollution in Hanoi, the capital of

Vietnam, was worsening due to un-collected solid waste
scattered on public roads and illegal waste dumping in
lakes. Under the nation’s environmental strategy to
recycle 30% of waste by 2020, the government had been
trying to promote a recycling movement for solid waste,
but the collection of recyclables remained mainly limited
to informal waste collectors.
The 3R Initiative, which combines the Reduce, Reuse
Figure 31 Vietnam Location Map
and Recycle of waste, was positioned as a key component
in the country’s environmental strategy. The Ministry of
Natural Resources and Environment was established in 2002 to work with local governments on
environmental measures related to water and air quality and solid waste management.
(a) Public Participation Initiatives Involving Various Stakeholders

This was an attempt to apply Japan’s experience and knowledge of public participation as a key
factor in the sustainable implementation of waste management and the 3Rs. Hanoi’s 3R project
involved a diverse range of stakeholders, including residents, local communities, government, media,
students, experts, the private sector, and NGOs, attempted to position local residents at the center of
the project and turn the focus on them. Many groups as described below, were formed to engage in 3R
activities, and a wide variety of activities were implemented.
3R Stars; 85 organizations and individuals, including representatives from government agencies,
universities, the media, private companies, and model districts, came together to form it.
3R Volunteers Club; These activities included instruction on sorting waste on the streets and in parks,
participation in environmental events and other 3R publicity activities, and extracurricular 3R classes
at elementary schools.
3R Supporters; The groups focused on 3R awareness-raising activities, such as providing guidance on
sorting in the community and preparing and distributing leaflets on sorting methods.
(b) Separate Collection and Composting

As a result of the model project implemented in the four districts (total of four districts: about 18,300
households, population of 72,820) there have been improvements in the separate collection of the
76 Overview
recyclables, collection of the food waste, as well as composting. The introduction of fixed time fixed
place collection (FTFP) using containers and collection vehicles (trucks and hand-pushed waste carts)
for use on narrow roads has made it possible to collect separated waste regularly even in densely
populated residential areas. This has improved the rate of separate collection of food waste. The quality
of compost improved with upgrades to the composting process. A better understanding of the demand
for compost was formed and then market expansion was attempted.
Photo 36 Publicity Activities on the Street by Photo 37 Containers for Designated

3R Volunteers Wastes in the Park
Source: JICA “Project for Implementation Support for 3R INITIATIVE in Hanoi City to Contribute to the
Development of a Sound Material-Cycle Society Final Report” (2009)
Lessons
(a) Mobilize and Promote Public Participation of a Wide Range of Stakeholders to

Effectively Implement the 3Rs Initiative
The creation of the 3R volunteer program was an opportunity for young people to become interested
in the 3Rs and environmental issues and led to independent activities involving residents. In addition,
a wide range of stakeholders were invited to take part in discussions at the 3Rs Stars Meeting and to
propose their ideas to policy-making organizations.
These activities encouraged public participation and increased the effectiveness and impacts of the
project. The greater the interest and louder the voices of the residents, the harder it is for policymakers
to ignore them. In today’s world, it is necessary to find ways to engage the public that are appropriate
to local conditions, such as the use of social networks.
(b) Need for Innovation when Introducing Source Separation

Public participation and behavioral changes are essential when introducing source separation. Even
if rules for source separation are established, they will generally not be followed or sustained.
Furthermore, consistency between source separation and collection systems and securing a place to
pick up separated waste are also essential conditions. In order to introduce source separation and
Overview 77
establish relating rules, the introduction of incentives for residents and pick-up locations is considered
a challenge, but with the city’s budget constraints, no solution has been found.
As with Hanoi’s 3R initiatives, one solution may be to motivate residents by involving all
stakeholders and guide the momentum of society as a whole in the same direction. However, since it
is difficult to ensure sustainability only with the participation of local residents, synergistic effects
from multifaceted efforts, such as technological and operational improvements at recycling facilities
and the widespread use of reusable containers, are desired. In addition, in a large city such as Hanoi,
the challenges of rapid urban expansion continue, and in the waste agenda as well, there is a need to
review collection methods along with the development of transfer stations and incineration facilities,
and to position source separation and 3Rs in consideration of this background.
Topic 1. Waste Management Facts and Plans Contents
Topic 1. Waste Management Facts and Plans
Contents
Present Status of Waste Management in Japan ............................................................. 1
Definition and Categorization of Waste ........................................................................ 1
Waste Management Conditions .................................................................................... 9
(1) Waste Generation Amount ....................................................................................... 9
(2) Waste Management Flow....................................................................................... 10
(3) Waste Collection and Transport .............................................................................. 12
(4) Intermediate Treatment of Waste ............................................................................ 15
(5) Final Disposal of Waste ......................................................................................... 26
(6) Composition of Waste ........................................................................................... 29
Waste Management Plans ........................................................................................ 37
Management of Waste-Related Data........................................................................... 37
(1) Data Management for the Entire Country ................................................................ 37
(2) Formulation of Various Plans Based on Data ........................................................... 39
National-Level Waste Management Plans ................................................................... 41
(1) Fundamental Plan for Establishing a Sound Material-Cycle Society.......................... 41
(2) Waste Management Facility Development Plan ....................................................... 46
Plan for Waste Management at the Municipality Level ................................................ 48
(1) Municipal Waste Management Plan ........................................................................ 49
(2) Municipal Separate Collection Plan ........................................................................ 53
(3) Inter-Municipal Waste Treatment Plan .................................................................... 55
Plan for the Development of Waste-related Facilities ................................................... 58
(1) Technical Guidelines for Environmental Impact Assessment .................................... 58
(2) Comprehensive Plan for Extending the Service Life of Waste Treatment Facilities (Waste
Incineration Facilities)...................................................................................................... 63
1-2 Topic 1. Waste Management Facts and Plans
Topic 1. Waste Management Facts and Plans 1-1
Present Status of Waste Management in Japan
In Japan, various data pertaining to waste management are continuously collected in accordance
with the law in an effort to develop an understanding of the circumstances of waste management
throughout the country. This continuous accumulation and analysis of data enables a quantitative
understanding of trends over time, and is used as basic data for formulating strategies and plans for
waste management.
This section uses numerical data to introduce the state of waste management in Japan and presents
information obtained from the basic data that can be verified using numerical values. The
information presented demonstrates the importance of understanding the circumstances of waste
management relying upon basic data and setting numerical targets in waste management plans.
Definition and Categorization of Waste
Waste is generated from many different sources; therefore, it is essential to have a clear definition
of waste when considering anything related to waste management. In Japan the waste is classified
into two broad categories by the law: municipal waste and industrial waste.
*This text discusses the municipal solid waste component of municipal waste.
The Waste Management and Public Cleansing Law (Waste Management Act) of Japan defines waste
as follows.
Chapter I General Provisions

(Definitions)
Article 2
1 In this Law, “waste” refers to refuse, bulky refuse, ashes, sludge, excreta, waste oil, waste acid
and alkali, carcasses and other filthy and unnecessary matter, which are in solid or liquid state
(excluding radioactive waste and waste polluted by radioactivity).
2 In this Law, “municipal solid waste” refers to waste other than industrial waste.
3 In this Law, “specially controlled municipal solid waste” refers to those municipal solid waste
specified by a Cabinet Order as wastes which are explosive, toxic, infectious or of a nature
otherwise harmful to human health or the living environment.
4 In this Law, “industrial waste” refer to the waste categories defined below:
1) Ashes, sludge, waste oil, waste acid, waste alkali, waste plastics and others specified by a
Cabinet Order among all the wastes remaining as a result of business activity.
2) Imported waste (excluding the kinds of waste defined in the preceding Item, those wastes
attributable to navigation of a ship or aircraft (confined to the items specified by a Cabinet
Order), which are defined as “navigational waste” in Paragraph1 of Article 15-4-2, and waste
personally carried into Japan by persons entering the country (confined to the items specified
by a Cabinet Order), which are defined as “carried-in waste” also in Paragraph 1 of Article 15-
4-2).
5 In this Law, “specially controlled industrial waste” refer to those industrial wastes specified by
a Cabinet Order as wastes which are explosive, toxic, infectious or of a nature otherwise
harmful to human health and the living environment.
Source: “Waste Management and Public Cleansing Law” (Law No. 137 of 1970)
Accordingly, waste is unwanted matter in a solid or liquid state (excluding gases), and earth and
sand are outside the scope of the Waste Management Act.
Figure 1-1 shows how waste is categorized in Japan, as well as the characteristics of the waste
categorization.
 Wood scraps, metal scraps, and 20 other types of waste from among the waste generated in
connection with business activities are defined as industrial waste (Table 1-1 shows categories
and examples of waste items).
 Industrial waste that is potentially explosive, toxic, or infectious is defined as specially controlled
industrial waste (Table 1-2 provides summaries of the categories).
 Waste, other than industrial waste is classified as municipal waste, which is further categorized
into municipal waste, sewage, and specially controlled municipal waste (Table 1-3 provides
summaries of the categories). Additionally, municipal waste is categorized into household waste
and business waste generated by offices and the like.
1
(FY 2019 figures: Municipal waste amount generated: 42.74 million tons/year, Industrial waste
amount generated: 379.75 million tons/year)
It should be noted that in many countries, construction waste is categorized as municipal waste;
however, in Japan, construction waste - generated during the demolition of private dwelling houses -
is categorized as industrial waste.
Note that this text generally deals with municipal waste. Additionally, the term “waste” is used to
mean municipal waste unless otherwise specified. However, the term may include industrial waste
when policies, laws, hazardous waste, dioxin-related problems, and the like are discussed in the
relevant text.
1In Japan, Fiscal Year (FY) starts from April and ends in March. For example, FY 2019 means from April 2019 to
March 2020.
The scope of Waste Management Act

The scope of this training material
＜ Disposal Responsibilities of Business Operators＞
From among the waste generated during business
Industrial activities, 20 types of waste are specified by law
Waste
Industrial Waste
The main scope of this training material

Waste
＜Disposal Responsibilities of Municipalities＞ Combustible Waste
Recyclables
Non- Combustible Waste
Household Waste
Waste Bulky Waste
Municipal Business Waste
Waste
＝Waste other than Raw Sewage

industrial waste
Municipal Waste
Figure 1-1 Categories of Waste in Japan
Table 1-1 Types of Industrial Waste and Examples of Waste Items

Category Examples of Waste items
Coal dust, incinerator ash, particles from furnace cleaning, and other
1. Cinders, Ashes
incineration residues
Organic sludge: Paper sludge, sewage sludge, activated sludge, glue dregs,
urushi lacquer dregs, etc.
2. Sludge
Inorganic sludge: Coagulated sedimentation sludge, plating sludge,
bentonite mud, crushed stone sludge, etc.
Waste oils (e.g., lubricating oil, insulating oil, cleaning oil, cutting oil),
3. Waste oil waste solvents, tar pitch, and all other waste oil from mineral oils and animal
and vegetable fats and oils
Waste sulfuric acid, waste hydrochloric acid, waste photo developing
4. Waste acid
solution, and all other acidic waste liquids
Waste metallic cleaning liquid, waste photo developing solution, and all
5. Waste alkali
other alkaline waste liquids
All waste plastics from solid and liquid synthetic polymeric compounds
6. Waste plastics
(e.g., synthetic resin waste, synthetic fiber waste, synthetic rubber scraps)
Waste paper from the construction industry (generated by the construction,
remodeling, or demolition of structures) and the paper manufacturing,
7. Waste paper
pulp/paper products manufacturing, newspaper, publishing, bookbinding,
and printed material processing industries
Wood scraps from the construction industry (generated by the construction,
8. Wood scraps remodeling, or demolition of structures), the lumber industry, wood
products manufacturing, pulp, imported lumber wholesaling, and goods
Category Examples of Waste items

leasing industries, and wood scraps from pallets used for distributing goods
Items containing waste natural fibers from the construction industry
(generated by the construction, remodeling, or demolition of structures) and
9. Waste fibers
the textile industry (excluding the clothing/other textile product
manufacturing industry)
Animal and vegetable residues used as raw materials in the food products
10. Animal and
manufacturing, medicinal product manufacturing, and fragrance
vegetable residues
manufacturing industries
11. Solid animal Solid unwanted materials generated in the process of slaughtering animals
waste at slaughterhouses and poultry processing plants
Natural rubber scraps (synthetic rubber scraps are categorized as waste
12. Rubber scraps
plastics)
13. Metal scraps Scraps generated by grinding or cutting steel and nonferrous metals
14. Glass shards,
concrete rubble
(excluding that
generated by the Glass, concrete rubble generated in the product manufacturing process,
construction,
remodeling, or ceramic waste, waste plasterboard, etc.
demolition of
structures), and
ceramic waste
Residue (slag) from blast furnaces, open-hearth furnaces, and the like,
15. Slag
cupola slag, slag, bad ore, bad coal, coal dust, waste sand from castings, etc.
Concrete fragments and similar unwanted materials generated by the
16. Rubble
construction, remodeling, or demolition of structures
Manure from cattle, horses, pigs, sheep, goats, and other livestock generated
17. Animal manure
by livestock farming
Carcasses of cattle, horses, pigs, sheep, goats, and other livestock generated
18. Animal carcasses
by livestock farming
Soot generated by, and collected in the dust collection systems of facilities
19. Soot
that generate soot and smoke
20. Items treated for Items treated for the disposal of the types of industrial waste listed in 1-19,
the disposal of the
types of waste that do not fall under any of categories 1-19 (e.g., concrete-solidified
listed above sludge)
Source: Waste Disposal and Public Cleansing Act (Act No. 137 of 1970)
Enforcement Order of the Waste Disposal and Public Cleansing Act (Cabinet Order No. 300 of 1971)
Table 1-2 Summary of the Categories of Specially Controlled Industrial Waste

Classification Main category Summary
Gasoline, kerosene, diesel oil (excluding flame-resistant
Waste oil
pitch and the like)
Waste acid Extremely corrosive waste acid of pH 2.0 or lower
Waste alkali Extremely corrosive waste alkali of pH 12.5 or higher
Industrial waste generated by medical facilities and the
Infectious industrial
like that may contain infectious pathogens or have
waste*1
infectious pathogens attached to them
Waste PCBs Waste PCBs and waste oil containing PCBs
PCB-soaked sludge, PCB-coated or -soaked waste paper,
PCB-
PCB-soaked wood scraps or waste fibers, plastics or
contaminated
metal scraps that encapsulate PCBs or have PCBs
materials
attached, ceramic waste or rubble with PCBs attached
PCB treatment Items treated for the disposal of waste PCBs or PCB-
Specially controlled industrial waste
materials contaminated materials, that contain PCBs*2

(1) Waste mercury and mercury compounds generated at
specified facilities*1
Waste mercury
(2) Industrial waste containing mercury or mercury
Specified hazardous industrial waste
and mercury
compounds, or waste mercury recovered from
compounds
mercury-containing products that have become
industrial waste
Designated Sludge designated under Article 13-4 of the Enforcement
sewage sludge Order of the Sewerage Act*2
Items containing heavy metals in excess of certain
Slag
concentrations*2
Items associated with asbestos material removal work or
items generated by workplaces with dust-generating
Waste asbestos
facilities specified under the Air Pollution Control Act,
susceptible to scattering
Items containing heavy metals or dioxins in excess of
Cinders
certain concentrations*2
Items containing heavy metals, 1,4-Dioxane, or dioxins
Soot
in excess of certain concentrations*2
Items containing organochlorine compounds or 1,4-
Waste oil
Dioxane*2
Sludge, waste Items containing heavy metals, PCBs, organochlorine
acid, or waste compounds, pesticides, 1,4-Dioxane, or dioxins in excess
alkali of certain concentrations*2
*1: Applies only to facilities from which they are discharged
*2: See the criteria set out in Enforcement Regulations of the Waste Management Act and the Ministerial Order for
Criteria for Determining Industrial Waste Containing Metals (Ministerial Order for Determination Criteria)
*3: PCBs: Polychlorinated biphenyls
Source: Overview of Regulations for Specially Controlled Waste, Ministry of the Environment Website
http://www.env.go.jp/recycle/waste/sp_contr/ （accessed December 11, 2021）
Table 1-3 Summary of the Categories of Specially Controlled Municipal Waste

Classification Main category Summary
Parts containing PCB in waste air conditioners, waste
Parts containing PCB
TVs, and waste microwave ovens
Specially controlled municipal
Waste mercury recovered from products containing

Waste Mercury
mercury that have become municipal waste
Soot generated in the dust collection systems of waste
Soot
waste
treatment plants
Items from waste incinerators - specified facilities under
Soot, cinders, sludge the Act on Special Measures against Dioxins - with
dioxins content in excess of 3 ng/g
Municipal waste generated by medical facilities and the
Infectious municipal
like that may contain infectious pathogens or have
waste*
infectious pathogens attached to them
*: Applies only to facilities from which they are discharged
Source: Overview of Regulations for Specially Controlled Waste, Ministry of the Environment Website
http://www.env.go.jp/recycle/waste/sp_contr/ （accessed December 11, 2021）
Column: Background of Waste Classification in Japan

As explained previously, the Waste Management Act - Japan’s basic law on waste management -
sets out two classifications of waste: municipal waste and industrial waste. The classification is
based on waste generated in connection with business activities and who is responsible for
treatment, which is rather uncommon when compared
with other countries. The following is the background
behind this classification.
As people’s lives became more affluent during
Japan’s period of high economic growth (1960s and
1970s), pollution became a serious problem due to
factors such as increasing urban population density and
Photo 1-1 Waste Vehicles Traffic
the expansion of the heavy and chemical industries. At at Landfill
the time, the Public Cleansing Act (1954 - 1970) （Tokyo in the 1970s）
clearly stipulated that the government was responsible Bureau of Environment
for waste management services, however the actual

services provided mainly focused on the collection and
disposal of waste discharged from households in urban
areas. It was not clear who was responsible for waste
associated with industrial activities; and therefore, a lot
of waste was not properly collected or disposed of.
Consequently, waste associated with industrial activity
became an important factor caused various types of Photo 1-2 Landfill
（Tokyo in the 1970s）
pollution of the environment. Source: Tokyo Metropolitan Government
Under these circumstances, a committee comprising Bureau of Environment
central government ministries, municipalities, and academics was established in 1967 to engage in
discussions with the aim of modernizing waste management. The committee recognized that the
increasing amount of waste and changes in the composition of waste associated with economic
growth were major problems. The committee further identified the increase in plastics, bulky waste,
and waste associated with industrial activities in the waste stream as major concerns for the future.
In particular, waste associated with industrial activities was completely unregulated, despite clear
indications that this waste category would continue to increase as the economy grew. The
committee’s reports highlighted the extreme importance of establishing systems and methods for
treating and disposing of waste associated with industrial activities in pursuit of pollution
prevention.
Based on reports from the committee and others, the Ministry of Health and Welfare (Ministry
of Health, Labour and Welfare) made the following proposal: “Given the present state of waste, and
based on the ‘polluter pays’ principle, we should establish standards for the treatment of waste
associated with industrial activities as the responsibility of business operators, and consider waste
generated in daily life as the responsibility of municipalities, expanding areas in which
municipalities should treat the waste beyond urban areas.”
As a result, the Waste Management Act enacted in 1970 set out two categories of waste: municipal
waste, which is waste generated by household and businesses activities, and industrial waste, which
is waste generated by industrial activities.
Waste Management Conditions
(1) Waste Generation Amount
Although the waste generation amount in Japan increased as the economy grew, it has begun to
decline since the formation and promotion of a sound material-cycle society based on the 3Rs. The
amount of waste generated is greatly affected by demographic changes, however social and
economic factors also have an impact.
During Japan’s period of high economic growth (1960s and 1970s), factors such as rising incomes
and changes in consumer behavior drove the development of an economic structure based on mass
production and mass consumption, causing both municipal and industrial waste to rapidly increase
and diversify. Later, during the bubble era 2 (late 1980s and early 1990s), the amount of waste
increased swiftly as consumption and production activities expanded further. However, the total
amount of waste generated and the unit generation rate per person per day have trended downward
since 2000, in part due to the efforts to develop a sound material-cycle society. Accordingly, the total
amount of waste generated is also changing in response to social and economic changes. Figure 1-2
shows trends in the total amount of waste (municipal waste) generated in Japan and the amount
generated per person per day.
2The bubble era refers to the economic boom in Japan, especially in the late 1980s and very early 1990s, when asset prices
soared. The name is derived from the way asset prices expanded like a bubble and burst under certain circumstances.
Total Waste Generation Amount（million tons/year） 60 1,200
Waste Generation per person per day

50 1,000
（ｇrams/person・day）
40 800
30 600
20 400
10 Total Waste Generation Amount 200

Waste Generation per person per day
0 0
2010
1980
1985
1990
1995
2000
2005
2019
1970
1975
1955
1960
1965
2015
Fiscal Year
*1: Disaster waste amounts generated by natural disasters such as earthquakes and floods are not included.
*2: Total Waste Generation Amount＝Planned Collection Amount＋Group Collection Amount + Direct Transported
Waste Amount to Treatment Facilities (refer to the following Figure 1-3). However, from 1971 to 1984, Group
Collection Amount was recorded as Domestic Self Disposal Amount, and there is no data for Domestic Self
Disposal Amount before 1970.
*3: Waste Generation per person per day＝Total Annual Waste Generation Amount / (Total Population x Number of
days in one year)
Source: Ministry of Health and Welfare (1972-1997) and Ministry of the Environment (1998-2019) “Waste
Management in Japan” (1972-2019)
Ministry of the Environment “History and Current State of Waste Management in Japan” (2014)
Figure 1-2 Waste Generation Amount and Waste Generation per Person per Day
(2) Waste Management Flow
The waste management flow clarifies how the waste is transferred from collection to the
discharge to final disposal sites. Additionally, using numerical values to visualize the relationships
between amounts of waste at the different flow stages of generation, treatment, recycling, and
disposal can make it easier to identify issues, verify the effectiveness of measures and develop waste
management plans.
The Ministry of the Environment and municipalities regularly prepare waste management flows that
visualize the path waste travels from discharge to recycling and final disposal. This waste management
flow makes it possible to develop an appropriate understanding of the relationships between amounts
of waste at the different stages of treatment, recycling, and disposal, which is useful for understanding
the status of waste and formulating plans.
Figure 1-3 shows the waste management flow in Japan in FY2019. According to the flow chart, all
discharged waste is treated, except for the waste collected through Group Collection (recyclables
collection activities organized by residents groups) which is recycled. Of all discharged waste that
does not undergo intermediate treatment, 4.6% is directly recycled and 1.0% is sent directly to final
disposal without intermediate treatment; 94.4% of discharged waste undergoes intermediate treatment.
Overall, assuming the total processed waste amount is 100%, then the amount of waste reduced is
74.9%, the amount of waste recycled is 15.8%, and the amount of waste for final disposal is 9.3%.
Unit:1,000 tons
Group
Collection Total
Amount Recycling
amount
Amount Intermediate
amount Intermediate
Reduction
8 398 3,798
(1.0％) （9.3％）
Planned
Treatment
Amount
40,828
*: Because of Planning errors, “Planned Treatment Amount” and “Total Treatment Amount” (Total Treatment Amount
＝Intermediate Treatment Amount + Direct Final Disposal Amount + Direct Recycling Amount) are not equal.
Source：Ministry of the Environment “Annual Report on the Environment, the Sound Material-Cycle Society and
Biodiversity in Japan 2021” (2021)
Figure 1-3 Waste Management Flow in Japan (FY 2019)
Table 1-4 Definitions of the Main Terms Used in the Waste Management Flow
Term Definition
The sum of the amount of waste collected by municipalities for proper treatment
Total waste and recycling (planned collection amount), the amount of waste directly received
generation from waste generators at municipality treatment plants (direct receiving amount),
amount and the amount of waste collected by local communities for recycling purposes
(group collection amount).
Planned The amount of waste to be treated, calculated for future plans and set after listing
treatment present circumstances and setting reduction targets and forecast populations, and
amount estimating future generation amounts of waste.
The sum of the amount of waste that undergoes intermediate treatment such as
incineration, shredding, sorting, etc. (intermediate treatment amount), the
Total processed
amount of waste sent directly to final disposal without intermediate treatment
waste amount
(direct final disposal amount), and the amount directly received by recycling
operators (direct recycling amount).
Direct The amount of waste collected by municipalities (or contractors) as recyclables
recycling and delivered directly to recycling operators. This item was newly established in
amount Japan in 1998.
The amount of waste collected through recycling activities in which local
Group residents’ groups (e.g., town assemblies, neighborhood associations, children’s
collection associations, parent-teacher associations (PTAs), condominium associations)
amount collect used paper, aluminum cans, and other recyclables from private residences
for recycling, and deliver them to contracted collection operators.
Source: Ministry of the Environment “Waste Management in Japan (FY2019)” (2021)
(3) Waste Collection and Transport
To deal with the increasing volume of waste, efforts are being made to streamline waste collection
and transport in Japan by transitioning away from the model in which municipalities directly
manage collection and transport, and toward a model in which the work is outsourced and licensed
to private operators.
Planned collection amount

The planned collection amount is the amount of waste collected by municipalities for proper
treatment and recycling. Direct transported waste amount refers to the amount of waste brought
directly to waste treatment facilities by waste generators. Group collection is an activity of local
residents’ groups to collect used paper, aluminum cans, and other recyclables from each
household for recycling, and deliver them to contracted collection operators. In Figure 1-4, the
planned collection amount, direct transported waste amount to treatment facilities and group
collection amount in Japan are shown. The planned collection amount can be calculated properly
because surveys pertaining to amounts of waste have been conducted every year, and annual
figures for amounts of waste are known.
60
（million tons/year）
Group Collection Amount

Direct Transported Waste Amount to Treatment Facilities
Planned Collection Amount
50
40
30
20
10
0
1970 1975 1980 1985 1990 1995 2000 2005 2010 2015 2019
Fiscal Year
*: Group collection amounts prior to 1984 are unknown; the sum of planned collection amount, direct transported waste
amount to treatment facilities, and group collection amount after 1984 is consistent with the definition of total waste
generation amount.
Figure 1-4 Planned Collection Amount
Status of Machinery and Equipment for Waste Collection and Transport

Discharged waste is collected using collection vehicles, which transport the waste to treatment
plants or transfer facilities. Collection vehicles are commonly referred to as “packers” in Japan.
The waste collected by the collection vehicles is transferred to transport vehicles, often referred
to as secondary transport for onward transport to treatment plants; and the majority of the
transport vehicles are trucks (for more details on waste collection and transport machinery and
equipment, refer to Topic 4-1.3: Features of Vehicles and Equipment for Waste Collection and
Transport).
Table 1-5 provides descriptions of the three operation forms of waste collection and transport:
directly managed, outsourced, and licensed.
Table 1-5 Forms of Waste Collection and Transport

Form Description
Directly When a local government (e.g., municipality) or association*1 implements waste
managed collection and transport.
When a private operator implements waste collection and transport, outsourced as
Outsourced
part of municipal public services.
When a private operator in business for profit implements waste collection and
Licensed
transport.*2 These operators collect and transport business waste.
*1: Association refers to a group established under an agreement for multiple parties to fund and jointly operate a
business; in the area of waste management, an association is an organization that is jointly engaged in the
construction, operation, and maintenance of facilities, as well as waste collection and transport and other aspects
of the business.
*2: Operators licensed to handle the municipal waste components included in business waste (e.g., kitchen waste,
waste paper, wood scraps, waste fibers, vegetable scraps, sorted sludge).
Japan is in the process of transitioning away from waste collection and transport directly
managed by municipalities in order to deal with increasing amounts of waste, through
outsourcing and licensing of increasing shares of waste collection. Accordingly, the number of
waste collection and transport vehicles under the directly managed form of waste collection and
transport is decreasing. In particular, small and medium-sized municipalities have more difficulty
in securing funds and human resources compared to large municipalities, and thus are using
contractors and licensed operators in an attempt to streamline waste collection and transport
operations. Figure 1-5 shows trends in the number of vehicles for waste collection and transport
under the three operation forms.
Notably, the trends are the same when comparing vehicle capacity for the three forms rather
than number of vehicles.
200,000
Directly managed
Outsourced
Licensed
Number of collection vehicles

150,000
100,000
50,000
0
1976
1977
1978
1979
1980
1981
1982
1983
1984
1985
1986
1987
1988
1989
1990
1991
1992
1993
1994
1995
1996
1997
1998
1999
2000
2001
2002
2003
2004
2005
2006
2007
2008
2009
2010
2011
2012
2013
2014
2015
2016
2017
2018
2019
年度
*1: Prior to 1990, some vehicles owned by associations were included, and from 1991, only vehicles owned by
municipalities were included, excluding vehicles owned by some associations.
*2: Vehicles before 1990 were classified as special vehicles and transport trucks, and although the definition of
vehicles is different, special vehicles are counted as collection vehicles.
Management in Japan ” (1972-2019)
Figure 1-5 Number of Collection Vehicles
(4) Intermediate Treatment of Waste
Waste Treatment Amounts

Measures of waste treatment have been promoted in Japan in line with the basic policy to
incinerate waste as a method of intermediate treatment in pursuit of sanitary treatment. As a
result, incineration treatment now accounts for roughly 80% of overall intermediate treatment,
while the amount of waste disposed directly into landfills has decreased. In the meantime,
recycling-related legislation has been established in an effort to promote material recycling.
Consequently, the amount of directly recycled waste increased and the amount of waste
disposed directly into landfills decreased, although both trends have since leveled out.
Collected waste is transported to intermediate treatment plants for treatment. In Japan,

intermediate treatment has long been used to mitigate the difficulty of securing landfill sites and
in pursuit of the sanitary treatment of waste, and various intermediate treatment technologies are
being used to promote recycling and further reduce the waste amount for final disposal. There
are many types of intermediate treatment plants for different wastes; examples include
incineration plants, bulky waste treatment plants, and composting plants (for more details on
intermediate treatment, refer to Topic 4-2: Intermediate Treatment).
In FY 2019, the total treated waste amount3 was 40.95 million tons, of which 32.94 million
tons, or roughly 80%, underwent incineration treatment (direct incineration amount). A total of
5.72 million tons of waste underwent intermediate treatment other than incineration (intermediate
treatment amount excluding incineration), and 1.88 million tons was directly received by
recycling operators (direct recycling amount).
The direct incineration amount increased until around 2000 amid the ongoing upgrade of
intermediate treatment plants at the time to process growing amounts of waste. Additionally, the
direct final disposal amount has trended downward since the 1980s and decreased to 400,000
tons in 2019 as a result of the increase in the direct incineration amount.
The intermediate treatment amount from recycling and the like started to increase in the 1990s
with the launch of efforts to establish a sound material-cycle society and the enactment of laws
on recycling, but leveled off in 2007 and has remained flat since.
3 Total treatment amount = Intermediate treatment amount + Direct final disposal amount + Direct recycling amount
60,000 （1,000 tons）

Direct Final Disposal Amount
Direct Recycling Amount
Intermediate Treatment Amount except Incineration
50,000
Direct Incinerated Waste Amount
40,000
30,000
20,000
10,000
0
1972 1975 1980 1985 1990 1995 2000 2005 2010 2015 2019
Fiscal Year
*1: Excluding disaster waste generated by natural disasters such as earthquakes and floods.
*2: Intermediate treatment facilities other than incineration include bulky waste treatment facilities, facilities for
recycling, waste composting facilities, methanization facilities, waste fuel conversion facilities, etc.
*3: “Direct Recycling Amount” is a new item used since 1998. Until 1997, the “Direct Recycling Amount” was
probably recorded in the “Intermediate Treatment Amount excluding Incineration”.
Figure 1-6 Waste Treatment Conditions in Japan
Recycling Amount
In Japan, the recycling rate can be used as an indicator to examine the results of efforts to
improve recycling, including thorough sorting and separate collection (direct recycling
amount), efficient intermediate treatment (recycling amount after intermediate treatment), and
the promotion of recycling activities by residents (group collection amount).
Recycling is the recapture and reuse of resources that have been discarded (here, recycling
means material recycling, in which materials are reused as raw materials, and does not include
thermal recycling4, in which thermal energy is recovered and utilized). In Japan, the recycling
rate is defined as the percentage the total recycled waste amount (Direct recycling amount +
Group collection amount5 + Recovery amount after intermediate treatment) of the total treated
waste amount (Total treatment amount + Group collection amount).
4 In the EU, the concept of energy recovery is used to distinguish it from thermal recycling, and recovery of thermal
energy is not included in recycling.
5 All the Group collection waste is considered to be thoroughly sorted at source and composed only of recyclables.
Direct Recycling Amount＋Group Collection Amount

＋Recovery Amount after Intermediate Treatment
Recycling Rate (%)＝ ×100
Total Treatment Amount＋Group Collection Amount
Unit:1,000 tons
Group
Collection Total
Amount Recycling
amount
Amount Intermediate
amount Intermediate
Reduction
8 398 3,798
(1.0％) （9.3％）
Planned
Treatment
Amount
40,828
*1:Because of planning errors, “Planned Treatment Amount” and “Total Treatment Amount”
(＝Intermediate Treatment Amount + Direct Final Disposal Amount + Direct Recycling Amount) are not equal.
*2: “Direct recycling” is defined as the direct delivery to a recycler without passing through a recycling facility.
*3: Red boxes are items related to the calculation of the recycling rate.
Source ： Ministry of Environment “Annual Report on the Environment, the Sound Material-Cycle Society and
Figure 1-7 Waste Management Flow in Japan (FY 2019) (Reproduced)
Since the 1990s, Japan has promoted the recycling of waste and strived to increase the direct
recycling amount by amending the Waste Management Act and establishing the Act on
Establishing a Sound Material-Cycle Society and other laws on recycling. Additionally, the
increase in awareness on recyclables among residents and business operators and the
technological innovations in intermediate treatment have improved recycling (for more details
on laws and regulations, refer to Topic 2-2.2: Legal Structure Pertaining to Waste Management).
As shown in Figure 1-8, the enactment of recycling laws have significantly contributed to the
increase in recycling amount (the sum of the direct recycling amount, the recovery amount after
intermediate treatment, and the group collection amount) and the trend in recycling rate increased
through 2007 due to the promotion of sorting and recycling of containers and packaging, home
appliances, and more under these laws.

The Basic Act for Establishing a Sound Material-Cycle Society
Direct Recycling Amount
Construction Material Recycling Law
Food Waste Recycling Law Reclametion Amount after Intermediate Treatment
1,000 tons Recycling Rate
12,000 30 ％
End-of-Life Vehicles Recycling Law

Home Appliance Recycling Law
10,000 25
Containers and
Packaging Recycling Law
8,000 20
Add waste generation

control and source
separation/recycling to
6,000 the objective of Waste 15
Management Act
4,000 10
2,000 5
0 0
Fiscal Year
*1: Excluding disaster waste generated by natural disasters such as earthquakes and floods.
*2: “Direct Recycling Amount” is a new item since 1998. Until 1997, the “Direct Recycling Amount” was probably
recorded in the “Intermediate Treatment Amount except Incineration”.
Figure 1-8 Recycling Amount and Recycling Rate
An item’s suitability for recycling depends on how easy it is to recycle it (how willing
residents and business operators are to cooperate) as well as local characteristics and customs.
Paper has been recycled in Japan for a long time; it was the most recycled resource in FY2019.
Paper comprises more than 20% of separate waste collected by municipalities, and more than
90% of recyclables collected through resident-driven group collection.
Figure 1-9 provides a breakdown of the amount of resources recycled and group collection
amounts by item in FY2019. The total amount of resources recycled through separate collection
by municipalities (direct recycling amount) and resources recycled after intermediate treatment
(recovery amount after intermediate treatment) was 6.49 million tons (amount of resources
recycled), and the amount of resources recycled through group collection by residents’ groups
(the group collection amount) was 1.91 million tons.
The most commonly recycled item was paper (23.6%), followed by metals (12.4%), glass
(10.5%), plastic containers and packaging (10.3%), and molten slag (8.3%). Additionally, the
most common item in group collection was paper (89.8%), followed by textiles (3.5%), metals
(2.3%), paper containers and packaging (1.9%), and glass (1.2%). Newspapers, magazines,
cardboard, and other paper comprised nearly 90% of group collection (for more details on
recycling technologies, refer to Topic 4-2.5: Recycling Technology).
Unit: 1,000 tons

Recycling Amount
Back to Smelting Plant

33 (0.5%)
Used food oil
Cement Plant Rejects 4 (0.1%)
15 (0.2%)
Cement Raw
Materials Others
439 (6.8%) 721
(11.1%) Paper 1,533
Fuel 37 (0.6%) (23.6%) Paper Pack 9
Solid Fuel 288 (4.4%) Recycling (0.1%)
Amount Paper Containers and
6,489
（100％） Metal 806 Packing
Molten Slag 540 (8.3%)
(12.4%) 88 (1.4%)
Feed 8 (0.1%)
Fertilizer 134
(2.1%) Cloths 127
Glass 680
(2.0%)
(10.5%)
Plastic 47 PET Bottles 311

Plastic (4.8%)
(0.7%)
Containers and
Food Tray 3
Packaging
(0.0%)
666 (10.3%)

Plastic Containers and Packaging 1 (0.0%)
Plastics 4 (0.2%)
Food Tray 0 (0.0%)
Cloth Used cooking oil

PET Bottles 5 (0.2%) 1 (0.0%)
67 (3.5%)
Glass 24 (1.2%) Others
9 (0.4%)
Metal 43 (2.3%)
Paper Containers and Packaging

37 (1.9%)
Paper Packs Group

5 (0.3%) Collection
Amount
1,909
（100.0％）
Paper
1,715 (89.8%)
Source: Ministry of the Environment Website “Results of the survey on municipal waste management (FY2019)”
(2021) https://www.env.go.jp/press/files/jp/115966.pdf（accessed January 24, 2022）
Figure 1-9 Breakdown of Recycling Amount and Group Collection Amount (FY2019)
Present State of Intermediate Treatment Plants

In Japan, various intermediate treatment technologies, such as incineration plants, are being
implemented based on the characteristics of the municipalities. In densely populated urban
areas, incineration technology is favored for its effectiveness in reducing the high amounts of
waste generated in those areas. In sparsely populated rural areas - specifically in areas with
close-knit local communities - recycling technologies and treatment methods other than
incineration tend to be used because it is easier to get residents there to cooperate with waste
sorting. Regarding incineration plants, technological innovations are being made not only to
properly treat waste but also to facilitate effective measures, including inter-municipal waste
treatment, dealing with dioxin-related problems, and promoting residual thermal utilization.
Examples of intermediate treatment plants include waste incineration plants, bulky waste
treatment plants, organic waste recycling plants (e.g., composting plants, livestock feed
processing plants, methane gasification plants), recycling plants, and fuel processing plants (for
statistical data in Japan, waste incineration plants are classified into incineration, gasification
melting/reforming, carbonization, and others).
Table 1-6 shows the number and treatment capacity of waste incineration plants by type in
FY2019. As of 2019, there are a total of 1,067 incineration plants in Japan with a total treatment
capacity of roughly 177,000 tons per day.
Figure 1-10 shows trends in the number and treatment capacity of waste incineration plants by
type. Although both the number and treatment capacity of these plants are trending downward,
the latter is only decreasing slightly. The treatment capacity is decreasing less than the number of
plants because of expansion of inter-municipal waste treatment and measures to promote the
consolidation of waste incineration plants into those with treatment capacity of at least 100 tons
per day, even though the amount of waste generated is decreasing due to factors such as the
promotion of the 3Rs. Consequently, efforts are being made to maintain proper waste treatment
capacity while promoting dioxins countermeasures (for more details on waste incineration plants,
refer to Topic 4-2.2: Incineration Technology, and for more details on dioxins countermeasures,
refer to Topic 5-3: Dioxins Problem).
Table 1-6 Number of Facilities and treatment Capacity by Type of Incineration (FY2019)
Type of Facilities Incineration Gasification Carbonization Others Total
Number of
Facilities 943 107 5 12 1,067
Treatment Capacity
（ton/day） 153,978 21,196 206 1,328 176,707
*: Facilities established by municipalities and clean associations, including those for which construction began in the
year in question and those for which construction was suspended, excluding disused facilities and those owned by
private companies.
2,000 Incineration Gasification 250

Carbonization Others
1,800 4 4 6
9 17
6 Total Treatment Capacity
5 22
1,600 200
8
46 9
9
1,400 58 9 10 11
70 10 14
Number of Facilities
3 15 16 14
4 15
Treatment Capacity（1,000 tons/day）

77 83 87 4 4 4 16 13 14
1,200 91
92 92
4 4 5 12 12
150
95 98 5 5 12
97 99 5 5
103 102 106
1,000 108 107
1,706 1,704 1,692

1,652
800 100
1,436
1,329 1,295
600 1,230 1,206 1,185
1,164 1,133
1,110 1,096 1,073
1,056 1,043 1,020
999 980 957 943
400 50
200
0 0
1998 2000 2005 2010 2015 2019
Fiscal Year
*1: Facilities established by municipalities and clean association, including those for which construction began in the
year in question and those for which construction was suspended, excluding disused facilities and those owned by
private companies.
*2: Until 2004, carbonization was included in incineration.
Source: Ministry of the Environment “Waste Management in Japan” (2000-2021)
Figure 1-10 Number of Waste Incineration Facilities by Type of Incineration
Figure 1-11 shows the number of waste incineration plants by capacity in FY2019. As a result
of the promotion of inter-municipal waste treatment and waste incineration power generation,
there are more waste incineration plants with treatment capacity of 100 to 300 tons per day (400
plants) than any other capacity range. The plants being developed in Japan are smaller than those
in major cities in foreign countries, which are capable of treating at least 1,000 tons per day.
Total Number of Facilities

Number of New Facilities in FY2019
Number of New Facilities in FY2019

Total Number of Facilities
～30 30～50 50～100 100～300 300～600 600～

Treatment Capacity (ton/day)
Figure 1-11 Number of Waste Incineration Facilities by Treatment Capacity (FY2019)
Residual Thermal Utilization at Waste Incineration Plants

Innovations in incineration power generation technology and measures and legislation to
promote the use of renewable energy have driven the introduction of thermal power generation
at incineration plants. The residual heat generated by incineration treatment is used not only
inside plants but also at facilities outside plants for giving back to residents.
Table 1-7 shows the state of residual thermal utilization at waste incineration plants in FY2019.
Residual heat is utilized at 740 plants, or 69.4% of the total plants. Methods of residual thermal
utilization include hot water, steam, and power generation; for purposes such as supplying
electricity and heating air and water within plants, as well as for heating swimming pools and at
other local facilities outside plants.
Table 1-7 Residual Thermal Utilization at Waste Incineration Plants (FY2019)

With Thermal Utilization
Power Without
Thermal Hot Water Steam
Generation Thermal
Utilization Others Utilization
Inside Outside Inside Outside Inside Outside
Plant Plant Plant Plant Plant Plant
Number of
740 618 206 236 90 381 267 40 327
Facilities
*1: Due to duplicated responses, the total number of facilities does not match the total number of respondents.
Figure 1-12 shows trends in the number of waste incineration plants where residual thermal
utilization is implemented. Although the number of waste incineration plants has been decreasing,
the number of plants where residual thermal utilization is not implemented is also decreasing,
falling to 327 in 2019. Conversely, the number of plants where waste incineration power
generation is implemented has been increasing, rising to 384 in 2019. In Japan, waste power
generation is being proactively introduced in an effort to establish a sound material-cycle society.
Legislation for the introduction of waste power generation has been developed; for example, the
Act on Special Measures Concerning Procurement of Electricity from Renewable Energy Sources
by Electricity Utilities, which requires electricity utilities to use new energy sources, was enacted
in 2003, and the feed-in tariff (FIT) system for renewable energy was put into operation in 2012.
1,800
余熱利用なし
Plants without thermal utilization
1,600 with thermal
Plants utilization（■内は発電設備）
with thermal utilization
655
（発電設備）
Plants generating electric power
1,400 614 604
590
455
1,200 401 382

414 424 429 420
1,000 443 429 420 408 394 398 376 366 349 334 327
800
1,114 1,103 1,111 1,090
1,035
600 995 992
904 877 856 849
800
792 791 781 778 764 765 754 754 748 740
400
200 (281) (286) (293) (298) (300) (304) (306) (314) (318) (328) (338) (348) (358) (376) (379) (384)
(233) (236) (263) (271)
(201) (215)
0 1998 2005 2010 2015 2019

2000
Fiscal Year

Figure 1-12 Number of Waste Incineration Plants with Residual Thermal Utilization
Figure 1-13 shows the annual increasing trend in electricity generated per ton of treated waste.
Although the low efficiency of waste incineration power generation was an issue when it was
first introduced at waste treatment plants, efficiency has improved thanks in part to increasing
heating (calorific) values of the waste incinerated partly due to the increase in waste plastics, and
technological innovations in power generation facilities, thereby helping to promote the
introduction of waste incineration power generation. Of all waste incineration plants with power
generation facilities, 285 (74% of the total) had power generation efficiency of at least 10% in
FY2019. Additionally, 45 plants had a power generation efficiency of at least 20% (for more
details on the systems, refer to Topic 2-3.2: Thermal Recovery).
350
300
Electricity generated per waste
treatment amount（kWh/ton）
250
200
150
100
50
0
2000 2005 2010 2015 2019
Fiscal Year
Available electric energy Total annual electricity generated in facilities (kWh)

*: per ton of waste treated (kWh/ton) =
Annual waste treatment amount in facilities (tons)

Figure 1-13 Electricity Generated per Ton of Waste Treated
Figure 1-14 shows the number of waste incineration plants by electric power generation
capacity in FY2019. There are more plants with power generation capacity of 2,000 kW to 5,000
kW (129 plants, 34% of the total) than any other capacity range. A total of 59 plants - 15% of the
total - have a power generation capacity of more than 10 MW.
～1,000 1,000～ 2,000～ 5,000～ 10,000～ 15,000～ 20,000～

2,000 5,000 10,000 15,000 20,000
Power Generation Capacity (kW)
*: Of the 384 facilities with power generation equipment, 381 facilities with valid responses were included in the survey.
Figure 1-14 Number of Waste Incineration Plants by Electric Power Generation Capacity
(FY2019)
(5) Final Disposal of Waste
Final Disposal Amount

The final disposal amount in Japan has decreased as a result of the proactive introduction of
intermediate treatment technologies, i.e. the usage of incineration plants and the promotion of
recycling.
“Final disposal” means that waste is ultimately disposed into landfill sites at the last stage of
the waste management flow. The final disposal amount is the sum of the amount of waste sent
directly to final disposal without intermediate treatment (direct final disposal amount) and the
amount of waste sent to final disposal after intermediate treatment (final disposal amount after
intermediate treatment).
Figure 1-15 shows the annual trends in the final disposal amount. The direct final disposal
amount has decreased substantially due to incineration and other forms of intermediate treatment
and promotion of the 3Rs; the figure fell to 400,000 tons in FY2019. The final disposal amount
after intermediate treatment has also remained low (3.4 million tons in FY2019) due in part to
advances in incineration technology that have improved the rate of reduction through incineration.
The total final disposal amount has generally continued trending downward due to the effects of
measures for waste minimization and recycling, among other things; in FY2019, the total final
disposal amount was 3.8 million tons, or 9.4% of the total treatment waste amount (for more
details on final disposal, refer to Topic 4-3: Final Disposal).
30 600
Direct Final Disposal Amount
Final Disposal Amount per person per day（ｇrams/person/day）
Final Disposal Amount after Intermediate Treatment

Final Disposal Amount per person per day
25 500
Final Disposal Amount （million tons）
20 400
15 300
10 200
5 100
0 0
1975 1980 1985 1990 1995 2000 2005 2010 2015 2019
Fiscal Year
Figure 1-15 Final Disposal Amount in Japan
Unit:1,000 tons
Group
Collection Total
Amount Recycling
amount
Amount Intermediate
amount Intermediate
Reduction
8 398 3,798
(1.0％) （9.3％）
Planned
Treatment
Amount
40,828
*1: Because of Planning errors、”Planned Treatment Amount” and “Total Treatment Amount” (＝Intermediate
Treatment Amount + Direct Final Disposal Amount + Direct Recycling Amount) are not equal.
*2: “Direct recycling” is defined as the direct delivery to a recycler without passing through a recycling facility.
*3: Red boxes are items related to the final disposal.
Source：Ministry of the Environment “Annual Report on the Environment, the Sound Material-Cycle Society and
Figure 1-16 Waste Management Flow in Japan (FY 2019) (Reproduced)
Remaining Life and Capacity at Landfill Sites

All though the service life of landfill sites in Japan is increasing due to the reduction of final
disposal amount, the capacity of the landfill continues to decrease over time. Therefore it is
crucial to reduce the final disposal amount as well as to develop new landfills. Since the
shortage of landfill sites is an important issue, and because it takes time to develop landfill
sites, statistical data over a period of time is used to calculate and verify the number of years
sites can remain in service, which are then used in plans for future landfill site development.
When looking into constructing new landfill sites, it is essential to have a firm understanding
of the remaining life and capacity of existing landfill sites. Table 1-8 shows the number and
remaining life of landfill sites for municipal waste in FY2019, and Figure 1-17 shows how those
figures have trended. As of the end of FY2019, there are 1,620 municipal waste landfill sites in
Japan, with a remaining capacity of about 100 million m3 and a remaining life of approximately
21 years.
The downward trend of remaining landfill capacity has slowed due to the establishment of
legislation to minimize waste, promote recycling, and reduce the final disposal amount in
response to the priority issue - the shortage of landfill sites – and because of measures including
the promotion of reduction through intermediate treatment and recycling technologies. Although
the remaining life of landfill sites has held steady at above 20 years in the last 10 years, necessary
measures continue to be implemented in light of the severity of the situation.
Notably, the remaining life of landfill sites is the period (number of years) during which
disposal at existing landfill sites is possible if the final disposal amount in a given fiscal year is
maintained without developing new landfill sites. Remaining life is calculated using the following
formula.
Remaining capacity at the end of the year

Remaining Time (Year)＝
Final Disposal Amount of year / volume-to-mass ratio of the waste
(bulk density of the waste can be 0.8163)6
Table 1-8 Number and Capacity of Municipal Waste Landfill Site（FY 2019）
Number of Landfill Sites by terrain Total Total Remaining Remaining
Area Capacity Capacity Time
Water Flat
Mountains Sea Total (1,000m2) (1,000m3) (1,000m3) (Year)
surface Land
1,165 25 10 420 1,620 42,762 470,762 99,507 21.4
250 25
Remaining Landfill Capacity Remaining Landfill Time
Remaining Landfill Capacity（million m3）
200 20
150 15 Remaining Landfill Time (years)
100 10
50 5
0 0
1975 1980 1985 1990 1995 2000 2005 2010 2015 2019
Fiscal Year
Figure 1-17 Number and Capacity of Municipal Waste Landfill Sites
6The relative bulk density of landfill waste is the volume-to-mass ratio of the waste at the time it was dumped. In
Japan, it is generally considered to be roughly 0.3 when waste is discharged and 0.8 when it is dumped into landfills.
(6) Composition of Waste
In order to understand the types, characteristics, and other attributes of waste generated in
each area, it is essential to survey the composition of waste and its three components of
moisture content, combustibles content, and ash content. Ongoing surveys are required
because the quality of waste changes in response to factors such as changes in social
circumstances and the diversification of lifestyles. Survey results can be used as basic data not
only for design conditions when developing facilities such as incineration plants and landfill
sites, but also for considering suitable measures to reduce waste and promote recycling based
on the waste quality.
Paper, textiles, and plastics comprise roughly 70% of waste in Japan, and data from surveys
shows that this waste contains high-calorie combustibles and relatively little moisture content;
this data is the basis for efforts to utilize incineration technologies and promote the recycling
of plastics.
Waste composition is the categorization of waste into items and material classifications; waste
composition surveys categorize waste into paper, textiles, kitchen waste, and the like, and show
the relative weights of each as percentages. The three components of waste – moisture content,
combustibles content, and ash content - are indicators of the properties of waste. In Japan,
municipalities conduct surveys at incineration plants and other facilities four times a year in
accordance with the Waste Management Act in order to develop an understanding of the types,
characteristics, and other attributes of waste generated in each area.
The results of waste composition surveys can be used to verify the composition of the waste
being generated, which is useful for examining the state of the generation of plastics and other
recyclable items and measures suitable for those items as well as considering the possibility of
introducing waste incineration plants and plant specifications. The results of surveys of the three
components are important indicators for verifying the properties and combustibility of waste, and
are essential data for planning the development of waste incineration plants. Additionally,
because most ash content is incombustible waste, the three-component data is important for
considering landfill capacity and other matters when formulating plans for developing landfill
sites.
The results of waste composition and three-component surveys are compiled by municipalities
and reported to the Ministry of the Environment, where the data is accumulated and used to
identify nationwide trends. Table 1-9 and Figure 1-18 show the results of waste composition
analysis (dry weight base) at waste incineration plants throughout Japan in FY2019; although
lifestyle changes prompted an increase in plastics, kitchen waste decreased as a result of
advancements in recycling and minimization of organic waste.
Table 1-9 Result of Composition of Waste (Dry Weight base)

Plastic Wood,
Survey Paper, synthetic bamboo Kitchen Non-
year Cloth resins, and waste combustible Others Total
rubber, straw waste
leather
2019 48% 24% 10% 12% 3% 3% 100%
*1: The composition of municipal waste delivered mainly to incineration facilities is surveyed, so recyclables sorted
before collection are not included.
*2: The composition ratio is by dry-base weight excluding water.
*3: The values are obtained by dividing the survey results for each treatment facility in Japan proportionally by the
amount of waste treatment at each facility.
https://www.env.go.jp/recycle/waste_tech/ippan/ （accessed January 25, 2022）
FY 2019 Non- Others

combustible 3%
material
3%
Kitchen
waste
Wood, 12%
bamboo and
straw
Paper・Cloths
10%
48%
Plastics,
synthetic resins,
rubber, leather
24%
*: The values are obtained by dividing the survey results for each treatment facility in Japan proportionally by the
amount of waste treatment at each facility.
Figure 1-18 Result of Composition of Waste (Dry Weight Base)
Waste composition surveys also measure bulk density (weight of waste per m3 of waste). The
unit volume weight is important data for designing the remaining life of landfill sites, waste pits
at waste incineration plants, and storage facilities at other plants. Lower calorific values represent
available rather than measurable thermal energy, and are extremely important data for designing
waste incineration plants.
Table 1-9 shows the composition of waste (dry weight base) in FY2019. Paper and cloth
account for about half of the total weight, and plastics, rubber, and leather for a quarter. Table 1-
10 shows the bulk density, the three components, and the lower calorific values (measured values)
in FY2019. It should be noted that these values are based on dry weight base, which does not take
moisture content into account, and thus differ in composition from wet weight base, which take
moisture content into account.

The highest and lowest values for the three components and lower calorific values indicate the
extreme variations in the waste data. Reasons for these large variations may be attributed to
differences in types of waste and the lack of uniformity in waste samples used in the surveys.
Accordingly, the coning and quartering technique is used to ensure the uniformity of samples to
the extent possible in waste composition surveys (for more details on the coning and quartering
technique, refer to Column: Surveys on Municipal Waste Composition in Developing Countries).
Table 1-10 Weight per Volume, Three Components and Lower Calorific Value of Waste
Lower
Weight per Three Components（%）
Volume Calorific
Survey year Value Value*
Moisture Combustible Ash （Measured value
（kg/m3） content content content kJ/kg）
Weighted
153 43 45 12 9,796
average
2019 Maximum 596 72 91 74 22,241
Minimum 15 4 2 2 1,393
*: Lower Calorific Value＝Higher Calorific Value－Latent heat of condensation of water vapor×Amount of water
vapor
Column: Surveys on Municipal Waste Composition in Developing Countries

Knowing the composition of waste is essential for formulating plans for recycling and the stable
operation of intermediate treatment plants. In developing countries in particular, there are
conspicuous seasonal variations in waste composition, especially during the rainy season, when the
moisture of the waste is higher and heating values are lower, making incineration more difficult.
Additionally, waste often contains large amounts of concrete rubble, earth, and sand, increasing the
burden on the machinery and equipment at intermediate treatment plants (for details on the
significance of surveys, refer to Topic 1-2.1: Management of Waste-Related Data). It is also
necessary to distinguish between surveys of waste composition at the generation sources and at
landfill sites and other receiving facilities, depending on the intended use of the composition data.
The following points are worthy of particular attention when conducting waste composition surveys
in developing countries.
Important Points to Remember

(1) Timing of Surveys
In areas with clearly defined rainy and dry seasons, conduct surveys in both seasons. The
amount of moisture content and bulk density of waste differs widely between the seasons because
the waste contains a lot of moisture during the rainy season.
Additionally, avoid conducting surveys during Christmas, New Year’s, and other holidays
specific to the country because the quantity and quality of waste generated differ from normal
times.
(2) Safety of Work

Organize and prepare the gear needed to work safely (e.g., gloves, boots, safety clothing, and
masks).
Also, pay sufficient attention to countermeasures against mosquito-borne infections and
hazardous waste such as injection needles, and sort the waste in covered areas.
Table 1-11 Examples of Equipment Needed for Waste Composition Surveys

Equipment to wear Equipment
Vest Hanging scale
Helmet Container box (large ~ small）, Bucket
Boots Plastic sheeting
Medical Mask Zip Lock, Plastic bag
Gloves Tongs, Shovels, Scoops
Goggles Measure tape, Duct tape
(3) Accuracy of Sorting and Measurement

Clarify among the survey team in advance the standards for sorting, the methods of
measurement, and the minimum unit of measurement weight (conduct practical exercises in the
field in advance). Pay particular attention to what kind of waste is categorized as “other.”
Additionally, check whether the waste to be surveyed is missing any recyclables that were
collected from the generation sources (private residences or business operators), transfer stations,
or the like prior to taking the survey samples.
In the waste composition surveys, the coning and quartering technique is usually used to obtain
representative samples and minimize the effects of waste non-uniformity and imbalance. The
following figure illustrates the coning and quartering technique.
Apply pressure
from above to Divide Divide
flatten into two into four
Pile waste
in a cone no use
no use
Sample for
survey Select diagonal waste
Figure 1-19 Overview of Conical Quartering Technique
Photo 1-3 Piling up Photo 1-4 Dividing into four Photo 1-5 Separating
Photo 1-6 Plastics Photo 1-7 Glass Photo 1-8 Cloth

Surveys on Municipal Waste Composition in Indonesia
Photo 1-9 Separating Photo 1-10 Separating

Surveys on Municipal Waste Composition in Senegal
Column: The Three Components of Waste

The values of the three components are important for understanding the combustibility of waste
and the amount of incinerator ash generated when developing the specifications of incineration
plants. The composition of moist waste can be broadly classified into three categories: moisture,
ash, the inorganic matter that remains after combustion, and combustibles which are burned off.
Moisture content, ash content, and combustibles content are known as the three components of
waste. Table 1-12 shows the characteristics of each.
Table 1-12 Main Elements in the Three Components

Three
Properties and constituent elements
Components
Moisture
Water（H2O）
content
The inorganic substance that remains after the complete combustion of a
substance. Main elements are potassium (K), calcium（Ca）and magnesium
Ash content
(Mg) .And include small amounts of metallic elements such as iron (Fe),
aluminum (Al), zinc (Zn), sodium (Na), copper (Cu), etc.
Organic matter that turns to gas when burned and disappears. It is composed of
Combustible elements such as carbon (C), oxygen (O), hydrogen (H), nitrogen (N) and
content phosphorus (P). When heated at high temperatures and with sufficient oxygen
supply, it becomes a gas such as carbon dioxide.
Processes such as drying and burning are necessary for determining the actual proportions of
the three components of waste. The table below shows the methods of calculating the proportions.
Table 1-13 Calculation Method of the Three Components

Three
Components Calculation method
Wet Weight－Dry Weight
Moisture Moisture (%)＝ ×100
Wet Weight
content
Calculated by the difference in weight before drying and after drying at 105°C.
Weight of "combustible" residue after drying
＋Weight of "non-combustibles”
Ash (%)＝ ×100
Ash content Wet Weight
Calculated as the sum of the weight of incombustibles and ash remaining after
combustion
*: All incombustible materials (e.g., iron, stone, etc.) are considered to be non-combustible
Wet Weight－Moisture Weight－Ash Weight

Combustible (%)＝ ×100
Combustible Wet Weight
content
Calculated from the difference between the wet weight and the weight of the
moisture and ash content
For example, suppose the wet weight of waste is 10 kg, the dry weight is 4 kg, and the ash and
non-combustibles after combustion weigh 0.3 kg and 0.7 kg, respectively. In this case, the ratio of
the three components to the wet weight can be calculated as shown on the next page. Also, using
the Turner triangle shown on the next page it is possible to use the values of the three components
to approximate what can be burned without auxiliary fuel when the heating value cannot be
measured.
Organic
Matter Ash
Moisture
Ash
0.3kg
Drying combustion
Wet Weight Dry Weight
Ex. 10kg 4kg Segregation
Non-combustible
Moisture 10kg-4kg materials
Content（％）＝ 10kg ×100= 60％ 0.7kg
Ash 0.3kg+0.7kg
Content （％）＝ ×100= 10％
10kg
Combustible 4kg－(0.3kg+0.7kg)
Content （％）＝ 10kg
×100= 30％
Figure 1-20 Example of the Calculation of Three Components
Ex.
M=50％
30％
0 20 40 60 80 100
Combustible Content (%) (C)

Combustible condition without auxiliary fuel
Source: World Bank Technical Paper No.462 “Municipal Solid Waste Incineration” (T. Rand, J. Haukohl, U. Marxen
2000）
Figure 1-21 Triangle for Assessment of Combustibility of Waste
Waste Management Plans
The Ministry of the Environment uses quantitative figures as basic information when considering
the formulation of policies and plans related to waste management, which makes it possible to set
numerical targets for policies and the like and to indicate specific plans for developing facilities.
Municipalities use data collected and analyzed in the course of carrying out municipal waste
management in areas under their jurisdiction to formulate and implement plans for collection,
sorting, facility maintenance, and more. Each of these plans contains basic policies and specific
measures for efficient and effective waste generation reduction, waste collection and transport,
intermediate treatment, and final disposal, and serves as the basis for carrying out waste
management administration.
This section introduces the frameworks and approaches for formulating various plans for waste
management at national and local levels, which are based on quantitative data.
Management of Waste-Related Data
(1) Data Management for the Entire Country
In Japan, the central government collects data from municipalities to create a shared database.
The database enables the Ministry of the Environment to understand the circumstances of waste
management across the country and municipalities to share information with each other. This
allows the Ministry of the Environment to formulate measures and strategies that are in line with
the actual circumstance and to promote cooperation between the Ministry and municipalities.
In Japan, the Ministry of the Environment publishes the results of an annual survey on the state of
municipal waste management. Since the 1970s the Ministry of the Environment has been conducting
a survey in the form of a questionnaire to municipalities and associations for the purpose of obtaining
basic data on municipal waste administration. The central government then collects and accumulates
the data from municipalities to build a nationwide database, which is characteristic of data
management in Japan.
Table 1-14 shows the survey items, which are broadly divided between the conditions of facility
operation and the conditions of treatment. The data obtained is aggregated by municipalities in each
prefecture, and the statistical tables are available to the public. This data fulfills an important role in
examining and setting specific priority targets, achievement indicators, and other criteria when
formulating plans for waste management.
National Ministry of the Data accumulation

throughout Japan
Level Environment
Data submission Data

request submission
（Once a year）
Data
Municipality・ accumulation of
Clean association municipality or
association
Figure 1-22 Waste Data Collecting System in Japan
Table 1-14 Survey iItems Covered in the Ministry of the Environment Survey on Municipal Waste
Items Main survey contents
Annual treatment amount, Type of waste, Type of facilities and
Incineration plant
plants, Waste composition, etc.
Bulky waste treatment Annual treatment amount, Collected resources amount, Type of
facility waste, Type of treatment
Annual treatment amount Collected resources amount, Output
Recycling facility
amount, Type of facilities, etc.
Annual treatment amount, Type of waste, Type of facilities,
Fuel conversion facility
Capacity of facilities, etc.
Annual treatment amount, Type of waste, Treatment method,
Facility
Other facilities
Annual storage amount, Type of waste, Type of facilities, number
Storage facility
of categories, etc.
Capacity, Disposal amount, Remaining landfill capacity, Type of
Landfill
waste, etc.
Annual treatment amount, Recycling amount, Type of treatment,
Sewage treatment facility
Small-scale sewage Sewage treatment amount, Type of treatment, Planned maximum
treatment equipment sewage amount, etc.
Reuse and repair facilities Annual treatment amount, Area, Targeted items, etc.
Total population, Waste generation amount, Waste treatment
Waste management status
amount, Disposal amount, etc.
Waste management Collection and transport (Household and Business waste),
system Number of sorted items, Service fee, etc.
Treatment of raw sewage Total population, Service fee, etc.
Specific revenue sources (central government disbursements,
Expense local government disbursements, etc.), general revenue sources,
etc.
Treatment
Personnel, machinery, Number of staff, Number of collection vehicles, Number of

etc. outsourced contracts, Number of treatment companies, etc.
Treatment amount, Reduction processing rate, Recovered
Disaster waste treatment
Amount after Intermediate Treatment, etc.
Specific revenue sources (central government disbursements,
Expense for disaster
prefectural government disbursements, etc.), general revenue
waste treatment
sources, etc.
Personnel, machinery,
etc. for disaster waste Number of staff (General and technical staff)
treatment
Source: Ministry of the Environment Website “Results of the survey on municipal waste management”
(2) Formulation of Various Plans Based on Data
Data collected through surveys on waste can be used not only to set basic policies on waste
management, but also as the basis for various plans and policies, including waste collection and
transport plans, development plans and life extension plans for facilities, and policies for
promoting waste minimization and recycling.
In the course of carrying out waste management, municipalities continuously collect a variety of
data and use it to formulate policies and plans for the future.
Waste incineration plants and other intermediate treatment plants and landfill sites in Japan are
equipped with scales that automatically weigh and collect data of incoming waste, recyclables (e.g.,
cans, glass bottles, paper), and disposal waste such as incinerator ash. The amount of waste generated
can be ascertained from the amount of incoming waste weighed at waste incineration plants and other
intermediate treatment plants or at landfill sites when said treatment plants are not available.
Ascertaining the amount of waste generated makes it possible to verify that plants are operating
according to plans and staying within their treatment capacities. Additionally, combining the amount
of waste generated with other data such as demographic trends makes it possible to project amounts
of waste generated in the future. This ability to project amounts of waste generated makes it possible
to examine the number of collection vehicles, the treatment capacity of incineration and other forms
of intermediate treatment, and the remaining disposal capacity (remaining service life) of landfill
sites, which enables the review of waste collection and transport plans and the formulation of plans
for developing intermediate treatment plants and landfill sites.
The results of waste composition surveys can be used to develop an understanding of the types and
amount of waste, making it possible to verify whether the quality of the waste meets the design
conditions for intermediate treatment plants or whether it causes problems with the plants’ functions.
Additionally, identifying recyclable items makes it possible to formulate policies and plans for
recycling and resource circulation.
Regarding surveys of the three components and heating values of waste, the results for
combustibles demonstrate the combustibility of the waste, while the results for ash content make it
possible to estimate incineration residue; therefore, survey results make it possible to estimate waste
combustion efficiency and final disposal amounts.
Planning and policy review

Facilities Operation Plan
Basic Plan Facility maintenance and
Policy and Plan for Recycle management Plan
Waste Collection and and Promotion of Resource
Transport Plan Recycling
Life Extension Plan
Potential for Introduction
Future Waste (Combustion efficiency, etc.)
Generation Amount
Forecast of
Future Waste Survey Data Study on
Generation Introduction of
Amount Incineration Facility
Weight and Volume Three Components
Waste composition
Bulk Density Low Calorific Value
Weighing of Waste Waste composition Survey of Three

（Survey of the amount of survey Components and
waste carried in）
Calorific Value
Type of Waste
How much waste is generated Combustibility of Waste
Proper operation and management of facilities
Figure 1-23 Examples of Utilization of Waste Survey Data

National-Level Waste Management Plans
Plans formulated by the central government clearly set out specific numerical targets and
implementation items for the target fiscal year. The data collected by the central government from
municipalities is used in the plans, which set out policy for waste management at the national level.
(1) Fundamental Plan for Establishing a Sound Material-Cycle Society
The Fundamental Plan for Establishing a Sound Material-Cycle Society goes beyond the
framework of waste to outline the sound material-cycle society Japan should aim to become, and
includes matters such as ensuring material circulation in society, curtailing natural resource
consumption, and reducing environmental impact. Because the plan presents the basic policy of
the central government, municipalities have a clear idea of the vision for each area and how they
should go about achieving it.
The plan lists priority targets for resource productivity, that include among others the ratio of
recycled resources to natural resources used, the final disposal amount, and sets out specific future
targets in the form of numerical values.
Figure 1-24 shows the positioning of the Fundamental Plan for Establishing a Sound Material-
Cycle Society, which was developed to comprehensively and systematically promote measures for
forming a sound material-cycle society founded on the Basic Act on Establishing a Sound Material-
Cycle Society (for more details on the Basic Act on Establishing a Sound Material-Cycle Society,
refer to Topic 2-2 (2): Basic Act for Establishing a Sound Material-Cycle Society).
The Fundamental Plan for Establishing a Sound Material-Cycle Society is updated every five years,
and the Fourth Fundamental Plan for Establishing a Sound Material-Cycle Society was formulated
in 2018. This fourth iteration of the plan sets out visions, initiatives, and indicators for each of seven
pillars (e.g., integrated efforts to create a sustainable society, regional revitalization through the
formation of a Regional Circular and Ecological Sphere) with the aim of resolving the issues in the
area of recycling listed below. Table 1-15 is an overview of the Fourth Fundamental Plan for
Establishing a Sound Material-Cycle Society.
Issues in the Area of Recycling in Japan

 Restoration and recovery from environmental contamination caused by radioactive materials
released from nuclear power plant accident
 Frequent occurrence of major disasters, and delayed countermeasures
 Changes in people’s focus (from material wealth to spiritual wealth)
 Securing the leaders of resource circulation and proper treatment
Basic Environment Act

Fully Enforced August 1994.8

Enacted The 5th Plan April 2018
The Basic Act for Establishing a Sound Material-

Cycle Society To ensure material-cycle society,
control consumption of natural
(Basic Framework Act) resources, and reduce
Fully Enforced January 2001
v environmental load
The Fundamental Plan for Establishing a Sound Material-Cycle Society

（Basis for other State plants）
Established March 2003／Enacted The 4th Plan July 2018
Appropriate Waste Treatment Promotion of Recycling
Waste Management Act Effective Resource Utilization Promotion Act

Revised July 2018.6 Completely revised April 2001
1. Waste generation control

2. Appropriate waste treatment (including recycling) 1. Recycling of reusable resources
3. Regulation on the establishment of waste management 2. Development of easy-to-recycle structures and materials
facilities 3. Labeling for sorted waste collection
4. Regulation on waste management operators 4. Promotion of the effective use of by-products
5. Establishment of waste management standards, etc. Recycle（1R）
→ Reduce, Reuse, Recycle（3R）
Source: Ministry of the Environment “Fourth Fundamental Plan for Establishing a Sound Material-Cycle Society” (2018)
Figure 1-24 Position of the Fundamental Plan for Establishing a Sound Material-Cycle Society
Table 1-15 Overview of the Fourth Fundamental Plan

for Establishing a Sound Material-Cycle Society
Item Description
The plan was established to comprehensively and systematically promote
Overview measures for forming a sound material-cycle society based on the Basic Act on
Formulation June 2018
date (updated every five years (previously updated in 2003, 2008, and 2013))
Plan duration Five years from FY2018 to FY2022
1. Integrated efforts to create a sustainable society
2. Regional revitalization through the formation of a Regional Circular and
Ecological Sphere
3. Thorough resource circulation throughout product lifecycle
Implementation
4. Promotion of proper treatment, and environmental restoration
items
5. Establishment of a disaster waste treatment system
6. Establishment of a proper international resource circulation system, and
overseas expansion of the recycling industry
7. Infrastructure development in the area of recycling
・Resource productivity*1: From JPY 380,000/ton to JPY 490,000/ton
・Inflow ratio of recycled resources to natural resources used*2: 16% to 18%
・Outflow ratio of recycled resources to natural resources used**3: 44% to 47%
・Final disposal amount: 14 million tons to 13 million tons
(3 million tons of municipal waste, 10 million tons of industrial waste)
・Expansion of sound material-cycle society business markets:
Roughly double the FY2000 level (JPY 40 trillion) by FY2025
・Reduction of household food loss:
Half of the FY2000 level (4.33 million tons) by FY2025
Priority targets ・Amount of waste generated per person per day:
(FY2015 to From 925 g/person/day (FY2016) to 850 g/person/day
FY2025) ・Amount of household waste generated per person per day:
From 507 g/person/day (FY2016) to 440 g/person/day
・Remaining life of landfill sites:
Municipal waste: Maintain above 20 years in FY2022
Industrial waste: Roughly 10 years by FY2020
・Rate of formulation of disaster waste treatment plans:
Prefectures: From 43% to 100%
Municipalities: From 21% to 60%
・Electronic manifest diffusion rate: From 53% (2017) to 70% (2022)
・Rate of implementation of specific 3R actions:
Increase 20% by FY2025 from the level in the FY2012 public opinion survey
*1: Resource productivity = GDP / Natural resource input
*2: Inflow ratio of recycled resources to natural resources = Amount of recycled resources used / (Input of natural
resources + Amount of recycled resources used)
*3: Outflow ratio of recycled resources to natural resources = Amount of recycled resources used / Amount of waste
generated
Source: Ministry of the Environment “Fourth Fundamental Plan for Establishing a Sound Material-Cycle Society”
(2018)
Column: Material Flow in Japan

The first step in establishing a sound material-cycle society is knowing the amount of resources
being extracted, consumed, and disposed of. Material Flow Analysis (MFA) is the basis for the
overall vision of material flow in Japan’s economy and society (FY2000 and FY2018) and the target
values for material flow indicators set in the Fourth Fundamental Plan for Establishing a Sound
Material-Cycle Society.
FY 2000（Reference）
Import product（48）
Exports（120）
Imports
（796） Net increase to stock
Imported （1,071）
resources
（748） Total
Material
input
（2,134）
Domestic Natural Energy consumption and
resources resource construction process disposal
（1,125） input（1,921）（535）
Fertilization
Food consumption（97）（16）
Return to nature（85）
Generation
of waste
Wet waste, etc.*1 （595）Reduction（241）
（299） Final disposal
（56）
Volume of cyclical use（213）

（Units: million tons）
FY 2018
Import product （64）
Exports（181）
Imports Net increase to stock
（756）（486）
Imported
resources Total
（692） Material
input
Domestic （1,549）
resources Natural Energy consumption and
（555） resource input construction process disposal
（1,311）（493） Fertilization
Food consumption（85）（17）
Return to nature（76）
Generation
Wet waste, etc.*1 of waste
（546） Reduction（219）
（258）
Final disposal
（13）
Volume of cyclical use（238）

（Units: million tons）
*Wet waste, etc.: Input of water included in waste and the like (sludge, livestock waste, night soil, waste acid, waste
alkali) and sediments dumped in the process of economic activities (sludge in mining, construction and in
waterworks as well as slag)
Source：Ministry of the Environment Website “Annual Report on the Environment, the Sound Material-Cycle
Society and Biodiversity in Japan 2021” (2021)
Figure 1-25 Material Flow Analysis in Japan
Resource Productivity
Resource productivity is indicated by GDP (the total value added of goods and services
produced within a defined period of time) in terms of the amount of natural resource input.
The aim is to provide more goods and services with less resource input.
Inflow Ratio of Recycled Resources to Natural Resources Used

While materials become waste on the outflow side, they are material input on the inflow side.
In other words, the inflow ratio of recycled resources to natural resources used is the ratio of
the amount of recycled resources in terms of the total amount of material input.
Outflow Ratio of Recycled Resources to Natural Resources Used

This is the ratio of the amount of recycled resources in terms of the total amount of waste
generated.
Final Disposal Amount

This is the amount of waste disposed of in landfill sites or otherwise dumped.
Resource Productivity Inflow Ratio of Recycled Resources to

Natural Resources Used
(= GDP*1/ Natural resources ,etc. input) (= Cyclical amount used/(Natural resources,
etc. input + cyclical amount used))
(10,000 JPY/ton)
resources to natural resources used
Resource productivity
Incoming ratio of recycled
Target value
Target value 18%
490,000JPY/ton
Outflow Ratio of Recycled Resources to Final Disposal Amount

Natural Resources Used
(= Cyclical amount used/ Waste generation Amount) (= Waste disposal amount)
(100 billion JPY)
resources to natural resources used
Final disposal amount

Outgoing ratio of recycled
Target value
47%
Target value
13billion tons
*1: GDP: Gross Domestic Product

*2: Due to a revision of the method for estimating inflow and outflow ratios of recycled resources, the figures for
FY2016 and later were estimated differently than those for and before FY2015.
Source：Ministry of the Environment Website “Annual Report on the Environment, the Sound Material-Cycle
Society and Biodiversity in Japan 2021” (2021)
Figure 1-26 Resource Productivity, Inflow and Outflow Ratios and Final Disposal Amount
(2) Waste Management Facility Development Plan
The Waste Management Facility Development Plan is a plan for the development of facilities for
the treatment and disposal of waste. However, recently various functions have been demanded of
these facilities in addition to proper waste treatment. The plans includes interaction with the local
community, response to social structural changes, and disaster countermeasures. For this reason,
the plan provides specific figures for the recycling rate, remaining life of the disposal facility,
average incineration power generation efficiency, and the percentage of waste derived energy
supplied externally as priority targets.
The Waste Management Facility Development Plan defines the targets and outline of the waste
management facility development project for the planning period, based on the Waste Management
Act. The Waste Management Facility Development Plan is updated every five years, and the plan
formulated in 2018 emphasizes the development of waste management facilities that create new value
for the region, in addition to the promotion of the 3Rs and proper treatment, climate change
countermeasures, and strengthening of disaster countermeasures, which have been addressed in the
past. Furthermore, in light of changes in the social structure surrounding waste treatment, such as a
declining population, the plan also describes the soft measures necessary for the proper operation of
waste treatment facilities. The outline of the waste treatment facility development plan (formulated in
2018) is shown in Table 1-16.
Table 1-16 Outline of the Waste Management Facility Development Plan (Formulated in 2018)
Item Contents
The plan defines the targets and outline of the waste management facility
Outline development project for the planning period, based on the Waste Management
Act.
Date of June 2018 (formulated every five years – introduced in 2003, and revised in 2008,
formulation and 2013)
Plan period Five-year period from FY 2018 to FY 2022
1. Promote the 3Rs based on basic principles
2. Ensure a municipal waste treatment system that is resilient and safe against
Basic
climate change and disasters
philosophy
3. Develop municipal waste treatment facilities that take advantage of local
autonomy and ingenuity
1. Promotion of 3Rs through municipal waste treatment systems for
municipalities
2. Stable and efficient development and operation of facilities to ensure
sustainable and appropriate treatment
3. Promotion of climate change measures in waste treatment systems
Implementation
4. Promotion of the utilization of waste biomass
items
5. Strengthening disaster countermeasures
6. Development of waste treatment facilities that create new value for the region
7. Securing the understanding and cooperation of local residents, etc.
8. Ensuring proper bidding and contracting for construction work related to waste
treatment facility development
Waste recycling rate: 21%→27%
・Remaining life of landfill sites for municipal waste:
Maintain the level of FY2017 (20 years)
・ Average power generation efficiency of waste incineration facilities
constructed during the period: 19% → 21%
Priority targets
・Percentage of facilities supplying energy from waste to external sources:
(FY2018↓
40% → 46%
FY2022)
・Population penetration rate of septic tanks in septic tank improvement areas:
53% → 70%.
・Percentage of combined treatment septic tanks: 62% → 76%
・Greenhouse gas reduction due to the introduction of energy-saving septic tanks:
50,000 t-CO2 → 120,000 t-CO2
Source: Ministry of the Environment “Waste Management Facility Development Plan” (2018)
Plan for Waste Management at the Municipality Level
Municipalities, which are responsible for the practical management of waste, formulate their own
plans according to the plans and policies formulated by the central government. Because each
municipality is responsible for the realization of the plan (for example, implementation of collection
work, construction of facilities, etc.), it is necessary to formulate a plan that is feasible according to
the actual situation. Accumulated data and data from other municipalities are being utilized for this
purpose.
Based on the numerical data, measures to be taken and their effectiveness (emission control,
reduction, and public awareness) will be considered, and necessary facilities will be planned.
Based on the various laws and plans at the national level, plans for waste management at the
municipality level are formulated (as of 2020, 1,741 municipalities: 23 special wards, 792 cities, 743
towns, and 183 villages). The central government prepares guidelines and manuals for each
municipality to formulate their plans. Each plan has a set period of time, and a new plan is developed
for every set period of time (5 years, 10 years, etc.).
Municipalities develop not only plans required by law, but also action plans such as implementation
plans, which are designed to promote activities through cooperation between the administration and
local residents. Municipalities that formulate a variety of plans disclose information on draft plans on
their websites, and collect public comments on the plans in order to enhance the practicability of the
plans. Medium and long-term plans are periodically reviewed to maintain highly feasible plans in line
with social conditions, and that the plans are being reliably implemented.
Main items to be analyzed and calculated in the plan based on basic data related to waste (waste
amount and composition) are shown below.
・Projected future waste amount
・Amount of waste to be collected, treated, and disposed of in the future
・Number of collection vehicles required for collection in the target area
・Amount of waste that can be recycled in the target area
・Treatment capacity of intermediate treatment (incineration facilities, etc.)
・Landfill disposal capacity of landfill sites
The relationship between the various laws and the plans is shown below in Figure 1-27.
Basic Environment Act
Enacted by The Basic Act for Establishing a Sound Material-Cycle Society
Government The Fundamental Plan for Establishing a Sound Material-Cycle Society
＜Appropriate Waste Treatment＞＜Promotion of Recycling＞

Waste Management Act Effective Resource Utilization Promotion Act
＜Regulations in accordance with the properties of individual products＞

Containers and Packaging Home Appliance Recycling Act
Waste Management Act Recycling Act
Enacted by Basic policy
Food Waste Recycling Law
Prefecture Small Home Appliance
End-of-Life Vehicle Recycling Law Recycling Act
＜The government takes the lead in promoting

Waste Management the procurement of recycled products＞
Facility Development Plan
Act on Promoting Green Procurement
Prefecture Waste Prefecture Disaster Waste

Management Plan Management Plan
Municipal Masterplan
Municipal Basic
Enacted by Environmental Plan
Municipality Municipal Waste

Disaster Waste Management Plan
Management Plan
Municipal Waste Management Basic Plan Municipal Waste Management Action Plan
●Waste Management Basic Plan ●Waste Management Action Plan
●Domestic Wastewater Management Basic Plan ●Domestic Wastewater Management Action Plan
Source: Ministry of the Environment “Waste Management Basic Plan Formulation Guidelines” (2016)
Figure 1-27 Relationship between Various Laws and Plans
(1) Municipal Waste Management Plan
The municipal waste management plan shown in Figure 1-27 is based on the Waste Management
Act, and is set by the municipality regarding the municipal waste management plan in the area of the
municipality. The outline of the municipal waste management plan is shown in Table 1-17. There is a
basic long-term plan for 10 to 15 years and an implementation plan that is set for each fiscal year. The
long-term plan will be reviewed every five years based on the status of achievement of the plan.
Table 1-17 Outline of the Municipal Waste Management plan

Item Contents
Based on the Waste Management Act, the municipality establishes a plan for
municipal waste disposal in the area of the municipality in order to properly dispose
Outline
of general waste while preserving the living environment and improving public
health, which are the objectives of the Act.
Scope of
applicatio All areas within the municipality
n
All municipal waste generated in the municipality (including municipal waste to be
Target disposed of under the instructions of the municipality, by large waste generators and
by parties other than the municipality)
Municipal waste
management plan
Municipal waste management

Plan Waste management Domestic wastewater
basic plan
basic plan management basic plan
structure (10 to 15 year long term plan)
Municipal waste management Waste management Domestic wastewater

implementation plan implementation plan management implementation plan
(Annual plans)
[Municipal waste management basic plan]

Clarifies the basic policy from a long-term perspective, the future social and economic
conditions surrounding waste treatment, the expected generation of municipal waste,
local development plans, and the demands of local residents.
In addition to the above, the development of municipal waste treatment facilities and
systems, and the securing of financial resources are fully considered. Then, realistic
and concrete measures to realize them are comprehensively examined.
[Items specified in the waste management basic plan]
Contents 1. Estimated amount of waste generated and treated → Refer to column on next page
of each 2. Matters related to measures to reduce waste discharge
plan 3. Types and categories of waste collected separately
4. Basic matters concerning the proper treatment of waste and the persons who carry
out such treatment
5. Matters concerning the development of waste treatment facilities
6. Other necessary matters concerning waste treatment
[Municipal waste management implementation plan]
The plan must be formulated annually based on the municipal waste management
basic plan, and clarify the status of general waste discharge, treatment entities,
collection plan, intermediate treatment plan, and final disposal plan. Municipalities
must conduct collection, transportation, and disposal based on this plan.
Column: Projecting the Future Amounts of Waste Generated and Treated

According to the Ministry of the Environment's Waste Management Basic Plan Formulation
Guidelines (2016), the methods for future projections of waste generation and treatment are as
follows.
(1) Future Projections of Population and Business Activities, etc.
A. Future Projections of Population
It is appropriate to use the trend method*1 or the cohort factor method*2 to project the future
population. It is also possible to use the projected future population as indicated in the basic concept
of the municipality.
B. Future Projections of Business Activities, etc.
Concerning business waste, it is desirable to make the forecast considering the relevant
conditions, such as changes in the number of employees and business establishments and shifts in
economic conditions.
(2) Future Projections of Waste Generation Amount
First, make an estimate of how the amount of waste generated will change in the future if the
control of waste discharge and recycling is not promoted, and improvements toward the formation
of a sound material-cycle society are not made.
As a projection method, the amount generated per person per day (g/person/day) can be
calculated based on past results, and the actual results can be estimated in the future using methods
such as the trend method*1, and then multiplied by the projected future population to forecast the
amount generated.
Next, it is necessary to set targets based on the policies to be implemented to reduce waste
generation and promote recycling in households and business establishments. Specifically, targets
for the amount of waste produced are set based on the effects of generation control through the
introduction of fee-based waste treatment and the implementation of public awareness programs.
The target values for recycling must be set based on changes in the classification of waste sorting
and separate collection.
Based on the above, the amount of waste generated by type of waste (for example, combustible
waste, non-combustible waste, recyclables, bulky waste, specially-controlled general waste, etc.)
after achieving the set target, is projected after considering the effects of measures for each type of
waste, such as collection (directly or outsourced), directly received at the recycling facility, and
group collection.
In order to clarify the treatment systems and quantities to achieve the target values, it is desirable
to prepare a flow diagram showing the quantities from discharge to recycling and final disposal in
the target year or intermediate target year.
Preparation of a time-series graph to compare the forecast values in the case where the current
situation is maintained without the previously considered improvements toward the formation of a
sound material-cycle society, and the target values to be achieved through various measures, will
make it easier to explain to residents.
*1: The trend method is a type of chart analysis that focuses on the chronological changes, such as rising, falling,
and leveling off, to forecast the amount generated in the future.
*2: The cohort factor method is a method for calculating the future population by calculating the annual changes
in the population by age for each demographic factor (death, birth, and population movement).
Results of
Results of household waste discharge Results of business waste discharge Results of
weight
weight reduction
Amount Amount reduction and
and reuse Amount Directly In-house Amount Directly In-house reuse through
through group collected by collected by
collected by received treatment collected by received treatment group
collection, etc. direct direct collection, etc.
outsourcing amount amount outsourcing amount amount
management management
Future projections of population and business activities, etc.
Projections of household waste if generation Projections of business waste if generation is

is not reduced and reuse is not promoted not reduced and reuse is not promoted
Reduction of waste generation and promotion of recycling in households and businesses

・Introduction of a fee-based waste treatment system
・Promote residents' voluntary efforts through appropriate communication, provision of information, and
environmental education
・Thorough guidance to businesses that generate large amounts of waste on how to reduce their waste
・Reduction of waste containers and packaging (selection of products that use returnable containers, etc.)
・Promotion of sorting and separate collection and recycling
Estimated amount of household waste Estimated amount of business waste

generated generated
Estimated reduction and Estimated reduction and

recycling through recycling through
recovery at source, etc voluntary collection, etc.
Estimated amount of household waste collected, Estimated amount of business waste collected,
carried in, and in-house treatment amount carried in, and in-house treatment amount
Estimated Estimated
amount Estimated Estimated Estimated amount Estimated Estimated Estimated
collected amount amount in-house collected amount amount in-house
directly by collected by directly treatment directly by collected by directly treatment
local outsourcing received amount local outsourcing received amount
authority authority
Estimated amount to be carried in from other

municipalities
(Estimated amount of waste carried out to other municipalities)
Estimated amount of waste treatment
*: With regard to waste collection, it is desirable to classify recyclables into paper, metal, glass, and plastic containers
and packaging in order to set targets for resource recycling and reuse, as well as to estimate the amount of waste
discharged by type (combustible, noncombustible, recyclables, etc.), corresponding to separate collection.
Figure 1-28 Examples of Methods for Projecting the Future
Amount of Waste Generated and Treated
(2) Municipal Separate Collection Plan
The municipal separate collection plan is set by municipalities for implementing separate collection
of waste containers and packaging based on the Containers and Packaging Recycling Act. The plan is
formulated every three years for a five-year term, and has been formulated nine times since 1997.
An outline of the 9th Municipal Separate Collection Plan is shown in Table 1-18. The total number
of municipalities is 1,741 (including special cities) and all of them have formulated their respective
9th Municipal Separate Collection Plan, and it is expected that all municipalities will carry out some
kind of waste containers and packaging separate collection during the five years from FY2020 to
FY2024.
Table 1-18 Outline of the 9th Municipal Separate Collection Plan

Item Contents
Set by municipalities for implementing separate collection of waste containers
Outline and packaging based on the Containers and Packaging Recycling Act and the
Plastic Resource Recycling Promotion Act.
Plan period Five-year period from FY 2020 to FY 2024
All municipalities can formulate municipal separate collection plans at their own
discretion.
Scope of
(Disposal of municipal waste is an autonomous task of municipalities, and
application
separate collection is not mandatory, but instead introduced and implemented
based on local conditions.)
Article 2 of the Ministerial Ordinance on the Separate Collection of Containers
and Packaging Waste (Ordinance of the Ministry of Health and Welfare No. 61
of 1995) stipulates the following categories for sorting in consideration of the
Target of
promotion of recycling: steel containers, aluminum containers, glass containers
separate
(sorted into three colors: colorless, brown, and other), paper beverage
collection
containers, cardboard containers, paper containers and packaging, PET bottles,
plastic containers and packaging (only white styrofoam food trays can be sorted
and collected).
・Projected amounts of waste containers and packaging to be discharged in each
fiscal year
・Matters related to measures to promote reduction of waste containers and
packaging discharged
・Type of waste containers and packaging that are to be sorted and collected and
the classification of sorting pertaining to collection of the waste containers
Matters to be
and packaging
formulated
・The amount of waste containers and packaging that conform to the specified
sorting standards obtained in each fiscal year and the expected amounts of
waste containers and packaging specified by the ordinance of the competent
ministry prescribed in Article 2, paragraph 6 of the Containers and Packaging
Recycling Act (steel containers, aluminum containers, glass containers
(colorless, brown, etc.), cardboard, paper containers for beverages, paper
Item Contents
containers and packaging, PET bottles, plastic containers and packaging)
・Basic matters concerning the party that implements separate collection
・Matters related to the development of facilities used for separate collection
・Other important matters concerning implementation of separate collection of
waste containers and packaging
Pet bottles
FY2020: 1,724 municipalities (99.0%) → FY2024: 1,724 municipalities
(99.0%)
Estimated amount of separate collection: 312,000 tons → Estimated amount of
separate collection: 317,000 tons
Projected Plastic containers
implementation FY2020: 1,390 municipalities (79.8%) → FY2024: 1,398 municipalities
of separate (80.3%)
collection Estimated amount of separate collection: 726,000 tons → Estimated amount of
Paper containers and packaging*
FY2020: 863 municipalities (49.6%) → FY2024: 865 municipalities (49.7%)
Estimated amount of separate collection: 101,000 tons → Estimated amount of
*: In addition to the above-mentioned 865 municipalities (FY2024) that have positioned paper containers and packaging
in their separate collection plans, there are many municipalities that collect paper containers and packaging as
miscellaneous waste, etc., together with paper other than containers and packaging for recycling.
Source: Ministry of the Environment, “Guide to Formulating Municipality Separate Collection Plans (Ninth Revised
Edition)” (2019).
Ministry of the Environment Website, “Results of the Estimated Amount of Separate Collection From 2020
Based on the Containers and Packaging Recycling Act” https://www.env.go.jp/press/107515.html (accessed
January 30, 2022) https://www.env.go.jp/press/107515.html （accessed January 30, 2022）
(3) Inter-Municipal Waste Treatment Plan
Inter-municipal waste treatment refers to the practice when several municipalities jointly implement
the treatment and disposal of waste, thereby reducing the environmental burden and costs.
Since the issuance of the plan titled “Regarding the Inter-municipal Waste Treatment Plan”
(Ministry of Health and Welfare, May 28, 1997), all prefectures have formulated plans for inter-
municipal waste treatment, and prefectures and municipalities have been making efforts for inter-
municipal waste treatment and the consolidation of waste treatment facilities.
As a result, a total of 438 blocks for inter-municipal waste treatment were established nationwide
(as of 2020). As of 2013, the number of waste incineration facilities in 245 of these blocks had
decreased compared to the time when the plan was formulated, and a certain degree of success has
been achieved in terms of inter-municipal waste treatment and consolidation. On the other hand, there
have been cases where inter-municipal waste treatment and consolidation have not advanced due to
factors such as the belief that there is little merit in doing so and the difficulty in coordinating among
municipalities and with residents.
Japan's population is currently in a declining stage, and it is expected that the financial position of
the national and municipalities will become more difficult and that there will be a shortage of
manpower for waste treatment. In addition, the total amount of waste generated is also on a downward
trend, making it extremely difficult to continue with the conventional waste treatment system. The
inter-municipal waste treatment plan has been formulated based on the fact that it will be necessary to
consider a stable and efficient waste treatment system from a medium to long-term perspective. An
outline of the inter-municipal waste treatment plan is shown in “Guidance on Inter-municipal Waste
Treatment and Consolidation”, prepared by Ministry of the Environment, in 2020.
Table 1-19 provides an outline of the inter-municipal waste treatment system, and Figure 1-29
shows the flow of efforts needed to develop inter-municipal waste treatment and consolidation and the
implementing bodies for these efforts (for more details on inter-municipal waste treatment, refer to
“Topic 2-3.4: Inter-Municipal Waste Disposal”).
Table 1-19 System of Inter-Municipal Waste Treatment Plan

Item Contents
The prefecture and the municipalities in its jurisdiction collaborate to formulate an
Outline
inter-municipal waste treatment and consolidation plan.
Plan period In principle 10 years
(1) Ensure sustainable and appropriate treatment
・Establishment of a stable and efficient waste treatment system
・Renewal of aging waste treatment facilities
・Improving the cost efficiency of waste treatment
・Securing human resources and transfer of technology through cooperation among
Necessity of
prefectures and municipalities
the inter-
(2) Promotion of climate change measures
municipal
・Energy conservation at waste treatment facilities
waste
・Recovery and utilization of waste energy
treatment
(3) Promotion of waste recycling and biomass utilization
・Utilization of waste biomass
(4) Strengthening disaster countermeasures
・Ensuring the continuity of waste treatment operations in the event of a disaster
・Focusing investment on strengthening facilities and systems
(5) Creation of new value for the region
(1) Plan period
(2) Creation of an inter-municipal waste treatment block demarcation
Inter- (3) Waste treatment system in each block
municipal (4) Estimation of current and future emissions of dioxins
Waste (5) Waste treatment methods during the transitional period until the completion of
Treatment inter-municipal waste treatment
Plan (6) Where to use RDF when it is produced
Contents (7) Other matters (transportation method, amount recycled, amount of waste
generated, sorting method, etc.)
(8) How to follow up on the inter-municipal waste treatment plan
Points to ・The body that formulates the plan
consider ・Evaluation of the previous inter-municipal waste treatment plan
when ・Future projections of the population and waste generation
formulating ・Review of the setting of inter-municipal waste treatment block demarcation
the plan ・Consideration of the waste treatment system for each block
Source: Ministry of the Environment “Guidance on Inter-municipal Waste Treatment and Consolidation” (2020)
(1) Notice of the Ministry of the Environment: “Inter-municipal Waste Treatment

and Consolidation of Waste Disposal Facilities to Ensure Sustainable and
Appropriate Waste Disposal" (March 29, 2017)
 Request to formulate a plan for wide area waste treatment and consolidation by the end National
of FY2021
government
 Request to establish an efficient waste treatment system in accordance with the inter-
municipal waste treatment and consolidation plan
(2) Formulation of inter-municipal waste treatment and consolidation plan (study

groups in prefectures, etc.)
 Evaluation of the previous inter-municipal waste treatment and consolidation plan
 Future projections of the population and waste generation Municipality
 Review of the setting of inter-municipal waste treatment block demarcation
 Consideration of the waste treatment system for each block
*Formulate or revise based on the actual situation and intentions of the municipality
Municipalities
(3) Consideration within the inter-municipal block (municipal block meetings, etc.) that make up
the inter-
 Research on the feasibility of inter-municipal waste treatment and consolidation municipal block
(estimation of benefits, etc.) (with the
cooperation of
 Determination of municipalities to participate in inter-municipal waste treatment and the prefecture)
consolidation
(4) Review and coordination between municipalities

[Matters to be reviewed and adjusted]
 Organizational structure
 Waste treatment facilities to be developed
 Waste treatment flow
Municipalities
 Selection of candidate sites for construction of facilities that will
participate in
 Cost sharing inter-municipal
 Sorting and charging for waste waste treatment
and conslidation
 Waste collection and transport (with the
cooperation of
 Waste treatment methods during the transitional period
the prefecture)
 Schedule for inter-municipal waste treatment and consolidation. etc.
*At the same time, promote understanding among residents
Implementation of inter-municipal waste treatment and consolidation
Source: Ministry of the Environment “Guidance on Inter-municipal Waste Treatment and Consolidation” (2020)
Figure 1-29 Action Flow and Actors for Inter-Municipal Waste Treatment and Consolidation
Plan for the Development of Waste-related Facilities
(1) Technical Guidelines for Environmental Impact Assessment
Environmental assessments in Japan are broadly classified into four types of assessments,
including legal assessments, and the content of the assessment differs depending on the type and
scale of the project. The information necessary for implementation of an assessment, such as the
flow of assessment and items to be surveyed, is provided in detail in the guidelines. As for the field
surveys conducted for the assessment, detailed measurement methods are defined.
When developing a facility such as a waste incineration plant or a landfill site, an environmental
assessment is often conducted to investigate, predict, and evaluate the environmental impact on the
surrounding area. The implementation of environmental assessment also plays an important role in
building consensus with the surrounding residents. In Japan, as shown in the table below, there are
four types of assessment: 1) assessment based on the Environmental Impact Assessment Act, 2)
assessment based on local government ordinances, 3) assessment based on the Waste Management
Act, and 4) voluntary assessment.
1) Assessment based on the Environmental Impact Assessment Act

Thirteen (13) types of projects are identified in the Environmental Impact Assessment Act as targets
of this assessment. Depending on the scale of the target facility, there are two main types of projects:
Class 1 projects are those for which environmental assessment is mandatory, and Class 2 projects are
those for which the need for environmental assessment is judged individually, as shown in the
following figure. A landfill site is classified as a Class 1 project for an area of 30 ha or more, and a
Class 2 projects for an area of 25-30 ha. On the other hand, intermediate treatment facilities
(incineration plants, etc.) are not subject to assessment under the Environmental Impact Assessment
Act.
Source: Ministry of the Environment “Environmental Impact Assessment in Japan” (2020)

Figure 1-30 Projects Subject to the Environmental Impact Assessment Act
2) Assessment Based on Local Government Regulations

For projects that are not required to be assessed under the Environmental Impact Assessment Act,
an environmental assessment must be conducted if the project is subject to the assessment ordinance
of the municipality. Each municipality has its own environmental assessment ordinance that defines
the scale of projects that require environmental assessment, and also establishes technical guidelines
for environmental impact assessment to ensure that environmental impact assessment and post-
implementation studies of waste treatment facilities are properly conducted based on scientific
knowledge.
3) Assessment Based on the Waste Management Act

Table 1-20 shows an outline of the Guidelines for Living Environment Impact Studies for Waste
Treatment Facilities, which show how to conduct assessments based on the Waste Management Act.
These guidelines cover items related to people’s lives, such as air quality, noise, and odor, as the living
environment.
Table 1-20 Outline of the Guidelines for Living Environment Impact Studies for
Waste Treatment Facilities
Item Contents
Technical guidelines for environmental impact assessment to ensure that
Outline environmental impact assessment and post-implementation studies of waste
treatment facilities are properly conducted based on scientific knowledge.
Date of
1998 (revised in 2006)
formulation
Applicable Incineration facilities, landfill sites, other facilities (crushing and sorting facilities,
facilities manure treatment facilities, sludge dewatering facilities, etc.)
Environmental impact assessment items, actions subject to environmental impact
assessment, timing of environmental impact assessment, regions where
environmental impact assessment is to be conducted, surveys, forecasts,
evaluations, environmental conservation measures, follow-up assessment, etc.
Organization of survey Setting of the area to be Survey

Plan to Understanding of current
items surveyed
assessment status
Preparation of living Assessment

environment impact Projection
survey form Impact analysis
Flow of environmental impact assessment
Examples of survey items stated in the Guidelines for Living Environment Impact
Examples of Studies of Waste Treatment Facilities
environmental
Incineration Facilities
impact
assessment Air quality, noise, vibration, odor, water quality
items Landfill
Air quality, noise, vibration, odor, water quality, groundwater
Source: Ministry of the Environment, “Guidelines for Living Environment Impact Studies of Waste Treatment Facilities”
(2006)
4) Voluntary Environmental Assessment

For projects which are not subject to environmental assessment under municipal ordinances or the
Waste Management Act, the business operator may voluntarily conduct an assessment, also known as
a voluntary assessment or mini-assessment. In particular, for waste treatment facilities and landfill
sites projects, it should not be considered that an assessment is not necessary because these projects
are not targeted in the relevant laws and regulations, and it is customary to conduct voluntary
environmental assessments for these projects.
The following pictures show examples of actual surveys in an environmental assessment.
Microphone
Vibration Pickup
Photo 1-11 Roadside Noise and Vibration Photo 1-12 Installed Sound Level Meter
Surveys and Vibrometer
Photo 1-13 Balloon Release Photo 1-14 Odor survey

for Upper-level Meteorological Survey*
Dioxins Sampler
Photo 1-15 Collecting river Water for

Water Quality Survey
Test Sampling Port

3.0m from ground: SPM
1.5m from ground: SO2, NOx, HCl, Hg, etc.
Photo 1-16 Simple installation Shed for Photo 1-17 Road Traffic Volume survey
Measuring Air Quality
*: The upper-level meteorological survey is carried out to predict the dispersion of exhaust gases from incineration
facility chimneys. A small GPS-equipped device is attached to a balloon to measure air temperature and wind speed
at different altitudes (the equipment is not recovered).
Activities Related to Environmental Assessment
Column: Environmental and Social Considerations in Developing Countries

In Japan, impact assessments are mainly conducted from the environmental perspective, but in
projects for developing countries, social factors such as resettlement, indigenous peoples, living
and livelihoods are of greater importance. For example, waste pickers who make a living by sorting
and selling recyclables at disposal sites, will lose their jobs if open dumping sites are closed, and
they will need support. In some cases where necessary land acquisition results in resettlement of
residents, it may be required to pay them compensations.
JICA has released the Guidelines for Environmental and Social Considerations, which describes
the process of environmental and social considerations, as well as a checklist of items by category
and items to be monitored in each category. Examples of check items are shown in the table below.
There is a need to investigate environmental and social considerations that match the nature of the
project, the policies of the country, and the characteristics of the site.
Table 1-21 Categories and Items in Checklists

Category Item
1. Permits approval and Environmental assessment and environmental permits,
consultations Explanations to, and consultations with the local stakeholders
Air quality (including greenhouse gas), Water quality and water
2. Pollution control
use, Waste, Soil contamination, Noise and vibration, Subsidence,
measures
Odor, Sediment
3. Natural environment, Protected area, Ecosystem and biodiversity, Hydrology,
protected areas Topography and geology, Management of abandoned sites
Resettlement, Living and livelihood, Heritage, Landscape, Ethnic
4. Social environment minorities and indigenous peoples, Working conditions (including
occupational safety)
5. Others, impacts
Accident prevention measures, Monitoring
during construction
*: When using the checklist, appropriate items are selected and checked depending on the sector and nature of the
project.
Source: JICA “Guidelines for Environmental and Social Considerations” (2022)
Table 1-22 Monitoring Items

Category Item
1. Permits and approvals,
Response to conditions set by authorities
consultations
2. Pollution prevention Air quality, Water quality and water use, Waste,
measures Noise and vibration, Odor
3. Natural environment
Ecosystem and biodiversity
protected areas
4. Social environment Resettlement, Living and livelihood
5. Others, Grievances Number and contents of complaints
*1: Monitoring items are selected according to the sector and nature of the project.
*2: For air quality, water quality, noise and vibration, specify whether emission levels or environmental levels. It
also should be noted that the monitoring items in the construction phase are different from those in the operation
phase of the project.
Source: JICA “Guidelines for Environmental and Social Considerations” (2022)
(English) https://www.jica.go.jp/environment/guideline/ei8tc50000005dzu-att/guideline_202201_e.pdf
(2) Comprehensive Plan for Extending the Service Life of Waste Treatment Facilities
(Waste Incineration Facilities)
Waste treatment facilities are projects that place a high burden on the public administration due
to the high cost of construction and the need for obtaining the residents’ acceptance of the facility.
Therefore, this plan has been formulated with the aim of ensuring that the facilities that have been
developed will be in operation for as long as possible. In the Comprehensive Plan for Extending the
Service Life of Waste Treatment Facilities, it is required to extend the service life of waste treatment
facilities by sustaining all the functions of the facilities over the long term through appropriate
operation management, periodic maintenance, and functional diagnosis noting the unique role of
the waste treatment facilities in the management of the waste.
Waste treatment facilities often operate under conditions where the facilities, equipment, and
components that make up the facilities are exposed to high temperatures, high humidity, and corrosive
gases, and are prone to wear and tear due to mechanical movement. Therefore, the performance of
waste treatment facilities deteriorates and wears out more rapidly than other urban facilities, and the
service life of the facilities as a whole is considered to be shorter than that of other urban facilities.
Although the service life of concrete buildings is about 50 years, some waste treatment facilities have
been decommissioned entirely after about 20 years, including buildings that can still be used, because
of deterioration in plant performance. On the other hand, waste incineration plants have a possibility
of operating for more than 30 years, by implementation of proper daily operation and suitable periodic
maintenance, appropriate annual periodic inspections and maintenance, and periodic updating of core
facilities.
An outline of the Guidance on Creation of Comprehensive Plan for Extending the Service Life of
Waste Treatment Facilities (waste incineration facilities) issued by Ministry of the Environment is
shown in Table 1-23. The plan is designed to preserve and extend the service life of such facilities
through systematic inspections, investigations, repairs, and improvements based on foresight into the
condition of facilities, including aging, from a long-term perspective. Municipalities formulate a
facility maintenance plan to evaluate and improve the overall operational condition of the facility
based on periodic maintenance records and functional diagnosis data of facilities and equipment.
Based on the data accumulated through the operation of the facility maintenance plan, a life extension
plan is developed, and facilities should be renewed at appropriate time intervals. Furthermore, as for
main facilities and equipment, a detailed maintenance plan is developed with reference to the current
condition of the facilities, track records of past repair and maintenance, and patterns of degradation
and malfunction. A Comprehensive Plan for Extending the Service Life is developed with detailed
plans for facility maintenance and life extension, which can in turn be used to prepare long-term budget
plans and plans for applying for subsidy from the Ministry of the Environment. As shown in Figure
1-31, in order to apply for life extension work as a project eligible for a subsidy from the Ministry of
the Environment, it is also required to calculate the effect of carbon dioxide emission reduction by
renewal of facilities and equipment from the point of view of global warming countermeasures.
Table 1-23 Outline of Comprehensive Plan for Extending the Service Life of
Waste Treatment Facilities (Waste Incineration Facilities)
Item Contents
The purpose of this plan is to extend the service life of waste treatment facilities by
introducing the concept of stock management, proper daily operation and
Outline
management, appropriate annual inspections and maintenance, and plan for
periodic renewal of major facilities and equipment.
Applicable
Waste treatment facilities in general
facilities
Collection and maintenance of
maintenance and repair data
Plan Selection of conservation methods

Comprehensive Facility maintenance plan
structure Plan for Extending Establishment and operation of
the Service Life Life extension plan equipment-specific management standards
Prediction of deterioration, failure and life

expectancy of facilities and equipment
1. Organize future plans

Details to be
2. Set target years for service life extension
considered
3. Identify issues and points to consider for service life extension
for service
4. Set target performance levels
life
5. Identify the scope of improvement required to achieve the performance level
extension
6. Comprehensive coordination of regional units
Source: Ministry of the Environment, “Guidance on Creation of Comprehensive Plan for Extending the Service Life
of Waste Treatment Facilities (Waste Incineration Facilities Applications)” (2021)
[Planning procedure] [Details of considerations]
(1) Targets of the life extension Organize future plans

plan
Set target years for service life extension
Identify issues and points to consider for service life extension
Set target performance levels
Identify the scope of improvement required to achieve the

performance level
(2) Measures for service life Consideration and setting of timing for implementation of
extension service life extension work
Comparison and evaluation of service life extension and renewal

(3) Effects of service life
extension (Quantitative comparison by waste treatment LCC)
Summary of effects of service life extension
(4) Reduction of carbon dioxide

emissions through service Calculation of carbon dioxide emissions of the entire facility before
life extension measures* and after service life extension measures
Calculation of carbon dioxide emissions after service life extension

measures
Summary of reduction of carbon dioxide emissions through service

life extension measures
Summary of service life Summary of the service life extension plan, including target years
extension plan and details of improvements
*: This
*This is
is mandatory
mandatory if if
thethe core
core facility
facility improvement
improvement projectproject is to be implemented
is to be implemented with a grant.with a grant.
Figure 1-31 Flow of Service Life Extension Planning (Waste Incineration Facilities)
Response to the drafting of a comprehensive

plan for extending the service life
Understanding and clarifying the
overall outline of the facility
Plan formulation process
Comprehensive plan for extending the service life
Clarification of planning Collection and arrangement

preconditions of maintenance and repair
data
Creation of a list of
facilities and equipment
Facility maintenance plan

Data collection Selection of maintenance
For plan formulation: methods for each facility
• Scope of data collection and piece of equipment
• Data collection method
• Setting of data evaluation Setting of control standard
method values for each facility and Functional
• Implementation of data piece of equipment diagnosis survey
collection results
Accumulation of Various historical

maintenance management data
Analysis and planning of data ●Results of daily
countermeasures inspections
• Data analysis and evaluation ●Periodic repair
• Consideration of work
countermeasure plans Projections for ●Accidents,
deterioration, failure, and failures, etc.
repair
Plan Service life extension

formulation planning
Source: Ministry of the Environment, “Guidance on Creation of a Comprehensive Plan for Extending the Service Life
Figure 1-32 Framework of Comprehensive Plan for Extending the Service Life
Column: What is Stock Management?

In stock management, in order to extend the service life of facilities, at the time of performing
routine maintenance, functional diagnosis is conducted before the required performance level of a
facility's plant and equipment declines below the management level. Based on the results of the
functional diagnosis, functional maintenance measures and life extension measures are
implemented to effectively utilize and extend the service life of existing facilities, and at the same
time, reduce life cycle costs. This kind of technical system and management method is called stock
management. Stock management can be expected to have a variety of benefits, such as reducing the
burden on municipalities by extending the service life of facilities, reducing lifecycle costs,
improving safety, enhancing functions, and securing the trust of residents in the facilities.
Performance
Initial diagnosis Target performance level
performance level
Improvement
Deterioration
prediction
Reinforcement and
functional recovery
Performance level
Evaluation
Management standards
Limit level of use
Years of using
Figure 1-33 Performance Degradation Curves and Control Levels
Topic 2. Legislation and Government Policy Pertaining to Waste Contents
Topic 2. Legislation and Government Policy Pertaining to Waste
Contents
History of Waste Management in Japan ................................................................................ 1
Changes in Social Conditions in Japan, and Issues and Legislation Pertaining to Waste
Management ......................................................................................................................... 1
(1) Japanese Society Prior to Modernization (up to the Early 19th Century) ...................... 3
(2) From the Advent of Modernization to the Assurance of Public Health (Late 19th Century
and Early 20th Century) ..................................................................................................... 3
(3) From the Establishment of a Modern Society to the Improvement of Public Health (1945
to the 1950s)...................................................................................................................... 4
(4) From Rapid Development on Route to Modernization (High Economic Growth)
[Emergence of Pollution Problems and Efforts to Preserve Living Environments] (1960s and
1970s) 6
(5) From the Development of a Modern Prosperous Society to the Transition to a Sound
Material-Cycle Society (1980s and early 1990s) ................................................................... 8
(6) From the Maturation of a Modern Society to the Establishment of a Sound Material-Cycle
Society (mid-1990s and 2000s) ......................................................................................... 10
Legislation Pertaining to Waste Management ..................................................................... 11
Changes in Legislation Pertaining to Waste Management..............................................11
(1) From Improving Public Health to Resolving Pollution Problems and Preserving Living
Environments ...................................................................................................................11
(2) Establishing a Sound Material-Cycle Society .......................................................... 13
Legal Structure Pertaining to Waste Management........................................................ 14
Japan’s Legal Structure Pertaining to Waste Management ........................................ 14
Basic Act for Establishing a Sound Material-Cycle Society ...................................... 16
Waste Management and Public Cleansing Law ........................................................ 18
Effective Resource Utilization Promotion Act ......................................................... 21
Containers and Packaging Recycling Law............................................................... 22
Home Appliance Recycling Law ............................................................................ 22
Food Waste Recycling Law ................................................................................... 23
Construction Material Recycling Law..................................................................... 25
End-of-Life Vehicles Recycling Law ...................................................................... 26
Small Home Appliances Recycling Act................................................................... 26
Act on Promoting Green Procurement .................................................................... 28
Contents Topic 2. Legislation and Government Policy Pertaining to Waste
Policies Pertaining to Waste Management .......................................................................... 30

Standards and Guidelines for Proper Waste Treatment ................................................. 30
Technical Standards in the Waste Management Act.................................................. 30
Performance Guidelines for Waste Treatment Plants ................................................ 33
Thermal Recovery .................................................................................................... 36
New Energy Act ................................................................................................... 37
Feed-in Tariff (FIT) Act ......................................................................................... 38
Pollution Countermeasures (for Dioxins, etc.) ............................................................. 38
Inter-Municipal Waste Disposal ................................................................................. 40
Summary of the 1997 Notification ......................................................................... 40
Summary of the 2019 Notification ......................................................................... 41
Outcomes of Inter-Municipal Waste Disposal .......................................................... 42
Issues in Inter-Municipal Waste Disposal ................................................................ 43
3R Promotion ........................................................................................................... 46
The 3R Initiative ................................................................................................... 46
Initiatives at G7/G8 Summits ................................................................................. 47
Promotion of the 3Rs in Asia ................................................................................. 48
Topic 2. Legislation and Government Policy Pertaining to Waste 2-1
Amid the various steps toward establishing a modern society - namely improving public health,
preserving living environments, and establishing a sound material-cycle society -, Japan has
confronted many waste management-related problems associated with economic growth,
industrialization, urbanization, and changing lifestyles among other factors, and on each occasion
has established or amended legislation to support countermeasures to deal with these problems.
This section introduces the history of waste management during the modernization process,
specifically how Japan dealt with issues and needs of times through legislation. This section also
includes an overview of active legislation pertaining to waste management.
Changes in Social Conditions in Japan, and Issues and Legislation Pertaining to Waste
Management
Japan has confronted many issues stemming from drastic changes in the lifestyles and on each
occasion, Japan has established necessary countermeasures and legislations in an effort to resolve
them, which has formed today’s modern society.
Since the late 19th century, the social environment in Japan has changed as modernization progresses,
and residents’ lifestyles and living environments have changed accordingly. Although Japan has
successfully created a highly convenient society, it has also confronted many waste management-
related issues from one era to the next. “Waste management” is also referred to as “waste treatment”
in the law, and the two are synonymous.
Table 2-1 Changes in the Social Situation in Japan and Issues and legislation
Related to Waste Mnagement
Period Major Issues Laws Enacted
Post-war • Waste management for environmental sanitation • Public Cleansing Act (1954)
period • Maintenance of a healthy and comfortable living
to the 1950s environment
• Increase in the amount of industrial waste and • Act on Emergency Measures concerning the Development of
1960s to emergence of pollution problems as a result of • Living Environment Facilities (1963)
Pollution problems and living environment protection
1970s rapid economic growth • Waste Management Act (1970)

• Waste management for environmental protection • Revision of the Waste Management Act (1976)
• Promotion of the development of waste • Wide-area Coastal Environment Development Center Act (1981)
Public health improvement
management facilities • Private Sewerage System Act (Johkasoh Law) (1983)

1980s • Environmental protection required for waste
management
Establishment of a sound material-cycle society
• Waste generation control and recycling • Revision of the Waste Management Act (1991)
• Establishment of various recycling systems • Act to Promote the Development of Specified
• Management of hazardous substances (including • Facilities for the Disposal of Industrial Waste (1992)
dioxins) • Japanese Basel Act (1992)
1990s • Introduction of a proper waste management system • Basic Environment Act (1993)
to cope with diversification in the type and nature • Containers and Packaging Recycling Act (1995)
of waste • Revision of the Waste Management Act (1997)
• Home Appliance Recycling Act (1998)
• Act on Special Measures against Dioxins (1999)
• Promotion of 3R measures aimed at the • Basic Act for Establishing a Sound Material-Cycle Society (2000)
establishment of a sound material-cycle society • Construction Recycling Act (2000)
• Enhancement of industrial waste management • Food Recycling Act (2000)
• Enhancement of illegal dumping regulations • Revision of the Waste Management Act (2000)
• Act on Special Measures concerning Promotion of Proper
• Treatment of PCB Wastes (2001)
2000- • Automobile Recycling Act (2002)
• Act on Special Measures concerning Removal of Environmental
• Problems Caused by Specified Industrial Wastes (2003)
• Revision of the Waste Management Act (2003 to 2006, 2010)
• Small Home Appliance Recycling Act (2013)
• Revision of the Waste Management Act (2015, 2017, 2020)
• Plastic Resource Circulation Act (2022)
4 Beginning of 4
public
service for Strengthening
industrial countermeasures
waste Waste reduction for illegal dumping
and recycling by
Improvement of Industrial waste business operators
public cleansing Waste was generation amount
system by recognized Modernization Opposition
movement Beginning of Limitation of Establishing a
government as social of waste
against government management at Sound Material-
and problem treatment
Figure 2-1 History of Waste Management in Japan

facility initiative for waste disposal stage Cycle Society 1
1 municipalities
Topic 2. Legislation and Government Policy Pertaining to Waste
constriction reduction
0.5 Municipal waste 0.5
generation amount
Source: JICA “Technical Expertise of Japan in Solid Waste Management” (2005)

Billion GDP per capita (US$*) Billion
tons *145 Yen per USD 7,737 14,445 19,539 25,353 26,405 tons
(Year 1990)
Main Market
Unit Waste
Generation Rate (g) 693 1,003 982 1,105 1,132
TMovement United Nations Conference on the United Nations Conference World Summit on
for the Human Environment (‘72) on Environment and Sustainable Development,
Environment “The Limits to Growth”(‘72) Development (‘92) “(WSSD”(‘02)
he Global
Introduction of extended Basic Act for
Waste Management and Public Cleansing Establishing a Sound
production responsibility
Law (‘70) Material-Cycle Society
Related laws The Basic Environment
Introduction of discharge responsibility. Law(‘93) (‘00)
Policy Public
Pollution Control Establishment of Environment Agency (‘71)
development Cleansing Law for the Promotion
Basic Law (‘67) (→ Ministry of the Environment (‘01)) Law for the Promotion of
Act (‘54) Utilization of Recycled of Effective Utilization
Resources(‘97) of Resources→ (‘00)
Social Goals Maintenance and
Changes in Environmental Establishing a Sound
improvement of Material-Cycle Society
social goals Preservation
sanitation
Osaka World Exposition (‘70) Rapid depreciation Yen against the highest Aichi Expo (‘05)
Tokyo Olympics,
Economic Post-war Transition to a floating exchange of the yen US dollar exchange rate
Shinkansen opens (‘64)
Characteristics reconstruction rate system for the yen (‘73) record (‘95)
High economic growth Stable growth
Oil shock Low growth
1950s 1960s 1970s 1980s 1990s 2000s
2-2
(1) Japanese Society Prior to Modernization (up to the Early 19th Century)
Prior to Japan’s modernization in the mid-late 19th century, the country had very little contact with
other countries, and its industrial structure was based on agriculture, mainly the rice cultivation. Rice,
vegetables, and other crops were generally consumed where they were produced. Additionally,
because farmers in rural areas collected and used kitchen waste, sewage, ash, and other valuable waste
from cities to effectively complement and improve soil in rice and vegetable fields, cities formed
strong relationships with surrounding rural areas, and zones for regional circulation were developed.
Consequently, as kitchen waste and sewage did not remain in urban areas it was possible to create
such sanitary urban environments with relatively few infectious diseases occurring.
During this era, important efforts were undertaken to establish a sound material-cycle society. In
the absence of modern industrial activity, tradespeople made many things by hand, so people treasured
what they had, and merchants not only reused things but also repaired them frequently.
Waste management during this era involved collection, transport, and disposal, and under the
established system, officially certified contractors collected the waste, and private entities disposed of
it in designated locations. Laws and regulations prohibited the dumping of waste outside designated
locations, and efforts were made to convert land where waste was disposed of into new rice fields.
(2) From the Advent of Modernization to the Assurance of Public Health (Late 19th
Century and Early 20th Century)
When the push towards modernization began amid changes to Japan’s system of government in the
late 19th century and early 20th century, people and goods moved around more freely, and an influx of
Western culture inspired people to adopt Western lifestyles. This caused an increase in both the amount
and types of waste generated, and unsanitary conditions began to appear in various places as people
exhibited new behaviors such as disposing of waste in places like vacant land.
Additionally, the mismanagement of dumping site lead it to become the breeding grounds of flies,
mosquitos, and mice, as well as the frequent exchange with foreign countries brought cholera,
pestilence, and other infectious diseases from abroad, resulting in outbreaks that prompted recognition
of the importance of properly managing waste dumping sites. In other words, the assurance of public
health came to be recognized as a priority issue. In light of these circumstances, the Waste Cleaning
Act was enacted in 1900 and the implementation of waste management service was made an obligation
of the municipalities. The waste was either disposed by the waste generators themselves or collected
and disposed of by private waste treatment companies. The act stipulated that waste should be
incinerated as much as possible (Article 5 of the Enforcement Regulations of the Waste Cleaning Act),
making incineration the standard method of waste disposal, but most waste was burned in the open.
In 1933, 93% of the cities covered by the act (113 out of 122 cities) had at least one incinerator, and
incineration accounted for about 50% of the total waste treatment in Japan. At the same time,
2-4 Topic 2. Legislation and Government Policy Pertaining to Waste
incineration technology was still in its infancy and incinerator performance was inadequate.
However, in 1941, with the outbreak of the Pacific War, the enforcement regulations were revised,
and the mandatory incineration of waste was deleted, as it was considered incompatible with the
effective use of resources. In wartime, material scarcity was very severe, and everything was being
saved; waste was being reused, and resources were being recycled.
(3) From the Establishment of a Modern Society to the Improvement of Public Health
(1945 to the 1950s)
Japan underwent many
transformations in the course of its
reconstruction after World War II.
Consequently, Japan’s economy
developed swiftly, and people moved to
cities, causing a rapid increase in
population density and requiring waste
countermeasures in urban areas.
Additionally, the necessity of
appropriate management of waste and
Source: Tokyo Metropolitan Government Bureau of Environment
sewage was not well understood during Photo 2-1 Collecting Waste from Households (1957)
this era, and waste and sewage were
regularly dumped in rivers, the ocean or
in the open (at Open dump sites) causing the generation of populations of flies and mosquitoes to soar,
the spread of infectious diseases, and occurrence of other public health problems. Furthermore,
regarding waste management service, although the Waste Cleaning Act required municipalities to
implement such services, the roles and responsibilities of the central government, prefectural
governments, residents, and other relevant entities were unclear. Thus, cooperative relationships
among the stakeholders were not sufficiently formed, and problems surrounding municipal waste grew
more serious. In light of these circumstances, the Public Cleansing Act was enacted in 1954.
The following are descriptions of problems with municipal waste during each stage of the waste
management service.
1) Waste Collection and Transport

Primary waste collection from
individual households was done
manually with handcarts. Thus,
collectors could only collect a
limited amount of waste within a
small range, and were unable to
keep pace with the rapidly
increasing amount of waste
discharged. Additionally, the work
of transferring waste from handcarts Source: Tokyo Metropolitan Government Bureau of Environment
to motor vehicles to be transported to Photo 2-2 Bringing Waste to the Collection Point
(1957)
incineration plants and landfill sites
(Open dump sites) was done on streets and in other public places, causing public health problems
such as waste scattering in the living environments.
2) Intermediate Treatment
Incineration operations were suspended during the war, and facilities were being restored, as
the war damage had rendered many of them inoperable. On the other hand, the urban population,
which had been drastically reduced due to the war rapidly grew. As a consequence, the amount
of generated waste significantly increased and much of that waste was not being properly
managed. Therefore, in 1954, the Public Cleansing Act was enacted in order to drastically solve
the urban waste problem, and waste disposal was promoted mainly in urban areas.
3) Final Disposal
Waste was being transported to landfill sites without any incineration treatment. At the landfill
sites soil cover application and other aspects of landfill management were not implemented
properly. As a result of these conditions gases generated by the fermentation of kitchen waste and
other organic waste caused many problems at the landfill sites such as spontaneous combustion,
odors, and breeding of flies and other pests.
(4) From Rapid Development on Route to Modernization (High Economic Growth)

[Emergence of Pollution Problems and Efforts to Preserve Living Environments]
(1960s and 1970s)
As the postwar reconstruction drew to a
close, Japan entered an era of rapid economic
growth. Lifestyles changed substantially
during this era as a result of developments
stemming from the economic boom,
including increasing incomes, the rapid
diffusion of home appliances, and changing
consumer behavior and methods of retail
amid the emergence of supermarkets and
convenience stores. Additionally, the swift Source: Tokyo Metropolitan Government
Photo 2-3 Tokyo’s Streetscapes Developing
expansion of business activities caused the with Economic Growth (1967)
amount of waste discharged to increase
accordingly, and the development of an economic structure based on mass production and mass
consumption further accelerated the increase and diversification of municipal waste.
Vigorous production activities also caused the rapid increase and diversification of waste discharged
from factories. Different kinds of waste were discharged in the process of producing products; thus,
waste grew increasingly diverse. Additionally, massive amounts of waste from construction were
generated by urban development and other factors; the greater the level of industrial activity, the
greater the amount of waste associated with industrial activities.
Furthermore, rapid industrialization associated with high economic growth caused pollution from
organomercury, cadmium, and other harmful substances discharged from factories and other industrial
locations, causing widespread health problems among local residents. Additionally, the proliferation
of products made of plastic resulted in even greater amounts of waste. Plastic does not decompose;
thus, it not only remains in the soil over the long term when it is dumped in landfills, but it also
damages incinerators because it gives off intense heat and releases harmful substances when it is
incinerated. For these and other reasons, plastic is a major factor in air pollution and other forms of
contamination.
Confrontation with residents surfaced as many waste related problems associated with economic
growth spread. In light of these circumstances, the Waste Management and Public Cleansing Law
(Waste Management Act) was enacted in 1970.
The problems with municipal waste during each process of waste management service are described
hereafter.
1) Waste Collection and

Transport
As changing lifestyles resulted in
the generation of a large amount of
diverse waste, especially in urban
areas, efficient collection and
transportation became an issue, and
waste collection using collection
vehicles was promoted.
Photo 2-4 Vehicles at the Beginning of Collection by
Vehicle
The situation required assurance
of sanitation and the establishment
of incineration plants as a means for
treating large amounts of waste. As
pollution became a problem during
the process of industrialization,
incineration treatment required
technology for properly treating
massive amounts of diverse waste.
Photo 2-5 The Incineration Plant was Undergoing a
Technological Revolution
（Shakujii Incineration Plant in Tokyo）
3) Final Disposal (Completed in 1958)
Direct dumping into landfills was
implemented alongside incineration treatment because the incineration waste treatment capacity
alone was insufficient for the massive amounts of waste generated. Consequently, landfill sites
had adverse effects on surrounding areas, such as generating odors, flies, and mosquitoes in large
numbers and became major problems. Therefore, the situation required the establishment of
facilities capable of proper disposal of the different types of disposal waste without impacting
surrounding environments.
Worldwide Developments (1960s and 1970s)

The problem of environmental destruction associated with economic growth became apparent
throughout the world, mainly in advanced countries, which began to recognize the need for global-
scale efforts to conserve the environment. In 1972, the first UN Conference on the Human
Environment - a meeting of high-level government officials from around the world to discuss
environmental problems - was held in Stockholm. At the conference, the Declaration of the United
Nations Conference on the Human Environment and the Action Plan for the Human Environment,
which recognize environmental problems as global-level issues shared by humankind, were
adopted.
(5) From the Development of a Modern Prosperous Society to the Transition to a Sound
Material-Cycle Society (1980s and early 1990s)
Japan achieved high economic growth
and developed into one of the world’s
major economic powers.
Although a modern society had been
established and people had access to
prosperous lifestyles, the pursuit of a more
materially prosperous and highly
convenient society gave way to economic
activities based on mass production, mass
consumption, and mass disposal.
Photo 2-6 Collection Vehicle with Compaction
Consequently, the price of achieving a Function (Compacter)
consumption-oriented society was a
persistently increasing amount of waste, and further diversification of types of waste amid an
increasingly varied array of home appliances and other products resulting in waste that was difficult
to treat properly. In particular, waste from plastic products increased amid an increase in single-use
plastic products, expanded use of plastic containers and packaging, and the proliferation of plastic
bottles.
The following are descriptions of problems with municipal waste during each process of waste
management service.
Dioxins, which can potentially harm
the human body, became a major issue
throughout Japan. Given that
incineration treatment plants are a
source of dioxins, various institutions
conducted research into dioxins.
Legislation and regulations on dioxins
countermeasures (the Law Concerning
Special Measures against Dioxins
(1999)) covering not only waste
treatment plants, but also negative Source: Tokyo Metropolitan Government Bureau of Environment
impacts on the general environment and Photo 2-7 Modern Waste Treatment Plant
（Meguro Incineration Plant in Tokyo
the human body was established, and (Completed in 1991)
operators were expected to implement
countermeasures based on the legislation and regulations.
2) Final Disposal
The rapid increase in waste caused a strain on the capacity of existing landfill sites, which
became a major problem as existing landfill sites nationwide had less than 10 years before
becoming full.
Additionally, illegal dumping of industrial waste became a serious issue. Although the Waste
Management Act stipulates that waste-generating business operators are responsible for treatment
of industrial waste, there were cases in which dishonest waste treatment operators illegally
dumped industrial waste in pursuit of undue profits.
Worldwide Developments (1980s and Early 1990s)

To mark the 20th anniversary of the UN Conference on the Human Environment, the United Nations
invited approximately 180 countries to participate in the UN Conference on Environment and
Development in Rio de Janeiro in 1992. At the conference, the Rio Declaration on Environment
and Development, which set out principles for sustainable development, was adopted, along with
Agenda 21, the targeted action plan accompanying the declaration.
(6) From the Maturation of a Modern Society to the Establishment of a Sound Material-
Cycle Society (mid-1990s and 2000s)
Japan had achieved economic development, as well as maturity in the areas of ensuring public health
and methods and systems of proper treatment of waste. However, the situation called for Japan - which,
despite its status as an industrial powerhouse, remained reliant on huge amounts of imports for lack of
natural resources - to cease being a society based on mass production, mass consumption, and mass
disposal, and instead to establish a sound material-cycle society that espouses a much more balanced
utilization of raw materials and reduces the impacts on the environment. Additionally, the global
community had come to expect the expansion of international cooperation focused on establishing
sustainable societies.
In light of these circumstances, the Basic Act for Establishing a Sound Material-Cycle Society was
enacted in 2000, along with several laws promoting recycling.
Worldwide Developments (mid-1990s and 2000s)

In the global community, in 1997, five years after the UN Conference on Environment and
Development, a Special Session of the UN General Assembly was held in New York. At the special
session, the Programme for the Further Implementation of Agenda 21 was adopted. Additionally, in
2000, Millennium Development Goals (MDGs) were adopted to set out common worldwide targets
in the area of development. Furthermore, at the 2002 World Summit on Sustainable Development
in Johannesburg, participants not only verified the level of achievement of Agenda 21, but they also
broadly discussed various development issues in the global community - namely poverty, medical
care, and education - as well as measures to achieve Millennium Development Goals in and beyond
the area of the environment.
Legislation Pertaining to Waste Management
Japan has established important legislation to respond to changes in social conditions and issues
and needs that emerged in each era, which include improving public health, implementing pollution
countermeasures, and promoting proper treatment and recycling of waste.
This section introduces transition in legislation pertaining to waste management as well as the
background, details of regulations, and other aspects of the legal structure and legislation.
Changes in Legislation Pertaining to Waste Management
(1) From Improving Public Health to Resolving Pollution Problems and Preserving Living
Environments
Japan’s basic law pertaining to waste management has changed from the Waste Cleaning Act to
the Public Cleansing Act, and finally to the Waste Management Act based on the different roles
required of waste management in different eras. The laws demonstrate Japan’s transition from the
era aiming to improve public health to a time when the focus is on preserving living environments.
The first law pertaining to waste was the Waste Cleaning Act (1900). In light of the subsequent
worsening of public health problems caused by the rapid increase in municipal waste associated with
postwar economic development and increasing urban population density, the Public Cleansing Act
was enacted in 1954 for the purpose of improving public health, and the Waste Cleaning Act was
repealed.
As Japan entered its period of high economic growth in the 1960s, the further increase and
diversification of municipal waste, pollution caused by hazardous waste, and other social problems
prompted the 1970 repeal of the Public Cleansing Act and concurrent enactment of the Waste
Management Act. This concurrent act details requirements to conserve living environments in addition
to improving public health as stated in the former Public Cleansing Act.
Waste Cleaning Act (1900-1954)

Purpose: An act with 11 articles, but no explicit purpose
Characteristics: Positioned waste collection and disposal as the responsibility of municipal
governments.
Public Cleansing Act (1954-1970)

Purpose: To improve public health through the sanitary treatment of waste in order to clean
living environments.
Characteristics: Sets out provisions under which the central and prefectural governments
provide financial and technical assistance, obliges residents to cooperate with
municipal waste collection and disposal efforts, and sets out other provisions in
addition to existing municipal waste collection and disposal systems.
Waste Management and Public Cleansing Law (since 1970) [Waste Management Act]
Purpose: To preserve living environments and improve public health, mainly through waste
minimization, but also by cleaning living environments and properly sorting, storing,
collecting, transporting, recycling, treating, and disposing of waste.
Characteristics: Categorizes waste into two categories: industrial waste and municipal waste.
Positions treatment of municipal waste as the responsibility of municipalities as in
previous legislation, and positions treatment of industrial waste as the responsibility
of waste-generating business operators.
(2) Establishing a Sound Material-Cycle Society
Japan had begun to shift the focus of its waste management from preserving living environments
to establishing a sound material-cycle society. Accordingly, Japan amended the Waste Management
Act and established many relevant laws and regulations with a focus on specific materials and
products in an effort to improve recycling and reduce final disposal amounts.
In the 1970s, the social structure based on mass production, mass consumption, and mass disposal
continued to progress as Japan sought greater material wealth. Consequently, the amount of waste
generated continued to increase and the remaining capacity of landfill site was shortened. These and
other problems made it necessary to concentrate efforts toward radical solutions. Given that the focus
of policy had shifted to reducing amounts of waste generated and recycling, the Waste Management
Act was amended. Furthermore, the Basic Act for Establishing a Sound Material-Cycle Society and
other laws on recycling were enacted in due order, and a shift toward forming a sound material-cycle
society was promoted.
Amendments to the Waste Management Act (1991)

“Waste minimization” and “sorting and recycling” were added to the purpose of the act.
Law for the Promotion of Effective Utilization of Resources (1991)

The law sets out regulations, most important of which are to create a system for business
operators to collect and recycle waste voluntarily, and to mandate environmental
consideration in product design and manufacturing, with the aim of ensuring the effective
utilization of resources as well as reducing the generation of waste and conserving the
environment.
Various Laws on Recycling (since 1995)

Various laws on recycling were enacted to further promote recycling.
・ Containers and Packaging Recycling Law (1995)

・ Home Appliance Recycling Law (1998)
・ Food Waste Recycling Law (2000)
・ Construction Material Recycling Law (2000)
・ End-of-Life Vehicles Recycling Law (2002)
・ Small Home Appliance Recycling Act (2013)
・ Plastic Resource Recycling Promotion Act (2022)
Basic Act for Establishing a Sound Material-Cycle Society (2000)

The Basic Act for Establishing a Sound Material-Cycle Society was enacted to shift away
from an economic system based on mass production, mass consumption, and mass disposal,
and instead to promote the formation of a sound material-cycle society in which the 3Rs
(Reduce, Reuse, Recycle) are implemented and proper waste disposal and treatment are
ensured. The act clearly states the aims of a sound material-cycle society - namely limiting
consumption of natural resources and reducing environmental impact - codifies the cyclical
use of resources and the priority of waste treatment (in order of Reduce, Reuse, Recycle,
Thermal Recovery, Proper Disposal), and otherwise sets out basic principles for establishing
a sound material-cycle society. Additionally, the Fundamental Plan for Establishing a sound
material-cycle society to be formulated under the law, sets out clear numerical targets for
resource productivity (incoming materials), ratios of recycled resources to natural resources
used (materials circulation), and final disposal amounts (outgoing waste) to earnestly drive
forward the establishment of a sound material-cycle society.
Legal Structure Pertaining to Waste Management
Japan’s Legal Structure Pertaining to Waste Management
It is important to develop a legal framework that provides an institutional basis for the
implementation of measures as well as a direction for improvement to address various issues. In
Japan, the Basic Act for Establishing a Sound Material-Cycle Society, the Waste Management Act,
and other laws pertaining to waste management were established based on the Basic Environment
Law. Laws on recycling individual items have also been established to improve recycling.
The Waste Management Act - Japan’s basic law of waste management - has been revised as
appropriate to respond to the improper treatment of waste, illegal dumping, and other issues that
appeared in each era. Establishing legislation is a key measure for resolving the issues Japan faces.
Various laws on recycling have been enacted in an effort to improve recycling and establish a
sound material-cycle society, and also in response to the increasing severity of the strain on landfill
sites. Laws and systems function effectively in part because these laws on recycling clearly state
the roles and responsibilities of all relevant entities.
The legal laws and regulations pertaining to waste management was established to support the
formation of a sound material-cycle society, and comprises the Basic Act for Establishing a Sound
Material-Cycle Society - which sets out the basic philosophies and approaches to forming a sound
material-cycle society based on the Basic Environment Law, which sets out the core elements of
environmental policies - and the individual laws that embody the acts.
Many laws have been established toward the formulation of a sound material-cycle society. The
Waste Management Act aims to preserve living environments and improve public health through
efforts such as waste minimization and proper treatment of waste. The Law for the Promotion of
Effective Utilization of Resources (the Effective Resource Utilization Promotion Act) aims to ensure
the effective utilization of resources, reduce the generation of waste, and conserve the environment.
The seven laws on recycling were enacted to correspond to the properties of individual items. The Act
on Promotion of Procurement of Eco-Friendly Goods and Services by the State and Other Entities
(the Act on Promoting Green Purchasing) aims to establish a society capable of sustainable
development by having public agencies take the lead in promoting the procurement of products and
services that help reduce environmental impact.
Basic Environment Law

Enacted November, 1993

Enacted December 1994, Revised June 2012
・Ensuring material-cycle in the society

Basic Act for Establishing a Sound ・Prevention of consuming natural resource
Material-Cycle Society (Enacted May 2000) ・Reduction of Environmental burden
The Fundamental Plan for Establishing a Sound Material-Cycle Society Established March 2003
The fundamentals for other plants designed by the State Revised May 2013
Appropriate Waste Treatment Promotion of recycling
Waste Management and Public Cleansing Law Law for the Promotion of Effective Utilization of
Enacted December 1970 Resources Enacted April 1991
(1) Reduction of waste generation (1) Recycling of reusable resources Reduce
(2) Appropriate treatment of waste (including recycling) (2) Development of easy-to-recycle Recycle → Reuse
(3) Regulations on the establishment of waste treatment facilities structures and materials Recycle
(4) Regulations on waste treatment businesses (3) Labelling for sorted waste collection
(5) Establishment of waste disposal standards, etc. (4) Promotion of the effective use of by （1R）（3R）
products
Regulations in accordance with the properties of individual products

Containers Home End-of-Life Construction Small Home Plastic Resource
Food Waste
and Packaging Appliance Vehicles Material Appliance Recycling
Recycling Law
Recycling Law Recycling Law Recycling Law Recycling Law Recycling Act Promotion Act
Enacted Enacted Enacted Enacted Enacted Enacted Enacted
June 1995 May 1998 May 2000 July 2002 May 2000 August 2012 April 2022
Bottles, plastic Air conditioner,
bottles, paper refrigerators, Wood, concrete, Small electronic
and plastic freezers, TVs, and Food waste Automobiles Plastic products
containers and washing and drying and asphalt devices. etc.
packaging, etc. machines
Act on Promotion of Procurement of Eco-Friendly Goods and Services by the State and Other Entities
Enacted May 2000
Figure 2-2 Legal Framework for a Sound Material-Cycle Society
Basic Act for Establishing a Sound Material-Cycle Society
1) Intent of the Act

The act is a basic framework for promoting the establishment of a sound material-cycle society
that strives to limit resource consumption and reduce environmental impact by promoting the
effective reuse and recycling of materials in all processes from production to distribution,
consumption, and disposal.
2) Background
The amount of waste generated in Japan has remained at a high level since waste increased
rapidly during the period of high economic growth; consequently, the strain on landfill sites, the
rise in illegal dumping, the generation of hazardous waste in treatment processes, and more issues
have become serious social problems. Therefore, there is an urgent need to shift away from an
economy and society based on mass production, mass consumption, and mass disposal, and
instead to form a sound material-cycle society in which the 3Rs (Reduce, Reuse, Recycle) are
implemented and proper waste treatment and disposal are ensured.
The following shows data pertaining to waste management published in 2000, the year the act
was enacted.
State of Waste Management in 2000, the year the Basic Act for Establishing a Sound
Material-Cycle Society was enacted
[1] Amount of waste generated remains at a high level

→In the past several years, the amounts of municipal waste and industrial waste have
respectively hovered at around 50 million tons and 400 million tons annually
[2] Demand for further promotion of recycling
→In FY1996, roughly 10% of municipal waste and roughly 42% of industrial waste was
recycled
[3] Difficulty finding sites for waste treatment plants and landfill sites
→In FY1996, landfill sites for municipal waste and industrial waste had respectively 8.8 years
and 3.1 years remaining, before becoming full
[4] Rise in illegal dumping
→In FY1998, 1,273 cases of illegal dumping were recorded, a 460% increase from FY1993
3) Overview
Name of act: Basic Act for Establishing a Sound Material-Cycle Society
Enacted: 2000
Purpose: To set out a basic framework for, and illuminate a path toward achieving a sound
material-cycle society.
Overview of act: The act sets out basic principles (e.g., priority of policies) and responsibilities
of relevant entities for the formation of a sound material-cycle society, and sets
out basic matters for formulating the Fundamental Plan for Establishing a
Sound Material-Cycle Society and for policy for formulating a sound material-
cycle society, among other matters.
•Vision for a Sound Material-Cycle Society:

Promote the formation of a sound material-cycle society in which the consumption of natural
resources and the impact on the environment are limited and reduced to the extent possible
through the reduced generation of waste and the like, the cyclical reuse of circular resources,
and the assurance of proper waste treatment and disposal.
•Circular resources within the scope of the act:
With all waste - regardless of value - as the target of the act, the act positions the recyclable
portion of waste as circular resources, and encourages the cyclical reuse of circular resources.
•Priority of policy:
Codified by the act: in order of Reduce, Reuse, Recycle, Thermal Recycle (Thermal Recovery),
and Proper Disposal.
Reduction of Natural
Resource Inputs
1st Reduce
Natural Resource Inputs
Production
3rd Material (Manufacturing/
Recycling Distribution etc.)
Consumption/Use
Treatment
(Recycling/Incineration etc.)
Discharge
4th Thermal Recovery 2nd Reuse

5th Proper Disposal Final
Disposal
Source：Ministry of the Environment “Establishing a sound material-cycle society” (2010)

Figure 2-3 Sound Material-Cycle Society Schematic Diagram
• EPR (Extended Producer Responsibility):

The concept that producers are physically or economically responsible for their products in all
processes from production and use to disposal and recycling. It encourages producers to develop
and produce products that are less likely to be disposed of or are easily recycled.
Source: Basic Act for Establishing a Sound Material-Cycle Society (2000)
4) Targets of the Act

The act defines the respective responsibilities of the central government, municipalities,
business operators, and residents. In principle, the act describes the responsibilities of the central
government (e.g. formulating the five-year Fundamental Plan for Establishing a Sound Material-
Cycle Society), and also clarifies the waste-generating responsibilities of consumers, namely
residents and businesses. The law further defines the waste management responsibilities of the
producers through inclusion of “extended producer responsibility”; a level of responsibility
imposed on producers that extends to the time when the products they produced have become
waste after being used by the consumers.
Waste Management and Public Cleansing Law
The Waste Management Act was enacted in 1970 as a comprehensive revision of the Public
Cleansing Act, which was intended to improve public health. The law is the core regulation for
waste management, with the aim of protecting the living environments in addition to improving
public health.
1) Background
Cases involving contamination of the environment were occurring in major urban areas and
elsewhere due to the discharge of massive amounts of industrial waste associated with factors
such as expanded economic and social activity. However, treatment of such massive amounts had
become too difficult under the existing Public Cleansing Act, which held municipalities
responsible for waste treatment and did not set out clear provisions for industrial waste.
Accordingly, the situation called for a full-scale revision of the Public Cleansing Act.
2) Overview
Name of law: Waste Management and Public Cleansing Law (Waste Management Act)
Enacted: 1970
(Amended: 1976, 1991, 1997, 2000, 2003, 2004, 2005, 2006, 2010, 2015, 2017, 2020)
Purpose: To preserve living environments and improve public health through waste
minimization and proper waste treatment (e.g., transport, disposal, recycling) and
maintaining cleanliness in living environments.
Overview of law: The act defines waste and sets out provisions for issuing licenses for waste
treatment operators, licenses for constructing waste treatment plants, and
waste treatment standards, among other matters.
Table 2-2 Overview of Waste Management Act

Waste is garbage or unwanted matter in solid or liquid state (excluding
radioactive substances)
Municipal waste Industrial waste
Definitions All waste other than industrial Cinders, sludge, waste oil, waste
waste plastics, and the like among waste
generated in conjunction with business
activities
Waste must be treated such that it Business operators must fulfill their
presents no obstacles to the responsibilities by themselves or by
preservation of living contracting a licensed operator.
Responsibility
environments, according to basic
for treatment plans for municipal waste
treatment formulated by
municipalities.
Municipal mayor licensing system Prefectural governor licensing system
Licenses are granted when the Licenses are granted when the capacities
capacities of plants and applicants of plants and applicants satisfy the
Waste satisfy the criteria, and when the criteria
collection, details of applications comply with
transport, and municipal waste treatment plans
treatment Municipal mayors (supervision) Prefectural governors (supervision)
collect reports, conduct witnessed collect reports, conduct witnessed
inspections, issue orders for inspections, issue orders for
improvement, issue orders to take improvement, issue orders to take
measures, etc. measures, etc.
Prefectural governor licensing Prefectural governor licensing system
system (however, notification
required when municipalities
construct plants)
Treatment Licenses are granted when plans for construction fulfill technical standards,
plants and when plans for construction and maintenance include proper consideration
on preservation of the living environments of local communities
Prefectural governors (supervision) collect reports, conduct witnessed
inspections, issue orders for improvement, issue orders to take measures, etc.
Source: Waste Management and Public Cleansing Law (1970)

*: In Japan, waste is defined as fitting into one of two broad categories: municipal waste or industrial waste. (Refer
to “Topic 1-1.1 Definition and Categorization of Waste)
3) Major Amendments
The Waste Management Act has been amended several times in order to consistently ensure
the proper treatment and disposal of waste in light of many factors, including social circumstances
conditions in a given era. The major amendments are as follows.
■Amendments Pertaining to Social Circumstances

1991 amendment: Large-scale illegal dumping and dioxin-related problems emerged amid
factors such as the expansion of the economy and society based on mass
production and mass consumption, an escalating appetite for consumption
in pursuit of convenience, and changes in the industrial structure;
consequently, the act was amended to clearly indicate minimization of
waste, sorting and reuse of waste, and the like as the purpose of waste
treatment.
At the time, roughly 2,000 waste incineration plants were in operation,
giving rise to dioxin-related problems stemming from incineration.
Additionally, given the limited land area available in Japan on which
landfill sites can be feasibly developed, illegal dumping was occurring
due to lack of landfill sites.
2010 amendment: A series of regulatory permits were issued to waste-generating business
operators, and regulations were tightened, including requiring waste
treatment operators to issue manifests.
The scope of eligibility for licenses to import waste was expanded to
include companies which can contract out for proper treatment, in cases
where importing waste would help them fulfill their social responsibilities
and reduce environmental impact throughout Asia.
2015 amendment: In light of lessons and knowledge learned from disasters such as the Great
East Japan Earthquake, the act was amended in an effort to expand
measures for dealing with disaster waste to enable seamless responses for
waste treatment in every stage from preparation during normal times to
measures in the event of, and in the aftermath of large-scale disasters.
■Amendments Pertaining to Harmful Substances and Pollution Problems

1976 amendment: The act was amended to set out technical standards for constructing new
landfill sites for waste.
1991 amendment: The act was amended in an effort to strengthen regulations pertaining to
waste treatment operators and waste treatment plants.
2006 amendment: The act was amended to set out standards for treating waste including
asbestos.
2010 amendment: The act was amended to oblige operators to publish information pertaining
to plant maintenance in order to promote understanding of waste
treatment plant safety.
■Amendments Pertaining to Industrial Waste

Amendments from 1991 to 2017: Made the manifest system more rigorous.
2010 amendment: Strengthened the system for recognizing excellent waste treatment
operators.
Amendments from 1976 to 2010: Strengthened penal provisions for illegal dumping and the
like.
Amendments from 1976 to 2017: Strengthened guidance and supervision, etc.
Effective Resource Utilization Promotion Act
1) Background
Japan is not a natural resource-rich country, and resource depletion had become a global issue.
In light of these and other factors, circumstances required the establishment of a sustainable
circular economic system in which there is harmony between the environment and the economy
after shifting away from the current economic and social system based on mass production, mass
consumption, and mass disposal. Therefore, efforts to promote recycling by business operators
became necessary in order to strengthen initiatives toward achieving the 3Rs.
2) Overview
Name of act: Law for the Promotion of Effective Utilization of Resources
(Effective Resource Utilization Promotion Act)
Enacted: 1991
Purpose: To comprehensively promote the reduction of the generation of byproducts and the
like, the reuse of parts and the like, and the reuse of used products and the like as
raw materials.
Overview of act: The act sets out priority matters for business operators, including 3R measures
in the product manufacturing stage, 3R considerations in the product design
stage, labeling for sorting and separate collection, and the establishment of
systems for voluntary collection and recycling by manufacturers.
Targets: Lines of business and products for which designated 3R efforts are deemed necessary
in Cabinet Orders (10 lines of business, 69 articles)
Source: Law for the Promotion of Effective Utilization of Resources (1991)

3) Responsibilities of Relevant Entities

a. Business Operators
・ Rationalize the use of raw materials to reduce the generation of used articles and
byproducts
・ Promote the use of used articles and byproducts as recycled resources/parts
b. Consumers
・ Use products for a long time
・ Use products made with recycled resources or recycled parts
・ Cooperate with sorting and separate collection
・ Cooperate with measures implemented by the central government, municipalities and
business operators
c. Central Government
・ Implement measures to secure funding and the like
・ Promote the use of recycled resources in items procurement and the like
・ Promote science and technology
・ Strive to seek the understanding of residents
d. Municipalities
・ Promote the effective use of resources in line with the social and economic circumstances
of individual areas
Containers and Packaging Recycling Law
Refer to “Topic 3-3.4 (1) Containers and Packaging Recycling Law.”
Refer to “Topic 3-3.4 (2) Home Appliance Recycling Law”

Food Waste Recycling Law
The Food Waste Recycling Law promotes the recycling of food waste by setting out the roles and
responsibilities of all relevant entities with a focus on food waste, an area where recycling efforts
have not advanced, and sets out a new system for the promotion efforts.
1) Background
Food waste is discharged by food products manufacturers, food distributors, members of the
food service industry, and individual households. In 1996, roughly 20 million tons of food waste
was being discharged annually along with municipal waste and industrial waste, and food waste
comprised roughly 30% of municipal waste.
Japanese businesses were throwing away massive amounts of food products in the
manufacturing and distribution stages due in part to consumers’ overemphasis on freshness, and
consumers were leaving food uneaten. Despite the fact that food waste generated in this manner
can be recycled as fertilizer, livestock feed, and the like, in reality large amounts of the food waste
were disposed of without being used. Consequently, the strain on remaining landfill capacity and
problems surrounding waste treatment grew more severe.
2) Overview
Name of law: Law for Promotion of Recycling and Related Activities for Treatment of Cyclical
Food Resources (Food Waste Recycling Law)
Enacted: 2000
Amended: 2007, 2014
Purpose: To reduce the amount of food waste ultimately disposed of and promote the recycling
of circular resources from food waste as fertilizer, livestock feed, and the like, through
controlling and reducing the amount of food waste generated by business operators in
food-related fields.
Overview of law: The law sets out basic matters pertaining to reduction in the generation amount
of food waste and recycling and thermal recovery of the recyclable portion of
food waste (circular resources from food waste) by all entities, in addition to
requiring business operators involved in the manufacturing, wholesaling, or
retailing of food products or in food service to take measures to promote the
recycling of circular resources from food waste.
Target: Food waste (e.g., residue from the processes of manufacturing or processing food
products, or preparing food, that cannot be used as food; food that is unsold or uneaten
in the stages of distribution or consumption of food products)
Source: Law for Promotion of Recycling and Related Activities for Treatment of Cyclical Food Resources
(2000)
3) Roles and Responsibilities for each Entity

a. Business Operators in Food-related Fields
・Reduce the generation of food waste
・Make efforts to recycle circular resources from the food waste
・Implement thermal recovery during treatment of circular resources from food waste that
cannot be recycled
・Make efforts to reduce the amount of food waste
b. Residents
・Reduce the generation of food waste by improving methods of purchasing food products
and preparing food
・Promote recycling by using recycled products
c. Central Government and Municipalities
・ Make efforts to secure necessary funding, gather information, conduct research and
development, and the like
・Use education and public relations activities in pursuit of the understanding and cooperation
of residents
・Make efforts to promote the recycling of circular resources from food waste in line with
social and economic conditions
4) System for Recycling Food Waste

The law established the following systems to promote recycling.
Registration system: A registration system for businesses that produce fertilizers and livestock
feed using recycled food resources as raw materials.
Certification system: A system to certify plans for the implementation of recovery projects by
related parties, the use of fertilizers and livestock feed obtained from
recovery projects, and the use of agricultural, livestock, and fishery
products produced by the use of the recovery projects’ products.
The Construction Material Recycling Law was enacted as part of the effort to counter illegal
dumping given that construction waste comprises most of illegally dumped waste, and also to
promote the recycling of construction waste, which is relatively easy to recycle.
1) Background
In FY1995, fragments of concrete and asphalt-concrete, wood scraps, and other construction
waste generated during construction work accounted for roughly 20% of all industrial waste
discharged. Construction waste also comprised roughly 70% of all illegally dumped waste in
FY1999.
Many buildings were updated during the 1960s in Japan, and the amount of construction waste
increased accordingly. Factors such as the subsequent updating of even more buildings gave rise
to an increase in construction waste; consequently, the strain on landfill sites, improper treatment
and disposal, and other problems grew more severe.
2) Overview
Name of law: Construction Material Recycling Law
Enacted: 2000
Purpose: To promote the sorting and recycling of specified construction materials generated
during demolition work and other forms of building construction
Overview of law: The law obliges contractors of construction projects of a certain scale or
greater to separate waste materials during demolition, reuse or recycle these
materials, and sets out contract procedures for the clients and contractors of
the project, as well as other matters.
Targets: Specified construction materials (concrete, construction materials made from concrete
and steel, wood, asphalt-concrete)
Source: Construction Material Recycling Law (2000)
3) Target Construction Projects

Building demolition: Floor area of 80 m2 or greater
Building construction/expansion: Floor area of 500 m2 or greater
Building repairs/renovations (e.g., remodeling): Contract amount of JPY 100 million or more
Other construction work pertaining to structures (e.g., civil engineering works): Contract
amount of JPY 5 million or more
End-of-Life Vehicles Recycling Law
See “Topic 3-3.4 (3) End-of-Life Vehicles Recycling Law”
Small Home Appliances Recycling Act
The Small Home Appliances Recycling Act promotes the recycling of the recyclable metal content
of small electronic devices by setting out the roles and responsibilities of all relevant entities with
a focus on small devices that contain a large amount of recyclable metals. Additionally, the effective
use of rare metals found in the devices has recently emerged as an important issue.
1) Background
Mobile phones, digital cameras, watches, hair dryers, and other small electronic appliances
contain many useful metals such as iron, aluminum, copper, and precious metals; however, most
of them were discharged as waste and collected by municipalities along with other municipal
waste. The municipalities salvaged only some of the metals (e.g., iron, aluminum) from the used
small electronic devices, and dumped the majority of that waste in landfills without recycling
them.
Because small electronic devices also contain harmful metals such as lead, proper treatment is
necessary; however, used devices were targeted by illegal junk collectors who were performing
improper treatment and disposal both inside and outside Japan.
2) Overview
Name of act: Act on Promotion of Recycling of Small Waste Electrical and Electronic
Equipment (Small Home Appliances Recycling Act)
Enacted: 2012
Purpose: To ensure the proper treatment of waste and the effective use of resources by taking
measures to promote the recycling of used small electronic devices, given that a
considerable portion of metals and other useful materials in the devices were disposed
of without being recovered.
Overview of act: The act promotes the recycling of used small electronic devices without the
need for waste treatment business licenses by allowing entities that engage in
the business of recycling used small electronic devices to prepare recycling
business plans and submit them to the competent minister for approval.
Targets: Computers, mobile phones, digital cameras, watches, hair dryers, and the like
(designated by Cabinet Order as electronic equipment and other electrical machinery
and appliances used by general consumers in their everyday lives that can be efficiently
collected and transported when they become waste, and are in particular need of
recycling)
Source: Act on Promotion of Recycling of Small Waste Electrical and Electronic Equipment (2012)
3) Roles and Responsibilities for each Entity

a. General Consumers
・Sort and discharge used small electronic devices
・Deliver to retailers contracted by either municipalities or certified business operators
b. Municipalities
・Separate collection of used small electronic devices
・Deliver to certified business operators
c. Certified Business Operators
・Accept used small electronic devices
・Recycle used small electronic devices
d. Waste-generating Business Operators
・Sort and discharge used small electronic devices
・Outsource treatment to certified business operators or entities capable of proper recycling
e. Retailers
・ Cooperate with efficient collection from consumers through efforts such as setting up
municipal collection boxes
f. Manufacturers
・Reduce the expense of recycling by finding design solutions and innovating with parts and raw
materials
・Use materials obtained through recycling
Act on Promoting Green Procurement
The Act on Promoting Green Procurement promotes the preferential purchasing of

environmentally and socially conscious products and services toward the formation of a sound
material-cycle society.
It is very important to raise awareness among the purchasers of products and services to be
environmentally conscious in order to support and promote the environmental efforts of the
providers of the products and services.
1) Background
Climate change, environmental pollution, resource depletion, insufficient waste treatment, and
other environmental problems are caused by economic activity based on mass production, mass
consumption, and mass disposal. Therefore, in order to effectively utilize limited resources and
pass them on to the next generation, it is essential to re-examine how the economy and society
should be, and to transform into a sound material-cycle society where sustainable development
is possible.
The formation of a sound material-cycle society requires efforts from the suppliers of recycled
products as well as efforts from consumers. In other words, it is necessary to promote green
purchasing - thinking about the environment, carefully considering the necessity, selecting
products and services with as little impact as possible on the environment, and preference in
purchasing from business operators working to reduce environmental impact - when purchasing
products and services. The hope is that green purchasing makes overall economic and social
activity more environmentally friendly by changing the consumer behavior and encouraging
suppliers to develop products and services with less environmental impact
2) Overview
Name of act: Act on Promotion of Procurement of Eco-Friendly Goods and Services by the State
and Other Entities (Act on Promoting Green Procurement)
Enacted: 2000
Purpose: To create and develop a market for products made from recycled resources and other
products that help reduce environmental impact
Overview of act: The act sets out provisions for the procurement of eco-friendly goods and
services by the central government and other organizations (municipalities are
obliged to make such efforts), and requires business operators and residents
to select eco-friendly goods and services whenever possible.
Targets: Specified procurement items (282 items in 22 sectors as of February 2021)
1. Paper 9. Air conditioners, etc. 17. Other textile products

2. Stationery 10. Water warmers, etc. 18. Facilities
3. Office furniture, etc. 11. Illumination 19. Disaster stockpiling products
4. Imaging equipment, etc. 12. Automobiles, etc. 20. Public Works
5. Electronic computers, etc. 13. Fire extinguishers 21. Services
6. Office equipment, etc. 14. Uniforms, work clothes, etc. 22. Garbage bags, etc.
7. Mobile phones, etc. 15. Interior and bedding
8. Home appliances 16. Work gloves
Source: Act on Promotion of Procurement of Eco-Friendly Goods and Services by the State and Other Entities
(2000)
3) Responsibilities of Relevant entities

a. Central Government
・When procuring goods and services, the central government must make efforts to select eco-
friendly goods and services while devoting attention to the proper use of budgets in order to
promote a shift in demand toward eco-friendly goods and services.
b. Municipalities
・Municipalities shall endeavor to take measures to shift demand toward eco-friendly goods
and services in line with the social and economic circumstances of individual areas.
c. Business Operators and Residents
・Business operators and residents shall make efforts to select eco-friendly goods and services
whenever possible
Policies Pertaining to Waste Management
In Japan, the Ministry of the Environment has taken the lead in adopting important measures to
respond to issues such as proper waste treatment, pollution control and efficient waste management.
This section introduces some of the key policies pertaining to waste management that have been
effective in Japan.
Standards and Guidelines for Proper Waste Treatment
The Ministry of the Environment has established technical standards and guidelines for waste
treatment plants, landfill sites, and other facilities in line with the related laws in order to respond
to pollution problems, implement proper waste treatment, and achieve other goals.
The standards and guidelines are both set out in laws and provided as requirements for
municipalities to fulfill in order to obtain grants for developing facilities; therefore, nearly all
facilities are planned and developed under the assumption that they must satisfy the standards and
guidelines.
Japan has confronted many problems related to waste treatment plants and landfill sites, and has
made efforts to resolve those problems using technical methods with technical and financial support
from the Ministry of the Environment.
Technical Standards in the Waste Management Act
It is essential to improve the safety and reliability of waste treatment when developing and operating
waste treatment plants, and therefore the minimum technical standards that must be fulfilled in order
to preserve living environments around the plants have been established. Standards for municipal
waste treatment facilities such as incineration facilities, as well as other treatment plants are defined
in the enforcement regulations of the Waste Management Act. The requirements for final disposal sites
have been established in the Ministerial Orders covering the technical standards for final disposal sites
for both types of municipal and industrial wastes (refer to Tables 2-3 through 2-5).
The standards for municipal waste treatment plants were established in 1971, and the standards for
landfill sites were established in 1977, and were preconditions for receiving state subsidies until the
new structure guidelines were formulated in 1979.
Additionally, the Waste Management Act and other legislation were amended to strengthen and
clarify the technical standards in response to dioxins emissions and other social problems.
Table 2-3 Technical Standards for Municipal Waste Treatment Plants

No. Description
1 Safety in terms of structural strength
2 Measures against corrosion
3 Measures against the scattering of waste and emission of foul odors
4 Measures against noise/vibrations
5 Measures against water contamination
6 Requirements for Waste feeders
incinerator Combustion At least 800°C
facilities chamber Retention for at least 2 seconds
conditions Isolation from outside air
Auxiliary burner
Combustion air supply facilities
Measuring/recording temperatures
Cooling tower installation (200°C or lower)
Measuring/recording temperatures inside dust collectors
Exhaust gas treatment facilities
Measuring/recording CO concentration
Separation and storage of soot and bottom ash
Ash removal Measures against scattering/spills
facilities
Ash melting Melting temperatures (melting point
conditions or above)
Burning At least 1,000°C
incineration residue
Measuring/recording temperatures
Solid fuel storage Ignition prevention measures
facilities
7 Requirements for wastewater treatment facilities
8 Observance of treatment capacity
9 Incinerator Standardizing input waste
operation and Isolation from outside area/supply of fixed amounts of waste
maintenance Combustion gas temperature (at least 800°C)
conditions Ignition loss (10% or less)
Furnace startup method
Furnace shutdown method
Measuring/recording combustion gas temperatures
Cooling towers (200°C or lower)
Measuring/recording gas temperatures before entering dust collectors
Soot removal
CO concentration (100 ppm or less)
Measuring/recording CO concentration
Dioxins concentration (below regulatory limits)
Measuring/recording dioxins concentration and amount/concentration of
soot and smoke
Exhaust gas treatment
Treatment of exhaust gas treatment water
Separating soot and incinerator ash
Ash melting temperatures (melting point or above)
Firing temperature (at least 1,000°C)
Uniformity during cement solidification, chemical treatment
Proper management of solid fuels
Measures against fires
No. Description
10 Measures against mosquitoes, flies, etc.
11 Wastewater treatment
12 Function inspections, inspections of soot and smoke and water quality
13 Maintenance obligations
14 Retention of records (3 years)
Source: Ministry of Health and Welfare “Waste management and Public Cleansing Law Enforcement Regulations
Article 4” (1971)
Table 2-4 Technical Standards for Landfill Sites for Municipal Waste
(From Article 1-1 of the Ministerial Order that Sets out Standards for Landfill Sites)
No. Item
1 Clarifying the scope of landfill sites and establishing perimeter enclosures to prevent entry
2 Installing notice boards and the like to indicate that the sites are landfill sites
3 Measures against landslides/subsidence
Measures against municipal Safety in terms of structural strength
4
waste spills Measures against corrosion
5 Measures against contamination of public water areas/groundwater by leachate
6 Measures against surface water infiltration into landfill sites
Source: Prime Minister's Office and Ministry of Health and Welfare Ordinance No. 1 “Paragraph 1 of Article 1 of the
Ministerial Ordinance Establishing Technical Standards for landfill” (1977)
Table 2-5 Technical Standards for Operation and Maintenance of Landfill Sites for
Municipal Waste
(From Article 1-2 of the Ministerial Order that Sets out Standards for Landfill Sites)
No. Item
1 Measures against municipal waste scattering/spills
2 Measures against foul odors
3 Measures against fires
4 Measures against mice, mosquitoes, flies, and other pests
5 Clarifying the scope of landfill sites and establishing perimeter enclosures to prevent entry
6 Installing notice boards and the like indicating that sites are landfill sites
7 Scheduled inspections of retaining walls, etc.
8 Operating and Maintaining seepage control works
9 Scheduled inspections of seepage control works
10 Inspections of water quality
11 Measures against water quality deterioration
12 Measures against rainwater inflow
13 Operating and Maintaining regulating reservoirs
14 Operating and Maintaining leachate treatment facilities
15 Operating and Maintaining open channels and other facilities
16 Installing ventilation systems
17 Measures for landfill sites where landfill disposal has been completed
18 Measures for closed landfill sites
19 Measuring/recording remaining landfill capacity
Recording/storing data on types/amounts of municipal waste disposed in landfill sites and landfill
20
site operation and maintenance
Source: Prime Minister's Office and Ministry of Health and Welfare Ordinance No. 1 “Paragraph 2 of Article 1 of the
Ministerial Ordinance Establishing Technical Standards for landfill” (1977)
Performance Guidelines for Waste Treatment Plants
1) Incineration Plants
Structure Guidelines for Waste Treatment Plants were formulated in 1979 to serve as technical
standards for the structure of plants to be developed under state subsidies. Additionally, in light
of technological advances and other factors, the guidelines were revised in 1986, and commentary
on the guidelines was published the following year by the Japan Waste Management Association.
In response to subsequent pollution problems and other factors, the structure guidelines were
eventually strengthened and clarified as technical standards in the Waste Management Act, and
waste treatment technology became more diverse due to factors such as the development of new
technologies; accordingly, in 1998, the structure guidelines were abolished, and new performance
guidelines were formulated. The following is indicated in the general provisions of the
performance guidelines.
I. General Provisions
Modern Japanese society is based on mass production and mass consumption, and the
discharge of massive amounts of waste has created social problems, including increased
environmental impact and strain on landfill sites. Additionally, as anxiety and distrust grew
among residents of Japan, it has become extremely difficult to secure the waste treatment
plants needed to properly treat the waste.
Therefore, in order to further preserve living environments, it is essential to develop waste
treatment plants while promoting the minimization and recycling of waste and improving the
safety and reliability of waste treatment.
From this perspective, the Waste Management and Public Cleansing Law has set out
standards for the structure and operation and maintenance of waste treatment plants as the
minimum technical standards that must be fulfilled in order to preserve living environments.
Additionally, given that state subsidies firmly require the smooth promotion of advanced waste
treatment based on the effective use of the government’s financial resources, and considering
the prompt introduction of new technologies, the following performance guidelines set out
matters that waste treatment plants to be developed under state subsidies should have and
methods for verifying the performance, in addition to matters set out in relevant laws and
regulations.
Source: Ministry of the Environment “Performance Guidelines for Waste Treatment Facilities for
Government-Subsidized Waste Treatment Facility Improvement Projects” (1998)
Table 2-6 shows matters pertaining to the performance of waste incineration plants. The
matters are simpler than the structure guidelines, and require plants to have the capacity for stably
sustaining the planned waste treatment and thermal recovery.
Table 2-6 Performance Guidelines for Waste Incineration Plants

(Matters Pertaining to Performance)
Item Description
Plants shall have the capacity to process waste in accordance with the planned
Waste treatment
quality and amount into incineration residue or solidified materials of the
capacity
planned properties.
The ignition loss of incineration residue (excluding fly ash from dust
Properties of
collection) shall be no more than 5% in waste incineration plants that operate
incineration
continuously, and no more than 7% in waste incineration plants that operate
residue
intermittently. However, this does not apply to carbonization plants.
Waste incineration plants that operate continuously shall have the capacity for
continuous stable operation for at least 90 days per system. Waste incineration
Stable operation
plants that operate intermittently shall have the capacity for stable operation
for all planned working days over periods of at least 90 days per series.
Effective use of At waste incineration plants that operate continuously, it shall be possible to
residual heat, generate electricity, supply heat outside the plants, and otherwise use residual
etc. heat and the like effectively.
Source: Ministry of the Environment “Performance Guidelines for Waste Treatment Facilities for Government-
Subsidized Waste Treatment Facility Improvement Projects” (1998)
2) Landfill Sites
Guidelines for Landfill Sites for Waste were formulated in 1979 to serve as technical standards
for the structures of landfills to be developed under state subsidies for final disposal sites.
Additionally, in light of technological advances and other factors, the guidelines were revised in
1988, and commentary on the guidelines was published the following year by the Japan Waste
Management Association.
In response to subsequent pollution problems and other factors, the structure guidelines were
eventually strengthened and clarified as technical standards in the Waste Management Act. In
light of this and other factors, in 2000, the structure guidelines were abolished, and new
performance guidelines were formulated. The following is indicated in the general provisions of
the performance guidelines.
Article 1: General Provisions

Given the importance of developing waste treatment plants while improving the safety and
reliability of landfill sites for waste, the Waste Management and Public Cleansing Law has set
out standards for the structure, maintenance, and decommissioning of waste treatment plants
as the minimum technical standards that must be fulfilled in order to preserve living
environments (hereinafter referred to as the “Ministerial Order on Standards”). Additionally,
given the firm requirements of the smooth promotion of advanced waste treatment and
consideration of prompt introduction of new technologies, these guidelines set out matters
pertaining to the performance that landfill sites for municipal waste above the capacity
specified in the Ministerial Order on Standards should have, and methods for verifying the
performance.
Notably, in cases such as landfill disposal in bodies of water, the performance guidelines do
not require the installation of equipment or facilities deemed unnecessary in the Ministerial
Order on Standards.
Additionally, in order to make landfill sites highly safe and reliable, it is necessary not only
to comply with these guidelines, but also to conduct site investigations in advance, and
implement construction management, operation and maintenance, and the like appropriately.
Source: Ministry of the Environment “Guidelines for the Performance of Landfill Sites” (2000)
3) Changes
The standards for municipal waste treatment plants established in 1971, and the standards for
landfill sites established in 1977, have been updated in line with advances in technologies and
required technological levels. Table 2-7 shows changes in technical standards and performance
guidelines.
Table 2-7 Changes in Technical Standards and Performance Guidelines

Year Incineration plants Landfill sites
1971 Technical Standards formulated ―
1977 ― Technical Standards formulated
Structure Guidelines for Waste Treatment Guidelines for Landfill Sites for Waste
1979
Plants formulated formulated
Structure Guidelines for Waste Treatment
1986 ―
Plants revised
Guidelines for Landfill Sites for Waste
1988 ―
revised
Performance Guidelines for Waste
1998 ―
Treatment Plants formulated
Performance Guidelines for Landfill Sites
2000 ―
for Waste formulated
Column: Japan Waste Management Association

The Japan Waste Management Association is a public interest incorporated association whose
purpose is to contribute to the promotion of public benefit by preserving the living environment and
improving public health for residents. The Japan Waste Management Association conducts surveys,
research, and other activities necessary for the efficient operation of waste management services by
municipalities and improvement of technology in order to smoothly promote waste management
services nationwide. In addition to publishing technical books on waste management, such as
planning and design guidelines for waste treatment facilities, the association convenes the National
Conference on Urban Cleaning Research and Case Studies every year to exchange information and
opinions on surveys, research, and other related topics.
The Japan Waste Management Association was founded in 1947 as the “Municipal Waste
Management Association” and changed its name to the “The Japan Waste Management
Association” in 1956. The association has been operating as a corporate juridical person approved
by the Ministry of Health and Welfare (currently Ministry of Health, Labor and Welfare) since 1976
and became a public interest incorporated association in 2012. As of 2022, 388 municipalities and
147 associations are regular members of the association, which mainly conducts research and study,
dissemination and awareness-raising, and technical guidance and consultation services related to
the waste management service in order to assist the municipalities to implement efficient and
smooth waste treatment services.
Thermal Recovery
Power generation and other forms of residual thermal utilization have long been implemented at
waste incineration plants in Japan, but the low efficiency of power generation has been an issue;
consequently, although residual thermal has been used for swimming pools and other community
facilities in the vicinity of some waste incineration plants, most of the power is consumed within
the plants. At present the utilization of energy from incineration power generation is promoted
because of the enhanced caloric content of waste associated with changes in lifestyles, and the
improvement in power generation efficiency brought about by technical innovations.
Incineration power generation is positioned as part of global warming countermeasures to realize
a low-carbon society, because it can serve as a new energy source to replace fossil fuels on the
strength of the effective use of resources by reusing waste.
Thermal recovery in the waste treatment process is positioned in the Basic Act for Establishing a
Sound Material-Cycle Society as cyclical usage (thermal recovery), the first step after the 3Rs, and is
widely promoted as a measure when reuse or recycling are not possible.
As the development of waste incineration plants for thermal recovery is eligible for subsidies for
promoting the formation of a sound material-cycle society, the central government is providing
financial support to promote the development of such facilities. Based on the relevant laws and
regulations related to renewable energy as outlined hereafter, the use of recovered energy is being
promoted by providing business support and promoting the use of new energy, and by ensuring stable
sales of renewable energy obtained from waste.
New Energy Act
Name of act: Act on Special Measures Concerning the Promotion of New Energy Usage
(New Energy Act)
Enacted: 1997
Purpose: To encourage residents of Japan to make efforts to use new energy, and to smoothly
promote the use of new energy in order to contribute to ensuring a stable and
appropriate supply of energy in line with economic and social environments in Japan
and the rest of the world.
Overview of the act: The act requires consumers and business operators to make efforts to introduce
new energy, and sets out measures for financial support for business operators that
introduce new energy through investment subsidies for small and medium-sized
enterprises and the like, with a focus on accelerating the introduction to the market of
new energy that is ready for practical application but is held back by factors such as
economic efficiency, and promoting further technology development with an eye on
the long term.
Targets: The Cabinet Order has positioned photovoltaic power generation, wind power generation,
clean energy vehicles, waste fuel production, waste power generation, waste thermal
utilization, temperature difference energy, natural gas cogeneration, fuel cells, and
solar thermal utilization as “new energy utilization.” Subsequent amendments have
added biomass fuel power generation and thermal utilization, and snow and ice thermal
utilization, and have excluded waste power generation from waste plastic.
Source: Act on Special Measures Concerning the Promotion of New Energy Usage (1997)
Feed-in Tariff (FIT) Act
Name of act: Act on Special Measures Concerning Procurement of Electricity from Renewable
Energy Sources by Electricity Utilities (FIT Act)
Enacted: 2011
Amended: 2016
Purpose: To promote the use of renewable energy sources as energy sources for electricity by taking
special measures for the procurement of renewable electricity energy from electric power
utilities in terms of price, duration, and other factors, in view of the increasing importance
of using renewable energy sources as energy sources to ensure a stable and appropriate
supply of energy in line with economic and social environments in Japan and the rest of
the world and to reduce the environmental impact of supplying energy.
Overview of act: The act obliges electric power companies to respond to applications from
renewable energy power producers for electricity supply agreements at the procurement
price and duration set by the government. Additionally, in principle, the expenses incurred
by electric utilities when purchasing electricity associated with the operation of the system
will be widely borne by the public as taxes (surcharges).
Targets: Renewable energy sources (solar, wind, hydro, geothermal, biomass (plant- and animal-
derived organic matter that can be used as an energy source), and excluding crude oil,
petroleum gas, combustible natural gas and coal as well as products made from them)
Source: Act on Special Measures Concerning Procurement of Electricity from Renewable Energy Sources by
Electricity Utilities (2011)
Pollution Countermeasures (for Dioxins, etc.)
In response to dioxins becoming a social problem, the Ministry of the Environment took the lead
in establishing an investigative commission of experts to discuss countermeasures. Based on the
experts’ opinions, the relevant laws and regulations regarding the technical standards for plants,
emission standards and environmental quality standards for the general environment were
established and amended.
When pollution and other problems that threaten human life and health occur, the necessary laws
are established and comprehensive countermeasures are implemented through technical and
regulatory methods based on the results of the experts’ investigations.
Dioxins became a major social issue in the wake of research results showing that they have adverse
effects on the environment and human health. In response, measures such as limiting dioxins emitted
from the stacks (chimneys) of incineration plants and improvements to waste incineration plants have
been promoted based on Guidelines for the Prevention of Dioxins Emission from Waste Treatment.
These guidelines were compiled starting in 1997 by a commission investigating measures to reduce
dioxins during waste treatment. Amendments were then made to the Air Pollution Control Act and the
Waste Management Act. Basic Guidelines for the Promotion of Dioxins Countermeasures were
formulated at the ministerial conference on countermeasures against dioxins held on March 30, 1999.
The government has been promoting these countermeasures, including drastically lowering dioxin
emissions.
On July, 1999, the Law Concerning Special Measures against Dioxins was enacted to remove
dioxins from the environment and prevent pollution of the environment by dioxins. The law sets out
principal standards for measures pertaining to dioxins as well as countermeasures for contaminated
soil (for more details on dioxin-related problems, refer to Topic 5-3: Dioxins Problems).
Accordingly, as a result of the development of technology for countermeasures, the improvement
of incineration plants, and the strengthening of regulations, dioxins emissions from waste incineration
plants decreased about 99% from 1997 to 2011.
Name of law: Law Concerning Special Measures against Dioxins

Enacted: 1999
Purpose: To set out standards to serve as the basis for measures pertaining to dioxins, necessary
regulations, soil contamination countermeasures, and more in order to remove dioxins
from the environment and prevent pollution of the environment by dioxins which are
substances that may have a serious impact on human life and health.
Target: Dioxins (polychlorinated dibenzofurans, polychlorinated dibenzo-para-dioxins,
coplanar polychlorinated biphenyls)
Source: Law concerning Special Measures against Dioxins (1999)

Inter-Municipal Waste Disposal
Against a backdrop that includes the need to secure a certain scale of treatment capacity to
promote efficient and proper waste treatment, dioxins countermeasures, and waste power
generation, Japan has promoted inter-municipal waste disposal as a national policy, and has
achieved a certain degree of success.
In the past several years, depopulation has made it increasingly difficult for municipalities to
implement waste treatment on their own; thus, inter-municipal waste disposal is being considered
as a measure to ensure sustainable and proper treatment into the future as well as stable waste
management over the medium to long terms.
When considering the introduction of inter-municipal waste disposal, it is crucial to take into
account that the content of the plan and framework must beneficial to all the participating entities
and that the issues can be resolved.
Waste management is an inherent obligation of each municipality, with each municipality being
responsible for waste management in its own region. On the other hand, some municipalities may find
it difficult or inefficient to fulfill their waste management responsibilities on their own due to their
locations, population sizes, industrial structures, or other regional characteristics. For such
municipalities, an exception is allowed to form a partial-affairs association or wide area union to
assume responsibility for waste treatment in a wider area. Under this idea, inter-municipal waste
disposal refers to the joint provision of waste management services by multiple municipalities, and
the central government issued notifications to prefectural governments in 1997 and 2019 to promote
the broadening and consolidation of waste treatment (for an overview of inter-municipal waste
treatment plans, refer to Topic 1-2.3 (3) Inter-Municipal Waste Treatment Plan). Summaries of the
notifications are as follows.
Summary of the 1997 Notification
1) Background
In order to promote proper waste treatment, the situation required responses to; developing
incineration facilities above a certain size (100 ton/day) and efficiently use waste heat generated
from the facilities, the difficulty of securing landfill sites associated with factors such as
increasing amounts of waste generated, the growing need for recycling, and the need for dioxins
countermeasures and other advanced environmental conservation measures.
2) The Need for Inter-Municipal Waste Disposal

Plans for inter-municipal waste disposal are considered based on the following needs.
Table 2-8 Needs of Inter-Municipal Waste Disposal (1997 Notification)

No. Need Summary
Increasing the scale of incineration plants will make it possible
1 Reduce dioxins
to develop facilities with low dioxins emissions.
Promote material Expanding target waste collection areas will help promote
2 recycling material recycling and reduce amounts of waste incinerated.
Developing larger plants will enable efficient residual thermal
3 Promote thermal recycle utilization at waste incineration plants, helping promote
thermal recycle.
Measures to secure
4 Efforts to secure landfill sites serving wider areas.
landfill sites
Reduce the cost of public Consolidating waste treatment plants and expanding treatment
5 services areas will help reduce the cost of public services.
Source: Ministry of the Environment “Inter-municipal plan for waste treatment” (Number 173) (1997)
Summary of the 2019 Notification
1) Background
After the 1997 notification was issued, all prefectural governments formulated inter-municipal
waste disposal plans and promoted efforts toward wide-area and consolidation of waste treatment.
However, the circumstances surrounding waste treatment in Japan had changed substantially in
the two-plus decades since the 1997 notification.
In order to ensure sustainable and proper treatment into the future, it was necessary to
reconsider what constitutes stable, efficient waste treatment systems over the medium and long
term in light of present and future factors such as social circumstances.
2) Purpose
To formulate plans for wide-area and consolidation for ensuring sustainable and proper
treatment to serve as the basis for promoting the establishment of stable and efficient waste
treatment systems.
3) The Need for Wide-Area and Consolidation

Plans for inter-municipal waste disposal are considered based on the following needs.
Table 2-9 Needs of Inter-Municipal Waste Disposal (2019 Notification)

No. Need Overview
Developing waste incineration plants and streamlining operation
Ensure sustainable and
1 and maintenance will help ensure sustainable and proper
proper treatment
treatment in terms of securing finances and personnel.
Promoting not only energy savings but also improvements in
power generation efficiency and thermal utilization rates at waste
Promote climate change
2 incineration plants will help reduce energy consumption
countermeasures
throughout waste treatment systems as well as greenhouse gas
emissions.
Collecting organic waste across broad areas yields the necessary
Promote waste recycling
3 amounts for material and energy use, helping promote biomass
and biomass utilization
utilization.
Establishing waste treatment systems that serve broad areas and
Strengthen disaster using waste incineration plants as local disaster risk reduction
4
countermeasures centers provides independent, decentralized supplies of
electricity, heat, and more during disasters.
Create new value for Efficiently recovering waste energy can allow incineration plants
5
communities to function as local energy centers.
Source: Ministry of the Environment “Inter-municipal expansion of waste treatment and consolidation of waste
treatment facilities to ensure sustainable and appropriate treatment” (Number 1903293) (2019)
Outcomes of Inter-Municipal Waste Disposal
Table 2-10 lists the outcomes of inter-municipal waste disposal. Comparing FY 1998 to FY
2017, the number of waste incineration plants has decreased by 40% and the average capacity of
the plants has increased from 109 ton/day to 164 ton/day. In addition, a significant reduction in
total dioxins emissions has been achieved. Thus, inter-municipal waste disposal in Japan has been
successful in reducing dioxins emissions effectively by promoting efficiency in waste treatment
through consolidating facilities into larger-scale facilities.
Table 2-10 Outcomes of Inter-Municipal Waste Disposal

Item FY1998 FY2017 Outcome
Number of waste Roughly 40%
1,769 1,103
incineration plants reduction
550 593
Plants treating at least
(Roughly 30% of the (Roughly 50% of the Expansion of plant
100 ton/day
total) total) scale
Average plant capacity 109 ton/day 164 ton/day
Achieved target of
Dioxins emissions 1,550 g-TEQ/year 22 g-TEQ/year
33g-TEQ/year
*TEQ: Toxicity Equivalency Quantity
Source: Ministry of the Environment “Prepared based on Guidance on Inter-municipal and Consolidation” (2020)
Issues in Inter-Municipal Waste Disposal
Although the central government’s notifications have advanced inter-municipal waste disposal
and produced some outcomes, there are also cases in which inter-municipal waste disposal has
not progressed. According to the results of a survey conducted by the Ministry of the Environment
to municipalities, the reasons for this lack of progress can be broadly classified into the three
categories as shown in Table 2-11. It is important to sort out and verify the advantages and
disadvantages of inter-municipal waste disposal in advance, and to evaluate efficiency, personnel,
funding, and other aspects of waste collection and transport, plant operation and management,
etc.
Table 2-11 Examples of Reasons for Lack of Progress in Wide-Area and Consolidation
Reason for lack of
Percentage
progress in wide- Detailed description
of responses
area/consolidation
Few advantages in terms of cost (e.g., increase in plant
development costs associated with purchasing land for
developing waste treatment plants serving wide-areas,
increase in waste collection and transport costs associated
with longer collection and transport distances)
Little incentive to implement wide-area/consolidation
Advantages to wide-
(subsidies for promoting the formation of a sound material-
area/consolidation 3/12 (25%)
cycle society are granted even for infrastructure life extension
deemed to be too few
and developing disaster-resilient waste treatment plants)
Consolidation of facilities creates difficulty sustaining waste
treatment operations when plants shut down during disasters
Waste becomes difficult to collect and transport during wide-
area/consolidation if areas subject to wide-area/consolidation
are too large
Difficulty coordinating the timing of waste treatment plant
development (particularly when consolidated facilities are
scheduled to go into service at different times)
Difficulty coordinating waste treatment methods (particularly
when different municipalities presently deploy different
Coordination between waste treatment methods)
municipalities is 7/12 (58%) Changes in waste policy when new municipal mayors take
difficult office
Changes in waste policy when municipalities merge
Difficulty coordinating potential sites for plant construction
Difficulty coordinating cost-sharing
Difficulty coordinating sorted waste categories
Difficulty coordinating waste collection days
Difficulty gaining residents’ understanding for increasing
transport distances for direct receiving
Difficulty coordinating
2/12 (17%) Difficulty getting residents’ understanding for consolidating
with residents
treatment of waste from different municipalities to a single
location
Source: Ministry of the Environment “Guidance on Inter-municipal and Consolidation” (2020)
Column: Osaka Bay Phoenix Project

1. Background
Ongoing high-density land use in inland areas
of the Kinki region (Population: roughly 20
million, Area: roughly 27,000 km2) has made it
difficult to secure landfill sites. Under these
circumstances, the Osaka Bay Phoenix Project
was planned and implemented to fulfill two
social demands: proper waste treatment and
urban revitalization.
The project, which was funded by local
governments and port authorities in the Kinki
Source: Osaka Bay Regional Offshore
region, sought to create landfills in Osaka Bay as Environmental Improvement Center
“Osaka Bay Side Phoenix Project” (2021)
a means of final disposal of waste from the major Photo 2-8 Reclaimed Land off Kobe Coast
urban areas of the region, and to use the
reclaimed land to improve the functions of ports and harbors.
2. Purpose
(1) To preserve living environments in the Osaka Bay region through proper landfill disposal of
waste generated in the broad target areas of the region.
(2) To contribute to the balanced development of the region through the orderly improvement of
ports and harbors by using the land created by
the landfills.
3. Plan Overview
Under the Osaka Bay Phoenix Project, four
landfill sites were established in Osaka Bay to
accept waste generated across a wide-area - 171
municipalities in six prefectures in the Kinki
region.
The following advantages and disadvantages of
Source: Osaka Bay Regional Offshore
inter-municipal waste disposal, and important Environmental Improvement Center
“Osaka Bay Side Phoenix Project” (2021)
points to remember when introducing and Photo 2-9 Reclaimed Land off
sustaining inter-municipal waste disposal are Izumiotsu Coast
offered as lessons learned from implementing the Osaka Bay Phoenix Project (results of interviews
with Osaka Bay Regional Offshore Environmental Improvement Center and others).
Advantages of Inter-municipal Waste Disposal

 Consolidating waste treatment and disposal streamlines plant development and operation.
 The larger the scale of the plant, the more economically efficient it becomes, i.e., advantages
of economies of scale.
 Plants can be operated more consistently over longer periods of time after inter-municipal
waste disposal.
Disadvantages of Inter-municipal Waste Disposal
 Decision-making takes more time because there are more stakeholders.
 Awareness of the need to secure remaining landfill capacity and new landfill sites could
weaken because plants can be operated more consistently over longer periods of time.
 Risks that were not initially envisioned (including changes in social circumstances) could arise
because plants can be operated over longer periods of time.
Important Points to Remember when Introducing Inter-municipal Waste Disposal
 There should be no major differences between waste management policies and efforts within
the participating municipalities..
(For example, it feels fairer when there are no disparities between required resident
cooperation toward waste reduction or burden for the expense of waste treatment when charges
are introduced.)
 Wide-area should cover municipalities with strong social unity. (Unity and acceptance are
easier to achieve when stakeholders have shared understanding and awareness.)
Important Points to Remember when Sustaining Inter-municipal Waste Disposal
 Continue to hold briefings for local interest parties to sustain both the consensus reached
between them and stakeholders’ understanding.
 Modify the system in response to changes in social circumstances.
Photo 2-10 Ship to Transport Waste Photo 2-11 Transfer of Waste from Ship to
(The roof is closed after departure to prevent Truck
(Reclaimed Land off Osaka Coast)
waste scattering)
Photo 2-12 The Dumping of Waste into the Photo 2-13 Water Treatment Facilities
Landfill Installed in the Landfill (Reclaimed Land
(Reclaimed Land off Osaka Coast) off Osaka Coast)
3R Promotion
In order to reduce consumption of natural resources and minimize waste, Japan has long engaged
in efforts related to the 3Rs, including reducing waste, reusing unwanted articles, sorting
recyclables, and group collection (voluntary resource collection systems run by local residents and
others). Furthermore, amid a growing awareness of the importance of establishing a society capable
of sustainable development, efforts toward establishing a sound material-cycle society have been
promoted, namely through the enactment of the Basic Act for Establishing a Sound Material-Cycle
Society in 2000.
Under these circumstances, Japan drafted the 3R Initiative in 2004. Since then, efforts to promote
the 3Rs have been enhanced inside and outside Japan, and Japan has shared its wealth of knowledge
and experience with 3Rs activities with many other countries in an effort to spearhead the formation
of a global-scale sound material-cycle society.
The 3R Initiative
Japan drafted the 3R Initiative with the aim of establishing a sound material-cycle society through
the 3Rs (reducing the generation of waste (Reduce), reusing waste (Reuse), and recycling waste
(Recycle)) based on the recognition that the 3Rs - which initiate to promote the effective use of
resources to achieve a balance between the environment and the economy - will become even more
important in the future.
Initiatives at G7/G8 Summits
The 3R Action Plan was adopted at the G8 summit held in Sea Island, Georgia, USA in June 2004.
In response to the adoption of the plan, the 3R Initiative was formally launched at the 3R Initiative
Cabinet Ministers Meeting held in Tokyo in April 2005.
3R Action 1. Promote a 3R shift for economically viable waste
Plan 2. Reduce barriers to the international distribution of recycled materials and products
3. Encourage cooperation among governments, the private sector, NGOs, and other
stakeholders
4. Promote science and technology adapted to the 3Rs
5. Develop human resources and cooperate with developing countries
The G8 Summit held in Saint Petersburg, Russia in July 2006 confirmed the commitment to
optimize resource recycling based on the 3R Initiative and the idea of setting targets, as appropriate
considering resource productivity. The 3R Action Plan also appeared on the agendas of subsequent
summits, including the G8 Summit held in Toyako, Hokkaido, Japan in 2008, and the G7 Summit held
in Schloss Elmau in Bavaria, Germany in 2015.
These discussions and activities over many years formed the foundation of the G7 Common Vision
to Enhance Resource Efficiency and Promote the 3Rs and the Toyama Framework on Material Cycles
- a proposal of ambitious actions by G7 countries - which were adopted at the G7 Toyama Environment
Ministers’ Meeting in May 2016. The G7 Ise-Shima Leaders’ Declaration contains a pledge to support
the Toyama Framework. G7 Common Vision to Enhance Resource Efficiency and Promote the 3Rs
and ambitious actions are shown in Table 2-12.
Table 2-12 G7 Common Vision to Enhance Resource Efficiency and Promote the 3Rs
and Ambitious Actions
G7 Common Vision to Enhance Resource Efficiency and Promote the 3Rs
 Our common goal is to achieve a society in which resources, including stock resources, are used
efficiently and sustainably over the entire life cycle by reducing the consumption of natural resources
and promoting the use of recycled materials and renewable resources in order to keep them within
the environmental capacity of the Earth, while respecting the relevant concepts and approaches.
 Such a society will not only provide solutions to the problems of waste and resources, but also create
a sustainable low-carbon society in harmony with nature that can generate employment, enhance
competitiveness, and achieve green growth.
Ambitious Actions by G7 Countries
Goal 1:  Comprehensive integration and promotion of policies on resource
Leading domestic efficiency and the 3Rs, climate change, extreme weather events, harmful
policies for resource substances, disaster waste, natural environment conservation, and more.
efficiency and the 3Rs  In addition to regulatory approaches, use of voluntary initiatives by
business operators and the like
 Proper treatment and recycling of disaster waste, development of
disaster-resilient waste treatment plants, etc.
 Cooperation among various local entities (symbiosis between industry
and local communities), consumer measures
Goal 2:  Share best practices, the best available technology (BAT), and useful
Promotion of global lessons with other countries through the G7 alliance and other
resource efficiency and organizations
the 3Rs  Support for capacity building for resource efficiency and resource
circulation policies in developing countries
 Support for countries and regions experiencing major natural disasters
 Encourage proactive efforts in upstream industries to reuse and recycle,
including the use of renewable resources
Goal 3:  Establish a transparent follow-up process domestically including
Steady and transparent sharing of calculation methods, indicators, and the results of reviews.
follow-up  Continue to share progress, challenges and lessons learned on
implementation of the Framework, through workshops and other fora.
Source: Ministry of the Environment Website “G7/G8 initiatives on 3Rs and resource efficiency”
http://www.env.go.jp/recycle/circul/3r_g7g8.html（accessed January 22, 2022）
Promotion of the 3Rs in Asia
In 2006 and 2008, Japan held the Asia 3R Conference, an administrative-level meeting for Asian
countries to share information on the 3Rs. Additionally, in November 2009, the Regional 3R Forum
in Asia and the Pacific was established as a further development of the Asia 3R Conference. The
objectives of the forum include promoting high-level policy dialogue on the 3Rs, promoting support
for the implementation of 3R-related projects in Asian countries, sharing systems, technologies, and
other information useful for the promotion of 3Rs, and creating a network among stakeholders.
The forum has been held regularly since the first meeting in Tokyo in November 2009, and has been
hosted by the Japanese Ministry of the Environment, among others.
Table 2-13 Regional 3R Forum in Asia and the Pacific

No. Date Host country Participants Theme
Adoption of the Tokyo 3R Declaration
November
1st Japan 15 Asian countries on the Establishment of the Asia 3R
2009
Promotion Forum
October 22 Asian and Pacific 3Rs for a Green Economy and a sound
2nd Malaysia
2010 island countries material-cycle society
Technology Transfer to Promote the
October 23 Asian and Pacific
3rd Singapore 3Rs: Adaptation, Implementation, and
2011 island countries
Expansion of Proper Technologies
Future 3R Efforts Based on the
March 31 countries in the
4th Vietnam “Future We Want” Rio +20 Outcome
2013 Asia-Pacific region
Document
33 countries (ASEAN, Framework for Multilayered
February Pacific island Coordination and Cooperation as a
5th Indonesia
2014 countries, East Asia, Foundation for 3R Promotion in the
South Asia, etc.) Asia-Pacific Region
3R Industry: The Course of Next-
39 countries (ASEAN,
Generation 3R for Resource-Efficient
August Pacific island
6th Maldives Societies and Sustainable Tourism
2015 countries, East Asia,
Development in the Asia-Pacific
South Asia, etc.)
Region
41 countries (Asian Advances in the 3Rs and Resource
November
7th Australia countries, Pacific Efficiency for the Sustainable
2016
island countries, etc.) Development Agenda 2030
Achieving Clean Water, Land, and Air
41 countries (Asian
April through the 3Rs and Resource
8th India countries, Pacific
2018 Efficiency: Vision for the 21st Century
island countries, etc.)
in the Asia-Pacific Region
Roughly 40 countries The 3Rs as a Means of Achieving
th March (Asian countries, Self-Sufficient Economies:
9 Thailand
2019 Pacific island Implications for Sustainable
countries, etc.) Development Goals
Promoting a Circular Economy in the
November- 30 countries (Asian
Asia-Pacific Region to Achieve the
10th December Webinar format countries, Pacific
SDGs during the COVID-19
2020 island countries, etc.)
Pandemic
*: The name of the forum was changed to “3R and Circular Economy Promotion Forum in Asia and the Pacific” at the
10th meeting.
Source: Ministry of the Environment Regional 3R Forum in Asia and Pacific Website “Regional 3R Forum in Asia and
the Pacific” https://www.env.go.jp/recycle/3r/en/index.html（accessed January 19, 2022）
Column: The Regional 3R Forum in Asia and the Pacific
The Regional 3R Forum in Asia and the Pacific was first held in Tokyo in 2009 under the joint
sponsorship of the Ministry of the Environment of Japan and the United Nations Centre for Regional
Development (UNCRD) (its original name was “Asia 3R Promotion Forum”). Since then, a total of
10 international meetings have been held in Malaysia, Vietnam, Indonesia, Australia, India,
Thailand, and other countries. With 39 participating countries at present and the adoption of the
Hanoi 3R Declaration (2013) and the Bangkok 3R Declaration (2019), the 3Rs are gaining
momentum in the Asia-Pacific region every year.
At the first meeting of the Asia

3R Promotion Forum held in
Tokyo in 2009 (pictured on the
right), representatives and
experts from 15 Asian
countries (including ministers)
and 16 international
organizations participated, and
the Tokyo 3R Declaration on
the Establishment of the Asia
3R Promotion Forum was
adopted.
The objectives of the forum are to promote high-level policy dialogue on the 3Rs; to promote
dialogue and collaboration among countries, international organizations, and aid agencies for the
implementation of 3R projects; to share 3R best practices, methods, technologies, and policy tools;
to strengthen networks among central and local governments, experts, and other stakeholders; and
to disseminate national 3R strategies. Each meeting of the forum has been attended by a wide range
of stakeholders.
Notably, the Institute for Global Environmental Strategies (IGES), which participates in the
forum as a policy advisor, has highlighted that “although the formation of legal systems is
progressing, steady expansion of policy implementation capacity and institutional and technological
infrastructure that meets local needs are expected”, and has identified the following matters
pertaining to 3R promotion in developing countries.
System and Governance

 Establish a formal waste collection and treatment mechanism for waste and circular
resources
 Build the capacities of local governments to reliably enforce regulations
 Specify policy priorities and directionality in addition to financial support from central
governments
 Follow up on policy implementation and continuously review plans
 Establish the roles and responsibilities of relevant people in order to achieve goals
Development of Recycling Industry Infrastructure

 Promote technological and industrial infrastructure that ensures environmental management
 Develop social infrastructure as well as technologies and industries in line with actual
conditions
 Develop an excellent recycling industry with scale and capital strength
Nurturing the Market for Waste Recovery and Reuse

 Prevent end-of-life products from being sent through inappropriate, even if inexpensive,
treatment methods based solely on their economic value or value as resources
 Shift from recycling for cost recovery to sustainable resource circulation
 Recognize the need to change the demand coordination mechanism that relies solely on the
market
The 3Rs are being deployed in developing countries around the world through JICA’s training
programs and technical cooperation projects, including the forum described earlier. To promote the
3Rs in developing countries, it is necessary to develop an understanding of the social and economic
conditions of each country and city before coordinating with industry organizations and other
stakeholders, drafting practical policies that take into account the issues described previously, and
promoting them effectively.
Topic 3. Administrative Organization and Finance Contents
Topic 3. Administrative Organization and Finance
Contents
1. Government Organizations Involved in Waste Management .......................................... 1
The Structure of Government Organizations ................................................................. 1
Changes in the Administrative Organization of Waste Management ................................ 5
Government Waste Management Services .................................................................... 5
Waste Management through Outsourcing and Collaboration with the Private Sector ........ 8
Roles of Government, Waste-generating Businesses, and Private Sector ....................... 10
Residents Participation and Consensus Building ......................................................... 16
Residents Participation in Waste Administration .................................................. 16
Environmental Education and Public Awareness Activities in Municipalities ......... 18
Methods for Building Consensus among Residents in Facility Development ......... 21
2. Waste Management Utilizing the Private Sector with Private Finance Initiative (PFI) ..... 33
Utilization of Private Sector Resources ...................................................................... 33
Overview of PFI projects .......................................................................................... 34
How PFI projects work ............................................................................................. 35
The PFI Method ................................................................................................ 36
Results Expected from Introducing PFI .............................................................. 38
3. Finances Concerning Waste Management .................................................................. 40
3.1 Financial Situation of the Central Government Concerning Waste Management ............ 40
3.2 Financial Conditions of Local Governments Concerning Waste Management ................ 41
3.3 Central Government Financial Support Programs for Waste Management ..................... 42
Changes in Subsidies and Grants for Facility Improvement .................................. 43
Grant Program for Establishing a Sound Material-Cycle Society .......................... 45
3.4 Fee Collection Methods by Local Governments and Fee Bearing by Residents and Business
Operators ............................................................................................................................ 51
Containers and Packaging Recycling Law ........................................................... 53
Home Appliance Recycling Law ........................................................................ 65
End-of-Life Vehicle Recycling Law.................................................................... 76
Charging Fees for Waste Management ................................................................ 83
3-2 Topic 3. Administrative Organization and Finance
Topic 3. Administrative Organization and Finance 3-1
1. Government Organizations Involved in Waste Management
The Structure of Government Organizations
In Japan, various geographic administrative areas have departments in charge of particular

sectors. In the waste management sector, a national management system has been set up under the
central government ministry, the Ministry of the Environment with divisions responsible for waste
management in the local governments.
In order to ensure that a proper waste management system is in place, all concerned persons;
citizens, businesses, and administrators must be proactive in fulfilling their roles and responsibilities
within the system. It is essential for them to work together in developing a united front by
integrating their respective actions through exchange of opinions and maintaining communication.
To do this, it is important to clarify the roles and responsibilities of each person concerned.
Under the central government of Japan there are 47 geographic administrative areas referred to as
prefectures, major cities and districts. Within these prefectures there are different types of
municipalities and special cities, and each of the prefectures, cities, towns, villages and special cities
have their own administrative organization. These are the local governments responsible for
administration within their administrative areas. (Special cities and municipalities number 1,741
(2020), of which 23 are special cities, 792 cities, 743 towns, and 183 villages).
Japanese government agencies are made up of the Cabinet Office and 12 government ministries, of
which the Ministry of the Environment is responsible for central management of the waste
management system. Other government agencies coordinate with the Ministry of the Environment and
have specific responsibilities. For instance, the Ministry of Economy, Trade and Industry promotes
efforts within the industrial community to construct a sound material-cycle society and controls the
import/export of waste, the Ministry of Education, Culture, Sports, Science and Technology promotes
environmental education, the spread of information, and research, and the Ministry of Health, Labor
and Welfare works to improve public health and the working environment.
Table 3-1 Division of Responsibilities for Waste Management within the Central Government
Ministries
Ministry Division of Responsibilities
This is the central government ministry that supervises all of Japan’s waste
Ministry of the
management administration. It coordinates with each ministry and implements
Environment
all relevant policies based on the laws.
Ministry of Economy, Implements waste management activities related to trade, and promotes efforts
Trade and Industry within the industrial community to establish a sound material-cycle society
Ministry of Land,
Infrastructure, Researches the current situation of construction and building byproducts
Transport and (waste), and promotes the Construction Material Recycling Law.
Tourism
Ministry of Promotes environmental education, and awareness-raising activities in the
Education, Culture, whole environmental field, including waste management. Promotes
Sports, Science and development of research in the waste management field at universities and
Technology research institutes.
Ministry of Health, Promotes initiatives related to improving public health, improving the working
Labor and Welfare environment in waste management, and developing human resources.
Ministry of
Implements proper management of livestock excrement and promotion of the
Agriculture, Forestry
Food Waste Recycling Law.
and Fisheries
Divisions have been set up in many prefectures and municipalities (in this text municipalities
include special cities) to manage waste, and the respective responsibilities of the various levels of
government agencies are determined by law.
Department/Division
Administrative Administrative
responsible for
Classification Organization
Waste Management
Nation
Cabinet Office and
12 ministries
Dept. of Environment Recovery
and Material Cycle
Prefecture
47 Agency of Prefecture
Div. of Waste
Prefectures Management / Div. of
Environment
Municipalities
1,741 Municipality Office

Div. of Waste
Municipalities Management / Div. of
Environment
Note: The 1,741 municipalities include cities designated by government ordinance that are at the prefectural level.
Figure 3-1 Waste Management System in Japan

Column: Central Environment Council

The Central Environment Council is an advisory body to the Minister of the Environment,
established in 2001 by the Ministry of the Environment in accordance with Article 41 of the Basic
Environment Law. The Central Environment Council has eight subcommittees, such as the
Integrated Policy Subcommittee, the sound material-cycle society Subcommittee, and the Global
Environment Subcommittee etc. The Council deliberates on consultations and provides important
insights regarding environmental policies and other issues, upon the request of the Minister of the
Environment or other ministers.
Name of
Duties stipulated
Subcommittee
Central Environment 1． To deal with matters stipulated in Article 15, Paragraph 3 of the
Council Basic Environment Law with regard to the Basic Environment Plan
2． To study and deliberate on important matters related to
environmental conservation in response to consultations by the
Minister of the Environment or relevant ministers.
3． Affairs under its authority pursuant to the provisions of other laws
and regulations
4． To be able to state its opinions to the Prime Minister, the Minister
of the Environment, or the ministers concerned in relations to the
matters mentioned above.
Integrated Policy 1． Matters related to the Basic Environmental Plan
Subcommittee 2． Important matters related to the preservation of the environment
(excluding those under the jurisdiction of other subcommittees).
Sound Material- 1． Important matters concerning waste treatment and recycling
Cycle Society promotion
Subcommittee 2． Matters related to the Fundamental Plan for Establishing a Sound
Material-Cycle Society based on the provisions of the Basic Act for
Global Important matters concerning the preservation of the global environment
Environment
Subcommittee
Source: Ministry of the Environment Website “List of the Central Environment Council Subcommittees”
https://www.env.go.jp/council/bukai.html（accessed February 23, 2022）
The main waste management responsibilities of the central government, prefectures, and
municipalities, together with the responsibilities of waste-generating business operators and
individuals generating waste are shown in Figure 3-2. In addition to the responsible government
agencies, both business operators and citizens generating waste also have roles to fulfill in waste
management from their respective positions.
Relationships between central and local governments and waste-generating business operators
Support for waste management facility development expenses
Municipal waste
Central Prefectures Waste generators

Government Municipalities Authorized
business
(and ordinance- Business
Advice
Municipal waste operators
Advice
designated cities) Residents operators
Supervision
management responsibility
Permission
•Formulation of basic
Outsourcing
Management
policies •Appropriate independent waste
•Formulation of waste management
•Establishment of waste •Formulation of municipal management
plans
management standards waste management plans •Cooperation with municipalities
•Granting of permission for
• Establishment of facility •Management of municipal •Generation control
installation of waste management
standards waste, etc. • Waste reduction, etc.
facilities (acceptance of reports on
•Establishment of
the installation of municipal
outsourcing standards
facilities)
•Technological
•Granting of permission for industrial Waste-generating
development, information
waste management operations
Industrial waste
collection, etc. business operators
•Administrative orders, etc. Industrial waste management
Guidance, supervision, and administrative orders responsibility
Authorized •Appropriate independent waste
business management
Permission operators Management
Outsourcing • Recycling/reduction
Supervision
•Compliance with outsourcing
standards
•Issuance of manifests
•Formulation of waste reduction
plans by business operators that
generate large amounts of waste
Figure 3-2 Division of Waste Management Responsibilities among Various Entities
Table 3-2 Description of Waste Management Responsibilities among Various Entities

Entity Responsibilities
Gathers and collates information about waste, makes laws and sets standards, and
Central promotes the development of technology. Gives technical and financial assistance to
government municipalities and prefectures, so as to devise and put into effect comprehensive
measures that contribute to other related entities fulfilling their responsibilities.
Give technical assistance so that municipalities can fulfil their responsibility for
municipal waste treatment. Assess the current situation with industrial waste in the
Prefectures region concerned, devise an industrial waste treatment plan so that treatment of the
(Large cities waste can be carried out properly and provide leadership and supervision to the
designated by waste-generating business operators. Also, register and supervise the industrial waste
government businesses of industrial waste treatment operators.
ordinance) (Large cities designated by government ordinance have responsibilities generally
equivalent to those of prefectures, due to the transfer of authority from prefectures,
etc. in addition to the responsibilities of municipalities.)
Responsible to treat general waste generated in their respective areas and develop
plans for various types of waste targeted in their cleaning operations. They also
Municipalities
promote voluntary activities by the residents to reduce municipal waste generated
and take measures to support proper treatment of municipal waste.
Responsible to properly treat the waste produced from their own businesses
(industrial waste), by their own initiatives. Make efforts to reduce the amount of
Waste- waste by promoting recycling within their businesses and treat waste properly by
generating outsourcing it to reliable private treatment businesses. They also anticipate the
business contribution of their products and containers to the waste flow, and prevent treatment
operators and recycling from becoming a problem by trying to develop environmentally
friendly products and containers and providing information contributing to proper
treatment methods.
Work to promote waste recycling through proactive use of recycled or
Waste-generators, environmentally friendly products and by minimizing waste and sorting waste for
citizens disposal. In this way they cooperate with the policies of national and municipal
entities to reduce waste and to treat it properly.
Changes in the Administrative Organization of Waste Management
The government agency with jurisdiction over waste management used to be the Ministry of
Health and Welfare, because of its public health perspective until 2001. However, societal changes
redefined the purposes and requirements of waste management, as well as the jurisdiction of
government agency. The Ministry of the Environment has been the managing agency since the
rearrangement of government ministries in 2001, and a national management system has been built
that includes municipalities.
Municipal waste was previously under the jurisdiction of the Ministry of Health and Welfare from
the perspective of public health, along with the works related to water services. In 1971, the
Environment Agency was set up with the purpose of centralizing and integrating the regulatory
administration for pollution issues, which was scattered in various ministries. The Environment
Agency also took over general administration relating to preserving the natural environment,
conservation of the environment and related matters. But policies that the Environment Agency could
actually implement were limited, and information sharing at the different levels of administration in
some ministries and agencies was inefficient, making it difficult to develop an effective environmental
administration.
Against this background, in January 2001 there was a rearrangement of the central government
ministries and agencies during which the Environment Agency became the Ministry of the
Environment. Responsibilities under the jurisdiction of the Ministry of Health and Welfare’s Water
Supply and Environmental Sanitation Department were reorganized; water services were moved to
the Ministry of Health and Welfare’s Health Bureau and waste treatment and cleaning related work
came under the Waste Management and Recycling Department, in the Ministry of the Environment.
In addition, part of the work relating to waste was removed from the Water Quality Bureau in the
Environment Agency and placed under the Waste and Recycling Policy Division and a system was set
up whereby the Ministry of the Environment was put in charge of waste management.
Government Waste Management Services
Waste management is a major administrative service for which the government needs to take
responsibility. In the past the government took the initiative in waste management, but now the use
of private sector technology and know-how is increasing to meet a variety of waste management
demands. This includes tackling the increasingly diverse waste stream, providing high-quality
services, and implementing waste management in an economically efficient manner. But, even
given use of the private sector, it is essential to provide government oversight in order to secure
provision of government services providing proper, safe waste management.
Under the Waste Management Act municipalities are designated as the management entities for
municipal waste operations. Thus, waste management is one of the important services municipalities
must provide for citizens within the administrative area under their jurisdiction.
In addition to waste collection and the various work processes leading to final disposal,
municipalities are also responsible for public awareness directed to citizens. Many municipalities have
a specialized division dealing with waste management, but in the case of collection, transport and
managing the operation of facilities, some municipalities do this work directly and some by
outsourcing part of it to the private sector.
Also, some municipalities with relatively low populations join with other nearby municipalities and
set up joint waste management (referred to hereafter as “Clean Association”). Thus, specialized
associations are set up to provide government waste management services so that the municipalities
can carry out their responsibility to provide waste management in an efficient way. These Clean
Associations provide the government waste management services for all the administrative areas under
the jurisdictions of the member municipalities. The parts of the work done directly by each
municipality differs depending on each municipality’s population size and area characteristics,
however each municipality is responsible for the overall waste management under its jurisdiction.
The basic approach to waste management of Japan is that waste should be treated in the locality
where it is generated and as close to the point of generation as possible. This is the principal of local
treatment within each area.
The status of outsourcing by municipalities for incineration treatment, recycling treatment, and final
disposal is shown in Figure 3-3. The outsourcing mentioned refers to agreements under which
treatment or disposal of waste takes place outside of the municipalities or Clean Associations, which
do not treat or dispose of the waste by themselves, and implies that disposal does not occur within the
area.
For incineration treatment, the amounts treated by outsourcing respectively within prefectures is
1,917,000 tons (5.6％ of the total waste incinerated amount) and outside prefectures is 81,000 tons
(0.2％), and the total amount outsourced for incineration is 1,998,000 tons (5.8％). The amount of
incineration treatment not outsourced (the amount treated by municipalities or Clean Associations) is
32,430,000 tons (94.2％), so that most of the amount is treated according to the principal that treatment
occurs within the area of generation and is treated in municipally owned facilities.
For recycling treatment, the amounts treated by outsourcing respectively within prefectures is
4,072,000 tons (53.6％ of the total waste recycling treatment amount) and outside prefectures is
594,000 tons (7.8％) with a total treated amount of 4,666,000 tons (61.4％). The amount of recycling
treatment waste that is not outsourced (the amount treated by municipalities or Clean Associations) is
2,938,000 tons (38.6％). In the case of recycling treatment, the amount rate treated at municipality
owned facilities is less than that for the amount rate of incinerated treatment, but recycling is done
efficiently in neighboring areas.

For final disposal, the final disposal amounts by outsourcing within prefectures is 1,623,000 tons
(42.7％ of total waste disposal amount) and outside prefectures 230,000 (6.1％) for a total amount of
1,853,000 tons (48.8％). The amount of final disposal treatment waste that is not outsourced (the
amount treated by municipalities or Clean Associations) is 1,946,000 tons (51.2％) which means that
more than half the amount is treated at facilities owned by municipalities. As of 2019, there were 285
municipalities without final disposal sites, which was about 16％ of the total.
Outsourced to Outsourced to
contractor outside contractor in own
own prefecture, Outsourced to
prefecture, 0.081,
1.917, 6% 0% contractor in own
prefecture, 0.594, 8%
Waste treated
amount not
Waste outsourced to
incinerated Waste treated contractor
Waste incinarated amount not amount (Excluding waste
amount outsourced to (Excluding waste
incinerated
34.438 million incinerated amount)
tons contractor, 7.604 million tons amount), 2.938,
(100%) 32.43, 94% 39%
Outsourced to
contractor
outside own
prefecture, 4.072,
53%
Incineration Treatment (mil tons/year) Recycling Treatment (mil tons/year)

Outsourced to
contractor in own
prefecture, 0.23,
6%
Waste disposal
Waste disposal amount not
amount
3.799 million tons outsourced to
Outsourced to
(100%) contractor,
contractor
1.946, 51%
outside own
prefecture, 1.623,
43%
Final Disposal (mil tons/year)

Figure 3-3 Status of Outsourced Waste Treatment and Disposal
Waste Management through Outsourcing and Collaboration with the Private Sector
There are many private sector enterprises in Japan which have the necessary technology and
knowledge that can provide sufficient waste management services on behalf of municipalities.
Accordingly, there are many municipalities that use private sector to provide the necessary
governmental services in there administrative areas.
In many municipalities in Japan, the government administrators outsource part of the waste
management service to the private sector for which the government is responsible for, such as the
collection and transport of waste or the operation of facilities.
Municipalities must set up fairly large organizations within their administrations to provide citizens
directly with waste management government services, and they have to ensure the necessary personnel
and budget to do the work. They also need to secure and implement budgets on an ongoing basis for
the operation and maintenance of equipment and facilities. For these reasons, in order to supply
services for waste collection and transport efficiently and economically, many municipalities
outsource waste collection and transport services to private sector collection and transport businesses.
Many municipalities outsource the operation and management of their own waste treatment facilities
(incineration facilities, recycling facilities, etc.) and final disposal sites to the private sector in order
to ensure stable operation and management by highly skilled engineers.
The work itself is carried out by the private sector, but the municipalities oversee the outsourced
work and bear responsibility for it.
Table 3-3 The Advantages and Disadvantages of Direct Operation and Outsourcing
(Collection and Transport)
Item Direct Operation Outsourcing
 Lines of responsibility are clear  Can use private sector technology and
 Easy to align with other policies such as knowhow, and improve efficiency of
Advantages
3R. collection.
 Easy to adjust to citizens requirements  No large organization is needed, and
 Can respond flexibly to plans administration is easy to manage.
 Can react to unforeseen events.  Reduction of collection costs is possible
 It is possible to provide stable employment
for a large number of workers.
 A large organization must be set up and  Hard to tie down responsibility for
managed for collection collection
 Facilities, equipment, and personnel must  Only work specified in the contract is done
always be maintained. so flexible responses are difficult
 There will be high collection costs.  As the private enterprise is profit driven
Disadvantages
 It is hard to raise collection efficiency there is a danger that the quality of the
(maintain staff motivation). collection work may fall.
 The government loses the opportunity to
be in touch with its citizens.
 A pre-condition to ensure competitive
selection is that there should be a number
of private businesses able to provide a
stable and efficient collection and transport
service.
In addition to industrial waste generated from business activities, waste generated from offices and
other facilities is positioned as business-related waste, and is collected separately from industrial waste
and household waste. Business-related waste is transferred to treatment facilities either by the waste
generators themselves or the more likely case of private companies with collection and transportation
licenses.
Changes in the ratios of waste collection amount for each category is shown in Figure 3-4. The ratio
of waste collection done by municipalities outsourcing is increasing annually with a corresponding
tendency for the ratio of collection directly implemented by municipalities to continually decline. In
2019, the ratio of waste collection amount directly collected by municipalities was 20.1%, the ratio of
municipalities’ outsourced waste collection was 51.4%, and licensed businesses collected 28.6%. Thus,
contractors, who entered into outsourcing agreements with municipalities to collect waste, collected
over half the total collected waste, and represent the largest share.
直営委託許可
Direct management Outsourcing License system
100%
Percentage of total waste collected (%)
90%
26.5 26.6 27.1 27.4 27.7 27.9 28.3 28.6 28.7 28.6
80%
ごみ収集量に対する割合（％）
70%
60%
50% 46.9 47.5 47.7 48.5 49.3 49.7 50.2 50.5 50.8 51.4
40%
30%
20%
26.5 25.9 25.2 24.1 23.0
10% 22.4 21.6 21.0 20.5 20.1
0%
2010
H22
2011
H23 2012
H24 2013
H25 2014
H26 2015
H27 2016
H28 2017
H29 2018
H30 2019
R1
年度
Fiscal Year
Figure 3-4 Changes in the Ratios of Waste Collection Amount for Each Category
Roles of Government, Waste-generating Businesses, and Private Sector
It is important to clarify the various roles of administration (Government, Prefectures and

Municipalities), waste-generating businesses, and the private sector, and in Japan the
responsibilities of each is defined by law. The plans made by local governments for waste
management show the roles and responsibilities of each entity concerned, and they make aware of
these plans, as each entity is required to proactively carry out their duties.
The Waste Management Act sets out each of the responsibilities of citizens in Article 2-4, businesses
in Article 3, and the central and local governments in Article 4 respectively.
Table 3-4 The Roles of Government, Businesses and Citizens Defined

Government
Businesses Act Responsibility
Citizens
The central government shall collect information about waste, keep it in
orderly arrangement and use it, take measures for promotion of waste
management technology development and also take suitable action for
proper and smooth waste management throughout Japan. The central
government shall endeavor to give the necessary technical and financial
Central Article 4 assistance to the municipalities and to the prefectural governments for
Government 3,4 adequate performance of their duties mentioned in the preceding two
Paragraphs.
To suppress discharge of waste and ensure their proper management, the
central government, prefectural governments and municipalities shall all
endeavor to enlighten both the general public and businesses on the
importance of appropriate solid waste management.
The prefectural governments shall endeavor to give the necessary
technical advice to the municipalities under their administration to
Prefecture
Article 4 ensure their adequate performance of the duties prescribed in the
(Local
2 preceding Paragraph and shall endeavor to grasp the conditions of
Government)
industrial waste in the respective prefectures and take the necessary
action for proper management of such industrial waste.
The municipalities (self-governing bodies of cities, towns and villages)
shall endeavor to promote residents' voluntary activities to reduce their
Municipality municipal solid waste in their respective administrative areas and take
(Local Article 4 the necessary action for proper management of those municipal solid
Government) waste. They shall also endeavor to perform the management work
efficiently by improving the ability of the management personnel,
consolidating disposal facilities and developing operation techniques.
The businesses shall appropriately manage of the waste left as a result of
their business activities.
The businesses must endeavor to reduce the amount of waste by
recycling or re-use of waste. The businesses shall assess the handling or
processing difficulty of the waste generated when the products, their
containers or whatever they manufacture, process and sell the like are
discarded. They shall develop such products, containers or the like which
Businesses Article 3 are unlikely to present handling or processing difficulty, provide
information on appropriate management of the waste generated when the
products, their containers or the like are discarded, or take some other
actions to ensure appropriate management of the said products,
containers or the like without difficulty.
In addition to the preceding duties in this Article, the businesses shall
cooperate with the central government and local governments in their
activities to reduce waste, ensure appropriate management and so on.
The citizens shall cooperate with the central government and local
governments in their activities for waste reduction by restricting their
Article 2
Citizens waste discharge, using recycled articles or otherwise contributing toward
4
the recycling and re-use of waste, sorting waste prior to discharge,
managing of waste by themselves as far as possible and so on.
Source: Waste Management and Public Cleansing Law (1970)
The Basic Act for Establishing a Sound Material-Cycle Society sets out in Article 12 the
responsibility of citizens, in Article 11 the responsibility of businesses, and in Article 9, 10 the
responsibility of the central and local governments.
Table 3-5 The Responsibilities of Government and Waste Dischargers Stipulated in the
Basic Act for Establishing a Sound Material-Cycle Society
Government
Citizens
The central government shall be responsible for formulating and
implementing basic and comprehensive measures for the formation of a
Central
Article 9 recycling-based society in accordance with the basic principles for the
Government formation of a recycling-based society set forth in Articles 3 to 7
inclusive (hereinafter referred to as the "Basic Principles")
Local governments shall, in accordance with the Basic Principles,
implement the necessary measures to ensure that Recyclable Resources
are used and disposed of in an appropriate manner, and shall also be
Local
Article 10 responsible for formulating and implementing measures for the
Government formation of a sound material-cycle society in accordance with the
natural and social conditions of the area of the local government, based
on an appropriate sharing of roles with the central government.
Business Operators shall, in conducting their business activities in
accordance with the Basic Principles, take necessary measures to
prevent Raw Materials, etc. from becoming Wastes, etc. in their business
activities, and, in the case where Raw Materials, etc. become Recyclable
Resources in their business activities, they shall be responsible for
making their own appropriate use of the Recyclable Resources or taking
necessary measures to ensure that the Recyclable Resources are used
appropriately. (2) A business operator shall have the responsibility to
take necessary measures to ensure that Raw Materials, etc. become
Recyclable Resources in the course of its business activities, or to
dispose properly of Recyclable Resources that are not used in a recycling
manner on its own responsibility.
2 Business operators engaged in the manufacture, sale, etc. of

products, containers, etc. shall, in accordance with the basic principles,
take necessary measures to improve the durability of products,
Business Article 11
containers, etc., enhance the system for repairing them, and otherwise
take necessary measures to prevent such products, containers, etc. from
becoming waste, etc., when conducting their business activities.
Business Operators shall be responsible for devising the design of the
Products, Containers, etc. and labeling the materials or components of
the Products, Containers, etc. and for taking other necessary measures to
promote the proper recycling of the Products, Containers, etc. that have
become Recyclable Resources and to ensure that the proper disposal of
the Products, Containers, etc. does not become difficult.
3 In addition to what is provided for in the preceding paragraph, it is

necessary for the national government, local governments, business
operators, and citizens to appropriately share the roles of products,
containers, etc., when they become recyclable resources, in order to
properly and smoothly utilize them in a cyclical manner.
With respect to products, containers, etc. for which the role to be played
Government
Citizens
by the business operator is recognized to be important in promoting the
formation of a recycling-based society from the viewpoint of design and
selection of raw materials for the products, containers, etc., and
collection of products, containers, etc. that have become recyclable
resources, the business operator that manufactures, sells, etc. the
products, containers, etc. shall, in accordance with the basic principles.
In this case, the business operator that manufactures, sells, etc. the
products, containers, etc. shall, in accordance with the basic principles,
be responsible for taking back or delivering the products, containers, etc.
that have become recyclable resources, or utilizing them in an
appropriate manner, as a role to be shared by the business operator.
4 With regard to circulative resources for which it is technically and

economically feasible to use them in a sound material-cycle manner, and
for which it is recognized that it is important to promote the sound
material-cycle use in order to promote the formation of a sound material-
cycle society, business operators who are able to use such circulative
resources in a sound material-cycle manner shall have the responsibility
to use them in a sound material-cycle manner appropriately when they
conduct their business activities in accordance with the basic principles.
5 In addition to what is provided for in the preceding paragraphs,

business operators shall, in accordance with the basic principles,
endeavor to form a sound material-cycle society by using recycled
products, etc. in their business activities, and shall be responsible for
cooperating with the measures implemented by the central or local
governments concerning the formation of a sound material-cycle
society.
In accordance with the Basic Principles, the citizens have the
responsibility to reduce the amount of Products, etc. that become Wastes,
etc. by using them for as long as possible, using recycled products, and
cooperating in the separate collection of recyclable resources, and to
endeavor to promote the proper recycling of Products, etc. that have
become recyclable resources, as well as to cooperate with the measures
taken by the central and local governments for the proper disposal of
such products.
2 In addition to what is provided for in the preceding paragraph, with

regard to the Products, Containers, etc. prescribed in paragraph 3 of the
Citizens Article12 preceding Article, the citizens of Japan shall be responsible for
cooperating with the measures taken by the business operators
prescribed in the same paragraph by, in accordance with the basic
principles, appropriately delivering the Products, Containers, etc. that
have become recyclable resources to the business operators prescribed
in the same paragraph.
3 In addition to what is provided for in the preceding two paragraphs,

citizens shall be responsible for making their own efforts to form a sound
material-cycle society in accordance with the basic principles and for
cooperating with the measures for the formation of a sound material-
cycle society implemented by the central or local governments.
Source: Basic Act for Establishing a Sound Material-Cycle Society (2000)
The roles of citizens, businesses, and government are set out in a municipal waste management
basic plan made by the municipalities in order to carry out the planned measures efficiently according
to the basic policies set out in the basic plan. Examples are shown below of the roles of citizens,
businesses, and government in the municipal waste management basic plans of Shibushi City
(population: approx. 30,000 as of October 2015).
“Aim for a Zero-waste Emission Society”
1 Basic Responsibilities and Roles of Citizens, Businesses, and the City Administration.
(1) Present Status and Issues
From the year 2000 separate collection of sorted waste for recycling commenced, followed by separate
collection of sorted kitchen waste from 2004, and as a consequence the lifetime of the final disposal site
has been extended.
Sorting and separate collection of recyclables have become established but there are still cases where
some unsorted waste is being disposed as landfill waste. It is necessary to make more efforts to strengthen
the information and guidance system in order to prevent the disposal of recyclables at the final disposal
site.
Furthermore, measures such as surveillance, guidance, and treatment need to be taken promptly to
resolve the issues of illegal waste dumping, littering, and scattered waste.
(2) Basic Direction

Citizens, businesses, and the city will fulfill their respective responsibilities and roles throughout the
stages of products manufacturing, distribution, consumption, and disposal of the waste generated in these
stages, and work together to reduce waste, as well as to recycle and reuse resources.
A The City’s Basic Responsibilities and Roles

(a) In order to appropriately respond to the diversified types of waste, set up and operate a sorting and
separate collection and transport system that is stable, efficient, and reliable.
(b) Provide, or ensure the provision of intermediate treatment facilities, recycling facilities (for kitchen
waste, human waste), and cleaning center recycling equipment to treat or reuse waste in a quick and
sanitary manner.
(c) Arrange environmental education for citizens and businesses, and raise public awareness on
minimizing waste generation and recycling, and assist related voluntary activities.
(d) Adopt a procurement policy based on the Act on Promoting Green Purchasing, and promote effective
use of resources.
(e) Formulate a separate collection plan based on Containers and Packaging Recycling Law, and
continue to work to improve the sorting guidance system.
(f) While maintaining the designated garbage bag system, the city is considering the possibility of
charging fees for business-related recyclables and a revision of fees charged for business related
general waste, aiming for waste recycling and amount reduction.
(g) In order to respond to illegal dumping and littering, plan a guidance system for various groups and
for citizens, and a cooperation system for relevant organizations, together with strengthening
environmental patrols and supporting volunteer activities.
B Businesses’ Basic Responsibilities and Roles

(a) Limit the manufacture of disposable products and excessive use of packaging, and use returnable
containers. Work to minimize waste generation at the various stages of product development,
manufacture, and distribution.
(b) Cooperate with the basic plan set up by the city, by thorough sorting of waste, work to reduce the
waste amount generated and to recycle, and also procure recycled products using resources
effectively.
(c) Take responsibility to treat waste resulting from business activities properly.
(d) For food waste produced during business activity, when possible, make compost or feed stock with
a treatment machine and when self-treatment is not possible manage the waste in accordance with
the City’s basic plan.
(e) For products that inevitably become waste, make efforts to develop these products so that they can
be properly disposed.
(f) Always use designated business waste bags.
(g) Cooperate with fees charged on industrial waste.
(h) Take part proactively in volunteer work, and also participate in city beautification projects.
C Citizens’ Basic Responsibilities and Roles

(a) Limit the use of disposable products, cooperate with lite-packaging and non-packaging, use
returnable containers, make long-term use of products, and in other ways work to minimize waste
generation.
(b) A slogan says, “What is sorted is a resource, what is mixed is a waste”, and citizens should respect
the basic plan contents to neither burn nor bury waste. Instead, citizens should thoroughly sort their
waste, work to reduce generation of waste and make more efforts in recycling. They should
proactively join in volunteer activities, and take part in city beautification activities.
(c) Treat kitchen waste at homes and cooperate in minimizing waste generation.
(d) Promote the effective use of resources by procuring reusable products.
(e) Waste stations are managed by the hygiene unit of each residents association. Citizens join the self-
governing association set up in their area of residence, and together with the other members, manage
waste disposal, waste stations, etc.
(f) Citizens discharge their waste to the designated waste station, at the designated collection day and
time, participate in the joint waste sorting at collection at the waste station, strictly observe the rules
set up by the association at each station and cooperate together for the successful operation of the
waste station.
(g) Always use the designated household waste bag.
(h) Cooperate in elimination of offences, and take prevention measures against illegal dumping, waste
scattering and littering.
(i) Volunteer to attend study meetings to learn about the environment and better understand about waste
treatment.
Source: Shibushi City “Shibushi City General Waste Management Basic Plan” (2016)
Residents Participation and Consensus Building
Residents Participation in Waste Administration
In order to establish proper waste management systems, it is important for residents, business
operators, and governments to understand their respective roles, and for the three parties to work
together as one.
The governments’ roles are extremely important. Governments must provide opportunities for
exchanging opinions and ensure an environment for continuous communication with residents and
business operators. Communication based on the disclosure of all information is extremely effective
in venues for exchanging opinions.
If plans are created based on the opinions of residents and business operators, governments can
plan and implement highly feasible initiatives that are understood by the residents and business
operators, and encourage them to take specific actions in accordance with the plans.
Proper waste treatment depends on the cooperation of residents in properly sorting and discharging
waste. Each municipality clarifies the roles of residents, business operators, and the government in its
ordinances and basic plans, and stipulates what each of them should respectively do.
As an example, Table 3-6 shows the efforts required of each of residents, businesses, and Ota City
municipality to reduce plastic waste, which is one of the priority policies indicated in the Ota City
Municipal Waste Treatment Basic Plan (2021). In this plan, the action guideline for residents is to try
to refuse or reconsider the excessive or unnecessary use of plastics, and the action guideline for
businesses is to try to purchase products that can be used instead of plastics and to reconsider the use
of disposable plastics. Concrete examples of these required efforts are also described. The plan also
provides examples of efforts the municipality needs to make to promote actions by residents and
businesses, such as the development of a 3R promotion campaign.
Thus, in order for residents, business operators, and municipalities to collaborate and take specific
actions, it is necessary for municipalities to engage in discussions with the other parties and seek their
opinions, and then prepare municipal plans for waste management and the environment that set out
the respective roles and efforts of all three parties.
Table 3-6 Roles and Efforts of Residents, Business Operators, and Ota Municipality set out in
the Ota City Municipal Waste Treatment Basic Plan
Action guideline
Entity Details
/efforts
Action Try to refuse or reconsider the excessive or unnecessary
guideline use of plastics
・Gather information on concrete methods to reduce
plastic waste.
・When shopping at convenience stores (e.g., for take-
out meals), refuse disposable plastic spoons, forks,
Residents etc. (except when the intended use is for hygiene
Specific efforts purposes).
・Bring own bottles, straws, chopsticks, etc. when
going out.
・Bring own bag and refuse unnecessary plastic bags.
・Choose glass bottled and canned beverages whenever
possible.
Action Try to purchase products that can be used instead of
guideline plastics
・When purchasing equipment and supplies, try to
choose products that are plastic-free or products with
Business operators recognized environmental performance, such as
Specific efforts biodegradable or biomass plastics.
・Use water servers and personal cups.
・Reconsider the use of disposable plastic products at
events.
Action
Try to reconsider the use of disposable plastics
guideline
・Serve food in containers that can be used multiple
Restaurant
times or in non-plastic containers.
Specific efforts
・Stop using disposable tableware and use reusable
items.
・Teach resource recycling classes (environmental
education) to promote collaboration
・Develop a 3R promotion campaign
・Conduct activities to promote and raise awareness at
Municipalities Specific efforts events
・Promote initiatives to reduce plastic waste
・Create a mechanism to promote reduction of plastic
waste
・Examine new methods for plastic recycling
Source: Ota City “Ota City Municipal Waste Treatment Basic Plan” (2021).
Environmental Education and Public Awareness Activities in Municipalities
In order to promote environmental conservation activities and environmental education,

governments must create environmental education programs with content tailored to target
audiences, disseminate information that is highly relevant to communities, and develop human
resources for environmental education to provide opportunities for environmental education that
people of all ages can take an interest in and enjoy putting into practice.
Given the increasing need for environmental conservation activities and cooperation among
municipalities, business operators, and private organizations in promoting growth with the
environment at the center, and to further enhance environmental education that leads to the
development of people with a wealth of humanity, the Act on the Promotion of Environmental
Conservation Activities through Environmental Education was promulgated on June 15, 2011 and
came into full effect on October 1, 2012. The act specifies a framework for promotion by
municipalities, enhancement of environmental education in schools, participation of private
organizations and promotion of collaborative efforts in environmental administration, and more for
the creation and utilization of a wide range of pragmatic human resources who are essential for
promoting environmental conservation activities and environmental education.
As an example, Table 3-7 shows the environmental programs objectives and content for each target
age group implemented in Yokohama City, and Table 3-8 shows examples of environmental programs
for different courses. In Yokohama, the content of environmental education is devised according to the
target age group (e.g., nursery school and preschool, elementary school, junior high and high school).
In addition to visiting schools to give lectures, city officials also offer courses involving facility tours
and the like.
Tailoring the content to the target age group in this way makes environmental education more
interesting and enjoyable. Environmental issues that are familiar to residents should be taken up as
themes of the courses to encourage residents to take specific actions and put what they have learned
into practice on a daily basis.
To institutionalize environmental education in schools, it is essential to cooperate with the
organizations in charge of school education (boards of education in the case of Japan).
Table 3-7 Targets, Objectives and Content of Environmental Education in Yokohama City
Target Objectives and content
Keep talks short, use picture cards or the like to make things easy to
understand, and incorporate activities to keep children focused and engaged.
Nursery schools and Additionally, use mascot costumes, actual waste collection vehicles, and other
preschools props to help children develop a sense of familiarity with environmental
issues and to foster awareness that drives them to take action in their daily
lives.
Create opportunities for students to acquire basic knowledge about
environmental issues and think about the actions needed to solve them. Then,
Elementary school help students develop awareness of environmental consideration (e.g.,
attitudes toward creating sustainable societies, sensitivities, kindness and
compassion) that drives them to take action in their daily lives.
Help students steadily acquire basic knowledge and correct information.
Additionally, create opportunities for students to confront environmental
Junior high school,
issues and take action to solve them while helping them understand the
high school, university
similarities and differences in each other’s ways of thinking through dialogue
and discussion.
In some cases, failure to sort waste or mismanagement of collection points
have caused problems in local communities; therefore, it is important for each
Communities and and every person to act with awareness regarding the environment and
business operators beautification of their communities. Neighborhood association meetings and
briefings for residents are examples of events that can be used to help people
learn about these things.
Source: Yokohama City “Environmental Education Program” (2020)
Table 3-8 Example Themes of the Environmental Education Program in Yokohama City
Course Theme Programs
Basic course: Understanding the Circumstances and Basics of Food Loss
Elective: Interactive Study of Food Circulation through Composting Kitchen
Reducing Food Loss Waste and Growing Food
Elective: Study of Waste-Free Food Preparation and Preservation
Elective: Efforts by Society and Companies
Basic course: Understanding the Basics of Problems with Plastic Waste
Plastic Elective: Plastic in Society
Countermeasures Elective: Microplastics
Elective: Companies’ Efforts Involving Plastic
Basic course: Understanding the Flow of Waste Treatment
What Happens to Elective: A Full Day’s Waste Collection Work
Waste Elective: Seeing/Touching a Waste Collection Vehicle
Elective: How Resource Sorting Centers and Incineration Plants Work
Basic course: Understanding the City’s Sorting Rules
Sorting and Recycling Elective: Let’s Try Sorting (Sorting Game)
Waste Elective: Efforts for Thorough Sorting
Elective: Group Work: What We Can Do
Photo 3-1 Storytelling about the Photo 3-2 Explanation of the Structure
Environment Around us of the Collection Vehicle
（Nursery schools and preschools）
Photo 3-3 Workshop to Confront Photo 3-4 Briefing Session for Residents
Environmental Issues Regarding the Cleaning of their Local Area
(Junior High School, High School and (Local Residents)
University Students)
The fact that these programs are designed to meet the needs of people of all ages, and that
sustainable environmental education is rooted in local communities greatly contributes to the
formation of consensus among local residents, as explained in the following pages.
Methods for Building Consensus among Residents in Facility Development
1) Relationship between Governments and Residents

When waste treatment plants and landfill sites are constructed in Japan, the construction work
does not start until sufficient time has been taken to explain the project to residents and gain their
understanding.
Some local governments also provide explanations to residents during the construction if
necessary, and continue to communicate with residents even after plants and sites are in operation.
Ensuring opportunities for residents and governments to exchange opinions about impending
facility or plant construction and engaging in ongoing communication in this way makes it less
difficult to gain residents’ understanding about waste management performed by governments.
Furthermore, if good relationships can be sustained, residents are likely to become more cooperative
and better educated about the project and waste management.
To build good relationships between governments and residents, it is important for both sides to
understand how their respective views differ; residents should make efforts to understand the
governments’ explanations, and on the other hand governments should anticipate residents’
questions and concerns and prepare responses accordingly.
When constructing waste treatment plants or landfill sites, it is essential to consider residents living
near the planned locations of the plants and sites. Opposition from local residents or environmental
groups could arise if sufficient consideration and explanation are not given to them, hindering the
progress of projects.
The types of residents who oppose construction can be classified as confrontational, conditional,
active, and cooperative as shown on Table 3-9, however, most conflict is caused by the confrontational
type, who behave emotionally and aggressively and stand in total opposition to the construction.
Table 3-9 Residents Perspectives and Behavior by Types of Opposition

Residents’ Residents’
Type Characteristics
perspective behavior
Total opposition, Many conflicts stem from this type of
Emotional,
Confrontational complete relationship, and in the event of violent
aggressive
revocation conflicts, resolution may be sought in court
If residents essentially have no option but to
Conditional Petitioning, accept the construction, they will try to resolve
Conditional
agreement demanding the conflict under conditions advantageous to
them
Residents opposed to construction hold
Make efforts
Basically seminars and collaborate with other opposition
Active to resolve the
opposed groups while presenting alternative proposals
conflict
to the government
Make efforts
The government seeks engagement from local
Basically to engage in
Cooperative residents, members of the general public, and
opposed cooperative
academics in an effort to resolve problems
discussion
Source: Toru Furuichi, Kyoritsu Shuppan Co., Ltd. “Haikibutsu keikaku sakutei to jumin goi (Formulation of waste
plans and consensus with residents)” (2000)
Table 3-10 presents a systematic classification of common reasons for residents’ opposition to the
construction of waste treatment plants and landfill sites. Reasons for opposition among residents who
are categorically opposed or distrustful of the government are rooted in their fear of pollution and
adverse effects on their own health; these residents identified the insufficiency of assessments, one-
sided explanations, and the lack of clarity as to the reasons for site selection among the causes of
complications. In the process of gaining the understanding and cooperation of residents, explanatory
meetings on facility development, public inspection of assessment reports, and public hearings are
held, but in many cases these meetings are informal and do not function sufficiently, and mismatches
between what residents want to know and say and how operators respond create dissatisfaction and
opposition among residents. Additionally, whenever things become contentious between the
governments and residents, residents of all types likely become distrustful of the government. In these
cases, the lack of common ground and opportunities to talk things over are issues to overcome in order
to solve the problems.
The realistic course of action for building consensus to move ahead with facility development is to
make efforts to shift residents who are categorically opposed or distrustful of the government into
other opposition categories that may be resolvable (e.g., concerned about pollution and health
problems, seeking compensation). In order to achieve this, both governments and residents must make
efforts to understand each other, and must seek common ground through discussion to reach
agreements. When doing so, it is necessary to recognize that governments’ perspectives differ widely
from residents’ perspectives. It is also important for residents to listen to explanations from
governments and try to understand them, and for governments to anticipate residents’ questions and
concerns and prepare responses accordingly.
Table 3-10 Reasons for Residents Opposition by Types (as Related by Residents)
Factors behind the
Examples of issues
Type Reasons for residents’ opposition intractability of
to consider
the conflict
・ Residents consider waste treatment ・ Inadequate ・ Enhancement of
plants and landfill sites to be smelly and pollution control pollution control
dirty, and they generally have a bad in the past causes facilities in the
Categorically
impression of these facilities residents unable to project
opposed
help but hate these ・Amenitized facilities
facilities or view
them as unwanted
・Decisions were made without residents’ ・ There are no ・ Appropriate timing
knowledge opportunities to and content of
・Residents feel that unnecessary waste talk things out information
treatment plant or landfill site is being ・ There is no disclosure to
forced upon them while they are hardly common ground residents
receiving any other government ・ Provide sufficient
services on a daily basis government services
Distrustful of
・They feel that the government will not on a daily basis
the
keep their promise to control pollution ・ Disseminate about
government
or install facilities nearby waste-related
・ The government reneged on their problems and the
promises and plowed ahead with the need for waste
construction in the rush to get the waste treatment plants and
treatment plant or landfill site up and landfill sites, etc.
running ・ Plans that fully
・The government only talks about things reflect the views of
that appear easy to agree upon local residents
・ Residents fear that pollution control ・ The waste ・ Revise/enhance
facilities will be inadequate, or will treatment plant or pollution control
create pollution or adverse effects on landfill site is the facilities
Concern about
health largest source of ・ Enhance
pollution and
・An environmental assessment either was anxiety for environmental
health
not conducted, or was insufficient and residents. assessments
problems
did not provide any proof with regard to Governments may
absence of pollution or adverse effects not have the
on health capacity to provide
full explanation
Factors behind the

Examples of issues
Type Reasons for residents’ opposition intractability of
to consider
the conflict
・ Residents feel that reasons for the ・ Site selection ・Clear positioning of
selection of the site are unclear, and that methods have not the site in municipal
the selection process is not transparent been established comprehensive
・The government does not provide clear plans and city
answers to simple questions put planning
forward by the residents (e.g. why the ・ Make recovery
waste treatment plant or landfill site has facilities attached to
Concern about to be near their house or in that location) the project
site selection beneficial to the
entire community
(e.g. thermal
utilization) rather
than just to
compensate
residents nearby for
the project
inconvenience
This is rarely the main reason for opposition to the construction of waste treatment plants
Seeking or landfill sites. Also, residents in this category are different from those who seek
compensation conditional agreement from the start. When the conflict draws to a close, residents in this
category always shift toward fighting over the conditions.
・Residents cannot accept that an outsider ・ Rigidly uniform ・ Develop waste
Protective of (even if the government) can simply response treatment plants and
their come into their beloved communities landfill sites that are
hometowns and change them highly relevant to
communities
・ Land values will fall if the waste － To ensure that land
treatment plant or landfill site is values do not fall:
constructed ・ Construct state-of-
・ Neighbors sold their land for higher the-art waste
prices treatment plants and
Concerned
landfill sites
about personal
(facilities that offer
interests
amenities)
・ Consider facilities
that give back in
ways the community
finds desirable
2) Residents Participation
It is important for governments considering and implementing plans and projects to reflect the
opinions of residents at every stage of the process: basic plans, potential site selection,
environmental impact assessments, and facility development plans. Additionally, governments must
involve residents (including foremost those who oppose the facilities) as early as possible from the
initial planning stage to create opportunities for exchanging opinions and to maintain transparency
in information disclosure.
When exchanging opinions with residents, it is often effective to involve a neutral party capable
of listening to the opinions of both residents and governments. In these cases, academics can fulfill
the important role of bridging gaps between residents and governments.
Governments are expected to communicate appropriate information and understand residents’ needs
and thinking and reflect them in project plans; thus, resident participation is essential for creating
opportunities for this to happen. Table 3-11 is a categorization of methods of resident participation in
terms of factors such as degree of participation and power to make planning decisions. Regarding
resident participation, it must be noted that circumstances differ from region to region in terms of the
natural environment, land use, culture, history, political climate, the history of the relationship between
governments and residents, and other factors.
One effective way to involve residents in solving the problems at hand is to establish committees
comprising government representatives, academics, and residents. There are many advantages of the
committee method of resident participation, including communication (governments and residents
have the opportunity to communicate their thoughts to each other), assurance of consensus (matters
decided by committees are guaranteed for residents through the conclusion of agreements and the like),
and well defined responsibility (governments are guaranteed basic decision-making authorities
regarding construction, operation and management of facilities, which makes it easier for the
governments to fulfil their responsibilities). On the other hand, the representatives who are
representing the residents need to be carefully selected to reflect the collective will of the residents.
The key point here is that the members of these committees include academics who are capable of
listening to the opinions of both governments and residents. They do not necessarily need to be experts,
but can participate as communicators and facilitators, thereby helping the committees run smoothly.
Table 3-11 Methods of Resident Participation in Terms of Degree of Participation,

Power to Make Planning Decisions, etc.
Categorization
Degree of
in terms of Methods of resident
resident Relationships with
power to make participation
participation residents/issues to consider
planning (examples)
decisions
Planning ・ Participation in ・Passive
Low decisions made briefings for residents ・ One-sided communication of
by the ・ Participation in plant information
government only tours ・Few opportunities for reflection of
residents’ wishes
The government ・ Participation in public ・Passive, indirect
takes the lead in hearings ・Residents’ wishes can be reflected
making planning ・ Public inspection of somewhat indirectly
decisions city planning ・The government has the authority
(Councils, etc.) proposals and to make decisions that reflect the
assessment wishes of residents
documents/submission
of written opinions
Planning ・ Residents have ・Two-way communication between
decisions are representatives on residents and the government is
made by the steering committees possible
government and and the like ・ Residents are represented by
residents ・Residents participate in representatives, who may not
together meetings for dialogue always represent the collective
(Committees, etc.) and the like will of the residents.
(Representative selection is also
an issue)
・ Essentially, decision-making
High
authority rests with the
government. Matters decided by
committees are implemented
based on mutual trust between the
government and residents.
Table 3-12 shows examples of what committees discuss during each stage of the project planning.
During the basic plan stage, it is especially important to discuss and clarify the rules, procedures, and
schedule for determining site selection matters. Residents require governments to provide objective
explanations of the reasons for site selection.
Table 3-12 Examples of Committee Items of Discussion at Each Stage of Project Planning
Planning Stage Items of Discussion
・Project overview/policy
・ Consideration of ideal state of waste treatment, waste reduction,
recycling
・Consideration and selection of site selection policy
Basic plan stage ・Consideration of environmental conservation measures, implementation
of Initial Environmental Examination
・ Investigation and consideration of surrounding environment
development, facilities that give back to communities, use of former
sites
・Consideration of facility design details (especially for pollution control
facilities)
・Evaluation/consideration of environmental assessment
Development/
・Roles of governments and the private sector
implementation plan
・Consideration of specific measures for waste reduction and recycling
stage
・ Recommendations to create residents organization against facility
management, and drafting of agreement with local residents
・Consideration of various problems during the construction period
・Consideration of environmental monitoring and surveillance methods
・Implementation of discussion details (recommendations)
・Revisions to plant facilities
・Government-run system for monitoring private contractors
Facility operation ・Measures to be taken when allowable standards are exceeded, complaint
stage processing methods/measures to be taken in respond to damages
・Publicizing of pollutant measurements results
・ Revisions to waste collection areas/incoming and outgoing transport
routes
At the stage of creating a high-level plan for waste management, it is crucial to incorporate the
significance and roles of future waste management in their region and to obtain the residents’
consensus on the planning direction. Importantly, it is necessary to continuously implement solid waste
management with the participation of residents on a daily basis. One way to gain residents’
understanding is to involve them from the planning stages and to work together to create the master
plan.
If the government’s wishes and decisions are absolute, and residents are continually forced to accept
the government’s unilateral decisions, they will feel anxious and distrustful. Therefore, fair disclosure
of information - including negative information, not only information that is convenient for the
government - helps to increase trust between the two parties. It is important to create common ground
for consensus building in this way and to convince people to agree on both the good and the bad
aspects. The conditions shown in Table 3-13 should be met toward that end.
Table 3-13 Creating a Level Playing Field for Facility Site Selection
Item Details Relevant, specific countermeasures
・ The purpose, methodology, and ・Daily communication
expected benefits of, and ・ Hold public hearings and briefings for
possible accidents and residents
Briefing
discomforts associated with the ・Establish systems for information disclosure
facilities are explained to ・ Provide opportunities for residents
residents participation (e.g. committees)
・Risks and benefits are balanced ・ Establish facilities that communities can
from residents’ viewpoints accept (power generation, thermal
utilization, regional development, regional
revitalization, local recreational areas,
environmental education)
In response
・ Efforts are being made to ・Enhance pollution control facilities
to negative
minimize risks to the extent ・Conduct thorough environmental assessment
information
possible ・ Establish systems for monitoring and
・ Even if agreements have been information disclosure
reached, efforts must be made to ・Conclude pollution control agreements
make the facility as best as
possible
・ In principle, residents have the ・ Create opportunities for residents
right to refuse, and to request participation (e.g. committees), respect
suspension of projects if they minority views
anticipate significant ・ Agreement and a checking mechanism by
disadvantages in the interim committees at each stage of planning
stages ・Conclude pollution control agreements and
Agreements ・ Even if agreements have been the like
reached, responsibility for ・ (Disclose monitoring results and other
dealing with problems rests with information, monitor plant and conduct
the government, not residents inspections with residents present, establish
・ Residents must not be treated a liaison for receiving complaints,
unfairly, even if they reject the countermeasures/compensation in response
project to damage)
Column: A Case of Risk Communication with Residents (Illegal Dumping in Mie Prefecture)
The Situation
In 1994, concerns about soil contamination and groundwater pollution surfaced after an industrial
waste landfill site in the city of Yokkaichi, Mie Prefecture had greatly exceeded the permitted area
and amount of waste disposal, and had disposed of waste other than the permitted waste materials.
In 1980, a waste disposal contractor obtained a disposal business license and started landfill
disposal. The following year, 1981, the contractor applied for a permit to change its industrial waste
disposal business (increasing the number of landfills the contractor operated and types of waste
materials disposed). The application was based on a landfill owned by another company. The
contractor then started operations using a stable final disposal site. In 1988, the then local district
mayor submitted a written request to the prefectural government requesting an investigation into
the actual conditions of excessive waste disposal, etc., and the prefectural government requested
the contractor to submit a notification of change after conducting an investigation into the current
conditions. In 1990, the contractor submitted a change notice regarding the large scale of expansion
of the structure (facility), which was accepted by the prefecture. As the illegal expansion continued
even after the change notification was submitted, the prefecture continued to supervise and instruct
the contractor. After that, the prefecture directed the contractor to carry out a topographical survey
of the disposal site, and the result of survey showed that the site area and capacity far exceeded
those defined in the permit issued to the contractor. The prefectural government then did not allow
the contractor to renew the permit after the disposal site permit expired (October 1994).
After the problems were discovered, the prefectural government initiated a safety confirmation
survey. However, the residents’ dissatisfaction with the prefectural government increased, as it gave
the impression of ignoring them by prioritizing explanations to the prefectural assembly over
explanations to residents, from the survey plan and interim announcement to the final
announcement of the basic policy.
In response, the prefecture started risk communication with residents in 2008. Since then, the
relationship between the prefecture and residents has changed from one of confrontation to one of
collaboration.
(Risk communication: It is a method for stakeholders to exchange and share information and
opinions on possible risks such as pollution of the living environment when constructing waste
treatment facilities, etc., and to share awareness of prevention and countermeasures, aiming for
mutual understanding.)
Case of Ooyachi town and Heizu town in Yokkaichi city
【Permitted landfill area】

【Illegal dumping area】 Area: 58,854m2
Ooyachi town side
Dumping area: 94,781m2 Capacity: 1,320,000m3
Dumping amount: 2,621,000m3
【Neighbor area】
Heizu town side
Photo 3-5 Aerial View of the Site where Illegal Dumping Occurred
The Response
1. Residents Participation from the Survey Phase
As described hereafter, the prefectural government proceeded with the survey with a recognition
of residents as important stakeholders, and with respect for their opinions.
1. In response to residents’ requirements for the survey, the government made adjustments such
that waste-generating entities pay for additional surveys
2. The government responded to residents’ requests for a new analytical entity to analyze material
feed at survey sites
3. The government accepted residents’ request to have third-party experienced academics evaluate
the analysis results
4. The government selected survey sites of interest to residents
Key Point
●Given the importance of sharing current risks and straightforwardly communicating them to
residents, the government held lectures for residents on risks and risk communication before
conducting the new survey. This helped residents and the government develop a common
understanding of the risks.
2. Risk Communication through Four-way Discussions

The safety confirmation survey revealed that standards were greatly exceeded in some cases of
pollutants, and some values were far off the results of the safety confirmation survey conducted
previously. Based on the results, the prefectural government set up a three-way discussion
comprising itself, resident representatives, and academics (which later became a four-way
discussion with the participation of the Yokkaichi municipal government), and followed the
procedure listed below to engage in constructive, interactive risk communication to ensure
residents’ safety and security in a sustainable manner.
1. Resident representatives and the prefectural government met to identify the main issues to be
discussed so that the government could develop an understanding of residents’ opinions and
needs
2. The issues discussed in the previous step were reviewed by a group of academics
3. Resident representatives and representatives of the academics discussed the results of the review
conducted in the previous step
4. Under the four-way format the participants held thorough discussions
5. The academics’ views and the prefectural government’s policies were explained at four-way
discussions that were open to the general public
Key Points
●The residents participated in the selection of the academics, and local academics were appointed
as coordinators. Accordingly, the academics gained the residents’ trust, and functioned as neutral
parties the residents found easy to consult with.
●The residents were given ample opportunities to speak, and the academics examined the issues
they raised and exchanged opinions with them. The main opinions and agreements were recorded
in risk assessment and risk management matrices that served as the basis for a series of cycles of
surveys and countermeasures. This made it possible to share risk information, increased the
transparency of the decision-making process, and enabled the reflection of residents’ opinions in
decision-making.
●While preparing the risk assessment and risk management matrices, the levels and limitations of
surveys and countermeasures were explained to the residents, and a system for managing risks
involving uncertainty was established by determining that residents would be intimately involved
in four-way discussions if unexpected events were to occur.
The Results
Discussions were held a total of 23 times from 2008 to 2021. Some of the items on which
agreement was reached with local residents during the four-way discussions are listed below.
 Invite academic experts with expertise and knowledge on how to proceed with the consultation
and hear their opinions
 The prefectural government should take responsibility for conducting the survey based on the
“Draft Survey Implementation Plan”.
 Prepare a “risk assessment table” to ensure safety and security, and proceed with future
discussions based on this table (local request).
 The framework (frame) of the “Risk Assessment Chart”
 Basic agreement on the “draft framework of countermeasure construction methods” signed
between the presidents of the neighborhoods and the governor.
 Specific Countermeasure Methods
Recovery Process Problems in the past RC RC among four sectors

・Worried about pollution Representative of public sector often
Discover ・Distrust of public sector contacts representative of residents
and shares information.
・Seminar about outline of risk

・Risks are not shared
Survey ・RC Process is a priority to reflect
・Opinions of residents are not
residents opinions
reflected
・Selection of academic persons
・Distrust of academic experts
together with residents
TimeLine
Discussion for
recovery
Residents are opposed to public Discussion for recovery in
sector because risks are not shared. cooperation
Implementation ・Preservation and sharing of Risk evaluation report and risk

information are insufficient management table shall be prepared
・Recognition of unexpected risk is similar to patient chart, and share
insufficient the information from past to present
with residents.
Monitoring
RC: Risk Communication
Source: Mie Prefecture “What We Gained from Environmental Restoration Efforts in the Case of Improper
Treatment of Industrial Waste” (2016)
Figure 3-5 Comparison of Past Cases of Risk Communication to Risk Communication
in the Case of Mie Prefecture
2. Waste Management Utilizing the Private Sector with Private Finance Initiative (PFI)
Utilization of Private Sector Resources
Municipalities are responsible for the administration of municipal waste; therefore, they have
directly managed the collection, transport, intermediate treatment, and final disposal of waste.
Municipalities have outsourced waste collection and transport, or facility operation and
maintenance, or other parts of waste management to the private sector in order to streamline
processes or enable operations that require advanced technology, among other aims.
Amid the strain on the finances of local governments, there is a need to further utilize private-
sector resources to provide economical, high-quality operation and maintenance services for waste
management as well as other public services.
With the strain on finances, demographic changes, the diversification of citizens’ needs, and other
elements, municipalities are confronted with the need for more efficient fiscal management. Under
these circumstances, more municipalities are adopting project methods that introduce private-sector
resources, such as the private finance initiative (PFI, facilities privately constructed and operated) and
design build operate (DBO, facilities publicly constructed, privately operated) formats, for developing
projects to and operate waste treatment plants, since the enforcement of the Act on Promotion of
Private Finance Initiative (PFI Act) in 1999 and the publication of Guidelines for Outsourcing with
the Approach of Performance-Based Ordering by the Ministry of Land, Infrastructure, Transport and
Tourism in 2001.
In 2006, the Ministry of the Environment compiled the Guide to Bidding and Contracting for the
Construction of Waste Treatment Plants, etc. and proposed measures to improve bidding and
contracting to ensure fairness and to increase competition and transparency. Regarding the method of
placing orders for waste treatment plants, the guide states that it is “effective to introduce competition
not only for the construction of waste treatment plants but for projects in total, including operation
(comprehensive operation works including repair work), by using expanded performance-based
ordering or PFI, which calls for price competition that incorporates long-term, comprehensive
operation after construction is completed.”
Name of act: Act on Promotion of Private Finance Initiative (PFI Act)

Enacted: 1999
Amended: Years 2001, 2003, 2005, 2007, 2011, 2013, 2016, 2018
Purpose: To develop social infrastructure efficiently and effectively and ensure the provision of
good, affordable services to residents of Japan through measures such as promoting the
development of public facilities and the like using private-sector funds as well as private-
sector management and technical capabilities.
Source: Act on Promotion of Private Finance Initiative (1999)

Overview of PFI projects
Since laws have been enacted allowing the use of private sector resources, the utilization of the
private sector in the development, operation, and maintenance of facilities has been promoted in the
waste treatment sector as well for technical and financial reasons.
Public Private Partnership (PPP) occurs where government bodies that originally provided various
services now cooperate with the private sector to carry them out. In this way, they use private sector’s
technology and knowhow, as well as it’s originality and ingenuity, aiming at the efficient provision of
state of the art services. PFI (Private Finance Initiative) is one type of PPP. PFI is one way of
implementing public works, such as constructing facilities and their operation and management, using
private sector finance and technical knowhow. The concept of PPP and PFI is shown in Figure 3-6.
In 1999, the Act on Promotion of Private Finance Initiative ( PFI Act) was enacted. Since that time,
besides provision of related laws and regulations, the basic direction and action plans for promotion
of PFI have been formulated and the encouragement of PPP/PFI has been planned. As a result, PFI
projects have been set up in many fields based on this law, and in order to plan and set up efficient
projects related to building and operating waste treatment facilities the PFI method was adopted in this
area too.
PPP（Public Private Partnership）

The construction, maintenance, management, and operation of public facilities, etc., are carried out in cooperation
between the government and the private sector to utilize the know-how, ingenuity, etc. of the private sector, thereby
promoting the efficient use of financial resources and administrative efficiency.
PFI（Private Finance Initiative）
A method of constructing, maintaining, and operating public facilities, etc., based on the PFI
Act, utilizing private-sector funds, management capabilities, and technical expertise.
PFI projects utilizing the public facility operation concession system (concession projects)
PFI projects that recover costs through project revenues PFI projects in which costs are recovered
(Profit-based PFI projects) through service purchase fees paid by the public
(service purchase PFI projects)）
PFI Act: Act on Promotion of Private Finance Initiative
Source: Ministry of Land, Infrastructure, Transport and Tourism “Recommendations for public-private partnership
projects (PPP/PFI)” (2020)
Figure 3-6 Concept of PPP and PFI
How PFI projects work
PFI projects can be divided into categories according to their content and scale, etc., and private
sector resource use is planned to meet a specific local situation, after considering the characteristics
and the expected effects of the PFI project.
Until recently, when a public facility was being developed as a public service, public authorities of
local governments took the lead in formulating plans or projects. They then developed the public
facility to provide the service by outsourcing designs or construction to a public authority or the private
sector.
In place of this previous public service method, the introduction of PFI projects is being
recommended to improve efficiency and financing. With PFI projects, after public bodies have
formulated plans or projects, private sector technical capabilities are used. Work from design and
construction to service provision is carried out as a unified whole. In addition to providing a good
quality public service, private sector finance and management knowhow are used, and a low cost and
economical government service is provided.
Conventional Type Public Service PFI Scheme

Public Private Business Public Private Business
Organization Operator Organization Operator
Placing orders for multiple

Planning fiscal years at once
Placing orders fiscal
Financing year by fiscal year Order Financing
Design PFI Operation

(Outsourcing) Order Design
Planning
Construction
Design
Order Construction
(Outsourcing) Construction
Opera- Maintenance Mainte- Opera

tion (Outsourcing)
Order Management nance -tion
Service Service
Citizens Citizens
Source: Ministry of Land, Infrastructure, Transport and Tourism “Recommendations for public-private partnership
projects (PPP/PFI)” (2020)
Figure 3-7 Flow of Conventional Public Works and PFI Projects
Special Purpose Companies (SPCs) are companies established to carry out one particular PFI project.
SPCs use their earning power from the project as collateral to gain financing, using a funding method
known as project finance, and they carry out the project by financing part of the construction and other
costs by loans from financial organizations. Also, SPCs are compensated for the services they provide,
being paid for construction funding and management costs by local governments.
In case the project does not proceed smoothly, the local government and the financial institution
financing the SPCs will conclude a direct agreement that stipulates arrangements for the establishment
and execution of security interests, withholding of the local government's right to terminate the
contract, and consultation on business succession to a third party.
Direct Agreement
Municipality  Comprehensive
 Performance order
 Long-term Contract
Contract
Bank
Investment
Loan
SPC Investor
Dividend
Order Order Order Order

Design Construction Management Operation
Company Company Company Company
Source: Cabinet Office Website “Guide to the Introduction of PFI Projects: The Basics”
https://www8.cao.go.jp/pfi/pfi_jouhou/tebiki/kiso/kiso04_01.html (accessed February 8,
2022)
Figure 3-8 System of PFI Project
The PFI Method
PFI projects are characterized based on the type of facility ownership. In addition to the privatized
BTO (Build-Transfer-Operate), BOT (Build-Operate-Transfer) and BOO (Build-Own-Operate)
models, there is the public-build-private-run DBO (Design-Build-Operate) model. Outlines of these
models are shown in the following Table 3-14 and Table 3-15.
Table 3-14 Operating Entity and Owner by Project Format

Operation
Fund raising Design/ Operation/
Launching of End of the After the end of
(construction construction maintenance
Project operation project the project
expenses) period management
format
Transfer of
BOT Private sector Private sector Private sector Private sector Public sector
ownership
Transfer of
BTO Private sector Private sector Private sector Public sector Public sector
ownership
BOO Private sector Private sector Private sector Private sector Private sector Private sector
Transfer of
DBO Public sector Private sector Private sector Public sector Public sector
ownership
*1: In the table orange cell indicates that facilities are owned by the public, and blue cell indicates that facilities are
owned by the private-sector operator.
*2: In the table “Private sector” refers to PFI operators.
Source: National Association of Regional PFI Website “About PFI”
http://pfi-as.jp/pfi/pfi/post_8.html (accessed February 8, 2022)
Table 3-15 PFI System

●PFI method
 The private sector designs and constructs the public facility, transfers ownership
of the facility to the public sector immediately after completion of construction,
and the private sector operates and maintains the facility.
・BTO has been widely adopted in service purchase PFI projects and the types
of facilities that are implemented under this model are diverse.
・The scope of work of the private sector during the operation and maintenance
period will be considered and decided from the viewpoint of appropriateness
BTO model of a long-term contract, among other factors.
Build-  The scope of work generally includes design, construction, operation and
Transfer- maintenance.
Operate Operation and
Design Construction
Maintenance
Scope of work ✓ ✓ ✓
Contract type Business contracts
Private contracting
Mostly Special Purpose Company (SPC)
entities
 Compensation is generally paid during operation and maintenance period
 The private sector designs, constructs, maintains and operates the public facility,
and transfers ownership of the facility to the public sector at the end of the project.
・BOT has been adopted in PFI projects where the private operator has a wide
margin of discretion, such as when the private operator directly receives
BOT model income from user fees.
Build-
Operate- ・As the private operator has ownership of the public facility during the period
Transfer of operation and maintenance management, there is a wider degree of
freedom in terms of operation and maintenance management, including
renovation etc.
 The scope of work and contract are the same as those of the BTO model.
 The private sector designs, constructs, and manages operation and maintenance
of the public facility, and at the end of the project the facility is dismantled or
demolished without transferring ownership of the facility to the public sector.
BOO model ・Used in PFI projects where the operation and maintenance period can be
Build- adjusted to the demand period and useful life of the facility.
Own- ・BOO can also be used in facilities where the site on which the facility is built
Operate has a defined period of use, or are suitable for scrap-and-build at regular
intervals due to damage or obsolescence.
 The scope of work and contract are the same as those of the BTO model.
●Method other than PFI

 This is a method of placing a comprehensive order to the private sector for the
design and construction of public facilities, as well as for operation and
maintenance management.
・ DBO is used alongside the PFI approach in facilities of the waste
management sector as well as facilities of other sectors.
・The scheme is funded, ordered and owned by the public sector.
 The scope of work generally includes design, construction, maintenance and
DBO model operation.
Design-
Maintenance and
Build- Design Construction
Operate Operation
Scope of work ✓ ✓ ✓
Business
Contract type Construction contract
contracts
Construction company or Mostly Special
Private contracting
Joint Venture(Design company and Purpose
entities
Construction company) Company (SPC)
 Design and construction fees are generally paid before the facility is handed over.
Source: Cabinet Office “Based on Manual for Prioritizing Introduction of the PPP/PFI Process” (2017)
Results Expected from Introducing PFI
The results expected from introducing PFI and points to consider about introducing PFI are shown
in the following Table 3-16 and Table 3-17.
Table 3-16 Results Expected from Introducing PFI

Results Expected Specific Examples
If construction costs are lower, but management costs are higher
than would otherwise be the case, the total cost will be more
Cost reduction
expensive. Among the PPP/PFI models, by using total
Under comprehensive orders large
outsourcing that is based on the idea of performance ordering,
discretion can be given to private
and that reaches from design and building through operation and
business and cost reduction can be
maintenance management, as in the PFI or DBO models, the total
expected.
cost can be considered and the private business can be selected
based on this.
Regarding public facilities for attracting customers, rather than
Raising the quality of service having public administrators themselves manage these facilities,
Under performance ordering private the public sector will totally outsource the facilities management
business is in a better position to to private businesses that have ample knowhow in running
provide originality and ingenuity, and facilities aimed at attracting customers. This method is based on
improvement in service quality can be the concept of performance ordering, that reaches from design
expected. and building through management of operation and maintenance,
and can possibly raise the quality of service.
Increase in income There is a possibility that income will increase as private business
Under performance ordering private operators increase the number of customers through improving
business is in a better position to the quality of services and providing new services.
provide originality and ingenuity and
an increase of income can be
expected.
Regional revitalization There is a possibility that the implementation of projects by
Under performance ordering private private businesses will lead to the revitalization of the region by
business is in a better position to creating new business opportunities and employment, and by
provide originality and ingenuity and creating prosperity in the region through the utilization of vacant
regional revitalization can be land.
expected.
Source: Cabinet Office “Based on Manual for Prioritizing Introduction of the PPP/PFI Process” (2017)
Table 3-17 Points to Consider in Introduction of PFI

Points to Consider Details
When selecting an enterprise for outsourcing the work to, the price
should not be considered alone, but the knowhow the enterprise has,
Careful selection of private and the details of the business plan should also be assessed. Under
businesses the PFI method more work will be needed to select the qualified
enterprise, than was previously required and consequently more time
will be needed.
A wide scope of work will be outsourced to the private sector, and if
public administrators do not better understand the working system
Proper management of private under the private sector, and do not manage and give guidance as
business required, there may be a decline in the quality of the public services.
This must be carefully considered especially for work where needs
are rapidly changing.
Source: Cabinet Office Website “Guide to the Introduction of PFI Projects: The Basics”
https://www8.cao.go.jp/pfi/pfi_jouhou/tebiki/kiso/kiso02_01.html (accessed February 8, 2022)
3. Finances Concerning Waste Management
Municipalities in Japan spend heavily to conduct proper waste management. Waste management
is mostly funded by the general finances, and many subsidies are also used for improvement of
waste treatment facilities.
Although measures and policies based on the introduction of PFI projects and the “beneficiary
pays principle” have been promoted in Japan, such measures and policies are implemented only by
a small portion of the municipalities. Therefore, careful consideration should be given to the
introduction of an independent accounting system for waste management services.
3.1 Financial Situation of the Central Government Concerning Waste Management
Confronted by an increasing amount of waste and the necessity to implement proper waste
management, waste management expenses covered by municipalities have been increasing. Due to
tightening of regulations for waste treatment facilities and improvement of facilities to control
dioxins, etc. conducted for a limited term until 2002, the expenditure temporarily increased and
peaked in 2002.
Under this background local governments continue to take a proactive approach to the
administration of waste management by securing necessary budgets as policies and laws are revised.
Figure 3-9 shows the changes in waste management expenses (expenditure) of the municipalities in
Japan. In FY 2019, the total expenditure was JPY 2,319.4 billion, comprising waste management
expenses of about JPY 2,088.5 billion and human waste management expenses of about JPY 230.8
billion.
Waste Management Expenses (Expenditure) (Billion JPY/year)
3,500.0
3,000.0 2,946.4
2,740.4 2,651.9
2,654.2 2,665.4 2,730.9
2,738.1
2,699.02,669.4
2,626.9 2,319.4
2,500.0
2,308.9
2,266.3 2,216.1
2,274.6 2,168.3 2,184.8
2,106.0
2,245.0 2,057.2 2,071.5
1,998.6 2,016.7 2,177.2 2,203.9
2,000.0 2,108.8
2,055.7 2,060.6 2,005.2
1,756.3
1,619.0
1,442.7
1,500.0 1,354.2 1,354.5
1,307.5 1,449.3
1,225.9
1,161.1 1,392.6
1,321.3
1,269.7
1,013.1
1,000.0 1,124.3
856.1
500.0
0.0
1976
1978
1980
1982
1984
1986
1988
1990
1992
1994
1996
1998
2000
2002
2004
2006
2008
2010
2012
2014
2016
2018
Fiscal Year

Figure 3-9 Waste Management Expenses (Expenditure) of the Municipalities
3.2 Financial Conditions of Local Governments Concerning Waste Management
The expenses of waste management are mostly covered by general finances, on the basis that
waste management is the responsibility of municipalities and is part of their administrative services.
Many municipalities are starting to charge for waste collection (using municipality-designated
waste bags with service fee added to the purchase price), not to cover the expenses for waste
management but mainly to reduce waste by increasing people’s awareness and to extend the life of
final disposal sites.
Figure 3-10 shows the revenues and expenditures for waste management in the municipalities of
Japan in FY 2019. The costs of waste management were covered by revenue of about JPY 1,383.3
billion (about 66% of the total revenue) which came from general finances, with other sources
contributing 5-15% each including fee income contributing JPY 272.5 billion (13%). Concerning the
expenditure breakdown, the operation and maintenance costs for intermediate treatment was about
JPY 680 billion, taking up the largest share (33%), followed by the operation and maintenance cost
for collection and transport of about JPY 600 billion (29%) and the facilities construction and
improvement cost of JPY 415 billion (20%). In Japan, a large amount of financial resources are
expended for intermediate treatment, mainly incineration, to ensure stable and appropriate
intermediate treatment and to alleviate the shortage of final disposal sites.
Revenue Prefecture Expenditure

National subsidies subsidies
5% 0% Final
disposal
Municipal 4% Construction
Others
bond and
14%
9% Rehabilitation
20%
Fee
13%
Intermediate Collection and

General finances Others Transport
Treatment
66% 7% 29%
33%
Source: Ministry of the Environment “Results of the survey on municipal waste management (FY 2019)” (2021)
Figure 3-10 Revenue and Expenditure of Waste Management (FY 2019)
3.3 Central Government Financial Support Programs for Waste Management
The grant system for promoting the formation of a sound material-cycle society is no longer
simply a system of spending subsidies on facilities; it now requires municipalities to prepare
regional plans and to indicate the direction of the sound material-cycle society in the region,
including the facilities to be developed. With the change in requirements from preservation of the
living environment to the establishment of a sound material-cycle society, the government support
system has also changed. In contrast to the government subsidy system established to achieve
proper waste treatment and disposal, the grant system for promoting the formation of a sound
material-cycle society is designed to realize the establishment of a sound material-cycle society.
The major portion of waste management costs, 66% is covered by general finances, and waste
treatment facility improvement costs, which requires large funds, are financed by grants or subsidies
and local government bonds.
Changes in Subsidies and Grants for Facility Improvement
Under the Act on Emergency Measures to Develop Facilities for Living Environments, promulgated
in 1963, it was decided to formulate a 5-year waste treatment improvement plan and establish a subsidy
program to encourage municipalities to build modern incineration plants. The central government also
started to provide support for landfill sites in 1977, about 15 years after the subsidy program for
incineration plants was established.
The traditional subsidy program was abolished in 2004 and the Grant for Establishing a Sound
Material-Cycle Society was created in 2005. While the old subsidy program provided subsidies to
individual facility improvement projects to ensure proper waste treatment, the new grant program is a
comprehensive support program for regional planning to form a sound material-cycle society that is
supported by facility improvement projects. The grant program has the following characteristics.
a. Flexible planning and budget allocation according to the actual circumstances of the region
Grants can be moved to other projects or different years as long as the projects are included in
the regional plan.
b. Focus on clear target setting and ex-post evaluation
Clear targets are set to control waste generation, promote recycling, control the amount of landfill
waste, etc. Ex-post (actual results based) evaluation is conducted for target achievement and project
progress, and the results are disclosed.
c. Cooperation between the central and local governments starting from the planning stage to
promote the creation of a sound material-cycle society
For the development of a regional plan, an optimum 3R system is established through opinion
exchange among the central, prefecture and municipal governments from the perspective of the
whole country and with a view to international cooperation. At the same time, exercise of regional
identity and autonomy is also ensured through the creation of a program with a high degree of
freedom.
Source: Ministry of the Environment “Manual for the Development of a Regional Plan for Establishing a Sound
Material-Cycle Society” (2005)
The transition of the government subsidy and grant system is shown in Figure 3-11, and the content
of the grants has been updated to enable municipalities to implement stable and systematic
improvement of waste treatment facilities in accordance with the emerging demands and needs of each
era.
The central government is promoting the introduction of Stock Management for efficient renewal
and maintenance of waste treatment facilities through efforts to extend the life of such facilities and
reduce their lifecycle costs. Accordingly, the grant program is being expanded not only to cover the
construction of new waste treatment facilities, but also for other types of construction works such as
extending the life of facilities. (for more details on stock management, refer to “Topic 1 2.4 Column:
What is stock management?”
Year 1963 1977 2005 2010 2015 2020

Name Government subsidies
Objective
Subsidy Incineration facility 1/4 (in Pollution control area 1/2)
rate
・ Landfill 1/4
Period
Name Grant for Establishing a Sound Material-Cycle Society
Objective To Establish a Sound Material-Cycle Society
1/3
Subsidy 1/2, 1/3
rate (Depends on requirements and equipment category)
・
Period 1/3
Name Grant for Waste Treatment Facility Development

Resilience of local waste management systems to prepare for smooth and rapid disposal of disaster
Objective
waste in the event of a major disaster.
1/2, 1/3
Subsidy (Depends on requirements)
rate
・
1/3
Period
Grant for carbon dioxide emission control project

Name
(Project to promote the introduction of advanced equipment)
Objective Reducing energy-related carbon dioxide emissions from waste treatment facilities
Subsidy 1/2, 1/3
rate (Depends on requirements)
Period
Subsidies for carbon dioxide emission control projects
Name (Project for the construction of a regional recycling symbiosis zone with waste treatment facilities at its
core)
Objective Reducing energy-related CO2 emissions
Subsidy
1/2, 1/3
rate
Period
■：Incineration facility ■：Landfill
Name of subsidy/grant Objective

Government subsidies
Development of facilities for the proper treatment and disposal of waste
(1963～2004)
Comprehensive support system for regional planning for the creation of a
Grant for Establishing a Sound sound material-cycle society, including the development of facilities
Material-Cycle Society (2005) Promotion of measures to combat global warming (expansion of subsidies
for high-efficiency waste power generation facilities)
Grant for Waste Treatment Facility Development of a waste treatment facility to serve as a disaster response
Development (2015) center in the event of a major disaster
Grant for carbon dioxide emission
Strengthening the fight against global warming
control project (2015)
Highly efficient use of waste heat through the introduction of equipment
Subsidies for carbon dioxide emission
capable of significant energy savings
control projects (2019)
Reducing energy-related CO2 emissions
Figure 3-11 Changes in the System of Subsidy and Grant
Grant Program for Establishing a Sound Material-Cycle Society
1) Overview of the Grant Program for Establishing a Sound Material-Cycle Society

The Grant Program for Establishing a Sound Material-Cycle Society is essential to
municipalities improving waste treatment facilities in their districts. Improvement of waste
treatment facilities are large projects that municipalities implement only every few decades and
temporarily pose a huge financial burden on them. As such projects are important for the
formation of a sound material-cycle society, the central government has created this grant
program to provide not only technological support but also financial support necessary for such
facility development.
The overview of this grant program is described below. It is a comprehensive support program
for Regional Plans for Establishing a Sound Material-Cycle Society developed by municipalities,
covering not only intermediate treatment facilities such as facilities for material recycling, waste-
to-energy and organic waste recycling, but also projects to improve key equipment for landfill
sites and existing waste treatment facilities. The funding share is determined depending on the
type of facilities and contents of the project, but budget can be allocated in a flexible manner
according to the conditions of the district.
[Overview of the Grant Program for Establishing a Sound Material-Cycle Society]

1. Purpose of the Grant Program
The purpose of the program is to form a sound material-cycle society through the comprehensive and
regional promotion of improvement of waste treatment and recycling facilities under clearly defined
goals related to 3Rs (Reduce, Reuse and Recycle) in order to comprehensively promote 3Rs through the
municipalities use of their autonomy and ingenuity.
2. Overview of the Grant Program

Municipalities develop their Regional Plans for Establishing a Sound Material-Cycle Society (normally
for 5 years) as a comprehensive regional plan to improve waste treatment and recycling facilities in order
to promote 3Rs (Reduce, Reuse and Recycle) of waste management in a comprehensive manner. Grant
is provided for the cost of projects carried out under the regional plan.
(1) Development of Regional Plan for Establishing a Sound Material-Cycle Society
Municipalities in the target region form a Council for Establishing a Sound Material-Cycle Society
together with the participation of the central and prefecture governments. The Council commences
discussions at the planning phase to develop a Regional Plan for Establishing a Sound Material-Cycle
Society that describes 3R targets (to be achieved with the use of the grant) and projects to be carried out
to achieve these targets.
(2) Provision of Grant

The central government provides grant each fiscal year if the Regional Plan for Establishing a Sound
Material-Cycle Society complies with the basic principle of the Waste Management Act.
(3) Ex-post Evaluation

After the completion of the plan, municipalities are required to carry out ex-post evaluation of targets
achievement and confirm and disclose the results. In the ex-post evaluation, municipalities evaluate
achievements through the comprehensive efforts to promote 3Rs using the facilities improved with the
grant.
3. Grant Eligibility
Eligible regions for the Regional Plan are municipalities with a population of 50,000 or
Eligible
more or with a total area of 400 km2 (except for special regions including Okinawa and
regions:
remote islands).
 Material recycling facilities: Recycling facilities for incombustible waste and plastic,
stockyards, etc.
 Waste-to-energy facilities: Facilities for power generation by waste incineration, heat
recovery facilities, bio gasification facilities, etc.
Eligible
 Organic waste recycling facilities: Recycling facilities for human waste, kitchen
facilities:
waste, etc.
 Johkasou (Septic tanks)
 Landfill sites
 Improvement of key equipment in existing waste treatment facilities
4. Funding Rate
1/3rd of eligible expenses (1/2 for advanced facilities such as high-efficiency facilities for power
generation by incineration)
Source: Ministry of the Environment “Reform toward the Sound Material-Cycle Society: Recipe Book - Guide for 3R
Promotion Grant (Grant for Establishing a Sound Material-Cycle Society)” (2006)
Table 3-18 Eligible Projects and Facilities for Grants and Subsidies (Intermediate Treatment)
Eligible
Eligible Facilities
Project
Facilities for resource recycling processes such as separation and compression to reuse
wastes as materials
(1) Recycling Center
Facilities for recycling through such processes as separating wastes (combustible and
incombustible wastes), including functions to promote reuse of waste through repair of
disused goods and display of recycled goods as well as raising awareness about 3Rs
(2) Stockyard
Material Facilities for temporary storage of recyclables such as glass bottles, cans and plastic bottles
recycling after they are collected separately, further sorted out and compressed for effective reuse as
resources
facilities
(3) Ash Melting Facilities
Facilities to promote recycling of incinerated ash through processing incineration residue
(such as incinerated ash) collected from heat recovery facilities into molten and solidified
materials (so called molten slag)
(4) Containers and Packaging Recycling Facilities
Projects to establish a system for separate collection of containers and packaging as
recyclable materials through the development of such facilities as separate collection
centers, storage facilities and compression facilities for recyclables
Facilities to use remaining heat for power generation, etc. by collecting heat generated from
waste incineration as steam energy or through gasification; facilities to use remaining heat
for power generation, etc. by converting waste into biogas; and facilities to convert waste
into such fuels as biodiesel fuel, refuse derived fuel and reformed gas
(1) Heat Recovery Facilities (Incineration Including Gasification Melting)
Waste- Facilities to transform waste into residue or molten and solid materials by reducing volume
of waste through high temperature oxidation using a single or combination of unit processes
to-energy
such as thermal decomposition and melting. Specifically, waste incineration plants with
facilities stoker-type or other types of incinerators, or thermal decomposition and melting facilities
with equipment to combust or collect (reform) gas generated from thermal decomposition
of waste.
(2) Waste-to-fuel Facilities (RDF, BDF, Charcoal, Ethanol Fuel, Wood Chip, etc.)
Facilities to recover energy contained in waste through compression, chemical reaction,
thermal decomposition, etc.
Facilities to treat kitchen waste and other types of organic waste (biomass waste) together
with human waste, septic tank sludge, etc. and facilities for resource recycling through
composting or feed production
(1) Sludge Recycling Center
Facilities to treat kitchen waste and other types of organic waste together with human waste
Organic and septic tank sludge and recover resources (methane, compost, etc.)
waste (2) Facilities to Produce Feed from Waste
recycling Facilities to produce animal feeds by decomposing and drying kitchen waste, sorted out and
facilities separated to be free of foreign matter as well as other types of waste suitable for feed,
through biological response using microorganisms, warming, etc.
(3) Waste Composting Facilities
Facilities to produce compost by mechanically stirring organic waste suitable for
composting and exposing it to aerobic atmosphere to promote decomposition by
microorganisms
Source: Ministry of the Environment “Guide for Application for Grant for Establishing a Sound Material-Cycle Society
(Facility)” (2021)
2) Contents of the Regional Plan for Establishing a Sound Material-Cycle Society

Clear target setting is extremely important for the Regional Plan for Establishing a Sound
Material-Cycle Society developed by municipalities, and facility improvement projects included
in the plan are considered as measures to achieve such targets. Matters to be covered in the plan
include facility improvement projects and the related support plans, waste generation control,
promotion of reuse, establishment of a treatment system, and follow-up of the plan. Table 3-19
shows the contents of the Regional Plan for Establishing a Sound Material-Cycle Society.
Table 3-19 Contents of the Regional Plan for Establishing a Sound Material-Cycle Society
No. Item Overview
(1) Target Region
Target region (name of target municipality, and area and population of
Basic matters to promote municipal waste treatment target area), and target region map (as
the establishment of a attachment for reference)
1
sound material-cycle (2) Plan Period
society in the region Period for the plan (fiscal years): about 5 years
(3) Basic Direction
Goals for the region according to the purpose and schedule of the plan
(1) Current State of Municipal Waste Treatment
Amounts of waste generated, recycled, and reduced through
intermediate processing (incineration, crushing and sorting, etc.),
amount of heat recovered, amount of waste landfilled, etc. (to be
illustrated in a flowchart, etc. in an easy-to-understand way)
(2) Targets for Municipal Waste Treatment
Target waste amount for usage, amount reduced through intermediate
treatment, amount of heat recovered, amount of waste disposed in
Current state and targets landfills, etc.
2 for establishing a sound
material-cycle society [Example of target setting for 3R promotion]
(Target achievement to be evaluated after the plan period)
Reduction of waste generation: Amount of waste generated per
person per day (xx % reduction from year xxxx)
Recycling: Recycling rate (xx% reduction from year xxxx)
Thermal recovery: Amount of power generated with each ton of
waste (xx kWh/t)
Landfill: Amount of waste disposed in landfills (xx% reduction
from year xxxx)
(1) Reduction of Waste Generation and Promotion of Reuse
Current and future state of measures for reduction of waste generation
and reuse: matters concerning measures that can be taken by the
community such as switching to fee charging for the waste services,
environmental education and awareness raising, promotion of reusable
bags, elimination of disposable shopping bags and simplified
3 Contents of the measures packaging
(2) Waste Treatment System
Current and future conditions of the waste treatment system: Matters
concerning waste categories, collection, transport and treatment
methods, and response to various recycling laws
(3) Improvement of Treatment Facilities
Overview of facilities for improvement: Name and type of facilities,
No. Item Overview

type of waste to be treated, treatment capacity, location, project period,
year of completion, etc.
(4) Projects to Support Plan for Facility Improvement
Matters concerning facility improvement planning: Topographic and
geological investigation, surveys, basic design, investigation of impact
on living environment, etc.
(5) Other Measures
Matters concerning awareness raising, environmental education,
discussion with residents, measures against illegal dumping and waste
treatment during disaster
Follow-up and ex-post Matters concerning assessment of progress, ex-post evaluation, review
4
evaluation of the plan of the plan, amongst others
Source: Ministry of the Environment “Manual for the Development of a Regional Plan for Establishing a Sound
Material-Cycle Society” (2005)
3) Procedure of the Regional Plan for Establishing a Sound Material-Cycle Society

The flow of the Regional Plan for Establishing a Sound Material-Cycle Society until the
provision of the grant is as depicted in Figure 3-12.
The municipality applying for the grant prepares the Regional Plan for Establishing a Sound
Material-Cycle Society (draft). The municipality organizes the Council for Establishing a Sound
Material-Cycle Society together with the central and prefecture governments to exchange
opinions about the draft.
The municipality develops the Regional Plan for Establishing a Sound Material-Cycle Society
based on the discussion at the Council. The prefecture government sends the plan to the Minister
of Environment after checking whether the opinions expressed in the Council are incorporated
into the regional plan developed by the municipality.
Upon approval of the Minister of Environment, projects to support the plan and projects for
facility improvement are carried out.
Municipality develops draft regional plan
Municipality holds the council for establishing a

Sound Material –Cycle Society and exchanges
opinions with the Ministry of the Environment and
prefecture government
Municipality decides regional plan
Municipality submits the regional plan to

Ministry of Environment through the prefecture
government
The Minister of the Environment confirms that

the regional plan is in line with the basic policy
based on the Waste Management and Public
Cleansing Law and approves it.
Grant procedures for each fiscal year
Start of the Support Project for implementing

the Planning and Facility Improvement Project
Figure 3-12 Grant Scheme Flow
4) Support for the Procedures Concerning the Grant Program

An important national policy in Japan is to develop necessary facilities for proper waste
treatment in as many municipalities as possible. For large-scale waste treatment facility
improvement projects that impose a large burden on municipalities, the central government
provides support such as establishing guidelines for grant projects and holding explanatory
meetings so that municipalities can carry out grant procedures smoothly.
3.4 Fee Collection Methods by Local Governments and Fee Bearing by Residents and Business
Operators
In Japan, in building the sound material-cycle society, mechanisms have been created that
incorporate ideas about extended producer responsibility and beneficiaries burden sharing.
Respective parties (i.e., residents, business operators and governments), by meeting their own
responsibilities under appropriate role sharing, contribute to build mechanisms to help reduce
burdens (especially, financial burdens) for municipalities, and to promote further recycling, reduce
illegal dumping, and support proper waste treatment.
While water supply service adopts the independent accounting system of consumption as the
principal financial revenue in the form of “water charges” collected from residents, in the case of
municipal waste management service the expenses are covered by taxes (such as resident taxes) as
principal financial revenues.
With the aim of promoting the reduction of waste generation and reuse, the government examined
how waste should be managed by municipalities to create a sound material-cycle society. In 2010, The
“Basic Policy for the Comprehensive and Systematic Promotion of Measures for the Reduction and
Other Appropriate Disposal of Waste” was revised. This basic policy identified that the roles of
municipalities should be to “promote charging fees for municipal waste management, in order to
minimize waste and promote recycling by utilizing economic incentives, to advance fairness of burden
sharing in proportion to generated-waste amounts, and to build residents’ awareness”. In response to
this basic policy, each municipality is either already charging fees for waste management services, or
considering to do so. Many municipalities have introduced a fee system for household waste because
this encourages residents to change their lifestyles and behavior, in favor of reducing waste generation
and promoting recycling of resources through recycling.
In line with the principle of “extended producer responsibility”, the Containers and Packaging
Recycling Law has established a mechanism that obliges business operators to bear recycling-related
expenses for waste containers and packaging. As it is difficult for municipalities to conduct proper
treatment or to recycle large and heavy home appliances, the Home Appliance Recycling Law provides
a mechanism by which waste-generators bear waste collection and transport fees as well as recycling
fees when discharging their own home appliances. Regarding automobiles, the End-of-Life Vehicle
Recycling Law provides a mechanism by which, in general, automobile owners should bear recycling
fees when purchasing their own automobiles.
Table 3-20 shows laws and regulations providing for expense sharing mechanisms.
Table 3-20 Expense Sharing Mechanisms by Laws and Regulations and their Expected Impacts
Law and
Financial revenues
regulations /
secured Expense bearers Expected impacts
Targeted
(Use of financial revenue)
products
Containers and Outsourcing Fees for Designated Reduction of waste, life extension of
Packaging collection, transport and business operators landfill site, promoting of recycling
Recycling Law / recycling (recycling and (retailers,
Containers and merchandising) of manufacturers,
Packaging containers and packaging etc.)
Home Appliance Fees for collection, Waste-generators Reduction of illegal dumping of
Recycling Law / transport and recycling of of used home used home appliances, reduction of
Four Items of Home Appliances appliances waste, life extension of landfill site,
Home appliances promotion of recycling
End-of-Life Recycling fees for end-of- Vehicle owners Reduction of illegal dumping of
Vehicle Recycling life vehicles end-of-life vehicles, reduction of
Law / End-of-life wastes, life extension of landfill site,
vehicles promotion of recycling
Waste discharged Forming part of financial Residents Reduction of wastes, life extension
from household revenue for waste of landfill site, ensuring fairness of
management (used for expense sharing, raising residents’
public awareness building, awareness, building awareness and
etc.) technology capacities of business
operators, securing part of financial
resource necessary for waste
management
Containers and Packaging Recycling Law
The Containers and Packaging Recycling Law covers waste containers and packaging included
in municipal wastes, and provides for a system by which designated business operators (such as
sellers and manufacturers) should bear expenses necessary for collection, transport and recycling
process of containers and packaging.
One of the difficulties in introducing this law was to build consensus among interested parties.
Employment is an extremely serious issue, and if there are stakeholders who are concerned about
losing their jobs due to a decrease in the amount of waste, it is important to build consensus by
holding repeated explanatory meetings.
In establishing recycling statutes, it is important to shift part of the responsibilities of
municipalities to the manufacturers, and therefore, while limited, this law has shifted the waste
treatment responsibility. It should be kept in mind that if the proposed share of responsibilities to
be met by manufacturers becomes too large, it will be difficult to obtain their consent.
1) Background
Amid a rapid increase in the amount of waste discharged, cans, glass bottles, plastic bottles,
and other container and packaging waste comprised roughly 60% of municipal waste in terms of
volume, and roughly 30% in terms of weight. Very little container and packaging waste was being
recycled despite the fact that it is technically relatively easy to recycle this waste type due to its
homogeneity and the sheer amount. Given this background, and in an effort to reduce the overall
amount of waste by promoting the recycling of container and packaging waste, a new system was
created to assign the roles and responsibilities of municipalities, consumers, and producers.
Furthermore, the law aims to improve the administration of waste by municipalities
confronting dioxin-related problems by reducing the amount of container and packaging waste
incinerated along with municipal waste.
2) Overview of Containers and packaging Recycling Law

Up to the enactment of the Containers and Packaging Recycling Law, treatment and disposal
of waste discharged from each household were wholly borne by municipalities as services under
their own responsibility, and accordingly, municipalities incurred significant expenses for such
services. When the Containers and Packaging Recycling Law was established, the concept of
“extended producer responsibility” was introduced, and the law provided for obligations on
business operators (such as manufacturers, sellers, importers) to implement recycling (recycling
and merchandising ) for these wastes.
For the cases where business operators themselves cannot implement recycling, the law set up
another mechanism by which business operators shall pay “outsourcing fees” for recycling to the
Japan Containers and Packing Recycling Association (the corporation designated by the central
government), so that the business operators can meet their respective recycling and
merchandising obligations by such fee payment.
Name of law: Law for the Promotion of Sorted Collection and Recycling of Containers and
Packaging
(Containers and Packaging Recycling Law)
Enacted: 1995
Amended: 2006, 2021
Purpose: To ensure the effective use of resources and proper treatment of waste through the
reduction of municipal waste, and proper use of recycled resources by reducing the
generation of containers and packaging waste discharged from households together with
municipal waste and clarifying roles and responsibilities - specifically, sorted discharge
by consumers, separate collection by municipalities, and recycling by business operators.
Overview of law: The law sets out a recycling system based on the roles and responsibilities of
three entities: sorted discharge by consumers, separate collection by municipalities, and
recycling and merchandising by business operators (container manufacturers, and
business operators that sell goods in containers and packaging). It marks the first
incorporation of the concept of extended producer responsibility (EPR) in Japan, and
imposes physical and financial responsibilities for recycling and merchandising on
business operators.
Targets: Steel cans, aluminum cans, glass bottles, cardboard, beverage cartons, paper containers and
packaging, PET bottles, plastic containers and packaging
Source: Law for the Promotion of Sorted Collection and Recycling of Containers and Packaging (1995)
3) Recycling System under the Containers and Packaging Recycling Law

A) Containers and Packaging Covered by the Containers and Packaging Recycling Law
The Containers and Packaging Recycling Law defines containers and packaging as follows:
“the term "containers and packaging" as used in this law means containers and packaging of
goods (including the cases where containers and packaging of goods are paid for) which become
unnecessary when the relevant goods have been consumed or when the goods have been removed
from the relevant containers and packaging.” (Article 2, paragraph (1) of the Act)
Specifically, containers and packaging subject to separate collection can be divided into eight
(8) categories: glass bottles, PET bottles, paper containers and packaging, plastic containers and
packaging, aluminum cans, steel cans, paper packing, and cardboard.
Among these categories, the law specifies four (4) categories (glass bottles, PET bottles, paper
containers and packaging, and plastic containers and packaging) as being subject to the recycling
and merchandising obligations, because under the current circumstances the wastes under these
categories cannot be recycled even after separate collection due to having less value for use as
resources. On the other hand, the wastes under the other four (4) categories of aluminum cans,
steel cans, paper packing and cardboard are not subject to the recycling and merchandising
obligations, because under the current circumstances, they are already being recycled and traded
in the market economy due to having a high value as resources.
Designated business operators are Designated business operators are not

obligated to recycle and merchandise. obligated to recycle and merchandise.
Plastic PET bottle Note: PET bottle for food such as Soy
Container and packaging waste
sauce, milk beverage, others spices,

juice and alcohol, etc.
Plastic
Container and Note: Including polystyrene
foam
packaging
Note: Glass bottles are classified
Glass Glass bottle into colorless, brown and others
Paper Container
and packaging Note: Container and packaging
made from aluminum are
Paper Paper carton classified as paper container and
packaging.
Cardboard
Aluminum
Metal cans
Steel cans
Source: The Japan Containers and Packing Recycling Association “The Containers and Packaging Recycling System
in Japan” (2020) https://www.jcpra.or.jp/Portals/0/resource/eng/JCPRAdocuments202012.pdf
Figure 3-13 Types of Containers and Packaging
Photo 3-6 PET Bottles Photo 3-7 Plastic Containers

(Polystyrene foam)
Photo 3-8 Glass Bottles Photo 3-9 Paper

（Cardboard, Paper Container）
Photo 3-10 Paper Carton Photo 3-11 Cans

B) The Roles of each Party defined in Containers and Packaging Recycling Law
Table 3-21 shows the roles of each party under the Containers and Packaging Recycling Law.
Table 3-214 Roles of each Party under the Containers and Packing Recycling Law
Party Overview of Roles
Designated business operators ((1)business operators selling goods using
“containers” or “packaging", (2)business operators manufacturing “containers",
Designated
(3)business operators importing “containers” or goods with “containers” or
business operators
“packaging”) have recycling and merchandising obligations. Small business
operators are exempted.
Recycling starts from each consumer’s good manner and thoughtfulness, and
Consumers accordingly consumers have to observe “discharge rules” established by the
“Sorted respective municipalities. Consumers will make efforts to minimize waste containers
discharge" and packing, by carrying their own bags while shopping and not using plastic bags,
selecting simply packaged goods, actively using returnable containers, etc.
By separate collection, sorting and cleaning etc. of containers and packaging,
Municipalities municipalities will satisfy the “sorting standards” provided for in the Law. They will
“Separate store the sorted wastes at appropriate storing facilities. Properly stored waste will
collection” become “waste containers and packaging that conform to the sorting standards”,
which will be collected by the designated corporation.
Recycling and
merchandising These recycling operators will transport and reproduce “waste containers and
operators packaging that conform to the sorting standards”, and utilize them as new
“Recycling and “resources”.
merchandising”
The Japan Containers and Packing Recycling Association is the designated
corporation appointed by the five (5) principal ministries (Ministry of the
Environment, Ministry of Economy Trade and Industry, Ministry of Finance,
Designated
Ministry of Health, Labour and Employment, and Ministry of Agriculture, Forestry
corporation
and Fisheries), and will smoothly and properly proceed with recycling (recycling and
merchandising) of “waste containers and packaging that conform to the sorting
standards”.
Source: Ministry of Economy, Trade and Industry “The Containers and Packing Recycling Law” is responsible for
most of our ‘resources’ (2006)
The Containers and Packaging Recycling Law indicates three (3) routes through which
designated business operators having recycling obligations can perform their obligations (i.e.,
self-collection route, own-recycling route, and designated organization route). Self-collection
route is the method in which designated business operators collect containers and packaging from
consumers through their own distributors, and then re-use them. Own-recycling route is the
method in which designated business operators directly outsource recycling and merchandising
operators to process and recycle (i.e., recycling and merchandising) of containers and packaging
collected by municipalities. Designated organization route is the mechanism introduced by the
Containers and Packaging Recycling Law. This method of recycling (recycling and
merchandising) through the Japan Containers and Packing Recycling Association (the designated
corporation), in which the designated corporation executes outsourcing agreements with
recycling and merchandising operators on behalf of the relevant designated business operators.
By paying recycling expenses to the designated corporation, the designated business operators
are deemed to meet their own recycling and merchandising obligations.
Source: Ministry of Economy, Trade and Industry “The Containers and Packing Recycling Law makes the most of our
‘resources’” (2006)
Figure 3-14 Method of Implementation of Recycling Obligations of Designated Business Operators
C) Flow of Recycle Process for Containers and Packaging

Among containers and packaging sorted and collected in accordance with the separate
collection plan established by the municipality, those collected, transported and stored in
accordance with the standards established under laws and regulations are certified “waste
containers and packaging that conform to the specified sorting standards”. “Waste containers and
packaging that conform to the specified sorting standards” are subject to material recycle for
resource use by recycling and merchandising operators, and then are used for manufacturing of
various products.
Source: Ministry of Economy, Trade and Industry “The Containers and Packing Recycling Law” makes the most of
our ‘resources’” (2006)
Figure 3-15 Recycling Methods
4) Flow of Recycling Fees

The Containers and Packaging Recycling Law covers waste containers and packaging
included in municipal wastes, and provides for a system by which a designated business
operator (such as retailers and manufacturers) should bear expenses necessary for collection,
transport and recycling process of containers and packaging.
When a designated business operator performs its recycling obligation through either of the
self-collection route or own-recycling route, the designated business operator will have to
implement recycling or execute an outsourcing agreement with recycling and merchandising
operators by themselves.
Figure 3-16 shows the flow in case where a designated business operator carries out its
recycling obligations through the designated organization route.
Outsourcing fees are divided into two types: “recycling and merchandising outsourcing fees”
and “municipality rationalization-contributing outsourcing fees”. By paying both fees to the
designated corporation, the designated business operator will be deemed to have met its recycling
and merchandising obligations.
“Recycling and merchandising outsourcing fees” are applied to cover recycling fees, and are
paid from the designated corporation to the companies that actually carry out recycling (i.e.,
recycling and merchandising operators). “Municipality rationalization-contributing outsourcing
fees” will become source for rationalization contribution paid to municipalities.
The system of contributing funds to municipalities is the mechanism adopted to distribute any
benefits of reduced expenses to both business operators and municipalities when the efforts by
business operators and municipalities are contributing to rationalize and streamlining the
recycling of containers and packaging. Rationalization contributions to municipalities are paid as
contribution to municipalities, of half amount of recycling expenses that had been reduced more
than expected. Rationalization contributions are paid once a year, by the designated corporation
to the municipalities in accordance with “quality” standard and depending upon extent of
contribution to “reduced amounts”.
At the end of each fiscal year, the outsourcing fee is settled, and then, in proportion of any
recycling expenses actually required, any excess will be returned to business operators, and on
the other hand the business operators will be expected to pay for any deficit incurred in the
recycling expenses.
Consumer Designated Business Operator

（Container maker and merchandise maker)
●Selling merchandise
with containers and packaging ●Contract for outsourcing for recycling
●Sorted discharge ●Payment for
of containers and ●Payment for outsourcing fee and merchandising
packaging after outsourcing for recycling and Outsourcing to
consuming consignment fee ￥￥ merchandising national chamber of
merchandise commerce and
industry
●Contribution to the municipality
for the paid portion
(Designated corporation)
(Public interest incorporated foundation)
●Rationalized
portion
The Japan Containers and Packing Recycling
￥￥ Contribution to Association (Association acts as coordinator)
municipalities
●Payment for ●Selection
●Municipal share outsourcing fee for
(for small ●Payment for recycling and
businesses) ￥ bidding merchandising ● Contract for outsourcing for recycling
● Separate collection ●Conclusion of ￥￥ and merchandising
for containers and Transaction
packaging Agreement ●Bidding
Recycling and
Municipality Recycling and merchandising
merchandising business
utilized by business operators
operators
●Delivery of sorted collection material ●Selling recycling and merchandising products
Source: The Japan Containers and Packing Recycling Association “Business Report and Financial Statements in
FY2018” (2019)
Figure 3-16 Scheme of Recycling and Merchandising
5) Actual Performance and Impacts of Containers and Packaging Recycling Law

The Containers and Packaging Recycling Law has positively impacted the reduction of final
disposal amount. In addition, the law contributed to the thorough sorting for resource use, and
reduction of excessive packaging, with improved resident awareness on containers and packaging.
Figure 3-17 shows the actual performance of recycling of four (4) categories subject to
recycling and merchandising obligations: glass bottles, PET bottles, paper containers and
packaging, and plastic containers and packaging.
Containers and packaging amounted to about 60% in quantity of wastes discharged from
household in 2019, but they are now re-used as resources through the enforcement of Containers
and Packaging Recycling Law. In addition, progress in material recycling contributed to
reduction of final disposal amount, and life extension of landfill sites. Furthermore, since
containers and packaging are now subject to sorting and separate collection, consumers and
business operators are increasing their awareness about 3R, and manufacturers have developed
advanced technologies in the production of containers and packaging (weight saving of
containers and packaging, and simplified structure to make sorting easier), contributing to the
establishment of the sound material-cycle society.
(ton) Glass グラフ

PET タイトル
Papers Plastics
1,400
Transaction amount from municipalities
1,200
1,000
800
600
400
200
0
1997 2000 2006 2009 2012 2013 2014 2015 2016 2017 2018 2019
Fiscal year
Source: The Japan Containers and Packing Recycling Association Website “Graph of actual collected amount over
time” https://www.jcpra.or.jp/municipality/municipality_data/tabid/401/index.php#Tab401 (accessed
February 16, 2022)
Figure 3-17 Municipalities Collected Amounts of Four Waste Categories Subject to Recycling
and Merchandising Obligations
Source: The Japan Containers and Packing Recycling Association “Annual Report 2021” (2021)
Figure 3-18 Breakdown of Collected Glass Bottles Waste Amount from Municipalities
Figure 3-19 Breakdown of Collected PET Bottles Waste Amount from Municipalities
Figure 3-20 Breakdown of Collected Paper Packaging Waste Amount from Municipalities
Figure 3-21 Breakdown of Collected Plastic Packaging Waste Amount from Municipalities
The Home Appliance Recycling Law established a new system for recycling by relevant entities
to ensure the proper treatment of used home appliances and the effective recycling of resources
found in the appliances. Under this scheme, retailers are obligated to take used home appliances
from dischargers and deliver them to manufacturers, etc., and manufacturers are obligated to take
the home appliances and recycle them. Additionally, given the problematic destruction of the ozone
layer, it became necessary to properly treat the chlorofluorocarbons that are used in home
appliances.
1) Background
TVs, air conditioners, refrigerators, washing machines, and other home appliances have been
widely viewed as household essentials since Japan’s period of high economic growth. Originally,
used home appliances were discharged for municipal collection (roughly 600,000 tons as of 1997),
and about half the collected used appliances were directly dumped into landfill sites because their
size and weight made proper treatment difficult. Additionally, although home appliances contain
iron, aluminum, glass, and many other useful resources, municipalities have difficulty recycling
them. As a result, municipalities only collected some iron and other metals after shredding the
used appliances. Consequently, the strain on remaining landfill capacity grew more severe, and
highlighted the need for the reduction and recycling of waste as key issues. In light of these
conditions, a new recycling system based on new obligations pertaining to home appliances for
manufacturers and retailers, was created in an effort to effectively use resources and reduce waste
by promoting the recycling of used home appliances.
Additionally, the proper treatment of used home appliances including the recovery of
chlorofluorocarbons became an issue given the problematic destruction of the ozone layer by
chlorofluorocarbons and environmental contamination by heavy metals and other harmful
substances found in used home appliances.
2) Overview of Home Appliance Recycling Law

The Home Appliance Recycling Law defines four items of home appliance which are subject
to the stipulations of this law, the role sharing by each party, the recycling and merchandising
obligations, and expense claims, etc.
The four home appliances are air conditioners, TVs, refrigerators and freezers, and washing
machines and dryers. All are large appliances that have their individual characteristics which
make it difficult for municipalities to provide for their proper treatment after usage. Therefore,
the proper treatment and disposal of the used appliances shall be implemented through allocation
of roles to each of waste-generators, retailers and manufacturers (manufacturers and importers
when relevant).
The waste-generators using home appliances will make efforts to use them for longer periods
of time, and under the law will have to bear expenses necessary for recycling (i.e., collection,
transport and recycling fees). The law further establishes the respective roles of the other parties:
retailers selling home appliances will have to collect waste home appliances from waste-
generators and deliver them to manufacturers, and manufacturers will then have to collect and
recycle those wastes.
Name of law: Law for the Recycling of Specified Kinds of Home Appliances
(Home Appliance Recycling Law)
Enacted: 1998
Purpose: To ensure the effective use of resources and proper treatment of target home appliances
that have become waste by sufficiently using recyclable resources, reducing waste, and
the like through obligating retailers and manufacturers to implement certain measures
in order to properly and smoothly collect, transport, and recycle waste.
Overview: The law sets out a new recycling system for four types of home appliances in which
retailers are obliged to accept used home appliances from consumers (waste
generators) and deliver them to manufacturers, and manufacturers are obliged to
recycle them, among other things. The law sets out roles and responsibilities, for
example obliging customers (waste generators) to pay fees for waste collection,
transport, and recycling when they dispose of used home appliances.
Targets: Household air conditioners, TVs, electric refrigerators and freezers, and electric washing
machines and dryers
Source: Law for the Recycling of Specified Kinds of Home Appliances (1998)
Structure of Home Appliance Recycling Law

Target Appliance: Air conditioner, TV (CRT TV, LCD TV*, plasma (Published in June 1998, fully effected in April 2001)
TV), refrigerator/freezer, washing machine, clothes dryer
Discharger
Disch
-arge
(1) Proper transaction

(2) Paying fee for collection, transport, recycling and merchandising
Retailers Ensuring proper

Collection and
Municipality
transport by
Transport
Obligation to receive
(No permission for collection and transportation is required if business
tracking with
operators collect the used appliances by themselves.) recycle ticket
(1) Target equipment that business operators sold in the past
(2) Target equipment that business operators were asked to take back
Obligation to deliver
Issue and
Designated trading place (designated by the manufacturer, etc.) collection
Municipality
Merchandising
Manufacturer and/or Importer

Recycling and
Obligation to receive
Monitoring
Target appliance that business operators sold in the past
Obligation to recycling and merchandising
Recycling standards: Air conditioners: 80%, CRT TVs: 55%, LCD/plasma TVs: 74%,
Refrigerators and freezers: 70%, washing machines and clothes dryers: 82%.
(Revised on 1st April , 2015） 359 designated take-back sites
Designated business operator 46 recycling facilities
(As of July 2015)
(1) In case of absence of obligated vendors, etc.
(2) Outsourcing to small and medium-sized companies
*: Excluding mobile TVs, car TVs and bathroom TVs, etc.

Source: Ministry of the Environment Website “Structure of Home Appliance Recycling Law”
https://www.env.go.jp/recycle/kaden/gaiyo.html (accessed February 16, 2022)
Figure 3-22 Overview of Home Appliance Recycling Law
3) Recycling System Stipulated in the Home Appliance Recycling Law

The Home Appliance Recycling Law covers waste units of four items of home appliances: TVs,
air conditioners, refrigerators, and washing machines and dryers, and provides for a system by
which consumers (waste-generators) of home appliances shall bear the expenses necessary for
collection, transport and recycling process of their home appliances after they are discharged as
waste.
A) Appliances Covered by Home Appliance Recycling Law

Air conditioners, TVs, refrigerators and freezers, and washing machines and dryers are covered
by the Home Appliance Recycling Law. These items have been selected on the basis of the
following requirements established in the law:
【Requirements for Waste Treatment of the Covered Appliances】

1 Considering the limitations of municipality’s facilities and their technical capacities regarding
waste treatment it is difficult for them to recycle and merchandise these waste home appliances.
2 It is especially important to recycle and merchandise these waste appliances in order to promote
effective utilization of the many resources that are found in them, but for which there are significant
economic constraints on recycling, etc.
3 The selection of design, parts etc. has significance on the implementation of recycling and
merchandising.
4 As appliances retailers are engaged in the delivery of significant amounts of appliances, they have
the capabilities and facilities to smoothly collect the used appliances.
Source： Ministry of Economy, Trade and Industry, “2019 Guidebook on Home Appliance Recycling Law for Use by
Persons in Charge” (2019)
The four items of home appliances targeted in the law apply only to the appliances that were
manufactured and sold for household use, and appliances that were manufactured and sold for
business use are out of the scope of the law.
Table 3-22 shows the four items of home appliances covered in the law.
Table 3-22 Home Appliances Covered by the Home Appliance Recycling Law
Covered Home Appliances Notes
Air conditioners for household use ―
TVs (cathode-ray tube type, LCD/plasma type) Added LCD/plasma type TVs in April 2009
Refrigerators and freezers Added freezers in April 2004
Washing machines and clothes dryers Added clothes dryers in April 2009
B) The Roles of each Party related to Home Appliance Recycling

Table 3-23 shows the roles of each party as stipulated under the Home Appliance Recycling
Law.
Table 3-23 Roles of each Party under the Home Appliance Recycling Law
Party Roles Overview of Roles
To minimize wastes by using the four items of home appliances as
long as possible.
Waste- Proper delivery
To be responsible to properly deliver the waste units to retailers,
Generators
etc. at the time of discharging them in order to ensure recycling.
(Consumers)
Bearing of Consumers are obligated to pay collection, transport and recycling
recycling fees fees.
When waste-generators request retailers to collect any waste units
of the four items of home appliances originally sold by the retailers,
or waste-generators request retailers to collect any waste units
Collection
when purchasing new items of the same types from them (i.e.,
obligation
replacement purchase), then in both cases retailers are obligated to
collect the waste units at places designated by waste-generators
(such as their homes)
When retailers collect any of the waste units of the four items of
home appliances from waste-generators, and except for cases
where retailers re-use them by themselves, or retailers transfer
Delivery these waste units with or without charge to other parties intending
obligations to reuse or sell them, the retailers are obligated to deliver the waste
units to the manufacturer (if the manufacturer does not exist or is
unknown, then to the designated corporation) at the designated
collection place.
Retailers
Retailers are obligated to set collection and transport fees in
advance, and publicly display those fees in their stores, etc. The
collection and transport fees shall be set taking into consideration
Publication of
costs of efficient collection and transport of the waste units of the
collection/
four items of home appliances, and facilitating their proper
transport fees
discharge by waste-generators. In addition, retailers are obligated
to respond to any inquiries concerning collection, transport or
recycling fees.
To issue manifests (home appliance recycling coupons) upon
collecting any waste units of the four items of home appliances,
Issues and
and provide copies of the coupon to the waste-generators.
management of
Retailers have to retain, for three (3) years, home appliance recycle
home recycle
coupons delivered from manufacturers at designated collection
coupons
places, and are obligated to respond to any requests for inspection
by waste-generators.
Manufacturers are obligated to collect, at designated collection
Collection
places, any waste units of the four items of home appliances, etc.,
obligations
by themselves upon receiving a request for their collection.
Manufacturers are obligated, without delay, to recycle the waste
Manufacturers
units of the four items of home appliance that they collect by
(manufacturers
themselves.
and/ or Recycling and
In addition, manufacturers are obligated to recover, reuse or
importers) merchandising
destroy fluorocarbon refrigerants and fluorocarbon heat insulators
obligations
found in the waste units. In this regard, manufacturers have to
recycle them in accordance with the established standards of
recycling and merchandising.
Party Roles Overview of Roles

Manufacturers are obligated to set recycling fees in advance, and
publish them.
Publication of
Manufacturers have to set recycling fees that do not exceed the
recycling fees
necessary costs for effective recycling, and do not prevent waste-
generators from properly discharging their waste units.
Manufacturers are obligated to properly place the designated
Suitable collection places, taking into consideration the geographical
placement of conditions, traffic circumstances, sales conditions for the four
designated items of home appliances that they manufacture, and any other
collection relevant conditions, in order that they can effectively recycle the
places waste units of the four items of home appliances, or can smoothly
collect those waste units from retailers.
Manufacturers are obligated to affix a receipt seal on home
Delivery and
Manufacturers appliance recycling coupons submitted to them by retailers upon
retaining of
(manufacturers collecting the waste units of the four items of home appliances from
home appliance
and/ or retailers at designated collection places, and to deliver the sealed
recycling
importers) coupons to those retailers, and are further obligated to retain the
coupons
copy of such coupons for three (3) years.
Observance and
guidance on The central government is responsible to observe the performance
enforcement status of obligations stipulated in the Home Appliance Recycling
status of Home Law by retailers and manufacturers, etc. and to issue public
Appliance notifications, perform guidance and impose sanctions as necessary.
Recycling Law
Central Information
Government provision and
public
The central government is responsible to provide information about
awareness
home appliance recycling to consumers, etc. and make efforts to
building on
build public awareness.
home
appliances
recycling
Information
provision and Local governments are responsible to provide residents with
public information about proper waste-discharge and recycling of waste
awareness units of the four items of home appliances, and to better the
building for understanding residents have through public relation activities, etc.
residents
Collection and Local governments are required to establish the collection system
Local recycling of for waste units of home appliances of the four items that retailers
Governments waste of the are not obligated to collect.
four items of In this regard, under the Waste Management Act, local governments
home can recycle by themselves the waste units that they collect, or they
appliances can deliver those waste units to manufacturers for disposal.
Efforts to
prevent illegal Local governments are required to police unlawful waste collection
collection or operators, and to make efforts to prevent illegal dumping.
dumping
Source: The Association for Electric Home Appliances Website “What is home appliances recycling system?”
https://www.aeha-kadenrecycle.com/system/?page=1#tab01 (accessed January 20, 2022)
4) Flow of Recycle Fees

The Home Appliance Recycling Law covers home appliances (such as TVs, air conditioners,
refrigerators, and washing machines/dryers), and provides for a system by which consumers (waste-
generators) shall bear expenses necessary for collection, transport and recycling process for home
appliances they discharge as waste.
Expenses necessary for recycling (i.e., collection, transport and recycling fees) shall be borne
by consumers (waste-generators), who are supposed to pay those fees to retailers upon discharge
of any waste units of the four items of home appliances (no payment of fees will be made upon
purchasing them). The recycling fees will be paid to manufacturers through retailers.
Collection and transport fees vary from region to region, and by retailer. Retailers are obligated
to set collection and transport fees in advance and publicly display them in their stores, etc.
Manufacturers (manufacturers and importers) are obligated to set recycling fees with detailed
pricing tables depending upon respective appliances and types, and publish them in advance.
Table 3-24 shows examples of recycling fees.
Table 3-24 Examples of Recycling Fees

Item Type Size Recycling Fees
Air Conditioners －－ JPY 900
Cathode-ray tube 15 inch or smaller JPY1,200
type 16 inch or larger JPY 2,200
TVs
15 inch or smaller JPY 1,700
LCD / plasma type
16 inch or larger JPY 2,700
170 L or less JPY 3.400
Refrigerators / freezers －
170 L or more JPY 4,300
Washing machines / dryers －－ JPY 2,300
*: 15 inch-size is 33.15cm wide, 16-inch size is 35.36cm wide.
Source: Ministry of Economy, Trade and Industry “2019 Guidebook on Home Appliance Recycling Law for Use by
Persons in Charge” (2019)
5) Actual Performance and Impacts of the Home Appliance Recycling Law

The Home Appliance Recycling Law has diverted a large amount of waste units of home
appliances from illegal dumping to the recycling process. In addition, securing the flow of proper
recycling process, has contributed to the re-use of various valuable recyclables contained in the
waste units of home appliances.
In 2020, approx. 16.02 million waste units of the four items of home appliances were collected
at nation-wide designated collection places (approx. 8.4% increase from the previous year). The
breakdown of these waste units comprised approx. values of 3.85 million air conditioners, 0.98
million cathode-ray tube type TVs, 3.00 million LCD/ plasma TVs, 3.71 million refrigerators/
freezers, and 4.48 million washing machines/ dryers. Table 3-25 shows the annual trend since
2016 for the number of waste units of the four items of home appliances discharged nation-wide.
While the number of collected waste units of cathode-ray tube type TVs significantly increased
from 2009 to 2011 due to the complete shift to digital terrestrial broadcasting in 2011, the total
number of collected waste units of the four items of waste home appliances increased annually
since 2014 (refer to Figure 3-23).
Table 3-25 Annual trend in Amounts of Collected Waste Units of the Four Items of Home
Appliances
Unit: Million
TVs
Fiscal Washing
Air Cathode-ray LCD / Refrigerators,
Year conditioners tube type plasma type Freezers machines, Total
Dryers
2016 2.567 1.184 1.278 2.829 3.339 11.197
2017 2.833 1.039 1.493 2.982 3.538 11.885
2018 3.398 1.035 1.894 3.354 3.880 13.561
2019 3.581 0.993 2.371 3.597 4.230 14.772
2020 3.854 0.983 2.998 3.709 4.476 16.020
*: Totals may differ due to rounding.
Source: Association for Electric Home Appliances “2020 Annual Report of Home Appliance Recycling” (2021)
30,000
Air conditioner
CRT television
25,000
LCD and plasma television
Number of Transaction (1,000 n)
Refrigerators and freezer

20,000
Washing machines and
clothes dryer
15,000
10,000
5,000
0
2007
2001
2002
2003
2004
2005
2006
2008
2009
2010
2011
2012
2013
2014
2015
2016
2017
2018
2019
2020
Fiscal Year
Figure 3-23 Annual Trend in of Amounts of Collected Waste Units of the Four Items of Home
Appliances
From the waste units of the four items of home appliances delivered to recycling plants of
home appliances manufacturers, iron, copper, aluminum, glass, plastic etc. are recovered as
recyclable materials through recycling treatment (process for recycling and merchandising).
While the Home Appliance Recycling Law provides standards for each home appliance item to
ensure recycling and merchandising (i.e., recycling and merchandising standards), all recycling
plants have been achieving recycling and merchandising rates above the respective standards.
Table 3-26 shows revisions of recycling and merchandising standards, while historical trends of
recycling and merchandising rates for waste units of the four items of home appliances are shown
in Table 3-27.
Table 3-26 Revision of Recycling and Merchandising Standards

TVs
Fiscal Year Washing
Air Cathode-ray LCD / plasma Refrigerators/
machines,
conditioners tube type type freezers
Dryers
Year Starting
60% or more 55% or more Out of scope 50% or more 50% or more
April 2001
Year Starting
70% or more 55% or more 50% or more 60% or more 65% or more
April 2009
Year Starting
80% or more 55% or more 74% or more 70% or more 82% or more
April 2015
*: “Recycling and merchandising” is defined as separating parts and materials, and re-using them as they are or after
processing, as parts or raw materials in manufacture of new products, with or without charges.”
Table 3-27 Historical Trend of Recycling and Merchandising Rate for Waste Units of the
Four Items of Home Appliances
TVs
Fiscal Year Refrigerators, Washing
Air Cathode-ray LCD / plasma
Freezers machines,
conditioners tube type type
Dryers
2016 92% 73% 89% 81% 90%
2017 92% 73% 88% 80% 90%
2018 93% 71% 86% 79% 90%
2019 92% 71% 85% 80% 91%
2020 92% 72% 85% 81% 92%
Table 3-28 shows the implementation status of recycling and merchandising of the waste units
of the four items of home appliances in FS 2020.
Almost all of the waste units collected at the designated collection places in FY 2020 were
processed for recycling and merchandising at recycling plants.

Considering the recycling and merchandising rates by waste units, the rate for air conditioners
was 92% (above the recycling and merchandising standard of 80%), for cathode-ray tube type
TVs 72% (above the 55% standard), for LCD / plasma type TVs 85% (above the 74% standard),
for refrigerators/ freezers 81% (above the 70% standard), and for washing machines/dryers 92%
(above the 82% standard). All items achieved recycling and merchandising rates above their
respective recycling and merchandising standards.
Table 3-28 Implementation Status of Recycling and Merchandising of Waste Units of the
Four Items of Home Appliances (FY 2020)
TVs
Items Washing
Air Cathode-ray LCD/plasma Refrigerators,
machines,
Conditioners tube type type Freezers
dryers
Number of waste
units collected at 3.85million 0.98 million 3,00 million 3.71 million 4.48million
designated units unit units units units
collection places
Numbers of waste
units processed for 3.82 million 1.00 million 2.96 million 3.64 million 4.46 million
recycling and units units units units units
merchandising
Processing Weight
for recycling and 154,908 tons 23,608 tons 51,707 tons 222,371 tons 178,168 tons
merchandising
Weight of
Recycling and 143,676 tons 17,006 tons 44,430 tons 180,148 tons 163,930 tons
merchandising
Recycling and
merchandising 92% 72% 85% 81% 92%
Rate
Table 3-29 show the breakdown of amounts of waste units processed for recycling and
merchandising and reused as raw materials and parts, etc.
Regarding cathode-ray tube type TVs, 35% of processed waste amount, in terms of weight was
recovered as cathode-ray tube glass, and a large quantity (27% to 44%) of iron was recovered
from the other home appliance items. Copper and aluminum were recovered from waste units of
all four items of home appliances, and then subjected to recycling and merchandising. Also,
regarding other recyclables (such as plastics), large quantity (18% to 40%) was recovered and
utilized as raw materials, etc.
Furthermore, the Home Appliance Recycling Law mandates the recovery of CFCs used as
refrigerants and heat insulators in air conditioners and refrigerators, and the reuse and destruction
of recovered CFCs. Non-recycled CFCs are destroyed in accordance with the “CFC Destruction
Treatment Guidelines”.
Since Home Appliance Recycling Law subjected almost all waste units of home appliances to
treatment at recycling plants and prohibited illegal dumping, the law significantly contributed to
reducing the amount of illegal dumping for waste units of home appliances. In addition, proper
treatment of waste units of home appliances was secured, significantly contributing to promotion
of material recycling.
Table 3-29 Implementation Status for Material Recycling（FY 2020）

Unit: ton
TVs
Item Washing
Air Cathode-ray LCD/plasma Refrigerators,
machines,
Conditioners tube type type freezers
dryers
41,228 2,419 20,262 85,346 78,107
Iron
（27%）（10%）（39%）（38%）（44%）
10,146 969 465 4,104 3,047
Copper
（7%）（4%）（1%）（2%）（2%）
11,792 22 1,948 1,906 3,551
Aluminum
（8%）（0%）（4%）（1%）（2%）
Mixed ferrous
53,224 54 967 27,749 19,358
and non-ferrous
materials （34%）（0%）（2%）（12%）（11%）
Cathode-ray 8,372
tube glass －－－－
（35%）
Other 27,286 5,170 20,788 61,043 59,867
recyclables （18%）（22%）（40%）（27%）（34%）
143,676 17,006 44,430 180,148 163,930
Total weight
（92%）（72%）（86%）（81%）（92%）
*1: “Other recyclables” means plastic, etc.
*2: % (percent) within brackets indicates the ratio to recycling and merchandising treatment by weight.
End-of-Life Vehicle Recycling Law
The End-of-Life Vehicle Recycling Law focuses on automobiles, which are manufactured using a
large amount of useful resources, and promotes the recycling of useful resources contained in
automobiles by defining the roles of each related entity in the recycling process. It also stipulates
the proper treatment of chlorofluorocarbons against the background of the problem of ozone layer
depletion.
1) Background
Roughly 3 million used vehicles are disposed annually, which are highly valuable in terms of
recyclable resources, since they are consisted of great amount of metals (e.g. iron, which
comprises approximately 70% in terms of weight). Roughly 80% of their gross weight was
recycled, with the remaining 20% turned to shredder dust (plastic bits and other materials left
over after dismantling and shredding) which are mainly disposed of in landfills.
However, factors such as the shortage of landfill sites and the associated increase in the cost of
disposal gave rise to concerns over illegal dumping and improper treatment of used vehicles.
Additionally, cars’ air conditioners were full of fluorocarbon refrigerants, a factor that caused
problems such as the destruction of the ozone layer and global warming; thus, proper collection
and treatment became essential. Furthermore, Japan had confronted many new issues in the years
leading up to the enactment of the law, including the need to use special techniques when
demolishing the many used vehicles equipped with airbags which contain explosives.
2) Overview
End-of-life vehicles contain useful metals and parts which are of high value as resources, so
they have traditionally been distributed, recycled, and processed through trades by dismantlers
and shredders, and have been subject to recycling and treatment. However, due to the shortage of
industrial waste final disposal sites, the need to reduce the amount of shredder dust generated
from recycling processes of end-of-life vehicles has increased, and with the competing factors of
high increases in costs of final disposal, and decline in iron scrap market prices, the threats of
increased illegal dumping and improper treatment became serious issues. To mitigate all these
concerns the End-of-Life Vehicle Recycling Law was enacted.
Name of law: Law for the Recycling of End-of Life Vehicles

(End-of-Life Vehicle Recycling Law)
Enacted: 2002
Purpose: To establish a new recycling system for promoting the recycling and proper treatment
of used vehicles by obliging entities - namely manufacturers and importers of motor
vehicles - to fulfill appropriate roles and responsibilities.
Overview of law: The law sets out roles and responsibilities pertaining to motor vehicle
recycling for the owners of the vehicles, relevant business operators, and
manufacturers and importers of motor vehicles. The law also requires motor
vehicle manufacturers to accept and recycle shredder dust and airbags, and
to accept and destroy chlorofluorocarbons, as these three articles in motor
vehicles are difficult to treat and lead to illegal dumping. Additionally, the
law requires the owners of used motor vehicles to pay fees for treatment
and recycling of their vehicles.
Targets: Nearly all four-wheeled vehicles, excluding some vehicles
(including trucks, buses, and other large vehicles, special-purpose vehicles, and
commercial vehicles)
Source: Law for the Recycling of End-of Life Vehicles (2002)
3) Recycling System Defined in the End-of-Life Vehicle Recycling Law

The End-of-Life Vehicle Recycling Law covers end-of-life automobiles, and provides for a system
by which automobile owners shall bear expenses necessary for the recycling process of their end-
of-life automobiles.
A) Responsibilities of Relevant Entities

a. Owners of Vehicles (last owners)
Pay recycling fees. Deliver used vehicles to used vehicle collectors registered with the
local government.
b. Used Vehicle Collectors
Accept used vehicles from their final owners, and deliver them to chlorofluorocarbon
collectors or scrapping operators.
c. Chlorofluorocarbon Collectors
Properly collect chlorofluorocarbons in line with standards, and deliver the
chlorofluorocarbons to the manufacturers or importers of the vehicles. After collecting
chlorofluorocarbons, deliver car chassis to scrapping operators.
d. Scrapping Operators
Properly dismantle used vehicles in line with standards, collect the airbags, and deliver
them to the manufacturers or importers of the vehicles. After scrapping the vehicles,
deliver the chassis to shredding operators.
e. Shredding Operators
Properly shred (pressing, shearing treatment, shredding) dismantled vehicles (vehicle

frame) in line with standards, and deliver the shredder dust (the waste that remains after
scrapping/shredding the vehicles) to the manufacturers or importers of the vehicles.
f. Manufacturers and Importers
Accept and recycle the automobile shredder dust, airbags, and chlorofluorocarbons
generated from the automobiles when automobiles manufactured or imported by the
company are no longer in use..
B) Flow of Recycling Process for End-of-life Automobiles

In recycling end-of-life automobiles, many stakeholders (such as automobile users, automobile
sales operators, and treatment operators) are implementing recycling in cooperation with each
other, under appropriate role sharing. Figure 3-24 and Figure 3-25 show the recycling process
stipulated under the End-of-Life Vehicle Recycling Law, and the recycling flow.
Used car さいしようぶひん
Parts for reuse
Parts
Scrapping business operator
(engines, body parts, ぶひん

electrical
でんそうひんとう components,
Recycling
New car dealers etc.)
Parts for recycling

Car user
Used car dealers (engines, catalysts, non-

ferrous metals, tires, Materials
etc.)
Maintenance non-ferrous metals, tires, Recycled
etc.)
companies
Approx.. 3.36 million
Automobile shell ASR ASR

Shredding
cars per year
operator
business
(External frame with

engine, tires, etc.
per unit Recycling rate
removed) Approx. 184 kg 96%
ASR: Automobile Shredder Residue Landfill

Source: Prepared by ARC based on Government Council Materials
About 1% of a
scrapped car
Source：Japan Automobile Recycling Promotion Center “Go! Recycle Your Vehicle” (2021）
Figure 3-24 Recycling Process stipulated by End-of-life Vehicle Recycling Law
[1]. Automobile users pay recycling fees upon purchasing their automobiles.
[2]. Automobile users deliver their end-of-life automobiles to collection operators (such as automobile sales
operators or automobile repair operators) who are registered or have permits issued by local governments.
[3]. Collection operators deliver the end-of-life automobiles to fluorocarbons recovery operators.
[4]. Fluorocarbons recovery operators collect fluorocarbons used in their end-of-life automobiles air conditioners,
and then deliver the same to automobile maker or importers. Thereafter, fluorocarbons recovery operators deliver
the end-of-life automobiles to dismantlers.
[5]. Dismantlers (scrapping operators) recover air bags from the end-of-life automobiles, and deliver the same to
automobile manufacturers or importers. Dismantlers then remove useful parts or elements (such as engines or
doors), and deliver the automobiles to shredder operators.
[6]. Shredder operators shred the end-of-life automobiles by using shredding machines, and recover useful materials
(such as iron). Shredder operators deliver the sorted and collected shredder dust (ASR), to automobile
manufacturers or importers.
[7]. Automobile manufacturers or importers properly treat the recovered shredder dust, air bags and fluorocarbons.
Source: Japan Automobile Recycling Promotion Center “10 questions to find out what people are doing to recycle
automobiles for a sound material-cycle society” (2019)
Figure 3-25 Recycling Process of End-of-life Vehicles
4) Flow of Recycling Expenses

The End-of-Life Vehicle Recycling Law establishes a system under which vehicle owners bear the
costs necessary to recycle end-of-life vehicles they dispose of.
Under the End-of-Life Vehicle Recycling Law, automobile owners are in principle supposed to
bear recycling fees of their own automobiles upon purchasing the automobile. Recycling fees
paid by automobile owners are managed by the fund management corporation which has been
designated by the central government, in order to prevent any losses due to bankruptcy or
dissolution of automobile manufacturers, etc. When recycling shredder dust, air bags and others,
automobile manufacturers, dismantlers etc. will request payout of those fees from the fund
management corporation. Figure 3-26 shows the flow of recycling fees.
Source: Japan Automobile Recycling Promotion Center “10 questions to find out what people are doing to recycle
automobiles for a sound material-cycle society” (2019)
Figure 3-26 Recycling Fee Flow under the End-of-Life Vehicle Recycling Law
Expenses included in recycling fees paid by automobile owners are shown in Table 3-30.
Table 3-30 Breakdown of Expenses of Recycling Fees
Setting Party Composition Use of Fees
Shredder dust Expenses to recover shredder dust, and properly treat them.
Automobile
Expenses to recover air bags, and properly treat them.
manufacturer, Air Bags
Remaining metal parts will be used as raw materials.
importers
Expenses to recover fluorocarbons, and then to thermally
Fluorocarbons
decompose them and make them harmless.
Information Expenses necessary to electronically manage the status of
Japan Automobile
management fees proper treatment of end-of-life automobiles.
Recycling
Fund Expenses necessary for receipt, administration and
Promotion Center management fees management of recycling fees
Source: Japan Automobile Recycling Promotion Center Website “Recycling Fee”
https://www.jarc.or.jp/automobile/fee/feeindex/ (accessed February 2, 2022)
Expenses related to shredder dust, air bags, and fluorocarbons included in the recycling fees
are not uniform rates, but should be set and published by automobile manufacturers or importers.
On the other hand, information management fees and fund management fees (which are expenses
for management of recycling expenses by the fund management corporation) are fixed amounts
(approx. JPY 500 per automobile; approx. US$ 5.00 per automobile).
Table 3-31 Ranges of Recycling Fee Rates

Type of Automobiles Recycling Fee Rate
Standard passenger cars In the range of JPY10,000 to JPY18,000
(with A/C and four (4) air bags) （US$91.00～US$164.00）
Light and small passenger cars In the range of JPY 7,000 to JPY16,000
(with A/C and four (4) air bags) （US$64.00～US$145.00）
Middle and large-size trucks In the range of JPY10,000 to JPY16,000
(with A/C and two (2) air bags) （US$91.00～US$145.00）
Large-size fixed-route buses / sightseeing buses In the range of JPY10,000 to JPY65,000
(with A/C and two (2) air bags) （US$364.00～US$591.00）
*: US$1.00=JPY110
Source: Ministry of Land, Infrastructure, Transport and Tourism Website “Ministry of Land, Infrastructure, Transport
and Tourism and End-of-Life Vehicle Recycling Law”
https://www.mlit.go.jp/jidosha/sesaku/environment/recycle/recycle/charge02.html (accessed February 15, 2022)
5) Actual Performance and Impacts of Recycling of End-of-Life Automobiles

The End-of-Life Vehicle Recycling Law significantly reduced the number of end-of-life
automobiles illegally dumped or improperly stored. In addition, the law promoted recovery of
fluorocarbons and recycling of shredder dust, leading to substantial impacts upon recycling end-of-
life automobiles.
Almost all end-of-life automobiles are being recycled. The recycling rate of air bags is 95%,
as iron, copper, aluminum, etc. that are found in airbags are recycled for use as resources.
Shredder dust are processed by material recycling or thermal recycling, and 0.56 million tons
(about 3 million automobiles) were recycled in FY 2020, at a rate of 96% of the generated end-
of-life vehicles generated as waste.
Since January 2005 when the End-of-Life Vehicle Recycling Law was enacted, the number of
end-of-life automobiles subject to illegal dumping or improper storing was significantly reduced.
Compared with the situation in September 2004 (i.e., before the enforcement of the law), the
number of illegally dumped end-of-life automobiles as of March 2021 was 560 (a decrease of
21,939), and the number of improperly stored automobiles was 5,194 (190,666 decrease), leading
to a reduction achievement of 5,754 automobiles in total, i.e., a reduction rate of more than 97%.
Table 3-32 Trend in Recycling of Specified Automobile Parts

＜Air bags＞
Standard Actual Actual
Items
（Target） in FY 2019 in FY 2020
Air bags 85％ 94~95％ 95~96％
＜Shredder Dust＞
Actual Actual Actual
Items
in FS 2005 in FY 2019 in FY 2020
Weight of Shredder Dust Collected ① 480,463 tons 601,055 tons 564,895 tons
Weight of Shredder Dust Recycled ② 297,130 tons 576,787 tons 542,718 tons
Recycling Rate（②／①） 61.8% 96.0％ 96.1％
Source: Japan Automobile Recycling Promotion Center Website “Achievements to date”
https://www.jarc.or.jp/automobile/effort/ (accessed March 1, 2022)
Table 3-33 Trend in Illegal Dumping and Improper Storing of End-of-life Automobiles
Items As of End of September 2004 As of End of March 2021
Illegal dumping ① 22,499 vehicles 560 vehicles
Improper Storing ② 195,860 vehicles 5,194 vehicles
Total（①＋②） 218,359 vehicles 5,754 vehicles
Source: Japan Automobile Recycling Promotion Center Website “Achievements to date”
https://www.jarc.or.jp/automobile/effort/ (accessed March 1, 2022)
Charging Fees for Waste Management
Municipalities are responsible for management of municipal wastes. Municipalities procure

budgets necessary for waste collection and transport, and provide residents with collection and
transport services as part of government services, either directly by themselves, or outsourcing those
services to other entities. Many municipalities have introduced waste management fees due
financial constraints, as well as for the purposes of raising the awareness of residents about reducing
the generated waste amounts and extending the life of landfill sites.
1) History of Charging Fees

In the past, some areas had already introduced waste management fees, but the number of
municipalities introducing the fees has since changed in response to the legal system and
economic conditions.
During the era of the Waste Cleaning Act (1900 to 1954) municipalities could not legally charge
fees for waste collection. Municipalities imposing waste management fees increased during the
post-war era when the waste services were governed by the Public Cleansing Act (1954 to 1970),
but thereafter in the period spanning the late 1960’s to early 1970’s, the number of municipalities
imposing fees decreased. Thereafter from the late 1970’s to the 1980’s, the number of
municipalities imposing fees remained almost unchanged. From 1970 to 2000, during the era of
the Waste Management Act (1970 to 2000), the introduction of management fees was postponed
due to various reasons, including the issue of maintaining public services for residents and the
anticipated workload of collecting fees.
After the 1990s, and in order to address issues such as an increase in the amount of waste and
a shortage of landfill sites, charging management fees for the purpose of reducing the amount of
waste generated has been promoted, and the number of municipalities charging fees increased
once more.
2) Purpose of Charging Fees and Expected Impacts

The municipalities are responsible for management of municipal wastes. The costs thereof are
principally covered by municipal taxes. Since 2005, an increasing number of municipalities have
started charging fees with the purpose of reducing the generated waste amounts.
In 2015, the Central Environment Council issued “Opinion about Desirable Processing of
Municipal Wastes by Municipalities towards Building Sound Material-Cycle Society (2015)”,
recommending the desirable management of municipal wastes the municipalities should
implement, as well as encouraging the involvement of the central government, in pursuit of
establishing a sound material-cycle society. In response, the Ministry of the Environment revised
the “Basic Guidelines for the Comprehensive and Systematic Promotion of Waste Reduction
Measures and Other Appropriate Treatments”, which is established by the Minister of
Environment as stipulated under Article 5-2, paragraph (1) of the Waste Management Act. With
this revision, the Ministry clarified that the policy on nation-wide measures is to promote
charging fees for municipal waste management.
In response to this revision, the “Guidance for Charging Fees on Municipal Waste Treatment
(Established June 2007, revised April 2013)”, was prepared by the Ministry of the Environment
for municipalities, and explains the purpose of charging fees, and their expected impacts, as
follows.
【Purpose of Charging Waste Treatment Fees and Expected Impacts】
(1) Promotion of Waste Minimization and Recycling

Charging fees for municipal waste treatment will incentivize reducing of expenses bearing, leading
to expectation to minimize generated-municipal waste amount.
The amount of waste generated has a major impact on the scale and construction timing of treatment
facilities such as incineration facilities and final disposal sites. Reduction of generated waste amounts
will make it possible to develop or improve smaller treatment facilities, as well as to extend the lifetime
of landfill sites. In addition, reducing of incineration treatment amounts will contribute to minimization
of greenhouse gas emission.
In this regard, comparing with fees for combustible wastes and incombustible wastes, the fees for
recyclables can be set at lesser levels or even without charge, and thereby differentiated fee levels,
promotion of sorting, as well as an increase of resource recovery amounts will be expected.
(2) Ensuring Fairness

Municipal waste treatment service implemented solely by tax revenues, will not provide differences
in cost sharing depending upon extent of services provided, with more service necessary for residents
generating more waste compared to residents generating less waste. There is also further concern that
some people are receiving waste treatment services in their municipality of residence, while they are
registered in another municipality where they pay their residence taxes, and therefore are unfairly
receiving the services free of charge. By introducing service charging fee that is proportional to the
generated waste amount, more fairness of cost sharing can be ensured.
Furthermore, for small business operators, or business operators generating smaller waste amounts,
some municipalities collect their generated waste as household wastes, and do not collect treatment
expenses. However, if these municipalities charge fees directly to households, it will be necessary to
charge fees to those business operators as well, in order to maintain fairness.
(3) Raising Awareness of Residents and Business Operators

If fees are not charged on discharge of municipal wastes, economic incentives for waste minimization
will be smaller, because there is no match between waste discharge and timing of cost sharing, and
discharged-waste amount and amount of shared costs.
Introduction of fees will lead to cost sharing in proportion to the discharged municipal waste
frequencies and amounts of municipal waste, and will increase the necessity for municipalities to explain
to residents and business operators about municipal waste treatment expenses, etc. Introduction of fee
charging will therefore raise the awareness of residents and business operators about waste treatment
expenses, and improve their overall understanding on the consequences of generating waste. As a result,
waste minimization may finally take root as residents select less-waste generating products (such as
simply packaged products and refilling products), minimize purchase of unneeded or non-urgent
products, and promote the reuse of products, and on the other hand, business operators will thoroughly
sort waste and promote reuse.
(4) Other Impacts

It is anticipated that environmental burden, as well as expenses for waste collection, transport and
treatment will be reduced, because minimization of municipal waste, and promotion of recycling will
reduce the waste amounts carried into incineration treatment facilities and final disposal sites. In
addition, revenues obtained from charging fees may be allocated to implement measures for the purpose
of building sound material-cycle society, such as separate collection and recycling, as well as providing
support for group collection.
Source：Ministry of the Environment, “Guidance for Charging Fees on Municipal Waste Management” (2013)
3) Methods of Charging Fees

Most of the waste fees are collected through the designated waste bag method or seal method.
Regarding household waste (excluding bulky wastes), many municipalities have adopted the
method of selling waste bags designated by the relevant municipality with the fees added to the
sale cost.
Regarding business wastes, methods differ by municipality. Some municipalities that collect
business waste employ the designated waste bags or seals methods. However, most municipalities
do not collect business wastes, and business operators must either arrange for approved collection
operators to collect their waste, or deliver the waste directly to the treatment facilities. In the latter
case, the waste receiving fees are set depending on the wastes delivered by the operators.
Furthermore, regarding fee structures, depending upon the characteristics of regions, etc.
various methods are adopted, such as the simple proportion formula, multi-step proportion
formula, and quantitative formula),.
Table 3-34 Advantages and Disadvantages of Designated Waste Bag Method and Seal Method
Item Designated Waste Bag Method Seal Method
・Other bags, such as plastic shopping
・Possible to collect fees in proportion
bags can be used.
to the bag size
・In cases where municipalities manage
・Does not decrease work efficiency
Advantages the service, seals have less weight and
because bags can be more easily
are compact in size, and as a result
identified as designated bags during
storing expense and working burdens
collection.
are reduced.
・Bags other than the designated ones ・It is difficult to collect fees responding
cannot be used. to size (there is an issue of not using
・In cases where municipalities manage the proper seals)
the service, designated bags are heavy ・It is likely that seals will be removed
Disadvantages
and large in size, leading to increased and used for other wastes.
storing expense and working burdens. ・It is less easier to identify specific
seals, leading to reduced working
efficiency.
Actual Many municipalities have introduced this Not many municipalities have introduced
Introduction method. this method.
Source: Yachiyo Engineering Co., Ltd. Source: Ota City “How to separate and dispose of resources and
waste” (2021)
Photo 3-12 Designated Waste Bag Photo 3-13 Seals for Bulky Waste
(Kyoto City) (Ota City in Tokyo)
(Left：For plastics, Right：For Combustible waste）
*: Kyoto City's designated 30 liters waste bags for plastics are sold at JPY 75 per pack of 5 bags and JPY 300 per
pack of 10 bags for combustible waste.
4) Setting of Fees
According to the “Guidance for Charging Fees on Municipal Waste Management”, fees should
be set for waste treatment “in consideration of the effects of municipal waste minimization and
recycling promotion, public acceptability, fee levels in surrounding municipalities and other
factors.” The guide shows that for recycling promotion, it is appropriate to set a difference in fee
levels among different types of waste by either waiving the charge or setting a low fee for
recyclables treatment.
As waste-generating business operators are obliged to properly treat business waste at their
own responsibilities, it is desirable to collect a fee equivalent to the cost of waste management.
On the other hand, the relevant fee is sometimes waived or set at a low fee level as a support for
small and medium-sized firms and local industries, or other purposes. In this case, efforts are
made as much as possible to reduce financial burdens of municipalities, such as obliging the
waste-generating business operator benefiting from this support to submit a plan for reduction of
waste generation.
The ratio of the charged fee to household waste management costs varies from about 10% to
over 30%, as each municipality sets the fee in consideration of its own actual situation. Figure 3-
27 shows the distribution of fee levels adopted by the municipalities and set by simple proportion
to waste discharge (price per one large garbage bag, of 40 to 45 liters). For household waste, the
collection fee of JPY 30 per large bag is the most common amongst the municipalities, after
which the number of municipalities tends to decrease as the fee increases.
(Municipalities)
Number of Municipality (n)
(JPY)
【Price per large garbage bag (40 to 45 liters)】

Source: Ministry of the Environment “Questionnaire survey for the promotion of 3R and reduced carbon emissions in
waste and recycling fields” (2011)
Figure 3-27 Distribution of Fee Levels set by the Simple Proportion Formula to Household
Waste Discharge
The price of each large waste bag for business waste, which peaks at 60 to 79 JPY, is set higher
than that for household waste. On the other hand, the collection fee for 1 kg of business waste
directly delivered to the waste treatment facility peaks at the 10 JPY level and accounts for 50%
of the total.
(Municipalities)
(JPY)
【Price per large garbage bag (40 to 50 liters】

Figure 3-28 Distribution of Fee Levels Set by the Simple Proportion Formula to Business Waste
Discharge
(Municipalities)
(JPY/kg)
【Price per kilogram of directly incoming business waste】

Figure 3-29 Distribution of Fee Levels Set by the Simple Proportion Formula to Business Waste
Directly Delivered to Facilities
5) Achievements of Charging for Waste Collection

Of the total 1,741 municipalities, 1,140 municipalities (65.5% of total municipalities)
introduced fee charging for collection of household waste (excluding bulky waste) in 2019. In
addition, 1,501 municipalities (86.2%) introduced fee charging for collection of business waste
(excluding bulky waste).
Table 3-35 Number of Municipalities by Status of Fee Charges Introduction

for each Type of Waste Collection in 2019
Unit: Number of municipalities
Recyclables
Incombustible waste
Combustible waste
Waste types
White plastic trays
Plastic containers/
Paper containers/
Paper packaging
Mixed waste
Plastic bottles
Paper items
Glass items
packaging
packaging
Metals
Discharge pattern
Household Charge 40 1,086 838 103 83 103 357 345 336 251 296
waste No-charge 20 607 786 1,389 1,337 1,119 1,280 1,325 1,375 1,008 856
(Waste for No
1,681 48 117 246 321 519 104 71 30 182 589
collection) collection
Business Charge 54 1,459 1,090 518 427 397 694 710 638 420 352
Waste No-charge 4 45 70 303 278 233 234 239 264 157 137
(Waste for No
1,683 237 581 920 1,036 1,111 813 792 839 1,164 1,222
Recyclables
Waste types
Any one of the preceding items,
Any one of the preceding items

including bulky waste, charged
Other waste for collection
Compact home appliances
Pruned branches
Edible oil waste
Bulky waste
Kitchen waste
charged
Plastic items
Clothes
Other
Discharge pattern
Household Charge 98 96 96 10 32 104 60 118 1,140 1,118 1,409
waste No-charge 229 868 129 532 153 833 499 646 598 361 329
(Waste for No
1,414 749 1,516 1,199 1,556 804 1,182 977 3 262 3
Business Charge 140 252 181 62 120 121 151 228 1,501 820 1,509
Waste No-charge 48 103 45 72 15 63 64 90 48 43 40
(Waste for No
1,553 1,386 1,515 1,607 1,606 1,557 1,526 1,423 192 878 192
Source: Ministry of the Environment “Waste Disposal in Japan (FY2019)” (2021)
No collection service
3
(0.2%)
Non-charge
48 No collection
2.8% service
192
11.0%
Non-charge
598 Fee for Fee for Business
(34.3%) Municopalwaste
waste collection
collection
(Excluding bulky
(Excluding bulky
waste)
waste)
Data from 1,741 Charge Data from 1,741
municipalities 1,140 municipalities
（100.0％）（100.0％） Charge
(65.5%)
1,501
86.2%
Source: Ministry of the Environment “Waste Disposal in Japan (FY2019)” (2021)

Figure 3-30 Number of Municipalities by Status of Fee Charges Introduction
for each Type of Waste Collection in 2019
6) Processes for Introduction of Charging for Waste Collection and Items of Review
The “Guidance for Charging Fees on Municipal Waste Treatment” (April 2013) prepared by
the Ministry of the Environment provides a road map for municipalities to examine the
introduction of charging for waste collection and start charging.
The processes for introduction of charging for waste collection, and the items of review are
shown in the guidance.
A) Whole Process for Introducing Fee Charging for Waste Treatment

The basic process for municipalities to introduce fee charging is shown in Figure 3-31.
【【Basic items for consideration】

Basic consideration
【Purpose of charging】
• Identifying the current situation and organizing the issues.
• Understand residents' level of awareness
• Establishment of the purpose of charging
• Consideration of expected effects
• Relationship between the fee charging system and the Basic
Plan for Waste Management
】
【【Establishment of system of 【Smooth introduction and

System design
charging】 implementation of charging】

• Fee Structure • Exchange of opinions with
• Fee levels residents and businesses
• Fee collection method • Coordination with
• Use of the fee collaborating departments
】 • Other policy considerations in the municipality, etc.
【
Explanation to
residents
【 Smooth introduction and implementation of charging 】

• Holding briefing sessions
• Use of public relations media • Conduct
】 ongoing public
relations
activities
【
• Responding to
Implement Inspection,
-ation
issues of
Start Charging
concern
】
【【Review and evaluation of charging system】

evaluation,
update
• Basic approach to evaluation and review of the system

• Implementation of periodic inspection
】 • Update of the system
Source: Ministry of the Environment “Guidance for Charging Fees on Municipal Waste Management” (2013)
Figure 3-31 Basic Process for Introducing Charging fees for Municipal Waste Management
B) Assessment on Whether to Introduce Charging for Waste Management

It is important to clarify the relationship between charging for waste collection and basic
policies or strategies/measures for waste management, the issues to be solved due to charging
and the target effect of charging before assessing whether to introduce charging or not. Many
municipalities have introduced charging systems, with the goal of reducing waste generation and
extending the life of landfills through raising residents’ awareness. An example of an effective
assessment flow for introduction of charging is shown in Figure 3-32. The interested municipality
collects and organizes information on waste collection in its region, to form an understanding of
the “current situation” of waste management and organizes the “current issues” to be solved.
After that, the municipality proceeds to “setting expected outcomes” from introducing charging
and to implementing “Demonstration projects in model districts” in order to assess the feasibility
of charging fees, and thereby have sufficient information to reach a “Decision on introduction of
charging fee” in the municipality.
●Understanding current situation

• Waste generation amount and recycling amount
• Recycling rate
• Financial burden for municipal waste disposal
• Resident satisfaction and opinions regarding waste
●Organizing current issues

• Increase in the waste generation amount
• Strain of capacity of landfill sites
• Increase in financial burden
• Decreased awareness of residents regarding waste
●Setting expected outcomes

• Setting goals for municipal waste management
• Establishing the expected outcomes of charging fees
●Assessment for implementation and consideration of the

feasibility of the charging fee system
• Demonstration projects in model districts
(Ex. Introducing designated bags.)
• Conducting opinion surveys, etc.
Decision on introduction of the charging
Source: Ministry of the Environment “Guidance for Charging Fees on Municipal Waste Management”
(2013)
Figure 3-32 Example of Assessment Process for Introduction of Charging Fees
C) Items of Review at each Stage in Introduction of Charging Fees on Waste

Management
When the introduction of charging is decided, items required to start charging are reviewed in
line with the steps defined in the basic process flow (shown earlier in Figure 3-32) and after
completion of the “Basic items for consideration”, namely; “Establishment of system of charging
fees” → “Smooth introduction and implementation of fee charging” → “Review and evaluation
of fee charging system”. Also, after the start of charging fees, it is important to assess and review
the charging system on a regular basis with the aim to attain a sustainable charging system. The
review items at each stage are shown in Table 3-36 to Table 3-38.
Table 3-36 Review of “Establishment of System of Charging fees”(1)

Review item Overview
The method to set a fee schedule based on the “type of simple proportion
to waste discharge (in which fees charged to waste generators depend on
the municipal waste amount they discharge)” is the simplest way that the
1. Fee schedule public can easily understand. With a focus on this method, as needed, other
ideas can be considered, such as multistep fees, non-charging for
collection of partial waste, and greater fee burden on business operators
with a large amount of waste discharge.
The fee level is set considering the effect on the control of municipal waste
2. Fee level discharge, promotion of recycling, acceptability of residents and fee levels
in surrounding municipalities
In the case of household municipal waste, the standard methods for
collecting fees is to sell designated municipal garbage bags with the fees
added on the selling price, and stickers which are attached to garbage bags.
On the other hand, in the case of business-related municipal waste, the
3. Method for fee collection
standard method is to measure the weight of the waste when bringing it in
to the waste treatment facilities and collect the fees accordingly. The fee
collection method should be determined in consideration of the fee
structure and advantages, amongst others.
It is necessary to determine the appropriate use of the fees collected under
the charging system for municipal waste treatment, in addition to the
expenses necessary for the operation of charging fees, and to make this
usage transparent. In addition, it is expected that by specifying the usage
4. Use of fee revenues
that contributes to the control of municipal waste discharge and the
promotion of recycling, it will be possible to deepen residents' and
businesses' understanding of the fee charging system and raise their
awareness on waste discharge control.
In order to control the discharge of municipal waste and promote
recycling, in addition to fee charging for municipal waste disposal, it is
required to reassess the separate waste collection categories, provide
5. Combination with other
public funds for group collection of recyclables, and support retailers that
measures
are working on waste generation control and recycling. In addition other
measures should also be considered, such as certification and support of
eco-shops, and promotion of reuse.
Table 3-37 Review of “Smooth Introduction and Implementation of Fee Charging”

In order to smoothly introduce and implement fee charging of
1. Collaboration with concerned
municipal waste treatment, it is necessary to exchange opinions with
parties towards smooth
residents at the stage of “Review and evaluation of fee charging
introduction
system” and incorporate their ideas into the charging mechanism.
In order to smoothly implement fee charging of municipal waste
treatment, relevant information shall be provided to residents and
2. Collaboration with concerned business operators through convening of explanatory meetings,
parties towards smooth using the PR system of the municipality and other means. It can be
implementation expected from these efforts that residents and business operators will
deepen their understanding of fee charging and waste management
and pay the waste treatment fees.
In order to smoothly implement fee charging for municipal waste
treatment, it is required to consider in advance the issues that may
surface during implementation, such as improper discharge of waste,
3. Response to concerned issues
illegal dumping and low achievement in waste discharge control, and
prepare the necessary countermeasures to confront such issues
should they occur.
Table 3-38 Review of “Review and Evaluation of Fee Charging System”

In order to implement an effective charging system, the
implementation conditions and their effects shall be inspected
1. Basic concept of assessment annually, while the evaluation of the system shall be carried out once
and review of fee charging every 5 years, based on the annual inspection results, and shall be
system reassessed together with the reassessment of the waste disposal
master plan. In addition, the results of annual inspections and
evaluation shall be made public to residents and business operators.
After introducing the fee charging system for municipal waste
treatment, the status and effects of charging shall be inspected every
year. Based on the inspection results it is required to consider and
2. Implementation of inspection
implement measures to maintain and improve the system as
necessary. Information on the implementation status and results
shall be made public to the residents and business operators.
The fee charging system shall be evaluated once every 5 years
together with the reassessment of the waste management plan, the
3. Evaluation of the system
merger of municipalities or any other occurrence that has a
significant effect on waste management in the municipality.
Table 3-39 Fee Structure and Mechanism by Type (1)

Type Fee structure chart* Fee mechanism
Under this method a waste generator is charged fees according to
(1) Simple proportion to
the municipal waste amount discharged. A fee level per unit waste
waste discharges
amount is fixed regardless of waste amount discharged. For

Fee
instance, if a unit price is charged for the collection of each

garbage bag as the fixed collection fee, the total fee charged to a
waste generator will equal the product of the unit price of
collection charge per garbage bag and the number of garbage bags
Waste discharge amount
used. (Flat fee).
Under this method a waste generator is charged a fee according to
(2) Multistage proportion
the waste amount discharged, and when the amount of waste

to waste discharges
Fee
exceeds a certain amount, the fee level per unit amount of waste is
raised. (Progressive fee)
Under this method no fee is charged until the waste discharged

(3) Non-charging for
reaches a fixed waste amount, after which a waste generator is

collection of a fixed
amount of waste
Fee
charged a fee according to the waste amount discharged. For

instance, municipalities distribute a certain number of garbage
bags and stickers required for discharging waste free of charge,
and if a waste generator needs more garbage bags and stickers, the
Waste discharge amount waste generator purchases the additional garbage bags and stickers
for a fee.
Under this method the fee is free up to a fixed discharged waste
amount, after which waste generators are charged fees according
(4) Combination of burden and
subsidy for waste collection
to waste amounts discharged up to a second fixed waste discharge

amount. Should the discharged waste amount be less than the
Fee
second fixed waste amount, then discharge savings are passed on

to waste generators according to the reduced discharged amounts.
For instance, municipalities distribute to waste generators at no
charge, a fixed number of garbage bags or seals required for waste
Waste discharge amount discharge. Generators pay for additional bags or seals they may
need. On the other hand, generators can sell back to municipalities
unused garbage bags or seals.
Under this method a fee is charged regardless of the waste amount
(5) Combination of fixed-
discharged up to a fixed waste amount. When the discharged waste

fee and pay-for-use
Fee
amount exceeds this fixed amount, waste generators are charged

systems
according to their discharged waste amounts at a fixed fee.
*: (Source) Yukiko OCHIAI (1996) “Approach to Waste Reduction by Charging of Household Waste - Questionnaire
Survey for 533 Cities in Japan and Introduction of Municipality Cases- “ Life Design Laboratory
Table 3-40 Fee Structure and Mechanism by Type (2)

Advantages Disadvantages
・The system is simple and easy-to-understand. ・The case of a low fee level may not lead to
proportion to waste
・ It is unnecessary to manage each waste control of waste discharge.

(1) Simple
discharges
generator’s waste discharges, and the

system is operated at a lower cost than other
fee systems.
・ A higher fee level in the case of a large ・ The cost for operating this fee system will
proportion to waste
amount of discharged waste can be expected increase as it is necessary to identify the waste
(2) Multistage
discharges
to motivate large waste generators to control amount discharged by each generator which
waste discharge. will require additional operating resources.
・The employment of the pay-for-use system ・There is less incentive to motivate control of
(3) Non-charging for collection
of a fixed amount of waste
only for the amount of waste discharged discharge within a range in which there is no
above the fixed discharged waste amount charge.
can be expected to control discharge ・ In order to identify the waste amount
amounts below the fixed amount. discharged by each generator costs will be
incurred (e.g. cost for distribution of garbage
bags used up to a fixed amount of discharged
waste), which will increase the cost for
operation of the system.
・The employment of the pay-for-use system ・ In order to identify the waste amount
only for the amount of waste discharged discharged by each generator costs will be
(4) Combination of burden and
subsidy for waste collection
above the fixed discharged waste amount incurred (e.g. cost for distribution of garbage
can be expected to control discharge bags used up to a fixed amount of discharged
amounts below the fixed amount. waste), which will increase the cost for
・As discharge savings are passed on to waste operation of the system.
generators according to their reduced
discharge amounts, this fee type can be
expected to be more effective in controlling
waste discharge than the preceding Type 3
fee system.
・The employment of the pay-for-use system ・There is less incentive to motivate control of
and pay-for-use systems
(5) Combination of fixed-fee
only for the amount of waste discharged discharge within a range in which there is no
above the fixed discharged waste amount charge.
can be expected to control discharge ・ In order to identify the waste amount
amounts below the fixed amount. discharged by each generator costs will be
・The employment of the fixed-fee system to a incurred (e.g. cost for distribution of garbage
fixed amount of discharged waste enables bags used up to a fixed amount of discharged
municipalities to collect a stable amount of waste, costs for fee collection), which will
money. increase the cost for operation of the system.
Source: Ministry of the Environment “Guide for Charging for Municipal Waste Management” (2013)
Table 3-41 Comparison of Characteristics of Methods Used for Fee Collection

Items Designated garbage bag Seal
・ It is easy to check the amount of ・ In cases where waste items of certain
discharged waste. sizes or shapes cannot be contained in a
・Over filling garbage bags makes them too garbage bag, these items may be
heavy and bulky. discharged using seals.
Ease of
・ It is relatively difficult to check the
handling
amount of discharged waste.
・The seal is easily handled due to its small
size.
・The seal is easy to lose.
・It is necessary to place on the bag, a mark ・It is necessary to place on the seal, a mark
or color that makes it prominent. or color that makes it prominent.
Necessary
・It is important to prepare garbage bags ・It is important to prepare seals that have
measures
that have different sizes, and provide different sizes, and provide incentives to
incentives to use a smaller garbage bag. use a smaller garbage bag.
・It is necessary to consider the impact of ・ The seal has a lesser impact on the
Market
the designated bags on the existing waste existing market.
impact
bag market.
Treatment ・A plastic shopping bag cannot be utilized ・In some cases, the plastic shopping bag
of plastic as a garbage bag. cannot be utilized as a garbage bag.
bag
Table 3-42 Example of Use of Advertising Media

<Advertising Media/Publicity Method>
・ Provision of information through TVs, newspapers, radios and other media
・ Periodical publication in municipal PR magazine
・ Use of advertisements on trains, buses and other vehicles
・ Street speech/explanation
・ Presentation on waste-collection point
・ Use of circular boards
・ Distribution of booklets and/or flyers to all homes
・ Holding of festivals and events
<Content of Information>
・ Details of charging system
・ Dates of fee collection
・ Sorting waste categories
・ Amount of discharged municipal waste
Topic 4. Waste Management Technologies Contents
Topic 4. Waste Management Technologies
Contents
1. Waste Discharge, Collection and Transport.................................................................. 1
Transition of Waste Collection and Transport Methods .................................................. 1
Collection Methods..................................................................................................... 3
Features of Vehicles and Equipment for Waste Collection and Transport ....................... 14
Maintenance Management of Waste Collection and Transport Vehicles ......................... 17
Transfer Station ........................................................................................................ 21
Waste Collection and Transport Technical System necessary for Efficient Collection ..... 24
2 Intermediate Treatment ........................................................................................... 28
Transition of the Intermediate Treatment Technologies ................................................ 28
Incineration Technologies.......................................................................................... 31
RDF/RPF Conversion Technology ............................................................................. 47
Organic Waste Recycling Technology ........................................................................ 54
Recycling Technology............................................................................................... 65
Standards Related to Intermediate Treatment Facilities and Their Maintenance ............. 69
3 Final Disposal ........................................................................................................ 75
History of Disposal Sites ........................................................................................... 75
Functions and Features of Landfill Site Facilities and Equipment ................................. 79
Types of Disposal Sites ............................................................................................. 82
Operation and Maintenance Management of Landfill Sites .......................................... 97
Appropriate Closing and Use of the Site ................................................................... 100
4-2 Topic 4. Waste Management Technologies
Topic 4. Waste Management Technologies 4-1
1. Waste Discharge, Collection and Transport
Transition of Waste Collection and Transport Methods
Since the 1950’s, when Japan entered a period of rapid economic growth after postwar
reconstruction, the increase in generated waste and related sanitation issues made it necessary to
collect the growing waste amounts discharged from each household. To ensure reliable waste
collection and transport systems the related technologies continued to progress. At the initial stage
of waste collection, hand carts were used. Due to the requirements for more efficient and sanitary
collection, the transport method shifted from manual collection to the introduction of mechanical
collection by compactors - vehicles for waste collection with the function of compressing waste,
often referred to as packers in Japan. With changes in the social conditions including economic
growth and urbanization, issues such as waste collection in large amounts, sanitary collection, and
efficiency arose and these issues have been handled with technological innovations for waste
collection and transport vehicles as well as collection forms and methods.
Waste collection had been in place prior to the enactment of the Public Cleansing Act. In the 1950’s
when the Public Cleansing Act was established, waste collection was introduced to address the
problems of the increase in waste amount and related sanitation issues. At the initial stage, waste was
collected from each household by using a hand cart. The waste collected in the hand cart was then
transferred to a vehicle and transported to a landfill site or an incineration plant.
Due to the subsequent continuous increase in the amount of waste combined with population
concentration in urban areas due to urbanization, the collection of waste in urban areas became a
serious issue. To resolve this issue, collection vehicles were introduced to ensure more efficient and
sanitary waste collection.
With the introduction of waste collection compactor vehicles (packers) and shifting from manual
collection by hand carts, there were improvements in the safety of collection operations (e.g., accidents
involving workers), sanitary conditions during transportation (e.g., countermeasures of odor and waste
liquid leakage), and collection efficiency (e.g., collection route planning). At the same time, in order
to operate an efficient waste collection and transport system various types of vehicles were developed
for waste collection and transport, low-pollution emissions, and transport of recyclable materials.
Photo 4-1 Collection of Kitchen Waste from Photo 4-2 Transfer of Household Waste from
Households by Handcart - circa 1957 Handcart to Transport Vehicle -
circa 1961
Photo 4-3 Transport Vehicle that were Photo 4-4 Pilot Project for Introducing
Often Used- circa 1961 Mechanized Waste Collection by
Compactor - circa 1957
Photo 4-5 Waste Collection by Compactor Photo 4-6 Example of Low Pollution Type of
Waste Collection Compactor
Source: Ministry of the Environment “Solid Waste Management and Recycling Technology of Japan” (2013)
Collection Methods
Waste discharge methods are classified into two major methods, door-to-door collection and
station collection. In Japan, both methods have been adopted for a long time and the selected method
in a certain region is determined by the actual conditions of that region or the preference of the
residents. For upgrading, it is important to introduce a practical and effective collection method
suitable for the actual conditions of the region - for example if it is a built-up area or a suburb, the
population density, and land utilization status, etc. - after examining the advantages and
disadvantages of each method.
(1) Storage and Discharge of Waste

Waste is generated every day from
each household and it is important to
collect the waste generated effectively
and efficiently to secure the sanitary
condition of each household and its
surrounding area. For this reason, in
principle, it is important for residents to
collect the waste that is generated in each
household, and store the waste inside the
house until it is time to discharge it to the Source: Tokyo Metropolitan Government Bureau of Environment
Photo 4-7 Fixed Waste Box in Front of each
designated location at the specified time Household
according to the predetermined - circa 1961
collection plan.
In most cases, plastic bags are used to discharge waste at designated locations. For recyclables,
paper is tied up with string, or special containers are used.
Photo 4-8 Waste Discharged to Collection Photo 4-9 Corrugated Cardboard

Points Using plastic Bags Discharged Tied with String
(2) Door-to-door Collection and Station Collection

Waste collection services that are provided by the municipality (not only directly managed services
but also by subcontracted collection services operators,) are mainly carried out by door-to-door
collection or station collection methods. Depending on the type of waste being discharged, there may
be a direct delivery system whereby a resident of the household directly delivers the waste to the
specified waste management facility (transfer station, intermediate treatment facility, or landfill site).
In the door-to-door collection method, waste is
discharged in front of each household which is then
collected. In Japan, not many municipalities adopt
door-to-door collection as the standard collection
method. However, this method is partially used in many
municipalities for certain circumstances such as
collection of bulky waste and to support elderly
residents in their waste discharge. Since each household
discharges its own waste in front of the residence under
its responsibility, this method has certain features such
as clarity of the responsibility for the waste discharged
and some degree of freedom for each household. Door-
to-door collection is effective for districts with low
population densities - districts containing large Source: Tokyo Metropolitan Government
Bureau of Environment
residences of high-income earners and districts in local
Photo 4-10 Station Collection (1964)
areas where residences are scattered over a large area.
On the other hand, since waste discharged needs to be collected from many collection points, the
workload of the collection operators increases, which becomes a disadvantage for the municipality.
In the station collection method, a specific location is set as a waste discharge station and a number
of households discharge their wastes there for collection. In Japan, many municipalities adopt station
collection. In station collection, since a station is shared by a number of households, the unique
features of this method are that the station location needs to be determined by all the residents who
share the station and the stations needs to be managed. Therefore, in long-established districts where
there usually are residents associations, it is possible to examine the introduction of station collection
method there since it is comparatively easier for the residents to cooperate together. Furthermore, since
less waste collection points are required than those of door-to-door collection, waste can be collected
more efficiently, reducing the workload of operators, which is an advantage for the municipality.
Station collection is efficient in districts where many households are concentrated such as apartments
and terrace houses. Table 4-1 shows the features of door-to-door collection and station collection.
Another effective collection method is the container collection method, although this method is not
widely adopted in Japan. Container collection is a method in which containers of 4 to 10 m3 are set up
to collect waste from surrounding households. Residents can discharge their waste at any time, and a
large amount of waste can be collected at one time. On the other hand, if container is not emptied at
an appropriate frequency, the waste may overflow from the container and deteriorate the sanitary
environment in the area where the container is set up.
Photo 4-11 Station Collection - 1 Photo 4-12 Station Collection - 2
Photo 4-13 Door-to-door Collection - 1 Photo 4-14 Door-to-door Collection - 2

Table 4-1 Advantages and Disadvantages of Door-to-door Collection and Station Collection
Item Door-to-door collection Station collection
 The responsibility of the location of  Collection operation can be
discharge and the waste discharged is implemented efficiently since there
clearly defined (the owner of the are less collection points (number of
waste discharged is identifiable). stations).
 Highly convenient for residents as  Collection cost is reduced.
the waste discharge point is nearby,  Collection time is shorter and
and there is a certain degree of operator burden is reduced.
Advantages
freedom in how and when to dispose  Awareness on waste discharge can be
of the waste. shared within the regional
 Awareness of the residents is raised. community.
They have better waste discharge  Less impact on the traffic conditions.
manners. There is less waste
scattering caused by dogs and crows.
 Sorting of waste is improved.
 A longer collection time is required  Selection of collection stations may
due to the large number of collection be difficult.
points involved.  The responsibility for the waste
 Increase in collection cost due to the discharged is unclear. Awareness of
large number of collection points individual households on their own
involved. discharged waste is lowered.
Disadvantages  Lower operation efficiency due to the  The handling of inappropriate
large number of collection points discharge by any of the households
involved, thereby causing an increase sharing the station is difficult.
of the operator's work burden.  The collection station needs to be
 Consideration is necessary for managed. Inappropriate management
privacy since the waste can be easily creates a situation similar to open
traced to the discharging household dumping at the station.
 Efficiency of waste collection is  In selecting collection stations, it is
improved by examining collection important to consult in advance
plans in detail such as establishing with the residents who will be using
the most efficient routes. the stations.
 Sufficient collection vehicles and  If a new residential district is to be
workers are secured to reduce the developed, it is desirable to decide
burden on workers. on the location of the collection
Remarks
 The discharged waste is promptly station at the stage of development.
(Examples of
collected.  If there is an understanding among
countermeasures
residents, and considering privacy
against
concerns, it is possible to reduce the
disadvantages)
decline in resident’s awareness by
having them write their names on
the waste bags they discharge.
 A manager or assistant should be
assigned to each collection station
to provide regular monitoring and
advice.
Column: Measures for Handling Birds and Animals

Birds, particularly, crows are natural enemies of waste collection as they scavenge waste
collected for food. In some regions, damage is caused by animals such as monkeys and boars. In
particular, in developing countries, it is necessary to prevent waste scavenging by stray dogs.
In Japan, each region takes some measures to prevent birds from tearing waste bags such as
covering the waste at the station with nets. In some cases, waste is covered by simple nets and in
other cases, waste is placed inside of a meshwork cage. Where waste is to be placed on the roadside,
residents are asked to discharge their waste on the scheduled collection day, instead of the previous
day to reduce the time the waste is susceptible to damage caused by birds and animals.
Prevention of waste scavenging by birds and animals contributes to smooth and improved
collection operations as well as prevention of deterioration of the sanitary environment and
maintenance of local beauty of the region.
Photo 4-15 A Crow Rummaging through Photo 4-16 Waste Collection Bag Torn by
the Waste Crows
Photo 4-17 Countermeasure Using Net at Photo 4-18 Countermeasure Using Wire
Collection Station Frame Box for Door-to-door Collection
(3) Source Separation and Separate Collection

It is extremely important to separate waste at the source of generation (commonly referred to as
source separation) in order to promote recycling. Through source separation, positive effects such
as waste amount reduction, collection efficiency improvement, and improvement of recyclables
quality (cans, bottles, plastic, paper, kitchen waste, etc.) can be expected. The cooperation of
residents is essential to realize source separation. In addition, it is necessary to secure collection
equipment and personnel required for collection as well as recyclables businesses. While source
separation is an effective measure, it is important to establish and implement a feasible plan, giving
some consideration to the degree of cooperation from the residents and the funds available in the
municipality.
Source separation and separate collection is expected to contribute to the promotion of recycling,
as waste generated is separated at an early stage. In addition, many municipalities are implementing
this as an effective measure at the waste discharge stage, since it leads to raising public awareness on
waste management among residents and to reduction of waste. On the other hand, since an increase of
the number of categories for waste materials separation requires development of a system for sorting
and increases the burden on the residents, further cooperation of residents becomes necessary. In each
municipality, the categories for separation are determined according to the characteristics and actual
condition of the region.
Effects of source separation and separate collection:

 More types of waste to separate and recycle reduces the waste amount.
 Recycling is facilitated, leading to a reduction of the recycling cost and improvement of the
quality of recyclables.
 Awareness of residents towards waste discharge improves through the work for separating
waste, which in turn has an effect on the reduction of waste generation.
Considerations on source separation and separate collection:

 It is essential for the municipality to be able to develop a collection system through
securement of personnel and equipment and the funds required.
 Set the number of categories for separation and the separation items such as plastic bottles
so that waste can be separated easily to gain the understanding of the residents.
 In order to secure receivers (takers) for the separated items, the growth of the venous
industry for recycling is important.
Photo 4-19 PET Bottle Separated and Photo 4-20 Bins and Cans Separated and
Discharged by Residents in Tokyo Discharged by Residents in Tokyo
Separate collection is actively implemented to promote both prolonging the life of landfill sites and
recycling. Table 4-2 shows the waste separation status in Japan. All the municipalities have adopted
waste separation and in 32 municipalities (2% of total municipalities) waste is separated into over 26
categories. There are 646 municipalities where waste is separated into 11 to 15 categories (38% of
total), accounting for the highest proportion, followed by 418 municipalities where waste is separated
into 16 to 20 categories (24% of total). The waste in more than half of all the municipalities is separated
into 11 to 20 categories.
Table 4-2 Waste Separation in Japan

No. of No 2 3 4 5 6 7 8 9
separation separation categories categories categories categories categories categories categories categories
No. of 7 8 11 33 67 58 92 97
0
municipalities 373
(%) 0 22%
Waste amount
0 867 1,300 1,057 934 1,069 1,021 921 924
(g/capita/day)
No. of 10 11 - 15 16 - 20 20 - 25 Over 26
Total
separation categories categories categories categories categories
No. of
113 646 418 137 32 1,719
municipalities
(%) 7% 38% 24% 8% 2% 100%
Waste amount
912 904 906 860 872 -
(g/capita/day)

Figure 4-1 shows the numbers of categories of waste separation and the amount of waste discharged
per day per person in grams. Separation of waste into 3 categories falls into the category of the highest
amount of waste discharged, which is 1,300 grams/person/day. Starting from the separation of waste
into 3 categories with the highest amount discharged, as the number of categories for separation
increased, the amount of waste discharged per person per day decreased. This indicates that the number
of categories applied for separation of waste contributes to the reduction of the amount of waste.
グラフタイトル
Waste generaiton amount (g/capita/day)
1,800
1,600
1,400 1,300
1,200 1,057 1,069 1,021
867 934 921 924 912 904 906 872
1,000 860
800
600
400
200
0
No. of separation category

Figure 4-1 Relation between Number of Separation Categories and Unit Generation Rate
(4) Establishment of Collection Form

Local governments have always positioned gaining the understanding and cooperation of local
residents as an important issue in the implementation of waste management in each region, and are
actively disclosing and disseminating information such as plans and data related to waste
management.
In particular, the collection and transport stage is the best opportunity to make contact with local
residents, and it is extremely important for municipalities to build relationships of trust with them.
Therefore, in order to ensure the smooth implementation of collection and transport, the local
governments need to continuously disseminate information on how to discharge waste and
collection services provided to local residents.
Each municipality actively discloses information on waste management projects and activities
planned and implemented by the municipality through the municipality website and other means in
order to gain local residents’ understanding of waste management. In addition, each municipality
continuously conducts various activities such as environmental education and facility tours related to
waste management in order to promote the residents’ proactive participation in waste management.
Each municipality is responsible for providing services related to waste collection and transport,
and the proactive participation and cooperation of residents are indispensable for the smooth operation
of these services. For this reason, many municipalities provide information on how to dispose of waste
and the collection schedule through pamphlets and municipal websites.
The pamphlets and other information include not only the types of waste to be separated and the
collection days, but also the size of waste, procedures to discharge waste (putting it in bags, tying it
up with string, etc.), draining food scraps, and other points to keep in mind as a reference for residents
when disposing of waste.
*: Pamphlet is available in Japanese, English, Chinese, Korean, Tagalog, Nepali and Vietnamese.
http://www.city.ota.tokyo.jp/honnyaku/index.html
Source: Ota City “How to dispose and separate your waste and recyclables” (2021)
Figure 4-2 Leaflet on How to Discharge and Separate Household Waste in Ota City, Tokyo
(5) Resource Recovery

In Japan, group collection has been adopted since a long time ago, where a voluntary association
of community residents voluntarily collects recyclables and delivers it to recycle business operators.
The adoption of group collection contributes to the effects of not only an increase in the amount of
recyclables, but also enhancement of awareness of community residents towards waste management
and the environment, as well as creation of opportunities for children to learn about the environment
and for residents to communicate with the administration.
In addition to source separation and separate

collection that are implemented by
municipalities, community group collection is
exercised as a recycling activity, where a
voluntary association of community residents
such as a neighborhood association and a
children’s group voluntarily collects recyclables
and delivers it to a recycle business operator.
Many municipalities support voluntary
associations that implement community
recycling activities through group collection, by
providing subsidies to cover expenses for the
activities and introducing them to recycle Source: Yachiyo Engineering Co., Ltd.
Photo 4-21 Group Collection (in Tokyo)
business operators. Group collection can
directly contribute to the improvement of the recycling rates. More significant effects that can be
expected are improvement of awareness of community residents towards recycling and the reduction
of the amount of waste and improvement of their understanding on waste management.
The main recyclables categories targeted for group collection include paper, bottles/cans, and
fabrics. The performance records of 2019 show that paper category accounts for the majority at the
overwhelmingly high amount of 1,715,000 tons (89.8%).
Figure 4-3 Group Collection System
Plastic container and packaging White tray

1 0 Waste edible oil
Plastic
0% PET 0% 1
4
5 0% 0%
Glass 0% Others
24
9
1% Metal Cloth 1%
43 67
2% 4%
Paper container
Paper carton
and packaging
5
37
2%
0%
Communty
collection
amount
1,909
(100.0%)
Paper
1,715
90%
Unit: 1,000 ton/year
Figure 4-4 Status of Residential Community Collection (FY 2019)

Features of Vehicles and Equipment for Waste Collection and Transport
Various types of vehicles have been developed for waste collection and transport to improve the
collection efficiency. In Japan, compaction vehicles (often referred to as packers in Japan) that
compress the waste during collection are widely used as they can collect and transport a large
amount of waste in one trip. However, suitable vehicles need to be assigned according to the
characteristics of the vehicles and the usage method, including normal dump trucks.
Various types of vehicles are used for waste collection and transport to cater for various purposes,
collection plans, and collection modes. Table 4-3 lists the collection vehicles.
Recently, introduction of low gas exhaust vehicles and low fuel consumption vehicles is becoming
widespread and in the future, electric vehicles are expected to be widely used for waste collection and
transport. The battery power required for electric vehicles for waste collection and transport can be
charged at waste treatment facilities and this power can also be shared with the households during
times of disaster. Such usage methods are also examined.
Examples of considerations on selecting waste collection and transport vehicles

 In principle, select waste collection and transport vehicles that can be repaired and
maintained. In particular, vehicles with readily available spare parts are preferable.
 Select the type and size of a vehicle considering the amount of waste to be collected and
transported, road conditions in the collection route (width of the road and pavement
conditions), and the topography (slopes).
 A compactor vehicle is suitable when a large amount of waste is to be collected and
collection efficiency is the priority.
 For a residential area that generates a comparatively low amount of waste and does not
require frequent collection, a container is effective for collection. For a market that also
discharges a sizable amount of waste regularly, a container is also effective for collection.
Table 4-3 List of Vehicles Used for Waste Collection and Transport
Vehicle type Feature
Dump Truck  It is an ordinary dump truck.
 Because it is not a special vehicle,
maintenance is comparatively easy.
 Since it does not have the ability to compact
waste, it is not highly efficient in
transportation.
 In the case of high vehicle height, it is not
easy for workers to load waste into the truck.
Source: Yachiyo Engineering Co., Ltd
Compaction Vehicles (Packers)  This vehicle is designed for efficient collection

of waste and collects waste while compressing
it with a compactor (press type, turntable plate
type, or rotary type) that is installed in the
container compartment.
 Since the waste can be collected while
compressing the loaded waste, a packer can
transport more waste than a normal truck.
 As this is a special vehicle, routine maintenance
is important for the vehicle’s stable and long-
term use.
 As this is a special vehicle, it is not easy to
maintain and repair (including parts
Source: Sapporo City ”Waste Disposal Administration/ replacement).
3R Policy in Sapporo City (JICA training text)” (2019)
Container vehicle with arm type removable unit  Vehicle equipped with a steel arm and hock that
can mount or dismount a transport container on
or off the vehicle.
 The whole process such as storage, collection,
transport, and discharge of waste to facility can
be operated as a system flow.
management is important for the vehicle’s
stable and long-term use.
replacement).
Vehicle type Feature

Container vehicle  With one dedicated vehicle and multiple
containers, it is possible to place containers at
appropriate locations to collect waste at
multiple locations, thus increasing collection
efficiency. There is no need for loading work,
reduced waiting time due to loading, etc.
management is important for the vehicle’s
stable and long-term use.
replacement).
Maintenance Management of Waste Collection and Transport Vehicles
To carry out waste collection and transport stably and continuously, regular inspection and
maintenance of collection vehicles are essential. In Japan, annual inspection, monthly inspection,
and regular voluntary inspection before starting operation are regulated by technical standards such
as Safety Management Guideline. Implementing such periodic inspections and taking preventive
maintenance measures not only contributes to the stable and continuous use of the vehicle, but also
contributes to its long-term use.
Collection vehicles must be constantly kept in good condition to operate them stably and
continuously according to the collection plan. For this reason, regular and appropriate vehicle
inspection and maintenance is very important.
To maintain vehicles in good condition, it is desirable to apply the concept of preventive
maintenance and inspection that prevents faults occurring during operation, and that not simply takes
measures swiftly to rectify the faults that are detected as a result of inspection or occur during
collection operation. In developing countries, it has been observed that mechanized parts, especially
hydraulic and loading equipment, often become defective and result in the related vehicles to be out
of service for long periods due to the large amount of time required to purchase the necessary
replacement parts and make repairs.
In Japan, for general vehicles daily routine inspection is required by the Road Vehicles Act and also
implementation of regular inspection and maintenance are regulated. It is required to keep a record
book containing the details of the inspection and maintenance - including information on the date,
method, section inspected, result, executer, and contents of measures taken for the inspection result.
Waste collection vehicles need to be inspected and maintained based on the “Safety Management
Guidelines for Mechanical Garbage Trucks” (1987). These management guidelines specify the
implementation of annual inspection, monthly inspection, and regular voluntary inspection at the start
of operation. The outline of each inspection is provided in Table 4-4 and Table 4-5. Thus, proper
implementation of the voluntary periodic inspections will enable the vehicles to be used for longer
periods, as well as ensure the safety of workers and prevent accidents.
Table 4-4 Annual Inspection Items for Collection Vehicles

No. Inspection items
1 Motor, motor transmission device, running gear, controlling gear, and braking system
2 Rotating plate, push-in plate, compression board, and other loading equipment
Hydraulic pump, hydraulic motor, cylinder, hydraulic piping, hydraulic hose, safety valve, and
3
other hydraulic devices
4 Electric system
Emergency stop switch, emergency stop unit, interlock unit to prevent tailgate power dive, safety
5
rod, and other safety devices
6 Loading operation switch
7 Discharger
8 Tailgate, body, alarm unit, direction indicator, lighting system and gauge
9 Power unit for the waste collection vehicle that has a dedicated power unit for lifting a tailgate
10 Other accessories
Source: Ministry of Labor “Safety Management Guidelines for Mechanical Garbage Trucks” (1987)
Table 4-5 Monthly Inspection Items for Collection Vehicles

No. Inspection items
1 Controlling gear, braking system, and wheels
2 Loading unit and hydraulic device *
3 Safety device
4 Loading operation switch
5 Alarm unit
6 Power unit for the waste collection vehicle that has a dedicated power unit for lifting a tailgate
Device for automatically mounting a safety rod for the waste collection vehicle that has such a
7
device
*: Refer to following Figure 4-5 for the location of each equipment.
Source: Ministry of Labour “Safety Management Guidelines for Mechanical Garbage Trucks” (1987)
Hydraulic
油圧装置 equipment Hydraulic
油圧装置 equipment 積み込み装置
Loading equipment
Figure 4-5 Equipment of Waste Collection Vehicles

Table 4-6 Check List for Periodic Inspection of Waste Collection Vehicle - example 1
Span of
Inspection items
inspection
Before starting operation
Monthly
Inspection points
Yearly
Part
Items
Engine Noise, rattle, looseness, heat generation, oil leakage, etc. ✓ ✓ ✓

Power transmission Noise, rattle, looseness, heat generation, oil leakage, etc. ✓ ✓
Vehicle
Driving unit Noise, rattle, looseness, heat generation, oil leakage, etc. ✓ ✓ ✓
Steering unit Noise, rattle, looseness, heat generation, oil leakage, etc. ✓ ✓ ✓
Braking system Noise, rattle, looseness, heat generation, oil leakage, etc. ✓ ✓ ✓
Noise ✓ ✓
Hydraulic pump Oil leakage ✓ ✓
Loosening of mounting bolts ✓
Rod damage ✓
Hydraulic Cylinders Oil leak ✓ ✓
Presence of abnormalities in the mounting part ✓
Noise ✓ ✓
Hydraulic motor Oil leak ✓ ✓
Loosening of mounting bolts, sprockets, etc. ✓
Hydraulic system
Oil content in the tank ✓ ✓

Stains (color) ✓
Hydraulic oil
Clean the strainer in the tank ✓
Replace filter ✓
External damage due to contact, impact, etc. ✓ ✓
Rubber Hose Oil leakage, surface deterioration and cracking, etc. ✓ ✓
Loose tightening ✓
Oil leakage, loosening of tightening ✓ ✓
Hydraulic pipe fittings
Loose pipe clamps, contact with other parts, etc. ✓
Hydraulic pressure Confirmation of predetermined pressure ✓
Oil leak ✓ ✓
Hydraulic valve Loose mounting bolts ✓
Operation ✓
Check the operation of the rear switch. ✓
Switches for Loading
Electrical and control equipment
Damaged or loosely attached waterproof rubber cover ✓ ✓

Loose cam mounting bolt ✓ ✓
Loading Control Loose limit switch mounting bolt ✓ ✓
Loose relay timer ✓
Loose tailgate lock, limit switch, etc. ✓
Discharge Control Loose lift control limit switch ✓
Loose damper limit switch ✓
Wiring Contact damage, connector ground corrosion, etc. ✓
Rotary solenoid
Loose arm wire ✓
(Engine constant speed device)
✓ ✓ ✓
Safety devices and
Emergency stop switch Checking operation, looseness of switch attachment, etc.

Emergency stop device Check operation, damage, etc. ✓ ✓ ✓
functions
Garbage input device Checking operation ✓ ✓

prevention device Adjustment ✓ ✓
Interlock when tailgate is
Checking operation ✓ ✓ ✓
lowered
Source: The Waste Management Society of Japan “Waste Handbook” Ohmsha (1996)
Table 4-7 Check List for Periodic Inspection of Waste Collection Vehicle - example 2
Check for abnormalities and normal operation.
Safety bar ✓ ✓ ✓
Safety devices and functions
Confirmation of alarm buzzer.

Confirmation of loading cycle Confirmation of predetermined cycle time ✓
✓
time Confirmation of sealing ✓
Back buzzer Back buzzer emit an alarm sound when the vehicle is backing up ✓ ✓
Tailgate up, down
Tailgate emits an alarm sound when it is operating up or down ✓ ✓
Alarm buzzer in operation
Contact buzzer Proper operation ✓
Dump drop protection device Inspection check ✓ ✓
Tailgate lock Engagement condition ✓ ✓
Smooth and reliable switching of disconnection, and good feeling of
✓ ✓
Conduction control
operation
PTO and control Are there any abnormalities such as abnormal noise ✓ ✓ ✓
Oil leakage, looseness of mounting bolts ✓ ✓
Adjust the wire. ✓
Abnormal noise, runout, oil supply, etc. ✓ ✓
Drive shaft and UJ
Looseness of mounting bolt ✓ ✓
Operation of the loading plate ✓ ✓
Bending or cracking of plate links, etc. ✓
Rattling of the bearing, loosening of the pin stopper ✓
Loading operation
Tension of chain, abnormal noise, etc. ✓ ✓
Loading and discharging
Wear of the reverse rotation prevention pin. ✓

Can the reversing prevention pin be easily removed? ✓
Tailgate up/down operation ✓
Bending, cracking, looseness, etc., of cylinder mounting part * ✓
Bending or cracking of the tailgate lift stopper * ✓
Does the tailgate not rise when it is not in the normal position, such as
Tailgate open/close operation 　 ✓
when it is caught in debris?
Tailgate lock rattles in pin, adjust often. ✓
Tailgate lock.
Are the nuts on the U-bolts unloose and are they tightened evenly on 　 ✓
both sides?
✓
indicators
Direction indicators Confirmation of normal operation

Direction
Lighting devices Confirmation of normal operation ✓

Gauges Confirmation of normal operation ✓
Tailgate Bend, crack, rust ✓
Other equipment
Bodies Bending, cracking, rusting ✓

Subframes and bracing Looseness of tightening bolts to chassis ✓
Spare tire carriers Looseness of mounting nut, looseness of fixing ✓
Wastewater leak prevention Damage to the wastewater packing ✓
*: For loading and lifting cylinder car

Source: The Waste Management Society of Japan “Waste Handbook” Ohmsha (1996)
Transfer Station
A transfer station is useful for efficient waste collection when waste is to be collected from a
wide area or the distance to the treatment plant or final landfill site is far. In Japan, there are not
many transfer stations in operation because many municipalities have their own necessary facilities
and the targeted collection areas are not large.
At a transfer station, waste is transferred from the collection truck to a larger transport vehicle,
referred to as a secondary transport vehicle, with or without compression depending on the transfer
station. This allows the collection truck to speedily return to the waste collection area and thereby
improves the collection truck operation efficiency. A transfer station may have shredding equipment
and provide a function of a recycling facility, depending on the waste that is received.
A transfer station is a facility where waste is transferred from a small or a medium-size collection
vehicle to a large transport vehicle, either with or without compression of the waste, in order to allow
the collection truck to speedily return to its collection activities. The transfer station operation thereby
enhances the efficiency of waste collection and transport for urban areas where waste is to be collected
across wide areas. Figure 4-6 shows an example of a transfer station processing flow
(compactor/container type). In the compactor/container type, waste fed from collection vehicles into
the loading facility is compacted by a compressor and transferred into a large container. The container
is then mounted on a container vehicle for transport to the next destination, either treatment facility or
landfill site.
Waste Collection Vehicle Hopper
Hopper Stage
え
Discharge
Carrying in Weighing
Transfer Loading Carrying out

Supply
Arm-roll type container vehicle

Compressing with steel arm for loading and
Carrying in Weighing unloading containers
Combustible Compressor
（Waste Collection （ truck scale ） waste carried in
Vehicle）
Discharge （Receiving hopper）
Supply （Feeder equipment）
Compressing Transfer Loading Carrying out

（ Container transfer （ Container vehicle ）
equipment ）
Figure 4-6 Example of Process at Compactor/Container Type Transfer Station

Photo 4-22 Transfer Station in Kuala Lumpur, Malaysia
Figure 4-7 and Table 4-8 respectively show the structure and outline of the main facilities of a
transfer station. After the incoming waste is weighed, it is reduced in volume by compression and
crushing, etc. and then carried out.
Incoming
Weight measuring
Receiving
Crushing Facility
Storage
Recycling Facility
Compaction
Outgoing
Landfill site Incineration
Figure 4-7 Structure of Transfer Station Facility
Table 4-8 Main Facilities of a Transfer Station

Main facility Outline of the facility
This facility comprises a weighing machine for managing receiving and transporting
waste, entry/exit roads for collection/transport vehicles, a platform for unloading waste
Unloading/
in a storage pit/storage site, an unloading hopper for temporarily storing the incoming
loading facility
waste, and loading equipment for loading the waste that is stored in the incoming hopper
on to a compression facility.
Shredding facility This facility shreds combustible bulk waste that is received at the station.
In a compactor/container type transfer station, this facility is used for loading the waste
that is supplied on to a container by compressing it. The facility comprises a compactor
Compression and a hydraulic system. Other devices include a storage discharger that cuts out waste
facility into a fixed amount continuously and loads it in a large transport vehicle, and a packing
machine that compresses waste that was delivered to the hopper and packs it by strapping
or baling.
This facility processes recyclables as required to facilitate transportation and recycling.
The facility must be suitable for processing the targeted recyclables. Recyclables include
iron, aluminum, refillable bottles, glass cullet, plastic bottles, paper, fabric, and plastics.
Recycling facility The equipment units of the facility include metal press, plastic bottle compressing and
packaging machine, plastic container compressing and packaging machine, plastic
material compressing and compacting machine, paper binding machine, bottle shredder,
and styrene foam compactor.
In a compactor/container type transfer station, this facility is used for transporting
containers between a compactor connection position and a position for
loading/unloading containers on to a container vehicle. This facility comprises
Transport facility standalone equipment or a combination of a trolley, a conveyer, and so on. A container
storage facility temporarily stores containers inside the facility. Containers and arm-roll
type container transport vehicles equipped with steel arm device to load and unload
containers on to the vehicle bed, are used in this facility.
Dust collection/ This facility is used to maintain the integrity of the surrounding environment and the
deodorization work environment of the facility. It comprises hoods, ducts, a dust collector, ventilators,
facility and a deodorizer.
Water supply This facility is used to supply cooling water and washing water, spray water for dust
facility prevention, and water for extinguishing fires.
This facility is available for treating wastewater or for transporting it with a vacuum
vehicle when various types of water are assumed to be generated. The handling varies
Wastewater
depending on the plan. If the condition allows, such as that the peripheral sewage
treatment facility
treatment facility has an extra capacity, collected wastewater may be discharged to
sewage after being diluted and stirred.
This facility receives power required for all these facilities and distributes power to the
Electrical facility
required sections (motor, and so on) of each equipment.
Instrumentation
The instrumentation facility is necessary for operation and control of the facilities.
facility
Source: Created based on Japan Waste Management Association “Planning and Design Guidelines for Waste Treatment
Facility Maintenance, 2017 Revised Version” (2017)
Waste Collection and Transport Technical System necessary for Efficient Collection
At the waste collection and transport stage of the waste management many persons are engaged
in collection and transport and maintenance of vehicles and facilities and accordingly a large
amount of labor costs is incurred. Therefore, implementation of efficient collection is extremely
important not only to ensure a good collection service, but also in order to reduce the associated
costs.
To achieve efficient waste collection and transport, it is necessary to consider the use of collection
stations and transfer stations, by examining the time and cost associated with waste collection and
transport according to the characteristics and actual conditions of the region.
In order to provide efficient waste collection and transport it is necessary to exert efforts in preparing
collection and transport plans that carefully consider the current conditions of the region and any
advantages of using transfer stations. In particular, for developing countries, the plans should carefully
determine suitable vehicle specifications for large-size trucks and trailers considering the local traffic
conditions (traffic congestion, accidents, etc.) and road conditions (unpaved roads, sloping roads, etc.).
In addition to comparing transport times and costs, it is important to develop and implement collection
and transport plans that take safety into consideration.
Table 4-9 Considerations for Achieving Efficient Waste Collection and Transport
Item Description
Use waste collection stations as appropriate considering the
Use of collection stations characteristics and actual conditions of the region (population,
land use, location, etc.).
Develop a collection plan and a detailed operation plan for
Preparation and implementation
collection (collection route, collection schedule, etc.) to gain the
of a detail collection plan
residents’ cooperation and increase collection efficiency
In cases when the target collection area is widespread or when
large vehicles can be easily utilized, the introduction of transfer
stations should be considered.
When checking cost effectiveness, compare the cost of
collection and transport of the waste to the treatment/disposal
facility with and without a transfer station, as shown in Figure
4-8.
If the distance of collection and transport from the collection
Use of a transfer station area to the treatment/disposal facility is far, although the
construction costs for introducing a transfer station are required
at the initial stage, over the long term the costs of collection and
transport may be reduced.
However, with regard to the use of large-size transport vehicles
from transfer stations to treatment/disposal facility, it is
necessary to avoid subjecting roads and bridges to excessive
loads, etc. Appropriate vehicles should be selected based on
local traffic and road conditions.
Without Transfer Station

(Direct Transport)
Collection
Collection Area 3●
Area 1● Treatment/
Collection Disposal
Area 4● Facility
Collection
Area 2●
Total Collection Cost (case ①)
Costs Contents
Cost 1 Collection from Collection Area 1 to Transfer Station

Total Collection Cost Collection from Collection Areas 1~4 to

(=Cost 1+Cost 2+Cost 3+Cost 4) Treatment/disposal facility
With Transfer Station
Collection Collection Treatment/

Area 3●
Area 1● Disposal
Facility
Collection
Collection
Area 4●
Area 2●Transfer
Station
Total Collection Cost (case ②)
Costs Contents
Cost 5 Collection from Transfer Station to Treatment/disposal facility

Cost for transfer station (Construction cost, operation and
Cost 6
maintenance cost)
Total Collection Cost Collection from Collection Areas 1~4 to Transfer Station
(=Cost 1+Cost 2+Cost 3+ Collection from Transfer Station to Treatment/disposal facility
Cost 4+Cost 5+Cost 6) Cost for transfer station
Distance where direct Distance where transport through

transport is advantageous transfer station is advantageous
Total collection
cost (case ①)
Total collection
Without Transfer cost (case ②)
Station
Cost
(Direct Transport)
With Transfer
Station
(Cost for transfer
station (Construction
cost, operation and
maintenance cost))
Distance to treatment/disposal facility
Figure 4-8 Comparison between with and without Transfer Station Options
Colum: Formulation of Efficient Collection and Transport Plan

Establishing efficient waste collection and transport routes will result in increased work
efficiency, reduced costs, and reduced accident rates. To improve the efficiency of collection routes,
the routes need to be studied by collection workers and staff members responsible to formulate
routes based on actual data. A summary is presented here of the elements necessary to study efficient
refuse collection based on the example of Yokohama City.
Table 4-10 Benefits from Formulating an Efficient Collection Plan

Benefit Contents
Work efficiency improvement Analyzing traveling routes, minimizing travel distance
Decrease in cost Minimizing costs of personnel, vehicles, fuel consumption, etc.
Identify dangerous areas in advance so that collection crews can
Reduction of accident rate
take sufficient care when working in those areas
Work environment improvement Set clear working hours and reduce staff burden
Data Collection
The data needed for route formulation are shown in Table 4-11. Data on collection areas, waste
amounts, and working hours are used to establish routes.
Table 4-11 Examples of Data Collection

Items Data to be collected Example
1. Collect data from citizens on collection sites
Station area: 2.03 m2
Waste storage method: Net is used
・ Number of households Date to start using: 30th March 2022 etc.
Collection ・ Estimated discharge 2. Calculate the number of households per collection site
amount for each Items Area A Area B
sites collection site Number of households 128,328 117,957
・ Coordinates on the map Number of collection site 6,473 sites 4,252 sites
Household/collection site 19.9 27.6
Time required to collect at
each location Short Long
・ Collection results for each IC cards are installed in each collection vehicle to control the
vehicle/each trip amount and time of waste collection. (See Table 4-12)
Waste ・ Seasonal changes in the By recording detailed work conditions, it will be easier to
amount waste amount predict the waste amount and working hours when formulating
・ Facility treatment amount routes.
results
15 seconds ｘseconds y seconds
Get off the Load Confirmation*

vehicle Calculated as 1 Calculated as 1 seal
household = 1 bag = 15 seconds
Working ・ Breakdown of each =
work activity 10 seconds 10 seconds 18 seconds
hours
Get on the
Tidying up vehicle Move
Tidying up nets, etc. 0.1km (between collection sites
÷ 20km/h (speed per hour)
*: Confirmation is the process of placing a sticker on the discharged waste if it is found not to be eligible for
collection as per the collection schedule and to notify the correct discharge date based on the waste category
Table 4-12 Examples of Data Records Related to Waste Collection

Vehicle 1st 2nd 3rd 4th Waste Work Work
No. Mileage
Size Trip Trip Trip Trip Amount Start End
9:36 11:46 14:20
1 Medium 2.25 t 2.28 t 2.02 t 6.55 t 8:15 15:05 32 km
A area A area A area
9:18 10:23 11:42 13:40
2 Small 1.62 t 1.47 t 1.78 t 1.44 4.87 t 8:20 14:35 46 km
B area B area B area B area
…
Total 205.20 t 1,529km
Preparation of Collection Maps

The procedure shown in Table 4-13 is used to divide the district into blocks, which are further
subdivided according to the number of collection vehicles. In each of these areas, waste discharge
points are plotted on a map and collection routes are developed.
Table 4-13 Process of Creating Collection Maps
Ward
No. Process
In order to designate the collection days,
1 consider the waste amount generated and divide 【Block A】【Block B】
it into blocks with roughly equal waste amounts
Collection Collection
Divide each block further by the number of ・Monday ・Tuesday
vehicles allocated. The size of the area varies ・Friday ・Saturday
2 depending on the topography, road conditions,
distribution of housing, and the capacity of the
fleet.
Based on the divided area, create a route
3 considering the collection amount and work Figure 4-9 Conceptual Figure of
time Dividing Blocks
3rd Collection route
2nd Collection route
*: 〇number is waste collection site

Figure 4-10 Example of Actual Collection Map for Totsuka Ward in Yokohama City
Source: Yokohama City “JICA Training Materials Formulation of Efficient Collection Plan” (2019)
2 Intermediate Treatment
Transition of the Intermediate Treatment Technologies
For Japan, which has a small land area, effective use of the limited land area has been an
extremely important issue. Since deterioration of the living environment caused by waste has
become a serious problem, incineration treatment has been widely adopted from the hygienic
viewpoint.
In addition, since incineration is a well-versed waste treatment method in terms of sanitary
treatment and amount reduction, waste treatment systems based on incineration treatment are being
built in many local communities.
At the same time, due to the realization of a sound material-cycle and the pressure on final
disposal sites, intermediate treatment technologies have been developed and reformed to suit the
types of waste and the Japanese technologies are playing a part for setting targets and taking
measures to solve the issues associated with recycling and amount reduction.
Since Japan has a small land and the usable land area is limited, reduction of waste amount is
extremely important. Therefore, incineration has historically been considered an effective treatment
method and was mandated under the amendment of the Waste Cleaning Act, in 1930. However, even
with this mandate the burning of waste in open fields and the dumping of waste into rivers continued
to be frequent occurrences, and in reality incineration technologies were not introduced as centralized
intermediate treatment.
From the period of the 1960s’, the treatment of the increased waste amount that was associated with
the rapid economic growth, the improvement of the living environment, and enhancement of public
sanitation became serious issues. In order to resolve these issues and from the perspective that
incineration of waste is very effective in sanitary treatment of waste and reduction of the waste amount,
the development of intermediate treatment facilities using incineration technology was promoted.
Under this development policy, the introduction of a waste incineration facility was promoted in all
urban areas through the provision of technical and financial support based on the laws and plans
established by the central government, and promising results were achieved for sanitary treatment and
amount reduction of waste. At the same time, in response to the pollution issues caused by waste
incineration, the central government established the Facility Technical Standards Including Exhaust
Gas Treatment (1971) for proper waste treatment by intermediate treatment facilities. Since then, the
incineration technology has significantly progressed to become a highly reliable waste treatment
method, through the process of responding to new and updated standards, regulations, and structural
guidelines (1979) and performance guidelines (1998) which ensured the necessary countermeasures
against dust, dioxins, organic pollutant, and mercury.
In conjunction with the progress of the incineration technology, new technologies including RDF,
gasification melting, and ash melting were developed and introduced. Since then the development and
introduction of recycling technologies including organic waste recycling and the technology for
generating power by using waste for thermal recovery (also referred to as thermal recycling) have been
actively promoted in order to bolster the national policy of establishing a sound material-cycle society.
Photo 4-23 Osaki Incineration Plant - First Photo 4-24 Fukagawa Incineration Plant –
Incineration Plant in Tokyo Technology of the Time did not Provide Adequate
(Completed in 1924) Exhaust Gas Treatment (Completed in 1933)
Photo 4-25 Waste Incineration Plant Photo 4-26 Koto Incineration Plant
(Completed in 1958) (Completed in 1974)
Photo 4-27 Kita Incineration Plant Photo 4-28 Shin-Koto Incineration Plant
(Completed in 1988) (Completed in 1998)
Source: Tokyo Metropolitan Archives (Photo 4-23, Photo 4-24)
Source: Tokyo Metropolitan Government Bureau of Environment (Photo 4-25, Photo 4-26, Photo 4-27, Photo 4-28)
Column: Waste Incineration Facility in Shibuya City, Tokyo

Central Government Agencies are located in
the 23 special cities of Tokyo, the capital of
Japan. These special cities are the center of
politics and the economy and have about ten
million residents (about 15,000 persons/km2).
Within these 23 special cities, commercial
and residential zones coexist, generating a large
amount of waste. Under these conditions, a
Source: Ministry of the Environment “Japanese
Waste Treatment and Recycling Technology” (2013) waste incineration facility (treatment capacity:
Photo 4-29 Shibuya Incineration Plant 200 ton/day) was constructed in July 2001 at the
center of a highly dense populated city area near Shibuya railway station.
Even for Tokyo, under the principle of treating the waste within the special city it is generated
in, it was necessary to construct this facility in such an urban district. In Tokyo, waste facilities are
constructed and operated even in heavily populated urban areas by obtaining the understanding of
the residents through discussions with them from the planning stage and by developing a facility
that sufficiently satisfies the environmental regulations such as exhaust gas.
Source: Ministry of the Environment “Japanese Waste Treatment and Recycling Technology” (2013)
Photo 4-30 Outer View of Incineration Plant Photo 4-31 Green Exterior Walls
Photo 4-32 Facility Entrance for Waste Photo 4-33 Green Buffer zone between
Collection Vehicles Incinerator Plant and Residential Area
Incineration Technologies
(1) Overview and Types of Technologies Associated with Incineration

An incineration facility is a special facility comprising various facilities including an incinerator
for treating waste in a sanitary manner by burning the waste as the main unit, a facility for receiving
waste, a facility for properly treating exhaust gas after burning, and a facility for collecting and
transporting ashes. Therefore, incineration facilities are required to satisfy many standards
including the exhaust gas standards and the wastewater quality standards.
In Japan, the stoker type technology is most widely applied and when an incineration facility is
installed in a municipality, the type to be installed is determined through comparison and
examination of each type.
Figure 4-11 shows an example of the structure of an intermediate treatment facility that utilizes
stoker-type incineration technology. Waste that is unloaded into a waste pit is transferred to the
loading/unloading facility, stably placed into an incinerator, and burnt. Exhaust gas that is generated
as a result of burning waste is discharged from a stack after harmful substances such as dioxins are
removed by treatment facilities such as a dust collector and a catalytic reaction. Ashes generated by
combustion are collected and transported after being sorted into incinerated ash and fly ash, and a
facility for treating wastewater is also provided.
Residual Heat
Utilization
Plant Water Discharge
(1) Platform (9) Incinerator (17) Steam condensate Tank

(2) Waste pit (10) Ash extruder (18) Induced draft fan (IDF)
(3) Waste crane (11) Boiler (19) Steam type gas re-heater
(4) Forced draft fan (FDF) (12) Cooling tower (20) Catalytic reaction tower
(21) Wastewater treatment
(5) Secondary positive blower (13) Fly ash treatment device
facility
(6) Ash pit (14) Filter type dust collector (22) Steam Condensers
(7) Ash crane (15) Steam receiver (23) Stack
(8) Induced fan at ash pit (16) Turbine generator
Source: JICA “Guideline for Promoting Waste to Energy Facility Projects” (2017)
Figure 4-11 Example of Waste Incineration Plant with a Stoker Furnace
Photo 4-34 (1) Platform Photo 4-35 (1) Platform (Waste Pit)
Photo 4-36 (2) Inside the Waste Pit Photo4-37 (2) Inside the Waste Pit
Photo 4-38 (3) Waste Crane Photo 4-39 (9) Waste Incineration inside
Stoker Furnace
*1: Numbers (1), (2), (3) and (9) match the respective number in Figure 4-11
*2: The Photos were taken in Suginami Incineration Plant

Photo 4-40 Funabashi North Incineration Plant

Photo 4-41 Shin-Koto Incineration Plant
The structures and outline of the main facilities of waste incineration facilities are shown in
Figure 4-12 and Table 4-14.
Electric Equipment
Truck scale Equipment
Water Supply Facility
Wastewater Treatment Facility
Waste
Waste Receiving
Facility
Truck scale
Platform
Waste Pit Pre-treatment Device
Waste Crane
Incinerator
Ventilation
Exhaust
Hopper Facility
Waste Supply Device Gas
Incineration Device Induced Draft Fan
Incineration Plant Air Preheater
Incineration Assistance Device Blow Duct
Circular Blow Device
Ash Extruder Facility

Incinerated Gas Residual
Cooling Facility Heat
Dust Extruder Device
Ash Cooling Device Utilization
Ash Extruding Device Boiler and Condensation Facility
Fly ash Treatment Device Facility
Generation Device
Ash Bank or Ash Pit, Ash Crane Heat (Warm water
and Cool water)
Incinerator ash
Exhaust Gas Supply Device

and fly ash
Treatment
Ash Facility
Outgoing
Dust Collector
Removal Device for
Incineration Residue Hazardous gas at HC tower
Melting Facility Removal Device for dioxins
Ventilation Facility
Slag removal
Induced Fan Device
Exhaust Gas Duct
Stack
Exhaust Gas
Figure 4-12 Structure of Facility of Waste Incineration Plant
Table 4-14 Outline of Major Waste Incineration Facilities

Major facilities Facility outline
This facility comprises a weighing machine for weighing the amount of waste to be
unloaded, entry/exit roads, a platform for a waste collection vehicle to unload to a waste
pit, a dumping door for controlling access between a platform and a waste pit, a bunker
Unloading/loading
or a waste pit for adjusting the waste amount to be collected and amount to be incinerated
facility
by storing the waste temporarily, and a crane for delivering the waste to a hopper.
Equipment such as shredding and bag ripping may also be available for incineration pre-
treatment depending on the quality of the waste and the type of the incinerator.
This facility comprises a waste hopper for receiving the waste to be delivered to a
Combustion furnace, a waste feeding facility for smoothly feeding the waste to a furnace, combustion
facility equipment for incinerating waste, an incinerator main unit comprising refractory lining
and so on to enable smooth combustion.
This facility is used for cooling a high-temperature combustion gas that is generated by
Combustion gas
burning waste. Available types are a waste heat boiler type and a type designed by
cooling facility
combining a boiler and a water sprayer.
Exhaust gas This facility comprises a dust collector and dust removal equipment for removing dust
treatment facility and harmful gases such as hydrogen chloride (HCl) and dioxin that are contained in the
exhaust gas that is generated as a result of combustion.
When a boiler is installed, hot water can be made available by using a wastewater
Waste heat
utilization facility (power generation facility, hot water equipment, heating and cooling
utilization facility
system) and a hot water generator by using waste heat of combustion gas.
This facility comprises a pressure fan and air duct (airway) for sending air necessary for
burning waste to the combustion equipment, an air preheater for heating air for
Ventilation facility combustion, an induced draft fan for discharging exhaust gas that was generated by
burning, an exhaust gas duct (flue) for sending exhaust gas from a combustion facility
to a stack, and a stack for releasing exhaust gas to the atmosphere.
This facility comprises a dust transport and storage facility for properly transferring the
dust discharged from the exhaust gas treatment facility and gas cooling facility, an ash
Ash discharge
cooling facility for extinguishing and cooling the incinerated ash that has been generated
facility
by completely incinerating waste by the combustion facility, as well as an ash conveyor
for transferring falling ash, and an ash bunker or an ash pit for temporarily storing ash.
Incineration residue is placed in a melting furnace after pre-treatment such as drying,
Incineration screening, and magnetic separation as required and is turned into molten material in
residue melting liquid state. Inorganic substances that make the most part of the incineration residue turn
facility into a molten slag material. Some of the heavy metals enter in the matrix, preventing
elution and at the same time, reducing the amount to one third or a half.
This facility supplies water from a water supply source within the facility premises to
Water supply
each device and it has plant water supply pumps and equipment cooling water pumps.
facility
This also includes water supply for construction facilities.
This facility treats wastewater that is discharged from the waste incineration facility and
Wastewater
consists of a combination of various types of facilities to be able to handle recycling and
treatment facility
meet the conditions of the discharge destination.
This facility receives power required for all these facilities and distributes it to the
Electrical facility required sections (motor, and so on) of each equipment. An instrumentation control
facility is necessary for operating and controlling the facility.
Common facilities such as various types of water supply pumps, hydraulic pumps, and
Others compressors are installed as well as a vehicle washer and deodorizing equipment as
required.
Incineration (Stoker Furnace)

Exhaust gas
Hopper
Secondary air
Supply pusher
Hydraulic
Combustion stoker cylinder
Conceptual
Figure
Starting burner
Combustion air
inlet
Warm ash conveyor
Stoker Furnace Exhaust Gas Cooling and Heat Collection
Exhaust Gas Rapid Cooling Facility

Secondary Incineration
Exhaust Gas Treatment Facility
Air
Chamber
facility
Flow
Incineration Chamber
Waste
Dry Inciner Burn-out

ation
Combustion air Incineration Residue
A stoker furnace is a thermal treatment facility that dries waste with hot air and treats
waste by using oxygen in the air inside of the furnace at a temperature higher than the
combustible material ignition temperature. Elements that make up the organic matters in
Principle the waste such as C, H, and O are oxidized by thermal treatment and are stabilized by
transforming them to low molecular chemical compounds such as CO2 and H2O.
The basic principle of thermal treatment by a stoker furnace is the same as that of
incineration furnaces such as fluidized bed furnace and rotary kiln.
In this thermal treatment system, waste is placed on a metal fire grate for efficient
combustion in large amounts and is dried and burnt by the combustion air that is supplied
from the bottom of the grate by a fan.
Features By actuating a fire grate mechanically, the waste is mechanically supplied and
transferred and the incineration residue is discharged. Urban waste is treated over a wide
range of amounts from a daily incineration capacity of several tons to 1,000 tons per
furnace.
Source: Central Environment Council “Outline of Incineration Plant and Melting Facility” (2013)
Incineration (Fluidized Bed Furnace)
Inside fluidized
Free bed furnace
Burner board
section Dust collector
Secondary Combustion
Waste Air Nozzles
Fluid
Conceptual medium
Fluidized
Figure bed Fluid medium
diffuser
board circulator
Non-combustible
discharge pipe Flowing air
Non-combustible
discharge device
Vibratory sieve
Non-combustible
Fluidized Bed Furnace

Exhaust Gas Cooling and Heat Collection

Air
Chamber
facility
Flow
Incineration Chamber
Fluidized Bed
Combustion air Incineration Residue
In this thermal treatment system, waste is delivered in a fluidized bed comprising inactive
particles such as silica sand, which is maintained at a high temperature and is completely
burnt in a short time with oxygen in the air that is supplied from the bottom of the furnace.
Principle
Inorganic materials including metals and silica sand are discharged from the bottom of
the furnace and incineration residue with low apparent specific gravity is captured by a
dust collector in the form of fly ash.
Since this system does not use a metal stoker, unlike a stoker furnace that is limited in
heat resistance, the system can treat waste of high heat value and can handle a wide range
of physical properties. It can treat low heat waste such as dewatered sludge, waste plastic,
Features viscous substances such as oil mud, and substances of high heat values.
Inorganic substances are discharged in a dry state. Since most of the combustion residue
becomes fly ash, a vast amount of fly ash is discharged in the fluidized bed furnace
compared to stoker furnace and rotary kiln furnace.
Incineration (Rotary Kiln)
Exhaust gas
Primary air Secondary air
Rotary Kiln Secondary
combustion
furnace
Conceptual Supply
device
Figure
Starting
burner Drive post-
device combustion
stoker
Ash conveyor
Ash
Rotary Kiln Exhaust Gas Cooling and Heat Collection

Air
Chamber
facility
Flow
Waste Rotary Kiln
Combustion air Incineration Combustion air

(For parallel flow system) Residue （For counterblow type）
Waste is delivered to a rotary kiln that is installed with a gentle descent towards the
discharge side. The kiln is lined with a refractory material and maintained at a high
temperature. Waste is stirred and transferred by rotation of the kiln. In the case of a
Principle parallel flow system, combustion is completed by the oxygen in the air that is supplied
from the waste input side and in the case of a counter flow type, combustion is completed
by the oxygen in the combustion air that is supplied from the incineration residue
discharge side.
Since this system does not use a metal stoker, unlike a stoker furnace that is limited in
heat resistance, it can treat waste of high heat value and can handle a wide range of
physical properties. It can treat low heat waste such as dewatered sludge, waste plastic,
Features viscous substances such as oil mud, and substances of high heat values.
To handle a variety of waste types, a kiln stoker designed by combining a rotary kiln
stoker and stoker furnace in parallel and a kiln stoker designed by using a stoker furnace
for after-burning are both available.
Ash Melting
Exhaust Ash inlet

gas duct
Conceptual
Figure
Electrode
DC Ash
power Salts
supply Salts outlet
Slug
Slag
outlet Metal
outlet
Electrode
Incineration
Exhaust Gas Treatment
Air
Residue
Exhaust Gas Rapid
Melting Furnace
Cooling Facility
Facility
Flow Fuel or
Electricity
Melting Slag Melting Fly Ash

Melting Metal
If incineration residue is heated to a temperature above the inorganic substance melting

temperature by using fuel or electricity and then is cooled rapidly, unburned residue is
Principle mineralized and at the same time, silicon components in the inorganic substances bring
heavy metals into the crystal structure and as a result, stabilized molten slag can be
obtained. This melting furnace performs this process.
Incineration residue and an incombustible portion can be separated into metals with iron
as the main component and molten slag by melting and then cooling them. Metals can be
recycled as metal resources and molten slag can be recycled as construction materials
through some other processing. Depending on the cooling method applied to molten slag,
Features
the slag forms a different crystal structure such as water granulated slag formed by rapidly
cooling with water, air cooled slag formed by naturally cooling in a container, and cold
removal slag formed by cooling under a controlled temperature in a container. These types
of slags can be used for different applications due to the differences of crystal structures.
Gasification Furnace
Producer
gas
Fluidized bed
section
Conceptual 500～600℃
Figure
Secondary
combustion chamber
Combustion
Air air
Fluidized bed Rotary melting
furnace furnace
Valuable molten slag
metals （ Recycle ）
（Recycle）
Exhaust Gas Treatment
Waste
Air
Gasification Furnace
Exhaust Gas Rapid

Cooling Facility
Facility
Subsidiary Material
Flow (Coke, lime)
Melting
Temperature
Combustion air 1,500～1,800℃
Thermal decomposition pyrolysis Melting Fly Ash

residue (Slag, Metal, etc. )
This treatment system resolves the waste that was roughly shredded in the previous
treatment facility into char of high carbon content and volatile pyrolysis gas by applying
Principle
a temperature ranging from about 450℃ to 600℃ under oxygen-free atmosphere.
Ash may be melted by burning at high temperature by supplying air to the pyrolysis gas.
Since waste is gasified at a high temperature, the amounts of dioxins that are generated
Features are low. As a whole, the amount of exhaust gas is low due to the low excess air
combustion.
(2) Advantages and Disadvantages of Technologies Associated with Incineration

Incineration and gasification melting technologies are extremely effective for the sanitary
treatment and amount reduction of waste. In addition, after having overcome various issues, Japan
is now in possession of well-developed incineration technologies with performance records
covering a long period of time.
On the other hand, facilities using technologies such as incineration require both technical and
financial attention. Facility improvements require substantial cost and at the same time, the
facility’s operation and maintenance management requires securement of higher expenses and more
advanced management than those of disposal sites.
In Japan, there are many waste treatment facility construction companies with a rich experience
of established performances. There are also many private operators that are well qualified to manage
the operation and maintenance of incineration facilities. Therefore, incineration technologies are
being adopted by many municipalities in Japan for intermediate treatment of waste. In considering
introduction of incineration, a detailed examination is conducted covering aspects of viability,
necessity, and sustainability of incineration technologies, and considering the advantages and
disadvantages of the types of incineration technologies, based on essential installation
preconditions.
1) Incineration Technology
The following preconditions need to be satisfied for introduction of incineration technology:
Installation preconditions for incineration facilities:

 A fee collection system such as a tipping fee system has been established to ensure regular
income. It is extremely difficult to fund the cost for the entire operation and maintenance
management with only the revenue from power generation.
 It is possible to secure continuous and stable financial resources, including income from
tipping fees, in order to cover the expected large costs that will be incurred in the
operation management and regular maintenance of the facility.
 It is possible to secure the necessary engineers and provide training for them on operation
management in order to ensure that they will possess the advanced technological skill that
is required for the facility operation management.
 A site planned for the construction has either been already secured or it is certain that a
site for construction may be secured on public land or the like.
 It is possible to obtain the understanding of residents living in the vicinity of the
construction site on the facility development.
Table 4-15 shows the advantages and disadvantages of introducing waste incineration. In Japan,
the stoker system is widely used due to its stable combustion. When considering the introduction
of an incineration facility, it is necessary to understand the characteristics of each incineration
method and compare the advantages and disadvantages based on past performance records.
Table 4-15 Advantages and Disadvantages of Incineration Technologies

Technology Advantages Effects
 Waste can be treated sanitarily by  Sound hygienic environment can be
burning at a high temperature maintained by applying sanitary
(mineralization, sterilization, and treatment, thereby ensuring that the
stabilization). occurrence of infectious diseases can
 The amount of waste can be reduced. be controlled.
 Power can be supplied by installing a  Since the amount of waste is reduced
power generation facility. to one tenth, the amount at the final
disposal is reduced dramatically,
thereby reducing the strain at the
Incineration disposal site.
 The facility can contribute to the
region as a power generation facility.
Disadvantages Issues
 The operation and maintenance  Secure funds, continuously and stably
management are costly in comparison to cover the high operation and
to landfill. maintenance costs.
 Advanced technical skills are required  Obtaining the technical skills
for operation and maintenance necessary for the facility operation
management of the facility. and maintenance management.
2) Gasification Melting Technology

The preconditions for installing the gasification melting technology are almost the same as for
the incineration technology. Gasification melting has excellent heat recovery, and effective
utilization of slag, but its operation is more complicated than that of incineration.
Table 4-16 Comparison between the Incineration and Gasification Melting Technologies
Technology Features
 Has performance records over a long period of time and has developed technically.
Incineration
 Can be more easily operated than gasification melting.
Gasification  Surpasses in thermal recovery as this technology treats waste at high temperature.
melting  Slag can be used effectively, and further reduce waste disposed in landfill sites.
(3) Other Uses of Incineration Technology

In Japan, in order to effectively utilize the energy generated by waste incineration treatment,
many incineration facilities utilize residual heat and generate power. Waste heat is recovered and
distributed to surrounding local communities as well as within the facility as a heat source.
Regarding incineration power generation, the improvement in power generation efficiency brought
about by technological progress has encouraged the promotion of power generation facilities and
the utilization of the generated power.
1) Use of Waste Heat

The thermal energy that is generated by combustion in an incineration facility is used for
heating, and hot water supply within the facility in the forms of air, steam, and hot water. The
energy is stored and distributed to the local residents as an energy source for hot water for
swimming pools in recreational centers, social welfare facilities, and community centers of the
region, in addition to heating inside the incineration facility.
Electricity
Steam Turbine Electricity
Steam Power
Generator
Steam Pool
Boiler
Illumination
Steam condensate
Heat
Warm Water
Supply
Heat Exchanger Warm
Water Floor
Platform Heating
Air-
Circulation of conditioning
Incineration Warm Water
Chamber
Waste Pit
Figure 4-13 Schematic Diagram Showing Residual Heat Utilization
2) Incineration Power Generation

Steam is created by the waste heat that is generated during the incineration of waste. The steam
is then utilized to turn a turbine, a device that converts thermal energy into kinetic energy and
uses it as power to generate electricity. This is the process referred to here as incineration power
generation. When considering the introduction of incineration power generation and developing
the facility as a waste treatment plant with an additional function of electric power generation,
various social, technical, and financial aspects need to be examined. These include understanding
the development status of the power transmission line for connecting the generated power to the
electricity grid and power selling unit prices, amongst others.
Photo 4-42 Monitor of Suginami Photo 4-43 Steam Turbine in Suginami

Incineration Plant Showing Amounts of Incineration Plant
Power Generation and Sold Power
As a reference, Table 4-17 shows the pre-checklist for deciding on introduction of waste incineration
power generation facilities indicated in the Guideline for Promoting Waste to Energy Facility Projects.
The items on this list are important for gauging the requirements of the region before considering the
introduction of waste incineration facilities with power generation facilities (i.e. waste to energy
facilities).
Table 4-17for Pre-Checklist

Pre-Checklist Feasibility Study offor Feasibility
Waste StudyPlant
Power Generation of Waste Power Generation Plant (WtE)
Classification Importance Item Content
The target city population is 100,000 or more.(Or plant capacity is 70
Most important (1) Target city population
ton/day or more).
There are high social needs, such as “The remaining capacity of final
Inportant (2) Social needs
disposal sites is limited.”, “Sanitary waste treatment is highly required.”
1) Social Development status of social
conditions Administrative services of energy, waterworks and sewerage works are
Recommended (3) infrastructure pertaining to
provided in the target city without problems.
environmental sanitation
Laws with regards to pollution prevention and environmental impact
Integration of environmental
Recommended (4) assessment (environmental laws etc.) have been developed and enacted in
and social considerations
target countries and target areas.
Cooperation of residents in Cooperation of the residents concerning the sorting of wastes can be
2) Most important (1)
waste sorting obtained. (Delivery of wastes not suitable for WtE can be controlled.)
Understanding
of residents Understanding of residents
Most important (2) Understanding of the residents about WtE has been obtained.
about WtE
Development of laws, In addition to laws with regards to solid waste management, enforcement
Most important (1)
enforcement orders and rules orders and rules have been developed.
There is an administrative organization in charge of the project for
3) Institutional Stability of administrative construction and operation of WtE and the organization is stable. Also, there
Important (2)
aspect organization is a personnel management system enabling long-term employment (for 3
years or longer) of the core staff.
Important (3) Adequacy of construction site Construction site in which WtE can be built is available.
Positioning of WtE in upper WtE has its position in the upper level plans (comprehensive plan, regional
Most important (1)
level plan development strategy, etc.).
4) Governance Stance of the head of local
Most important (2) The head of local government is positive towards WtE.
capability of government
the government The government is able to leverage committees comprised of external experts
Performance capability of the
Important (3) and external specialist organizations, such as consulting firms, to perform the
government
project appropriately.
Technical standards and By energy department and electric power company, technical standards and
Important (4) operation pertaining to selling operation pertaining to selling electricity, and selling price of electricity are
electricity set forth.
Project cost (construction cost and operating cost) of WtE can be secured.
Securing of financial The government is prepared to bear the cost such as tipping fee (fee for
Most important (1)
resources outsourcing disposal) and reliable investors are expected to participate in the
project.
5) Financial It is possible to set the tipping fee at a stable price over a long period by
Important (2) Tipping fee
aspect contract.
It is reasonable to assume selling price and the amount of electricity and
Important (3) Revenue by selling electricity
recyclable waste.
Project schemes (DB, DBO, BTO, etc.) are being discussed among
Recommended (4) Project scheme
stakeholders.
Major project risks are confirmed and the difference of responsibility
Recommended (5) Project risks
division points according to project schemes are understood.
Collecting basic data Basic data and information concerning waste (amount and composition of
Most important (1)
concerning waste waste, waste treatment process etc.) have been clalified.
Technical capacity of Reliable manufacturers (of stoker incinerators) are expected to participate in
Important (2)
manufacturers the project.
Proper disposal of Proper disposal of incineration residue (incineration ash) is possible. (For
5) Technical Important (3) incineration residue example, measures for preventing the outflow of leachate have been taken at
aspect (incineration ash) the final disposal site.)
Environmental monitoring Laboratories for analysis of exhaust gas, wastewater, noise, vibration, odor,
Recommended (4)
system etc. exist and enable perform appropriate monitoring.
Track record of similar Similar facilities, such as thermal power plants, exist and are managed
Recommended (5)
facilities appropriately.
It is possible to secure engineers (personnel with skills equivalent to
Recommended (6) Securing of engineers
technical high school graduates).
Importance of evaluation indicators
Most important: It is considered extremely difficult to introduce WtE if this criterion is not fulfilled.
Important: The criterion should be fulfilled for and is expected to be fulfilled if assistance is provided.
Recommended: This criterion should desirably be fulfilled.
Source: JICA “Guideline for Promoting Waste to Energy (WtE) Facility Projects” (2017)
RDF/RPF Conversion Technology
(1) Overview of the Technology Associated with RDF/RPF Conversion

RDF (Refuse Derived Fuel) / RPF (Refuse derived Paper and plastics densified Fuel) is a solid
fuel that can be obtained by forming combustibles into cylinders through shredding or sorting.
RDF/RPF conversion ensures not only the proper treatment of waste, but also provides a fuel with
high heat value and stable combustion which can be used as a heating and energy source in paper
mills, cement factories, and public facilities.
On the other hand, while RDF/RPF is suitable for use in various facilities, in order to prevent
troubles and accidents due to heat generation and ignition, sufficient attention should be paid to
manufacturing, storage, and safe operation management at the facilities where the fuel will be used.
RDF (Refuse Derived Fuel) is a solid fuel that is produced from combustible waste - kitchen waste,
paper waste, plastic waste, and so on. The combustible waste is solidified through the processes of
shredding, sorting, drying, and molding. RDF can be stored for a comparatively long period of time
due to its low biodegradability and can be transported more easily than waste due to its reduced amount
and molding into more usable shapes.
Stable combustion is another major feature of RDF because of its generally constant shape and heat
value.
Table 4-18 General Properties of RDF

Item Quality
Shape Cylindrical: Around 10mm to 50mm in diameter
Unit weight 0.3 tons to 0.7 tons/m3
Low-level heat value 3,000 kcal/kg（12,500 kJ/kg）or more
Composition Moisture content: 10% or less, Ash content: 20% or less
Photo 4-44 RDF Photo 4-45 RPF

Source: Study Group on Appropriate Management of RDF “Report of Study Group on Appropriate Management
of RDF (2003)” (RDF) (Photo 4-44)
Source: Japan RPF Association Website “What is RPF?” https://www.jrpf.gr.jp/rpf-1
(accessed January 10, 2022) (Photo 4-45)
RPF (Refuse derived Paper and plastics densified Fuel) is a solid fuel that is manufactured mainly
from paper and waste plastics discharged in industrial waste and specifically selected municipal waste,
that are difficult to recycle as raw materials. RPF can be used as a fuel in the same way as RDF,
however, since RPF is produced from selected waste, it is characterized by having less foreign matter
content, lower moisture content, and higher heat value (5,000kcal/kg or more).
Figure 4-14 shows the treatment methods at the intermediate treatment facility where RDF/RPF
conversion technology is applied.
1）Method with molding process before dry process
Additive
Receiving Crushing
Sorting Molding Dry Cooling Storage
2）Method with molding process after dry process

Additive
Receiving Crushing
Dry Sorting Molding Cooling Storage
3）Method without dry process and additive

It is applied when there is no need to store RDF for a long period of time, such as when the target is waste that is not
easily decomposed, or when it is used immediately after production.
Receiving Crushing
Mixing Molding Storage
Crushing
means crushing and sorting, or crushing or sorting.
and/or sorting
Figure 4-14 Treatment Process of RDF Facility

Table 4-19 Outline of Major Equipment of an RDF Facility

Major equipment Equipment outline
Unloading/loading This equipment comprises a weighing machine, a delivery door, a receiving
equipment hopper, a receiving conveyer, a waste pit, and a waste crane.
This equipment comprises a bag ripping machine for ripping the bags that are
Shredding equipment unloaded and a shredder that shreds waste of specified amount and quality into
intended sizes.
This equipment is used for sorting waste into combustibles that are suitable for
Sorting equipment
converting to a solid fuel and waste unsuitable for conversion to a fuel.
This equipment is used for producing RDF of a target moisture content or lower
Drying equipment
by drying waste of planned quality in a specified amount.
This equipment is used for solidifying waste to a specified quality and shape. It
comprises a molding machine, adding equipment, a reactor, and a cooler that
Solidification adjusts the temperature of the solidified material to the temperature suitable for
equipment storage and transport. Adding equipment is used for adding lime to prevent
decay during storage or as a chlorine removal measure when RDF is used as a
fuel. This equipment can supply add-in materials in a fixed amount.
This equipment transfers municipal waste, shredded waste, dried waste, RDF,
Transfer equipment
and waste unsuitable for fuel conversion.
A pooling equipment is used for temporarily storing waste for transport and a
Pooling/transport storage equipment is used for storing waste for a certain period of time. Each
equipment equipment is used according to the amount of RDF or waste unsuitable for fuel
conversion to be transported.
Deodorization This equipment is used for treating malodorous gases that are generated from
equipment the facility.
A dust collector is used for removing dust from the facility. To maintain the
work and surrounding environment, dust collection measures are taken at the
Dust collector
dumping section, shredding section, sorting section, storage section, and
transfer/transport section.
A water supply equipment and a wastewater treatment equipment are available
Others
as basic facilities of the RDF conversion facility.
(2) Advantages and disadvantages of technologies associated with RDF/RPF conversion

In Japan, the use of RDF/RPF has been promoted as one of the appropriate waste treatment
methods and at the same time considering the advantage of being able to be used as an energy
source in other facilities. While RDF/RPF contributes to the effective use of energy, issues
concerning safety need to be addressed in the operation management and storage of RDF/RPF.
In addition, since RDF/PRF is produced using waste that is discharged daily as the raw material,
it is necessary to secure continuous supply destinations. In order to secure supply source for
RDF/RPF, it must also be noted that development of a network of RDF/PRF supply destinations
over a wide area is required.
Table 4-20 shows the advantages and disadvantages of introducing RDF/RPF conversion
technology. In particular, caution should be taken not to fall into a situation where stable supply
destinations cannot be secured after RDF/RPF production and there are no sales destinations.
Table 4-20 Advantages and Disadvantages of RDF/RPF Conversion Technology

Technology Advantages Disadvantages
RDF/RPF  Can be handled easily due to its stable  Development of a separate RDF/RPF
quality. facility is necessary. Development
 The quality can be adjusted according cost is required.
to the application.  Securement of stable and continuous
 Can be used efficiently as an energy supply destinations (markets) of
source due to its high heat value in RDF/RPF is required. Need to balance
comparison with waste. between demand and supply.
 Burns stably due to its low moisture  Consideration is necessary for the
content and homogeneous properties storage of RDF/RPF.
in comparison with waste.
 Can be used according to a fixed
schedule since it is dry and can
therefore be stored for a long period of
time.
Source: Created based on the Japan Waste Management Association “Planning and Design Guidelines for Waste
Treatment Facility Maintenance, 2017 Revised Version” (2017)
Figure 4-15 and Table 4-21 show the items to be noted in operation management of an RDF/RPF
conversion facility. Adequate measures are necessary for the production process and storage of
RDF/RPF due to the high fire risk of RDF/RPF.
To refuse solid fuel utilization facilities
Control of properties during shipping

Receiving • Thorough control of properties by setting control
Exhaust Gas index values (moisture content of 10% or less, Outgoing
• Thorough separation Treatment cooling to outside air temperature, control of degree
• Homogenization by of powdering) • Indoor transshipment
agitation • Cleaning of exhaust • Defective products are returned to the manufacturing • Rainfall protection for vehicles
ducts process
Water dispersal devices
Moisture
Thermometer level Thermometer Thermometer Thermometer CO meter
Indicators CO meter CO meter
Crushing and Storage

sorting Dry Molding Cooling
• Thorough • Dust removal • Sufficiently • Blocks rainwater from entering the building
• Constant monitoring • Ventilation to prevent uneven temperature
of crusher inlet temperature and Waste and during start-up cooled to outside distribution
• Steam spraying in moisture control chemicals and adjustment air temperature • Secure the structure and space for quick
high-speed rotary • Measures to adequate of waste supply • Measures to removal.
crushers prevent ignition mixing volume prevent ignition • Measure the temperature of flexible
• Thorough screening of residual waste of residual refuse container packs and secure a space for heat
when operation derived fuel dissipation.
Pressure is stopped when operation
dissipation holes is suspended • Storage for approximately one week or less
Smoke and heat • Transport after checking cooling
detectors Smoke and Smoke and Smoke and
Water dispersal heat detectors heat detectors heat detectors Sprinkler system
devices, etc.
Note) In case of closed type such as silo
Source: Study Group on Proper Management of Refuse Derived Fuel “Proper Management Measures for Refuse
Derived Fuel” (2003)
Figure 4-15 Countermeasures in RDF/RPF Facility
Table 4-21 Measures to be Taken for an RDF/RPF Conversion Facility

Process Measure
Thoroughly sort waste into dangerous substances and incombustibles. Stir waste
Receiving process well to ensure uniform properties as much as possible. Place sprinklers and fire
hydrants appropriately in case of fire breakout.
Constantly monitor the conditions around the inlet of the shredder. When using a
Shredding/sorting
high-speed rotary shredder, take fire prevention measures such as steam spraying.
process
Install a fire extinguisher together with a heat sensor inside the chamber.
Monitor constantly and properly the dryer exhaust temperature and the dried waste
moisture content indicator. Take measures to prevent the waste remaining inside
Drying process
the drying furnace from being ignited when the operation stops. Clean the inside of
the exhaust duct regularly. Install a heat sensor inside the chamber.
Chemical agent
Design and control properly so that waste and additives can be mixed thoroughly.
adding process
Measure the temperature and the concentration of carbon monoxide continuously.
Before starting the machine, remove dust and check the amount of waste to be
Molding process
supplied. Install a heat sensor inside the chamber. Mold the RDF/RPF to an
appropriate hardness.
Cool the solid fuel down to a temperature in the range of the outside air temperature
by checking that fuel is adequately cooled up to the center of the fuel. Measure the
Cooling process air temperature of the cooler continuously and control the cooler. Take measures to
prevent the waste remaining inside the drying furnace from being ignited when the
operation stops. Install a heat sensor inside the chamber.
Prevent rainwater from getting into the facility by wind and rain. Ventilate the tank
and chamber to prevent the temperatures inside the tank and chamber from
Storage/transport deviating. When storing in a closed type facility, measure the carbon dioxide and
process (measures temperature continuously and design the structure of the facility so that solid waste
when storing a fuel can be removed quickly. The permissible storage period is up to one week and
small amount) take heat accumulation prevention measures when a fuel is stored for a long period
of time. After checking that the fuel is cooled down to a temperature in the range
of the outside air temperature, transfer it.
Property Determine control index values of moisture content, temperature, and so on and
management at measure and monitor them daily. Control the process thoroughly by returning the
transport solid fuel that did not satisfy the index values to the production process.
Source: Study Group on Appropriate Management of Solid Waste Fuel “About Appropriate Management Measures
for Solid Waste Fuel” (2003)
Column: Examples of Accidents Associated with RDF

1. Outline of Examples of Accidents/Troubles
Example A
On December 12, 2002, an accident occurred in the solid fuel power generation plant owned by a
municipality. A part of the solid fuel was ignited at the bottom of the silo containing solid waste fuel and
the fire was extinguished by spraying inside the silo.
As a result, the use of the silo was suspended and the solid waste fuel was removed from the tank and
was inspected. At the same time, measures to improve properties of the solid waste fuel to be delivered
were taken to prevent accident recurrence, and the use of the silo for storage resumed from February,
2003.
However, heat generation/ignition from the solid waste fuel inside the silo was confirmed in July 2003.
Although removal of the solid waste fuel that generated heat or was ignited and cooling of the silo were
attempted, satisfactory results could not be achieved. In the meantime, an explosion occurred within the
silo in August 2003, causing injuries to four workers. Furthermore, the silo exploded in the process of
extinguishing the fire, and the roof was blown out, causing death and injuries to three persons.
Example B
In September, 2003, an abnormality was confirmed from a private power plant. The temperature
around the center cone (protruding equipment at the center of the bottom of the silo storage tank) inside
the silo storage tank (same type as the silo of Example A) for storing solid waste fuel increased by about
2℃.
When the inspection panel of the conveyor at the bottom of the storage tank was opened, the presence
of white smoke together with a discharge of a carbonized solid fuel from the delivery conveyor were
confirmed. Consequently, the solid waste fuel was removed from the tank while injecting nitrogen gas
from the bottom of the silo storage tank.
Example C
In October, 2003, an abnormality was confirmed at the RDF center that was built by a local union. An
increase of the temperature by several degrees Centigrade was detected at the upper section of the silo
storage tank (same type as the silo of Example A) storing solid waste fuel. When the surface temperature
of the solid waste fuel at the top was measured, it was confirmed to be around 40℃ (normally, it should
be around room temperature).
Therefore, while injecting nitrogen gas, the refuse solid fuel was taken out. It was found that during
the discharge of solid waste fuel, smoke was being generated from refuse solid fuel at the delivery
conveyor at the bottom of the tank in October 2003. Subsequently, the removal operation was suspended
and after continuous injection of nitrogen gas, the removal was resumed after confirming the decrease
of the oxygen concentration and temperature and their stabilization.
2. Insights Obtained from the Accidents

(1) Heat Generation/Ignition in the Storage Tank (silo)
It is assumed that the heat generation/ignition in the storage tank (silo) was caused by the following
process: Due to the causes from 1) to 4) below, localized concentration of moisture occurred due to
inflow of moist air or condensation, the solid waste fuel absorbed the moisture, and heat was generated
as a result of the fermentation of organic substances.
In addition, solid waste fuels of at least from 600 tons to 700 tons were stored inside the storage tank,
making it extremely difficult for heat to escape. Therefore, the solid waste fuel that generated heat as a
result of fermentation became hotter through self-heating by chemical oxidization of organic substances
(low-temperature oxidization), thereby causing ignition.
<Main Cause of Heat Generation/Ignition>

1) The structure of the storage tank allowed in-flow of air.
2) Since the sweep device had not been operated, possibly a solid waste fuel remained in the dead
space for a long period of time.
3) Fuel was input again without completing the removal of the solid waste fuel at the regular
inspection.
4) The solid waste fuel that had been stored in another warehouse for a long period of time was input.
(2) Explosion in the Storage Tank (silo)

The concentration of carbon monoxide at the top of the storage tank showed an abnormal value
exceeding 300 ppm before stopping the delivery of fuel to the storage tank. Although fire break-out was
confirmed, the inside of the storage tank was kept at high temperature for a long period of time without
taking sufficient measures.
Consequently, a combustible gas was generated by various reactions such as thermal decomposition,
and the cavity created by removal of solid waste fuel and the upper space were filled with the gas.
Combined with air inflow and water discharge, the mixture reached the explosion limit and an explosion
occurred from some sort of fire source.
(3) Heat Generation/Ignition in the Storage Facility

As for the cause of the heat generation and ignition, an accident in the storage facility was assumed.
Alternatively, after heat, such as frictional heat generated from the molding machine of the facility was
accumulated, a solid waste fuel that had not been completely cooled was delivered inside the storage
facility and the heat was accumulated by low temperature oxidization of organic substances, ultimately
leading to ignition. Such possibility was suggested.
Source: Study Group on Appropriate Management of Solid Waste Fuel “About Appropriate Management Measures
for Solid Waste Fuel” (2003)
Organic Waste Recycling Technology
(1) Overview and Types of Technologies Related to Organic Waste Recycling

Kitchen waste from homes accounts for about 40 percent of the total organic waste and a large
portion of the rest is the residue from the food processing sector and leftovers from restaurants. This
situation highlights the issue of how to effectively recycle this waste stream in order to reduce the
waste amount at final disposal. Conventionally, composting and manufacturing livestock feed have
been used to promote the recycling of organic waste. In order to cope with this problem, new
technologies are being developed, such as conversion of organic waste to methane gas for effective
utilization which is a global warming countermeasure because it helps reduce emissions of
greenhouse gases. Japan is not only using these diverse technologies to revitalize local communities
and create a sound material-cycle society, but is also developing biomass (organic waste) recycling
to create a low carbon society.
Biomass refers to organic resources from animals and plants, excluding fossil fuels. It is a
sustainable and renewable resource that can be utilized as renewable energy and may be produced as
long as there is life and solar energy.
To realize a sound material-cycle and low carbon society and to escape from the dependency on
fossil fuels, it will be necessary to utilize organic waste. To that end, the spotlight is on green energy
that uses biomass that is both renewable and carbon neutral. In 2009, Japan enacted the Basic Law for
Promotion of Utilization of Biomass to revitalize rural areas and realize a sound material-cycle society
through policies that promote the utilization of biomass. Biomass is a sustainable and renewable
energy resource. In Japan, utilization of biomass is being promoted according to the regional
characteristics, and promoting the utilization of biomass included in organic waste is part of Japan’s
efforts to construct a sound material-cycle society. Figure 4-16 shows the different ways to recycle
organic waste. This section mainly deals with the recycling methods of converting organic waste to
methane gas (biogasification), composting, and turning waste into livestock feed.
Type of Biomass Process Product Usage

Recycling to Feed Livestock feed
feed material
Food waste
(Kitchen waste) Composting Compost Soil Improvement
Biogas Methane Power generation

and heat utilization
Livestock manure
Gasoline
Ethan Ethanol
Fuel for automobiles
Sewage sludge Bio Diesel

BDF*
Diesel Automobile fuel
Pyrolysis Pyrolysis Power generation

Agricultural gasification gasification and heat utilization
residue
carbonization Charcoal Fuel Use
Power generation
Wood waste Solid fuel Solid fuel and heat utilization
Heat Power generation

Incineration
and heat utilization
*: BDF：Bio Diesel Fuel
Source: Ministry of the Environment Website “Types and Uses of Waste Biomass”
Figure 4-16 Types and Uses of Waste Biomass
Table 4-22 shows two methods to collect the biomass (kitchen waste, etc.) for use as raw material:
The first methods is source separation and separate collection of food waste that has been separated
by citizens at source, and the second methods is mixed collection and mechanical sorting of food waste
that has been discharged together with other waste without separation, and then is mechanically sorted
at an intermediate treatment facility. The decision on whether to use separate collection or mixed
collection should be determined by considering the local characteristics of the collection area.
Table 4-22 Comparison of Biomass (Kitchen Waste, etc.) Collection Methods

Source separation + separate
Classification Mixed collection + Mechanical sorting
collection
Dry fermentation that has fewer
requirements can be adopted because of
Methane
Either wet or dry fermentation the high probability of the presence of
fermentation
materials not suited for methane
fermentation in the waste.
A mechanical sorting process is added. It
will be necessary to purchase and operate
the necessary equipment.
Composting High quality compost can be produced.
Quality is problematic because foreign
matter may be mixed in with the
compost.
It is necessary to acquire the citizens
Cooperation of There is no need to acquire the
understanding and cooperation for
citizens cooperation of citizens for separation.
source separation and separate discharge.
It is necessary to prepare dedicated
Changes in kitchen waste bags.
Regular collection containers can be
collection In some cases special collection
used.
containers containers are allocated at the collection
stations.
Changes in
In some cases the frequency of collection The frequency of collection times does
collection
times is increased. not change.
frequency
Utilization of generated wastewater as
liquid fertilizer and compost is difficult
Wastewater generated in the treatment
because there is a high probability of the
Reuse of by- process can be converted to liquid
presence of materials not suited for
products fertilizer and fermentation residue can be
fermentation.
converted to compost.
Incineration followed by thermal
recovery are more appropriate.
Fermentation
Relatively low Relatively high
residue
Tend to be high.
Waste collection
It may be necessary to increase
and transport No change from the present.
collection days to collect the separated
costs
waste.
Relatively large. Area for mechanical
Required area Small
sorting is necessary.
Source: Ministry of the Environment Website “Waste and recycling measures”
http://www.env.go.jp/recycle/waste/biomass/supportinformation.html (accessed December 15, 2021)
(2) Overview of Methane Gasification Technology

Methane gasification is a technology in which methane fermentation is used to basically produce
and recover methane. Not only is biogas usable, but the fermentation residue can also be used as
fertilizer, material for cement, etc. Therefore, introduction of methane gasification not only helps
to reduce the quantity of waste that is incinerated, but it can also support the establishment of a
local sound material-cycle society by producing energy from the methane gas and using the residue
locally as fertilizer.
Methane gas facilities ferment the organic waste that is acquired by separate collection and from
mechanical sorting of collected mixed waste, and recover the biogas from the produced methane.
Figure 4-17 shows an example of the structure of a methane fermentation tank and Figure 4-18 shows
the process.
Biogas
(Methane)
Low pressure gas
Equalizing section
pressure valve Biogas
(to gas holder)
H.W.L Overflow weir Main

chamber
Upper chamber
N.W.L Digested sludge
outlet Methane
High-pressure Fermentation
gas section raw material Pre
L.W.L chamber
Center
Tube Mixing shafts Pump Blower
Raw material
input port Main
fermentation
zone
Methane
Fermentation
Sludge
Bottom outlet non-
fermentable
product
Example 1 Example 2
Figure 4-17 Examples of the Structure of a Methane Fermentation Tank
1. Biogas and fermentation residue are produced from methane gasification.

2. Dehydrated solids are used as fertilizer, etc. Or, after drying into solids, they can be incinerated.
3. Fermentation residue is used as liquid fertilizer, after disinfection. Or, after dehydration, the eliminated
liquid is treated as wastewater.
Biogas Product
（CH4+CO2）
Fermentation
Residue
Recyclable Eluate
Methane Solid-liquid Wastewater
material separation treatment
fermentation
Dehydrated solids
Solid resourcing Incineration

Composting, (composting, fueling, (Heat utilization,
Fuel etc.) etc.)
Source: Ministry of the Environment Website “Methane Gasification Technology”
https://www.env.go.jp/recycle/waste/biomass/technical.html (accessed January 20, 2022)
Figure 4-18 Process of Methane Fermentation
Figure 4-19 shows the configuration and overview of the main facilities and equipment at a
methane gasification facility. In general, a methane gasification facility is made up of receiving
and supplying facilities, pretreatment facilities, methane fermentation facilities, and the biogas
utilization equipment. The fermentation residue is also processed at the facility.
Waste（Organic Waste）
Electrical facility
Receiving and supplying
facilities
Scale
Platform Instrumentation facility
Waste pit
Waste crane
Deodorization Water supply facility
Supply equipment etc.
facilities
Deodorization
Pretreatment facilities equipment etc. Water supply facility
Crushing equipment
Sorting equipment
Solubilization tank
Conditioning equipment
Residue storage tanks, etc.
Methane fermentation Fermentation residue

facilities treatment facility
Fermentation tank feeder Sludge storage tank Residue
Fermentation tank Dewatering equipment (solids)
Fermenter agitator Dewatered sludge storage tank
Humidifier, etc. Dewatering separation tank, etc. Composting Facility
Carbonization Facilities
Incineration facilities
Biogas Utilization facilities
Demagnetization equipment
Gas storage device
Excess gas combustion equipment
Gas turbines, gas engines, etc.
Figure 4-19 Components and Equipment in a Methane Gasification Facility
Photo 4-46 Methane Gasification Facility in Photo 4-47 Methane Gasification Facility in
Nagaoka City, Niigata Prefecture Hofu City, Yamaguchi Prefecture
Source: Ministry of the Environment Website “Examples of Methane Gasification Facilities”
https://www.env.go.jp/recycle/waste/biomass/example.html (accessed January 20, 2022)
(3) Overview of Composting Technology

Composting is a technology that uses microbes to convert organic waste into compost. This
technology has been used in Japan for ages, and in modern society composting is often used in rural
areas because it is relatively easy to find buyers there for the compost that is produced. In order to
produce good quality compost, it is important to make sure that incompatible wastes, plastics, and
other non-organic matter are not mixed in the collected kitchen waste.
In composting, the organic waste in kitchen waste and the like is broken down and made into
compost by microbes under aerobic conditions. This technology has been used for recycling kitchen
waste in Japan for ages. In composting, the raw material used is kitchen waste and agricultural residue,
livestock manure, branches and leaves, etc. It is necessary to understand that citizens will have to
cooperate in separating kitchen waste at source and that buyers must be found for the compost that is
produced. In developing countries, the key points are whether there is demand from local farmers and
if the price is low enough for them. Before introducing composting technology, it is important to make
sure that there will be continuous buyers for the compost and to secure them beforehand. For reference
an example of the compost center built at Shibushi City is provided in “Topic 6, 4. Activities at
Shibushi City, 4.3 Current Waste Treatment Activities, (2) Compost”.
Composting
Grab Crane Crushing and Screening
Hammer Mill
Feeding Chain Conveyor
Hopper
Receiving Bunker Screening Drum
Slat Conveyor
Overband Magnetic Separator
Shovel Loading Composting Maturation Areas

Flow
Receiving
Aerated Primary Windrows
Inclined Chain Conveyor Windrow Turning Machine
Coarse Compost
Fine Compost Lump
Breaker Belt Conveyor for Rejects
Chain Conveyor
for Fine Compost
Screening Machine Fermentation
Storage for
Fine Compost
Hammer Mill
Storage and Shipment Foreign Material Removal
Source: JAPAN ENVIRONMENTAL SANITATION CENTER “Waste management technology in Japan (JICA
training text)” (2017)
Figure 4-20 Flow of Composting
(4) Overview of Technology Related to Turning Waste into Livestock Feed

Turning waste into livestock feed is a technology that involves thermal treatment and drying of
kitchen waste and agricultural residue, adjusting the oil and fat content, then producing livestock
feed pellets. This technology has also been used for some time. As is the case with composting, it
is important to take precautions in the production process and to ensure that there are buyers for the
produced feed.
Under this technology livestock feed is produced from kitchen waste and other organic waste. As is
the case with composting, this is a food recycling technology that has been used in Japan for ages. The
main technologies involved in turning waste into livestock feed are reducing the water content through
thermal treatment and drying, and adjusting the oil and fat content.
Livestock feed
【Fermentation and Dry Method】
Kitchen Fermentation Heat dry Grinding and Feed

Waste sieving
Addition of fermentation
bacteria
【Boil and Dry Method】

Solid Dry Grinding Feed
Flow Kitchen Heat Solid-
Waste treatment liquid
Liquid Oil
separation Recycled oil
separation
【Liquid Feed Method】
Kitchen Sorting/
Sorting/ Composition and Sterilization Fermentation Feed
Waste Crashing
Crushing moisture adjustment
Addition of fermentation bacteria

Moisture
Source: Ministry of the Environment Website “Types and uses of waste biomass”
Figure 4-21 Flow Chart of Recycling to Feed
Column: The History of Utilizing Kitchen Waste in Japan

In Japan, kitchen waste has been returned to farmland since ancient times as fertilizer by
incinerating it and spreading the ashes. After World War II and when there was little plastic and
metal mixed in the waste in the 1950s, a large amount of the waste from urban areas was used in
rural areas as fertilizer. However, the growth of urban areas, the increased use of chemical
fertilizers, and the sudden deterioration of rural areas due to the aging of the populations there, led
to major changes in waste treatment in urban areas.
Geographically, Japan has few locations suitable for landfill sites and seasons with high
temperatures and humidity. Due to these conditions and additionally from the viewpoints of
reducing waste and maintaining sanitary conditions, incineration became the mainstream waste
treatment method in the 1960s. However, there were some municipalities that built composting
facilities to make compost from kitchen waste and return it to rural areas. However, most of the
composting projects that used urban kitchen waste, especially that from households, confronted the
problems described below. As a result, there were no users for the compost that was produced and
it ended up in landfill sites. Therefore, most of the composting projects faded away except in some
cities near farming areas.
1) Issue of Foreign Matter

From the 1950s to the 1960s, the standard of living improved rapidly. With many different
consumer products becoming available, many different types of foreign matter were discharged
together with kitchen waste, such as glass from bottles and jars, metals from cans, and plastics from
containers and daily goods. At that time, there was no concept of waste separating at source and as
a result the produced compost included contaminants. It therefore became impossible to assure the
quality necessary for farm usage and farms stopped using the compost that was being produced.
2) Issue of Odor
Because of Japan's high temperatures and high humidity, kitchen waste rots easily and
composting requires sufficient countermeasures to reduce the resulting odor. However, these
measures were not sufficient at the composting facilities at the time so local residents considered
these facilities troublesome.
3) Issue of Farm Labor
From the 1950s to the 1960s, young workers moved from rural to urban areas which lead to a
gradual growth in the age of rural farmers. While farmers knew that using organic fertilizers was
more effective for continued farming, it became increasingly impractical to use organic fertilizers
due to the related hard work required. The result was that chemical fertilizer usage spread because
it was easier for the aging farmers to supply just the necessary components.
Source: Based on the Ministry of the Environment “White Paper on the Environment” (2008)
Column: Takakura Composting Method that Spread in Developing Countries

The Takakura composting technology was part of the overseas aid activities conducted by Kita-
kyushu City in 2004. The technology was established as part of the studies to reduce and reuse the
waste in Surabaya, Indonesia. The technology was named the Takakura Composting Method after
the specialist, Kohji Takakura.
In the Takakura Composting Method, local natural materials are used to increase fermenting
bacteria to make composting more efficient. Special fermenting bacteria are not needed and only
locally available fermenting bacteria (indigenous bacteria) are used. Fermenting bacteria can be
acquired from (1) food fermenting bacteria (yogurt, mushrooms, yeast, etc.), (2) leaf mold, (3) soil
from organic farms, and (4) other natural items (rotting trees, hay, rice husks, etc.). It is more
effective to collect as many types of bacteria as possible.
The process for making compost is shown in Figure 4-22. First, fermentation liquor is made, the
fermentation liquor and bacterial bed are mixed to make bacterial colonies, and the bacterial
colonies and kitchen waste are repeatedly mixed or agitated, then dried to make compost.
The Takakura Composting Method has been accepted by developing countries for the following
reasons.
1) Ease of Introduction
It was easy for the receiving country to accept composting technology because it is familiar in
developing countries. Additionally, by carefully explaining this technology from the basic theory
through to the entire process, the composting of kitchen waste was successful.
2) Production is Easy Using Local Items
Due to the fact that the Takakura Composting Method is easy to implement using local materials,
the hurdles to introduction and continuation of composting were low. Another feature of this method
is that the composting period is about one or two weeks which is much shorter than usual
composting periods of about three months.
3) Adaptability to Various Scales
The basic theory behind the Takakura Composting Method is not limited to small-scale kitchen
waste composting in households. It can also be applied to large-scale composting facilities. If the
local needs are not for household composting but for relatively large-scale composting projects that
encompass communities or entire regions, the Takakura Composting Method may be effectively
used for that purpose as well.
4) Developing Human Resources for Local Expansion
In the Surabaya project attempts were made to increase understanding of the basic theory by
assigning community leaders to lead the way in improving the environment in their communities.
Locally developed human resources have helped to spread the adoption of the Takakura Composting
Method in the area.
Step 1 Preparation of fermentation liquid

Leave both liquids to ferment for about 3 to 5 days each, until they smell like alcohol.
Liquid A: Fermented food + sugar water
Liquid B: Fruits and vegetables + salt water
Completion of the
Step 2 Mixing of fermentation liquid and bacterial bed seed bacteria.
Preparation of bacterial beds using rice husks, wood chips, fallen leaves, etc.
Mix the fermentation liquid and the bacterial bed (adjust the moisture content to 40-60%).
Fermentation (cover the entire area with a porous cloth to maintain a temperature of 60-
80℃)
Step 3 Composting
Mix seed bacteria and food scraps.
Stirring (at least once a day)
After the temperature drops and the fermentation is finished, dry it. (After drying, it can
be used as seed bacteria again.)
Step 4 Utilization
Compost is not yet completely decomposed from organic matter, so when mixing
compost into the soil, leave it for at least 2-3 weeks to allow the fermentation bacteria
to settle before planting.
Figure 4-22 Steps of Takakura Composting Method

*: For more information on the Takakura composting method, please refer to the Takakura composting Manual.
English version: （https://kitakyushu.iges.or.jp/publication/Takakura/Takakura_Method_Full.pdf）
Photo 4-48 Fermentation Liquid Photo 4-49 Mixing of Fermentation

Left (A), Right (B) Liquid and Bacterial Bed
Photo 4-50 Inside the Compost Center Photo 4-51 Home Composting
Example of Takakura Composting in Ecuador
Recycling Technology
(1) Overview and Types of Recycling Technologies

Facilities for recycling use technologies such as sorting, shredding, compression, drying, and
solidifying to promote recycling of waste materials as resources. The methods and equipment used
differ depending on the material that is to be recycled. Recycling is an effective technology to
promote material reuse and create a sound material-cycle society.
In order to create a sound material-cycle society, the effective use of resources and recycling is very
important. In Japan, various recycling laws have been enacted to promote recycling. It is necessary to
economically and safely process waste using methods suitable for source separation and separate
collection. The main technologies related to recycling are sorting, shredding, compression, drying, and
solidifying. For reference the recycling center built at Shibushi City is provided as an example in
“Topic 6-4.3 (3) Sorting Waste for Recycling”.
Motor and hydraulic unit
recyclables
Gate
Compressed
recyclables
Compression
cylinder
Vacuum
chamber
Figure 4-23 Metal Press Machine
Binding Plastics and paper
bands
PET bottles
Binding
bands
Compressed
Compressed plastics and paper
PET bottles
Figure 4-24 PET Bottle Compaction and Figure 4-25 Plastic Container Packaging
Baling Machine Compaction and Baling Machine
Figure 4-26 and Table 4-23 provide overviews and configurations of the main equipment used at
recycling facilities.
Civil engineering construction works
Electrical Equipment
Design and installation equipment
Water Supply Equipment
Drainage Treatment Equipment
Incombustible waste, bulky waste, recyclable waste (plastic containers and

packaging, PET bottles, bottles, cans, etc.)
Receiving and supply facilities

Weighing equipment, Platform, Storage pit, Stockyards, Waste cranes,
Dumping boxes, Chemical sprayers, etc.
Incombustible and bulky

Plastic container and Plastic bottles Bottle Cans
waste
packaging processing series processing series processing series processing series
processing series
・Receiving hopper ・Receiving hopper ・Receiving hopper ・Container receiving ・Receiving hopper
・Low-speed rotary crusher ・Plastic containers and ・PET bottle crusher and equipment ・Can crushers and bag
・High-speed rotary packaging bag remover ・Container carrying out removers
crusher ・Crushers ・Manual sorting conveyor equipment ・Magnetic separator
・Magnetic separator ・Manual sorting conveyor ・PET bottle compression ・Container flipping ・Aluminum sorting
・Particle size sorter ・Plastic containers and and packaging machine equipment machine
・Aluminum sorting packaging ・Various conveyors ・Automatic bottle color ・Steel can hopper
machine ・Compression and Storage yard, etc. sorting equipment ・Aluminum can hopper
・Metal press machine packaging machines ・Manual sorting conveyor ・Can compactors
・Crushed magnetic ・Various conveyors ・Various conveyors ・Various conveyors
material storage bunker ・Storage yards, etc. ・Storage yard ・Storage yards, etc.
・Crushed aluminum ・Container washing
bunker equipment
・Storage bunker for
incombustible materials
・Storage bunkers for
combustible materials
・Various conveyors, etc.
Dust collection and deodorization equipment, miscellaneous equipment
Transport vehicles (crushed and sorted materials, resources, etc.)
Source: Ministry of the Environment “Guidance for application for subsidy for establishing a sound material-cycle
society (Facility)” (2021)
Figure 4-26 Components of Recycle Facility Equipment
Table 4-23 Overview of the Main Equipment at Recycling Facilities

Main equipment Equipment overview
Made up of the following: Weighing machines to weigh incoming waste and outgoing
recycled materials; entrance and exit roads; platforms for receiving waste from
collection trucks for the storage pits and stockyards; waste input doors to separate
Receiving and
the platforms and storage pits; waste crane to feed waste from the storage pit into the
supplying equipment
receiving hopper; dumping boxes for sorting of hazardous waste, difficult-to-process
waste, and recyclables; chemical spraying equipment to prevent stench at the
platforms; etc.
Made up of the following: Receiving hoppers that receive the incombustible and
bulky waste from waste cranes and excavator loaders; low-speed rotating shredders
that make it easier to transport and sort incombustible and bulky waste; high-speed
rotating shredders; magnetic sorters that recover iron from the shredded waste;
Incombustible and
granular separators that recover incombustible waste after scrap iron is removed from
bulky waste
shredded waste; aluminum separators that recover aluminum scraps from the
treatment systems
shredded waste; metal compressors or storage that compress recovered iron and
aluminum scraps for reuse and storage; shredded magnetic material storage bunkers
for shipping out; shredded aluminum bunkers; incombustible waste storage bunkers
and combustible material storage bunkers for storage and shipping out incombustible
and combustible material.
Made up of the following: Receiving hoppers that receive the plastic containers and
packaging from waste cranes and excavator loaders; plastic containers and packaging
Plastic container and
bag openers that make it easier to separate plastic containers and packaging; manual
packaging treatment
sorting conveyor belts to remove foreign matter from the opened bags; recycling the
systems
recovered plastic containers and packaging; plastic containers and packaging
compressing and bailing machines to compress for storage; storage for compressed
bails; and storage yards for shipping.
Made up of the following: Receiving hoppers that receive the PET bottles from waste
cranes and excavator loaders; bag openers to make it easier to separate the PET
PET bottle treatment
bottles; PET bottle bag openers to remove them from the bags; manual sorting
systems
conveyor belts to remove foreign matter from the opened bags and their contents;
recycling of recovered PET bottles; compressing and bailing machines to compress
PET bottles for storage; storage for compressed bails; and storage yards for shipping.
Made up of the following: Container receiving unit to receive bottles collected in
containers; container conveying unit to convey the containers with bottles inside;
container inverting units to invert the containers with bottles inside; automatic bottle
Bottle treatment
color separators to automatically separate the inverted bottles by color or manual
systems
sorting conveyor belts for manual sorting; storage yards for storing and shipping
recovered bottles; and container washing machines to clean the containers that were
used when receiving the bottles.
Made up of the following: Receiving hoppers that receive the cans from waste cranes
and excavator loaders; can bag opening and debagging machines to make it easier to
sort the cans; can separating machines to recover the steel cans from the waste from
Can treatment
the bags; aluminum can separator machines to recover the aluminum cans; steel can
systems
hoppers and aluminum can hoppers to store the recovered steel and aluminum cans;
can compressing machines to compress the steel and aluminum cans for recycling;
storage yard for storing and shipping compressed materials.
Main equipment Equipment overview

Dust collection and Made up of the following: Cyclones, bug filters, and blowers for dust collecting;
deodorizing deodorizers for deodorizing; blowers for deodorizing; ducts connecting the various
equipment equipment.
Water supply Made up of the following: Water tanks to supply city water, industrial water, well
equipment water, etc. for use in the plant and regular use; pumps; etc.
Made up of the following: Wastewater screens to process the floor washing water
Wastewater treatment
and daily wastewater from the platforms and shipping rooms; water tanks; pumps;
equipment
sludge treatment units.
Receives power for all of the above and distributes it to the necessary sections of the
Electric equipment
various equipment (motors, etc.).
Instruments, control equipment, ITVs, data processing, and other equipment
Instruments
necessary for operation control.
Miscellaneous General air compressor, car washing machine, and other equipment necessary to
equipment maintain the work environment within the plant.
Buildings and building equipment are necessary for the installation of equipment, the
administration building, and various access roads. Rooms and spaces for the purpose
of improving public awareness on the 3Rs by holding seminars and disseminating
Other
information related to waste and recycling, locating equipment to recycle used and
discarded items, equipment necessary to store, display, and replace things in the
recycling process.
Source: Ministry of the Environment “Guidance for application for subsidy for establishing a sound material-cycle
society (Facility)” (2021)
(2) Roles of Technologies Related to Recycling

Recycling technologies such as sorting, shredding, and compressing can also perform the
following roles for promoting efficient recycling.
Roles of recycling technology

 Shredding combustible bulky waste into sizes that can be incinerated.
 Shredding organic waste into sizes suitable for intermediate treatment.
 Shredding and sorting incombustible waste and bulky waste to enable recovery of recyclable
materials.
 Reducing waste disposal by shredding and compressing waste.
 Reducing final disposal amount by recovering recyclable materials.
 Reducing waste generation amount.
 Resources recovery.
Standards Related to Intermediate Treatment Facilities and Their Maintenance
To assure that operators can prevent air and water pollution, they must have facilities that can
satisfy the various regulatory standards and maintain suitable operations and maintenance. The
various standards related to intermediate treatment facilities are regulated by laws and ordinances.
The construction and operation of a waste treatment facility must consider the surrounding
environment. As Figure 4-27 and Table 4-26 show, standards have been developed for a variety of
items. Table 4-24 shows the differences between environmental standards and regulatory standards.
These are especially important for incineration plants because the gases they emit can be a major
cause of pollution to the surrounding environment. Moreover, they can cause issues of odor and noise
in the surrounding community.
Table 4-24 Difference between Environmental Standards and Regulatory Standards

Standards Contents
As standards that should be maintained to protect human health and maintain the
environment, these have the ultimate goal of determining to what levels of
Environmental
quality air, water, soil, and noise must be maintained. These are only
standards
environmental standards that should be maintained, and there are no penalties
when they are not met. .
In order to prevent pollution, these standards must be met to regulate the emission
concentrations and quality of air and water from plants. If the standards cannot
Regulatory
standards be met, then notifications or guidance will be issued by the relevant
(tolerance limits)
administration agencies, and if improvements are not made, then penalties will
be applied.
Table 4-25 Summary of Relevant Laws and Regulations Relating to the Planning of the Facility
Enactment
No. Laws Outline
Year
Law to prevent and mitigate damage caused by disasters such as
1 Fire Service Act 1948
fires and earthquakes.
Law to protect health by imposing necessary regulations on odors
Offensive Odor
2 1971 generated by business activities in factories and workplaces in
Control Law
regulated areas.
Law to establish standards for measurement and to ensure proper
3 Measurement Act 1992
implementation of measurement.
Law to regulate water discharge and underground penetration from
Water Pollution
4 1970 factories and business sites into public water bodies and to prevent
Control Law
pollution of public water bodies and groundwater.
Law to establish standards for the installation and other
Water Supply Service management of sewage systems and to improve the healthy
5 1958
Act development of cities and public health, as well as to protect the
quality of water.
Law to ensure the fair and efficient use of radio waves and to
6 Radio Law 1950
promote public welfare.
Law to protect the living environment by regulating the noise
Noise Regulation
7 1968 generated by business activities and construction work at factories
Law
and workplaces, and by regulating automobile noise.
Law to protect the living environment by regulating vibration and
Vibration Regulation
8 1976 road traffic vibration caused by business activities and
Law
construction works in factories and workplaces.
Law to ensure public safety by regulating the proper operation of
Electricity Business
9 1964 electric utilities and the construction, maintenance, and operation
Act
of electric facilities.
Building Standard Law to protect health and property by establishing standards for
10 1950
Law building sites, structures, facilities, and uses.
Law to ensure public safety by regulating the proper operation of
Heat Supply Business
11 1972 heat supply businesses and the construction, maintenance, and
Act
operation of heat supply facilities.
Poisonous and
Law to control poisonous and deleterious substances as necessary
12 Deleterious Substances 1950
for health and hygiene.
Control Act
Law to protect health and the environment by regulating air
Air Pollution Control pollutant emissions from business activities at factories and
13 1968
Act workplaces and by setting required limits for automobile
emissions.
Law to prevent fires caused by high-pressure gas by regulating the
High Pressure Gas
14 1951 manufacture, storage, sale, import, transfer, consumption, and
Safety Act
disposal of high-pressure gas.
Law to protect workers' health and safety and promote the
Industrial Safety and formation of a comfortable work environment by promoting
15 1972
Health Act comprehensive and systematic measures to prevent industrial
accidents.
Law to protect workers' rights by establishing standards related to
16 Labor Standards Act 1947
labor, such as employment regulations, working hours, and wages.
Law to ensure the safety of aircraft transportation by prescribing
17 Civil Aeronautics Act 1952 methods to ensure the safety of aircraft navigation and the
prevention of obstructions caused by aircraft navigation.
Radio Law Air Pollution Civil

Building Control Act Aeronautics
Vibration Standard Heat Supply Act
Regulation Law Business Act Poisonous and
Fire Law Deleterious
Service Act Noise Substances Control
Regulation Law Off-site heat Act
supply
High Pressure
Gas Safety Act
Electricity
Business Act
Offensive Odor
HCl and other hazardous gas
Control Law Steam turbine generator removal equipment
Industrial Safety
and Health Act
Measurement Act Dust collector
Labor Standards Act
Platform Central
灰ｸﾚｰﾝ
Ash crane control room
Wastewater （Excavation of
Treatment combustible Electrical
materials）
Room room
Pump room
Water Pollution Ash pit

Control Law
Water Supply
Service Act
Figure 4-27 Relevant Laws and Regulations Pertaining to the Planning of Facilities
Table 4-26 Standards Related to the Construction and Maintenance of Facilities

Item Standard Subject Applicable laws
・Basic Environment Law
Environmental
・All areas*1 ・ Act on Special Measures concerning
standard
Countermeasures against Dioxins, etc.
Air
Emission ・Waste Management Act
quality
standard ・Gas emissions from ・Air Pollution Control Act
(regulatory waste incinerators, etc. ・ Act on Special Measures concerning
standard) Countermeasures against Dioxins
・Areas that are not
Environmental facing roads.
standard ・Areas that are facing
Noise roads.
・Plant noise pollution
Regulatory
・Construction noise ・Noise Regulation Law
standard
pollution, etc.
・Plant vibrations
Regulatory
Vibrations ・Construction work ・Vibration Regulation Law
standard
vibrations, etc.
・Site boundaries
Regulatory
Odors ・Gas outlets ・Offensive Odor Control Law
standard
・Drainage outlets
Environmental ・Rivers, lakes, seas
・ Act on Special Measures concerning
standard ・Groundwater, etc.
Countermeasures against Dioxins
Water
Drainage ・Waste Management Act
quality
standard ・Drainage from plants ・Water Pollution Control Law
(regulatory and facilities ・ Act on Special Measures concerning
standard) Countermeasures against Dioxins
Environmental
・ All areas*2 ・ Act on Special Measures concerning
standard
Soil Countermeasures against Dioxins
pollution Specified
hazardous －・Soil Contamination Countermeasures Act
substances
*1: Not applicable to dedicated industrial areas, or roads, general areas, and locations which the general public usually
does not use.
*2: Not applicable to the soil of locations where it is clear that the pollution is from a natural source, and the soil of
areas where raw materials are deposited, waste landfills, and other areas where the items listed in the separate table
are used or processed and actually stored.
*3: The ordinances of various local governments can also be the basis of standards for all items.
(1) Standards Based on the Waste Management Act

The technical standards related to the operation and maintenance management of municipal waste
treatment plants are regulated by the Waste Management Act. There are detailed standards that
specifically regulate incineration plants which must be met. (for more details on the Waste
Management Act, refer to “Topic 2-2.2 (3) Wastes Management and Public Cleansing Law”.
(2) Maintenance and Control of Plants

Meeting the established standards will protect the surrounding environment and help gain the
trust of residents. Therefore, executing a planned operation and maintenance program for the plant
and stopping operation for even the slightest problem are important actions for safety.
Waste treatment plants must be operated and maintained under the strictest control to satisfy the
related standards. The operation controls to reduce dioxins at incineration plants are described in
Figure 4-28. It is extremely important to have a combustion chamber that can meet the conditions for
perfect combustion to reduce dioxins, cooling equipment that can cool the gas after incineration, and
to maintain the functionality of exhaust gas treatment equipment including dust collector that removes
dust. If any of the equipment indicates a problem that could lead to operation interference, the
operation must be stopped immediately to solve the problem. Once an accident occurs, the trust of
residents will be lost, so operators must always act on the side of caution.
Another important way to gain the trust of the surrounding residents is to monitor exhaust gas
concentration in real-time and publicize the results on a website or at the plant.
Discharged into
the atmosphere
Measure and record dioxin

concentration at least once a year
The furnace temperature is quickly raised at the start CO concentration is less than
of operation, and when the furnace is shut down, the 100ppm and dioxin concentration is
furnace temperature is kept at a high temperature to less than the standard value.
fully incinerate the waste.
Removal of accumulated CO meters
soot and dust recorder
Air supply
equipment Thermometers
recorder
Exhaust Gas
Incinerator Treatment Facilities
Cooling equipment
Advanced soot dust
Waste Fixed ・Above 800℃ removal functionality
quantity feeder ・Dwell time 2 Approx. 200℃
seconds or more or less Cooling
dust
・Cut off from Thermometers collector
Continuous feed of
outside air recorder
fixed amounts of
waste
Ignition loss :
Bottom and fly Incinerated to
ash Storage less than 10%
dust and soot
facility storage facility
Perfect Gas Cooling Exhaust gas treatment

combustion
Figure 4-28 Proper Operation and Maintenance of Incineration Plant
Photo 4-52 Disclosure of Exhaust Gas Photo 4-53 Disclosure of Exhaust Gas
Status at Suginami Incineration Plant Status at Shibuya Incineration Plant
3 Final Disposal
History of Disposal Sites
Various types of disposal sites were developed depending on the background of each period, the
realities of the local society and the types of waste being disposed - organic waste, inorganic waste,
hazardous waste, etc. Technical standards and guidelines were established to assure suitable
disposal site management and to reduce the effects on the surrounding environment. Due to these
guidelines and the strict operations followed by local municipalities, it has become possible for
them to build suitable disposal sites and operate and maintain them in a sanitary manner. As a result,
these facilities have been accepted by the local residents.
Before the introduction of intermediate treatment, kitchen waste and other types of waste were
disposed of at designated locations. However, this caused problems for the surrounding environment
such as the generation of odor, pests (mosquitos, flies, etc.), and spontaneous fires caused by gas
produced from the disposed waste.
During the period of high economic growth in the 1960s, waste increased, the remaining capacity
of landfill site was shortened and it became necessary to promote the reduction of waste disposal
amount at landfills by incineration.
In the 1970s, the Waste Management Act was revised and technical standards for disposal sites
covering construction, operation and maintenance, and decommissioning were established. Disposal
sites were divided into three categories, namely inert landfill sites, controlled landfill sites, and isolated
landfill sites and standards were established for each.
Then, the “Structural Guidelines for Final Waste Disposal Sites” were established in 1979 and the
“Performance Guidelines for Final Waste Disposal Sites” were established in 2000. These guidelines
dealt with the issues of suitable landfill control, and helped to alleviate the shortage on landfill sites
and solved the problems related to the surrounding environment, such as the generation of hexavalent
chromium and hydrogen sulfide.
The shortage of landfill sites furthered the need for more sites which was one problem, but on the
other hand it was becoming more difficult to gain the understanding of surrounding residents to
construct new sites. Therefore, local harmonized landfill sites were proposed, underpinned by the
operation and maintenance being strictly controlled and implemented with the understanding of
residents. As a result, closed system landfills were adopted as landfill sites for municipal waste. There
were 1,620 municipal waste final disposal sites in FY2019, and 83 closed system landfill sites in
FY2018.
Photo 4-54 A landfill Site in Tokyo where Photo 4-55 Stress on Landfills due to
Spontaneous Combustion was Occurring Increase in Waste Amount and
Because the Waste was Directly Disposed Diversification of Waste quality (1965)
with no Intermediate Treatment and no Soil
Cover Application – circa 1957
Photo 4-56 Previous Conditions of a Photo 4-57 Shortage of Landfill Sites due to
Landfill in Tokyo that was Swarming with Increasing Amount and Diversification of
Wild Birds (1989) Waste Quality (1992)
Source: Tokyo Metropolitan Government Bureau of Environment (Photo 4-54, Photo 4-55)
Source: Tokyo Metropolitan Government (Photo 4-56, Photo 4-57)
Column: Open Dumping in Developing Countries

Open dumping is the uncontrolled dumping of waste at a disposal site and is practiced in many
disposal sites in developing countries. Table 4-27 and Figure 4-29 describe the concerns of open
dumping. In order to reduce the risks of open dumping, proper management at the disposal site is
important, including the development of appropriate facilities, leveling and compaction of dumped
waste, and soil covering.
Table 4-27 Concerns Related to Open Dumping
Risk Content
Landfill Gas Methane gas and other gases produced in landfills cause fires which
(Fire and air pollution) generate toxic substances.
There are concerns about the impact on the surrounding environment
Scattering
due to the scattering of waste.
Since leachate is discharged outside the landfill without any treatment,
there is concern about the impact on the surrounding aquatic
Water Leaching
environment, such as rivers and groundwater. There is also concern
about land pollution as leachate percolates into the soil.
The stagnation of water in the landfilled area generates large numbers
Sanitary Environment
of mosquitoes and flies, which worsen sanitary conditions.
The stench generated from the decomposing waste at the disposal site
Stench
affects the surrounding residents.
If disposal works of leveling and compaction, landfill height control,
and mild slopes of the disposed waste are not implemented, there is a
Waste collapse
risk of collapse of the landfilled waste, which may cause injuries or
casualties to workers and other personnel.
The poor sanitary conditions in the landfilled area are a health hazard
Waste pickers for waste pickers active at the site. Of particular concern is infectious
waste, such as injection needles, when mixed with medical wastes.
Scattering
Air pollution
Bad smell
Waste picker Infectious
disease
methane gas
Collapses (Fire)
Waste Sewage
spill
Land pollution Groundwater pollution

Figure 4-29 Concerns Related to Open Dumping
Photo 4-58 Open fire - Nigeria, 2016 Photo 4-59 Waste Scattering - Nigeria,
2016
Photo 4-60 Piling of Waste - Indonesia, Photo 4-61 Waste Pickers - Cambodia,
2019 2000
Photo 4-62 Stagnant Water Puddles - Cuba, Photo 4-63 Water pollution - Myanmar,
2002 2000
Examples of Concerns in Open Dumping Sites in Developing Countries
Functions and Features of Landfill Site Facilities and Equipment
The main functions required of landfill sites are as follows: waste storage function to stably store
the waste in the landfill; water sealing functions to prevent groundwater from entering the landfill site,
and prevent water from the waste in the landfill from being discharged outside the disposal area; and
cleaning functions to facilitate the decomposition of organic waste and washing out contaminated
matter. The main facilities are storage structures, waterproofing liner system construction, leachate
treatment facilities, monitoring facilities, and generated gas treatment facilities. Figure 4-30 and Table
4-28 show the main facilities of landfill sites.
(1) Storage facility (structures)

(2) Groundwater collection/drainage facilities
(3) Landfill waterproofing system (structures)
Disposal area
Main Facilities (4) Leachate collection/drainage facilities
(5) Rainwater collection/drainage facilities
(6) Landfill gas treatment facilities
(7) Leachate treatment facility (Treatment facilities, collection pipe network,
conditioning facilities, conduit facilities, discharge facilities)
(1) Monitoring facilities

(2) Incoming management facilities
Management Facilities (3) Administration Building

(4) Site internal traffic and road network
(5) Others (car wash)
(1) Landfill Pretreatment Facility

(2) Access road
Related Facilities (3) Scattering and littering prevention facilities

(4) Signboards, gates, enclosures
(5) Fire prevention equipment

(6) Fire prevention facilities (disaster control ponds, erosion control facilities,
landslide prevention facilities)
Source: Based on the Japan Waste Management Association “Planning, Design, and Management Procedures for
Preparing Waste Landfill Sites, Revised 2010 Edition” (2010)
Figure 4-30 Outline and Flow of Main Facilities of Landfill Sites
Table 4-28 Overview of the Main Facilities of Landfill Sites

Main facilities Equipment overview
These structures, often referred to as waste disposal cells, contain the waste layers
Storage structures within designated disposal areas and prevent collapsing, and are used to safely store
waste.
Groundwater These facilities effectively collect groundwater and spring water, and quickly drain
collection/drainage them. In general, there are upstream and downstream main lines connected to
facilities horizontal branches.
These are a series of facilities used to prevent water pollution caused by leachate.
Water waterproofing There are mainly two types: Surface sealing construction (impermeable liner
construction membranes construction, impermeable soil liner construction, etc.) and vertical
sealing construction.
Rainwater These are facilities to collect and drain rainwater. They prevent rainwater that falls
collection/drainage outside the landfill site from entering the site and rain that falls on active disposal
facilities sections of the site before they are covered from penetrating into the waste layers.
Leachate collection These are facilities used to collect the moisture content of the waste disposed in the
and drainage landfill and the leachate that has seeped through the waste layers and discharge the
facilities collected leachate to the leachate treatment facility.
These are facilities used to treat the leachate collected by the leachate
Leachate treatment
collection/drainage facilities so that the liquid does not pollute public waters and
facilities
groundwater after being discharged.
Landfill gas These are either vertical or inclined ventilation facilities installed in the landfill to
treatment facilities collect and vent any gas produced in the landfill site.
These are facilities such as roofing that cover the surface of landfill sites so that
Covering facilities
rainwater cannot enter.
Incoming waste These facilities are used to weigh the waste delivered to the landfill site, analyze the
control facilities quality, conduct deployment inspections, manage records, etc.
During and after final completion of waste filling operations, these facilities monitor
Environmental
water quality, landfill gas, the quantity and quality of delivered waste during
monitoring facilities
operation, groundwater quality, noise and vibrations, scattering of waste, etc.
This building is used to do all of the following work in a systematic manner:
environmental monitoring; assuring safety; inspecting and weighing the delivered
Administration waste to assure economically efficient site operation; confirming the compliance of
building the landfill conditions with the landfill plans; securing coverage materials; installing
section embankments; operating and maintaining leachate treatment facilities;
monitoring; etc.
In addition to daily management, inspection, and maintenance of the various
Controlled roads facilities, fire prevention, and safety management, these roads are also used for the
delivery of materials, etc.
Pre-landfill treatment These are facilities used for pre-treatment before landfill treatment and include
facilities shredding and sorting of waste, melting treatment, crushing of waste, etc.
This is a road used to deliver waste and soil cover materials to the landfill site. It is
Delivery access road made up of a public road that is also used by general vehicles as well as the entrance
from the public road to the landfill site.
Main facilities Equipment overview

These are facilities used to prevent the waste from being scattered by strong winds
Scattering prevention and birds and polluting the surrounding environment. In general, scattering is
facilities prevented together with daily management, such as by covering with soil and by
sprinkling water.
Signage, gates, and In addition to a sign and gate at the entrance of the landfill site, there is an enclosure
enclosure facilities around the landfill site to mainly ensure site access control.
Availability of fire extinguishers, fire prevention water and soil (which can also be
Fire prevention
used as cover soil), construction of fire break zones, and using sprinkler trucks and
facilities
bulldozers in place of fire trucks are all effective.
Disaster prevention These facilities and equipment are used to prevent possible landfill site disasters.
facilities
Types of Disposal Sites
Disposal sites are categorized according to the site location where they will be constructed, their
structure, the types of waste they will be receiving, and the environmental conditions in the landfill
site. In addition, since the appropriate shape of the disposal site is dictated by the site location,
surrounding environment, presence of residents, waste disposal conditions in the relevant area, etc.,
it is important to consider the plan for the disposal site after fully understanding the current situation
of the planned site.
Landfill sites are facilities for disposing of wastes that are difficult to undergo intermediate
treatment - such as incineration, recycling, etc., waste items that are difficult to reuse, and the residue
from intermediate treatment. They are facilities where waste is appropriately stored without negatively
impacting the surrounding environment. The number of landfill sites in Japan and their remaining
capacities are discussed in “Topic 1. 1.2 Waste Management Condition (5) Final Disposal of Waste”.
This section will introduce the types of disposal sites according to the various categorization
methods.
(1) Categorizing by Location: Disposal Sites in Mountainous areas, in Plains Land, and in
Land Reclamation Sites at Sea
Generally, landfill sites are constructed in mountainous terrain by adopting the topographical
features there or by excavation in plains. In Japan due to limitations of finding sites for constructing
landfills, the method of constructing a seawall in a coastal area and constructing a landfill at sea, i.e.
land reclamation, is also implemented. Table 4-29 shows examples of disposal sites categorized by
location.
(2) Categorizing by Facility Structure: Open and closed Systems

In Japan, learning from past experience that construction of landfills was difficult due to opposition
from local residents, in recent years closed system landfill sites in which waste is disposed of in
enclosed structures have been constructed as regional-friendly facilities that are accepted by the
residents. Moreover, operation and maintenance of closed system landfill sites are not affected by the
weather and has the advantage of being able to effectively minimize leachate generation as intake of
rainwater can be controlled. Tables 4-30 and Table 4-31 show the features of open and closed systems
of landfill sites.
Table 4-29 Features of Disposal Sites Categorized by Location

Photos Types and Features
Disposal sites in mountainous terrain:
These are disposal sites built in the
valleys between mountains. Their
advantage is that they can be built far
from urban areas. About 70 percent of all
disposal sites in Japan are of this type.
Tsuruoka City, Yamagata Prefecture
Disposal sites in plains:

Where construction in mountainous areas
is difficult, disposal sites are constructed
in plains on level ground by excavating
spaces for waste disposal. These can be
near urban areas and one important
consideration point is how the land will
Nigata City, Nigata Prefecture be used in the future after the completion
of disposal activity there.
Disposal sites by land reclamation:
These are disposal sites that were
constructed by land reclamation at sea
because of the limited land area in Japan.
Their construction requires advanced
marine civil engineering technology. A
feature compared with disposal sites on
land is that the area per disposal site is
Ube City, Yamaguchi Prefecture
large.
Source: Tsuruoka City Website “Tsuruoka City Municipal Waste Landfill”
https://www.city.tsuruoka.lg.jp/kurashi/gomi-seikatsu/shorishisetsu/saishushobunjou.html (accessed March
1, 2022)
Niigata City Website “Fourth Akatsuka Landfill”
https://www.city.niigata.lg.jp/smph/nishi/shisetsu/seikatsu/dai4akatuka.html (accessed March 1, 2022)
Utsunomiya City Website “When landfill waste is brought to a processing facility”
https://www.city.ube.yamaguchi.jp/kurashi/gomi/dashikata/1001977/1001994/1001998.html (accessed
March 1, 2022)
Table 4-30 Features of Open System Landfill Sites

Item Content
・Disposal sites are constructed according to the site geography and
geology.
Overview
・Rain and snow that fall on a disposal site generate leachate.
・Many facilities of this category have been constructed.
Natural Daily soil cover application is necessary to mitigate the effects of rain
environment and wind on active disposal cells in the site.
Effect on living Operation and maintenance must be thorough. Measures such as leak
Environment environment detector systems must be installed to prevent against water leak risks.
Landfill
In order to prevent scattering of waste, daily, intermediate and final
facilities
soil covers need to be applied
environment
Stabilization of In principle there is natural stabilization.
landfill site Natural rain and semi-aerobic landfills promote stability.
Large landfill capacity can be assured by effectively utilizing the
Landfill
terrain. Additionally, it is relatively easy to make structural changes
capacity
in order to expand disposal capacities.
Depending on the site geography and geology, storage spaces are
prepared by constructing dams, excavating pits or utilizing retaining
Storage
slopes.
Facilities structures
Many storage facilities are of soil structure so they are relatively
planning inexpensive to construct and maintain.
Waterproofing Waterproofing is often provided through laying of a double layer of
construction impermeable membrane sheets as liner.
Leachate The scales of these facilities is determined by the amount of rain and
treatment snow falls, and are large when compared to the closed system landfill
facilities sites.
The space inside landfills is open and there are few obstacles and
Landfill work
limiting conditions while working there.
While the scale of the leachate treatment facilities (treatment
Construction
equipment, adjustment tanks, etc.) will be large, in terms of
costs
construction costs they are cheaper than for closed systems.
Economy
Maintenance There is more leachate treatment than for closed systems, so the
and control operation and maintenance expenses are high during the facility
costs operation period.
Open system landfill sites are affected by storms, typhoons, and other
weather conditions. Leachate generated from rain falling on the site
cannot be reduced. However, there are few limiting conditions at
Summary these sites, and expanding the site and changing the structure are
relatively easy. There is an established track record with these sites
and the technology for construction, operation and maintenance, and
safe closing are all established.
Source: Sagamihara City, "Sagamihara City Basic Concept Plan for the Next Municipal Waste Final Disposal Site"
(2021)
Photo 4-64 Landfill of Minami-Ashikaga City Photo 4-65 Landfill of Minami-Chita

Association
Photo 4-66 Landfill of Sagamihara City

Source: Minami-Ashikaga City Website “Landfill”
https://www.city.minamiashigara.kanagawa.jp/shisetsu/kankyou/saisyusyobunjyou.html (accessed March 1,
2022)
Minami-Chita association Website “Landfill for Municipal Waste”
http://chitananbu.com/%E4%B8%80%E8%88%AC%E5%BB%83%E6%A3%84%E7%89%A9%E6%9C%8
0%E7%B5%82%E5%87%A6%E5%88%86%E5%A0%B4/ (accessed March 1, 2022)
Sagamihara City “Landfill site for municipal waste in Sagamihara City” (2019)
Table 4-31 Features of Closed System Landfill Sites

Item Content
・ The landfill is covered by installation of roofs.
・ Landfills are not affected by rain or snow and can be stabilized
Overview
with scheduled water sprinkling.
・ The technology was developed to obtain the residents' consensus.
Natural Because sites are closed spaces they are not affected by rain, and
environment scattering of waste and other problems can be controlled.
Effect on living Operation and maintenance must be thorough. Measures such as leak
environment detector systems must be installed to prevent against water leak risks.
Environment The possibility of waste scattering is low because the site is covered
Landfill facility so in many cases the soil cover is not applied daily on the waste.
internal Because the space is closed, ventilation, lighting, and odor
environment countermeasures are necessary to maintain the internal work
environment.
Stabilization of Stabilization is artificially promoted. Stabilization can be promoted
site location by water sprinkling and either aerobic or semi-aerobic operation.
Covered facilities tend to be less economical with larger landfill areas
and therefore many of them are constructed with small areas and
therefore limited landfill capacities. However, with the emphasis on
mitigating the effects on the living environment in recent years
Landfill
outweighing the economic concerns, more of these facilities with
capacity large disposal capacities are being constructed. Because these
facilities have covering structures, there is a limit to the available
space and structural modifications, such as increasing landfill
capacity are not easy.
Facilities This is similar to open systems in that because the landfill area is
planning Storage small, in many cases the slopes of pit type and the like are steep.
structures Therefore, there is a tendency for construction costs to increase due
to the installation of concrete structures, etc.
Waterproofing Waterproofing sealing is often provided through laying of a double
construction layer of impermeable membrane sheets as liner.
Leaching Because the covered facilities are not affected by rain and snow, the
treatment leachate produced is limited, so these facilities are smaller when
facilities compared to the open system.
Because the space is closed, caution must be taken in maintaining the
work environment. Disposal works require careful attention not to
Landfill work
damage the roof, pillars and walls, in addition to many other limiting
conditions.
Covered facilities increase construction costs. Although leachate
Construction treatment related facilities (treatment equipment, adjustment tanks,
costs etc.) may be smaller in scale compared to those of open systems, their
Economy construction costs are higher than those of open systems.
Maintenance Because the quantity of leachate treated is small when compared with
and control open systems, the operation and maintenance costs during the landfill
costs operation period are lower.
These facilities are hardly affected by storms and typhoons so stable
operation and maintenance management is possible. However, there
Summary are many limitations in operating in the landfill site so special care is
required during landfilling work. In addition, it is difficult to expand
the sites and make structural changes.
Source: Sagamihara City, "Sagamihara City Basic Concept Plan for the Next Municipal Waste Final Disposal Site"
(2021)
Source: Yugawara-cho Manazuru Sanitary Association, “Municipal Waste Final Disposal Facility Pamphlet” (2021)
Photo 4-67 Outside View of the Landfill Photo 4-68 Inside the Landfill
Landfill of Yugawara and Manazuru Towns Association
Source: Tokachi Environmental Complex Office Association, “Municipal Waste Final Disposal Facility Ume-ru
Center Mikato Pamphlet” (2021)
Photo 4-69 Outside View of the Landfill Photo 4-70 Inside the Landfill
“Ume-ru Center Mikato” Landfill of Tokachi Environmental Complex Office Association
(3) Categorizing by Facility Structure and Functions: Inert, Controlled and Isolated
Landfills
Landfill sites are categorized into landfill sites for municipal waste and landfill sites for industrial
waste. Landfill sites for industrial waste are categorized into inert, controlled and isolated landfill sites.
Landfill sites for municipal waste are almost identical to controlled landfill sites for industrial waste.
＜Industrial Waste＞＜Municipal Waste＞

（Landfills maintained by municipalities）
Inert landfill site
Landfill Controlled landfill site Landfill for municipal waste
Isolated landfill site
Figure 4-31 Types of Landfill

1) Inert Landfill Sites

Inert landfill sites are landfill sites where only waste that cannot affect the surrounding
environment can be filled. The materials include general debris, broken glass, concrete debris,
waste plastics, metal scraps, rubber scraps, and other materials that do not contain harmful or
organic matter.
Therefore, inert landfill sites do not have leachate treatment and water collection facilities,
such as waterproofing liner construction.
Table 4-32 Waste that can be Disposed of in Inert Landfill Sites

Type Details
Waste plastics (excluding Must be pretreated with one of the following methods.
automobile shreds, (1) Must be shredded or cut so that they are solid and with a maximum
discarded printed circuit circumference of 15 cm or less, or they must have been melted at a
boards, and discarded melting facility.
containers and packaging) (2) Incinerate at an incineration plant or decompose with heat at a thermal
decomposition facility.
Must be pretreated with one of the following methods.
(1) Must be shredded or cut so that the maximum circumference is 15 cm
Rubber scraps or less.
(2) Incinerate at an incineration plant or decompose with heat at a thermal
Metal scraps (excluding automobile shreds, discarded printed circuit boards, the poles of lead batteries,
lead pipes and plates, and containers and packaging.)
Glass, concrete, and ceramic debris (excluding automobile shreds, discarded CRTs, discarded
plasterboard, and containers and packaging).
Debris
Source: Enforcement Order of the Waste Disposal and Public Cleansing Act (Cabinet Order No. 300 of 1971)
Expansion
Administration office
check
Signboard
Retaining walls,
embankments,
Leachate Other facilities
collection facilities (Storage structures)
Inspection of
groundwater
quality
Drainage facility
for rain water Inspection of
groundwater quality
Japan 2007” (2007)
Figure 4-32 Example of Inert Landfill Site Structure
2) Controlled Landfill Sites

Controlled landfill sites can accept the following waste materials in industrial waste:
combustion residue, sludge, paper scraps, tree scraps, and other organic waste that meet the
standards for harmful materials.
They can also be used to dispose of municipal waste that can be decomposed to produce
leachates and gas.
Leachate is produced at controlled landfill sites because of the decomposition of the waste, so
waterproofing liner construction and leachate treatment facilities are mandatory.
Table 4-33 Waste that can be Disposed of in Controlled Landfill Sites

Type Details
(1) Incinerate at an incineration plant or decompose with heat at a thermal
Sludge
(2) Treat until the water content is 85% or less.
(1) Do not spread around in a specific part of the disposal site.
(2) Apply soil cover or take other measures so that residue and ash are not
Combustion residue,
scattered either inside the disposal site or to areas outside the site.
ash, etc.
(3) Add moisture, solidify, bail, or take other measures so that residue and
ash are not scattered into the air.
(4) Wash vehicles and take other necessary measures.
Animal residue, animal Must be pretreated with one of the following methods.
related solid waste, The thickness of a layer of industrial waste should be about 3 m or less (about
animal manure, animal 50 cm or less if 40% or more is decomposing matter), and the surface of each
bodies layer should be covered with about 50 cm of soil.
Paper waste, tree waste, textile waste, slag, plasterboard
(Combustion residue, sludge, slag, and ash must be equal to or less than the standards for each.)
Sign Administration office

Inspection of board Ventilation equipment
groundwater quality (gas venting equipment)
Retaining walls,
embankments,
Other facilities
(Storage structures)
Discharge water
Liner
Leachate Regulating facilities
treatment facility reservoir Inspection of
Retained water collection
groundwater quality
and discharge facility
Groundwater collection
and drainage facilities
Japan 2007” (2007)
Figure 4-33 Example of Controlled Landfill Site Structure
3) Isolated Landfill Sites

Isolated landfill sites are used to dispose of industrial waste that must be sealed from the outside
because of including harmful matter that has not met the legal standards.
Therefore, isolated landfill sites are sealed in concrete structures and roofs and isolated from
their surroundings.
Table 4-34 Waste that can be Disposed of in Isolated Landfill Sites

Type Details
Matter that exceeds the standards.
Combustion residue,
Industrial waste (combustion residue, sludge, ash, etc.) that contains a certain
sludge, slag, ash
level or more of harmful substances (heavy metals).
*: Disposal of PCB waste, waste that contains dioxins, infectious waste, liquid waste, waste acid, and waste alkali are
prohibited.
Administration office
Signboard
Inspection of
groundwater quality
Structure to enable
visual inspection Inspection of
groundwater quality
Coating with water- and Cover
corrosion-resistant materials
Peripheral cutting Internal cutting

equipment equipment
Japan 2007” (2007)
Figure 4-34 Example of Isolated Landfill Site Structure
(4) Categorizing by Microbe Environment: Anaerobic, Semi-aerobic, and Aerobic Landfills

The behavior of microorganisms within a disposed waste layer varies depending on the environment
inside the landfill. Under aerobic conditions, where oxygen is supplied within the disposed waste layer,
aerobic microorganisms are more active. On the other hand, under conditions of limited oxygen supply,
the disposed waste layer becomes an anaerobic environment, and anaerobic microorganisms that do
not require oxygen become active.
Disposal sites can be categorized into anaerobic, semi-aerobic, and aerobic landfill sites depending
on condition of oxygen supply, in other words, the microbe environment in the disposed waste layers.
The features of landfill sites by the differences in microbe environment are shown below. Aerobic
landfill is expected to improve the quality of leachate by promoting the decomposition of landfill waste
and reducing the generation of methane gas because the environment of the waste layers inside the
landfill site become aerobic. However, the blowers used to supply air to create this aerobic
environment require financial resources for operation and electricity, and if the moisture content of the
soil is high, the blowers come under pressure leading to failures.
Anaerobic landfills can reduce construction and maintenance costs because no equipment is
required to maintain an anaerobic environment within the disposed waste layers. On the other hand,
the anaerobic environment within the disposed waste layers prevents the speedy decomposition of the
disposed waste, resulting in long-term operation of the landfill. In addition, the activity of anaerobic
microorganisms produces more methane gas than aerobic ones.
Table 4-35 Features of Landfill Sites by Microbe Environment Differences

Landfill type Anaerobic Semi-aerobic Aerobic
General method used in Method developed in
-
Europe Japan
Waste is disposed of in These landfill sites have Blowers and air pipes are
excavated flat ground or perforated gas release used to force air into the
valleys, and the waste has pipes and leachate waste layer interior to
Overview a high moisture content collection pipes and as make it more aerobic.
and is anaerobic. water is drained through
the pipe network fresh air
is supplied to the waste
layers creating an aerobic
environment.
Construction
and operation Inexpensive Normal Expensive
/control costs
Methane gas
High Low Low*
emissions
The pollutants in the If the water content in the
waste do not decompose soil is high during rainy
Precautions and may remain in the soil - periods, pressure will be
for decades. placed on the blowers
leading to malfunctions.
*: Although aerobic landfills produce less methane than anaerobic landfills, the operation of blowers can lead to a
significant generation of carbon dioxide.
Anaerobic Landfill
Waste
Leachate
Semi-aerobic Landfill
(Cross-sectional view) Rainwater collection (Plan view) (Cross-sectional view)

and drainage facility
Cover soil
Waste (Aerobic)
Gas ventilating
chamber
Pump
Leachate Leachate
collection collection
and and
drainage drainage Leachate
Aerobic Landfill
(Cross-sectional view) Blow
Waste Cover soil Waste

(Aerobic) Air
insertion
Air insertion tube
tube Pump
Leachate Leachate
collection collection
Waterproofing and and
structure drainage drainage Leachate
Source: Fukuoka City “What is the Fukuoka method of semi-aerobic landfill construction?” (2013)
Figure 4-35 Structural Diagram of Landfill System with Different Microbial Environments
Fukuoka Method (Semi-aerobic Landfill Construction)

The Fukuoka Method is a semi-aerobic landfill type that was developed when Japan was still
disposing of kitchen waste in landfills. Therefore, at the time there was no intermediate treatment.
As these conditions were similar to those present in developing countries that mainly use direct
landfill disposal, this technology is very suitable for those countries. Moreover, due to the fact that
the construction of Fukuoka Method landfill sites can use locally available alternative materials, it
has spread widely among developing countries.
The semi-aerobic landfill construction method was researched and developed by professor emeritus
Hanashima of Fukuoka University with the cooperation of Fukuoka City. At the time, Fukuoka City
was confronted with pollution issues from landfill sites used for kitchen waste that caused water
pollution, odor, gas, and pests. Therefore, professor Hanashima and Fukuoka City jointly conducted a
study for three years from 1973 to improve the leachate quality and in turn the landfill sites. As a result
of these experiments, the basic concept of semi-aerobic landfill construction that uses leachate
collection pipes to supply air to the interior of landfill sites was proposed. In 1975, the first semi-
aerobic landfill site was constructed at the Shinkamata landfill site. Then, the semi-aerobic landfill
construction method was adopted throughout Japan under the name of the Fukuoka Method.
Because the Fukuoka Method technology was developed when intermediate treatment was not
sufficient and kitchen waste was being directly disposed of in landfills, at present there are only limited
uses of this technology in Japan because intermediate treatment, such as incineration, has greatly
developed since then. However, this technology is effective in developing countries which are in
circumstances similar to those faced by Japan in the past when it did not have intermediate treatment.
These countries are confronting problems of leachates, odor, etc. Therefore, this technology has been
adopted in many locations in Asia, Africa, and Oceania.
In July 2011, improvements to existing landfills by using semi-aerobic landfill construction
(Fukuoka Method) were certified as a new method by the Clean Development Mechanism (CDM)
stipulated by the United Nations Framework Convention on Climate Change. By promoting the
decomposition of waste in landfills by maintaining aerobic conditions, this technology can improve
the water quality of leachates and reduce the production of methane gas so it can help to reduce
emissions of greenhouse gases.
Source: Fukuoka Prefecture “Guide to Introducing The Fukuoka Method” (2020)

English: https://www.pref.fukuoka.lg.jp/uploaded/life/613855_61086159_misc.pdf
Vietnamese: https://www.pref.fukuoka.lg.jp/uploaded/life/613855_61086163_misc.pdf
Thai: https://www.pref.fukuoka.lg.jp/uploaded/life/613855_61086164_misc.pdf
Figure 4-36 Conceptual Figure of Semi-aerobic Landfill Construction
Column: Introduction of the Semi-aerobic Landfill Method (Fukuoka Method) Landfills in

Developing Countries
The semi-aerobic landfill method (Fukuoka Method) that is being introduced in developing
countries is a Japanese technology (refer to “Topic 7-4.2 (1) Construction and Proper Maintenance,
Management and Expansion of Sanitary Landfill Sites Using the Fukuoka Method” for an example
of a Fukuoka Method landfill in El Salvador).
The main reasons that the Fukuoka Method spread in developing countries are described below.
(1) Utilization of Locally Available Materials

Developing countries cannot acquire sufficient materials, so they cannot
construct landfill sites according to their blueprints and maintain them. The
basic system in the Fukuoka Method is simple and there is a high degree of
flexibility for the materials that can be used, so locally available materials
can be adopted.
For example, when the gravel needed for encircling the gas ventilation
pipes were not available, cases used for carrying beer bottles were utilized Source: Yachiyo
Engineering Co., Ltd.
instead. When soil for coverage was not available, old waste was Photo 4-71
Example of Beer
excavated and used as cover. There are other examples of working Bottle Case Usage
together with local administrators and workers to find alternatives through
trial and error. From the viewpoint of protecting waterproofing liner sheets from heavy construction
equipment, liner sheets were only used in the downstream leachate adjustment pond where there is
a high risk of polluting the outside water environment by the leachates collected in the pond. Simple
sheets or clay were used in other sections. In this way, it is possible to reduce the construction and
maintenance costs depending on the innovations used.
Note that the gradient of leachate collecting and drainage pipes is about 1 to 2 degrees, so the
speed of the leachate is slow. This will require a careful design because the pipe diameter will have
to be two or three times that of sewage pipes.
(2) Improving the Motivation of Landfill Operators Personnel by Making Visual

Improvements
The construction of Fukuoka Method landfill sites has changed the appearance and environment
of the working place when compared with open dumping, and this has improved the motivation of
operators personnel. Additionally, this improved the understanding of the theory behind the
Fukuoka Method as well as its operation and maintenance methods among operators in developing
countries, which contributed to the spreading of this technology within the country.
Photo 4-72 Appearance of the Landfill Photo 4-73 Gas Venting Pipes
Fukuoka Method Landfill in Macas City, Ecuador (2016)
Operation and Maintenance Management of Landfill Sites
In Japan, an operation and maintenance plan stipulated by law must be attached to the notification
of establishment of a landfill to be submitted before starting operation of the landfill site. This plan
should include the relevant details agreed upon with local residents. By formulating and
implementing a plan that includes the agreed items, it is possible to obtain the understanding of
local residents regarding the necessity of the facility.
When local governments need to develop landfill sites, they must apply to their prefectural
governments. Together with their application, they must submit an operation and maintenance
management plan. The understanding and cooperation of local residents are extremely important to
facilitate the operation and maintenance of the facility, and the prepared operation and maintenance
plan should carefully consider local conditions and aspirations and the plan contents need to be
thoroughly discussed with local residents. Once commissioned, the facility should be operated and
maintained in accordance with the prepared plan.
Waste Delivery Control

In order to manage and operate a landfill site according to plans, it is important to understand the
types, quantities, and characteristics of the waste that will be delivered to the landfill. Therefore, when
daily waste is delivered, in addition to the types and quantities of the waste and the amount and
material of the covering soil, the following items should also be recorded. Appropriate delivery
management will make it possible to confirm variations in the amounts of waste disposal and estimate
the remaining capacity of the landfill and remaining years of operation at any given time. These
estimates will be very important for determining future landfill construction requirements and
preparing the necessary development plans.
Table 4-36 Daily Recording Items Related to Waste Delivery Control

No. Recording item No. Recording item
1 Delivery time and date 6 Type of waste
2 Vehicle number and type Source of the waste (collection area,

7 intermediate treatment facility, business,
3 Vehicle empty weight generating region, etc.)
4 Gross weight 8 Delivering vendor, driver name
5 Quantity of delivered waste

Source: Based on the "Planning, Design, and Management Procedures for Preparing Waste Landfill Sites, Revised 2010
Edition," (2010), Japan Waste Management Association.
Landfill Work Management

Carrying out landfill work as planned is necessary not only for securing disposal capacity at the
landfill site, but also for stabilizing landfill waste and managing leachate and landfill gas generated
from the landfill. Information on the types and amounts of waste disposed in each landfill disposal cell
is also necessary from the perspective of long-term landfill management, including the prevention of
environmental pollution during the period after completion of disposal operations and abolition of the
landfill and consideration of the land use after abolition.
Facility Operation and Maintenance Management

If the functions of each facility are not fully utilized, the disposal site will become unsanitary,
causing problems such as environmental pollution to the surrounding area and negative impacts on the
health of workers. In addition, since it takes a long time, in some cases several decades, from the
completion of disposal operations to the abolition of the landfill, it is necessary to keep in mind that
each facility will be operated for a long period of time.
Table 4-37 shows the important items for the suitable long-term operation and maintenance
management of landfill sites.
Table 4-37 Items to be Recorded for the Operation and Maintenance Management of
Landfill Sites
Item Recording content
Type and quantity ・ The types and quantities of landfilled waste monthly.
of waste
(Daily recording)
・ Locations where groundwater and discharged water were
Water quality sampled.
inspection ・ Dates when groundwater and discharged water were sampled.
Plan/ (1 time/ 6 months) ・ Dates when water quality inspection results were acquired.
operation ・ Water quality inspection results
Investigation of ・ Date when action was taken.
water quality ・ Contents of the action
deterioration and
countermeasures
Remaining capacity ・ Date when the landfill remaining capacity was measured and
(1 time/ year) calculated, and the results.
・ Date when ・ If an inspection shows that a retaining wall or
Retaining walls, etc. the another facility may be damaged, the date when
inspection action was taken and the content of the action.
was ・ If an inspection shows that waterproofing liner
Water liner
conducted damage is suspected, the date when action was
construction
and results. taken and the content of the action.
Facility Leachate (1 time /year) ・ If an inspection shows that an adjustment pond
adjustment pond may be damaged, the date when action was
equipment taken and the content of the action.
・ If an inspection shows that the leachate
Leachate treatment treatment equipment functions are abnormal,
equipment the date when action was taken and the content
of the action.
Appropriate Closing and Use of the Site
In Japan, landfill sites are appropriately operated and maintained according to standards. This
applies to the plans and design when a landfill is being constructed, and also to the operation and
maintenance once it is operational. Various standards for suitable closing, monitoring period and
abolishing are also in place for after the termination of disposal operation of the landfill. Because
the landfill site is strictly managed until it is abolished, it is possible to use the site effectively after
the landfill site has been abolished. Additionally, there are guidelines for using the site.
(1) Appropriate Closing

In Japan, when waste is no longer received at a landfill site and landfilling work is terminated,
facility services are ended by taking actions, such as the final covering with soil to close it
appropriately. When a facility is closed, although there is no new delivery of waste, the disposed waste
has not completely decomposed, so the water quality of leachate and gas from the landfill must
continue to be controlled according to the facility standards, and operation and maintenance standard.
Once a landfill site is closed, entrance to the site is limited and managed so that landfill waste is not
agitated.
After a monitoring period during which the decomposition of the landfill waste has stabilized, the
water quality of leachate, landfill gas emissions, and landfill waste temperature are confirmed to make
sure that they comply with the standards. If the abolition standards are met, a new project may be
commenced at the site according to the guidelines related to site usage of landfill sites.
Figure 4-37 shows the flow from the start of a landfill site until the site is reused for another purpose.
Flow Chart from the Start of Landfill to the Abolished Landfill Site and Reuse
 From “Start of Landfill” to “End of Landfill”
The landfill period of a landfill site is the period from the commencement of waste delivery to the
end of landfill after the last waste delivery to the landfill. During the landfill period, it is necessary
to manage the disposal site in compliance with the structure standards, and operation and
maintenance standards.
 “Closuring” of the Landfill Site
For landfill site where waste has been delivered and landfilling has been completed, the landfill site
is closed to maintain the site in a safe condition by applying the final soil cover and other measures.
 “Abolition” of a Landfill Site
A closed landfill site can be abolished when it is confirmed that the waste disposed inside the landfill
is sufficiently stable and that the quality of leachate generated and the gas emissions do not
adversely affect the environment in the landfill site and the surrounding area, and when there is no
longer a risk to the living environment with the discontinuation of operation and maintenance.
In order to abolish a landfill site, it must meet the criteria for abolition standards, as shown in Figure
4-38.
 “Site Reuse” of Landfill Site
In accordance with the guideline, an abolished landfill site can be reused as park, etc.
Start of End of
landfill landfill Closing Abolition
Final
Landfill （ Landfill period ） Soil
Cover
Designated area
Landfill Disposal Application for
Notification of Confirmation of
Termination Discontinuance
Site reuse※
Site Reuse
Site reuse ※
*Only the surface of landfill
（No maintenance problems）
Structure Standard
Related Operation and Maintenance standard
Standards
Abolition standard
of landfill
Construction Guideline for altering
the shape of a former final
disposal site
Source: Japan Waste Management Association "Planning, Design, and Management Procedures for Preparing Waste
Landfill Sites, Revised 2010 Edition" (2010).
Figure 4-37 Final Disposal Site Utilization and Related Standards
Abolition standard of landfill

Leachate must be below The temperature in the
the effluent standard disposal area is not
abnormal in relation to
BOD＜60ppm the surrounding ground
COD＜90ppm temperature.
Downstream SS ＜60ppm
observation wells No gas generation
Water quality below Final cover soil
standard value Above 50cm
*: BOD : Biochemical Oxygen Demand

COD : Chemical Oxygen Demand
SS : Suspended Solids
Figure 4-38 Abolition Standard of Landfill
(2) Site Reuse

After landfilling at landfill sites has been terminated, the site will be relatively large and flat and
similar to a vacant lot very much like the condition just before the development of the landfill. It is
therefore possible, after a site has been used as a landfill site, to reuse it effectively to help develop or
revitalize the area. The site reuse is expected to deepen residents’ awareness and understanding of the
construction of landfill sites and promote the locating of new landfill sites. Table 4-38 shows typical
land uses for landfill sites reuse.
Table 4-38 Typical Land Uses for Landfill Sites Reuse (Surface Utilization)
Type Example Features
Nagaoka Park, Utsunomiya City, Tochigi The site of Nagaoka landfill has been
reused to develop Nagaoka Park. It is
being heralded as a park that “would be a
waste not to use”. The theme of Nagaoka
Parks Park is “Creating greenery and formation
of a community”.
Landfill capacity: 490,000 m3
Landfill area: 60,000 m2
Landfill period: 1983 to 2005
Senogawa Park, Hiroshima City, Hiroshima This park was built on the site of the
Senogawa landfill site, which was the final
disposal site of Hiroshima City. There is a
baseball field, tennis courts, indoor
Sports exercise facility, and a park golf course.
facilities Landfill capacity: 2.75 million m3
Landfill area: 210,000 m2
Reuse period: 1994 -
Saitama Environmental Center The Saitama Prefectural landfill site is
(Osato-gun, Saitama) being reused as a solar power generation
facility.
Solar
[Only the solar power generation area]
power
Landfill capacity: 530,000 m3
generation Landfill area: 60,000 m2
Reuse period: 2013 -
Source: Utsunomiya City Website “Nagaoka Park”

https://www.city.utsunomiya.tochigi.jp/kurashi/machi/1020735/1015510/1015537.html (accessed February
24, 2022)
Senogawa Park Website “Overview of the Park” https://www.midori-gr.com/senogawa/overview/ (accessed
February 24, 2022)
Ministry of the Environment, EX Research Institute Ltd. “Report on the Commissioned Study of Measures to
Promote the Introduction of Photovoltaic Power Generation into Landfill Sites, etc., in Fiscal Year 2015” (2016)
Column: Beautiful “Moerenuma Park” where Nature and Art Merge

Moerenuma Park with its green hills is located in the northeast of Sapporo, Hokkaido.
Construction of this park started in 1982 and it opened in 2005. The basic design was done by the
world-famous sculptor, Isamu Noguchi. The park covers a wide expanse of 1.888 million square
meters featuring hills, playgrounds, fountains, etc.
This wonderful facility which is much loved by the citizens, was originally a municipal waste
landfill. From 1979 to 1990, about 2.7 million tons of waste was disposed of here. To reconfigure
the land, construction waste soil from public works projects was used. As of 2022, the Sapporo
municipal government monitors the quality of discharge water, and the water in surrounding rivers.
Source: Based on Moerenuma Park Website https://moerenumapark.jp/ (accessed on March 15, 2022)
Photo 4-74 Landfill (1985) Photo 4-75 Moerenuma Park (2007)
Photo 4-76 Mt. Moere in the Park Photo 4-77 Play Hill in the Park
Source: Sapporo City ”Waste Disposal Administration/3R Policy in Sapporo City (JICA training materials)”
(2019) (Photo 4-74, Photo 4-75)
Yachiyo Engineering Co., Ltd. (Photo 4-76, Photo 4-77)
Topic 5. Modern Trend of Waste Management Contents
Topic 5. Modern Trend of Waste Management
Contents
1 Main Issues of Waste Management in Japan ................................................................ 1
2 Illegal Dumping ....................................................................................................... 2
2.1 Cases in the Past ......................................................................................................... 2
(1) Illegal Industrial Waste Dumping Case in Teshima, Kagawa Prefecture ....................... 2
(2) Illegal Industrial Waste Dumping Case at the Border Between Aomori Prefecture and
Iwate Prefecture ................................................................................................................. 9
2.2 Current Status of Measures.........................................................................................11
(1) Organization ..........................................................................................................11
(2) Legal System ........................................................................................................ 12
(3) Activities by the Central Government, Municipalities and Residents ......................... 13
2.3 Challenges and Considerations for Taking Measures ................................................... 14
3 Dioxins Problem..................................................................................................... 16
3.1 What are Dioxins ...................................................................................................... 16
3.2 Measures Taken against Dioxins in Japan ................................................................... 17
3.3 Current Status of Measures........................................................................................ 17
(1) Organization ......................................................................................................... 17
(2) Legal System ........................................................................................................ 18
(3) Activities by the Central Government and Municipalities ......................................... 18
4 Hazardous Waste .................................................................................................... 21
4.1 Mercury ................................................................................................................... 21
4.2 PCB......................................................................................................................... 28
4.3 Asbestos .................................................................................................................. 32
5 Disaster Waste ....................................................................................................... 36
5.1 Changes in the System .............................................................................................. 36
5.2 Current Situation of Disaster Waste Management ........................................................ 37
(1) Organization ......................................................................................................... 37
(2) Legal System ........................................................................................................ 40
(3) Treatment Flow .................................................................................................... 42
(4) Measures Taken by the Central Government and Municipalities ............................... 44
5.3 Treatment Technology............................................................................................... 46
(1) Collection and Transport ....................................................................................... 46
Contents Topic 5. Modern Trend of Waste Management
(2) Storage Facilities .................................................................................................. 46

(3) Treatment, Recycling and Disposal ........................................................................ 49
5.5 Japan’s International Cooperation .............................................................................. 53
5.6 Cases in the Past ....................................................................................................... 56
6 Marine Plastic Waste Issue ...................................................................................... 60
6.1 Global Situation ....................................................................................................... 60
6.2 Current Situation in Japan ......................................................................................... 63
(1) Organization ......................................................................................................... 66
(2) Legal System ........................................................................................................ 67
(3) Treatment Flow .................................................................................................... 69
(4) Approaches Taken by the Japanese Government and Municipalities.......................... 69
6.3 Monitoring ............................................................................................................... 71
6.4 Challenges and Considerations .................................................................................. 71
6.5 Japan’s International Cooperation .............................................................................. 72
Topic 5. Modern Trend of Waste Management 5-1
1 Main Issues of Waste Management in Japan
Japan has been tackling waste management issues for a long time, with the principle aim of
improving the sanitary living environment of the country’s residents. During this process, various
challenges were confronted and efforts have been exerted to overcome them, such as pollution
problems.
These waste management challenges have become more pronounced with the high economic
growth the country has experienced and include; illegal dumping; hazardous wastes such as mercury
and PCBs which are contained in various products, and asbestos which has been widely used as a
convenient construction material; dioxins which are generated from incineration facilities that play an
important role in prolonging the lifespans of landfill sites and improving sanitary conditions; and
disaster waste generated in large quantities when earthquakes or floods occur. Efforts are continuously
being made to improve waste management systems by changing conventional insights.
It may be very useful for government officials and managers engaged in waste management in
developing countries to learn about the continuous efforts of Japan in this sector in order to find ways
to solve issues that they are currently facing or to prevent or control issues that may occur in the future.
Topic 5 will provide information about specific waste management issues that Japan is continuously
working on and countermeasures that have been adopted to address them.
At the same time, this topic will introduce global trends and the efforts of Japan to deal with the
global issue of marine plastic wastes which needs to be urgently addressed.
5-2 Topic 5. Modern Trend of Waste Management
2 Illegal Dumping
In the management of waste, illegal dumping is a critical issue that that is of concern to many
countries around the world including developing countries. This section will introduce the
necessary countermeasures together with the challenges of implementing them, by reviewing past
cases of large-scale illegal dumping in Japan and the current status of illegal dumping
countermeasures.
2.1 Cases in the Past
In managing waste, illegal dumping is strictly forbidden in Japan and the law prescribes penalties
will be described in this section. However, in the process of industrial development, illegal dumping
occurs repeatedly, and it is extremely difficult to discover and control it in a timely manner. The
specific conditions of two cases of large-scale illegal waste dumping that occurred in Japan in the past
are introduced hereafter, together with the challenges encountered, activities implemented, and other
related information.
(1) Illegal Industrial Waste Dumping Case in Teshima, Kagawa Prefecture
The illegal dumping of industrial waste in Teshima, Kagawa Prefecture in the 1990s is one of the
largest cases of illegal dumping that occurred in Japan.
Triggered by this case, responses to illegal dumping in Japan became stricter and government
officials and citizens have since been cooperating to establish a system to prevent illegal dumping.
The Seto Inland Sea is one of the most representative closed water bodies in the world and is located
in the southwestern part of Japan, surrounded by western Honshu, Shikoku, and Kyushu. Teshima
island of Kagawa Prefecture is located in the northeastern part of the Seto Inland Sea and was once an
island blessed with rich nature. The current population (as of 2021) is about 780 and depopulation is
continuing. Teshima is mainly dependent on primary industries such as agriculture, forestry and
fisheries, and is located somewhat away from the centers of secondary and tertiary industries.
Source: GSI “Geographical Survey Institute Map,” https://maps.gsi.go.jp (accessed January 20, 2022) (lower right
of map)
Yachiyo Engineering Co., Ltd.（upper right of Photo）
Figure 5-1 Location of Teshima
Table 5-1 describes the background of illegal industrial waste dumping case in Teshima.
Table 5-1 Background of Illegal Industrial Waste Dumping Case in Teshima

Kagawa Prefecture
Year Residents Business Operator
(Municipality)
Began mass excavation of
sand at Mizugaura, located
1965
in the northern part of
Teshima.
Applied to the prefecture for
Campaign against the a permit to engage in
1975 construction of a landfill for industrial waste treatment
hazardous industrial waste. business handling hazardous
industrial wastes, etc.
Applied for a permit with a
The prefecture expressed its
revised business description:
policy to permit the project Filed a lawsuit demanding an
“Vermicular (worm)
1977 implementation with conditions injunction against the
farming using wood waste,
on the type and amount of construction of the landfill.
food sludge, and other
industrial waste.
industrial wastes.”
The prefecture permitted the
1978 industrial waste treatment
business.
During this period, the The business operator
prefecture conducted on-site Residents began suffering continued to bring in large
1978
inspections, but failed to certify from asthma and other health quantities of shredder dust
～
the waste types and failed to problems as a result of open and industrial waste for
1989
issue cautions and warnings to burning of waste. burning in the field and other
the business operator. activities.
After the police exposed the
wrongdoing of the business The business was exposed
operator, the prefecture by the Hyogo Prefectural
1990
conducted a fact-finding Police and effectively
investigation and revoked the discontinued.
business license.
Kagawa Prefecture
Year Residents Business Operator
(Municipality)
Based on the Act on the
The prefecture ordered the Settlement of Environmental
business operator to take Pollution Disputes, an
measures to prevent application for arbitration was
Did not carry out the action
1993 environmental pollution based filed by 438 Teshima
order.
on the results of on-site residents against the
inspections that had been prefecture, business operator,
conducted since 1992. and industrial waste
generators.
The prefecture charged the
business operator with violating
the order. At the 4th meeting of
the arbitration committee, a plan
1994
was presented to consider the
removal of waste and other
materials and the cost of
environmental preservation.
Received a summary order
1995 from the court to pay a fine
of JPY 500,000.
Residents applied to the
1996 government for pollution
arbitration.
The prefecture considered environmental preservation measures
without making any changes to the current status of the waste at
the disposal site, but based on the request of the arbitration
1997 committee and financial support from the government, the
prefecture decided to base the decision on intermediate treatment
such as melting, and an interim agreement was concluded with the
residents.
The prefecture received the final
report of the technical study
committee established in
response to the interim
1999 agreement, and the method of
intermediate treatment was
established. The prefecture
proposed that the waste be
treated on Naoshima Island.
The mayor of Naoshima Town expressed his acceptance, and the
2000
arbitration was concluded.
From around 1965, a business operator who owned the land started to collect a large amount of
earth and sand at Mizugaura, located in the northern part of Teshima, and in 1975 construction of an
industrial hazardous waste disposal facility was planned on the site, however the residents organized
a large opposition movement and the project came to a standstill.
The business operator applied for a business license stating they would “cultivate earthworms
utilizing industrial waste of wood chips, food waste, etc.” and Kagawa Prefecture approved the
business license in 1978.
However, the operator soon started to illegally dump industrial wastes not covered in the license in
the site, such as waste oil, paper mill sludge, shredder dust, and ragger ropes and burn them in the
open area. Due to this illegal disposal of industrial waste, local residents started to suffer from health
hazards such as asthma. However, the Kagawa Prefecture government did not monitor the situation
adequately and virtually left it unattended, resulting in increased environmental pollution and health
hazards.
The Hyogo Prefectural Police cracked down on the company on suspicion of “illegal dumping of
industrial waste under the false pretense of cultivating earthworms” in November 1990.
From November 1993, when the residents of the island filed for pollution arbitration, discussions
were continuously held between Kagawa Prefecture and the residents under the mediation of the
arbitration committee. Starting with a 150-day protest in front of the Kagawa Prefectural Government
Office, the residents organized “grassroots activities” such as a protest caravan to Ginza, an upscale
shopping area in Tokyo, round-table talks at 100 locations in Kagawa Prefecture seeking
understanding and support, and others.
In July 1997, an interim agreement was reached between Kagawa Prefecture and the residents. After
that, the Kagawa Prefectural Teshima Waste Treatment Technology Review Committee, which was
established based on this agreement, discussed suitable technical methods for treating the waste in
Teshima that was mixed with harmful substances, without incurring technical or environmental/safety
problems.
Illegal dumping site
0 1km
Source: GSI “Geographical Survey Institute Map” https://maps.gsi.go.jp

(accessed January 20, 2022)
Figure 5-2 Location of Illegal Dumping Site
During the detailed discussion for constructing the treatment facility, various challenges, such as
necessary site for locating the facility, securing operational resources of electricity/water/fuel,
residences for laborers, and carry-in routes were identified and a decision was reached to negotiate
with neighboring NaoshimaTown located west of Teshima in order to address those challenges. In the
interim agreement reached in 1997, the possibility of taking environmental preservation measures at
the disposal site without changing the current situation of the waste was considered, but it was finally
decided to adopt melting and other intermediate treatment methods as the basic approach in order to
preserve the environment around the disposal site and resolve the problem as soon as possible.
Naoshima Town put forward four conditions during the negotiations; (1) The intermediate treatment
facility should not be a source of secondary pollution, (2) The facility should contribute to
revitalization of Naoshima Town, (3) Measures should be taken to prevent harmful rumors and the
like, and (4) Agreement of the townspeople of Naoshima Town should be secured. Furthermore, the
local fishery cooperative expressed concerns about safety of ships navigation and the tarnishing of the
brand of local fishery products due to harmful rumors and called for suitable responses to those
concerns.
In response to those conditions, Kagawa Prefecture proceeded with detailed studies and proposed
the construction of an intermediate treatment facility on the premises of a private company in
Naoshima Town. The related people jointly and sincerely worked together to provide detailed
explanations to local residents to obtain their understanding for the intermediate treatment facility
construction and operation. As a result of these successful efforts, in March 2000 Naoshima Town
accepted the proposal. Furthermore, in May of the same year the final terms of arbitration were
presented by the arbitration committee. Kagawa Prefecture confirmed that the terms met the conditions
for providing the required waste treatment and management and made a comprehensive decision to
accept the arbitration.
Based on this agreement, the work to restore the site to its original state started in 2000 with public
funding and removal and treatment of the industrial waste was completed in July 2019. The total
amount of waste treated was reportedly over 900,000 tons. Furthermore, regarding groundwater, the
expert meeting held in July 2019 confirmed that the effluent standards were achieved in the entire
landfill site.
Photo 5-1 Polluted Situation in Teshima Photo 5-2 Campaign by the Residents
Source: Material for Teshima Residents' Council of Countermeasure for Waste Treatment (Photo 5-1 taken in 1990,
Photo 5-2 taken in 1996)
While implementing the project of restoring the site to its original state (the restoration project),
Kagawa Prefecture made ensuring safety and environmental conservation their top priorities in order
to prevent harmful rumors and made efforts to gain the trust of the local fishery cooperative in
Naoshima Town by holding periodical meetings. Furthermore, a fund was established to support any
measures that may become necessary to deal with harmful rumors that would affect the livelihoods of
fishermen and others, but the fund was not utilized because, fortunately there were no harmful rumors.
In total the more than JPY 80 billion spent for the restoration project, was basically paid by Kagawa
Prefecture under the financial support of the Ministry of the Environment. To prevent a recurrence of
similar cases, Kagawa Prefecture established “the Kagawa Prefecture industrial waste illegal treatment
prevention liaison council” composed of the prefecture, prefectural police, central government,
municipalities, and others intending to strengthen the surveillance system for illegal dumping and
others and has been conducting scheduled air surveillance activities, and information exchange
between the relevant people. The prefecture has also engaged security companies to conduct patrols
at night and during holidays, set up a “waste emergency call” system utilizing telephone message
recorders and facsimile, and established an Environmental Management Office in the public health
and welfare offices of four areas in Kagawa Prefecture to conduct on-site inspection for approved
companies, respond to reports, and take other measures. Concerning surveillance of illegal dumping,
the prefecture has also called for cooperation from private organizations for the purpose of early
detection of illegal dumping. Specifically, in 2004, an agreement with Shikoku Electric Power Co.,
Inc. to provide information on illegal dumping was concluded and similar agreements with four new
private organizations were concluded in 2017. The commercial vehicles used for private organizations
(about 5,400 vehicles in total) are affixed with the “Monitoring Illegal Dumping” stickers created by
the prefecture and meetings with persons in charge of private organizations are held regularly to
exchange information and encourage the provision of information on illegal dumping.
Through this case, Kagawa Prefecture learned the following lessons:
 The prefecture should take a firm stand on compliance with laws and regulations.
 The prefecture should prepare the necessary response emphasizing what is actually being done
and not taking notices from the central government and others superficially.
 The prefecture should take a thorough hands-on approach.
 The prefecture should respond as an organization.
 The prefecture should work on prevention before occurrence, early detection, and early
response to illegal dumping.
 The prefecture should promote the reduction of waste and increased recycling.
In order to put these lessons into practice, Kagawa Prefecture is ensuring that the prefectural
personnel have sufficient knowledge and understanding of the Teshima case through opportunities of
personnel training.
At the national level, taking the occurrence of this incident as an opportunity, the central government
worked to strengthen both the legal system to control illegal dumping and partnership with persons
concerned, as outlined in the countermeasures described in section 2.2.
Photo 5-3 General View of Teshima Photo 5-4 Bird’s Eye View of the Illegal
(November 2021) Dumping Site (November 2021)
Photo 5-5 Illegal Dumping Site Photo 5-6 Illegal Dumping Site
(November 2021) (November 2021)
(2) Illegal Industrial Waste Dumping Case at the Border Between Aomori Prefecture and
Iwate Prefecture
This case occurred at the border between Aomori Prefecture and Iwate Prefecture in the 1990s,
during the same period as the illegal industrial waste dumping case in Teshima, Kagawa Prefecture.
The illegal dumping site straddled the two prefectures, and both prefectures cooperated in
conducting a joint investigation by their respective prefectural police departments. This is a case
where two prefectures worked together in investigating the problem and cooperated in taking
measures to resolve the issue.
In developing countries, there is the possibility similar situations may occur where illegal
dumping sites is located between two or more administrative regions or authorities, and this case
study may serve as a good reference. The history of this case provides important insights into how
related officials and parties in two prefectural governments successfully collaborated to smoothly
investigate and take necessary actions to remedy the situation.
In 1995, as the amount of waste continued to increase in Japan, there was an urgent need to develop
countermeasures to mitigate against environmental problems such as dioxins, and at the time it was
difficult to construct new treatment facilities. Under these circumstances, a large amount of 790,000
m3 of incinerated ash, sludge, waste oil, and other industrial waste was dumped illegally by multiple
private companies on a vast 27-hectare land straddling Takko Town, Aomori Prefecture, and Ninohe
City, Iwate Prefecture, in the Tohoku region. Most of the dumped industrial waste was transported
from the capital area.
The case came to light when Ninohe Public Health Center conducted on-site inspection and
collection of reports based on information provided by the Iwate prefecture’s Agricultural Policy
Planning Department. Illegal waste dumping was suspected and the results of investigation and
surveillance activities conducted over a period of time were reported to the Iwate Prefectural Police.
After that, based on information provided by residents and former employees, the Iwate and Aomori
Prefectural Police departments set up a joint investigation headquarters and conducted a compulsory
investigation on suspicion of violating the Waste Management Act, which revealed the details of the
illegal dumping and led to the arrest of the suspects involved in May 2000. The two private companies
responsible for the illegal dumping were fined JPY 30 million in total with prison sentences and the
companies closed. Since 2000, the two prefectures have successively issued orders to the polluters
responsible for the illegal dumping to remove the waste. However, from 2002 the two prefectures
decided to jointly conduct the waste removal by proxy since the polluters were not expected to take
any major action in this regard. Furthermore, since 2001, the two prefectures conducted an
investigation of the actual state of pollution, a monitoring survey for the surrounding environment, a
soil investigation, as well as other surveys. In 2002, a joint study committee meeting was held by both
prefectures with the attendance of others, where the policy to restore the site to its original state (site
restoration) was discussed.
Source: GSI “Geographical Survey Institute Map” https://maps.gsi.go.jp (accessed January 20, 2022)
Figure 5-3 Location
In 2003, the “Council for Promotion of Measures for Prefecture Border Dumping Site Restoration
to Original State” was established, which included representatives from the two prefectures, as well
as academic experts and residents. The Council held repeated discussions and determined that the
highest priority of the site restoration policy was the prevention of adverse environmental impacts on
the Mabechi-gawa river system and the removal of all the waste and polluted soil.
In 2004, with the approval of the Minister of the Environment the council drew up the restoration
site project execution plan, and the actual removal works commenced from December 2004.
Along with the removal work, the necessary measures for reutilizing the site after restoration were
considered. The Council drew up the “Environmental regeneration plan for the illegal dumping site at
the border between Aomori Prefecture and Iwate Prefecture” in 2010. The environmental regeneration
plan aimed to pass on to the next generations the restored site as a valuable asset that had been realized
through the restoration project, as well as the experiences gained from the project, and to convey a
strong message that such an illegal dump site should never be allowed to happen again. The restored
site was planned to host nature regeneration projects such as trees planting and facilities where
environmental education would be conducted for local residents.
In Aomori Prefecture, waste and polluted soil were all removed on December 19, 2013. It was
decided that the polluted groundwater that would remain at the site after completion of the waste
removal would be actively pumped and treated and that the site restoration project would be completed
by 2022.
Photo 5-7 Overview of Illegal Dumping Photo 5-8 Situation of Illegal Dumping (2012)
(2000)
Source: Labor Union of Iwate Prefecture Website “Representative Report’s Current situation of illegal dumping of
industrial waste on the border between Iwate and Aomori prefectures”
https://www.pref.aomori.lg.jp/soshiki/kankyo/hozen/archive-syashinkan.html (accessed December 13,
2021)
2.2 Current Status of Measures
In Japan, various measures have been taken against illegal dumping, such as enactment of
necessary laws, strengthening cooperation between the central government and municipalities,
strengthening the surveillance system, improving the reporting system, and others and, as a result,
the number of newly detected illegal dumping sites has greatly decreased compared with the
respective numbers during the peak period of the late 1990s.
(1) Organization
In order to prevent illegal dumping, the Ministry of the Environment is actively engaged in
strengthening surveillance activities in cooperation with prefectures and providing them with advice
through dispatching specialists familiar with relevant laws, regulations, and others. The close
cooperation between the Ministry of the Environment and the prefectures has made it possible to both
prevent the emergence of large-scale illegal dumping sites through early detection and prevent their
expansion through early response. In addition, the Ministry of the Environment has established a
financial support system to cover the costs of measures taken by prefectures and municipalities to
facilitate the conservation of the living environment caused by illegal dumping.
(2) Legal System
Revisions to the Waste Management Act were enacted in 1997 and 2000 to address the large-
scale illegal dumping activities that grew in the 1990s, and introduce stronger measures to prohibit
the inappropriate disposal of waste.
The details of the revisions to the act are discussed in this section in order to understand the legal
system necessary to prevent illegal dumping.
The 1997 and 2000 revisions to the Waste Management Act have strengthened measures against
improper disposal of industrial waste, while ensuring that waste generators are responsible for the
proper disposal of their waste.
Specifically, it includes strengthening of the manifest system, strengthening of remedial action
orders (expansion of eligible persons), strengthening of requirements for permission to establish waste
management companies and facilities, strengthening of disqualification requirements, imposition of
heavier penalties, and the establishment of a fund, in addition to others.
The system diagram of measures against illegal dumping cases in Japan is shown in Figure 5-4.
Waste Generators have responsibilities to treat waste properly.

Prefecture governments and municipalities of cabinet order implement monitoring etc.
Prevention Removal of Hindrance

①Thorough implementation of manifest system ⑥Order for Improvement（Article19, Para.(3)）
Manifest system for industrial waste Order for improvement for the operators violated treatment standard
（Especially, utilization of electronic manifest） or storage standard of waste and imported foreign waste etc.
Action until finishing the final treatment
⑦Administrative Order（Article19, Para.(5)(6)）
②Action for securing proper treatment Administrative order for removing hindrance to persons or operators
Permission system, Obligation of execution of consignment contract who collect, store and/or transport waste against its standard,
Management of certification system for sound operators who entrusted them and/or waste generators.
（privilege measures for sound operators
for environmental consideration contract etc.）
⑧Substitute Execution by administration
and charging its cost to obligor (Article19, Para.(8)）
③Penalty for illegal dumping etc.
Illegal dumping：Imprisonment for not more than 5 years, Execution by prefecture government etc. on behalf of obligor,
or fine of not more than 10 MJPY (In case of corporation, 300MJPY) in case that obligor cannot implement it because of time restriction,
Attempted crime that obligor do not follow the order, or it cannot be found who is the polluter
Unconfirmed import: Imprisonment not more than 5 years, （Special case of act of substitute execution by administration）
or fine of not more than 10 MJPY (In case of corporation, 100MJPY) ⑨Support for proper treatment promotion center
Attempted crime, preparation of a crime
70% of its cost for substitute execution by prefecture government etc. shall be
④Securing proper facilities subsidized. ※ 80% of remaining 30% of its cost shall be provided as special delivery tax.
Facility permission system, waste treatment center system, Financial reserve system for maintenance
⑤Strengthening of monitoring
Collection of reports (Article18)・On-site inspection (Article 19) etc.
Patrol, Hotline for reporting illegal dumping, Cooperation between local environmental office and prefecture government etc.
Preparation of site action manual
Source: Ministry of the Environment “Study Group Document on Prevention of Disasters Caused by Embankments
(Response to Illegal Dumping Cases under the Waste Management and Public Cleansing Law)” (2021)
Figure 5-4 System Diagram against Illegal Dumping
When the Waste Management Act was enacted, the penalty for improper disposal (illegal dumping)
was a fine of up to JPY 50,000. The penalties for illegal dumping have been strengthened as various
cases of illegal dumping were discovered. Currently, the maximum term of imprisonment is five years,
the maximum fine is JPY 10 million, both imprisonment and a fine may be imposed, and a fine of up
to JPY 300 million may be imposed on a corporation if the violation is committed in the course of the
corporation's business. In addition, the amendment to the law in 2003 made attempted illegal dumping
also punishable (attempted illegal dumping), and the amendment to the law in 2004 made the
collection or transport of waste for the purpose of illegal dumping also punishable (crime of preparing
to commit an offense).
Table 5-2 shows the changes in penalties for illegal dumping.
Table 5-2 Changes in Penalties for Illegal Dumping

Penalties (Illegal
Dumping) Revised Penalties
Year
1970
(Waste Management A fine not exceeding JPY 50,000
Act enacted)
1976 Up to 6 months imprisonment or a fine of up to JPY 300,000
1991 Up to 6 months imprisonment or a fine of up to JPY 500,000
Up to 3 years imprisonment or a fine of up to JPY 10 million (JPY 100 million
1997
for corporations)
Up to 5 years imprisonment or a fine of up to JPY 10 million (JPY 100 million
2000
for corporations)
2003 Attempted illegal dumping
Penalties enhanced. Deliberate crime (imprisonment for not more than 3 years
2004
or a fine of not more than JPY 3 million) established.
2010 Tougher penalties. Maximum corporate fine increased to JPY 300 million.
Source: Japan Environmental Sanitation Center “Waste Technical Manager Training Course Textbook” (2019)
(3) Activities by the Central Government, Municipalities and Residents
At the national level, an annual survey of the status of inappropriate disposal cases of industrial
waste is conducted and the results are published. Inter-municipal cooperation in waste management
is expanding. Continuous monitoring and inter-municipal cooperation are essential for preventing
illegal dumping.
In addition to the efforts described in “(1) Organization”, the Ministry of the Environment, with the
cooperation of prefectures and municipalities annually investigates and publishes the status of newly
detected illegal dumping sites nationwide, the number of illegal dumping cases as of the end of the
fiscal year, and other related data with the aim of using this information as basic materials for policy
formulation related to measures against illegal dumping of industrial waste.
Inter-municipal cooperation is also spreading as a countermeasure against illegal dumping of
industrial waste. For example, in November 2000, at the call of the Tokyo Metropolitan Government,
the “Wide Area Liaison Council for the Prevention of Improper Disposal of Industrial Waste”
(commonly referred to as “Industrial Waste Scrum 21”) was established. After that, 16 local
governments joined, and now the council consists of 37 local governments in 12 prefectures (including
Tokyo Metropolis) and 25 cities (ordinance-designated cities and core cities).
In addition, several local governments have established their own unique measures. Aomori
Prefecture has setup a “Construction material waste reception completion report system”, Chiba
Prefecture has setup a “night-time ban on carrying waste into and out of its disposal sites” and defined
“clarification of the obligations of land owners, etc. related to illegal dumping”, and Niigata Prefecture
has a “Monitoring by unmanned aerial vehicles (UAVs)”, Fukuoka Prefecture has “visualization of
monitoring (mapping system)”, and Fukuoka City has “reward system for reporting illegal dumping”.
Residents are required to be aware that “illegal dumping is unacceptable” and to have sufficient
concern to report any illegal dumping they may encounter to the police and local governments.
2.3 Challenges and Considerations for Taking Measures
Concerning illegal dumping, it is important to foster the social recognition that “illegal dumping
is a crime” and continue to communicate related information to the public and businesses.
Figure 5-5 shows that the number of cases of illegal dumping of waste, especially industrial waste,
is decreasing every year since 1998 when it reached its peak. Japan aims to eradicate illegal dumping
by properly and continuously employing various measures, as described above against illegal dumping.
Waste amount
(1,000 tons) Number of cases
1,400 1,400
Waste amount of illegal dumping
1,200 1,200
Number of cases of illegal dumping
1,000 1,000
800 800
600 600
400 400
200 200
0 0
1996
1999
2002
2003
2006
2009
2012
2013
2016
2019
1995
1997
1998
2000
2001
2004
2005
2007
2008
2010
2011
2014
2015
2017
2018
2020
Fiscal Year
Source: Ministry of the Environment “Survey results of illegal dumping, etc. (FY2020)” (2022)
Figure 5-5 Transition of Number and Amount of Newly Discovered Cases of Illegal dumping
In situations where the responsible party for illegal disposal, the polluter is not in a position to
remove the illegal waste dumped and restore the site, then the related prefectural government will by
proxy, either directly, or engage a third party to, remove the waste and restore the site. The costs for
waste removal and restoration should be borne by the polluter. However, when it is difficult to force
the polluter to cover the costs for any reason, then the related prefecture can obtain financial support
from a fund established jointly by the government and industries. But unfortunately, in recent years
there has been a growing challenge to maintain the fund as the share shouldered by the industries has
been annually decreasing.
With regard to this, the study group meeting in 2020 adopted a policy to expand cooperation from
the industry sector, and currently support is being sought from various enterprises and organizations.
Concerning illegal dumping, it is important is to foster social recognition that illegal dumping is a
crime, and to continue communication of related information to the public and businesses. In the past
there have been cases of illegal dumping where early detection prevented them from expanding, and
therefore it is essential for local governments to collect information on illegal dumping cases and act
firmly and swiftly in cooperation with the police against pernicious operators.
Fostering consciousness about beautifying towns among people, business operators, and
administrations is important to avoid having an unclean city where “waste attracts waste”. In that
respect, it is necessary to continue activities such as cleanup events and the like, and encourage
residents to participate.
3 Dioxins Problem
Dioxins are substances that are unintentionally generated during the combustion of materials, and
there are many types of facilities that may generate them. They hardly decompose in the
environment and are likely to accumulate in an organism. There are many uncertainties about the
extents of chronic toxicity in an organism. However, there are particular concerns on the effects of
dioxins on the next generation including reproductive effects, and further research is necessary.
With regard to waste management, concerns were raised in the past about dioxins emitted to the
atmosphere during waste incineration and strenuous efforts have been exerted to develop the
required technologies needed to solve this problem. This section presents the current status and
issues related to the countermeasures against dioxins employed in Japan, countermeasures that will
be required in the future, and matters to be considered when implementing the countermeasures.
3.1 What are Dioxins
Dioxins are generic term for Polychlorinated dibenzo-p-dioxins (PCDDs) and Polychlorinated
dibenzofurans (PCDFs). Although the substances that show toxicity like dioxins such as coplanar-
polychlorinated biphenyl (coplanar PCB) are called dioxin-like compounds, dioxins in this document
refer not only to PCDDs and PCDFs but also coplanar PCB in accordance with the definition in Act
on Special Measures concerning Countermeasures against Dioxins enacted in 1999.
Dioxins have basically a structure where two benzene rings are combined with oxygen and chlorine
is attached there, as shown Figure 5-6. There are 75 types of PCDD, 135 types of PCDF, and dozens
of types of coplanar PCB since the shape varies depending on the number of attached chlorine and
where they are attached, and only 29 types of them are regarded as toxic.
*PCBs, in which benzene rings are on the same plane and have
a flat structure, are called “coplanar PCBs”.
Some PCBs have benzene rings on different planes and have
similar toxicity as Dioxins. In Japan, they are also called
“coplanar PCBs”.
Source: Brochure shared with related ministries “Dioxins” (2012)
Figure 5-6 Molecular Structure of Dioxins

3.2 Measures Taken against Dioxins in Japan
In Japan, there were reports about the effect of dioxins on the human body, and in 1999 the
Dioxins Measures Promotion Basic Policy and the Act on Special Measures concerning
Countermeasures against Dioxins were established. As a result of implementing the measures
defined in the policy and act, the environmental standards have been satisfied at most of the
measurement points for atmosphere, water quality, and others.
In the 1970s, reports that dioxins were having an adverse effect on the environment were being
seriously discussed worldwide, and damage reports were issued one after another. In Japan, emission
of dioxins to the environment became notable from the 1960s to the 1980s and the main cause was
considered to be the use of agricultural chemicals that contain highly concentrated dioxins
(pentachlorophenol, chloronitrofen). The effect of dioxins on environmental contamination began to
be widely reported by the media in 1980s, and various researches and investigations covering different
topics including dioxins effects on the human body were conducted. In the 1990s, the effects of dioxins
on breast milk and contamination of food including vegetables and other foodstuffs were reported,
which led to prompt the need for urgent measures to be taken. During this period, although the usage
of agricultural chemicals which were causing the emission of dioxins ceased, the emission of dioxins
from operation of incinerators gradually became more conspicuous. For this reason, based on the
Dioxins Measures Promotion Basic Policy and the Act on Special Measures concerning
Countermeasures against Dioxins formulated in 1999 with the aim of preventing environmental
pollution caused by dioxins, the central government, municipalities, business operators, and citizens
worked to implement various pollution prevention measures. As a result, the total amount of emission
of dioxins to the environment was reduced by 90% at the end of 2002 compared with 1997. With
regard to atmosphere, water quality, and others, the environmental concentration steadily decreased
and the environmental standards have been satisfied at most of the measurement points. Furthermore,
with regard to sediments and soil, pollution control measures and others are currently implemented
individually for each identified contaminated location.
3.3 Current Status of Measures
(1) Organization
The central government agency responsible for enforcing the Act on Special Measures concerning
Countermeasures against Dioxins is the Ministry of the Environment, and the ministry’s structure is
stipulated in the Order for Organization of Ministry of the Environment. The “Environmental
Management Bureau” of the ministry is mainly responsible for enforcing that act.
Furthermore, each municipality conducts periodical measurements of dioxins in the air. As an
example, for Tokyo the “Environmental Improvement Division” and the “Natural Environment
Division” in the Bureau of Environment are in charge of air monitoring, and the monitoring results
are publicized in their web site.
(2) Legal System
With regard to dioxins, the Order for Enforcement of the Waste Management Act was revised in
1997 and regulatory standards for gas emissions at waste incineration plants were established.
Furthermore, the Act on Special Measures concerning Countermeasures against Dioxins was
established in July 12, 1999, and based on which regulations for gas emissions as well as those for
wastewater, soot and dust, incinerated ash, and others at waste incineration plants began to be applied.
Furthermore, “the Dioxins Measures Promotion Basic Policy” was formulated at the meeting of
cabinet members in charge of dioxins measures held on March 30, 1999 (and revised on September
28, 1999), and the entire government has been deeply committed to both implementing and facilitating
implementation of various measures for drastically lowering the emission amounts of dioxins.
The environmental standards concerning air pollution, water pollution, and soil pollution were
stipulated in the Ministry of the Environment Notification No. 68 in December 1999 and were applied
from January 2000. Table 5-3 shows the outline of the environmental standards.
Table 5-3 Outline of Environmental Standards

Medium Standard value Measuring method
Method of measuring a sample collected with the air
sampler where the sampling tube with attached
Air 0.6pg-TEQ/m3 or less polyurethane foam is attached to the subsequent part of
the filter paper with high-resolution gas
chromatography-mass spectrometer
Water quality 1pg-TEQ/L or less Method specified in Japanese Industrial Standard K0312
Method of measuring the dioxins in the sediment at the
Sediment at the bottom of water obtained by the Soxhlet extraction
150pg-TEQ/g or less
bottom of water method with high-resolution gas chromatography-mass
spectrometer
Method of measuring dioxins in the soil obtained by the
1,000pg-TEQ/g or
Soil Soxhlet extraction method with high-resolution gas
less chromatography-mass spectrometer
Source: Ministry of the Environment “The environmental standards related to air pollution, water pollution (including
pollution of bottom material of bottom of water), and soil pollution” ((Notified in 1999, amended in 2009))
(3) Activities by the Central Government and Municipalities
In Japan the “Plan for reducing the amount of dioxins emitted in relation with business activities in
Japan” was formulated and is under implementation. The first plan was formulated in September 2000,
followed by the second plan in June 2005, and the third plan in August 2012. Based on these plans
long-term efforts are being taken to reduce risks of dioxins considering their characteristic such as low
degradability and accumulating property.

The second plan also reflected the contents of the “Stockholm Convention on Persistent Organic
Pollutants” that became effective in May 2004.
The reduction target set in the first plan was 90% by the end of 2002 compared with 1997, but an
actual reduction of 95% was achieved. Similarly, the reduction target set in the second plan of 15%
by 2010, compared with 2003 was surpassed by the achieved reduction rate of 59%. This was achieved
through the serious efforts jointly made by the private and public sectors. It should be noted that in the
third plan, the target amount was set but the target year was not specified.
Furthermore, guidelines for emission reduction measures for dioxins related with waste treatment
were drawn up in 1990 and revised in 1997. Dioxins emitted from waste incineration plants are said
to be generated by incomplete combustion and synthesized by catalytic action on the surface of dust
when the gas temperature reaches about 300°C in flue gas treatment facilities. For this reason, the
guidelines call for the following measures to be taken at incineration facilities to ensure proper
combustion management: (1) ensure continuous operation of the facility for as long as possible, (2)
maintain the combustion temperature at 800°C or higher (850°C or higher is desirable), (3) install gas
cooling facilities, exhaust gas treatment facilities and devices, etc. Based on these guidelines, each
municipality is considering utilization and expansion of inter-municipal facilities in waste treatment,
and installing and operating full continuous type incineration plants that meet the criteria of the
guidelines.
Dioxins require long-term risk management, and it is important for all the parties concerned to
continue to work together and take the necessary countermeasures.
Research on the health effects of dioxins has progressed and, at present there are concerns about the
possible effects on reproduction, the brain, and the immune system even at minute amounts, rather
than carcinogenicity and lethal toxicity that were major problems in the past. Since such effects are
considered to be most dangerous for fetuses, infants, and toddlers, their exposure to dioxins may have
a bad effect on the next generation. Furthermore, it is necessary to continue paying close attention to
effects by similar compounds such as brominated dioxins and the risk for people who eat a lot of fish.
The World Health Organization (WHO) recently started a review of toxicity equivalency factor, and
it is possible that in the future they will start a review of the tolerable daily intake. For this reason, it
is necessary to take a long-term approach regarding issues related to dioxins, such as paying close
attention to trends in domestic and international risk assessments and taking proactive measures based
on those trends.
Although the amount of emission of dioxins has been drastically reduced, since dioxins are
substances that are unintentionally generated during the combustion of materials, there is a possibility
that unidentified generation sources or new generation sources will be discovered in the future. For
this reason, related parties in Japan are steadily implementing current countermeasures, such as
monitoring the source of emissions, grasping the total amount of emissions, monitoring the state of
environmental contamination, thoroughly implementing countermeasures at high-concentration
contaminated points, and smoothly dismantling obsolete incinerators. Emissions need to be managed
over the long term so that at least current emissions levels are not exceeded. Additionally, it is
necessary to proactively develop pollution prevention measures in future through the progress of
scientific knowledge and reflection of that progress in countermeasures while observing the latest
trends in risk assessment such as efforts for reviewing the tolerable daily intake.
As mentioned earlier, with regard to issues of dioxins, long-term risk management is necessary and
it is required that the central government, municipalities, business operators, and citizens should
continue to jointly take measures against dioxins pollution.
4 Hazardous Waste
Waste generated by industries, businesses, and our daily life contains hazardous waste that is
difficult to treat. For the purpose of this section, mercury, PCB, and asbestos have been selected as
major hazardous wastes to be discussed; an overview of their properties and toxicity is presented,
together with current countermeasures in Japan, and past cases of pollution caused by these wastes.
Through the description of actual cases, the necessary measures and the challenges for their
implementation are also introduced.
4.1 Mercury
Mercury has an effect on living organisms, which is a disorder due to “corrosive action of
inorganic mercury compounds” and “uptake of methyl mercury”. Minamata disease is widely
known as the most famous disorder that has occurred in Japan from mercury pollution. Globally,
research was conducted by the United Nations in 2000s and the Minamata Convention went into
effect in 2017. Japan ratified this convention and is engaged in developing and applying the
countermeasures.
In addition to learning about the mechanisms by which mercury affects human bodies, the need
for countermeasures and issues in their implementation will be presented in this section by learning
about Minamata disease cases and countermeasures in Japan.
In Japan, "Guidelines for Mercury Waste" have been established to explain the considerations on
the handling of mercury waste, and its collection, transportation, and disposal.
Mercury is the only metallic element that is liquid under both normal temperature and pressure, and
as shown in Figure 5-7, mercury in the environment can be largely divided into 3 chemical forms;
metallic mercury, inorganic mercury compound, and organic mercury compound (mainly methyl
mercury).
Mercury is believed to affect living organisms mainly through two mechanisms. One is the corrosive
action of inorganic mercury compounds. This is caused by the mercury ions of inorganic mercury
compound, which have an effect of inflaming cells when they come in contact with either the inner or
outer surfaces of living organisms. Therefore, if taken orally, they cause disorders in the kidneys.
The second mechanism is the disorder caused by an uptake of methyl mercury, which caused the
Minamata disease. Methyl mercury combines with “cysteine”, which is amino acid, and a highly toxic
combined-body is generated. Since the structure of this combined-body is similar to that of
“methionine”, which is a necessary amino acid, it is synthesized as partial protein in the body’s process
for absorbing and transporting necessary amino acids, and inhibits the normal functions of the protein.
Methylmercury
（CH3Hg+）
Mercury
Carbon（C） Oxygen（O）
（Hg）
Sulfur（S） Nitrogen Hydrogen（H）
Cysteine Methionine （N）
Binding body of
（Amino Acid） methylmercury （EAA:
and cysteine Essential
Amino Acid）
Source: Ministry of the Environment “A wonder story of Mercury (version 2)” (2021)
Figure 5-7 Conjugating of Methylmercury and Cysteine
Regarding exposure to mercury, in addition to its chemical form, the amount taken into the body
and how it is absorbed and metabolized are important.
Metallic mercury exerts little action on organisms, and, if accidentally swallowed, it is considered
not to cause serious effect because it is usually excreted as is, with little absorption from the digestive
tract. However, if it becomes mercury vapor, it is absorbed in higher efficiency than the gas exchange
function of the lungs and circulates in the body carried by the blood stream. Furthermore, it passes
through the protective barrier, referred to as the blood-brain barrier and reaches the central nerve
including the brain. After entering the brain, if metallic mercury becomes mercury ions by the
metabolism of the organism, expression of the disorder occurs according to each region due to the
corrosive action of inorganic mercury compounds mentioned earlier.
Methyl mercury is mainly taken orally from food and is absorbed at a high efficiency through the
digestive tract. Although methyl mercury is also gradually oxidized and excreted, since part of it is
mistaken for amino acid and transported and creeps into protein, a disorder due to mercury occurs
according to each region and the level of denaturalization.
With regard to inorganic mercury compounds, since the toxicity is different depending on their
chemical stability, the action on organisms is also different. Since mercuric sulfide is low in aqueous
solubility and is the safest chemical form of mercury, stabilizing treatment into sulfureting mercury in
advance might be required in the final disposal of waste mercury. When inorganic mercury compounds
are discharged into the aquatic environment, they may be methylated by bacterial metabolism under
anaerobic conditions to form methylmercury, which is highly toxic. Special attention should be paid
to the disposal of wastes containing mercury, even inorganic mercury compounds, because high
concentrations may accumulate in large fish through the food chain in the natural world.
With regard to global action, the United Nations Environment Programme (UNEP) started research
activities concerning global mercury pollution in 2001 and issued the report titled “Global Mercury
Assessment” in 2002 summarizing the effects on people and the contamination status. The report was
then revised several times and the 2018 version is the latest revision (as of 2021). The actual state of
global mercury cycle described in this report is shown in Figure 5-8. The report states that it is crucial
to reduce artificial discharge of mercury to reduce the amount of mercury circulating in the
environment in the future.
Source: UNEP “Global Mercury Assessment 2018” (2018)

Figure 5-8 Global Circulation of Mercury
“The Minamata Convention on Mercury” (hereinafter referred to as “Minamata Convention”),

which was adopted at the diplomatic conference in October 2013 and is influenced by the
aforementioned UNEP report, aims to recognize mercury, which has potential for long-range
environmental transport, circularity/persistency in the environment, and bio-accumulation potential,
as a chemical substance that causes a global concern for the protection of health and environment of
people from artificial discharge and emission of mercury. Table 5-4 shows the chronology until
Minamata Convention went into effect, and Figure 5-9 shows the configuration of Minamata
Convention and relation to collateral measures.
Table 5-4 Chronology until Minamata Convention Went into Effect

Period Event
“Diplomatic Conference for the Minamata Convention on Mercury” was held
October 2013 in Minamata, Kumamoto Prefecture.
“Minamata Convention on Mercury” was adopted unanimously.
Towards ratification of the convention, enactment of Act on Preventing
Environmental Pollution of Mercury (Mercury Pollution Prevention Act),
2015
revision of Air Pollution Control Act and Order for Enforcement of the Waste
Management Act, etc.
February 2016 Japan ratified the convention.
The number of signatory countries reached 50, which is a requirement for the
May 2017
convention to go into effect.
August 16, 2017 The convention went into effect.
Source: Ministry of the Environment “Revision of the Order for Enforcement of the Waste Management Act (for proper
management of mercury waste)” (2017)
Primary mining of mercury Discharge into environment

（Article3, Para.(3)）
Execution under the act on Discharge into atmosphere Discharge into water/soil
preventing mercury pollution （Article8）（Article9）
（Mining act, revised by its Executed under the act on Secured by the act on
supplementary provisions） preventing air pollution preventing water pollution
（Not executed）
Preparation of inventory（Article8, para(7), Article9, para (6))
Mercury Trade
Use of mercury Disposal
Import and export of
mercury Production of mercury products Mercury waste
（Article3, para(6),(8）) （Article4）（Article11）
Executed under the foreign Executed under the act on preventing mercury pollution <Waste defined
exchange and trade act by the act>
Temporary storage of mercury Executed by the ordinance
Import and export of under waste management act
（Article10）
mercury products Executed under the act on preventing mercury pollution
（Article4） <Things not applied to the act
Executed under the foreign as waste>
Use of mercury in Small scale gold mining Executed under the act on
Exchange and trade act （Article7）
manufacturing process preventing mercury pollution
（Article5） Executed under the act on
Executed under the act on preventing mercury
Action Plan pollution
preventing mercury pollution Polluted location
（Article 20 etc.）（Not executed）
（Not executed）（Article12）
Executed under the act on
Preventing mercury pollution Funding system（Article13）,Capacity development, technical cooperation Secured by the act on
soil pollution control
（article14）,Health aspect（Article16）,Information sharing
and the act on
（Article17）,Public awareness raising and education（Article18）,Research,
preventing water
development, monitoring（Article19）etc.
pollution
Source: Ministry of the Environment “Revision of the Order for Enforcement of the Waste Management Act (for proper
management of mercury waste)” (2017)
Figure 5-9 Configuration of Minamata Convention and Relation to Collateral Measures
The Ministry of the Environment has drawn up guidelines for ensuring the appropriate treatment of
mercury waste and the latest version as of now (year 2022) is the 3rd version published in March 2021.
The background and the goals are extracted from the guidelines as below:
As an activity for achieving the goal of the convention, Minamata Convention Article 11 (mercury
waste) requests signatory countries to take appropriate measures so that mercury waste should be
managed in a way appropriate for the environment, and the Order for Enforcement of the Waste
Management Act was revised based on the treatment of mercury waste appropriate for the
environment shown in “Mercury waste measures in future based on Minamata Convention on

Mercury” submitted by the Central Environment Council in February 2015. The guidelines were
created for the purpose of ensuring appropriate treatment for mercury waste by specifically
describing new considerations for treatment, collection, transportation, disposal, or others of
mercury waste based mainly on the revised order for enforcement.
Source: Ministry of the Environment “Guidelines for Mercury Waste, Version 3” (2021)
In addition, the classification of mercury waste in the guidelines is shown in Figure 5-10.
Metal Mercury Waste of

Mercury pollutants
Waste etc. mercury products
Soot etc. including mercury, generated by incineration Mercury Thermometers,
Mercury Waste
General facilities for municipal waste（※） fluorescent lamps etc.
・Mercury waste
Waste collected from waste Collected Mercury
of mercury products
Special Controlled Waste
Mercury Waste （Special Controlled Soot etc. including Industrial waste of

etc. Industrial Waste） mercury products using mercury
（including Mercury Waste generated from specific ・Soot, ash, sludge and Products indicated as using
waste compounds） facilities, which amount of slag which include mercury mercury etc. such as
・Mercury waste etc. dissolution of mercury more than 15mg/kg mercury thermometers and
generated by specific exceeds criteria ・Waste acid, Waste alkali fluorescent lamps etc.
facilities which include mercury
Industrial ・Things including more than 15mg/L
mercury etc. or mercury Mercury
Waste waste collected from sphygmomanometers,
waste of products using mercury
mercury ・Soot, ash, sludge and slag which include mercury more thermometers etc.
than 1,000mg/kg
Collected
・Waste acid and waste alkali which include mercury
Mercury
more than 1,000mg/L
Collected Mercury
Underline：defined by waste management act revised in 2015 under Minamata convention

Legend
Waste which is obliged to be collected mercury RED：Special controlled municipal waste or special controlled industrial waste
※ Soot generated from incineration facilities for municipal waste which capacity is more than 5 tons / day shall be special controlled municipal waste
*: Soot discharged from incineration facilities for municipal waste with treatment capacity of more than 5 tons
per day is regarded as “Special controlled municipal waste”.
Source: Ministry of the Environment “Guidelines for Mercury Waste” (2021)
Figure 5-10 Classification of Mercury Waste
Metallic mercury waste, etc.

Waste metallic mercury, etc. is waste that was originally mercury or chemical compounds of
mercury, and is designated either as “waste mercury, etc.” under specially controlled industrial waste,
or “waste mercury”, under specially controlled municipal waste. When disposing or recycling of
“waste mercury”, or landfilling of “waste mercury, etc.”, the waste must be sulfurized and solidified
as specified in the “Standards on solidification, etc. of waste containing metals, etc.” notified by the
Environment Agency (currently the Ministry of the Environment). Furthermore, disposal of “waste
mercury, etc.” and other treated materials are prohibited in landfills developed on reclaimed land in
the sea, and if the result of the elution test, specified as assay method does not satisfy the landfill
criteria described in Table 5-5, the waste must be disposed in a sealed-type landfill site. On the other
hand, if the criteria are satisfied, the waste can be disposed at a controlled final landfill site after taking
additional measures, such as constructing a container structure where the waste is contained and
rainwater entry is prevented from coming into contact with it.
Table 5-5 Landfill Criteria

Target Contents
Alkyl mercury compound Alkyl mercury compound is not detected
Mercury or chemical
0.005 mg or less of mercury per 1 liter
compound of mercury
Source: Ministry of the Environment “Guidelines for Mercury Waste, Version 3” (2021)
Mercury-contaminated Matter
Mercury-contaminated matter is matter that was contaminated with mercury or chemical
compounds of mercury and has become waste. Mercury-contaminated matter is defined in the
guidelines as follows:
 Specially controlled industrial waste or specially controlled municipal waste
 Soot and dust, ash, sludge, waste acid, waste alkali, slag, paper waste, wood waste, waste textile,
and others that contain mercury or chemical compounds of mercury
 Soot and dust, ash, sludge, waste acid, waste alkali, and slag that are industrial waste but are not
specially controlled industrial waste and contain mercury or chemical compounds of mercury
whose concentration is more than a certain value are regarded as “soot and dust and others that
contain mercury”
When conducting disposal or recycling of “soot and dust and others that contain mercury”, it is
required to take necessary measures in order to prevent scatter of mercury or chemical compounds of
mercury. Furthermore, when conducting landfill disposal of “soot and dust and others that contain
mercury” that are one of soot and duct, ash, or sludge and do not satisfy the landfill decision criteria,
it is required to treat them in advance so that they satisfy the landfill criteria or conduct cement
solidification in a specified method. If “soot and dust and others that contain mercury” or those that
have been treated satisfy the landfill criteria, they can be disposed of at a controlled final landfill site.
Mercury-using-product Waste
Mercury-using-product waste is waste that was original a mercury-using product, for example,
fluorescent tubes, mercury-containing dry cell batteries, mercury thermometers, etc. Manufacturers
or importers of mercury-using products are obligated to make efforts to provide information such as
notices about usage of mercury and others in mercury-using products they produce or import so that
consumers can properly separate and discharge a mercury-using product when the product becomes
waste. When disposing or recycling mercury-using-product industrial waste, it is required to take
necessary measures in order to prevent scatter of mercury or chemical compounds of mercury. Before
disposing mercury-using-product industrial waste at the landfill, the waste should be treated, such as
insolubilization. It is prohibited to dispose of mercury-using-product industrial waste at an inert
landfill site.
In Japan, mercury waste from municipal solid waste became a problem in the early 1980s, and
municipalities began to implement separate collection of dry cell batteries and fluorescent lamps.
Many municipalities separate and collect mercury-containing wastes such as batteries and fluorescent
lamps from other waste as noncombustible and hazardous wastes. After collecting the mercury-
containing wastes, the mercury is recovered through inter-municipal treatment (through the inter-
municipal treatment route designated by the government) or consignment to private companies by
each municipality.
Column: Minamata Disease

Minamata disease is a toxic nervous disease that occurred among residents who routinely ate
much seafood - such as fish, shrimps, crabs, and shellfish that absorbed methylmercury compounds
discharged by a chemical factory producing acetaldehyde into the sea and rivers, directly from gills
and the digestive tract or had them in the body accumulated with a high concentration through the
food chain.
The disease occurred along the coast of Yatsushiro Sea centering on the surrounding area of
Minamata Bay and was treated at first as a nervous disease of unknown cause. The first patient was
reported in May 1956, and 52 patients were identified by the end of that year.
Furthermore, the patients with the same symptoms were identified along the Aganogawa river in
Niigata Prefecture in May 1965, and 26 patients were identified in July 1965.
A variety of symptoms occur in patients of Minamata disease clinically, but the main symptoms
are sensory disorder of the distal portion of the extremities, cerebellar ataxia, central ocular motility
disorder, and central deafness. Furthermore, fetal Minamata disease has also been confirmed as a
result of mothers being exposed to methylmercury during pregnancy.
Minamata disease is a typical byproduct of pollution where contaminated substances, which are
generated incidentally by industrial activities that bring a life of affluence, eroded human bodies
through the environment. The certification and compensation for patients of Minamata disease are
being continued by the central government and the municipalities even now.
4.2 PCB
In Japan, although PCB was used for various uses in the past, at present orders were issued for
discontinuing production, collection, and prohibition of importation. Collected PCB is treated by
the Japan Environmental Storage & Safety Corporation (JESCO).
This section introduces the harmful characteristics of PCB and the measures taken against PCB
in Japan to underline to developing countries the importance of taking similar measures.
PCB (Poly Chlorinated Biphenyl) is the abbreviation of poly chlorinated biphenyl and is a chemical
substance made artificially. Since PCB has chemically stable characteristics such as difficulty to
dissolve in water, high boiling point, difficulty to decompose by heat, incombustibility, and excellent
electrical insulation, it was used for various purposes such as insulating oil for electric equipment used
on daily basis, heat medium for heat exchanger, no-carbon paper, and others.
Typical electric equipment that used PCB included transformers, capacitors, and stabilizers.
Transformers and capacitors containing PCB were used as equipment in such as old factories and
buildings and stabilizers were used for fluorescent light component in old factories and schools
amongst others.
Since PCB is easily dissolved in fat, it is reported that chronic intake results in gradual accumulation
in the body and causes various symptoms. In the 1960s, PCB became a popular media topic triggered
by the Kanemi Oil Poisoning Incident in 1968 (refer to the Column: Kanemi Oil Poisoning Incident)
promoting the government to take countermeasures. Based on the administrative guidance issued by
the Ministry of International Trade and Industry in 1972, orders were issued for production
discontinuation, collection and others, and at present importation is prohibited.
For 30 years after the discontinuation of PCB production, attempts were made to construct a
treatment facility under a private sector initiative but it was not possible to reach a decision on siting
the facility because of difficulty in gaining surrounding residents approval. Because of the prolonged
storage of the collected PCB waste there were increased concerns of potential loss or leakage
occurrences which would result in environmental pollution. In order to deal with this situation, the Act
on Special Measures concerning Promotion of Proper Treatment of PCB Wastes (PCB Special
Measures Law) was promulgated on June 22, 2001 and came into force on July 15 of the same year
for the purpose of promoting secure and appropriate treatment. Furthermore, the Act on Japan
Environmental Safety Corporation came into force in 2003, and based on this act, the Japan
Environmental Storage & Safety Corporation (JESCO) was established as a wholly owned subsidiary
of the central government. Through this company, treatment facilities were developed at 5 locations
in Japan, as shown in Figure 5-11 and operation of the Kita Kyushu treatment facility commenced in
2004.
Hokkaido Business
Area
Toyota Business
Area
Osaka Business Tokyo Business
Area Area
Kitakyushu
Business Area
Source: Ministry of the Environment Website “Information website for early treatment of poly chlorinated biphenyl
(PCB)”
http://pcb-soukishori.env.go.jp/about/pcb.html (accessed February 1, 2022)
Figure 5-11 Locations of Region-based PCB Waste Treatment Facilities Established by JESCO
Business operators who are storing PCB waste are obligated to both notify on the status of storage
and disposal every year, and dispose of the waste within the period prescribed in the Cabinet Order.
This period was initially stipulated to be until July 2016, but in light of the fact that a large amount of
electrical equipment was found to be contaminated with minute amounts of PCBs, and that JESCO’s
disposal was behind schedule, in December 2012, the Cabinet Order was amended to extend the period
to the end of March 2027.
Furthermore, the PCB Special Measures Law was revised in 2016. The outline of the revision was
as follows:
(a) Cabinet decision on the PCB waste treatment basic plan
In order for all the concerned government bodies to implement the plan together, the PCB
waste treatment basic plan will be established by cabinet decision.
(b) Disposal of high concentration PCB waste is made mandatory.
It is mandatory for storage business operators to dispose of the waste with high concentration
of PCB before the due date of planned treatment completion, and an improvement order can
be issued for the violation of this obligation. Penalties are imposed on violation of order.
(c) Strengthening of authority for collection of reports and on-site inspections
Strengthen the authority of prefectural governments and municipalities to collect reports
from business operators and conduct on-site inspections regarding high-concentration PCB
wastes for which no notifications had been issued, and which would be in violation of the
PCB Special Measures Law.
(d) Execution by proxy for disposal of high concentration PCB waste
If the storage business operator is unknown or not in a position to dispose of the PCB waste
stored, prefectures and municipalities will be able to carry out proxy execution related to the
disposal of high-concentration PCB waste.
Table 5-6 Events Related to PCB Waste

Month and Year Event
1954 Domestic production of PCB started.
1968 The Kanemi Oil Poisoning Incident occurred.
Due to administrative guidance by the Ministry of International Trade and
1972
Industry, production discontinuation/collection and others were ordered.
Electrical Insulator Treatment Association started attempts for siting of a
1973
treatment facility.
Act on Special Measures concerning Promotion of Proper Treatment of PCB
Wastes was enacted.
2001 Japan Environment Corporation Law was revised - PCB treatment project
was added as one operation of this corporation that was engaged in the
business of construction and transfer of pollution control facilities and others.
2003 Act on Japan Environmental Safety Corporation was enacted.
2004 Japan Environmental Safety Corporation (currently JESCO) was established.
A study committee concerning promotion of proper treatment of PCB waste
2011
was held.
The study committee report on the promotion of proper treatment of PCB
waste “Promotion of Proper Treatment of PCB Waste in Future” was
2012 compiled.
The period prescribed in the Cabinet Order referred to in the PCB Special
Measures Law was postponed to March 31, 2027.
October - The local governments related to the JESCO treatment facilities were
November 2013 requested to study the revision of the PCB waste treatment basic plan.
The revision (draft) of the basic plan was agreed to at the study committee
May 2014
concerning promotion of proper treatment of PCB waste.
May 2016 PCB Waste Special Measures Law was revised.
July 2016 The PCB waste treatment basic plan was revised.
December 2019 The PCB waste treatment basic plan was revised.
Source: Ministry of the Environment Website “Poly chlorinated biphenyl (PCB) early treatment information site”
http://pcb-soukishori.env.go.jp/about/background.html (accessed February 1, 2022)
Furthermore, on the global scene, international activities calling for regulation of PCB waste were
growing as cases of the expansion of pollution from some areas where PCBs were used to areas where
PCBs were not used at all, were being reported. As a result of these activities, the Stockholm
Convention on Persistent Organic Pollutants (POPs Convention) went into effect in May 2004.
The POPs Convention calls for abolishing the use of PCBs by 2025 and the proper management of
PCB waste by 2028. Japan ratified this convention in August 2002.
Column: Kanemi Oil Poisoning Incident

The Kanemi oil poisoning incident is a food-poisoning incident caused by rice oil (rice bran oil)
produced by a private company, which occurred across a wide area centered in western Japan in
1968.
The incident occurred because PCB was used as heat medium, and polychlorinated dibenzofuran
(PCDF) which is a type of dioxins, and others were mixed into the product during the deodorization
process in the production process of rice oil.
Patients showed various symptoms such as cutaneous symptoms including pustule and
pigmentation, nervous symptoms, joint symptoms, respiratory symptoms, anemia, and bone
deformity, which often became serious. Improvement in symptoms took a long time, and, for
example, the symptoms of one patient still persist even after the passing of 50 years. Effects on
fertility of women and on newborn babies were also reported.
Since 1969, victims who suffered health problems have filed a series of class action lawsuits
against the relevant private company and the central government seeking compensation for
damages, but it took a long time before the judgement was finalized in 2015. Discussions about
relief for the victims is still continuing.
Photo 5-9 Health Hazard Caused by Photo 5-10 Class-Action Lawsuit by

Kanemi Oil Poisoning Sufferers of Kanemi Oil Poisoning
Source: Yukiaki Kawano
4.3 Asbestos
Asbestos that is taken into the human body and remains there causes diseases such as lung
fibrosis, lung cancer, and malignant mesothelioma. Its use is regulated in Japan and at present is
not imported into the country.
In some developing countries, asbestos is not properly regulated, and many people do not
understand its harmfulness. In this section the necessity for countermeasures is shown by
understanding the actual condition of asbestos’ harmfulness and the damage it inflicts over a long
period of time.
Asbestos is “sekimen” in Japanese, and it is a natural ore, which is made when serpentinite and
amphibole are transformed and become fibrous. Asbestos is the generic name of inorganic fibrous
mineral. Asbestos is fine and the diameter (chrysotile 0.02 to 0.08 μm, crocidolite 0.04 to 0.15 μm,
amosite 0.06 to 0.35 μm) is thinner than that of human hair (40 to 100 μm). It consists of extremely
fine fiber that cannot be seen by the naked eye. Therefore, when scattered, it is apt to be suspended in
the air and is easily inhaled into the lungs and deposited in the alveoli of the lung.
Part of inhaled asbestos is mixed into phlegm as a foreign substance and is discharged out of the
body, but other part remains long in the tissue of the lungs since asbestos fibers are tough and stable.
Asbestos that remains in the body sometimes causes diseases such as lung fibrosis, lung cancer, and
malignant mesothelioma. Finer and longer asbestos fibers are considered to be more harmful. It is
thought that the reason is that macrophages, a kind of leucocyte, try to remove the asbestos fibers that
remain in the lungs, but long fibers are difficult to remove and can remain in the body for long periods.
Furthermore, carcinogenicity differs depending on the type of asbestos and the carcinogenicity of
amphibole (crocidolite and amosite) is considered to be higher than that of chrysotile.
Weak carcinogenicity Strong carcinogenicity
Chrysotile Amosite Crocidolite

(White asbestos) (Brown asbestos) (Blue asbestos)
Source: Environmental Restoration and Conservation Agency (ERCA) Website

https://www.erca.go.jp/asbestos/what/whats/whatAsbestos.html (accessed February 1, 2022)
Figure 5-12 Types of Asbestos and their Degree of Carcinogenicity
A correlation is recognized between the amount of inhaled asbestos and the occurrence of diseases
such as mesothelioma and lung cancer, but what amount of asbestos needs to be inhaled and how long
it needs to be inhaled for the occurrence of mesothelioma are not clear.
In Japan, importation of asbestos started in the 1890s and, although it was temporarily stopped
during the Second World War, importation was immediately resumed after the war. The imported
amount peaked in the 1970s and more than 300,000 ton of asbestos was imported almost annually
during that decade. At that time, asbestos was utilized as a lagging material or a heat insulating material
in the construction of buildings and structures, slate material, brake lining, soundproof material, as
well as other uses.
After that, since effects on health and others were pointed out and the use was regulated, the amounts
imported sharply decreased and at present no asbestos is imported. Afterwards, its use was regulated
due to the increasing awareness of its effects on health, and imports decreased sharply. Presently
asbestos is no longer imported.
Prohibition of the use Regulations for the
of asbestos Prevention of Asbestos
principles(2004) Hazards(2005)
8,162 tons 110 tons
400,000
352,110 tons
Imported asbestos amount (tons/year)
350,000 (1974)
Total consumption
300,000 Approx. 10 million tons
Suspension of
250,000 imports(1941)
200,000 Prohibition of Full
sprayed asbestos(1975) prohibition
Restart of
150,000 (2012)
imports (1949) Prohibition of
100,000 Blue asbestos and
44,146 tons
(1939) brown asbestos(1995)
50,000 0 ton
(2006)
0
1930 35 40 45 50 55 60 65 70 75 80 85 90 95 2000 05 10
Fiscal Year
Source: Environmental Restoration and Conservation Agency Website (ERCA) “Asbestos and its health hazard”
(2021)
Figure 5-13 Transition of Import Amount of Asbestos and History of Regulation
On the other hand, as shown in Figure 5-14, the number of patients with mesothelioma, which is
said to be an illness caused by asbestos, continues to increase year by year. According to population
survey reports released by the Ministry of Health, Labor and Welfare, the number of patients increased
rapidly since the 2000s, which coincides with the latent period (about 40 years on average) after the
1960s when the amount of imported asbestos had increased. The number of people who died of
mesothelioma in 2020 reached 1,605, which is more than three times as many as 1995.
（Number of deaths）
1,800
Number of people who died of mesothelioma
1,600
1,400
1,200
1,000
800
600
400
200
0
1995
1996
1997
1998
1999
2000
2001
2002
2003
2004
2005
2006
2007
2008
2009
2010
2011
2012
2013
2014
2015
2016
2017
2018
2019
2020
Year
Source: Ministry of Health, Labour and Welfare “Prepared based on the data listed in ‘Transition of estimated
number of people who died of mesothelioma in prefectures from 1995 to 2020’” (2021)
Figure 5-14 Transition of Number of People who Died of Mesothelioma in Japan
Waste that contains asbestos can be largely divided into “waste asbestos and others”, “asbestos-
containing industrial waste”, and “asbestos-containing municipal waste” and is required to be treated
appropriately in accordance with the law. The current regulations related to asbestos-containing waste
in Japan are shown in Figure 5-15.
Specially Controlled Industrial Waste Industrial Waste including asbestos Municipal waste including asbestos
（Scattering）（Non-scattering）（Non-scattering）
Exterior materials such as asbestos
〇Sprayed Asbestos removed from materials used Exterior material such as asbestos slate, slates, generated by DIY etc.
for structure Floor tiles etc. 【Municipal waste, generated by construction
【Industrial waste, generated by construction/ /rehabilitation/demolition of structure, which
〇Sprayed Asbestos removed from buildings, rehabilitation/demolition of structures, which includes asbestos more than 0.1% of its
Includes asbestos more than 0.1% of its weight】 weight】
Heat insulator / fire resistive covering materials
including asbestos Stocked amount 40 million tons Generation: A few tons／year
Generation: More than 1 million ton／year
Stocked amount hundreds thousand tons Treatment Standard of municipal waste
18 thousand tons／year（Generation: 2004） Treatment Standard of Industrial waste （Ordinance for Waste Management
42 thousand tons／year（Generation: 2005）（Ordinance for Waste Management Act etc.） Act etc.）
72 thousand tons／year（Generation: 2006）〇Take anti-scattering measures 〇Take anti-scattering measures
〇Collect, transport, reload and store them, 〇Collect, transport, reload and store them,
Treatment Criteria apart from the other types of waste apart from the other types of waste
for Special Controlled Industrial Waste 〇Melting treatment / detoxication 〇Adopt intermediate treatment for removing
（Ordinance for Waste Management Act etc.）〇Prohibition of crush as an intermediate dust certainly by dust collection equipment
〇Packing for collection etc. treatment 〇Reclaim specific land by filling with waste
〇Melting treatment or double packing 〇Reclaim specific land by filling with waste and covering with soil
using water-proof materials etc. and covering with soil ※ Regarding the domestic products Including asbestos,
it shall be secured not to cause issues such as scattering by
general treatment method
Melting facilities for industrial

waste including asbestos Detoxication facilities Waste treatment
（newly build as permitted facilities）〇Standard for contents, objects facilities
and facilities
〇Melt more than 1,500 ℃
〇Procedure for authorization/abolition
〇Scattering prevention
Final Disposal / Recycling
Source: Ministry of the Environment “Management Guideline for Waste including Asbestos (ver.3)” (2021)
Figure 5-15 Current Regulation of Waste Including Asbestos in Japan
The types of waste containing asbestos and their disposal methods are defined according to their
characteristics as shown in Figure 5-16.
Sprayed asbestos and asbestos heat-retention (thermal insulation) material are friable asbestos that
can be easily dispersed into the air and must be disposed of as specially controlled industrial waste
(hazardous waste) as defined in the Waste Management Act. Specifically, the business operator is
required to take temporary measures such as spraying the waste with water to prevent dispersal of
asbestos until it is transported, and then solidify the waste or stabilize it with chemicals in advance
and double pack it with water-resistant materials to prevent it from dispersing into the atmosphere.
The waste must be landfilled at a controlled landfill site. If the waste is melted or detoxified as
specially controlled industrial waste and loses its properties, it can be landfilled in an inert landfill site.
On the other hand, asbestos fiber board are non-scattering asbestos waste that is not easily dispersed
into the atmosphere when it becomes waste. It can be collected and transported as industrial waste that
is not specially controlled industrial waste, and can be disposed in an inert landfill site if anti-scattering
measures are taken at a certain location.
Sprayed asbestos
Disposed as a Specially
Friable asbestos controlled industrial/
Asbestos Asbestos thermal municipal waste
waste insulation material
Disposed as same as
Asbestos fibre board Non-friable asbestos
other normal waste
Figure 5-16 Types of Asbestos Wastes and Respective Disposal Methods

5 Disaster Waste
Due to its location, geography, geology, climate, and other natural conditions, Japan frequently
experiences typhoons, severe rainstorms, earthquakes, and other natural disasters. The percentage
of global disasters that Japan accounts for is 20.8% of earthquakes with a magnitude over 6, and
the percentage of disaster damage costs is 18.3%. As Japan accounts for only 0.25% of the world's
land area, these figures are very high.
When a disaster occurs, vast quantities of waste are immediately generated and they must be
speedily disposed of to help the residents recover.
If disaster waste is left unattended, it not only interferes with the residents’ daily lives, but can
also cause various problems such as sanitary issues due to its decomposition, and safety issues due
to burning, etc. However, it is difficult to sort the waste generated by disasters and in many cases,
it is difficult to treat it as well.
This section introduces the disaster waste measures practiced in Japan and their related issues.
The measures that each country should consider, the potential challenges in implementing these
measures, and the current state of international cooperation regarding disaster waste are discussed
as well.
5.1 Changes in the System
Disaster waste measures are positioned as part of Japan’s national resilience policies, and the
Disaster Waste Countermeasure Guidelines were established in 2014.
Japan revised the disaster waste management system each time the country experienced a major
disaster. It is important to have a flexible system and continuously improve upon it as the situation
demands.
Based on the lessons learned from the Ise Bay Typhoon of 1959, the Disaster Countermeasure
Basic Act was enacted in the same year and has been revised several times since then. The purpose
of the act is to protect the lives, health, and property of the citizens from disasters and thereby
contribute to maintaining social order and assuring public welfare.
In 2011 Japan was struck by the Great East Japan Earthquake, and once more the lessons learned
in that disaster led to the establishment of the Basic Act to Strengthen National Resilience to
Contribute to Disaster Prevention and Alleviation to Achieve Strong and Flexible Citizens' Lives
(hereinafter referred to as the Basic Act to Strengthen National Resilience) established in 2013, and
activities have since been carried out based on the concepts of this act.
Based on these laws, the Basic Plan to Strengthen National Resilience was established in June
2014, and “situations to be avoided” was defined as “situations in which recovery and reconstruction
are delayed due to stagnation in the treatment of the vast quantities of waste produced by disasters”.
Therefore, countermeasures for disaster waste were included as part of the policies to strengthen
national resilience.
Furthermore, the Waste Treatment Facilities Improvement Plan that was revised in 2013 clearly
includes “strengthening of disaster countermeasures”. In March 2014, the Disaster Waste
Countermeasure Guidelines was developed.
5.2 Current Situation of Disaster Waste Management
(1) Organization
Countermeasures for disaster waste must be considered separately; countermeasures for normal
times before a disaster strikes and those needed after the disaster has struck. It is important that the
related organizations make efforts to establish working relationships under normal conditions so
they can smoothly work together during disasters and their aftermath.
The Disaster Waste Countermeasure Guidelines (Revised Edition) developed by the Ministry of
the Environment states that disaster waste systems must be prepared during normal conditions.
The guidelines state that the prefectures must assist their various municipalities to formulate and
review their disaster waste management plans according to the respective conditions of each
municipality after sufficiently considering the Waste Treatment Facilities Improvement Plan (2013),
the aforementioned guidelines, and action guidelines. The prefectural governments and
municipalities need to ensure that the formulated plans are consistent with regional disaster plans and
other disaster related guidelines and that the plans are based on the Disaster Countermeasure Basic
Act. Additionally, during emergency situations, the prefectures must proactively communicate and
adjust actions with the related groups and organizations while quickly creating implementation plans
for the management of disaster waste. At the same time, they must also cooperate with the related
groups and organizations to manage the progress of overall treatment within their jurisdictions.
The municipalities must make sure that their local disaster prevention plans and other disaster
related guidelines and plans made under prefectural disaster waste treatment plans and the Disaster
Countermeasure Basic Act are consistent with the national Waste Treatment Facilities Improvement
Plan (2013), the aforementioned guidelines, and action guidelines. At the same time, the
municipalities must include the measures related to disaster waste countermeasures made in
preparation for disasters in their municipal waste treatment plans according to their local situations.
The municipalities must also formulate disaster waste treatment plans in preparation for disasters and
review them as appropriate. Furthermore, during disasters, the municipalities need to quickly assess
the degree of damages according to the disaster waste treatment plan, prepare disaster waste
management implementation plans, and based on the plans manage the disaster waste.
Disaster Waste Countermeasure

Guidelines
Disaster waste management plan

Before Disaster
＜Items to be described in the management plan＞

• How to secure and manage temporary storage site
• Management system including waste generated from daily
Review considering experience

life and evacuation place, excrement from temporary toilet
• How to collaborate and cooperate with surrounding
municipalities（including support for devastated
municipalities)
Review considering experience of training and practice
Plan Do
Revise Assess
Disaster outbreak
Initial action based on disaster waste management plan
Disaster waste management action plan

After Disaster
＜Items to be described in the action plan＞

※describe depending on the scale of disaster
Review
・Generation amount
・Management system
・Management method, flow
・Time schedule etc.
Monitoring and recording of progress of disaster

waste management
Source: Ministry of the Environment “Disaster Waste Countermeasure Guidelines (revised edition)” (2018)
Figure 5-17 Relation between Disaster Waste Management Plan and its Action Plan
Column: Example of a Disaster Waste Management System

The following is an example of a disaster waste management system in Iwate Prefecture during
the Great East Japan Earthquake of 2011. Iwate Prefecture was one of the hardest hit prefectures
by the Great East Japan Earthquake and subsequent tsunami, with a total of 5,794 people killed or
missing. This example is included as an attachment to the Disaster Waste Countermeasure
Guidelines (Revised Edition).
Management of disaster waste in Iwate Prefecture was handled by the Resources and
Environment Promotion Section of the Environment and Life Department as part of the
prefecture’s Disaster Countermeasures Headquarters. Immediately after the disaster, it helped with
the related office functions for the municipalities. Initially, the prefecture’s Disaster
Countermeasure Headquarters was using a team system for handling the support and recovery
work of municipalities under a larger framework. However, because the work was so diversified,
it reviewed the system on March 25, 2011. The individual work was assigned to various teams and
the Debris and Waste Countermeasures Team was set up. After that, to execute the vast amount of
work in a suitable manner and provide technical assistance to the municipalities, it acquired civil
engineering related manpower and clerical personnel with detailed knowledge about contract work
and waste treatment laws from both inside and outside the department. However, the acquired
manpower and personnel were still insufficient. Through the Ministry of the Environment, it
received temporary human resources from other local governments who were knowledgeable
about waste management work to reinforce its organization. On April 1, 2012, it was renamed the
Waste Special Countermeasures Office, Environment and Life Department. Additionally, as
human resources assistance from the central government, the Iwate Prefecture Support Team of
the Local Disaster Countermeasures Headquarters of the Ministry of the Environment was
assigned at the prefectural capital on June 3, 2011.
Assigned on 1st April 2011
Administration Dept.
Head of Support Office Director（Coordination）
Regional Policy Dept.
（Vice Governor）
Director（Reconstruction）
Supervision Group
（Vice Head：Director of Administration Dept.）
（Group Head：Director of
Disaster Prevention Office）
（Deputy Group Head：
Crisis Management Officer） Operation Group Emergency Action Group Supporting Group
Administration Victims Support Team General Planning Team

Team Support Unit
Management Team
Aid Procurement Team Residence Action Team
Information Team
Aviation Management
Team Medical Team
PR Team Support Team for reconstruction of Victims’ life
Cremation/Burial Support Team

Communication Unit Support Team
Team Education Support Team
Debris and waste management

Industry Promotion Team
Team
Municipality Support Team
Source: Ministry of the Environment “Disaster Waste Management Guideline (revised)” (2018)
Figure 5-18 Structure of Supporting Office in Iwate Prefecture
(2) Legal System
As described earlier, the “Basic Plan to Strengthen National Resilience” established in 2014 based
on the Disaster Countermeasure Basic Act and the Basic Act to Strengthen National Resilience has
positioned disaster waste countermeasures as part of the national resilience strengthening policy, and
this is the legal foundation for the current disaster waste countermeasures practiced in Japan.
Act on Disaster Countermeasures
（In the reconstruction stage, Act on reconstruction from large-scale disaster shall be
adopted）
Basic Plan for Disaster Prevention

Waste Management Act (revised on 16th Feb. 2016)
（In the reconstruction stage, Basic Plan
for Reconstruction shall be adopted）
Basic Policy
（Ministry of the Environment）
※Revised on 21st January 2016, based on the revision Disaster Prevention business Plan by Ministry After outbreak
of Waste Management Act on 17 th July 2015 of the Environment (revised on 16th Feb. 2016) of large-scale
disaster
Disaster Waste Countermeasure Guidelines

(revised in March 2018)
Disaster Waste Management Action Disaster Waste
• Indicating the guideline for Guideline Countermeasure
municipalities to establish plan for the outbreak of large-scale disaster Guidelines for 〇〇
of disaster waste management （Prepared in November 2015) Disaster
in preparation for disaster
• It can be used for 1. Specific items which should be
municipalities who have not prepared for big earthquake
yet prepared plan as a 2. Guideline for preparing action plan
guideline for disaster waste in each regional block
management after disaster 3. Draft guideline which would be
outbreak prepared by Minister of the Env.
（such as master plan for East
Japan Earthquake）
Regional Block
Waste Treatment Facilities Council for the action for large-scale disaster waste
Establishment Plan management etc.
（Cabinet decision in May 2013) Build partnerships and cooperative relationships in
a wide area from normal times.
Waste Treatment Facilities
as bases in case of disaster,
Promotion of Action plan for disaster waste management in
countermeasures in view of case of large-scale disaster
earthquake resisting Prepared in each regional block including
regions which is expected to be affected by
large-scale disaster
After disaster
outbreak
（Consistency interactively shall
Prefecture Government be promoted） Disaster Waste
Management Action
Waste Management Plan Regional Plan for Disaster Prevention Plan for 〇〇 Disaster
Disaster Waste Management Plan
（Consistency interactively
After
Municipalities shall be promoted） disaster
outbreak Disaster Waste
Municipal waste Treatment Plan Regional Plan for Disaster Prevention Management Action
Disaster Waste Management Plan Plan for 〇〇 Disaster
Source: Ministry of the Environment “Disaster Waste Countermeasure Guidelines (revised edition)” (2018)
Figure 5-19 Laws and Institutions Related to Disaster Waste Management in Japan
As shown in Figure 5-20, the scale of the disaster and the measures to be applied in Japan’s disaster
waste management are based on the size of the disaster according to the amount of waste generated.
Ordinance designation
Significant Act on Disaster

Countermeasures
Article86 Para(5) Nankai Megathrust
Amount of waste generated
Earthquake
Estimated amount
of disaster waste
About 290 million to
Decided by the
350 million tons※
municipalities
East Japan Earthquake Earthquake directly
Magnitude 9.0 beneath the capital
Seismic intensity 7
Hanshin, Awaji Amount of disaster
Estimated amount
Earthquake waste generated of disaster waste
Slightly bigger scale Magnitude 7.3 About 31 million About 65 million to
Small scale disaster, which may Seismic intensity 7 tons 110 million tons※
disasters, which occur normally Amount of disaster ※Source：Grand design of
cause less damage waste generated actions against disaster waste
About 15 million in case of mega earthquake
Insignificant tons （Mar. 2014 Min. of the Env.）
Small Scale of disaster Large
Execution on behalf of Minister of the Environment on behalf, based on Act

on Disaster Countermeasures（Request from municipalities + Certain requirements※）
※ Management system, Necessity of Expertise technical knowledge
Necessity of Regional waste treatment
Establishment of treatment guideline, based on Act on Disaster

Countermeasures, Adoption of Special Standard
Entrustment of duties from municipalities to prefecture government, based on

Local Government Act
Utilization of special measures, based on Waste Management Act
Preparation as normal times, based on Waste Management Act
Source: Ministry of the Environment website (Disaster Waste Management Information) “Outline of the Act for
Partial Revision of the Waste Disposal and Public Cleansing Act and the Disaster Countermeasures Basic
Act” (Viewed on February 15, 2022)
Figure 5-20 Scale of Disasters and Related Countermeasures Applied in Japan
Article 9, Clause 3, Item 3 of the Waste Management Act stipulates, “Special exceptions for the
establishment of municipal waste treatment facilities related to disasters”. However, many local
governments have not established the necessary ordinances required for these special exceptions.
As a result, the Ministry of the Environment created the “Ordinance Formulation Examples for
Local Governments regarding the Special Exception Measures for Disaster Waste Treatment according
to Article 9, Clause 3, Item 3 of the Waste Management Act, and is promoting the enactment of the
necessary ordinances by the local governments.
(3) Treatment Flow
In Japan, in accordance with the Disaster Waste Countermeasure Guidelines, the municipalities
are obliged to prepare a treatment flow for disaster waste.
The Ministry of the Environment’s Disaster Waste Countermeasure Guidelines (Revised Edition)
describes the basic flow of disaster waste management after a disaster has occurred. In principle,
disaster waste is managed according to the descriptions in the guidelines. Furthermore, regarding the
treatment flow for disaster waste, the guidelines state that “Local governments shall create a process
flow for the methods and quantities of sorting, intermediate treatment, final disposal, and recycling
based on the disaster waste treatment guidelines, the quantity of waste, and treatment capacity”.
Figure 5-21 shows the disaster waste treatment flow of Yokohama city, which is the biggest city in
Kanagawa prefecture, next to Tokyo, and has a population of about 3.8 million people.
Excrement Waste from daily

Waste from Waste from Tsunami
（Temporary life and from Disaster debris
toilet） evacuation places roads cleaning deposit etc.
Included in the
Max. 810 thousand
2,400 tons per day amount of disaster 16 thousand tons 13.174 million tons 120 thousand tons
liter per day
debris
Demolition of
Separation
houses etc.
at source
Separation at source
Initial temporary storage site
Secondary temporary storage site
Intermediate treatment Final disposal

Excrement
pre-treatment Shredding Incineration Landfilling
facilities （for recycle）
Source: Yokohama City “Disaster Waste Management Plan in Yokohama City” (2018)
Figure 5-21 Disaster Waste Treatment Flow in Yokohama City

The following is an overview of the basic flow of disaster waste management that is described in
the guidelines.
System Development and Support

 The local government must make efforts to understand the scope of the disaster and create a
system to manage the waste while considering the roles of other departments and the aid from
other agencies.
 The central government and the respective local government must confirm the scope of the
disaster, and provide assistance according to the needs while coordinating their mutual actions
as best as possible.
Disaster Waste Management

 Depending on the amount of disaster waste produced, the local government will arrange
locations for temporary waste dumping sites.
 The local government will consider methods for the collection and removal of disaster waste,
and notify the residents of those methods together with sorting methods.
 Disaster waste is sorted, removed/collected from the disaster sites, transported to the temporary
waste dump site, and sorted for storage. Additionally, sorting of collected waste is promoted and
accepted at the temporary waste dump sites. Handling of disaster waste from destroyed homes
and the like will go into full swing after disaster damage certificates are issued to the related
victims.
 Hazardous waste and dangerous items will be given collection priority after safety has been
assured.
 From the point of view of preventing the deterioration of public hygiene, perishable waste will
be given collection priority.
 Disaster waste that is accepted at temporary waste dump sites will be shredded and separated
according to how it will be processed or treated, shipped out, and then go to intermediate
treatment, recycling, or final disposal.
 To prevent secondary disasters during treatment, environmental countermeasures, monitoring,
and fire countermeasures will be implemented.
 In order to implement this plan, there must be an understanding of the amount of each waste
category based on the disaster information and treatment results. A process flow must be made
that designates the treatment and disposal sites by category and this must be included in an action
plan.
Treatment of Household Waste, Evacuation Center Waste, and Human Waste from
Temporary Toilets
 The local government must confirm the damage conditions of the treatment facilities and secure
the treatment functions.
 The local government must consider the collection methods for household waste, evacuation
center waste, and human waste from temporary toilets, etc., and notify these to the residents.
 The local government must know where household waste, evacuation center waste, and human
waste from temporary toilets and the like are being generated, and collect, and deliver them to
treatment facilities.
Source: Ministry of the Environment “Disaster Waste Countermeasure Guidelines (Revised Edition)” (2018)
(4) Measures Taken by the Central Government and Municipalities
In Japan, the Ministry of the Environment has developed the D.Waste-Net system to provide aid
during disasters. Persons from the government, industry, and academia took part in developing this
system. D.Waste-Net also archives the management of waste from past disasters and makes the
information available to the public. It is important that related persons work together and past
experiences in disaster waste management are archived.
The Ministry of the Environment is at the center of national level disaster waste countermeasures
in Japan. Specifically, the ministry formulates legislation, basic plans, and guidelines as described
earlier in this section. The ministry also monitors the efforts by the various local governments, makes
suggestions as necessary, and at the same time, it archives information about waste from past
disasters and makes it available to the public through its “Disaster Waste Countermeasures Site”.
The Ministry of the Environment also operates the Disaster Waste Treatment Assistance Network
(D.Waste-Net: http://kouikishori.env.go.jp/en/d_waste_net/) as a secretariat to support disaster waste
management implemented by local governments. Numerous research and specialized organizations,
as well as municipal waste related organizations, are members of D.Waste-Net.
Figure 5-22 shows how D.Waste-Net provides support during disasters.
Support Network for disaster waste management

D.Waste-Net
Support for Activity Support Activity Support Support for

initial action and Ministry of the Environment Restoration and
emergency action （Secretariat） Reconstruction
Request Request
Cooperation
Request of
• Field support for securing and managing temporary • Technical support for preparation of disaster
storage site, dealing with hard-to-manage objects waste management action plan etc.
• Field support for collection, transportation and • Establishment of implementation scheme for
treatment of waste from daily life, from evacuation regional treatment of disaster waste and
places and from cleaning, and excrement etc. coordination of acceptance at treatment facilities
Regional Environment Office
Regional Block Council
Municipalities
Source: Ministry of the Environment Website (Disaster Waste Management Information) “D.Waste-Net”
http://kouikishori.env.go.jp/action/d_waste_net/ (accessed February 1, 2022)
Figure 5-22 Supporting Structure of D.Waste-Net
Table 5-7 shows the functions and roles of D.Waste-Net during normal times and during disasters.
Table 5-7 Functions and Roles of D.Waste-Net

Normal times
Assist local governments in making disaster waste management plans, etc., and assistance for
development of human resources, disaster training, etc.
Passes down records, verifications, and knowledge about various actions related to disaster waste
countermeasures.
Maintenance and improvement of disaster response through meetings and exchange of information
between D.Waste-Net members.
Initial response during disasters
Dispatching specialists and engineers to local governments where disasters
occur; constructing treatment systems; notifying others about how to
Research and
eliminate and sort household waste and cleaned-up waste; securing and
specialized
operating primary temporary waste dump sites according to the initial
organizations
estimates of cleaned-up waste; stench and pest countermeasures; local
support for difficult-to-treat waste items; etc.
Dispatching waste collection vehicles and workers to local governments hit
by disasters; collecting and transporting household waste, human waste;
Municipal waste
evacuation center waste, and cleaned-up waste; providing local support about
related organizations
treatment; etc.
(Includes cooperation with volunteers depending on the circumstances.)
Recovery and reconstruction actions - mid- to long-term measures
Estimating information about disaster conditions and disaster waste
Research and quantities; making disaster waste management execution plans; technical
specialized support to local governments hit by disasters in the form of securing
organizations secondary waste dump sites, and intermediate treatment and final disposal
sites.
Waste treatment related
organizations; Management of disaster waste treatment systems; making implementation
Construction related plans for wide-range treatment of disaster waste; adjusting the reception at
organizations; transport treatment facilities; etc.
related organizations
Source: Ministry of the Environment Website (Disaster Waste Management Information) “D.Waste-Net”
http://kouikishori.env.go.jp/action/d_waste_net/ (accessed February 1, 2022)
The National Institute for Environmental Studies has made a disaster waste information platform
on the Internet where it makes the following information available: disaster archives; progress reports
by local governments on their management plans; examples of human resources development;
emergency response reports; etc.
At the local government level, prefectures and municipalities are preparing disaster waste
management plans according to the central government guidelines, but the progress varies among local
governments.
5.3 Treatment Technology
The transport, storage, and treatment of disaster waste must be conducted more carefully when
compared with regular waste treatment. Additionally, there are difficult aspects, so some unique
technologies have been adopted. In this section the main considerations and technologies concerning
disaster waste treatment in Japan are introduced.
(1) Collection and Transport
The Disaster Waste Countermeasure Guidelines highlights the importance of carefully considering
the following aspects related to the collection and transport of disaster waste.
〇 During disasters, there are instances when the amounts of waste will overwhelm the collection
system, especially immediately after the disaster. In such cases, perishable waste, hazardous
waste, and dangerous items should be given priority for collection and transport.
 Consider securing fuel, consumables such as tires, and measures to take when vehicles
break down so that collection and transport of disaster waste are assured.
 Be aware of weather conditions and evacuate collection and transport vehicles before a
disaster strikes.
 Study flooding hazard maps and consider possible transportation routes after a disaster.
Regular dump trucks and waste collection trucks (compactors and waste container trucks) are used
for actual collection and transport, but liquid transport trucks may be used depending on the type of
waste.
(2) Storage Facilities
During normal times before disasters occur it is important to select suitable temporary waste
dump site candidates, for efficient waste management during disasters. When selecting temporary
storage sites in developing countries, it is necessary to consider effectiveness of the sites.
Temporary storage sites for disaster waste should generally be located within a distance where
residents can transport disaster waste on their own, and it is expected that it may take several years
to manage the stored waste. For example, it may be appropriate in some cases to temporarily store
the waste next to the disposal site and set up a sorting yard next to it. The impact of long-term
storage on residents in the vicinity should be fully considered. Consideration should also be given
to the accessibility of large vehicles for transportation, and whether or not the site is close to the
activity base of emergency response personnel or to a planned site for temporary housing.
If large quantities of disaster waste are generated during a disaster and the residents collect the
disaster waste without any plans, this can cause unsanitary environmental conditions, such as odor,
and also safety issues, such as the possibility of fires erupting in the collected disaster waste.
Therefore, it is important that local authorities select suitable temporary waste dump sites during
normal times, before disasters strike. Efficient disaster waste processing during disasters is possible
if suitable temporary waste dump sites are designated. The Disaster Waste Countermeasure
Guidelines explain aspects related to temporary waste dump sites; how the sites will be used,
calculation method to determine the required dumping area, and criteria for selecting the candidate
sites. The following is an overview.
〇 Local governments shall designate temporary waste dump site candidates during normal times
and for that purpose they must consider the usage of these sites before designating them.
 Temporary waste dump sites can be divided into temporary waste dump sites for the
temporary storage of waste (at which waste may also be separated) and temporary waste
dump sites mainly used for the shredding and sorting of disaster waste.
Table 5-8 Examples for Utilization of Temporary Waste Dump Sites

Use Description
 Temporary waste dump sites for the emergency removal of disaster
Temporary waste
waste that is blocking roads, etc.
dump sites
 Temporary waste dump sites to which residents deliver waste.
 Areas where temporary shredders and treatment work (sorting,
Shredding work areas
separation, etc.) can be conducted.
 Areas where delivered disaster waste exceeds available intermediate
treatment capacity can be stored.
 Areas where waste that exceeds the landfill operation capacity and/or
the available capacity to transport the waste to the landfill, can be
stored.
 Temporary sites where concrete blocks, tsunami debris, and other
Storage areas reconstruction materials can be stored until they are transported to
where they will be used.
 Temporary storage for incinerator ash, hazardous waste, etc.
(including dangerous items)
 Storage sites for recycled items that have accumulated because there
is more than needed. However, this does not include sites that only
store items for recycling.
Calculating the Area Needed for Temporary Waste Dump Sites

〇 Local governments should calculate the necessary area of temporary waste dump sites according
to the estimated scale of disasters.
〇 Because stacking too much disaster waste can lead to fires, the necessary area should be
calculated by keeping the height of the waste to 5 meters or less. Moreover, distance should be
kept between stacks of waste to prevent the spreading of fire and for firefighting activities so
that immediate action can be taken if a fire should start.
Selecting Temporary Waste Dump Site Candidates

〇 Temporary waste dump site candidates must be selected with the understanding that evacuation
centers and emergency temporary housing will have priority for open space during disasters.
When selecting candidate sites, decisions should be made after consulting with local residents
as necessary.
Disaster
Disaster prevention (during normal times) outbreak Urgent action for disaster (emergency) Disaster recovery
Calculation of Selection of Securing Operation and Safety check

Installation Return
necessary area candidate location location management （Soil analysis）
Figure 5-23 Flow for Selection of Temporary Storage Site (Example)
Consideration of preconditions for temporary storage site
Screening by some conditions such as act and ordinances Not applied
Screening by physical conditions such as area and topography Not applied
Candidate locations for temporary storage site
Formulation of draft plan for preparation of temporary storage site
Ordering by comprehensive evaluation
Selection of candidate locations
Figure 5-24 Condition for Selection of Temporary Storage Sites

(3) Treatment, Recycling and Disposal
Considering treatment and recycling of disaster waste after a disaster occurs, efforts should be
made to separate and sort the waste as much as possible. However, it is best to be flexible and
operate according to the actual circumstances of each location.
After disaster waste is temporarily stored at the aforementioned temporary waste dump sites, they
are transported to treatment facilities. The Disaster Waste Countermeasure Guidelines describe the
precautions regarding treatment facilities for disaster waste. The following is an overview.
〇 Even during emergency situations, waste should be separated as much as possible when
considering future treatment and recycling.
Table 5-9 describes the treatment methods and precautions for each type of waste during
emergencies.
Table 5-9 Treatment Methods and Precautions for Each Type of Waste during
Emergencies (Excerpts)
Type Precautions
Automobiles and ships that obstruct movement are transported to temporary
waste dump sites. Because they may be damaged when they are being transported
and there are legal suit risks, the intentions of owners should be confirmed.
Automobiles,
When handling vehicles with high voltage batteries, such as electric and hybrid
ships, etc. vehicles, the workers should use insulated protective gear (masks, protective
glasses, insulated gloves, etc.), high voltage lines should be cut, and other safety
measures taken during transport because of the danger of electrocution.
Be careful of electrocution, and use insulated gear, such as cloth or rubber work
gloves and long rubber boots.
Batteries If there is a danger of electrocution, do not carelessly come into contact with the
battery, and follow the instructions of an electrical technician and a specialist
from the manufacturer.
Perishable Perishable waste, such as fisheries waste and food waste, should be treated first
waste starting with items that were not frozen.
For buildings that still maintain some of their structure on their plots, the basic
principle is to confirm the wishes of owners or other interested parties. However,
if the concerned parties cannot be contacted and there is the danger of further
damage, then a land and house inspector should be consulted and if the damaged
Removal of building has no value, then it should be removed (and dismantled if necessary).
destroyed In such cases, the state of the building should be recorded in photographs, etc.
homes, etc. Any valuables, such as precious metals and the like, and items with sentimental
value for the owners, such as mortuary tablets and photo albums, should be stored
in a temporary or separate location until they can be returned. When the owners
of the property cannot be identified, they should be handled according to the Lost
Goods Act. All items other than the above should be removed and discarded.
〇 Consider the specifications of the necessary temporary treatment facilities based on the estimated
quantity and quality of the disaster waste.
〇 If it is difficult to treat the disaster waste at municipal shredding facilities, then the installation
of temporary shredding machines (portable or fixed) should be considered according to the
quantity of disaster waste that needs to be handled.
〇 When there are large quantities of mixed disaster waste, either mechanical separation or manual
sorting must be considered.
〇 The local government that experienced the disaster must consider the need for temporary
incinerators depending on the quantity of disaster waste that requires treatment, the treatment
period, and the necessary costs.
〇 If the local government that experienced the disaster decides that temporary incinerators are
necessary, then they must consider the treatment capacities and the number of incinerators
necessary for efficient treatment after considering the necessary costs.
Calculation Selection of Living Environment Impact

Securing Order of Assessment Commissioning
of necessary suitable construction Installation
land Public inspection Full operation
capacity and location Hearing of opinions
number
Decision on
Decision of
specification
city planning
such as
requirement
level etc. Application
Procedure
Figure 5-25 Example of Installation Procedure for Temporary Incinerator, etc.
〇 When dismantling and removing temporary incinerators, the applicable laws must be followed,
the dismantling and removal methods should be considered after consulting with a Labor
Standards Supervision Office and related parties.
〇 Because temporary incinerators themselves might be polluted with dioxins and other harmful
substances, the surrounding environments must be monitored for dioxins and other toxic matter
before, during, and after dismantling and removal.
Table 5-10 shows the treatment methods and precautions for each type of waste during disaster
recovery and reconstruction.
Table 5-10 Treatment Methods and Precautions for Each Type of Waste for Disaster
Recovery and Reconstruction (Excerpts)
Type Precautions
The removal of hazardous waste and dangerous items from mixed waste should be
given priority. Then, the mixed waste should be treated in stages. First, recyclable
wood scraps, concrete debris, and metal scraps should be removed. After
Mixed waste
separating any soil or sand with trommel screens, the mixed waste should be
shredded to a uniform size, sorted (magnetic sorting, specific gravity sorting,
manual sorting, etc.).
In treating wood scraps, it is important to first use a trommel screen to remove any
soil or sand. If any soil is attached to the wood scraps, they might not be recyclable
and have to be disposed of. When incinerating wood scraps with soil attached or
Wood scraps
moist wood scraps, the heat generation (calories) of incinerators falls, so that
addition of combustion improvers or heavy fuel oil may be necessary to maintain
the treatment standard (800oC or higher).
Sort the debris and crush it if necessary so it can be recycled. In order to facilitate
Concrete recycling, it might be necessary to confirm the safety of the concrete debris by
debris conducting physical characteristics tests, such as strength tests, and environmental
safety tests.
After a disaster, products that come under the Small Home Appliance Recycling
Act (televisions, refrigerators, air conditioners, washing machines) should be
separated from other waste and recovered. In general, they are returned to the
manufacturer and recycled according to the Small Home Appliance Recycling Act.
In this case, the handling fees that the local governments pay to the manufacturers
Home are covered by government aid. In the case of the Great East Japan Earthquake,
appliances products subject to the Small Home Appliance Recycling Act that were
significantly deformed by the tsunami, etc. were shredded and incinerated.
When processing refrigerators and freezers, any food or drink inside them must be
removed before treatment to thoroughly separate any kitchen waste.
Refrigerators and other appliances that use freon gas must be thoroughly separated
and stored for recovery of the freon gas.
Tires can be recycled as fuel by shredding them into chips. Precautions must be
Tires
taken for fire and the like when processing.
Items that contain asbestos must be appropriately processed and disposed of. Items
Plasterboard, that do not use asbestos are recycled.
slate panels, Determine the treatment method by checking the year the construction material
and other was made and whether it has any marking indicating the use of asbestos.
construction For some destroyed construction materials, it will be hard to determine if they are
material plasterboard. The material that cannot be identified should not be mixed with other
waste and it should be stored separately or other measures should be taken.
Destroyed homes should be checked for asbestos before they are removed (or
before they are dismantled if necessary). If asbestos is discovered, it should be
Asbestos removed appropriately so that it is not mixed with other disaster waste, and it
should be disposed of in a suitable manner for waste asbestos or waste containing
asbestos.
Type Precautions
In principle, waste asbestos should not be delivered to temporary waste dump sites.
If items that might contain asbestos are found in the disaster waste stored in a
temporary waste dump site, they should be analyzed for confirmation.
During destroyed home removal (and dismantling if necessary) and shredding
work at temporary waste dump sites, workers should wear suitable masks and
water should be sprinkled to prevent exposure to asbestos.
Because fishing nets have weights using lead and other metals, they must be
separated beforehand. Fishing nets are either incinerated or put in landfills.
Fishing nets However, there are cases in which lead is used in the fishnet wires. So, if fishnets
are incinerated, the main ash, fly ash, and slags are analyzed for their lead content
and monitoring must be continued during the process.
Because fishing gear is difficult to shred, the gear from some areas hit by the Great
Fishing gear
East Japan Earthquake were manually shredded and incinerated.
Fertilizer, feed, If fertilizer or feed is exposed to water, then the producers should be asked to
etc. process and dispose of it.
After the Great East Japan Earthquake, marine waste was treated according to the
“Treatment Guidelines for Disaster Waste that Went Out to Sea during the Great
Marine waste
East Japan Earthquake” (November 2011). If a large-scale disaster occurs, the
involved parties should follow the government's policy.
PCB waste should not be treated by the local governments, but should be
transferred to the PCB storing enterprises.
When removing a destroyed home which had used or stored PCBs or when PCB
PCB waste equipment is discovered during removal, it should be separated from other waste
and stored.
Transformers, capacitors, and other equipment for which it cannot be determined
if PCBs are used should be separated as if they are PCB waste.
Beware of electrocution, and use insulated gear, such as cloth or rubber work
gloves and long rubber boots.
Batteries
Follow the instructions of an electrical technician and a specialist from the
manufacturer.
〇 In order for local governments to dispose of disaster waste that cannot be recycled or incinerated,
it is important for them to secure landfill sites. If landfill sites cannot be secured, then the waste
must be handled as part of a wide-area (or inter-municipal) treatment system. If any landfill
sites have been secured as part of an agreement, then procedures must be taken to start
transportation.
〇 If a landfill site has not been secured, economic measures and methods should be used to secure
sites to which disaster waste can be transported.
It is difficult to get people to focus on disaster waste countermeasures during normal times but if
the measures are not sufficient, then the living environment and sanitation of the disaster areas will be
adversely affected, and these could become obstacles to recovery and reconstruction. Therefore, the
local governments must take the lead to prepare so that they can take quick and suitable actions,
especially in the early stages when a disaster occurs. It is also necessary to inform residents of the
suitable actions to take during normal times so they can take suitable action, such as sorting and
transporting waste, during the confusion of a disaster without having to wait for instructions from the
authorities.
To those ends, local governments should make disaster waste treatment plans and conduct disaster
training during normal times. They should also consider situations in which local treatment is difficult
and cooperate with other local governments and related organizations. To promote these activities, the
central government is currently making guidelines and manuals for local governments and revising
the systems. Although over 60% of local governments have formulated disaster waste treatment plans
as of 2021, the current challenge is improving this figure. Another challenge for the future is to
improve the practicality of plans so that waste can be processed according to the plans during disasters,
and so that each local government can take suitable actions according to their plans during disasters.
With regard to actions after a disaster occurs, a system of subsidies from central government for the
management of disaster waste by local governments has been established through legislation. This
assures the implementation of disaster waste treatment by local governments and is an important
foundation for their promotion.
5.5 Japan’s International Cooperation
As an example of Japan’s international cooperation related to disaster waste, the debris treatment
support provided to Nepal after the major earthquake that struck that country in 2015 and the creation
of the “Asia-Pacific Disaster Waste Management Guidelines” are introduced in this section.
From April to May 2015, earthquakes of a maximum magnitude of 7.8 struck the municipality of
Gorkha which is about 77 km northwest of the capital city of Kathmandu. Over 50,000 homes were
destroyed and there were over 8,000 casualties. In response, the Japanese government, through the
Japan International Cooperation Agency (JICA) dispatched an international emergency relief team
and provided about JPY 25 million of emergency relief supplies (tents, blankets, etc.) as humanitarian
support for the victims. In addition, based on requests from the government of Nepal and the United
Nations Environment Programme (UNEP), the Ministry of the Environment provided technical
support for formulating disaster waste treatment plans centered on the recycling of the bricks from the
buildings destroyed in Nepal.
Source: JICA “Build Back Better-Supporting Nepal for Earthquake Recovery” (2017)
Figure 5-26 Brochure for Introducing the Project for Supporting Nepal for Earthquake
Recovery, Prepared by JICA
At the G7 Toyama Environment Ministers’ Summit in May 2016, the “Toyama Material Cycle
Framework” was adopted for the field of disaster waste management. The G7 countries agreed to
provide support for nations and regions in the Asia-Pacific region that experienced natural disasters.
Based on this agreement, from fiscal 2017, the Ministry of the Environment examined the natural
disasters occurring around the world, centering on the Asia-Pacific region, and the treatment of
disaster waste, then it organized the issues and lessons learned. Based on the Japanese know-how on
disaster waste countermeasures and the needs of other countries that were identified through the
aforementioned study, in October 2018 the Ministry of the Environment created the “Asia-Pacific
Disaster Waste Management Guidelines” to describe the points necessary to accurately, smoothly, and
quickly process disaster waste.
The guidelines consist of a broad overview of disasters and disaster waste in the Asia-Pacific region,
then describe the necessary disaster waste countermeasures and disaster waste management policies.
Information on how to take countermeasures against disaster waste, what kind of institution is
necessary for disaster waste management and the preparations that should be taken during normal
times are identified.
Source: Ministry of the Environment “Disaster Management Guideline for Asia and the Pacific (Japan Society of
Material Cycles and Waste Management)” (2018 English ver.), (2019 Indonesian ver.)
Figure 5-27 Front cover of Disaster Waste Management Guidelines for Asia and the Pacific
The English, Indonesian, Thai, and Nepalese versions of the guidelines were published and made
available on the Ministry of the Environment's Disaster Waste Management Information Site1 and the
Japan Society of Material Cycles and Waste Management website2 for free download.
The guidelines assert the importance of making plans before disasters strike. It asserts that thorough
discussions and considerations by the related parties are necessary in order to formulate plans that are
realistic and practical. The guidelines especially emphasize that during the initial period immediately
after a disaster strikes, there must be specific instructions, including the selection of temporary waste
dump sites. Additionally, the guidelines note that after the plans are formulated, it is important that
the plan contents are shared among all parties involved and regularly reviewed.
In addition to the above, Japan’s Ministry of the Environment believes that suitable waste treatment
in normal times is important to protect the environment from the scattering and discharge of waste.
Therefore, the ministry is conducting in-person and online training courses for persons in charge of
waste management in other countries that are related to Japan’s policies and legislation for waste
management and help them gain a better understanding of the waste treatment technology in Japan.
At the same time, the Ministry of the Environment is conducting courses and human resource
1 http://kouikishori.env.go.jp/action/international_organizations_cooperation/
2 https://jsmcwm.or.jp/international/?page_id=2187
development training so that people in the interested countries can learn the knowledge necessary for
introducing waste treatment facilities.
5.6 Cases in the Past
The combination of the earthquake and tsunami caused by the Great East Japan Earthquake in
2011 created approximately 2,000 tons of disaster waste. Due to the cooperation among the various
organizations and their quick responses, this waste was treated according to plan by 2014.
An overview of the management of the disaster waste

generated from the Great East Japan Earthquake that
struck in March 2011 is introduced below as an example
Hypocenter
of disaster waste management in Japan. It should be M7.5
(15:08)
noted that the Ministry of the Environment has its
“Disaster Waste Treatment Archives” at its Disaster
hypocenter
Hypocenter
Waste Countermeasures Information Site with records M9.0
M7.4
(15:25)
(14:46)
about recent disaster waste cases that are available to the
public.
In March 2011, an earthquake with a maximum
Hypocenter
magnitude of 9.0 struck off the Sanriku coast. This M7.3
(15:15)
earthquake caused unprecedented human and material
damage of 19,630 dead, 2,569 missing, and 6,230 injured.
Source: Ministry of the Environment Website
The tsunami that resulted from this earthquake increased (Disaster Waste Management
Information)
the damage. http://kouikishori.env.go.jp/archive/h
23_shinsai/damage_situation/
A vast quantity of disaster waste resulted from the (accessed February 23, 2022)
earthquake and tsunami. A gross tonnage of about 20 Figure 5-28 Hypocenters of the
Great East Japan Earthquake
million tons of disaster waste was generated in 239
municipalities in 13 prefectures. In addition, a gross tonnage of about 11,000 tons of tsunami deposits
was confirmed in 36 municipalities in six prefectures.
After the Great East Japan Earthquake struck, the prime minister headed the Emergency Disaster
Countermeasures Headquarters that was established under the Disaster Countermeasures Basic Act.
Additionally, the Deputy Minister of the Cabinet Office headed the Local Countermeasures
Headquarters located at the capital of Miyagi Prefecture, and Local Government Contact Offices were
installed in the capitals of Iwate and Fukushima Prefectures.
Immediately after the earthquake, the Ministry of the Environment established its own Emergency
Disaster Countermeasures Headquarters with the Minister of the Environment at the head. In addition,
it installed its Ministry of the Environment Local Countermeasures Headquarters at the Tohoku
Region Environment Office located in Sendai City, and it dispatched Ministry of the Environment
employees to the capitals of Iwate, Miyagi, and Fukushima Prefectures. Furthermore, the Ministry of
the Environment established the Disaster Waste Countermeasures Special Headquarters under the
Ministry of the Environment’s Emergency Disaster Countermeasures Headquarters for the
coordination of disaster waste treatment for the entire region.
This earthquake caused considerable damage to both movable and immovable properties and the
tsunami carried much of the properties to distant locations creating vast quantities of movable and
immovable properties with unknown owners. The handling of the ownerships of these properties was
an emergent and important issue in treatment of the disaster waste, so the related government
ministries held the Review Meeting regarding the Legal Problems related to the Treatment of Disaster
Waste. On March 25, the prefectures were notified of the “Guidelines related to the Removal of the
Homes Destroyed in the Tohoku Region's Pacific Coast Earthquake”.
In May of the same year, the “Treatment Guidelines (Master Plan) for Disaster Waste related to the
Great East Japan Earthquake” was created and disaster waste management was to be implemented on
the basis of these guidelines.
At the local government level, the three most affected prefectures - Iwate, Miyagi, and Fukushima
- established the Disaster Waste Treatment Countermeasures Council made up of persons from the
central government’s local departments, prefectures, municipalities, and related organizations to
comprehend the quantity and quality of the disaster waste, consider systems to process it, clarify the
different roles, and formulate and manage the treatment plans. The Council formulated the Disaster
Waste Treatment Execution Plan as a concrete treatment plan that was based on the central
government’s guidelines.
The basic policy in the central government’s guidelines was follows: (1) Roughly sort the waste
where it was generated, then deliver it to temporary waste dump sites to reduce the amount of mixed
waste as much as possible. Also, separate the combustible, non-combustible, and recyclables at the
temporary waste dump sites and process in suitable ways to reduce costs and the quantity requiring
final disposal. (2) Create treatment process flows by type of waste and using these as a basis, recycle
as much as possible. At the same time, the guidelines mentioned the need for more wide-ranged, or
inter-municipal treatment.
Based on these guidelines, an overview of the treatment plans made by Iwate and Miyagi Prefectures
is shown in Table 5-11. Of the three prefectures most seriously damaged by the earthquake, a separate
Special Measures Act was enacted for Fukushima Prefecture due to the effects of the environmental
pollution caused by the radioactive materials from the damage to the nuclear power plants. The Special
Measures Act designated the central government to treat the disaster waste in the evacuated areas of
the prefecture so that Fukushima Prefecture did not make its own plans.
Table 5-11 Overview of the Disaster Waste Treatment Plans in Iwate and Miyagi Prefectures
Prefecture Contents of the treatment plan
The initial plan estimates based on the number of houses destroyed were 3.98 million
tons of disaster waste, 1.85 million tons of tsunami deposits for a total of 5.83 million
tons.
The prefecture was assigned comprehensive authority to handle the administrative
matters for the 12 coastal municipalities that suffered the greatest damage and treatment
was conducted jointly with specific measures taken by the individual municipalities.
Iwate The cement plants in the prefecture were positioned as central treatment facilities and
the existing waste treatment facilities, including private facilities, were utilized to the
maximum.
Two temporary incinerators (195 ton/day) and secondary temporary waste dump sites
with shredding and separating facilities for each district (9 locations) were
established. After maximizing treatment within the prefecture, any excess was sent to
wide-area treatment facilities.
The initial estimates based on the number of destroyed houses and excluding tsunami
deposits was approximately 15.5 to 18.2 million tons of waste.
Excluding Sendai City and Rifu Town which had their unique treatment facilities, the
prefecture was assigned comprehensive authority to handle the administrative matters for
the 13 coastal municipalities, and it divided the prefecture into four blocks.
Miyagi In the four blocks and Sendai City, the prefecture installed a total of 29 temporary
incinerators (total capacity about 4,600 ton/day), nine secondary temporary waste dump
sites, three delivery stations, and 12 shredding and sorting facilities.
In order to decrease the quantity headed to landfills, treatment in the prefecture was
maximized by means such as solidifying incinerator ash into pellets for recycling, and
only any excess was sent to wide-area treatment facilities.
Source: Ministry of the Environment Website (Disaster Waste Countermeasures Information Site) “Disaster Waste
Disposal Details” http://kouikishori.env.go.jp/archive/h23_shinsai/implementation/contents/
As a result of these countermeasures, as of the target date of the end of March 2014, disaster waste
treatment was completed in 231 municipalities in 12 prefectures (excluding Fukushima Prefecture)
so the target was mostly met.
Photo 5-11 Conditions of Temporary Photo 5-12 Temporary Incinerator

Storage Site （Koizumi Region, May 2013）
(Ishinomaki City, November 2012)
Source: Ministry of the Environment Website (Disaster Source: Ministry of the Environment Website (Disaster
Waste Management Information) “Before and Waste Management Information) “Kesennuma
after completion of temporary waste dumps” City, Miyagi Photo Archive”
http://kouikishori.env.go.jp/archive/h23_shinsai/ http://kouikishori.env.go.jp/archive/h23_shin
photo/ba/ (accessed January 29, 2022) sai/photo/area_miyagi_kesennuma.html
(accessed January 29, 2022)
6 Marine Plastic Waste Issue
Recently, the marine plastic waste issue has been reported through various media outlets and is
increasingly attracting attention globally. This section describes the global situation of the marine
plastic waste issue, the approach taken by Japan on this issue, and the countermeasures to be taken
by each country through the current situation of international cooperation relating to the marine
plastic waste issue.
6.1 Global Situation
Since having been reported in the World Economic Forum in 2016, the marine plastic waste issue
has become a global issue that needs to be addressed, and the 2018 Charlevoix G7 Summit
Communique was formulated making the global approach more active. This issue is being
addressed by the private sector also, mainly among the global enterprises.
Since the introduction of plastic products around the 1950s, their applications have expanded due
to the ease of processing and stable non-corrosive characteristics, and the gross production amount
so far is said to exceed 8.3 billion tons. Of this, 6.3 billion tons are disposed of as waste, much of
which is landfilled or dumped in the ocean. Recently, large amounts of plastics were found from the
stomachs of dead seabirds and whales in various regions around the world. A video showing a scene
in which a plastic straw was removed from the nose of a turtle was aired in the media and this image
galvanized global attention to the marine plastic waste issue. The issue of marine plastic waste is now
being addressed as a global scale.
According to the report3 of the World Economic Forum in January 2016, 90% or more of plastics
are not recycled and at least 8 million tons of plastics, mainly plastic containers and packaging
materials, flow out to oceans annually. In one estimate marine plastic waste is inflicting damage on
the marine ecosystem, fishing industry, and tourism of about 13 billion dollars annually. In addition,
the impact of the plastic pollution is concerning in terms of not only the health of marine organisms
but also the health of human beings as microplastics - plastics with a diameter of 5 mm or less - are
ingested into human bodies through the food chain.
3 World Economic Forum “The New Plastics Economy - Rethinking the future of plastics”
https://www3.weforum.org/docs/WEF_The_New_Plastics_Economy.pdf
Photo 5-13 Plastic Waste on the Beach Photo 5-14 Sea Turtle and Plastics
Source: DigArt “Plastic bottles and waste washed up on a beach by the incoming tide, covering the entire beach at
Umkomaas in KZN, South Africa” (Photo 5-13), Willyam Bradberry “Water Environmental Pollution
Problem Underwater animal Sea turtle eating Plastic” (Photo 5-14）
Source: World Economic Forum “The New Plastics Economy - Rethinking the future of plastics” (2016)
Figure 5-29 Expected Increase of Plastics under BAU Scenario
Figure 5-29 was included in the report titled “New Plastics Economy”, that was presented by the
World Economic Forum in 2016. This report indicates that the amount of plastic waste generated
annually was 0.3 billion tons in 2014 and the amount is expected to increase to 1.1 billion tons
annually by 2050, which is equal to the weight of all the fishes in all of the oceans.
Governments and businesses across the world are accelerating their efforts to address this plastic
pollution on a global scale. A group of seven advanced countries (G7: France, USA, UK, Germany,
Japan, Italy, and Canada) reconfirmed the actions on the marine plastic waste in the Declaration of
the Japan G7 2016 Ise-Shima Summit. In the Italy G7 Bologna Environment Ministers’ Meeting in
2017, the concerns regarding the marine plastic waste issue and the microplastics issue were
expressed and the members reconfirmed further promotion of the accord of science-based indicators
and methods for monitoring and assessment and the innovative reduction of disposable plastics and
microplastics to avoid the outflow of plastic waste to the marine environment.
In the Charlevoix G7 Summit that was held in Canada in 2018, the Communique, “Charlevoix
Blueprint for Healthy Oceans, Seas, and Resilient Communities” was adopted with the recognition
of the urgency of the threats towards the ecosystem as well as the commitment to shift to the more
resource efficient and sustainable plastic management approach. In addition, Canada, France,
Germany, Italy, and UK, and the EU leaders signed “The Ocean Plastics Character”, for the
cooperation of the private sector and Governments to recycle or reuse 50% of plastic packaging by
2030 and recover all the plastics by 2040.
In the private sector, the efforts are progressing mainly among the global companies. Coca-Cola
Company declared “Zero Waste Initiative” in 2018, where all the plastic bottles and empty cans are
collected across the world and recycled by 2030. At the same time, the company tackled adaptation
of 100% recyclable packaging materials under the “World Without Waste” program and developed
the World’s first 100% plant-based plastic bottles in 2015. Pepsi-Cola Company also committed, in
October, 2018, to an increase of the recycled material ratio for plastic container production to 25%
by 2025, and in particular, for plastic bottles, an increase up to 33%. In the Davos Forum in January
2019, plastic waste was addressed as the main theme and P&G and Pepsi-Cola announced their
efforts for sales and distribution of the products that use glass and stainless containers to be reusable
for up to 100 times. While the marine plastic waste is gathering more attention in this way and the
urgency for handling the issue is being cried out, the 4 th United Nations Environmental Assembly
(UNEA4) was held in Nairobi, Kenya from March 11 to March 15, 2019. With this international
momentum, the issue of marine plastic waste was taken as the main agenda. In UNEA4, in addition
to the ministerial declaration titled “Innovation Solutions for Environmental Challenges and
Sustainable Consumption and Production” that includes remarks on marine plastic waste, a total of
23 resolutions were adopted, including the resolution relating to “Marine Plastic Waste and
Microplastics” based on the joint proposal by Japan, Norway, and Sri Lanka and the resolution
relating to the “Innovative Pathway to Achieve Sustainable Consumption and Production”.
Source: World Economic Forum “The New Plastics Economy - Rethinking the future of plastics” (2016)
Figure 5-30 New Plastics Economy which the World Should Aim for
6.2 Current Situation in Japan
At the G20 Osaka Summit in 2019, Japan called on all countries to be involved in the “Osaka
Blue Ocean Vision”, and the “MARINE Initiative” was launched in August 2021 to support global
measures. This initiative supports developing countries to promote marine waste collection and
innovation.
Strongly encouraged by this international momentum, Japan is also promoting countermeasures to

combat plastic pollution.
The Ministry of the Environment has continuously conducted surveys and published the results on
marine debris, including drifted and adrift litter and marine bed litter, since 2006, in consideration of
their impacts on the environment, including the degradation of coastal functions and ecosystems,
hindrance to safe vessel navigation, damage to the fishing industry, and secondary disasters caused
by drifting medical waste, as well as the damage to the seashore scenery. According to the FY2020
report, most of the microplastics observed in the sea area are polyethylene and polypropylene, and
the particle size varies depending on the location of the observation. In addition, based on the results
of these surveys, a “Study Group on Understanding the Actual Condition of Marine Litter and
Effective and Efficient Marine Litter Recovery” has been convened and experts are now studying the
issue.
At the G20 Osaka Summit that was held in Osaka on June 28, 2019, as the chair country Japan
promoted “Osaka Blue Ocean Vision” to each country as a universal global vision. The aim is to
completely eliminate extra pollution caused by marine plastic waste by 2050 through the
comprehensive approach to life cycle including the reduction of the outflow of plastic waste caused
by poor management. This is to be achieved by the improvement of waste management and
innovative solutions that are achieved while recognizing the important role of plastics in the society.
In this Summit, Japan also announced the country’s intention to support capacity building and
infrastructure development relating to waste management in developing countries. To achieve this
objective, the Japanese Government established the “Marine Initiative” to support effective global
countermeasures for marine plastic waste, by focusing on (1) waste management, (2) recovery of
marine waste, (3) innovation, and (4) capacity enhancement. The Japanese Government supports
capacity enhancement of developing countries to promote waste management, recovery of marine
waste, and innovation through the following specific policies under this initiative.
Table 5-12 Specific Policies to be Implemented Under the Marine Initiative

Policy Specific content
Provide a variety of support factors including the support through ODA
and international organizations to developing countries through bilateral
and multilateral cooperation for the introduction of high-quality
environmental infrastructures and related human resource development.
Such infrastructures include (1) Capacity building and institution building
for waste management and 3R promotion including waste legislation and
International separation and collection systems (2) Formulation of an action plan by
cooperation including each country relating to marine waste (3) Waste treatment facilities
bilateral ODA and including recycling facilities and waste power generation facilities.
support via Globally, train 10,000 waste management personnel by 2025
international Provide ASEAN countries with support based on the “ASEAN + 3 Marine
organizations Plastics Debris Cooperative Action Initiative” towards improvement of
awareness of non-governmental entities including communities, citizens,
and business sectors and formulation of an action plan by each country for
marine waste, proper waste management including waste power
generation infrastructure, and capacity building relating to 3R.
Provide support to the South-East Asian region for the monitoring of
marine plastic waste and develop human resources.
Promote international development activities by Japanese companies,
NGOs, and local public bodies through the development of international
businesses associated with industries and collaboration with NGOs and
local public bodies for the export of infrastructure such as waste treatment
Promote International
related facilities and support of innovations and technology introduction
development activities
relating to substitutes for plastics and recycling technology.
by Japanese
Promote international cooperation by the industrial sector such as support
companies, NGOs, and
for improvement of plastic waste management in the emerging Asian
communities
countries through the Japan Initiative for Marine Environment (JaIME)
that was established by the chemical industry group of Japan and the
prevention of dispersion and outflow of pellets based on the Memorandum
of Cooperation of the industry related to Japan-China plastic processing.
Demonstrate and share best practices (experience, knowledge and
technology) in the approaches by the Japanese public and private sectors
relating to the waste management and collection of marine waste through
Demonstrating/sharing the related international conferences (United Nations Marine Conference,
of best practices Regional 3R Forum in Asia and Pacific) and initiatives.
Promote the sharing of knowledge relating to countermeasures for marine
plastic waste to ASEAN countries through the establishment of “Marine
Plastic Waste Knowledge Center”.
Source: Ministry of Foreign Affairs Website “MARINE Initiative toward Realization of the Ocean Blue Vision”
https://www.mofa.go.jp/mofaj/ic/ge/page25_001919.html (accessed February 17, 2021)
(1) Organization
In June 1989, two directors from the Ministry of the Environment, one responsible for the ministry
bureau4 in charge of proper waste treatment, environmental regeneration and resources recycling and
the other heading the section 5 charged with marine environment at the ministry’s Bureau of
Environment Management, recommended the establishment of systems for marine plastic waste
treatment in each prefecture. A notice of this recommendation regarding the development of a
management system for drifting waste was issued to the directors responsible for municipal waste
management and coastal debris countermeasures of each prefecture. Under this notification, the
prefectures were requested to examine the need to develop a system for treatment of drifting waste,
which is collected through the collaboration of municipalities and fishery industry organizations
within the jurisdiction of each prefecture, as well as for circulation of the information to the
municipalities within the respective prefecture’s jurisdiction, in order to address the conservation of
the marine environment and conservation of the living environment. The central government also
requested the municipalities to proactively examine the treatment of drifting waste including the
utilization of treatment facilities available to the municipalities. Associated with this request, the
central government also requested that prefectures and municipalities work together, participate in
the coastal debris countermeasures promotion council, and coordinate between the prefecture
regional plan and the waste treatment plan.
At the same time, the Notification, “Regarding the promotion of collection and disposal of drifting
waste” was issued from the Fisheries Agency to the Fisheries Departments of Prefectures and the
National Federation of Fisheries Cooperatives, and the Japanese Fisheries Association.
In addition, based on the regulation, Coastal Debris Treatment Promotion Law, that is described
later in this section, the Coastal Debris Disposal Promotion Meeting (Article 30, Paragraph 1) and
the Coastal Debris Countermeasure Meeting (Article 30, Paragraph 2) are held regularly. These
meetings are utilized for liaison and coordination for the promotion of comprehensive, effective, and
efficient coastal debris countermeasures by the related administration organizations and also to reflect
on advice of the experts relating to coastal debris.
4 Ministry of the Environment, Environmental Reclamation and Resource Recycling Bureau, Waste Proper
Management Division
5 Ministry of the Environment, Marine Environment Office, Water Environment Division, Water and Air Environment
Bureau
(2) Legal System
In Japan, marine environment conservation and marine plastic waste countermeasures are
implemented based on the Coastal Debris Treatment Promotion Law and “Plastic Resource
Recycling Strategy”.
The legal system regulating the marine plastic pollution countermeasures in Japan is based on the
Law Concerning Promotion of Good Landscape and Environment on the Coast to Protect Beautiful
and Rich Nature and Disposal of Coastal Debris Related to Conservation of Marine Environment
(hereafter referred to as the Coastal Debris Treatment Promotion Law) which was enacted in July
2009. This law was partially amended in June 2018 and renamed the Law Concerning Promotion of
Good Landscape and Environment on the Coast to Protect Beautiful and Rich Nature and Disposal
of Coastal Debris Related to Conservation of Marine Environment.
In accordance with this law, the basic policies were approved by the Cabinet Meeting in March
2010 and as a result of the amendment of the law, the change was approved by the Cabinet in May
2019.
This law applies the following as the basic principles for conservation of good coastal landscape
environment and the marine environment: (1) Conservation and regeneration of comprehensive
marine environment, (2) Clarification of responsibilities and promotion of smooth waste treatment,
(3) Effective control of the generation of coastal debris by 3R promotion, etc., (4) Conservation of
marine environment (including microplastics countermeasures), (5) Ensuring appropriate role
sharing and collaboration among the diverse bodies, and (6) Promotion of international cooperation.
In addition, based on the 4th Fundamental Plan for Establishing a Sound Material-Cycle Society
that was approved by the Cabinet in June, 2018, the Plastic Resource Recycling Strategy was
established in 2019. This strategy promotes infrastructure improvements and includes (1) reduction
of plastic waste, (2) promotion of recycling (3) promotion of utilization of recycled materials and
bioplastics, (4) countermeasures to prevent marine plastic waste, (5) promotion of international
development, and (6) technology development, collaboration, and cooperation. Therefore, the central
government has adopted the reduction in discharge of plastic waste as a national policy.
In May 2015, “Marine Plastic Waste Countermeasure Action Plan” was formulated at the
“Ministerial Meeting on Marine Plastic Waste Countermeasure Action Plan”. In the plan, specific
countermeasures have been outlined and promoted, various guidelines relating to marine plastic
waste are provided, and their utilization is recommended. The main guidelines are listed in Table 5-
13.
Table 5-13 List of Various Guidelines Related to Marine Plastic Waste

Intended Expected utilization
Title Purpose/target
organization method
Use for long-term monitoring
of sites where scattered waste
Guidelines for Checking the actual countermeasures are under
surveying the conditions of the waste implementation, setting
actual conditions scattered over land areas, targets and course of actions,
of scattered waste riverbanks, and riverbeds verification of effects of
measures taken, and effects
of countermeasures
Check the actual condition of
river waste and obtain long-
Checking the actual
Collection of term assessment indicators of
condition of floating
reference the targets and course of
waste through rivers from
materials for Survey actions of the
land areas to sea areas (in
surveying river bodies/operators countermeasures, indicators
principle, 25mm or more
waste that conduct of specific measures, and
in length)
surveys based on specific countermeasures that
orders received were taken.
from Promotion of
municipalities or Checking the actual countermeasures for
local condition of microplastics microplastic generation
Guidelines for
environmental in river water within the sources through collaboration
surveying river
research centers microplastics flowing out between municipalities and
microplastics
from land areas to sea related organizations and
areas residents based on the survey
results.
Obtaining the targets and
Checking continuously course of actions of drifting
the actual conditions of waste countermeasures,
Guidelines for
the drifting waste amount indicators of specific
surveying
and composition over a countermeasures, and
drifting waste
long term and changes of indicators of long-term
composition
these conditions over assessment of the
time. countermeasures that were
taken
Guide for
creating regional Formulation or change of Comprehensive and effective
plan based on the the regional plan based on promotion of
Prefectures
Coastal Debris the Coastal Debris countermeasures for costal
Disposal Disposal Promotion Law debris in respective regions
Promotion Law
Casebook of
Municipalities, Effective implementation
measures to Promotion of control of new
NPOs, and self- of marine waste
control the marine waste and its
governing generation control
generation of collection
associations measures
marine debris
Source: Ministry of the Environment Website “About Various Survey Guidelines for Marine Plastic Waste”
http://www.env.go.jp/water/marine_litter/post_118.html (accessed February 20, 2021)
(3) Treatment Flow
With regard to marine plastic waste that has drifted ashore, the Coastal Debris Treatment
Promotion Law stipulates that the responsibility for the treatment of that waste lies with the
administrator of the beach where the waste has drifted ashore. At the same time, beach occupants
who are not coast administrators are obliged to make efforts to clean up the waste. Municipalities are
also required to cooperate with coastal administrators.
On the other hand, when it is clear that much of the coastal debris has flowed from areas of other
prefectures, the governor of the prefecture where the waste has flowed in may request the governors
of those prefectures where the waste flowed from to dispose of the coastal debris, as well as other
related actions. According to the regulation, when a problem in the environmental conservation in
the region is identified due to debris from overseas, the Minister of Foreign Affairs is to take the
appropriate action.
The collected marine plastic waste is appropriately treated as municipal waste at the treatment
facility of the municipality within which the coast is located, however, the treatment may vary
depending on the municipality.
(4) Approaches Taken by the Japanese Government and Municipalities
The Japanese Government established the Marine Plastic Waste Countermeasure Action Plan in
May, 2019 for the implementation of marine plastic waste countermeasures. The Government,
municipalities, and related organizations are implementing the countermeasures based on this Action
Plan. The Action Plan is outlined in Table 5-14.
Table 5-14 List of Various Guidelines Relating to Marine Plastic Waste

Main organizations in charge of the countermeasures at the
Purpose Government level
 Containers, packaging, and products (land area)
Ministry of the Environment and Ministry of Agriculture,
Thorough collection and Forestry, and Fisheries
proper treatment and disposal  Plastic products used in sea areas such as
by the waste management fishing equipment
system, etc. Ministry of the Environment, Ministry of Agriculture, Forestry,
and Fisheries, Ministry of Land, Infrastructure, Transport and
Tourism
 Containers, packaging, and products (land area)
Ministry of the Environment, The National Police Agency,
Japan Coast Guard, and Ministry of Internal Affairs and
Communications,
Prevention of littering, illegal Ministry of Land, Infrastructure, Transport and Tourism,
dumping, and unintentional Ministry of Agriculture, Forestry, and Fisheries, and Ministry
outflow to the ocean of Economy, Trade, and Industry
 Plastic products used in sea areas such as
fishing equipment
Ministry of Agriculture, Forestry, and Fisheries, and Japan
Coast Guard
Ministry of the Environment、Ministry of Land, Infrastructure,
Collection of litter and
Transport and Tourism, Ministry of Education, Culture, Sports,
illegally dumped waste
Science and Technology, and Japan Coast Guard
Ministry of the Environment, Ministry of Agriculture, Forestry, and
Collection of plastic waste
Fisheries, and Ministry of Land, Infrastructure, Transport and
that has flowed into the ocean
Tourism
Innovation such as Ministry of Economy, Trade, and Industry, Ministry of the
development and conversion Environment, Ministry of Agriculture, Forestry, and Fisheries, and
of alternative materials Ministry of Education, Culture, Sports, Science and Technology
Ministry of the Environment, Ministry of Agriculture, Forestry, and
Collaboration of related Fisheries, Ministry of Economy, Trade, and Industry, Consumer
parties for promotion of the Affairs Agency, Ministry of Education, Culture, Sports, Science
approaches and Technology, Cabinet Office, and Ministry of Land,
Infrastructure, Transport and Tourism
International contribution to
Ministry of Foreign Affairs, Ministry of the Environment, Ministry
promote measures in
of Economy, Trade, and Industry
developing countries
Understanding the actual Ministry of the Environment, Japan Meteorological Agency,
situation and accumulating Ministry of Agriculture, Forestry, and Fisheries, and Ministry of
scientific knowledge Education, Culture, Sports, Science and Technology
Source: Ministry of the Environment Website “About Marin Plastic Waste Countermeasure Action Plan” (2019)
6.3 Monitoring
In this Action Plan, indicators are set to effectively implement the activities and check the progress
each year. Table 5-15 shows the indicators and monitoring organizations.
Table 5-15 Indicators and Implementation Organizations

Indicator Implementation organization
Amount of plastic waste properly treated
domestically
Amount of plastic waste littered, illegally-dumped,
and scattered that is collected from land areas
Amount of marine plastic waste collected Ministry of the Environment
Production capacity and utilization amount of
Ministry of the Environment and Ministry
alternative materials (biodegradable plastics, paper,
of Economy, Trade, and Industry
and so on)
Amount of “properly treated waste” that is increasing Ministry of Foreign Affairs and Ministry of
through international cooperation the Environment
Source: Ministry of the Environment Website “About Marine Plastic Waste Countermeasure Action Plan” (2019)
6.4 Challenges and Considerations
The marine plastic waste countermeasures that were established in 2019 according to the Action
Plan are currently being implemented. It is important to maintain flexibility in revising the
countermeasures when required according to the situation.
Countermeasures to prevent marine plastic waste in Japan have just commenced, and it is expected
that they will be actively promoted in the future, along with countermeasures to manage coastal debris
that have been under implementation for some time.
Basically, the countermeasures are implemented according to the contents of the Action Plan that
was established in 2019. However, this Plan also needs to be reviewed regularly through deliberations
among the concerned parties and surveys and monitoring of the actual conditions.
In Japan, by formulating the “Plastic Resource Recycling Strategy” in 2019, controlling of plastic
waste generation itself is progressing through the reduction of the use of one-way plastic, promotion
of recycling, and so on.
It is expected that such efforts will gain momentum within the society and lead to solutions of the
marine plastic waste issues.
6.5 Japan’s International Cooperation
In terms of countermeasures to prevent marine plastic waste, it is important for the world as a whole,
including developing countries, to promote efforts to curb the outflow of plastic waste into the ocean.
Accordingly, the Japanese Government is promoting effective support for developing countries
through the “MARINE Initiative” and other programs mentioned earlier. Examples of surveys and
technical cooperation activities recently implemented by JICA are provided in Table 5-16.
Table 5-16 Examples of International Cooperation by Japan Relating to

Marine Plastic Waste Countermeasures
Target
Project name Period
region/country
The Project for formation of a center of excellence for marine 2019 to South East
plastic pollution studies in the Southeast Asian seas 2024 Asia region
Information collection and confirmation survey on the
understanding of the actual conditions of marine plastic waste and 2019 to
Global
utilization of Japanese technologies associated with resource 2020
recycling
Information collection and confirmation survey on marine plastic Caribbean
2020
issues in the Caribbean region region
Information collection and confirmation survey on the marine
2020 to
waste monitoring and waste power generation towards the sound- Thailand
2021
material-cycle society of Thailand
Jamaica and
Adviser for marine plastic waste countermeasures in the 2021 to other countries,
Caribbean region 2023 Caribbean
region
The basic policy of the “Marine Initiative” is to disseminate the knowledge of marine plastic waste
countermeasures to ASEAN countries through the establishment of “Marine Plastic Waste Knowledge
Center”.
Topic 6. Efforts of the Municipalities in Japan Contents
Topic 6. Efforts of the Municipalities in Japan
Contents
1 Overview of Municipalities........................................................................................ 1
2 Waste Management Efforts Made by the 23 Special Cities of Tokyo ............................... 3
2.1 History of Waste Management in Tokyo ....................................................................... 4
(1) Dawn of the Waste Problem, 1900 - 1955 ................................................................. 4
(2) Period of High Economic Growth - Escalation of the Waste Problem, 1955 - 1973 ...... 4
(3) Period of Stable Economic Growth - Addressing the Environmental Problem, 1973 - 1985
6
(4) Significant Increase of the Amount of Waste, 1985 - 1990.......................................... 6
(5) Introduction of a Sound Material-Cycle Society, 1990 - Present day........................... 6
2.2 Noteworthy Experience: War on Waste......................................................................... 8
(1) Rapidly Increasing Amount of Waste Generation and Waste Management Dependent on
Landfill During the Period of High Economic Growth .......................................................... 8
(2) Opposition Movement against Construction and Principle of In-city Treatment ......... 10
(3) Path toward Reconciliation and the Terms of Settlement ...........................................11
(4) Lessons Learned - Changes in Tokyo Residents’ Awareness of Waste Treatment ........ 12
2.3 Current Waste Management in the Tokyo 23 Cities ..................................................... 13
(1) Waste Management Flow in the Tokyo 23 Cities ..................................................... 13
(2) Operating Bodies for Solid Waste Management and their Responsibilities ................. 14
(3) Main Measures for Separated Waste Discharge ....................................................... 15
(4) Public Awareness and Environment Education Intended for Separated Waste Discharge
16
(5) Group Collection .................................................................................................. 16
(6) Waste Collection and Transport .............................................................................. 17
(7) Recycling ............................................................................................................. 18
(8) Incineration and Thermal Recovery ........................................................................ 19
(9) Final Disposal....................................................................................................... 20
2.4 International Cooperation .......................................................................................... 22
3 Waste Management Efforts Made by Fujisawa City .................................................... 26
3.1 History of Waste Management in Fujisawa City .......................................................... 27
(1) Period of Seeking a Better Waste Collection Method, 1945 - 1964 ........................... 27
(2) Period of Seeking Proper Waste Treatment for Bulky Waste, 1965 - 1974................. 27
Contents Topic 6. Efforts of the Municipalities in Japan
(3) Dawn of 3Rs and Period for Development of Intermediate Treatment Facilities, 1975 -
1994 28
(4) Period of Full-Scale 3Rs Introduction, after 1995 .................................................... 30
3.2 Noteworthy Experience: Recycling of Recyclables - Fujisawa Method ......................... 31
3.3 Experience of Construction and Renovation of Incineration Facilities ........................... 33
3.4 Current Waste Management in Fujisawa City.............................................................. 34
(1) Waste Management Flow in Fujisawa City.............................................................. 34
(2) Source Separation and Separate Waste Discharge, Collection, and Transport ............. 35
(3) Recycling ............................................................................................................. 37
(4) Intermediate Treatment by Incineration................................................................... 37
(5) Environmental Education and Public Services ......................................................... 38
(6) Final Disposal....................................................................................................... 39
4 Waste Management Efforts made by Shibushi City ..................................................... 42
4.1 History of Waste Management - Waste Recycling Project around the Time Shibushi City Was
Established.......................................................................................................................... 43
4.2 Noteworthy Experience: History of Separation of 27 Waste Items - Shibushi Model ...... 44
4.3 Current Waste Management in Shibushi City .............................................................. 48
(1) Waste Management Flow in Shibushi City .............................................................. 48
(2) Composting .......................................................................................................... 49
(3) Sorting Waste for Recycling .................................................................................. 52
4.4 International Cooperation .......................................................................................... 56
5 Suggestions Based on the Waste Management Efforts of the Three Municipalities ......... 57
Topic 6. Efforts of the Municipalities in Japan 6-1
1 Overview of Municipalities
Each municipality in Japan has developed its own distinctive approach to waste management
based on the national policy. In Topic 6, one municipality is selected from each of large-, medium-,
and small- scale municipalities of Japan, and the important points related to waste management in
each of the selected three municipalities are highlighted by detailing the experience and knowledge
of waste management of that municipality.
This topic introduces the waste management practices of the following three municipalities, selected
based on their size and characteristics: the 23 special cities of Tokyo representing a large municipality,
Fujisawa City a medium-sized municipality, and Shibushi City a small municipality.
The 23 special cities of Tokyo (hereinafter refer to as Tokyo 23 Cities), the capital of Japan, located
at the center of Tokyo, have experienced the challenges of waste management while Tokyo was
developing into the large-scale metropolitan capital city of today, and have finally established their
current waste management system. Tokyo 23 Cities have also led Japan’s waste management program
and assisted other municipalities. Local governments in developing countries, especially in capitals
and large cities with similar conditions as that of Tokyo, can benefit from the lessons learnt from
Tokyo 23 Cities and their experiences.
Fujisawa City is a medium-scale municipality with a population of 430,000. Medium-scale
municipalities are suitable for helping to understand the comprehensive system adopted by Japan’s
municipalities to manage waste. Fujisawa City has from early on actively engaged the private sector
in waste recycling and facilities improvement activities. Thus, Fujisawa City is selected as a
representative of medium-scale municipalities. Furthermore, Fujisawa City has maintained records of
their waste management efforts for many years, and there are many lessons to be learned from the
city’s experiences for municipalities in developing countries aiming to build a comprehensive waste
management system including intermediate treatment in the future.
The third municipality selected here, Shibushi City does not have incineration plants and is known
for its high recycling rate. Although it has a short history of waste treatment, the city has reduced the
amount of waste disposal at landfill by implementing multi-item sorted waste discharge and separate
collection to support recycling, and thereby the life of landfill sites has been successfully extended.
The case in Shibushi City may be thought-provoking for municipalities of developing countries that
are either planning to promote, or are already engaged in recycling. The Shibushi case study
demonstrates how the city reached an agreement with its residents and obtained their cooperation
during the development process of their multi-item waste recycling system as well as overcoming
other issues.
Note that the history of waste management and recycling from the past to the present in the Tokyo
23 Cities and Fujisawa City is summarized in a chronological table at the end of their respective
sections in this topic.
6-2 Topic 6. Efforts of the Municipalities in Japan
Figure 6-1 Position Map of the Selected Three Municipalities
Table 6-1 Basic Information and the Characteristic of the Selected Three Municipalities
No. Item Tokyo 23 Cities Fujisawa City Shibushi City
1 Population (person) 9,561,576 434,568 31,160
2 Area (km2) 627.53 69.56 290.28

Collection method
3 Direct/Contract out Contract out (60%) Contract out
(Direct/Contract out)
Number of
4 21 2 0
Incineration Plants
Number of Recycling
5 3 1 2
Plants
6 Number of landfill Sites 2 (adjacent) 1 1
Amount of Waste
7 3,264,286 137,371 9,644
Generated (ton/year)
8 Recycling Rate (%) 16.2 29.4 75.1
Landfill Amount
9 298,667 361 2,479
(ton/year)
 Resource
Recovery by ・Recycling
Distinctive points,  War on waste Fujisawa Method
10 events and initiatives  Tokyo Model (Shibushi Model）
 WtE Construction ・Qualified Compost
by DBO
*: Data is of 2019 and the area is as of October 1, 2021.
Source: Based on Ministry of the Environment Website “2018 Actual Situation Survey Result of General Waste” (2021）
https://www.env.go.jp/recycle/waste_tech/ippan/r1/index.html (accessed January 1, 2022)
Ministry of Land, Infrastructure, Transport and Tourism “2021 Area survey by prefecture, city, town, and village
nationwide (As of October 1, 2021)” (2021)
2 Waste Management Efforts Made by the 23 Special Cities of Tokyo
From 1900 to the present, the 23 special cities of Tokyo have overcome various waste
management problems in changing historical backgrounds. The waste management measures taken
in each time period are introduced in this section.
Having an area of approximately 2,194 km2 (as of 2017), Tokyo is the capital of Japan which is
Japan’s political, administrative, and economic center. Tokyo, consisting of 23 special cities, 26 cities,
5 towns, and 8 villages, has a population of 14,000,000 (as of 2017) of which the population of the 23
special cities is 9,500,000. The Tokyo Metropolitan Government (hereinafter referred to as TMG) has
published “One Hundred Years of Waste Management in Tokyo” on the occasion of the 100th
anniversary (2000) of the enactment of the Waste Cleaning Act in 1900 and the transfer of the
administration of waste management from TMG to Tokyo 23 Cities due to the expansion of self-
government. This section summarizes the struggles of Tokyo to improve the unsanitary living
environment during the hardships of the Great Kanto earthquake (1923) and World War II, the efforts
of people involved in waste management, and the history of Tokyo 23 Cities that have overcome
municipal waste problems.
With reference to “One Hundred Years of Waste Management in Tokyo” and information from
the “Clean Authority of TOKYO”, this section describes the history of waste management in Tokyo
23 Cities, the war on waste, current waste management efforts, and international contributions.
Tokyo Tokyo 23 Cities
Figure 6-2 Location of Tokyo and Tokyo 23 Cities

2.1 History of Waste Management in Tokyo
(1) Dawn of the Waste Problem, 1900 - 1955
In the latter half of the 19th century, cholera and plague pandemics were spreading globally and
taking measures to protect public health became an issue in Japan as well. The TMG had identified
unsanitary conditions as one of the causes of the spread of these infectious diseases, and recognized
that prompt and proper disposal of waste and human waste was essential to improve the situation. In
1900 the government of Japan enacted the Waste Cleaning Act and municipalities assumed
responsibility for waste management. In response, Tokyo introduced a waste collection system and
started to contract out collection services to business operators. However, in 1908 problems of
unreliable waste collection by business operators arose and TMG reversed its decision of contracting
out collection and returned to directly-managing waste collection. Furthermore, to cope with the
rapidly increasing amount of waste associated with urbanization, Tokyo constructed the first waste
incineration plant in Osaki in 1924 and a municipal waste treatment plant in Fukagawa in 1929.
Photo 6-1 Osaki Incineration Plant Photo 6-2 Fukagawa No 2 and No 3

(Completed in 1924) Incineration Plant (Completed in 1933)
Source: TMG Archives
(2) Period of High Economic Growth - Escalation of the Waste Problem, 1955 - 1973
During the war years, Tokyo’s population declined sharply to about 2.5 million. Because of the
extreme scarcity of food and other daily commodities, waste generation significantly decreased and
around 1945 waste collection was discontinued and residents disposed of their waste by themselves.
After the war, however, Tokyo’s population grew due to the return of evacuees and military personnel,
and sanitary conditions worsened, underlining the urgent need to implement drastic waste
management countermeasures.
In 1954, the central government enacted the Public Cleansing Act. The act stipulated; (1) the
central government sets administrative standards and each municipality is responsible to implement
these standards, (2) the concept of simply disposing of waste is replaced by an obligation to manage
the waste in a sanitary method from the standpoint of prevention and environmental sanitation, (3)
the responsibilities of the central and prefectural governments and the obligations of municipalities
are clarified, and residents are also obliged to cooperate. In response, Tokyo improved the related
ordinances and organization. During this period, the mechanization of waste collection progressed.
The previous waste collection operation using handcarts was gradually becoming unable to cope with
the rapid increase in waste generation. In addition, it was becoming difficult to secure sufficient
manpower due to more attractive jobs created by the economic growth. The use of handcarts became
less desirable because of the associated poor environmental hygiene and low efficiency, and
handcarts were replaced by direct collection and transport by vehicles.
Furthermore, in 1963, a subsidy system was introduced to support the development of the
increasingly required larger waste treatment facilities. The Waste Management Act was enacted in
1970, and Tokyo revised the waste ordinances to clearly specify the responsibility of business
operators who generate business waste and the importance of obtaining the understanding of residents
on the waste management system. During this period, mass consumption and increased waste
disposal emphasized the need for more efficient waste collection and transport. In 1963, Tokyo
abolished the separate collection of kitchen waste, which was introduced in 1931, and returned to
mixed waste collection. Mixed waste collection caused many incinerators to shut down because the
organic acids corroded the incineration equipment. Therefore, the construction of many new
incinerators began. At that time, the amount of waste discharged was increasing and the waste
composition was changing due to the increase in plastic waste, making it impossible to treat the waste
properly. Under these circumstances, in 1971, the Governor of Tokyo declared a “war on waste” at
the Tokyo Metropolitan Assembly and promoted the development of incineration technology and
treatment.
Photo 6-3 Kamisyakujii Fifth Incineration Photo 6-4 Itabashi Incineration Plant
Plant (Completed in 1957) (Completed in 1961)
(3) Period of Stable Economic Growth - Addressing the Environmental Problem, 1973 - 1985
Following the enactment of the Waste Management Act by the central government in 1970, Tokyo
revised the ordinance to clearly specify the responsibility of business operators who generated
business waste. As the necessity for reuse and recycling of waste increased, recycling activities and
group waste collection were promoted, and thorough discussions were conducted with local residents
through explanatory and consultative meetings. In 1985, incineration plants were in operation at only
13 locations and in order to ensure that the combined incineration capacity was sufficient, source
separation and separate collection of combustible and incombustible waste were started.
Photo 6-5 Separate Discharge of Recyclables Photo 6-6 Separated Recyclables at the
in Omorideragou Town (1977) Collection Station in Omorideragou Town
(1977)
(4) Significant Increase of the Amount of Waste, 1985 - 1990
Rapid economic growth led to redevelopment in Tokyo and a rush to construct new buildings and
condominiums. People’s lifestyles also changed resulting in generation and disposal of large amounts
of waste and increased variation in waste compositions. TMG reacted by calling for waste reduction
and recycling.
(5) Introduction of a Sound Material-Cycle Society, 1990 - Present day
With the revision of the Waste Management Act in 1991, promotion of waste reduction and
recycling heightened. After the central government enacted the Act on the Promotion of Effective
Utilization of Resources in 1991, Tokyo started to fully charge for bulky waste collection in the same
year and for business waste collection in 1996. Tokyo also established a new ordinance that strictly
promoted the reduction of waste generation and reuse of waste in 1992. In 1997, TMG started
resource recovery and collection of PET bottles from stores.
More efforts were needed to achieve waste reduction and coming closer to developing a sound
material-cycle society, and these included the expansion of waste treatment plants. In the 1990s,
dioxins generated from incineration plants by the incomplete combustion of waste became a major
social problem in Japan. Tokyo was under pressure to respond to the dioxins problem. Incineration
plants were reconstructed, upgraded or altered and new technologies were introduced. During the
period from 2002 to 2008 gasification fusion furnaces and ash melting facilities were improved, by
2009 all waste plastics that were not recycled were fully incinerated accompanied by heat recovery,
and by 2015 all the ash produced in the incineration plants were reformed into raw material for use
in the cement production industry.
2.2 Noteworthy Experience: War on Waste
“War on Waste” refers to disputes over the treatment and disposal of waste in the Tokyo 23
Cities, particularly those between Koto City and Suginami City from the late 1950s through the
1970s, which erupted into protests and court battles involving local residents over the construction
of an incineration plant. In response to the rapid increase in waste amount, TMG continued to
landfill waste in the bay area, and attempted to promote the construction of an incineration plant
without the full understanding of local residents. In this background, this was an opportunity to
reaffirm the importance of dialogue and cooperation between the local governments and residents
regarding the operation of waste management, a common practice today, and the “Principle of waste
treatment within the administrative boundary where the waste was generated”.
(1) Rapidly Increasing Amount of Waste Generation and Waste Management Dependent
on Landfill During the Period of High Economic Growth
The period of high economic growth ushered in changes in the lifestyle of the people towards mass
production of products and goods, their increased consumption and early disposal. As a consequence,
the waste generated by the citizens of Tokyo increased as shown in Figure 6-3. In addition, the
composition of the generated waste became much more diverse. The increase in waste plastics, bulky
waste, and hazardous industrial waste was making the waste management significantly difficult.
Tokyo was not capable of sufficiently managing such waste and mostly depended on waste
disposal in land reclamation in the sea in Koto City. Confronted with the problems of flies from the
disposal site, traffic jams caused by approximately 5,000 vehicles a day transporting waste, increased
accidents and traffic jams, and scattering of waste and the presence of polluted water on the access
road to the landfill, Koto City made repeated requests to TMG to take appropriate countermeasures.
In response to those requests, TMG decided to establish a waste incineration system capable of
treating the entire amount of combustible waste by 1970, and attempted to move forward with a plan
to construct a waste incineration plant. However the plan did not go ahead due to opposition from
local residents in various areas. The strongest opposition occurred in Suginami City, where the
opposition group campaigned for a blanket withdrawal of the construction plan, which had been
unilaterally announced without prior explanation. The opposition group filed a lawsuit with the court,
and TMG initiated legal proceedings based on the Land Expropriation Act. Meanwhile, waste
management conditions in Tokyo significantly worsened, the incineration plant construction project
was greatly delayed, and the amount of incinerated waste, designated in the ten-year plan of Tokyo,
reached less than a half of the target value of 8,000 tons per year. Under such circumstances, Koto
City took a tougher line, and in September 1971, the Koto City assembly announced its opposition
to accepting waste from outside Koto City. In response, on September 28, 1971, the governor of
Tokyo declared the “War on Waste” at the metropolitan assembly stating that: “A looming crisis of
waste is now threatening the lives of the residents in Tokyo. Taking measures to address this issue is
most urgent. Delay of even one day now will lead to an irreversible consequence in the future. I
declare the War on Waste and commit to introducing appropriate waste management”.
1,000 ton/year
5,000
Collection amount
4,500
Direct transported waste amount
4,000
3,500
3,000
2,500
2,000
1,500
1,000
500
0
1960 1961 1962 1963 1964 1965 1966 1967 1968 1969 1970 1971 1972
Source: Akio Ishii “Journal of the Japan Society of Material Cycles and Waste Management (Vol.17, No.6)” (2006)
Figure 6-3 Changes of Collection and Direct Transport waste Amounts in the Tokyo 23 Cities
(2) Opposition Movement against Construction and Principle of In-city Treatment

The principle of waste treatment within the administrative boundary where the waste was
generated was born during the “War on Waste”. This principle remains a basic policy of waste
management in Tokyo 23 Cities even at present. In some instances a treatment facility in one special
city accepts waste from a neighboring special cities. In such instances adjustments are made to
distribute the burden of nuisance impartially amongst the 23 cities.
On September 27, 1971, the Koto City Assembly decided to send an open letter of inquiry to TMG
and the other 22 special cities, demanding the observance of “the principle of in-city treatment of
waste” and “fair distribution of burden of nuisance”. The concept of principle of waste disposal
within the administrative boundary was a natural concept under the laws and regulations that set
municipalities as responsible for disposal. Since TMG was responsible for the wide-area waste
management within the 23 cities of Tokyo at that time, it was necessary for all concerned to reconfirm
the basic matters so that the burden would not be concentrated in some districts. In July 1972, the
Tokyo 23 Cities advisory board was established consisting of representatives of Suginami City and
experts, and held meetings several times in that year to discuss a site for constructing an incineration
plant.
However, local residents of the areas selected as candidate sites immediately opposed the
construction of the plant in their areas. Reasons for the opposition were the method of selecting the
site, road conditions, and traffic pollution expected to be caused by collection vehicles. As Koto City
became aware of the slow progress of selecting a site in Suginami City, Koto City began to stop
receiving waste from Suginami City. As the
result, the advisory board rushed to select a
site for the incineration plant and determined
it to be the Takaido district in Suginami City.
In August, 1973, after the site for Suginami
plant had been determined, TMG met for the
first time with the opposition group.
However, the opposition group maintained
their strong opposition and eventually sued Source: TMG Bureau of Environment
Photo 6-7 Planned site of Suginami
TMG in the Tokyo District Court. Incineration Plant
(3) Path toward Reconciliation and the Terms of Settlement

The Suginami Incineration Plant construction problem was resolved after a long process spanning
eight years since the Takaido district was first announced as the planned site in November 1966.
The basic determining factors of the settlement were the acknowledgement of the need for reliable
pollution control and the importance of residents’ participation from the planning phase. Since then,
when facilities are to be developed, resident participation is ensured from the planning phase.
In February 1974, the Tokyo District Court provided recommendations for reconciliation
concerning the lawsuit filed by the opposition group to cancel the land expropriation proceedings,
and opinions of both sides were to be confirmed by April 30. On April 30, after confirming that both
parties intended to reconcile, the Tokyo District Court started to mediate a reconciliation settlement.
The Tokyo District Court heard the opinions of both sides and established the council for
organizing the reconciliation conditions concerning the Suginami Incineration Plant construction,
and thus launched discussions for specific reconciliation conditions.
Reconciliation discussions proceeded based on the “principle of residents’ requests” presented by
the plaintiff and the verbal note shown to the residents by TMG in June 1973. The verbal note,
indicating TMG’s basic policies, stated that: [1] the scale of the plant will be changed from 900 tons
to 600 tons, [2] resident participation is basically ensured during both the construction and operation
phases of the plant, [3] access roads used by waste trucks are to be located underground. Focal points
of discussion were [1] pollution control, [2] beneficial facilities and countermeasures for neighboring
areas, [3] a resident participation system, and [4] the scale of the incineration plant. Local residents
were most concerned about point [1] and it dominated the discussions. After continuing the
reconciliation discussions for six months, both sides came to a settlement in November, 1974. The
terms of reconciliation acknowledged the thoroughgoing pollution control and the local residents’
participation from the planning phase. Thus, as the result of reconciliation, construction of the
Suginami Incineration Plant started.
Photo 6-8 Suginami Incineration Plant Photo 6-9 Underpass of Suginami

Incineration Plant (1982)
(4) Lessons Learned - Changes in Tokyo Residents’ Awareness of Waste Treatment

The Governor of Tokyo’s declaration of the “War on Waste” drastically changed the awareness
of the people of Tokyo regarding the waste problem. It created an awareness that waste treatment
was not only a municipal matter for the TMG, but also a problem that residents should tackle
together with the government.
The background of the movements against the construction of incineration plants that took place
in various regions during the era of the “War on Waste”, was local residents’ concerns about pollution
and that the importance and seriousness of municipal waste management were not fully shared with
the local residents. Since the declaration of the “War on Waste”, the awareness of Tokyo residents
regarding the waste problem changed dramatically through the blocking of waste coming into Koto
City and the problem of constructing Suginami Incineration Plant. Although waste management is
one of the most fundamental urban issues, along with urban planning and water and sewerage systems,
the people of Tokyo did not necessarily have such awareness. Rather, they were more conscious of
avoiding waste. The declaration of the “War on Waste” greatly changed such conception and raised
awareness that waste is a very serious problem. It also led to the realization that it is important for
project implementers to repeatedly communicate the necessity and safety of the facility and promote
the understanding of local residents. Since the “War on Waste”, the construction of waste treatment
facilities has been conducted with the participation of local residents, including careful explanation
and incorporation of their requests from the planning stage. In addition, agreements were signed with
representatives of residents’ groups to operate the facility in compliance with laws and regulations
and self-imposed limits, disclose various data on the facility’s operations and provide tours of the
facilities.
2.3 Current Waste Management in the Tokyo 23 Cities
In the previous section, the history of waste management in the Tokyo 23 Cities and the
noteworthy experience garnered from the “War on Waste” was described. This section will provide
a description of the waste management flow formed on the basis of that experience.
(1) Waste Management Flow in the Tokyo 23 Cities
The municipal waste management flow in Tokyo is shown in Figure 6-4 for each of the four waste
categories of combustible waste, recyclables, incombustible waste, and bulky waste. Combustible
waste is incinerated in the incineration plant of each of the 23 special cities. Incombustible waste and
recyclables are transported to the incombustible waste treatment centers located in two places within
the Tokyo 23 Cities. As the special cities of Shibuya, Shinjuku, Nakano, Suginami, Toshima, and
Nerima are far away from either of the incombustible waste treatment centers, incombustible waste
and recyclables generated from those cities are transported to the Shinjuku transfer and recycling
center where the waste is then transferred into larger trucks for further transport to the incombustible
waste treatment centers. At the incombustible waste treatment center, resources are collected and
residue is transported to the landfill site for disposal. Bulky waste is transported to the bulky waste
shredding center, located in one place within the 23 cities. At the center the bulky waste is shredded,
and after the resources are collected, the residue is transported to the landfill site for disposal.
In addition to the municipal waste, private businesses that are licensed by the 23 cities directly
transport their business-related combustible waste to the incineration plants.
Combustible Incineration (Residue)
Waste Plants
1,658,688 ton/year (21 plants)
Shinjuku
Landfill Site (1 site)
Transfer Station
Incombustible Incombustible (Resource)
Waste Waste Treatment (Residue)

31,777 ton/year Center (2 centers)
Bulky Waste (Resource)

Bulky Waste
Shredding Center (Residue)
74,037 ton/year
(1 center)
Recyclables
Stockyard Recycling Route
562,739 ton/year
Source: Clean Authority of TOKYO, “Outline of Projects” (2022)
Figure 6-4 Waste Management Flow in Tokyo 23 Cities
(2) Operating Bodies for Solid Waste Management and their Responsibilities
In the Tokyo 23 Cities, each city mayor is responsible for the municipal waste management in the
city. Each city is responsible for the waste collection and transport, but due to the limited number of
intermediate treatment facilities, the 23 cities have established the Clean Authority of TOKYO to
jointly manage intermediate treatment. A clean authority is an organization established by several
local governments or special cities for the purpose of jointly providing a portion of administrative
services.
The final disposal site is established and managed by TMG. The Clean Authority of TOKYO uses
the final disposal site under a contract with TMG. Because multiple responsible entities are involved
and the responsibilities are complex, it is important for all the entities to work together to ensure
proper waste management.
Table 6-2 Operating Bodies in the 23 Cities of Tokyo Responsible

for Waste Management and their Individual Responsibilities
Category of Responsible
waste operating Responsibility
management body
Each of the
Waste treatment
23 cities of Development of waste treatment plans for each city
planning
Tokyo
Sorting and
 Waste discharge by properly separating waste according to
separate Residents,
instructions of each city
discharge business
 Maintaining financial resources of each city by paying city
Cooperation for operators
taxes
waste reduction
 Waste collection by direct management of each city and
Collection, Each of the transport of the waste to intermediate treatment facilities
transport, and 23 cities of according to categories of waste
recycling Tokyo  Payment of assessed share (tax) according to the amount of
waste treated etc.
 Improvement and operation of 21 incineration plants, 2
Incineration Clean incombustible waste treatment centers, and one bulky waste
(Thermal Authority of shredding center to extend the final landfill sites lifetime by
recycle) TOKYO reducing the amount of waste to be landfilled.
 Paying landfill tipping fees
Each of the
 Final disposal using a final disposal site established and
Final disposal 23 cities of
managed by TMG (under contract out).
Tokyo
Source: Clean Authority of TOKYO, “Tokyo Model (general version)” (2018)
(3) Main Measures for Separated Waste Discharge
Tokyo 23 Cities have taken major measures from 1989 to 2000 to promote and strengthen waste
reduction and recycling based on the 3Rs principle, as shown in Table 6-3. Until 1999, TMG was
responsible for deciding on the policy of sorting classification and separate discharge. However , this
responsibility has shifted to each city since 2000.
Table 6-3 Main Measures Based on the 3Rs Principle

Year Description
Start of the TOKYO SLIM campaign
 Promotion of waste reduction and recycling through mass media
 Start of the “Tokyo waste conference” with the participation of citizens of Tokyo,
business operators, and the municipal administration
1989
 On-the-spot guidance by waste inspectors at premises of business operators to
promote waste reduction and recycling
The Tokyo Waste Conference annually held from 1991 to 1998 was attended by tens
of thousands of participants each time, attracting attention to waste management.
Charge for bulky waste collection
1991
 Bulky waste weighing less than 200 kg was charged in 1991.
Charge for business waste
 For approximately 560,000 business operators, business waste weighing less than
10 kg a day was charged. The Tokyo Rules prescribing the roles and responsibility
sharing were proposed.
1996  Tokyo rule I - Setup of weekly municipal resource recovery
 Tokyo rule II - Promotion of collection of containers etc. by manufacturers etc.
 Tokyo rule III - Collection of widely used PET bottles from stores after use
Business operators discharged waste with a sticker indicating the paid waste fee
affixed on it.
Resource recovery operators dealing in used paper, bottles, and cans
 Combustible waste collection was reduced from three times to twice a week, and
2000
collection of resources - used paper, bottles, and cans - was newly scheduled once
a week.
Source: Clean Authority of TOKYO, “Tokyo Model (outline)” (2018)
(4) Public Awareness and Environment Education Intended for Separated Waste Discharge
The Tokyo 23 Cities have been providing environment education for a long-period of time and
have endeavored to enhance awareness and foster habits to support recycling, through thorough face-
to-face communication and education of the next generation of waste generators.
Regarding waste discharge practices, ongoing promotional activities are conducted through public
relations newsletters on a daily basis to ensure that the rules for sorting and discharging of waste are
followed. If the rules are not followed, guidance is stepped up through door-to-door visits. When
existing rules are changed, or new rules are established, sufficient time is spent on carefully informing
residents of the changes or new rules to ensure a smooth transition. Specifically, face-to-face
communication is emphasized and a variety of awareness-raising and educational tools, such as the
distribution of multilingual leaflets are utilized so that foreign residents can understand the
information.
In addition, facility tours are actively arranged. Visitors facilities have been enhanced, and social
study tours for elementary schools, group tours and private tours are implemented. Facilities are open
to public during environmental events held in each city. Altogether 60,000 people participate in tours
annually. As facility tours allow residents, pupils and students to see the facilities with their own
eyes, tours are very effective to enhance awareness on waste management.
(5) Group Collection
In the Tokyo 23 Cities, residents are proactively conducting the following activities to recyclables
by means of group collection.
 Voluntary resident groups, each consisting of more than 10 families, collect resources
generated from homes and hand them over to resource recovery operators. The model project
of TMG’s “Waste Reduction and Recycling Movement”, launched in 1955, was the prototype
for this movement.
 Municipal administrations support these activities by providing financial incentives according
to the collected recyclables amounts, providing information about resource recovery
operators, and supplying or lending work tools and equipment.
The amount of resource recovery by group collection amounts to approximately 35% of the entire
amount of resource recovery in the 23 cities. It also amounts to approximately 8% of the entire
amount of waste and resources generated from households (2016).
(6) Waste Collection and Transport
As shown in Table 6-4, various measures have been taken to ensure 100% waste collection in the
Tokyo 23 Cities. FUREAI collection is a waste collection support initiated by the municipalities to
help elderly people and others who have difficulty in taking out waste by themselves. This service is
expected to increase from now on.
Table 6-4 Various Measures to Ensure Waste Collection
Planning Efficient Waste Collection FUREAI Collection

Creation of plans for waste Waste compactor trucks FUREAI collection
collection and transport 
 More than 1,500 waste trucks Visiting elderly people and
 Based on the estimated waste collect waste from impaired people who have
amount, waste discharge rules, approximately 440,000 stations. difficulty in taking out waste by
population density and other  About 70% of waste trucks are themselves, to collect their
data, and on-site conditions, small compactor vehicles that household waste.
plans for distribution of can turn in a small radius and
personnel and vehicles and plans achieve high waste compaction
for transportation routes, etc. are rates.
integrated into the general work  Affixing stickers on unseparated
plan. waste and uncollectible waste to
promote observance of correct
waste separation and discharge.
Source: Clean Authority of TOKYO “Tokyo Model (outline)” (2018)
Photo 6-10 Waste Collection Photo 6-11 Waste Collection Crew Directly
Collecting Waste from Elderly People
Clean Authority of TOKYO “Tokyo Model (outline)” (2018)
(7) Recycling
Table 6-5 summarizes the transport destination of recyclables, incombustible waste, bulky waste,
and combustible waste collected through municipal collection and the methods for recycling of each
waste category.
Table 6-5 Optimal Waste Recycling Suitable for Waste Categories and Treatment Levels
Separation
Transport Destination Recycling Method
Category
Incombustible waste Recycling and merchandising by private
Recyclables
treatment center collection operators
Incombustible Incombustible waste
Collection and reuse of iron, aluminum, etc.
waste treatment center
Bulky waste shredding
Bulky waste Same as above
center
Effective use of thermal energy
Combustible
Incineration plant Forming incineration ash into raw material for
waste
cement production
Photo 6-12 Overview of Incombustible Photo 6-13 Aluminum Collected at

Waste Treatment Facility and Bulky Waste Incombustible Waste Treatment Facility
Treatment Facility and Bulky Waste Treatment Facility
(8) Incineration and Thermal Recovery
The Clean Authority of TOKYO incinerates municipal waste generated from the Tokyo 23 Cities
at 21 incineration plants owned by those cities. In case of shutdown of all furnaces in one city,
incineration plants in a neighboring city receive and treat that city’s waste. In times of emergencies
such as the occurrence of the Great East Japan Earthquake in 2011, Clean Authority of TOKYO
accepted to treat disaster waste generated from outside the Tokyo 23 Cities. This was made possible
by the understanding of the local management council with which the clean authority had an
agreement for the operation of the facility. Plastics, which were once excluded from incineration
before the total incineration system for combustible waste was established, were later made eligible
for incineration (except for plastics that can be recycled) in order to extend the life of final disposal
sites and make effectively utilize resources. The energy recovered from incineration is used within
the facility, sold to electric utilities and heat suppliers, and returned to local communities such as
through use in schools and homes. Furthermore, selling electric power to electricity producers is
conducted according to the feed-in tariff (FIT) system. As of the end of FY2000, eleven (11) plants
were selling electricity under the FIT system (eight (8) plants were not eligible, total operating plants
at the time were 19 plants). In addition, electricity is supplied to nearby public facilities, such as
botanical gardens and swimming pools, either free of charge or for a fee. Some of the plants are
operated directly and others are outsourced to private operators.
(9) Final Disposal
In Tokyo, from 1927 to the present, 100,000,000 tons of waste were disposed of in seven (7)
landfill sites. In addition to intermediate treatment residue, industrial waste generated by small to
medium-sized business operators in Tokyo is also sent to landfill sites. As of around 2006, the service
life of the new maritime landfill site currently being utilized was expected to be available for about
30 more years. However, the subsequent implementation of thermal recycling of plastic waste and
the slag formation from the incineration ash have increased the service life of the landfill to more
than 50 years from the present.
After the completion of disposal in a landfill, the site is utilized in a variety of ways as shown in
Table 6-6 and Figure 6-5.
Table 6-6 Land Use after Closing of Landfill Sites in Tokyo

Service period Area
Name of landfill site Use of the land
(year) （ha）
Park, residential area,
① No. 8 Site 1927 - 1962 36.4
railway station
Park, tropical plant garden,
② No. 14 Site 1957 - 1966 45.0
baseball stadium, incineration plant
③ No. 15 Site 1965 - 1974 71.2 Industrial area, park, camp site
④ Central Breakwater
1973 - 1986 78.0 Park
Inner Landfill Site
⑤ Central Breakwater
1977 - present 199.0 In service
Outer Landfill Site
⑥ Haneda Offshore
1984 - 1991 12.4 Airport
Landfill Site
⑦ New Sea Surfacre
1998 - present 319.0 In service
Disposal Site
Photo 6-14 Landfill Photo 6-15 Landfill of Incinerated Ash

(⑤ Central Breakwater Outer Landfill Site) (⑤ Central Breakwater Outer Landfill Site)
*: Dotted lines indicate port area boundaries and shipping channels.

Source: TMG Bureau of Environment “Tokyo Metropolitan Government Waste Landfill Site” (2020）
https://www.kankyo.metro.tokyo.lg.jp/data/publications/resource/pamphlet_list.files/english_pamphlet2021.pdf
Figure 6-5 Final Disposal Sites in Tokyo
2.4 International Cooperation
In overcoming a large number of waste problems, Tokyo has accumulated rich and diverse
knowledge and experience on waste management. Tokyo has been engaging in international
cooperation activities concerning waste management and recycling in order to share the city’s
experience and knowledge with developing countries that are facing serious waste problems, and to
develop overseas the waste technologies that can contribute to the reduction of the global
environmental load. Table 6-7 shows specific international cooperation projects in which Tokyo has
been involved.
Table 6-7 Examples of Tokyo’s International Cooperation Projects

FY Results of Initiatives
2018 ＜Technical Advice to Foreign Cities＞
・ Ministry of the Environment “Overseas CO2 Reduction Support Project through
Strategic International Development of Japan's Recycling Industry”
Dispatched staff to the state of Telangana, India, to provide technical advice on the
contents of a feasibility study on the project.
・ Asian Development Bank (ADB) “Capacity Building Program for Urban Waste
Management in the Maldives”
In cooperation with the Ministry of the Environment, TMG, Katsushika City, and other
related organizations, ADB conducted site visits and lectures in Japan for administrative
officials and others in the Maldives. In addition, staff members were dispatched to the
Maldives to provide technical advice on local issues.
・ Ministry of the Environment: “Survey on Bilateral Cooperation for 3Rs and
Appropriate Treatment in the Asian Region”
Staff members were dispatched to Jakarta, Indonesia and Doha, Qatar to give lectures at
workshops and other events on the theme of the experiences of the 23 cities of Tokyo
regarding waste treatment.
＜Support for the Education and Training of Foreign Personnel＞
・ JICA “Technical Capacity Building on Waste Management for Introduction of Waste
Power Generation”
Accepted Vietnamese government officials and others as trainees, and in cooperation with
Suginami City, conducted observation tours and lectures on waste separation and
collection, recycling, intermediate treatment, etc. at collection sites and the Suginami
Intermediate Treatment Plant.
・ Ministry of the Environment “Overseas CO2 Reduction Support Project through
Strategic International Development of Japan's Recycling Industry”
Dispatched staff to Hanoi, Vietnam, to provide technical advice on the contents of the
project feasibility study.
・ Ministry of the Environment “Survey on Bilateral Cooperation for 3Rs and
Appropriate Treatment in Asia”
Dispatched a staff member to Hanoi, Vietnam to give a lecture at the Japan-Vietnam Joint
Committee and workshop on the experience of waste disposal in the Tokyo 23 Cities.
・ Ministry of the Environment “Commissioned work for identifying projects for the
Climate Technology Center Network (CTCN), etc.”
Dispatched a staff member to Hanoi, Vietnam to assist in the preparation of request forms
for CTCN projects in Vietnam, and provided technical advice on the contents of the forms.
FY Results of Initiatives
・ JICA “Project for Promotion of Waste Management Improvement in Kolkata
Metropolitan Area, India”
Received local government officials and others from the Kolkata metropolitan area in India
as trainees, and conducted observation tours and lectures on waste separation and
collection, recycling, intermediate treatment, etc. at the Arakawa Recycling Center and
Adachi Waste Disposal Plant in cooperation with Arakawa City.
・ “The 10th Asia-Pacific 3R and Circular Economy Promotion Forum” Co-hosted by
the Ministry of the Environment and the United Nations Center for Regional
Development
Attended the forum, which was held in online format, and shared information on 3Rs and
circular economy promotion with a wide range of stakeholders, including governments,
international organizations, and research institutes.
・ Ministry of the Environment “Training Program to Promote Overseas Development
of Japan's Recycling Industry”
Accepted trainees from six countries in an online format. In collaboration with Minato
City, lectures and question-and-answer sessions were held for administrative officials from
Mozambique on waste separation and collection, recycling, and other topics. In addition,
the system of a waste treatment plant was introduced and a question-and-answer session
was held for five other countries, including Indonesia.
・ JICA “Technical Capacity Building on Waste Management for the Introduction of
Waste Power Generation”
JICA provided materials and a question-and-answer session to assist in the implementation
of on-demand training for multinational government officials and others.
Source: Clean Authority of TOKYO “Business Overview FY2021” (2021)
Attachment 1 History of Solid Waste Management of Tokyo 23 Cities
Year 1900 1950 1960 1970 1980
Stable growth period, dealt with

The dawn of the waste problem Rapid economic growth, waste problems became apparent
environmental issues
1954 Central government 1963 Central 1970 Central government enacted the Acts
1900 Central government enacted the and Public Cleansing
enacted the Public government started a
Waste Cleaning Act
Cleansing Act subsidy program for
Waste Policy of waste treatment 1979 Cen
Central facilities treatmen
Government
and TMG 1900 TMG introduced the waste collection 1954 TMG established the 1970 TMG Revised ordinance (clarification o
outsourcing system and supervised those ordinances and organizations of of business waste dischargers and the impo
vendors the government cooperation)
1908 Direct management of waste collection 1969 Started collection of large-sized waste
1908 The direct management of waste collection and free collection until 1991 1973 Started sorted collection o
Collecting fee
Discharge,
Collection, and 1931-1963 Sorted collection of
Transportation -1931 Unsorted 1973-1996 Sorted coll
miscellaneous waste and kitchen waste
collection 1963-1973 Returned to unsorted non-combustible was
Sorted
collection
Number of 1930 Operated at four incineration plants 1973 Operated at 9 incineration

incineration plant
1924 Construction of the first waste management plant in Osaki, Tokyo
1929 Construction of Fukagawa
Utilization of
Incineration and residual heat from 1971-1974 War against Waste
other the incineration
plant
Intermediate
Treatments 1969 Started power generation at Setagaya Incine
Non-combustible, 1973 Started operation of the

large-sized waste
disposal
1979 Sta
1927-1962 No. 8
1957-1966 No. 14
Final Disposal
1965-1974 No. 15
1973-1986 Inside the Central Bre
Source: Japan Environmental Sanitation Center

1970 1980 1990 2000 2010
Stable growth period, dealt with Significant increase

blems became apparent Opening of 3Rs era
environmental issues in waste volume
1991 Amended the Waste

Central 1970 Central government enacted the Acts on Waste Management
Management and Public 2000-2005 Central government fully enforced
rnment started a and Public Cleansing
Cleansing Act and enacted the the Individual Recycling Law
dy program for Law for Promotion of Effective
e treatment 1979 Central government notified the waste Utilization of Resources
ties treatment facility structural guidelines
1999 Central government enacted the Act on
1989 TOKYO SLIM Special Measures against Dioxins
1970 TMG Revised ordinance (clarification of the responsibility
of business waste dischargers and the importance of resident 1992 TMG enacted new ordinance (generation control, promotion of
cooperation)
1996 Tokyo
1969 Started collection of large-sized waste
ection until 1991 1973 Started sorted collection of waste unsuitable for incineration 1991 Started full charge for large-sized waste
1996- Started full charge for business-related waste as well as large-sized waste
1973-1996 Sorted collection of combustible and 1997 Sorted collection of combustible, non-combustible,
rned to unsorted non-combustible waste recyclable waste
1973 Operated at 9 incineration 1985 Operated at 13 incineration 2001 Completed the current 21 incineration plant
1990 Operated at 14 incineration

2009 Full-fledged
implementation of thermal
1971-1974 War against Waste recycling of waste plastics
1969 Started power generation at Setagaya Incineration Plant
2002-2008 Promotion of
1973 Started operation of the first plant of the non-combustible waste treatment center gasification molten ash melting
1979 Started operation of large-sized waste crushing processing facility (Chubo Landfill)
1977-present Outside the Central Breakwater
1998-present Shinkaimen Disposal Site
1965-1974 No. 15
1973-1986 Inside the Central Breakwater
1984-1991 Off the coast of Haneda

3 Waste Management Efforts Made by Fujisawa City
This section describes how Fujisawa City, an average medium-size Japanese city, has solved
waste management issues in various periods from the 1940s up to the present date. Specifically, the
focus is on the city’s experience in managing recyclables starting from the early 1970s. Based on
the experiences, the sound material-cycle waste management system was established.
Established as a city in 1940, Fujisawa City has been incorporating neighboring towns and villages
and is still developing as a major urban city in the Shonan region, and presently has an area of 69.56
km2 and a population of 430,000. From 1955 to the late 1960s, during the period of high economic
growth, many large companies developed factories in the city almost turning it into an industrial city.
However, the early half of the 1970s commercial facilities were developed in the city and Fujisawa
City became the commercial heart of the Shonan region. In recent years, Fujisawa City has become
a city with a wide variety of characteristics, including that of an educational city.
The waste treatment system is based on a recycling system known as the Fujisawa Model, which
is supported by one facility for pulverization and recycling, two incineration facilities, and one final
disposal facility that promotes recycling, utilizes incineration energy, and reduces the load on the
final disposal facility.
Fujisawa City has summarized the present waste management situation in a document titled the
“Outline of Waste Management”. In this document, the activities for waste management from the
1940s to the present day are outlined to describe the history of the city’s waste management.
This section will overview Fujisawa City’s efforts in waste treatment with reference to the “Outline
of Waste Management (2019: Fujisawa City)”.
Source (Photo): Fujisawa City “Overview of Waste management in Fujisawa City (JICA Training Text)” (2019)
Figure 6-6 Location of Fujisawa City
3.1 History of Waste Management in Fujisawa City
Fujisawa City has developed its waste management along with the times, from the improvement
of waste collection to the full-scale introduction of 3Rs, and the period from the 1945s to the present
is divided into four periods.
(1) Period of Seeking a Better Waste Collection Method, 1945 - 1964
The history of waste management in Fujisawa City began in this period. Waste collection carried
out by private sector operators started in 1947 and three years later, the collection operation was
changed to direct management by the city. Late in this period, the amount of generated waste
significantly increased due to the expansion of the urban district, increase in population, and
enhanced standards of living. Accordingly, door-to-door collection was changed to station collection,
and use of mechanized collection vehicles was promoted.
Table 6-8 Waste Management Related Events from the 1945 to 1964 Period
Storage and
From 1950, plastic containers were used for discharging municipal waste.
discharge
From 1947, waste collection was carried out by private operators using two-
wheeled carts, general carts, etc. From October, 1950, waste collection was
conducted for a fee by tricycles and carts under the direct management of the
city mainly in the urban area which was a special cleaning district designated
Collection and by the former Waste Cleaning Act of 1900. Around 1961, the collection system
transport was enhanced and mechanical power was actively introduced. In 1964,
conventional door-to-door collection was changed to collection at stations and
the system of “discharge of waste using containers at stations on fixed dates”
was adopted. Also, to increase waste collection and transport efficiency, special
vehicles - waste trucks - were introduced into operation.
Recycling No records
Intermediate Collected waste was incinerated at the Ishinazaka incineration plant (fixed
treatment batch furnace, 15t/8h, 2 units) built in 1955.
Collected waste was previously buried in agricultural land, dry riverbeds, etc.
After the waste incineration plant was built, incineration residue (ash) and some
Final disposal
kitchen waste were disposed. As a result, the amount of waste disposed
decreased.
Source: Fujisawa City “Outline of Waste Management FY2019” (2021)
(2) Period of Seeking Proper Waste Treatment for Bulky Waste, 1965 - 1974
Accompanied by the high economic growth, consumption styles diversified and discharging of
bottles, cans, and home appliances in the waste increased. Both the quantity and quality of waste
significantly changed. In addition, the central government thoroughly revised its former Public
Cleansing Act and enacted the Waste Management Act with the aim to secure and preserve
appropriate living environment, and regulate waste management from a broad perspective, thereby
fundamentally addressing waste management issues throughout the entire municipality.
Storage and
No records
discharge
In this period, bulky waste increased in both quantity and size. It became
difficult to incinerate such waste, and separate collection of bulky waste was
Collection and introduced in 1970, through contract out. From 1970 to 1979, bulky waste was
transport directly disposed of at the Ishinazaka landfill site. From 1973, municipal waste
was collected twice a week on designated days of the week throughout the
entire city.
Recycling No records
Separate collection of bulky waste began in 1970, and from then on only
municipal waste was incinerated in the incineration plants. However, with the
increase of the municipal waste amount and changes in the waste quality, the
capacity of incineration facilities was enhanced.
Intermediate
The Ishinazaka incineration plant was expanded; 2 units of 40t/8h in 1965, + 1
treatment
unit of 40t/8h in 1968. To address further anticipated increase of waste in the
near future, the North Waste Management Center (incineration plant) was
constructed with a mechanical furnace of 150t/24h installed in 1970, and a
second furnace of 150t/24h installed in 1973.
With the increase of incineration residue (ash), it became necessary to secure a
Final disposal long-term final disposal site. In cooperation with a land owner, a landfill site
was constructed in Chogo Kamiyadai in 1972.
(3) Dawn of 3Rs and Period for Development of Intermediate Treatment Facilities, 1975
- 1994
During this period, the amount of waste continued to increase and the contents of waste were
diversified as well. Consequently, it became difficult to conduct proper treatment and disposal of
waste collected based on only two categories: municipal waste and bulky waste. To find an effective
means for waste reduction, the “Fujisawa City Waste Reduction Promotion Office” was established
in April, 1977, and waste reduction and recycling measures were regularly discussed. Fujisawa City
invited citizens to participate in the discussions at the early design phase of the waste management
system instead of asking citizens for their cooperation after the system had been designed. As a result,
a waste separation system was successfully established. It was favorably accepted by the citizens. In
October 1990, Fujisawa City established the “Fujisawa City Waste Control Conference” with the
participation of four parties: citizens, business operators, academic experts, and municipal
administration officials. The Conference proposed measures to reduce the amount of waste by 20%
by the year 2000, to the mayor of Fujisawa City in October 1991.
In 1978, along with the recycling of municipal waste, paper bags designed for
Storage and
municipal waste discharge were allowed in addition to the conventional plastic
discharge
containers. Thus, two methods for discharging waste became permissible.
Collection and
No records
transport
Fujisawa City started to implement a waste reduction and recycling policy. The
“Fujisawa City Waste Reduction Promotion Office” was established and waste
reduction and recycling measures were regularly discussed. As a result, in
February, 1978, collection of recyclables - bottles, cans, metals, fabric, paper – was
initiated jointly by three parties; the city, citizens, and the Shonan Branch of the
Recycling “Kanagawa Resource Recovery Merchant Cooperative Association” (the name
was changed to the “Fujisawa City Resource Recovery Cooperative Association”
on April 1, 1989). Thus, waste was collected according to three categories:
municipal waste, bulky waste, and recyclables. History of the recyclables
collection (Fujisawa method) will be described in section 3.2, hereafter
“Noteworthy experience: Recycling of recyclables - Fujisawa method”.
Construction of the bulky waste shredding facility (50t/5h) was launched in 1978
to improve direct landfill of bulky waste.
Reconstruction of the aging Ishinazaka incineration plant started in 1979 and was
completed after three years, and operation commenced from 1981.
The Ishinazaka waste management center (currently Ishinazaka Environment
Center, an incineration plant) was constructed in 1983 (fluidized-bed system
130t/24h x 3 units) and started operation in 1984. For this facility, strict
environmental quality standards, such as double-structured side walls of the plant
Intermediate building, etc., were required because urbanization of neighboring areas progressed
treatment and residential areas expanded while the former furnaces were in operation.
Furthermore, renovation of the incineration facility (furnace No. 1, 150t/24h x one
unit) of the North Waste Management Center and construction of the bulky waste
shredding facility (30t/5h) were launched in 1984. Those facilities were completed
and started operating in October, 1986. In addition, renovation of the shredding
facility of the Kirihara Waste Management Center was launched in 1986 and the
facility was completed in March, 1989.
Renovation work for the waste incineration facilities in the North Waste
Management Center was launched in 1987 and completed in March, 1989.
The Chogo Chubun first landfill site was constructed in 1973, and the Yane landfill
site and Kuzuhara landfill site were constructed in 1979. The Ishinazaka landfill
site (city-owned land) that had been used since 1970 was transformed into a lush
green park and opened to the public in 1981. The Yane landfill site which had
Final fulfilled its role in 1986 was transformed into a multipurpose ground in April,
disposal 1988. The Chogo Chubun second landfill site had also fulfilled its role in 1986. To
replace the Kuzuhara landfill site, which had been used along with the Yane and
Chogo Chubun landfill sites and would soon reach its disposal capacity,
construction of the Kuzuhara second landfill site started in 1987 and was
completed in 1989.
(4) Period of Full-Scale 3Rs Introduction, after 1995
The amount of generated waste nationwide began to increase in the 1980s. Municipalities hastened
to improve landfill sites, and started to seriously engage in waste management based on the 3Rs
policies, and increased source separation and separate collection activities for some recyclables. In
1999, the collection of PET bottles was initiated citywide, followed by source separation and separate
collection of miscellaneous waste paper resources in 2001. In the same year, with the implementation
of the Small Home Appliance Recycling Act, four home appliance items were excluded from the
general collection, and the separate collection of plastic containers and packaging was introduced in
2002.
In 2014, the Recycle Plaza Fujisawa was completed. The Recycle Plaza incorporated a recycling
facility and a public educational facility, thereby greatly contributing to public awareness of waste
management. This type of recycle plaza has been constructed nationwide since 1990.
Table 6-11 Waste Treatment Related Events after 1995

Storage and
No records
discharge
In 1998 the South Waste Management Center construction started and was
Collection and
completed in February, 1999. Since 1999 waste has been collected and
transport
transported to two centers: one in the north and the other in the south.
Intermediate treatment of resources was conducted in recycling facilities.
However, the adjacent shredding facility of the Kirihara Environment Center
deteriorated with age, and from 2010 the facility was renovated into a material
recycle facility as a four-year project. At the time of construction the tentative
Recycling name of this facility was the Fujisawa City Recycle Center.
The waste treatment building equipped with a shredding facility was built in
March, 2013, and the environmental education building was built in January,
2014, to enhance public awareness of environmental problems. In February,
2014, it was decided to name those facilities the Recycle Plaza Fujisawa.
Regarding waste treatment facilities, the North Environment Center was
improved to ensure that its functions are properly maintained, and the exhaust
gas advanced treatment (dioxin reduction) facility of Ishinazaka Environment
Intermediate
Center was also improved as a three-year project from 1997 to 1999.
treatment
Furthermore, at the North Environment Center, furnace No. 2 was modified in
2002 and 2003, and furnace No. 1 was upgraded as a three-month project in
2004. This construction was done by the DBO (develop-build-operate) system.
The Kuzuhara second landfill site that had been used since 1989 was expected
to become full in 2003. Accordingly, construction of the Onnazaka landfill site
Final disposal
started in 1994 as a three-year project to be used as the next landfill site. It was
completed in March, 1997.
3.2 Noteworthy Experience: Recycling of Recyclables - Fujisawa Method
The “Fujisawa method” has two features: [1] it was the nation’s first project of this kind, and [2]
it was a project in which citizens, municipal administration, and collection operators were jointly
engaged. The citizens followed the sorting and separate discharge instructions provided by the
municipal administration together with the waste collection operators, and as a result it became
possible to obtain recyclables of the quality required by the recycled goods market.
In the 1970s Japan's major municipalities became involved in separated waste collection. At the
time the objective behind separate waste collection was to support the proper treatment of waste, and
was not for the promotion of recycling. In those days, incineration was the main method of waste
treatment and therefore, incombustible waste and bulky waste that could interfere with the
incineration process were separately collected and not taken to incinerators. Many municipalities
started to separate recyclables for the purpose of recycling in the 1990s. However, Fujisawa City was
engaged in recycling of recyclables earlier, in the 1970s through the joint activities of citizens,
municipal administration, and collection operators. This method was referred to as the “Fujisawa
method” which attracted countrywide attention.
Column: Waste Reduction and Background of the Movement to Recycle Waste
(1) Rapid Increase of Bulky Waste

Sorted collection of bulky waste started in 1970 and continued as usual for a while at the time of
the oil shock in 1973. To promote resource saving, during that time, Fujisawa City was striving to
provide leadership training for local children’s associations, residents’ associations, and women’s
associations to initiate voluntary group collection of recyclables for recycling. However, the amount
of bulky waste began to significantly increase from around 1975 by 10 to 20% a year and the cost
of collection increased accordingly.
(2) Saturation of Landfill Sites

Since the start of waste separation in 1970, collected bulky waste was directly disposed of in city-
owned land (area of 37,000 m2) located in the center of the city. However, around 1977 the landfill
capacity was filling up as a result of urbanization in neighboring areas. As it was difficult to secure
alternative landfill sites, proper treatment of bulky waste became necessary considering
environmental conservation and effective utilization of landfills.
(3) Composition of Bulky Waste

Fujisawa City conducted field investigation of its landfill sites and at stations where the bulky
waste was delivered. Results of the investigation revealed that approximately 60% of bulky waste
- such as large furniture units, large electric home appliances, bottles, cans, metals, cardboard, etc.
- could be recycled or reused, and separating bulky waste would help reduce such bulky waste,
extend the service life of the city's landfills, conserve the environment, and benefit recycling of
waste.
(4) Establishment of the Waste Reduction Promotion Office

In April 1977 Fujisawa City established the “Waste Reduction Promotion Office” to address the
urgent needs, specifically; to cope with the increase in bulky waste amount and filling up of
landfills, reducing waste, promoting waste recycling, and implementing proper treatment. The
investigation research group, which was a subordinate organization of the Office, researched and
discussed specific measures. The investigation results showed that large quantities of bottles, cans,
metals, paper, and fabric were contained in conventional municipal waste and bulky waste. Since
separation of such waste would be an easy process to implement, an outline of the measures was
roughly developed as follows. The city, working jointly with residents and waste collection
operators would implement a waste collection system. In that system, routes for collecting
recyclables would be newly established, and local residents would sort out their waste before
discharge and bring the separated waste on designated dates and to designated containers placed at
designated locations. Waste collection operators would then collect the separated waste. Such a
collaboration system was considered to be appropriate.
(5) Trial Collection in Model Districts and Expansion throughout the Entire City Area
Based on discussions by the investigation research group, three model districts were selected; a
housing complex, an independent housing district, and a mixed district having both residences and
shops. Separate waste collection trials were performed in the three districts for three months from
September, 1977. The results of the trial collection were favorable.
The results confirmed that considerable advantages could be expected from this waste collection
method. It was also confirmed that the waste collection could be satisfactorily introduced if
sufficient efforts were made to promote the understanding of residents and public awareness about
the implementation method, and give proper instructions. Accordingly, the “Operating procedure
for Fujisawa City waste reduction and recycling activities” was created, and while proceeding with
the improvement of the city’s advisory system and promoting public awareness of the new system
in public relations publications, Fujisawa City launched the step-by-step implementation of the
waste collection project. The first phase commenced implementation in February, 1978, the second
phase started in August, 1978, and the third phase in February, 1979. Upon the expansion of the
model districts, city staff were mobilized under administration-wide coordination to instruct
citizens on source separation and separated waste discharge. The citizens eagerly cooperated.
Thus, it took only one year to expand the collection system throughout the entire city area from
the time the collection was first implemented in the first district.
This method, referred to as the “Fujisawa method”, where citizens, municipal administration,
and collection operators worked together, attracted countrywide attention.
3.3 Experience of Construction and Renovation of Incineration Facilities
Construction of waste incineration facilities requires the understanding and agreement of local
neighborhood residents through having a dialogue with them. When the new plant, Ishinazaka
Environment Center was constructed at the site of the old Ishinazaka incineration plant in Fujisawa
City, the neighboring areas were crowded residential areas and strict environmental measures were
required. Furthermore, as the service life of incineration facilities is long, ranging from 30 to 35
years, it was necessary to respond to changes both in waste quality, as well as in laws and
regulations during the long operation period. Fujisawa City also took countermeasures against high-
calorie heat generation and dioxins.
Construction and improvement of waste incineration facilities presented significant challenges for
all municipalities in Japan. During the period of high economic growth, waste quality dramatically
changed, and facilities failed to properly manage such waste, causing unexpected problems. Also,
during renovation of old facilities, strict environmental measures were required due to the
urbanization of neighboring areas and spread of crowded residential areas around the facilities since
they were first constructed. Landfill sites were confronting similar conditions. Developed urban areas
were expanding to a level where there was no longer any surplus land in the city, and it was becoming
difficult to find sites for constructing new landfill sites. These are usual challenges in many countries.
In 1981, a new Ishinazaka Incineration Plant (capacity of 390 ton/day) was constructed as a facility
of the Ishinazaka Environment Center in Fujisawa City on the site of the old waste treatment facility.
The areas around the site had been developed into residential areas. Thus, the site of the incineration
plant was located in what had become a residential area, and accordingly strict environmental
measures had to be taken. When a new waste incineration facility is constructed at a site where there
used to be a facility, it is necessary to give due consideration to residents in neighborhoods adjacent
to the new plant even if those affected neighborhoods developed after the old incineration facility
had been built and was in operation.
From 1986 to 1990, renovation works were carried out at the North Waste Management Center to
deal with the high-calorie heat generation.
Subsequently, the North Waste Management Center and Ishinazaka Environment Center have
undergone dioxins reduction modification works.
When the No. 1 furnace at the North Waste Management Center was renewed between 2004 and
2007, various privatization methods were considered to meet the needs for cost reduction and leveling
due to the financial difficulties at the time. As a result, DBO (Design-Build-Operate) method was
adopted for the construction work.
3.4 Current Waste Management in Fujisawa City
In Fujisawa City, based on efforts in recycling of recyclables, and construction and improvement
of incineration facilities, the consumption of natural resources has been reduced, and a resource-
recycling waste treatment system was established with the aim of realizing a society in which the
burden on the environment is minimized as much as possible.
(1) Waste Management Flow in Fujisawa City
As shown in Figure 6-7, the waste management flow in Fujisawa City starts with waste being
collected according to the following categories: combustible waste, bulky (large-sized) waste,
incombustible waste, recyclables, and hazardous waste. After collection, combustible waste and
combustible bulky waste are incinerated at the North Incineration Plant and the Ishinazaka
Incineration Plant, and incineration residue is treated by melting. Incombustible bulky waste,
incombustible waste, and recyclables are shredded and sorted at the Recycle Plaza Fujisawa, and
resources are then sold and shredded combustibles are incinerated. Incineration residue is disposed
of in a landfill. Hazardous waste is temporarily kept at the Recycle Plaza Fujisawa and then disposed
of by the contracted expert operators.
Combustible
North Incineration Plant/ Melting Process
Waste (Residue)
Ishinazaka Incineration (Commissioned
86,857ton/year
Plant Disposal)
86,857ton/year 10,532ton/year
Bulky Waste
3,363ton/year (Combustible)
(Incombustible) (Crushed combustibles)

Recyclables
(Resources)
32,019ton/year Sold
45,150ton/year
Incombustible
Waste Recycle Plaza Fujisawa
10,011ton/year 43,957ton/year Disposal by
Contracted
Hazardous Waste Expert Operator
8ton/year 83ton/year
Figure 6-7 Waste Management Flow in Fujisawa City (FY2020)
(2) Source Separation and Separate Waste Discharge, Collection, and Transport
In 2007, Fujisawa City changed the waste collection system from station collection to door-to-
door collection. The reasons for changing from the highly-efficient station collection to the door-
to-door collection were to eliminate waste stations that may detract from the local scenery and to
clarify the responsibility of waste generators who discharge waste. Door-to-door collection while
lower in terms of collection efficiency, is expected to achieve the major goal of reducing the amount
of combustible waste by encouraging individuals to thoroughly sort out their own waste.
Since 1992, Fujisawa City had been collecting the four waste categories of combustible waste,
incombustible waste, bulky waste, and recyclables by station collection method. However, with the
objective to further reduce the waste amount, in April, 2007, the station collection system was
changed to the door-to-door collection system throughout the entire city; and waste was sorted
according to the items shown in Figure 6-8, with the exception of some recyclables. In contrast to
station collection, which does not clearly identify the waste generators, door-to-door collection, in
which waste is collected in front of the home, clearly identifies the waste generators. Therefore, it
was expected that door-to-door collection would lead to greater responsibility felt by waste
generators and motivate them to better sort their waste at source, which in turn would lead to waste
reduction (for more details on station collection and door-to-door collection, refer to “Topic 4-1.2
Collection Methods”). In addition, in October of the same year, the city started to charge for the
collection of combustible and incombustible wastes by requiring residents to purchase and use
designated waste bags so as to further promote waste reduction (for more details on charging fees,
refer to “Topic 3-3.4 (4) Charging Fees on Waste Management”).
Combustible waste discharged in designated bags from each household is collected twice a week
by small compactor vehicles of two-ton capacity and lightweight trucks belonging to the North
Environment Center and the South Environment Center. Since April, 2012, contracted collection
operators have been collecting combustible waste in about 60% of the city area.
Collection of bulky waste is done by contracted collection operators. Bulky waste discharged in
front of each house is collected by compactor vehicles and dump trucks every other day in each area
and transported to the Recycle Plaza Fujisawa (shredding facility). Furthermore, to respond to an
aging society, a waste collection support was started from April, 2015, by helping elderly people and
others who have difficulty in discharging waste from their homes.
Incombustible waste is discharged in designated bags from each household two or three times a
month on designated days. Collection of incombustible waste discharged from about 40% of the city
area is directly managed by the city, and incombustible waste discharged from the remaining 60% of
the city area is collected by contracted collection operators. All of the collected incombustible waste
is transported to the Recycle Plaza Fujisawa.
Recyclables are discharged at stations once every other week in cooperation with local residents’
associations etc. and is collected by the Fujisawa Resource Circulation Cooperative Association.
Waste
Combustible Waste Incombustible Waste Bulky Waste Resources

Door-to-Door Collection Door-to-Door Collection Door-to-Door Collection Station Collection
・Waste over ・Newspaper, Fold in Advertising

・Kitchen Waste ・Leather Goods
・Paper
・Cigarette, Ash ・Metals 50cm
・Cardboard
・Small Home ・Bicycles
・Wood ・Beverage Packs
Appliances ・Microwave Ovens
・Wastepaper ・Grass, Ceramics ・Cloths
・Tires
Charge: ・Cleaners etc. Door-to-Door Collection
Charge:
Designed bags Designated bags Charge: Pay ・Glass Bottles
tickets for bulky ・Cans, Pots
waste (5 USD) ・PET Bottles
・Desks, Wardrobes, ・Cooking Oil
・Paper Diapers ・Fluorescent Lights ・Book, Magazines
・Grass, Leaves Beds etc.
・Batteries, Lighters ・Plastic Containers
・Branches
(less than 1cm) ・Gas Cylinders, Sprays ・Plastic Products
Charge: Pay ・Pruned Branches
Free of Charge: Free of Charge:
Transparent and Transparent and tickets for bulky
translucent bags translucent bags waste (10 USD)
Source: Fujisawa City “Solid waste management in Fujisawa City (JICA training text)”（2019）
Figure 6-8 Waste Sorting Items
Table 6-12 Prices of Designated Waste Bags

Types of bags Price
Type
Object Size 10 bags in 1pack 5 bags in 1pack
Mini（5 L） 100 JPY -
Bags for combustible and Small（10 L） 200 JPY -
incombustible wastes
Household Waste
(Pink color) Medium（20 L） 400 JPY -

Large（40 L） - 400 JPY
Mini（5 L） 100 JPY -
Bags for combustible waste Small（10 L） 200 JPY -
only
(Yellow color) Medium（20 L） 400 JPY -
Large（40 L） 800 JPY -
Bags for combustible and Medium（20 L） 1,500 JPY -

Business
Waste
incombustible waste
(Blue color) Large（40 L） 3,000 JPY -
Source: Fujisawa City Website “Types of Designated Collection Bags and Handling Stores”
https://www.city.fujisawa.kanagawa.jp/kankyo-j/kurashi/gomi/wakekata/shushubukuro.html (accessed
February 9, 2022)
(3) Recycling
The Recycle Plaza Fujisawa was built in 2014 by combining a shredding and recycling treatment
building with an environmental education building aiming of promoting public awareness through
the display of environmental systems and provision of experiential activities. Recycle Plaza Fujisawa
receives and recycles the entire quantity of bottles, cans, and PET bottles and some part of plastic
containers and packaging. Recyclables that is not received at the Recycle Plaza Fujisawa is recycled
by the Fujisawa Resource Circulation Cooperative Association and private business operators. Thus,
under the management of the city, private business operators utilize their own recycle routes to
increase the recycling rate.
Source: Fujisawa Eco Website “Recycling Plaza Fujisawa”

https://fj4.city.fujisawa.kanagawa.jp/recycleplazafuj
isawa/ (accessed January 24, 2022)
Photo 6-16 Recycling Plaza Fujisawa
(4) Intermediate Treatment by Incineration
Combustible waste is received at the Ishinazaka Environment Center and the North Environment
Center and then incinerated.
The Ishinazaka Environment Center is equipped with continuous-firing type fluidized-bed system
incineration furnaces (130t/24h x 3 furnaces). As the amount of collected waste was reduced due to
the benefits of using the paid-for designated bag system, since 2008 operation of furnace No. 1 has
been discontinued, while furnace No. 2 and furnace No. 3 are in operation.
The North Environment Center is equipped with firing type stoker furnaces (150t/24h x 2 furnaces).
Furnace No. 1 was demolished because of deterioration due to age, but furnace No. 2 was upgraded
using the DBO method and is currently in operation.
Photo 6-17 North Incineration Plant Photo 6-18 Ishinazaka Incineration Plant
(150t/24h×1 unit） (130t/24h×3 unit）
(5) Environmental Education and Public Services
Fujisawa City provides an experiential learning program for the fourth grade elementary school
pupils and kindergarten children by visiting their schools and kindergartens. For the purpose of
promoting waste reduction and recycling so as to extend the service life of its landfill sites, children
can begin to acquire knowledge about waste management and become aware of the present
circumstances from childhood. Furthermore, the “quick call FUREAI collection” is being
implemented. This service is intended for households with aged or disabled residents who are not
able to take out their household waste (except for bulky waste) and recyclables to the stations. A city
staff member announces their offer to help at the entrance of the house and helps the residents who
need assistance to discharge their own waste.
Photo 6-19 School Visit Program Photo 6-20 FUREAI Collection Vehicle
Source: Fujisawa City “Solid waste management in Fujisawa City (JICA training text)”（2019）
(6) Final Disposal
The Onnazaka landfill site, constructed in 1997, is currently Fujisawa City’s only landfill site.
Initially, the landfill operation was scheduled to end in 2008, but as a result of construction of
expansion works, the landfill operation period was extended to 2036.
As it is extremely difficult to secure a site to construct a new landfill in the city, further waste
reduction is required. The city is striving to effectively utilize the waste items intended for landfill
so as to reduce the amount of waste entering the landfill and thereby extend the life of the landfill
site.
Source Fujisawa City “Solid waste management in Fujisawa City (JICA training text)”（2019）
Photo 6-21 Onnazaka Landfill Site
Attachment 2 History of Solid Waste Management of Fujisawa City

Year 1940 1950 1960 1970 1980 1990
1963 Central 1970 Central government enacted the Acts

government on Waste Management and Public Cleansing
1954 Central government enacted started a subsidy
the Public Cleansing Law program for waste
treatment facilities
Waste Policy of
Central government
1973 Fujisawa City Ordinance on
and Fujisawa City 1961 Established rules for Fujisawa
waste management and cleaning
City incineration plant
1977 Establishment of Fujisawa City
waste reduction promotion
headquarters
1950-1978 Taking out combustible waste in plastic containers

Discharge /
1964 Taking out garbage in containers to the collection site on regular days of the week
storage
1978 Started using plastic containers and special p
1947- Collected by private companies using two-wheeled

handcart and bicycle cart
1950- Direct management by the city charging collection fee using

tricycle and bicycle cart
Around 1961- Enhancement of collection system and

introduction of mechanical power
1964 Introduction of special vehicles
Collection and
transportation
1964-2007 Collecting garbage at fixed collection s

-1964 Door-to-door collection
Collection system
Source separation
Mixed collection 1970 Started Source 1989 Apr. Started source separation of
separation of 2 (combustible, 3 (Fujisawa method; combustible, large-
large-sized waste) sized, recyclable waste)
Recycling
1981-1984 Reconstruction of Is
incineration plant
1955 Construction and completion of 1965 Extension of Ishinazaka incineration plant
Ishinazaka garbage incineration plant (Fixed batch furnace; 40 x 2)
1984 Completed and sta
(Fixed batch furnace; 15 x 2)
Cleaning Center
1970-1974 Construction and completion 1986 Constructi

of the Hokubu Cleaning Plant
Incineration and (continuous furnace; 150 x 2 units)
other processing
1989 Construction to increase calorie
1990 Countermeasures against dioxi
-1978 Landfilled large-sized

waste directly in Ishinazaka
Landfill 1978 Con
1986-1987
1970-1979 Ishinazaka Landfill 1981- Use

1950- Landfilled waste in fields, old riverbeds,
etc. (After the completion of the Ishinazaka
incineration plant, waste included incinerator
1972-1979 Chogo Kamiyadai Landfill
ash and some raw garbage)
1978-1987 Tanne Final Disposal Site
Final disposal 1981-1986 Chogo Nakabun Final Disposal Site
1980-1995 Kuzuhara Final Disposal Site
1989-2010
Source: Japan Environmental Sanitation Center

1970 1980 1990 2000 2010 2020
1963 Central 1991 Central government enacted the Law for

1970 Central government enacted the Acts
government Promotion of Effective Utilization of Resources
on Waste Management and Public Cleansing
started a subsidy
1995 Central government enacted the Individual Recycling Law
program for waste
treatment facilities 1999 Central government enacted the Act on Special
Measure against Dioxins
1 Established rules for Fujisawa 1973 Fujisawa City Ordinance on

1992 Fujisawa City Waste Reduction
waste management and cleaning 2007 Fujisawa City Environmental Fund
y incineration plant Fund Ordinance
Ordinance
1977 Establishment of Fujisawa City 1992 Fujisawa City Ordinance on
waste reduction promotion 2007 Fujisawa City Ordinance for Creating a Clean and
Waste Reduction, Recycling and
headquarters Comfortable Environment
Proper Disposal, etc.
bustible waste in plastic containers
1964 Taking out garbage in containers to the collection site on regular days of the week
1978 Started using plastic containers and special paper bags to take out combustible waste
wheeled 1992 Started large-sized waste call system collection
1999 Started collection of PET bottles throughout the city

t management by the city charging collection fee using
bicycle cart 2001 Started sorted collection of miscellaneous paper as resources
Around 1961- Enhancement of collection system and
introduction of mechanical power 2001 Removed 4 home appliances from collection list
1964 Introduction of special vehicles

2002 Started collection of plastic 2015 Started door-to-
containers and packaging as resources door collection of
recyclable resource
1964-2007 Collecting garbage at fixed collection sites 2007 Door-to-door collection throughout the city
1970 Started Source 1989 Apr. Started source separation of 1992 Started Source separation of 4 (Fujisawa
separation of 2 (combustible, 3 (Fujisawa method; combustible, large- method; combustible, large-sized, non-combustible,
large-sized waste) sized, recyclable waste) recyclable waste) 2007 Started charging fee for waste disposal
1991 Subsidy for purchasing compost containers
1992 Construction of empty can processing facility
1993 Regeneration of incombustibles and the use of

aggregate for road construction
2014 Completed Fujisawa City

1998 Subsidy for purchasing a disposer
Recycling Plaza (Crushing
processing facility and
Environmental awareness
building)
1994 Fujisawa Recycle Cooperative started collecting recyclable waste at garbage collection sites
2002 Collection of plastic container throughout the city
2013 Collection of small household appliances
1981-1984 Reconstruction of Ishinazaka

incineration plant
n of 1965 Extension of Ishinazaka incineration plant 1997-1999 Ishinazaka Cleaning Center Dioxin Countermeasures
lant (Fixed batch furnace; 40 x 2)
1984 Completed and started operation at Ishinazaka
Cleaning Center
2004-2007 Renovation of No. 1
furnace (DBO method)
1970-1974 Construction and completion 1986 Construction to increase calories in No. 1 furnace
of the Hokubu Cleaning Plant
(continuous furnace; 150 x 2 units)
2013 Abolished No. 2 furnace
1989 Construction to increase calories in No. 2 furnace 2002-2004 Renovation
1990 Countermeasures against dioxin in No. 1 and 2 furnaces of No. 2 furnace
-1978 Landfilled large-sized

waste directly in Ishinazaka
Landfill 1978 Construction of large-sized waste disposal facility (Kirihara; 50 / 5h) and renovation in 1989
1986-1987 Construction of large-sized waste disposal facility (Hokubu Incineration Plant; 30t / 5h)
1970-1979 Ishinazaka Landfill 1981- Used the vacated site for a place for citizens to relax
ds,
or
1972-1979 Chogo Kamiyadai Landfill
1978-1987 Tanne Final Disposal Site 1988- Used the vacated site for a multipurpose open space
1981-1986 Chogo Nakabun Final Disposal Site
1980-1995 Kuzuhara Final Disposal Site
1989-2010 Kuzuhara No.2 Final Disposal Site
1997 Mezaka Final Disposal Site

4 Waste Management Efforts made by Shibushi City
Shibushi City is a municipality that does not have a waste incineration facility, which is rare in
Japan, and has worked to reduce and recyclables through thoroughgoing separation of household
waste. In complete contrast to previously implemented mixed waste collection, the introduction of
source separation and separated waste collection of multiple waste items successfully achieved a
large reduction in final waste disposal to one-eighth. The experience of Shibushi City provides an
understanding of needed design of the waste management system and how to obtain residents’
cooperation in order to make recycling successful.
Shibushi City was established in January 2006 through the merger of former Shibushi town, former
Ariake town, and former Matsuyama town. The city has a fan-shaped area measuring approximately
23 km from east to west and 18 km from north to south and has a total area of 290.28 km2 which is
approximately 3.2% of the total area of Kagoshima Prefecture. Table 6-13 shows the population and
the number of households according to the national population census of 2020.
Taking advantage of a vast expanse of farmland and genial climate and utilizing large-scale dry
field irrigation, the city has developed into one of the prefecture's most productive and specialized
agricultural areas for growing tea and vegetables.
Source: Shibushi City Website “Why don’t you start agriculture in Shibushi City”
https://www.city.shibushi.lg.jp/soshiki/10/2170.html (accessed January 24, 2022)
Table 6-13 Population and Number of Households in Shibushi City (2020)

Matsuyama Shibushi Ariake Total
Item
District District District Shibushi City
Number of households
1,580 7,293 4,368 13,241
(household)
Population (male) 1,721 7,480 4,797 13,998
Population (female) 1,886 8,233 5,212 15,331
Population (total) 3,607 15,713 10,009 29,329
Population per household
2.28 2.15 2.29 2.22
(person)
Source: Bureau of Statistics, Ministry of Internal Affairs and Communications “Results of 2020 national population
census” (2021)
Source (Photo): Yachiyo Engineering Co., Ltd.

Figure 6-9 Location of Shibushi City
4.1 History of Waste Management - Waste Recycling Project around the Time Shibushi City
Was Established
Shibushi City, which does not have an incineration facility, began its own waste recycling efforts
in response to the growing need to reduce the amount of waste disposed at landfill. These efforts
were completely new for both the municipality and residents.
The former towns of Shibushi, Ariake, and Matsuyama did not have any incineration plants and
the collected waste was discarded in a landfill located in a depressed area surrounded by mountains.
However, with the rising concern for environmental problems, it became impossible to continue
discarding waste in this location. Accordingly, in 1990, the South Soo Welfare Association,
consisting of the former towns of Shibushi, Ariake, and Osaki, constructed a controlled-type landfill
site with a landfill capacity of 720,000 m3 to directly receive waste generated from those three towns
without separating waste items. Since waste was simply dumped in the landfill site, the site became
a breeding ground for flies, mosquitos, rats, and crows, causing an offensive odor, and as a
consequence a large number of complaints from neighboring residents were lodged with the South
Soo Welfare Association. Furthermore, estimates showed that the landfill site would become full in
1998 if direct landfill continued without separating waste items. Thus, waste reduction became an
urgent issue. From that time, Shibushi City started to actively work on the recycling. Table 6-14
shows Shibushi City's efforts in waste management from the inauguration of the city to the present
date.
Table 6-14 Shibushi City's Efforts in Waste Management

from the Inauguration of the City to the Present Date
Start
Event and project
year
The former towns of Shibushi, Ariake, and Osaki (South Soo Welfare Association)
1990
constructed a controlled-type landfill site with a landfill capacity of 720,000 m3.
1998 Source separation of cans, bottles, and PET bottles started using designated bags.
Started the sorting process of the above at the Soo Recycle Center, which was
1999
completed in 1999.
1999 Collection of 19 items of resources was started at 500 stations in the city.
2003 Started the source separation of 24 items.
The source separation of kitchen waste started three times a week at 600 stations in the
2004
former town of Shibushi and Ariake. Composting started in the Soo Recycle Center.
Shibushi City was established through the merger of 3 towns.
2006
The source separation of kitchen waste started at the former town of Matsuyama.
2007 The door-to-door collection of bulky waste started.
2011 JICA Partnership program (Grass-roots technical cooperation) project (Fiji)
Collection of small home appliances started. The number of items to be separated
2013
became 27.
2018 The source separation of disposable diapers started in model districts.
2019 The model districts for the sorted collection of disposable diapers were expanded.
Source: by interview to Shibushi City
4.2 Noteworthy Experience: History of Separation of 27 Waste Items - Shibushi Model
The city drastically changed its stance on the waste collection method from “It is OK to put
anything in a black bag.” to “Write your name on the waste bag and discharge it responsibly”. The
tireless efforts of city staff in charge led to the success of recycling. The staff provided opportunities
for all residents to express their opinions which were carefully listened to, and thoroughly explained
the new system. This attitude encouraged the residents to cooperate.
The three former towns of Shibushi, Ariake, and Osaki constructed a full-scale final disposal
facility in 1990. However, as the amount of waste brought in increased year by year, it was estimated
that the facility would become full by 2004, even with the introduction of separate collection of cans,
bottles, and PET bottles. Although construction of full-scale incineration facilities was discussed,
there was concern that costs for construction, maintenance, and management of incineration facilities
would become a huge burden on the city in the future. As a result, Shibushi City decided to carry out
a thoroughgoing recycling for the purpose of waste reduction so as to extend the life of the landfill
site.
This decision was one in which the municipality top officials were heavily involved. At the time,
a wide-area waste treatment plan was underway to process waste from neighboring cities and towns
in one large incinerator, and the three towns had the option of participating in this plan. However, in
light of the environmental and health impacts of incineration and the social trend toward a sound
material-cycle society, the leaders and officials at that time decided to promote recycling by
separation of waste. It was a decision made by the administrative leaders who considered the impact
of incineration on the health of citizens and the risk of environmental pollution at that time.
In order to promote effective recycling, separation of multiple waste items is effective; therefore,
the number of separated items was increased to 27 items by 2013. No other Japanese municipality
had ever experienced the sorted collection of as many as 27 items. However, through thorough and
painstaking dialog between the administration and citizens, sorted collection of 27 waste items is
now a part of life in Shibushi City as shown in photos 6-22 to 6-25.
In contrast to the previous stance of “It is OK to put anything in a black bag”, municipal personnel
in charge visited neighborhoods to explain to residents to “Write your name on the waste bag and
discharge it responsibly”. The black plastic bags with no names on them were not designed to raise
awareness that the person putting out the waste should be responsible for separating it properly, as
long as it was impossible to tell who put out what and what was put out.
The city actively promoted public awareness activities. Briefing sessions with residents were
frequently held to provide an opportunity for each resident to express an opinion. In briefing sessions,
the current conditions of the landfill site and the necessity of recycling were explained in detail. Some
residents objected on the grounds that it was troublesome to separate waste, but administrators visited
them and respectfully explained the reasons for change. In addition, environmental education
programs were implemented 76 times in 2016 and altogether 1,868 people participated in the
programs.
The city’s painstaking efforts changed residents’ consciousness about waste management. It
seemed that the attitude of sorting waste being “troublesome” changed into an attitude of “gratitude”.
This was because residents do not need to store the kitchen waste at home.
As shown in Figure 6-10 and Figure 6-11, the city successfully reduced waste to be disposed of in
the landfill by 80% in 2008 and the recycling rate remained very high in comparison with the national
average. The landfill site significantly changed because kitchen waste was not being landfilled there
anymore. The offensive odor, flies, crows, and rats disappeared. The reduction of the amount of waste
being deposited into the landfill made it possible to extend the life of the landfill site.
Start of separate collection

(tons) 19 items
16,000
14,000 Start of Kitchen waste Start of small home

collection appliances collection
12,000
10,000
8,000
6,000 Recycled Waste

4,000
2,000
Disposed Waste
0
1998
1999
2000
2001
2002
2003
2004
2005
2006
2007
2008
2009
2010
2011
2012
2013
2014
2015
2016
2017
2018
2019
2020
Source: Shibushi City Website “Please cooperate in the separate collection of waste”
https://www.city.shibushi.lg.jp/soshiki/6/1826.html (accessed January 20, 2022)
Figure 6-10 Waste Treatment and Disposal Amount Trends in Shibushi City
（％）
100
90 Shibushi City
80
Recycling Rate
70
60
50
40
30 Average in Japan
20
10
0
1998
1999
2001
2004
2007
2010
2013
2015
2016
2018
2000
2002
2003
2005
2006
2008
2009
2011
2012
2014
2017
2019
Source: Ministry of the Environment Website “Results of the survey on municipal waste management (FY1998 to
2019)” http://www.env.go.jp/recycle/waste_tech/ippan/index.html (accessed January 24, 2022)
出典：環境省「一般廃棄物実態調査結果」をもとに作成
Figure 6-11 Annual Trend of Recycling Rate in Shibushi City
Photo 6-22 Collected Recyclables Photo 6-23 Collected Recyclables

at Collection Area (1) at Collection Area (2)
Photo 6-24 Waste Discharge by Resident Photo 6-25 Resource Collection by

Businesses
4.3 Current Waste Management in Shibushi City
(1) Waste Management Flow in Shibushi City
Figure 6-12 shows the waste management flow in Shibushi City. Waste is collected according to
four categories: kitchen waste, recyclables, bulky waste, and municipal waste. The separate collection
of 27 sorted items is based on these four categories. Kitchen waste and recyclables are brought by
each family to the waste station, then the waste collection and transport operators transport the waste
to the compost center and the recycling center, where composting is implemented and recyclable
resources are separated and sold. Bulky waste is collected door-to-door and transported to the recycle
center. At the recycling center, the waste is separated into resources and residue; resources are sold,
and residue is disposed of in the landfill. Municipal waste is brought by each household to the waste
station, directly transported to the landfill site and disposed of in the landfill.
With this system, which does not have incineration facilities, the annual waste management cost
per capita in Shibushi City is around JPY 11,000 (in FY 2019), which is about JPY 5,000 lower than
the national average of about JPY 16,000. In addition, part of the profit from the sale of recyclables
is returned to citizens through subsidies for the cost of holding environmental study sessions by
citizens and managing the waste stations.
(Compost)
Kitchen Composting
Sold
Waste Center
Recyclables
(Resource) Recycling
Recycling Companies
Center (Sold partially)
Bulky Waste
(Residue)
Municipal
Landfill Site
Waste
Figure 6-12 Waste Management Flow of Shibushi City

(2) Composting
Since Shibushi City has no incineration facility, the most feasible waste reduction method is
composting. Successful composting is a matter of greatest importance. To produce good compost
without generating odor from the facility, the proper handling of kitchen waste is essential
throughout the process from the time it was discharged from each household to the time it arrives
at the facility. Although making good compost is not a final goal, good compost is highly
marketable and the production process functions as a waste treatment process.
In Shibushi City, kitchen waste separately collected from each household is transported to the
compost center (Matsuyama organic plant of the Soo Recycle Center), established in 1999, so as to
be converted into compost. An overview of the process is described below.
1) Collection, Transport to the Facility, and Shredding

Kitchen waste is discharged into a covered 50-liter container placed at the dedicated kitchen-
waste station (Photo 6-26). Woodchips are laid at the bottom of the container. The woodchips are
generated by shredding tree branches (Photo 6-27) purchased from a timber mill. The utilization
of woodchips also reduces the generation of odors caused by composting.
Kitchen waste is collected three times a week, but citizens are allowed to discard kitchen waste
at any time into this container; therefore, they do not need to store the kitchen waste in their
homes. The collected kitchen waste is manually put into a hopper (Photo 6-28). The emptied
container is cleaned by woodchips without washing with water (Photo 6-29), woodchips are then
laid at the bottom of the container (Photo 6-30) and the container is returned to the station.
Kitchen waste loaded into the hopper is mixed with woodchips at a ratio of 1:1, and then loaded
into a shredding machine.
The amount of kitchen waste converted into compost at this facility is approximately one ton
(50 containers worth) a day. The cooperation of the residents is essential in order to collect good,
raw compost material.
2) Production of Compost
Kitchen waste is mixed with shredded woodchips at a ratio of 1:1 and stored in a concrete yard
for six months. One lot of the concrete yard has the capacity to generate one-month worth of
compost (Photo 6-31). During the six-month storage period, the waste mixture is agitated once a
week (Photo 6-32). The agitation frequency depends on when the temperature of the waste pile
becomes less than 30°C. Typically, agitation is performed once a week.
3) Completion and Packaging

After six-month of maturing (Photo 6-33), the mature waste mixture is strained through a sieve
twice. It is first strained through a 30-mm vibrating sieve (Photo 6-34) and then put through a 10-
mm rotating sieve. Oversized particles captured in the 30-mm sieve are returned upstream
(shredded kitchen waste). Particles that have passed through the 10-mm rotating sieve are then
packed in bags. There are two types of bags, 15 kg (300 JPY≒3 USD) and 5 kg (100 JPY≒1
USD). The compost packed in these bags is finally sold (Photo 6-35).
The above description is the compost treatment process in this facility. The kitchen waste is
handled effectively, and no foul odor is emitted from any process, thereby generating ideal
compost. About 80% of the compost produced is sold over-the-counter, and 20% is distributed
free of charge twice a year at community centers and other locations to give back to local
residents. Shibushi City has a thriving agricultural industry, which provides a stable source of
sales for the compost produced, making the compost business possible.
Photo 6-26 Containers for Organic Waste Photo 6-27 Branches before Shredding
Placed at Stations
Photo 6-28 Waste Carried into the Plant Photo 6-29 Cleaning of Containers
Source: Yachiyo Engineering Co., Ltd. , Japan Environmental Sanitation Center

Photo 6-30 Container with Woodchips Photo 6-31 Concrete Composting Yard
(Sawdust) Laid at the Bottom
Photo 6-32 Mixing of Compost by Heavy Photo 6-33 Matured Compost

Equipment
Photo 6-34 Final Processing Process after Photo 6-35 Packaged Compost
Maturing
Source: Yachiyo Engineering Co., Ltd. , Japan Environmental Sanitation Center

(3) Sorting Waste for Recycling
Recyclables which have been collected through separate collection are split and sorted again at
the recycling center, thereby making it possible to sell waste items that would normally be disposed
of. A stable system has been established in which waste collection operators accept all of the 27
items of sorted waste.
As described earlier, Shibushi City asks residents to separate 27 items of waste, and the separated
recyclables are transported to the Soo Recycle Center (Photo 6-36).
As shown below, at the Soo Recycle Center, waste is separated according to item with resorting
as required, compressed, solidified, carefully selected, and stored until shipment. In Shibushi City,
waste that cannot be recycled is classified as “municipal waste” and is disposed of in the landfill.
For a year when the sorted collection system was being introduced, municipal administrators and
instructors visited waste stations once a month on a designated day to instruct local residents to
separate waste. Before the change to sorted collection, measures were taken to mainly reduce the
amount of waste. At the start of the significantly changed way of collecting sorted waste, local
residents were confused about the new procedure. However, municipal administrators regularly
visited the stations and carefully explained the process to residents, which encouraged the residents
to participate in the new waste collection system.
1) Recycling of Spray Cans and Cassette-type Gas Cylinders

Spray cans and cassette-type gas cylinders are collected as they are (Photo 6-37). Such waste
is compressed in the Soo Recycle Center and then shipped (Photo 6-38).
2) Metal Lids, Pots, Kettles, etc.
The degree of impurity removal and waste quality vary, and recycle value is low. However,
such waste is successfully shipped from this facility (Photo 6-39).
3) Bottles
Bottles are collected and stored according to color (Photo 6-40).
4) Ceramics
When ceramics only are pulverized, they become a valuable material. Ceramics are pulverized
by a dedicated pulverizer (Photo 6-41).
5) PET Bottles
PET bottles are commonly collected and recycled nationwide. Caps and labels are removed.
The compressed PET bottles are evaluated as high-value product (Photo 6-42, 43).
6) Plastics
In addition to “other plastics” as specified in the Containers and Packaging Recycling Law, all
kinds of waste plastics are collected in this facility. This is different from other municipalities. In
many other municipalities, plastic product waste, with the exception of PET bottles, is considered
as combustible waste. Impurities are removed in this facility and then transported to a steelworks
company to be used as a reducing agent for blast furnaces (Photo 6-44, 45).
7) Waste Oil
Two hundred liters of waste oil are collected daily and recycled oil is generated in the
reproduction equipment. The operating capacity of this equipment is 200 liters a day, and 150
liters of recycled oil is refined from 200 liters of waste oil by means of one batch operation per
day. Recycled oil is used as a fuel for vehicles in the recycle center (Photo 6-46).
8) Disposable Diapers
The sorted collection of disposable diapers started in 2018 in the model districts which were
expanded in 2019.
9) Other Items
Volume reduction of polystyrene foam and the separation of fluorescent lamps and small home
appliances are also implemented (Photo 6-47, 48, 49).
The Soo Recycle Center engages 40 workers and 10 seniors to perform the above work. Waste
management is conducted based on two policies: to separate waste that can be sold as the result of
separation, and to adequately treat waste that cannot be sold so as to reduce disposal cost.
As for recycling items, business operators who will accept the resources are first determined and
then resource items to be separated are determined. As a result, there is no problem with collected
resources remaining untreated. In FY2021, Shibushi City earned approximately JPY 13 million from
the sale of separated resources to private companies. A portion of the income was then returned to
the public by using it to manage waste collection points and to hold environmental study sessions.
Photo 6-36 Overview of Soo Recycle Center Photo 6-37 Spray Cans and Cassette
Cylinders
Photo 6-38 Compressed Cans Photo 6-39 Metal Lids, Pans and Kettles
Photo 6-40 Bottles Photo 6-41 Ceramics
Photo 6-42 Compressed PET Bottles Photo 6-43 Compressed PET Bottles
(Grade A) (Grade B)
Photo 6-44 Sorting Process of Containers Photo 6-45 Compressed Containers and
and Packaging Plastics Packaging Plastics
Photo 6-46 Waste Oil Photo 6-47 Volume Reduced Styrofoam
Photo 6-48 Fluorescent Lamps Photo 6-49 Small Size Home Appliances
4.4 International Cooperation
Shibushi City has been accepting trainees from overseas since 2009, and from 2011, a JICA
Partnership program (grass-roots technical cooperation) project (regional proposal type) titled
“Promotion of Shibushi Model (Waste Minimization without incineration) from Fiji to Pacific Island
Countries” was implemented (Photo 6-50). The Shibushi Model to implement thoroughgoing waste
recycling without having an incineration plant is expected to become a most suitable model for
countries that do not have incineration facilities.
Source：Shibushi City
Photo 6-50 Compost Making Practice in a JICA Project Conducted in Shibushi City
5 Suggestions Based on the Waste Management Efforts of the Three Municipalities
As described in the previous sections, administrators in charge of waste management of three

municipalities that represent large-, medium-, and small-scale municipalities in Japan were
confronted with hardships but eventually overcame the problems. In this section, the kinds of
problems municipal administrators were confronted with and how they addressed the problems will
be described; section 5.1will highlight the efforts of each municipality, and section 5.2 will address
the identification of future issues.
5.1 Waste Management Efforts Made by Each Municipality

(1) Tokyo 23 Cities
Formulation of TMG Ordinances and Measures in Conjunction with Enactment of National
Legislation
・ Following the enactment of the Waste Cleaning Act by the central government in 1900,
Tokyo introduced a contract out waste collection system and in the same year started to enter
into contracts with business operators.
・ Following the enactment of the Public Cleansing Act by the central government in 1954,
Tokyo improved the waste management ordinances and the organization.
・ The Waste Management Act was enacted in 1970, and Tokyo revised the ordinance by clearly
specifying the responsibilities of business operators who generated business waste and the
importance of gaining the cooperation of local residents.
・ In conformity with the revised Waste Management Act in 1991 and the establishment of the
Effective Resources Utilization Promotion Act in 1991 by the central government, Tokyo
established a new ordinance that strictly promoted the reduction of waste generation and
reuse of waste in 1992.
Citizen's Participation and Consensus-building among Residents

・ With the experience of the “War on Waste”, citizens’ awareness about the waste problem
significantly changed in Tokyo. They became aware that waste problem is not only the
administration’s problem but is an issue for both residents and administration to mutually
resolve.
・ In order to gain the understanding of residents, Tokyo also focuses on public relations. In
particular, Tokyo accepts about 60,000 facility tours annually and takes advantage of the
facility tours to repeatedly explain the necessity and safety of the facilities.
・ Since the first incineration facility was built in Tokyo in 1924, incineration has been the main
intermediate treatment method, but during those early years of incineration treatment, there
were technical issues such as incomplete combustion due to excessive moisture. For this
reason, for a while kitchen waste was separated from the waste treated at the incineration
plants.
・ Presently, there are two types of management methods for waste incineration plants: direct
management and outsourcing to the private sector.
・ Currently, the DBO (Design-Build-Operate) method is not used for the incineration plants.
This is because centralized management of the operating 21 plants provides economies of
scale and facilitates uniform improvement in technology.
・ When a new incineration plant was planned and built, a trilateral treaty was concluded among
the residents, city administration where the facility is located, and Clean Authority of
TOKYO. Although contents of the treaty vary by city depending on discussions with residents,
the basic points are the voluntary criteria for pollution control, the amount of waste to be
received, the number of service vehicles accessing the area, access route, etc. In addition,
operation council meetings are periodically held to receive and discuss reports on operating
conditions of furnaces, pollution control data, furnace operation planning, etc.
・ In principle the new incinerator plants are constructed, or re-built on the same sites as existing
plants. This is because it is difficult to secure sites for construction of new plants in a large
city like Tokyo.
Principle of Waste Disposal within the Administrative Boundary and Inter-municipal Waste
Disposal
・ In principle, each of the 23 cities of Tokyo treats waste within its own city area at a waste
treatment plant owned by the city. Currently, in response to the decrease in the amount of
waste, each city, regardless of whether it has a plant or not, mutually cooperates and
collaborates with each other cities to ensure a stable intermediate waste treatment system
within the 23 cities under the responsibility of the 23 cities as a whole.
・ In case of shutdown of all furnaces of a certain incineration plant, etc., waste is sometimes
brought to an incineration plant located outside the city where the waste is treated. This
cooperation between the Tokyo 23 Cities is made possible owing to the understanding of local
residents and the local operating council for joint waste treatment.
・ Concerning wide-area (as well as inter-municipal) treatment of waste in the event of a disaster,
Tokyo received disaster waste from districts outside Tokyo at the time of the Great East Japan
Earthquake. This was done because the local operating council understood the difficult of the
situation. Thus, in the Tokyo 23 Cities, while the principle of disposal within each area is
observed, flexible waste treatment management has been conducted as necessary.
(2) Fujisawa City

Waste Collection
・ Fujisawa City changed the waste collection system in 2007 from station collection to door-
to-door collection. Reasons for abandoning the highly-efficient station collection in favor of
door-to-door collection were to improve the local scenery and to clarify the responsibility of
people who discharge waste. However, there was concern that the clarification of each
resident’s responsibility could lead to an increase in illegal dumping. Patrols in the city were
enhanced; however, there was no particular increase of illegal disposal associated with the
door-to-door collection.
・ The city charged for the waste collection when the door-to-door collection was introduced,
and the revenue was applied to part of the collection cost that increased as the result of
implementing the door-to-door collection.
・ Fujisawa City determined that the implementation of door-to-door collection was successful
because: (1) the local scenery was improved, (2) responsibility of each resident was clarified
and the recycling rate increased, and (3) many other municipalities started to introduce the
door-to-door collection after Fujisawa City first implemented the system.
Recycling
・ In the 1970s, Fujisawa City became the first city in Japan to undertake the collection of
recyclables through the joint activities of citizens, municipal administration, and collection
operators. This was due to (1) a rapid increase in bulky waste, (2) a shortage of final disposal
facilities, and (3) a survey of bulky waste composition that revealed the presence of many
recyclable resources.
・ Through the DBO (Design-Build-Operate) system, a new incineration plant was constructed
from 2004 to 2007. At the time of construction of the new incineration plant, cost reduction
and leveling were required due to financial difficulties at that time and various privatization
methods were discussed. As a result, it was decided that the project for the construction of a
new incineration plant was to be implemented by the DBO method. Since the start of facility
operation, the municipality has been monitoring the private sector operator’s performance in
operating and maintaining the plant. Specifically, the municipality confirms the operating
conditions of the facility and also inspects the facility from the aspect of business operation.
・ The North Waste Management Center was reconstructed from 1986 to 1990 to handle high-
calorie heat generation. This countermeasure modification work was carried out because the
calorific value of waste had increased significantly compared to the time of construction.
・ Subsequently, the North Waste Management Center and Ishinazaka Environment Center have
undergone dioxin reduction modification work.
Consensus-building with Residents

・ At the time of rebuilding Ishinazaka Environment Center (incineration plant), the neighboring
areas had more developed into crowded residential areas than when the former facility was
constructed years before. The construction planning was shared with local residents at an early
phase of planning, and the rebuilt facility was planned and constructed to provide social
benefits to the society in addition to its waste treatment function.
(3) Shibushi City

Sorted Collection of Kitchen Waste
・ When separate collection of kitchen waste was introduced in 2004, the municipality conducted
verification testing in model districts before expanding the system in the city. The
implementation result indicated that the sorted collection of kitchen waste was well received
by residents because they did not have to keep kitchen waste at home for many days.
・ When separation of kitchen waste was started, eight administrators in charge explained the
waste management system to the residents for a three-month period. Municipal administrators
and instructors visited each of the waste stations once a month on a designated day to instruct
local residents on separating waste.
Recycling
・ In 1998, the three towns decided to change from mixed collection to separate collection. Under
the leadership of the mayors of the three towns, consideration of the incineration option was
stopped and the recycling process was initiated.
・ In 1999, the three towns started collecting 19 recyclable items at 500 stations in the city.
・ In 2013, the city started collecting small home appliances, bringing the total number of sorted
items to 27.
・ In 2018, the city started sorted collection of disposable diapers.
Consensus-building with Residents

・ The city is aware that to obtain the understanding and cooperation of citizens, it is important
for administrators in charge to have direct conversations with each local resident. In those
days, it was possible for representatives of the community to explain the circumstances to
local residents. However, instead of doing so, the city frequently held briefing sessions joined
not only representatives but also by residents to provide opportunities for each resident to
express their opinion. Some residents objected on the grounds it was troublesome to separate
waste, but administrators visited them and respectfully explained the reasons for change,
which encouraged the residents to cooperate.
5.2 Summary Based on the Experience of the Three Municipalities for Major Waste
Management Issues
Compliance with the Law

In many developing countries, compliance with the law is an issue even when the law is well
developed. One of the reasons for the lack of compliance with the law may be that the law does
not take into account the culture of the country and the behavior of its citizens. In other cases, the
rules and standards necessary for the realization of the law are not established. It is essential for
the law to be effective, that; (1) the law must take into account the culture of the country and the
behavior of its citizens, and (2) the necessary rules and standards must be established to realize
the law. In the case of Tokyo 23 Cities, local governments have formulated ordinances and taken
measures based on national laws in conjunction with the enactment or revision of waste
management-related laws.
Collection Improvement
Holding waste generators accountable is important for improving waste collection. Some
municipalities have changed the collection system from station collection to door-to-door
collection, as in the case of Fujisawa City. This is because it is expected that clarifying the
responsibility of residents as waste generators will result in thorough source separation of waste
and promotion of waste reduction. While door-to-door collection is acceptable for small and
medium-sized municipalities, it is difficult for large municipalities. As developing countries will
be required to improve waste collection, including separate collection, it is necessary to clarify
the responsibility of waste generators according to the size of the municipality.
Recycling
In order to initiate recycling, a strong commitment from the administrative head is necessary, as
in the case of Shibushi City. It is also important that all stakeholders share the policy and plan. To
do so, it is effective to start with a small area on a trial basis first. It is desirable to carefully select
the area on trial ahead of the others and to expand the implementation areas in stages. This
introduction method is recommended even for smaller municipalities. In this process, it is
important to check the waste flow from waste to recyclables. Especially in developing countries,
recycling is often based solely on economics. In addition, there are cases where non-recyclable
waste (recycling residues) is disposed of inappropriately. Attention should be paid to the proper
disposal of recycling residues.
Consensus-building with Residents (Resident Cooperation)

When introducing a source separation and separate collection system, it is desirable to provide
detailed explanations to each person as much as possible, as in the case of Shibushi City. In Japan,
even in large cities, leaflets explaining the separation method are distributed through regular
meetings of neighborhood associations, for example, so that each person can be informed of the
separation method. It is important to collect and analyze data on waste (waste amount, waste
composition, etc.) that can clearly indicate the need for source separation, and to share the results
with residents.
In general, people may have an excessive aversion to facilities they are not familiar with. It is an
effective way to provide people with an opportunity to actually experience a facility tour in order
to dispel the aversion to the facility and to change attitudes.
After construction, it is necessary to create a mechanism for daily dialogue with residents,
including facility tours, as in the case of Tokyo 23 Cities. In the tours, sharing information on
facility operation, including operational data, environmental data, and the status of accidents at
the facility, is important for developing a relationship of trust with residents.
Development of Treatment Facilities

In the construction plan of treatment facilities, it is important to involve residents from the early
stages of the planning. In Japan, the construction plan is devised together with local residents and
incorporates their requests from the early stages of the planning. This approach is based on the
experience in dealing with past opposition movements against the construction of facilities.
In planning waste incineration facilities, waste quality changes should be noted. In Japan, most
of the waste incineration facilities constructed during the high-growth period were later renovated
with high-calorie countermeasures to cope with the subsequent increase in the calorific value of
waste. In developing countries where waste incineration facilities are planned, it should be noted
that waste quality will change with future economic growth.
Understanding waste quality is also important when planning compost or methane fermentation
facilities. It is necessary to collect a lot of waste data on a daily basis. Even though composting
and methane fermentation are excellent recycling methods, they have less effect on waste
reduction than incineration, so if they do not work well, they will not be evaluated from the
viewpoint of waste treatment. Especially in composting, if the quality of compost is not good, its
market value will be low and it may have to be disposed of.
Although there are still few full-fledged waste treatment facilities (intermediate treatment
facilities) in developing countries, it is important to develop treatment facility plans based on the
predicted data of waste in the future.
Treatment Privatization
When outsourcing to the private sector, if the administration does not properly manage the
contractor, the service will deteriorate, leading to a loss of trust from residents. Even in the case
of private finance initiative (PFI) for waste management, it is important to clarify the division of
responsibility for long-term risks with the private company and not to leave everything to the
private company. In developing countries, lack of ownership may be observed in the introduction
of privatization, so this point should be noted. Japan’s track record (experience) shows that the
DBO (Design-Build-Operate) method, rather than PFI, has been adopted. In the DBO method,
basic conditions for which the municipality is fundamentally responsible are clarified, including
the quantity and quality of waste, treatment and disposal of incinerated ash, compliance with
stricter laws and regulations, and negotiations with residents.
Inter-municipal Waste Management

In many countries, municipal solid waste is managed within the local district in principle, but as
in the case of Tokyo 23 Cities, inter-municipal waste management is adopted if necessary. This is
because inter-municipal waste management is expected to ensure a stable and efficient waste
management system and reduce waste management costs. Even in developing countries, there are
many cases where it is desirable to implement inter-municipal waste management, such as the
construction of landfill sites and waste-to-energy facilities. In Japan, the central government has
established guidelines for inter-municipal waste management, and is also promoting inter-
municipal waste management in emergency responses to disasters etc.
Topic 7. Waste Management Challenges in Developing Countries Contents
and Lessons Learned from JICA Projects
Topic 7. Waste Management Challenges in Developing Countries and

Lessons Learned from JICA Projects
Contents
Introduction ............................................................................................................. 1
4
Background................................................................................................................ 4
Application of Japan’s Experiences and Technologies ................................................... 6
Introduction of Fixed-Time Fixed-Place (FTFP) Collection ........................................ 6
Lessons .................................................................................................................... 13
Evaluation of Feasibility through PP Implementation, Identification of ongoing
Challenges and Improvements, and Reflection in Collection Plans ...................................... 13
Need for Continuous Awareness Building Activities ................................................ 13
Palestinian Interim Self-Government Authority, PA ～ Improving Waste Management
through the Introduction of Inter-municipal Waste Management ～ .................................... 14
Background.............................................................................................................. 14
Application of Japan’s Experiences and Technologies ................................................. 16
Creating a Foundation for the Introduction of Inter-municipal Waste Management..... 16
Activities to Build Public Awareness on Waste Fee Collection .................................. 21
Lessons .................................................................................................................... 23
Improvement of Efficiency of Waste Management through Inter-municipal Waste
Management.................................................................................................................... 23
Introduction of Waste Collection Fees .................................................................... 23
Republic of El Salvador ～ Path to Proper Management of Sanitary Landfill Sites～ .... 24
Background.............................................................................................................. 24
Construction and Proper Maintenance, Management and Expansion of Sanitary Landfill
Sites Using the Fukuoka Method....................................................................................... 26
Introduction and Expansion of Regional Waste Treatment through Inter-municipal
Cooperation..................................................................................................................... 31
Lessons .................................................................................................................... 38
Political - Examining the Impacts of Changes in Government Administration ............ 38
Financial - Securing Funding ................................................................................. 38
Public Participation - Importance of Disclosing Information .................................... 38
Organizational - Securing Human Resources........................................................... 38
Contents Topic 7. Waste Management Challenges in Developing Countries
Organizational - Improvement of Staff Motivation .................................................. 39

Country Differences - Challenges in Expanding Systems to Other Countries ............. 39
40
Background.............................................................................................................. 40
Ward Based Approach (WBA) ............................................................................... 42
Lessons .................................................................................................................... 51
To Improve Integrated Waste Management ............................................................. 51
Environmental Education ～ .......................................................................................... 53
Background.............................................................................................................. 53
Application of Japan’s experiences and technologies ................................................... 55
Development of a Data and Information Management System .................................. 55
Source Separation ................................................................................................. 57
3R Activities and Environmental Education ............................................................ 59
Lessons .................................................................................................................... 63
Training and Securing Competent and Appropriate Human Resources ...................... 63
Coordination between Stakeholders on Source Separation........................................ 63
Strategic Implementation of Educational and Dissemination Programs through Inter-
agency Collaboration ....................................................................................................... 63
Socialist Republic of Vietnam ～ 3R Activities Involving Multiple Stakeholders～ ...... 66
Background.............................................................................................................. 66
Public Participation Initiatives Involving Various Stakeholders................................. 67
Separate Collection and Composting ...................................................................... 71
Lessons .................................................................................................................... 75
Mobilize and Promote Public Participation of a Wide Range of Stakeholders to
Effectively Implement the 3Rs Initiative ............................................................................ 75
Need for Innovation when Introducing Source Separation ........................................ 75
Topic 7. Waste Management Challenges in Developing Countries 7-1
Introduction
The amount of waste generated annually around the world is rising at an unprecedented rate due to
rapid urbanization and population growth. According to “What a Waste 2.0 - A Global Snapshot of
Solid Waste Management to 2050”, published by The World Bank in 2018, the amount of waste
generated each year is projected to reach 3.4 billion tons over the next 30 years if urgent action is not
taken, up from 2.01 billion tons in 2016. By 2050, annual waste generation in the sub-Saharan Africa
region is forecast to more than triple from 170 million tons in 2016, and more than double in South
Asia, up from 330 million tons in 2016. This is due to diverse factors at different stages of waste
management that have been systematically organized by JICA from a variety of perspectives (Table
7-1).
Waste problems in developing countries are therefore likely to become even more acute in the future,
requiring measures to be taken as soon as possible. Accordingly, Japan has provided support to
developing countries based on the knowledge and technologies the country has gained through its
experience in overcoming challenges related to waste management. This topic will introduce the
図７－１ experiences of JICA through case studies in the six countries shown in Figure 7-1: the waste
management challenges that faced each country, and how the experiences of Japan were utilized and
the resulting impacts.
Palestine
Bangladesh Japan
Sudan
Vietnam
El Salvador
Malaysia
Figure 7-1 Locations of Countries Covered in Topic 7

7-2 Topic 7. Waste Management Challenges in Developing Countries
7-2
Table 7-1 Specific Issues Related to Waste Management in Developing Countries

Intermediate Treatment &
Generation/Discharge & Storage Waste Collection and Transport Final Disposal
Recycling
Topic 7. Waste Management Challenges in Developing Countries

 Inadequate measures on control  Elimination of services for low-  Incoming waste that has not been  Unsanitary and hazardous
of generated waste income groups due to non- completely sorted working conditions for waste
Social considerations
 Retention and scattering of waste payment of fees  Intermediate treatment and Pickers
around collection sites  Low social status of collection recycled products that are not  Resistance of local residents to

(containers, etc.) workers compatible with economic disposal site locations
 Waste picking during the activities (e.g., composting
collection process (including by products for which a market has
workers, reduces collection not been secured)
efficiency)  Resistance of residents to siting
of facilities
 Lack of rules on waste storage  Lack of health and safety  Lack of health and safety  Lack of health and safety
and discharge measures for workers measures for workers measures for workers
 Inadequate policies and systems  Inadequate contracts with private  Inappropriate contracts with  Lack of sanitation and safety
Institutional considerations
in place to control waste contractors, inadequate permit private contractors and measures and unregistered waste
generation and waste sorting for system and lack of supervisory inadequate permit system pickers
discharge capacity  Environmental impacts (e.g.,  Inadequate contracting and
 Lack of illegal dumping  Lack of, or inadequate collection failure to set environmental permitting systems with private
countermeasures plans standards) contractors and lack of
 Lack of high-level planning (e.g.,  Lack of high-level planning (e.g., supervisory capacity
collection and transportation recycling promotion policy)  Environmental impacts (e.g.,
system concept)  Lack of future plans and failure to set environmental
operational plans standards)
 Lack of future plans and
operational plans
Intermediate Treatment &

Generation/Discharge & Storage Waste Collection and Transport Final Disposal
Recycling
 Lack of guidance system for  Weak management structure  Weak management structure  Weak management structure
consideration
Organization
residents (e.g., unassigned managers, lack (e.g., unassigned managers, lack (e.g., unassigned managers, lack
 Lack of cooperation from residents of workers, etc.) of workers, etc.) of workers, etc.)
al
s
and communities
Topic 7. Waste Management Challenges in Developing Countries

 Inadequate, or lack of storage and  Low setting of waste collection  Insufficient facility operation  Lack of collection and
Financial considerations
discharge containers at collection fee levels and maintenance budget planning management system for waste
sites  Insufficient fee collection and and allocation disposal fees

 Incomplete setting and collection management systems  Insufficient amount of waste  Insufficient amount of waste
of waste collection fees  Insufficient fee amount collected tipping fees collected tipping fees collected and used
and used for other purposes than for other purposes than waste
waste operations operations
 Insufficient budget planning and  Insufficient budget planning and
allocation allocation
 Insufficient waste sorting and  Lack of operation and  Immature intermediate treatment  Improper disposal methods (e.g.,
separation maintenance techniques for technology open dumping)
Technical considerations
 Inconsistency between discharge equipment  Lack of operation and  Lack of operation and
and collection methods  Improper collection methods maintenance technology maintenance technology and
 Lack of collection and  Environmental impacts (e.g., lack equipment
transportation equipment of measures to deal with  Environmental impacts (e.g., lack
pollutants) of measures to deal with
 Inadequate data management pollutants)
system (e.g., amount of incoming  Inadequate data management
waste, etc.) system (e.g., amount of incoming
waste, etc.)
Source: Excerpted from JICA “Issue-Specific Guidelines Waste Management” (2009) with some changes
より抜粋、一部変更
7-3
Fixed-Time Fixed-Place (FTFP) collection is an effective method for improving collection

services efficiency. When introducing FTFP collection, it is practical to initially implement the
system on a trial basis in a designated pilot area, and after verifying its feasibility and issues, to
consider full-scale implementation. It is essential when introducing FTFP collection, and for its
continued implementation to carry out activities to build public awareness so as to ensure the vital
cooperation of local residents.
Region: Northeast Africa

Capital: Khartoum
Area: 1.88 million km2
Population: 42.81 million (2019)
Ethnic groups: Primarily Arab, Nubia, Nuba, Fur, Beja
(mix of over 200 tribes)
Languages: Arabic (official language), numerous other
tribal languages
Religions: Islam, Christianity, traditional religions
Source: Ministry of Foreign Affairs Website “Republic of Sudan”
https://www.mofa.go.jp/mofaj/area/sudan/data.html#section1 (accessed February 8, 2022)
Background
In Khartoum, the capital of the Republic of

Sudan (hereinafter referred to as “Sudan”), waste
was collected and transported by aging and
inadequately maintained collection vehicles due to
deterioration of the security situation and financial
constraints. As a result, uncollected waste was
scattered around the city, degrading the sanitary
environment, especially in low-income
neighborhoods. Residents were not sure when the
waste they discharged would be collected. Photo 7-1 Illegally Dumped Waste along
Residents also had very little interest in waste the Road
management because adequate waste collection services were not provided, and waste management
were implemented without their cooperation or involvement. Table 7-2 shows an overview of the
major JICA waste management projects covering FTFP system in Sudan.
Table 7-2 Overview of JICA Waste Management Projects Covering FTFP in Sudan
Item Content
The Project for Strengthening Solid
Project name Waste Management in Khartoum State of The Clean Cities Project in Sudan
Sudan
Project period May 2014 - March 2017 February 2021, ongoing
Khartoum State
(Approx. 8.64 million people)
Target cities Khartoum State ・North Kordofan State
(Population) (Approx. 7 million people) (Approx. 1.21million people)
・Red Sea State
(Approx. 650,000 people)
Improved waste management system Solid waste management services in the
Overall goal
persists in Khartoum State. target states will be improved.
Waste management in Khartoum State The management capacity of the target
Project purpose will be improved to an efficient and state cleaning corporation will be
effective system. improved.
1 Khartoum State Waste Management 1 The current status and issues of
Master Plan will be revised. waste management in the target
2 Waste collection and transportation areas will be identified.
capacity will be improved. 2 The waste management capacity of
3 Operation and management of final Khartoum Cleaning Corporation
landfill will be improved. will be strengthened.
4 Organizational and financial 3 Strengthening the waste
Output
soundness related to waste management capacity of the Red
management will be proposed. Sea Cleaning Corporation
4 Preparation of a national policy on
solid waste management will be
made based on the data and
information collected from all
provinces.
Source: Based on JICA “The Republic of the Sudan Project for Strengthening Solid Waste Management in Khartoum
State Project Completion Report” (2017), “The Clean Cities Project in Sudan (Phase 1) Work plan” (2021)
Introduction of Fixed-Time Fixed-Place (FTFP) Collection
The applicability of FTFP collection, conditions for its introduction, and operational policies
should all be carefully considered, taking into account the current collection services and lifestyles
of residents. Implementation of pilot projects will make it possible to understand FTFP’s
effectiveness and related issues. In addition, it is important for the government to conduct
continuous public awareness activities for residents to ensure that the system is smoothly introduced
and facilitate its dissemination.
A decision was made to introduce FTFP collection - which has become a mainstream system in
Japan - in Khartoum to improve waste collection. FTFP collection is a method of collecting waste
discharged at designated collection times and locations, as shown in Figure 7-2. When introducing
FTFP collection, it is necessary for residents and the municipality to coordinate the allocation of
collection vehicles, collection routes, etc., as well as collection points and collection times.
Collection Collection Collection

point C point B point A
10:20 10:10 10:00
Figure 7-2 Image of FTFP Collection
There are a number of advantages in introducing FTFP collection, which include maintaining the
cleanliness of communities by prohibiting the discharge of waste outside of designated collection
times, reducing time period collection that vehicles spend on routes, and increasing collection
efficiency.
However, FTFP collection also comes with its own set of challenges: residents may feel burdened
because they need to bring waste to specific places at designated times, the sense of individual
responsibility may be diminished because it is impossible to identify the generators of the waste
discharged, and it can sometimes be difficult to select and coordinate collection sites. Table 7-3
provides an overview of the main advantages and challenges of FTFP collection.
Table 7-3 Main Advantages and Challenges of FTFP

Item Contents
 Community cleanliness can be maintained by designating waste collection times
and locations
 Improved collection efficiency with less time spent by collection vehicles on routes
 Lower collection costs by optimizing the number of vehicles and collection
workers
Advantages
 Improved working environments for collection workers with no waste scattered
around as a result of residents following rules when discharging waste
 FTFP provides a good opportunity for residents to recognize waste as their own
problem by carrying their own waste to the designated collection point
 Local residents can provide guidance to one another about discharging waste
 Difficulty identifying generators of discharged waste, which diminishes the sense
of individual responsibility
 Difficulty identifying generators of discharged waste, which makes it difficult to
Challenges thoroughly enforce discharge rules
 Potential difficulties in selecting collection sites
 Potentially difficult for children, women, and the elderly to carry their waste to the
stations
1) Pilot Project
In Khartoum, pilot projects (PP) were carried out in several areas to examine the possibility of full-
scale introduction of FTFP collection. A PP is the process of implementing a system that is being
considered for full-scale implementation, together with collecting data to test the system and determine
whether it is suitable and achieves the objectives set out. The basic implementation flow of the PP is
shown in Figure 7-3.
The most important tasks of this flow are “baseline survey” before PP implementation, “monitoring
and awareness-raising activities” during PP implementation, and “follow-up survey” after PP
implementation. In particular, collecting, analyzing, and verifying data before and after PP
implementation makes it possible to measure the effectiveness of PP; if positive results can be
confirmed by comparing specific items before and after PP implementation – e.g., improvement in
residents satisfaction or fee collection rate – this would indicate that the possibility of introducing
FTFP collection is high. Alternatively, if the desired results are not obtained, the results of the PP
should be analyzed to identify the reasons why the FTFP collection system did not function as expected
- such as inappropriate collection mechanism, confusion over discharge rules, lack of residents’
satisfaction - and to consider improvement measures. Should it be then determined that there is little
possibility for improving the FTFP system in the PP area, it will be necessary to consider other
collection methods. Surveys conducted before and after PP can also deepen understanding of the
behavior and awareness of residents, collection workers, and other related parties, and are useful in
identifying issues to be addressed when FTFP collection is introduced. In summary, the
implementation of PP will provide decision-making materials necessary for examining the future
direction of the project and knowledge on matters to be considered during the full-scale introduction.
Discussion with the

• Select target areas based on the number of households and land use
department in charge
Discussion with • Explain the contents of the PP to community leaders (or an organization which consists of
representatives) and obtain their agreement to the PP
community leaders • Coordinate the content and schedule of community meetings
Establishment of • Establish a project team with government officers, community leaders, supervisors for
project team waste collection, and other parties
• Share basic information, current status, and issues on waste management, including the
Community meeting fixed-time fixed-place collection system
• Answer to residents' questions
Advance Preparation
• Investigate the current status of waste collection and management in the PP target area
Status survey
• Conduct interviews (or questionnaires) with residents
• Develop a detailed collection plan with the project team, including collection times and
Collection plan
locations
Final explanation • Explain the details of the final fixed-time fixed-place collection system
Awareness raising • The project team and residents will work together to conduct a cleanup campaign and set
activities up signboards to publicize the introduction of the fixed-time fixed-place collection system
• Collect quantitative data prior to PP implementation through time and motion surveys1
Baseline survey
and resident awareness questionnaires surveys
entation
Implem
Monitoring and • Improve an environment that allows PP to continue through regular monitoring and
awareness raising educational activities
activities • Change collection times and places as needed
entation
Implem
After
• Conduct a survey similar to the baseline survey, compare data, and measure the
Follow-up Survey
effectiveness of PP
State Project Completion Report” (2017)
Figure 7-3 Basic Implementation Flow of Pilot Project
2) Public Awareness
A public awareness campaign was conducted in Khartoum to promote FTFP collection. FTFP
collection places comparatively high burden on residents, which poses a challenge, and the system
will not be successful without their cooperation. Therefore, government staff in Khartoum
implemented public awareness building activities for the project team (consisting of government
officials, community representatives, and other concerned parties) and residents, as shown in Table 7-
4. Through these activities, it was possible to provide residents with opportunities to realize the
benefits of FTFP collection and recognize that waste is their own problem.1
1
1 Time and Motion Survey: A survey is to observe and record the status of waste discharge and collection operations.
The time and conditions of daily waste collection operations, such as vehicle inspection, movement to the collection
area, loading and unloading of waste, etc., are recorded. The collected data is used to identify problems in waste
discharge and collection operations, and to consider countermeasures.
Table 7-4 Examples of Awareness-Raising Activities Related to FTFP Implementation

Activity Target group Objectives Details
Share information on  Share the results of monitoring (about
PP and FTFP once/month) conducted in PP target
Regular
Project team2 collection areas
meetings
(challenges,  Discussions on measures to address
measures, etc.) shared challenges
 Basic information on FTFP collection
Team members are (overview, advantages, necessity, etc.)
able to implement  Division of roles between the
Training Project team
public awareness administration and residents
activities  Methods of communication with
residents
Study good practices  Introduce case studies on FTFP
from past examples collection (background to introduction,
Workshops Project team
and promote the use progress, details on awareness building
of FTFP collection activities, etc.)
Representatives  Basic information on FTFP collection
from PP target (overview, advantages, necessity, etc.)
Obtain cooperation
Community areas (women and  Division of roles between the
and understanding
meetings men leaders, government and residents
from residents on PP
youth leaders,  Need to cooperate with residents
and FTFP collection
religious leaders,  Resident behavior that must be
etc.) improved
Representatives of  Inspect areas where PP is being
residents in PP Study good practices implemented smoothly
target areas in regions where PP  Administrative staff explain activities
Study tours
(women and is being implemented (i.e., awareness-raising activities for
youth groups, smoothly residents, efforts for on-time operation
etc.) of collection vehicles, etc.)
Promote
understanding by, and
 Organize events (waste reduction idea
Contests / the active
Residents contests, recycled craft contests, clean-
campaigns participation of
up campaigns, etc.)
residents in FTFP
collection
Promote
 Use tools to build awareness (videos,
DVDs, TV commercials,
Educational the active
Residents leaflets/booklets, banners, posters,
tools participation of
novelty goods, SNS, etc.) at residents’
residents in FTFP
meetings, door-to-door visits, etc.
collection
Promote
Door-to- the active  Conduct home visits using educational
Residents
door visits participation of tools
residents in FTFP
collection
discharge and collection operations, and to consider countermeasures.

2 A team consisting of government officials, community representatives, and other interested parties. In Khartoum, it
played a central role in the dissemination of FTFP collection.

Photo 7-2 Before PP Implementation Photo 7-3 During PP Implementation

(Waste was left on the sides of roads and in (The amount of scattered waste had been
vacant spaces, and scattered over a wide area.) reduced. The area was kept clean.)
Photo 7-4 Study Tour Photo 7-5 Door-to-door Visits by

Administrative Staff
(Promoted cooperation among residents to
Source: Yachiyo Engineering Co., Ltd. prevent waste from being scattered and to
keep the area clean.)
As a result of implementing the PP in Khartoum collection times decreased by about 20 minutes, as

shown in Table 7-5. In addition, residents who have seen the improvements, such as waste collection
services and a reduction in scattered waste resulting from the PP showed a willingness to pay fees.
Fee collection rates improved from about 10% before the PP to about 40% after implementation. In
the post PP survey, the number of residents who said they were satisfied with the collection service
was about 50% before the PP was implemented, but increased to about 79% after the PP was
implemented.
Table 7-5 Outcomes of Pilot Project

Before implementation of PP After implementation of PP
Collection times 91 to 99 minutes 76 to 79 minutes
Fee collection rate Approx. 10％ Approx. 40％
Level of satisfaction
50％ 79％
of residents
After the Project

As the results of PP implementation FTFP collection was introduced, and waste discharge on days
other than collection days and at locations other than the designated ones became less common.
However, as of 2022, the FTFP collection has not yet taken root in Khartoum. The main challenges
identified so far and possible countermeasures are as follows.
Challenges
 Strict observance of the system by collection trucks is difficult because of insufficient number
of collection vehicles, inadequate maintenance, and difficulty to arrange alternative vehicles
in case of breakdowns, etc.
 Due to insufficient study of routes served by collection trucks before they enter the FTFP area
and after they leave it, sometimes the collection trucks were already full as they entered the
FTFP collection area and could not finish collection in the area within the scheduled time.
 The time required for loading and unloading waste at transfer stations and final disposal sites
resulted in long waits for the arrival of collection trucks at the FTFP area.
 The type of collection truck did not match the characteristics of the area, and the collection
operation took longer than expected (e.g., the truck was too large to enter a narrow road).
 It was particularly difficult for children and women to take out waste from their homes to
distant collection points by themselves.
 The waste disposal rules were not thoroughly enforced and various types of containers were
used for waste discharge, and sometimes the waste containers were mistakenly collected as
waste.
 Waste was scattered at the collection points due to damaged waste containers, etc.
Countermeasures
 Develop and review collection plan
When introducing FTFP collection, it is necessary to design collection routes based on the type
and number of collection vehicles available, the characteristics of the collection area, and the
number of households to be served (based on which the waste amount to be collected is
estimated), and then organize in detail the elements necessary to successfully implement the
FTFP collection system; including the location of collection points, suitable collection time
schedule, and methods for notifying the residents of the collection vehicles arrival or reminder
to the residents of collection time as a backup for the FTFP system.
In the implementation phase of the plan, it is necessary to confirm on site whether residents are
discharging waste at the designated collection points and times, collection crews are able to
travel the collection routes on time and without difficulty, as well as to analyze data on waste
collection rates, residents’ satisfaction levels, and collection rates over time of collection fees if
such fees are imposed. It is important to identify issues for improvement in the collection plan
through a series of repetitive tasks, and continuously review and improve the plan.
 Training of collection crews and staff

If the collection crew members, who actually do the collection work do not understand the
contents of the collection plan and their own roles, it will be difficult to provide smooth
collection services. It is necessary to conduct training for collection crews (including on-the-
job training, etc.) and PPs for practical collection work to improve their knowledge and skills.
Furthermore, the collection crew members should be able to guide residents on waste discharge
rules. Collection plans need to incorporate the opinions of collection crew staff in the field on
the suitable methods to educate residents, amongst others. Involving collection crews and staff
in planning will both raise their motivation as well as ensure that the countermeasures for the
issues confronted in the actual work are reflected in the plans.
 Thoroughly inform local residents of the waste disposal rules

FTFP collection is often a new initiative in developing countries, and it is necessary to
continuously deepen the understanding of all parties involved, not only before but also after
FTFP introduction. Involving residents, who are the generators of waste, is particularly
important. If the method and time of waste discharge are not thoroughly understood, the amount
of waste left uncollected will increase and the sanitary environment will likely deteriorate. In
Japan, the government actively informs residents of the rules for waste discharge through the
distribution of waste sorting charts, briefings for residents, SNS and smartphone applications,
and other means. When setting rules for waste discharge, it is important to confirm local
characteristics and residents requests through PP, and incorporate them into the plan to promote
understanding on the part of residents and facilitate smooth waste discharge and collection.
Lessons
Evaluation of Feasibility through PP Implementation, Identification of Ongoing
Challenges and Improvements, and Reflection in Collection Plans
By implementing PP for collecting and analyzing data before and after the introduction of FTFP
collection, it is possible to quantitatively evaluate FTFP effectiveness. The issues identified in
Khartoum at the time of the introduction of the FTFP collection were also found in projects in other
countries, and lessons learned can be utilized to other cases. In the planning stage, information
necessary for FTFP collection - type and number of collection vehicles, characteristics of the area to
be collected (road conditions, etc.), collection routes, number of households to be collected, location
of collection sites, etc. - should be shared in advance among the heads of administrative agencies in
charge of waste management, officials in charge of collection planning (personnel and vehicle
allocation planning), collection staffs, resident representatives, and other relevant parties. It is
important to discuss solutions to possible problems through a series of collection and transportation
processes. It is equally important to identify issues and points for improvement through periodic
monitoring after the introduction of the FTFP collection, and to continuously review the collection
plan.
Need for Continuous Awareness Building Activities
While cooperative at the start of a project, residents can become less motivated with the passage of
time. In order for the administration and residents to jointly work together continuously while
recognizing their respective responsibilities, administration officials must promote understanding by
local residents on waste management through regular meetings and awareness building activities,
including public awareness programs and environmental education, and reflect the ideas and opinions
collected from residents in waste management services. Regarding awareness-raising, it is important
to combine various activities, such as holding community meetings and study tours as well as to
maintain the continuity of these activities. There also needs to be a mechanism to involve key persons
in the community in the activities and to encourage residents to change their behavior and ways of
thinking. On the other hand, residents are also expected to be aware of their own responsibilities for
the waste they generate and be actively involved in waste management services provided by the
government.
Palestinian Interim Self-Government Authority, PA

～ Improving Waste Management through the Introduction of Inter-Municipal Waste
Management ～
Inter-municipal waste management, in which waste collection vehicles and treatment facilities
are shared and operated among multiple neighboring municipalities, regardless of their respective
sizes, is one of the effective methods for achieving efficient waste management.
In introducing this case study two methods of waste management are highlighted; inter-municipal
association which can serve as the foundation for an efficient waste management system, and public
awareness activities to ensure that residents meet their obligations to pay the waste service fees and
thereby secure the financial stability of the waste management system.
Region: Middle East

Administrative capital of
the Palestinian National
Authority (PNA): Ramallah
Area: 6,020 km2
Ethnic groups: Arab
Languages: Arabic
Religions: Islam (92%),
Christianity (7%), other (1%)
Source: Ministry of Foreign Affairs Website “Palestine” https://www.mofa.go.jp/mofaj/area/plo/data.html#section1

Background
The Palestinian Interim Self-Government Authority

(hereinafter referred to as “Palestine”) is divided into the
West Bank bordering Jordan to the east and the Gaza
Strip bordering the Mediterranean Sea to the west and
Egypt to the south. The municipalities that make up
Palestine are small and each municipality is responsible
to collect and dispose of its waste. The waste collection
rates were extremely low due to a lack of collection Photo 7-6 Waste Burned in Disposal Site
vehicles because of the short supply of financial
resources in the municipalities providing the cleaning services.
The collected waste was not disposed of properly, and instead was openly burned or dumped, and
sanitary conditions were poor.
With population growth and transportation barriers, Palestine faced challenges centered around a
lack of access to disposal sites, waste management businesses that were not economically viable due
to increasing operation and maintenance costs, and improper disposal practices, such as open burning,
which created health hazards for residents and environmental pollution problems. 3 Against this
background, the autonomous government requested Japan to provide technical cooperation on
capacity development in the field of waste management and the establishment of a model for waste
management. Table 7-6 shows an overview of the waste management projects implemented in
Palestine.
Table 7-6 Overview of Waste Management Projects Implemented in Palestine

Item Content
The Project for Capacity Development Project for Technical Assistance in Solid
on Solid Waste Management in Jericho Wastes Management Phase 2
Project name
and Jordan River Rift Velley in
Palestine
Project period November 2005 - February 2010 January 2015 - July 2019
Target cities Jericho and Jordan River Rift Valley All of the West Bank of Palestine
(Population) (Approx. 50,000 people) (Approx. 950,000 people)
1. A basic policy on comprehensive Environmental and socially responsible
waste management in local cities will waste management services will be
be established in the Palestinian provided throughout Palestine on a
Authority and specific policies will sustainable basis.
be developed.
Overall goal 2. An effective waste management
system modeled on the Jericho and
Jordan Valley Region (hereinafter
referred to as “JJRRV”) will be
disseminated to local cities
throughout Palestine.
1. A sustainable and hygienic waste A sustainable waste management system
management system will be by the Regional Administrative Council
introduced in JJRRV. (“JSC”) will be established equally
2. JJRRV's improvement case throughout the Palestinian West Bank
Project purpose
experience will serve as a model case under policies, plans, institutions,
for improving waste management in support and coordination well be
other Palestinian cities. developed by the Regional Authority
(“MoLG”).
1
3 Due to the long-standing conflict with Israel over land, Palestine has become an enclave, and its land area continues
to shrink due to repeated Israeli settlement activities. In order to travel between Palestinian areas, one must pass through
“checkpoints” set up by Israel on the border. Palestinians are not allowed to enter without an Israeli permit.
Item Content
1. A project management system will 1. MoLG's capacity to provide guidance,
be established. support and coordination in the area of
2. Waste management organization waste management to JSCs will be
system in JJRRV will be established. strengthened through its activities with
3. The current status of waste the five target JSCs.
management at JJRRV will be 2. MoLG's capacity to develop standards,
identified regulations and guidelines for waste
4. A policy (action plan) for management will be enhanced.
improvement of waste management 3. MoLG's capacity to develop national
at JJRRV will be developed policies and plans for waste
Output
5. An action plan for improving waste management will be strengthened.
management at JJRRV will be 4. MoLG's organizational management
established. capacity will be strengthened.
6. The Action Plan is implemented,
improvements are realized and
JJRRV's activities are disseminated.
7. Training sessions will be held in
Japan to acquire and disseminate
basic knowledge on waste
management.
Source: Based on JICA “The project for capacity development on solid waste management in Jericho and the Jordan
River Rift Valley : consolidation improvement report of solid waste management” (2010), Project for Technical
Assistance in Solid Waste Management in Palestine (phase-2) : Final report” (2019)
Creating a Foundation for the Introduction of Inter-Municipal Waste Management
When establishing an inter-municipal association, which serves as a foundation for inter-

municipal waste management, it is important to minimize the burden on the individual
municipalities. Rather than purchasing new equipment or hiring new personnel at the outset, it is
necessary to make effective use of existing resources held by each municipality, and to devise ways
to combine and utilize them.
Waste management in Palestine, which had been carried out by smaller municipalities, is to be
implemented by a regional association called the Joint Service Council (hereinafter referred to as
“JSC”), under a collaborative initiative by several municipalities. The JSC aims to create an inter-
municipal waste management system that will place a small burden on each municipality and provide
stable waste management services throughout the entire region. In addition to reducing the budgetary
burden on each municipality through the efficient operation and maintenance of collection vehicles
and sharing the final disposal site, the inter-municipal system will allow for an increase in the size of
the disposal sites and improve the efficiency of construction and operation.
The objectives of establishing JSC in Palestine are to: (1) implement environmental protection
measures, such as the introduction of sanitary landfills, (2) promote waste reduction and recycling, (3)
develop efficient waste management practices, and (4) promote projects where residents, business and
the government can work together. Figure 7-4 shows the basic flow of implementation, up to the
establishment of JSC in Palestine, Figure 7-5 shows the basic JSC organizational structure, and Table
7-7 shows the JSC stakeholders and their roles.
In the example of Jericho and the Jordan Valley region, JSC is composed of 17 municipalities, led
by the city of Jericho, the main city in the region. For those municipalities that were reluctant to
establish a JSC due to a lack of understanding about inter-municipal waste disposal - such as the JSC
mechanism, cost sharing, etc. - representatives from municipalities that were willing to establish a JSC
visited them and held discussions on human resources allocation of and cost sharing. Based on these
discussions, a draft basic plan was prepared, which included the basic policy of JSC, allocation of
personnel and equipment, and budget for waste management. Further discussions on the draft basic
plan led to the establishment of the JSC, which was agreed upon by all the member municipalities
after considering an effective mechanism that would be less burdensome for each municipality. As
shown in Table 7-8, the items decided upon at the time of establishment were formulated as formal
regulations, and the rules were clarified to enable the smooth operation of the JSC among the many
municipalities involved.
In Palestine, 12 new JSCs were established and 3 existing JSCs were rebuilt. The JSC in Jericho
and the Jordan Valley region, was organized by 17 municipalities, creating a system that can provide
waste collection services to approximately 50,000 residents.
JSC Preparation Committee
Identification of tasks
for operation transfer to JSC
(Preparation of draft basic plan for JSC)
Preparation of
JSC operation transfer schedule
Preparation of
JSC operation transfer plan
Establishment of Securing of Management of Preparation of

accounting system facilities and equipment human resource regulations
• Determination of costs • Agreements regarding use of • Preparation of
• Allocation of officers
• Determination of contributions landfill sites, collection vehicles, organization structure,
and change of their
• Establishment of budget and offices, parking areas, workshops operational demarcation
positions
performance evaluation system for repairs, etc. and regulations
Develpment of waste management plan
JSC starts the operations
River Rift Valley : consolidation improvement report of solid waste management” (2010)
Figure 7-4 JSC Preparation Flow for Starting Operations
JSC
Leaders Election
Member General Administrative
Municipalities Assembly Board
Executive Office
（Chief executive officer）
Public Technical and Administration

Relations Operations and Finance
Department Department Department
Technical Comprehensive
Support Support
Ministry of Local
Government
Experts
JSC Management
Office
Figure 7-5 Basic JSC Organizational Structure
Table 7-7 Parties and Roles of JSC

No. Parties Role
Determination of executive office membership, determination of budget,
determination of supplemental budget, nomination and recall of new
General
1 members, determination of agenda items, consideration of rule changes,
Assembly
determination of contributions, approval of implementation plan,
determination of representatives on committees of other organizations
Convening of general assembly, planning of cleaning projects in
consideration of environmental protection, advice on collection and
transportation, construction of transfer stations and landfills, maintenance,
Administrative
2 parking depots and containers, public relations for residents regarding
Board
environmental protection, human resource development, staff awareness
and education, institutional development, and advice related to
environmental improvement through cleaning service
Planning and monitoring work related to cleaning services, convening
Executive board meetings, supervising staff work, making recommendations to the
Office (Chief board regarding staff transfers, removal, and discipline, making
3
executive recommendations to the board regarding new work, and making
officer) recommendations to the board regarding staff personnel, labor,
compensation, occupational health and safety, education, and training
Public
Publicize waste management projects to residents, research waste
4 Relations
management projects
Department
 Planning and Maintenance Division
Technical and
Planning and development of waste management plans, long-term
5 Operations
collection plans, long-term landfill plans, equipment purchase plans,
Department
and operation plans; maintenance of collection equipment and landfill
No. Parties Role

heavy equipment; preparation of annual reports
 Collection Division
Planning, formulating, and implementing collection work plans,
dispatching collection equipment, and recording collection operations
 Landfill Management Department
Develop, formulate, and implement an operational plan for the landfill
Administration Budget, settlement of accounts, related to the contributions of each
6 and Finance municipality, general coordination of property management, purchase of
Department goods, contract administration, collection of fees and contributions
Ministry of
Local
Government
External Provide comprehensive support to JSCs throughout Palestine
(JSC
Management
Office)
External Experts4 Providing operational advice and technical assistance
Table 7-8 Main Provisions and Objectives of the JSC

No. Provisions Content Purpose
Clarify roles and responsibilities within the
1 Jobs Duties and responsibilities organization and unify the understanding
of each department
Clarify working conditions and unify
Working Working days, working hours,
2 understanding between JSC and
Conditions salaries
officers/workers
Personnel, health and safety, Establish a safe and secure work
3 System appointment selection, environment by improving the working
performance evaluation environment for officers and workers
Equipment maintenance plan, Prevent stagnation in waste management
facility maintenance plan, operations by systematically operating and
4 Operation
collection and transportation maintaining equipment
plan
1
4 Refers to a team of experts consisting of several executive directors of other JSCs that were facilitating the operation
and the director of the repository.
Photo 7-7 Waste Container Installed at a Photo 7-8 Waste Collection

Touristic Area (Gaza South JSC）
(Bethlehem JSC)
Photo 7-9 Waste Collection Photo 7-10 Hebron Transfer Station

（Ramallah - Al Bireh JSC） (Hebron JSC）
Photo 7-11 Zahrat Al-Finjan Landfill Photo 7-12 Workshop

(Jenin JSC) (Gaza North JSC)
Activities to Build Public Awareness on Waste Fee Collection
Operations of the Palestinian Regional Authority are supported by the collection of waste
disposal fees from residents, so it is important to improve fee collection rates. When setting
collection fees, it is important to set an amount that is affordable and acceptable for residents and
to obtain their understanding and consent through steady public awareness activities.
Costs related to inter-municipal waste disposal in Palestine are covered by waste disposal fees
collected from residents. In general, compared to other public services (e.g., electricity and water),
waste management is often not a top priority for residents, and it is difficult to enforce fee collection
systems without their understanding of the importance of collecting fees. While Palestinian residents
tend to be less environmentally conscious, some are not aware of the JSC’s activities or may be
concerned whether the introduction of inter-municipal waste management will actually improve waste
management conditions. Therefore, a variety of activities were implemented to help residents
understand the need to collect fees, such as the organization of information sessions for residents, and
production of newsletters, leaflets and posters, documentary films, and TV advertisements.
Among these activities, explanatory meetings with residents were prioritized, during which the
administration could meet face-to-face with residents and hear their opinions directly. In order to make
the meetings effective, the explanatory meetings were divided into three stages according to the
residents’ level of understanding. Stage 1 was designed to explain basic knowledge of waste
management and an overview of the JSC to residents who had little knowledge of waste management
and were unaware of the existence of the JSC. Stage 2 was an explanatory session that, in addition to
the explanation in Stage 1, explained the services provided by the JSC and its business activities, such
as cost sharing. Stage 3 was an opportunity to build consensus with residents on JSC’s business plan
based on the knowledge and information obtained in the Stage 1 and 2 meetings. By conducting the
explanatory meetings in this manner, according to the residents level of understanding, it was possible
to deepen the residents correct understanding of JSC activities, etc., and to encourage their cooperation
in JSC projects and, ultimately, in the collection of fees.
Photo 7-13 Explanatory Meeting Photo 7-14 Workshop with Residents

Table 7-9 Activities by JSC to Raise Awareness of Residents

No. Items Purpose
To publicize JSC activities to residents, the central government, other
1 Newsletters
municipalities, donors, etc.
To distribute to government agencies, schools and residents
2 Leaflets participating in community meetings and inform them about waste
management and JSC activities
3 Booklets Same as above
To inform residents and others about waste management and JSC
4 Posters
activities
To raise the awareness of residents and communities about the
5 Video production
importance of JSC
6 Campaigns To raise awareness of residents and students about waste issues
To discuss the importance and role of JSC, role of residents, and fees
7 Community meetings
with people in each municipality
As shown in Table 7-10, in the City of Jericho and the Jordan Valley region, these long-term and
ongoing awareness-raising activities have improved the public awareness of JSC and their level of
satisfaction with collection services, which has helped increase fee collection rates.
Table 7-10 Results of Social Surveys Conducted by JSC (Jericho and the Jordan Valley Region)
Before awareness- After awareness-
No. Items
raising activities raising activities
1 Awareness of JSC 70％ 79％
2 Satisfaction with collection services 58％ 70％
3 Fee collection rates 66％ 81％
Lessons
Improvement of Efficiency of Waste Management through Inter-Municipal Waste

Management
Smaller municipalities, where resources are in chronically short, have difficulty continuing to
implement quality waste management. One proposed solution is the introduction of a system called
“inter-municipal waste management”, in which surrounding municipalities come together to jointly
implement waste management. When introducing inter-municipal waste management, an inter-
municipal association that will function as a secretariat must be established that will be run through
the cooperation of participating municipalities.
In order to reduce the burden on each municipality during the organization creation phase, it is
important to first investigate the existing equipment, human resources, capabilities, systems, financial
resources, mechanisms, and facilities possessed by the municipalities comprising the JSC, and
combine them for effective utilization, rather than purchasing new equipment or hiring new personnel
at the outset. Reducing the burden in the initial stages will lead to the smooth establishment of the JSC
and the continuation of its subsequent operations.
Introduction of Waste Collection Fees
When starting the collection of waste disposal fees, it is important to set an amount that the residents
can afford and accept. In the Jericho and Jordan Valley areas, as a result of discussions within JSC, a
waste disposal fee was set at an amount that would cover the JSC operating costs and that would not
be a burden on the residents. After repeated explanations and discussions with the local residents
through explanatory meetings and other means, the residents finally agreed that the waste disposal fee
was appropriate.
On the other hand, the actual collection of fees is difficult, and in order to continue the waste
management, it is necessary to consider measures such as increasing the fees. In order to improve the
rate of fee collection, not only the quality of waste disposal service needs to be improved, but also
various measures such as continuous dialogue with residents, suspension and resumption of service,
and fee collection together with other public services (electricity, water, etc.) are required.
Republic of El Salvador ～ Path to Proper Management of Sanitary Landfill Sites～
In El Salvador, a sanitary landfill, developed and operated under the Fukuoka method, was
introduced in 2008 with Japanese assistance, and continuously operated and maintained for more
than 10 years. As a result of this project, similar landfills were being developed in other regions of
the country.
After the completion of the project, the inter-municipal association has continued to work
vigorously to develop and maintain the sanitary landfill, and has secured financial resources by
seeking funding sources with the cooperation of the central government. Inter-municipal
cooperation is also continuing, with explanations and agreements on revisions for waste disposal
fees with each member local government.
Region: Central America

Capital: San Salvador
Area: 21,040 km2
Ethnic groups: Multi-ethnic groups
Mixed Spanish Caucasian and Indigenous people (approx. 84%)
Indigenous groups (approx. 5.6%),
European ancestry (approx. 10%)
Language: Spanish
Religion: Catholic
Source: Ministry of Foreign Affairs Website “Republic of El Salvador”
https://www.mofa.go.jp/mofaj/area/elsalvador/data.html#section1 (accessed February 8, 2022)
Background
El Salvador did not have a waste management

system in place, and waste was usually disposed in
open dumps. The resulting increase in disposed
waste caused groundwater pollution and soil
contamination, creating adverse effects on people’s
health and ecosystems.
To improve conditions, El Salvador enacted an
Environmental Law in 1998 requiring all
municipalities to close open dumping sites and
build sanitary landfills by September 2007. There Source: Yachiyo Engineering Co., Ltd.
was an urgent need for the systematic and phased Photo 7-15 Open Dumping Site
development of sanitary landfill sites and to reduce the volume of waste, leading the government of
El Salvador to decide that it was necessary to bolster the waste management capacities of
municipalities. The government of El Salvador requested Japan’s assistance on technical cooperation
for construction, operation and maintenance of sanitary landfill site in December 2003 with the aim
of establishing an inter-municipal waste management system, improving the capacities of people and
institutions involved in the processes, and disseminating the outcomes to other municipalities in El
Salvador and other Central American countries. In response to this request, a JICA technical
cooperation project was implemented from November 2005 to March 2009 in the nine municipalities
that make up “La Asociación Intermunicipal de Municipios del Norte del Departamento de la Unión”
(hereafter referred to as ASINORLU). The project focused on improving and expanding landfill sites,
their operations, maintenance and management, and 3R activities. Table 7-11 provides an overview of
the project implemented in El Salvador.
Table 7-11 Overview of the Project Implemented in El Salvador

Item Content
Project name The project on Integrated Solid Waste Management for Municipalities in El Salvador
Project period November 2005 - May 2009
San Salvador (Central government), San Miguel (Project execution unit), La Union
Target cities
Province (Landfill, Clean association)
Municipalities implement appropriate Integrated Solid Waste Management (ISWM)
Overall goal
to improve the environmental sanitary condition in the Republic of El Salvador.
The Central Government, MARN, MSPAS and ISDEM, strengthen their capacity to
Project purpose apply ISWM to municipalities in the Republic of El Salvador, and decide to
implement the ISWM strategic promotion plan within its authority.
1. The central government in cooperation with ASINORLU develops sustainable
models in the nine municipalities of ASINORLU for ISWM.
2. The central government develops ISWM guidelines, which are feasible and
adapted to the present conditions of municipalities in the Republic of El
Salvador.
Outputs 3. The counterpart personnel in the central government acquire the knowledge and
experiences on ISWM.
4. The counterpart personnel in the central government acquire the capabilities to
conduct training and to raise awareness on ISWM of municipal administrators
5. The central government develops a draft strategic promotion plan of ISWM in
the Republic of El Salvador.
Source: Based on JICA “The Project for Integrated Solid Waste Management for Municipalities in the Republic of El
Salvador Project Completion Report” (2009)
Construction and Proper Maintenance, Management and Expansion of Sanitary

Landfill Sites Using the Fukuoka Method
The improvement of the open dump site and construction of a sanitary landfill site dramatically
improved the appearance of the site and the surrounding environment and served to motivate
employees and other stakeholders. These conditions made it possible for the association’s
operations to become self-sustaining. The association has continued to implement activities even
after the conclusion of the project, including the expansion of landfill site and a search for funding
sources.
In order to improve the open dump site into a sanitary landfill, it was necessary to obtain an
environmental permit by conducting an environmental analysis in accordance with the Environmental
Law of El Salvador. The purpose of the environmental analysis for this project was to determine
concrete ways to mitigate environmental pollution caused by the open dump site. ASINORLU
conducted surveys on the site topography, geology, and surrounding water quality, as well as fault
investigations, and submitted an environmental report describing the necessary mitigation measures -
including water quality monitoring and the application of soil cover - to the Department of
Environment and Natural Resources. This resulted in a permit for open dump site improvements being
granted in October 2006.
Phase 1 of the project involved temporarily moving disposed waste from Santa Rosa de Lima
Landfill, which was initially an open dump, and installing leachate collection and gas venting pipes.
The relocated waste was then returned to the improved cells, cover soil was applied, and some areas
were closed. In addition, fencing and gates were installed, drainage ditches and site roads were
constructed, and improvement construction work was completed in approximately three months. The
landfill site improved in Phase 1 was used until a new sanitary landfill site was completed in Phase 2.
Phase 2 of the project involved construction and equipment procurement (backhoe loader, bulldozer,
and dump truck) of a sanitary landfill using the semi-aerobic landfill method (Fukuoka method)
developed in Japan. In the semi-aerobic landfill system, gas venting pipes and leachate collection and
drainage pipes are installed to allow air to flow naturally into the interior waste layers. The supply of
oxygen to the interior of the disposed waste layers increases the speed of waste decomposition,
decreases the concentration of pollutants in the leachate, and suppresses odors and methane gas
emissions. As a result, the stabilization period of the landfill site is shortened. The Fukuoka method is
becoming popular in developing countries because inexpensive local materials such as waste tires,
drums, bamboo, and rubble can be substituted as materials for pipes and paving stones. (for more
details on the Fukuoka method, refer to “Topic 4-3.3 (4) Categorizing by Microbe Environment:
Anaerobic, Semi-aerobic, and Aerobic Landfills”.)
Table 7-12 shows an overview of the technologies used in each phase of the project.
Table 7-12 Overview of Technologies Used in Each Phase of the Sanitary Landfill
Construction and Proper Operation and Maintenance
Phase Technology Overview
(1) Environmental diagnosis - Survey of geological features, water
Obtaining environmental quality, etc.
permit (2) Suggesting Mitigation Measures - Water quality monitoring, Soil
cover, etc.
Phase 1 - Improvement of open (1) Relocating existing wastes, using the sanitary landfill technique
dump site (2) Definitive closure of some areas
December 2006 - March 2007 (3) Countermeasures to the waste pickers
Phase 2 - Sanitary landfill (1) Construction of Semi-aerobic sanitary landfill (Fukuoka method)
Construction (2) Staff acquired experience in implementing soil cover, heavy
October 2007 - July 2008 equipment operation and maintenance, etc.
Preparation of operation and maintenance manual, Daily soil cover,
Sanitary landfill Operation and
Leachate recirculation, Operation of aerators, Preventive maintenance
Maintenance
of machinery
Photos of open dumping before construction (2005), the sanitary landfill site (Phase I) and the newly
constructed sanitary landfill (Phase II, 2007) are shown in Photo 7-18~7~24. Waste is no longer
scattered around the sanitary landfill site as it was with open dumping, which indicates a dramatic
improvement in environmental conditions as well.
The reasons behind the site’s proper maintenance as a sanitary landfill is the application of daily
soil cover over the freshly disposed waste, thorough cleaning of storm water drains and site roads, and
preventive maintenance of heavy equipment. On-the-job training (OJT) for employees responsible for
operating the landfill site, who were hired at the time the sanitary landfill was being constructed, also
played an important role in achieving appropriate maintenance and management of the site. Particular
focus was placed on providing guidance for the landfill operations in areas of the site where
impermeable liners were laid to avoid damaging the liner system when landfilling. The development
of a manual on the maintenance and management of landfill sites also helped to reinforce landfill
operation and maintenance capabilities.
This change from open dumping to a sanitary landfill site raised confidence and motivated
ASINORLU and staff at the landfill, which in turn, led to the sustainable operation and maintenance
practices of the landfill site after the project was completed.
Photo 7-16 Leachate Collection Pipes Photo 7-17 Sanitary Landfill under
Construction (Phase2)
Photo 7-18 Practice of Applying Soil Cover Photo 7-19 The Use of Aerators in the
Leachate Pond
Photo 7-20 Photo 7-21

Open Dump Site (Before Phase1) After Improvement（After Phase 1）
Photo 7-26 Newly Constructed Sanitary Landfill (Phase 2)

View of the Open Dump Site, during Phase 1 and 2

After the Project

After the project was completed in 2009, in 2017 a new Fukuoka Method landfill area was
constructed as Phase 3. This new landfill area had an expected landfill period of four years, and was
supported by a German financial institution - the construction cost of approximately US$1.8 million
is to be repaid by the central government as a loan.
In the meantime, ASINORLU implemented the planning and design of the new landfill area,
reclaimed the valley land between the phases in order to keep the landfill in use longer, and sought
financing sources with the cooperation of the central government, etc. While the amount of waste
received at the end of 2008 was about 30 ton/day, the amount of waste received in 2021 was
approximately 120 ton/day. Construction on a new landfill area using the Fukuoka Method, with an
expected landfill period of seven years, is scheduled to start in 2022. This project, Phase 4 will cost
approximately US$2.8 million and will be funded by the government of El Salvador. This is the first
time that funding from the government of El Salvador is being used for the construction of a sanitary
landfill site, and is in recognition of ASINORLU’s ongoing activities. Procuring funds for construction,
maintenance, etc. can always be a challenge in developing countries, but as in this case, sources of
funding must be systematically sought and found to expand the landfill in the future.
Photo 7-27 Landfill of Phase 3 (Lower part) Photo 7-28 Landfill of Phase3 (Upper part)
Photo 7-29 Panoramic View of the Landfill of Phase 3

Sanitary Landfill (August 2021)

Introduction and Expansion of Regional Waste Treatment through Inter-Municipal

Cooperation
ASINORLU made efforts to gain understanding of the need for inter-municipal waste
management and the importance of the 3Rs through consensus building and careful explanation to
each member municipality in the association. ASINORLU also conducted environmental education
programs and facility tours for the residents of these municipalities so that they could better support
their municipalities. Efforts such as these resulted in the smooth operation of inter-municipal waste
management.
ASINORLU, the regional association responsible for the operation, maintenance and management
of the disposal site, is composed of nine cities. It is necessary to reach agreements with each of the
nine cities on setting disposal (tipping) fees to be paid to ASINORLU in order for waste to be accepted
at the landfill site. The key points of this process are shown in Table 7-13.
Table 7-13 Key Points in the Process for Introduction of Inter-Municipal Waste Management
by ASINORLU
Process Key points
ASINORLU carefully explained to the mayors of each city and others that payment of
disposal fees based on the amounts of waste delivered to the landfill is necessary for
the operation and management of the landfill.
Examples of items explained to the mayor
Agreement on
・Concept of Sanitary Landfill
disposal costs
・Personnel required to implement waste management
・Operation and maintenance of sanitary landfill and necessary costs
・Outline of ASINORLU waste management plan
・Disposal fees to be paid to ASINORLU by each city, etc.
Through environmental education and 3R activities at schools and city offices,
ASINORLU promoted citizens understanding of waste management. In addition,
ASINORLU actively conducted educational tours of landfill sites.
Public
Examples of Environmental Education programs in schools
participation
・Separation of PET bottles, aluminum cans, and steel
・Bus tours to sanitary landfills and open dump sites
・Creation of posters and leaflets, promotion of the use of eco-bags, etc.
The capacity of staff in charge was strengthened through presentations at workshops
and seminars and by acquiring knowledge through training in Japan. In addition,
personnel and budget were secured to strengthen ASINORLU’s organizational
Strengthening structure.
organizational Examples of workshops and seminars
capacity ●Regional and national seminars (2 times during project period)
Target: Administrative officials, municipal officials, etc. related to waste
management in Central American countries
Examples of contents: The following items related to waste management, collection

and transportation, public awareness and environmental
education, environmental and social considerations, 3R
promotion, final disposal, organization, system, finance, 3R
promotion, final disposal, organization, system, finance, etc.
●Municipal training courses (6 times during project period)
Target: Mayors, Technicians, NGOs, community leaders
Improved capacity: Ability to select participants according to objectives
Ability to tailor the program to the participants attending
Ability to prepare presentation materials and conduct
presentations, etc.
Photo 7-30 Briefing to the Mayor Photo 7-31 Site Visit at the Regional and
National Seminar
After the Project

● Treatment Fees Collected from Each City
As of September 2021, 26 cities transport waste to the Santa Rose de Lima landfill operated by
ASINORLU, of which 17 cities have been added to the nine member cities of the association. As a
result, the disposal fees collected from each city have increased to cover the maintenance and labor
costs for the disposal site, as shown in Table 7-14. Disposal costs are determined based on the cost of
fuel, facility operation and maintenance, and increased staffing costs, etc. ASINORLU ensured the
sustainable operation of the inter-municipal landfill by revising fees as appropriate. Since waste
management is not always a high priority for mayors, ASINORLU provided detailed explanations to
each mayor and obtained their consent to increase the cost for disposal. ASINORLU provided
explanations whenever a new mayor took office, in particular, seeking their understanding about the
importance of waste management. As of 2021, each municipality is responsible for collection and
transportation as in the original plan.
Table 7-14 Changes in Disposal Costs Collected from Cities

2022～
Paying entity 2008～ 2016～ 2020～
(provisional)
Disposal site host city 17 USD/ton 17 USD/ton 17 USD/ton 25 USD/ton
Other 8 cities in
23 USD/ton 23 USD/ton 23 USD/ton 25 USD/ton
ASINORLU
Cities outside
ASINORLU
Tariffs (dangerous
items, etc.)
*: Red color: Adjustment of fees
● Environmental Education and Awareness-Raising Activities

Environmental education has been expanded to all elementary schools (203 schools) in the nine
member cities of ASINORLU. The disposal site has been improved to accommodate visitors, with an
educational building available for lectures and an observation deck open to visitors. This has resulted
in an increase in the number of students and local government officials visiting the site.
ASINORLU is also devising its own way to promote the 3Rs as a new initiative by exchanging
recyclables, such as PET bottles and cardboard for vouchers called “eco-dollars” and setting up stores
where these eco-dollars can be used and exchanged for daily necessities. This activity aims to promote
the source separation and separate collection of waste by providing incentives for separate discharge
of recyclables, and to make the 3Rs an indispensable and familiar part of daily life for residents by
exchanging eco-dollars for daily necessities.
Photo 7-32 Educational Building for Photo 7-33 Observation Deck for Visitors
Lectures (near the Landfill)
Photo 7-34 The Conversion of PET Bottles Photo 7-35 Purchasing Goods with Eco-
into Eco-dollar Bills dollar Bills
Source: by ASINORLU
Column: Waste Bank in Indonesia

In Indonesia, the Ministry of Environment and Forestry Decree No. 13 (2012) provides
guidelines for promoting 3R activities through “Waste Bank”, and certain support is provided by
the government, including the development of facilities. Waste Banks are generally operated on a
volunteer basis at the community level, and as of 2017 were in operation in more than 4,000
locations nationwide.
Waste banks purchase recyclables - PET bottles, plastic containers, empty cans, empty bottles,
used paper, etc. - brought in by residents and sell them to recycling companies when a certain
amount is collected. Residents are provided with a bank book equivalent to a regular bank passbook,
and the amount equivalent to the market value of the recyclables (the purchase amount) is recorded
in the book. After a certain period of time, the accumulated amount can be withdrawn as cash. The
activities of the Waste Bank are said to have contributed to raising awareness of the 3Rs, changing
the behavior of residents regarding waste separation, and beautifying the community.
Photo 7-36 “Sakura Waste Bank” in Photo 7-37 Mobile Waste Bank in Palembang
Palembang City City
● Expanding Inter-Municipal Waste Management to Other Parts of El Salvador and Other

Countries
Attempts are being made to develop the inter-municipal waste management model in other parts of
El Salvador based on ASINORLU’s experiences. Table 7-15 provides an overview of the associations
in El Salvador that have attempted to introduce inter-municipal waste disposal and the sanitary landfill
sites they own. Two other sanitary landfill sites are being operated as regional waste disposal sites, in
addition to ASINORLU. The experience gained by ASINORLU, including detailed explanations to
each of the member cities of the association, was instrumental to the success of inter-municipal waste
management.
However, one inter-municipal waste disposal facility was constructed but not put into operation, and
two disposal sites were not constructed due to opposition from residents. Both of the sites that were
not constructed were new construction sites, and the projects were abandoned due to opposition from
local residents to the planned sites and the inability to relocate residents to other areas. Waste-related
facilities, including the landfill, are described as NIMBY 5 facilities, and the failure to properly
disclose information and respond to local residents was the cause of the setback, highlighting the
difficulty of reaching a consensus with local residents on the construction of new landfill sites.
Especially the case of the new acquisition of land highlighted the need for the government to avoid
selecting sites unilaterally and to only do so through exchange with residents in the surrounding area
before selecting a site.
ASINORLU has also provided guidance in the field on waste management to municipalities in
Honduras for a period of five years since 2013, and is providing guidance online in response to a
request from Peru in 2020. Consequently, ASINORLU’s activities related to the ongoing operation
and maintenance of the sanitary landfill site and inter-municipal waste management have become a
model not only for municipalities in El Salvador, but for other Latin American countries as well.
Reasons why AISNORLU has continued activities even after this project ended may be explained by
the fact that staff gained confidence in their ability to improve people’s lives and the environment by
transforming open dumps into sanitary landfills.
1
5 NIMBY is an abbreviation for “not in my backyard”, a term used to describe residents who agree that a facility is
necessary for the public, but are opposed to it being built on, or near their own residential property, or have such an
attitude.
Photo 7-38 Panoramic View of Sanitary Photo 7-39 Gas Venting Pipes
Landfill
Chalatenango landfill, August 2021 – an Example of Inter-Municipal Landfill Spreading

throughout the Country in El Salvador
Table 7-15 Overview of Associations that Have Attempted to Introduce Inter-Municipal

Waste Management in El Salvador and their Sanitary Landfill Sites
Stat
Const
No. us Funding sources
ructio
Muni Landfill Status of of for facility
No. n of Difficulties faced, other
cipalit system operation exp development and
dispos
ies ansi improvement
al site
on
Continued with support from
Phase I: JICA
ASINORLU
Phase II: JICA JICA. No particular issues with

Completed
Completed
regional waste treatment system
Fukuoka Phase III: KfW*1 itself. There were issues with
9 In operation Phase IV: Central
Method government development in Phase III, but
support was obtained from
budget KfW*1 through donor
(provisional)
1
coordination by MARN*2
Phase I: Regional waste treatment was
Fukuoka Phase I: DAC*4 introduced based on
Completed
Completed
Method (With support from ASINORLU's experience.
2 5 Phase II: In operation central Development costs were
Semi- government) provided through support from
anaerobic Phase II: KfW*1 DAC*3 and KfW*1 with donor
*3 coordination by MARN*2.
Phase I: Although residents were
opposed to the site, agreement
Fukuoka
Completed
Completed
was received from each city as

Method
3 13 Phase II: In operation Phase I: DAC*4 a result of detailed
Phase II: KfW*1 explanations based on
Semi- ASINORLU's experience. The
anaerobic
*3 relationship between the
mayors was also good.
In addition to opposition from
Completed
Failed to El Salvador
Fukuoka be put government, residents, the project had to be
None
4 12 abandoned when 35
Method into Spanish households could not be
operation Cooperation Fund
relocated.
Consent was not obtained

completed
Failed to be from residents for the

Not
5 9 － constructed －－ construction site of the new

proposed disposal facility.
The original land was too
small, and some local
completed
Failed to be governments opposed the

Not
6 19 －－ Design: KfW*1 acquisition of new land for the

constructed project. Funds were raised, but
the project was abandoned due
to opposition.
*1: KfW: Kreditanstalt für Wiederaufbau (German state-owned investment and development bank)
*2: MARN: Ministerio de Medio Ambiente y Recursos Naturales
*3: The El Salvadoran side of the sanitary landfill developed with KfW funds is a semi-anaerobic system
*4: DAC: Development Assistance Committee
Lessons
Political - Examining the Impacts of Changes in Government Administration
In El Salvador, the term of office for the President is five years, while the term of office for mayors
is three years. A change in government, including political party, can result in significant changes in
policy. In some cases, waste management falls in priority, budgets are reduced and, the introduction
of inter-municipal waste management by associations has been postponed for reasons such as these.
Every time the mayor of a city in the association changes, it is important for staff from the association
to visit the city and provide a detailed explanation of the situation to the new mayor and city council.
Financial - Securing Funding
It is important for the central government to establish a budgetary framework for the development
of inter-municipal waste management facilities. Only with this framework can inter-municipal
cooperation be promoted in detail, and it will be easier to obtain the commitment of each municipality.
The role of the central government should be to raise funds from donors and promote the allocation of
the country’s budget.
Public Participation - Importance of Disclosing Information
An important factor in promoting inter-municipal waste management is the fair disclosure of

information about project plans and outlines, and impacts on areas around facilities from the early
stages of the planning process. As a first step, it is important to provide examples of proper
development and operation and maintenance of landfill sites to avoid NIMBY-related problems.
Participation by residents and communities is an essential part of the waste management process,
and incorporating their opinions, including opposing views, into project plans from an early stage and
solving problems that arise will put the project on a fast track to implementation. There have been
several cases where projects did not make it to the implementation phase due to failures to disclose
information. Encouraging residents to actually visit sites through field trips to landfill sites and
treatment facilities will also help them see waste issues as something that concerns them and will
dispel causes for anxiety.
Organizational - Securing Human Resources
As counterparts of projects move on, the experience and knowledge from the project and results of
training in Japan may leave with them. However, in ASINORLU, counterparts are still directly
involved in waste management, and significant developments have been observed even after the
project ended. When staff are replaced within an organization, it is necessary to devise ways to retain
the skills and methods developed through the project within the organization.
Organizational - Improvement of Staff Motivation
In order to continuously maintain and manage a facility, it is important to motivate and maintain the
staff involved in operation and maintenance management. In addition to a good working environment
and a stable salary, visualization of work results, appropriate evaluation of work, and attention from
others can also effectively motivate employees.
Country Differences - Challenges in Expanding Systems to Other Countries
El Salvador is working on expanding lessons learned to other countries in Latin America based on
ASINORLU’s experience. However, it is not always possible to be applied successfully due to
differences in laws and political systems in target countries. Conditions in other countries must be
taken into account, and cooperation is needed to develop countermeasures to address this.
With the introduction of the “ward-based approach” Bangladesh has strengthened its waste
management based on the smallest administrative unit. Under this approach the collection service
area is subdivided into wards, each of which has its own administrative structure under the city’s
administrative reach, and can administer on its own parts of its waste management. It is also
important to improve the working environments of the cleaners.
Region: South Asia

Capital: Dhaka
Area: 147,000 km2
Ethnic groups: Bengalis, other minority groups
Language: Bengali (national language)
Religions: Islam (90.4%), other
(Hinduism, Buddhism, Christianity)
Source: Ministry of Foreign Affairs Website “People’s Republic of Bangladesh”

https://www.mofa.go.jp/mofaj/area/bangladesh/data.html#section1 (accessed February 8, 2022)
Background
The population of Dhaka, the capital of Bangladesh 6,

is estimated to be over 20 million. With rapid
urbanization, the city is facing growing urban
environmental problems, such as waste, air and water
pollution. In Dhaka, waste management was being
collectively implemented by the city government, but in
such a large city it was difficult for an individual
organization to be consistent in managing the
discharge, collection and transport, intermediate
Photo 7-40 Illegal Dumping in the City
treatment, and final disposal of waste. In addition,
waste management in Dhaka City had been stagnating due to weak organizational structures, lack of
equipment, and low sanitary awareness among the population. Table 7-16 provides an overview of
major waste management projects implemented in Bangladesh through the support of JICA.
6 The term “Dhaka City” refers to the former Dhaka City before the partition of the city into North and South Dhaka
in 2011, which is now the combined area of Dhaka North City and Dhaka South City. In this material, “Dhaka City”
is used for the sake of convenience.
Table 7-16 Overview of Projects Implemented in Bangladesh Related to Community

Participation in Waste Management
Item Content
Project for Strengthening of Project for Strengthening of Solid Waste Management in
Project
solid waste management in Dhaka North City, Dhaka South City and Chittagong
name
Dhaka city City
Project
February 2007 - March 2013 July 2017 -
period
Dhaka City Dhaka North City (Approx. 6.11 million people)
Target cities
(Approx. 12 million people) Dhaka South City (Approx. 4.49 million people)
(Population)
Chittagong City (Approx. 2.58 million people)
Waste management services in Proper waste management will be implemented in
Dhaka City will be Dhaka North City and Dhaka South City based on the
Overall
implemented sustainably. New Master Plan for Waste Management (hereinafter
goal
referred to as the "New Master Plan"). Appropriate
waste management is implemented in Chittagong City.
Waste management services in Waste management system in Dhaka North City and
Project Dhaka City will be improved. Dhaka South City will be improved based on the New
Goal Master Plan. Waste management system will be
improved in Chittagong City.
(1) Capacity for management (1) A new master plan for Dhaka North City and
and coordination of waste Dhaka South City with a target year of 2032 will
management activities be developed.
will be improved. (2) Ward-based approach activities will be improved in
(2) Capacity for waste Dhaka North City and Dhaka South City
collection and (3) Chittagong City will formulate a waste collection
transportation will be and transportation plan and introduce an
improved. appropriate waste collection and transportation
(3) Proper operation and system.
maintenance of final (4) Sustainable workshop management system will be
disposal sites established in Dhaka North City, Dhaka South City
(4) Accounting system for and Chittagong City.
waste management will (5) Information exchange meetings on waste
Output
be improved. management initiatives among all Special
Municipal Authorities and the medium-sized
municipalities in Dhaka North City and Dhaka
South City will be held under the leadership of the
Department of Local Government of the Ministry
of Local Government and Regional Development.
(6) Public information campaign on waste
management in Dhaka North City and Dhaka South
City will be promoted.
(7) Measures to extend the life of existing disposal
sites in Dhaka North City and Dhaka South City
will be implemented, and new disposal sites will be
secured.
Source: Based on JICA “Project for Strengthening of solid waste management in Dhaka city (extension) Project
Completion Report” (2013), “Project for Strengthening of Solid Waste Management in Dhaka North City,
Dhaka South City and Chittagong City (Phase 1) Project Completion Report” (2019)
Ward Based Approach (WBA)
The Ward Based Approach is a method for implementing and improving waste management in
each ward, the smallest administrative unit in Dhaka City, through four activities: (1) construction
of ward cleaning offices and strengthening field management, (2) improvement of working
environment for cleaner, (3) promotion of public participation, and (4) improvement of collection
and transportation.
Waste management operations, especially waste collection and transportation, cannot be improved
simply by the introduction of collection vehicles and other equipment, but require fundamental
improvements in the collection system, such as improved staff capacity and more efficient allocation
of collection vehicles. However, in a large city like Dhaka, it is difficult to centralize the management
of waste discharge, collection, transportation, and disposal in the Dhaka City Waste Management
Department alone. Therefore, the Ward Based Approach (WBA), a management method for stable and
continuous implementation of field-led waste management in wards 7 , which are the smallest
administrative units in Dhaka City, was introduced. Through WBA, for each ward, various activities
such as staff training and awareness raising, improvement of organizational functions, improvement
of equipment, and improvement of collection systems are combined in a synergistic manner to improve
waste management. As shown in Figure 7-6 and Table 7-17, WBA consists of four activities: (1)
Construction of ward cleaning offices and strengthening field management, (2) Improvement of
working environment for cleaner, (3) Promotion of public participation, and (4) Improvement of
collection and transportation. WBA’s goals were to achieve a minimum civilian8 standard of living
and to provide administrative services to all residents of Dhaka.
7 The smallest administrative unit of a city area. Multiple wards make up a single zone. As of 2022, there are
approximately 130 wards in Dhaka City (Dhaka North City: 54 wards in 10 zones; Dhaka South City: 75 wards in 10
zones). The population per ward consists of tens to hundreds of thousands of people.
8 Civil Minimum: The minimum standard of living conditions that a municipality is required to guarantee for the
livelihood of its residents.

WBA1
WBA2
Roads and
Drainages
WBA3 WBA4
Primary
Household collection Dust bins/ Secondary collection Final Disposal Site
Waste Containers (Landfill)
Responsibility of residents/NGO Responsibility of city cooperation
WBA 1 Construction of ward cleaning office and strengthening of site management

WBA 2 Improvement of the working environment for cleaners
WBA 3 Activities of public awareness
WBA 4 Improvement of waste collection and transportation
Source: Based on JICA “Project for Strengthening of Solid Waste Management in Dhaka North City, Dhaka South
City and Chittagong City (Phase 1) Project Completion Report” (2019)
Figure 7-6 Framework of WBA
Table 7-17 Advantages and Challenges Related to the Ward-based Approach in Dhaka
WBA Content Advantages Challenges
 Construction of ward  Provides a space for  Difficulty acquiring land
cleaning offices and cleaner to meet, store for construction of ward
strengthening cleaning tools, and take cleaning offices. May be
management in the field breaks. difficult to raise funds
WBA 1 (office construction,  Offers a point of contact for the operation and
management of cleaner) for residents to reach out maintenance of cleaning
to the government with offices.
questions or complaints
on waste management.
 Improvement of working  Allows cleaner to work  Takes time to try and
environment for cleaner in a safe and hygienic change awareness of
(conducting safety environment. cleaner on waste
WBA 2 trainings, preparing work  Leads to increased management and safety.
manuals, providing awareness on health and
safety equipment) safety and improves
work efficiency.
 Promotion of public  Takes time to attempt to
participation  Allows residents and change the attitudes of
(preparation and workers to work together residents towards waste.
implementation of action on waste management.
WBA 3
plans for public  Makes sustainable and
awareness and hygienic waste
community cleanup management possible.
activities, etc.)
 Improvement of  Improves efficiency of  Takes time to change
collection and collection work with the collection systems
transportation (removal introduction of because the behaviors of
of dust bins, compactor trucks and both residents who
improvements to other equipment. discharge the waste, and
WBA 4 containers, introduction  Allows waste to be government workers,
of fixed-time fixed-place collected in a hygienic who collect the waste,
collection (FTFP) manner. must be changed.
method)  Difficulties may arise
when vested interests are
involved.
WBA1 - Construction of Ward Cleaning Offices and Strengthening Field Management

The development of a base office is important for waste management in the ward. In Dhaka City,
the office is used as an important place with many roles, such as an office space for the cleaning
supervisor - the government official responsible for waste management in the ward - to perform
his/her management duties, a work office for the cleaner, and a contact point for residents related
to waste management.
A cleaning supervisor was assigned to each ward, but since there were no offices, the cleaning
supervisor, while also responsible for management in the ward, was often in the field together with the
cleaner, patrolling the cleaning and collection sites in the ward. Therefore, in order to create a base in
each ward to help wards improve waste management on their own, ward cleaning offices were
constructed, and their functions strengthened. The offices were built to serve a number of functions,
including; as a point of contact for residents to reach out with complaints, a base for labor management
and guidance for cleaner, a place for cleaner to take breaks, and a storage space for cleaning tools.
Cleaning supervisors, who had been more engaged in patrolling the sites, were now able to concentrate
on their own ward management duties, in addition to their patrol work.
Photo 7-41 Ward Cleaning Office Photo 7-42 Meeting with Cleaners in Ward
Cleaning Office
WBA2 - Improvement of the Working Environment for Cleaner

Efforts to improve the working environment for cleaners are not limited to simply improving the
environment, but can also lead to increased awareness of the fact that cleaners are involved in waste
management as government employees, which in turn can improve their motivation. A better
working environment also ensures that work is not disrupted due to the absence of cleaner because
of injury or illness, which also helps with the provision of stable services.
In Dhaka, the social status of cleaner is very low, and they face discrimination because of their
occupation. Furthermore, awareness on hygiene and safety of cleaner is extremely poor. They work in
unhygienic environments handling waste directly with their bare hands. In addition, because they
worked without basic knowledge about waste collection, they did not understand points that needed
to be taken into consideration during collection, which often resulted in traffic accidents. Not only do
such accidents and illnesses affect the staffing and dispatch plans of the cleaner, making it difficult to
provide stable and continuous waste management services, but the decline in the quality of waste
management also leads to loss of trust from the residents, who are the service beneficiaries.
To avoid this situation, it is important to take steps to ensure that cleaner can work in a safe and
sanitary environment. In Dhaka City, a safety and health committee was established to raise safety and
health awareness and improve work efficiency, thereby providing a foundation for ensuring the
occupational safety of the cleaner. A manual with diagrams was prepared for cleaner so that even those
who couldn’t read were able to understand the contents, and points to be kept in mind relating their
work were made known to them. In addition, safety gear such as masks and gloves were distributed to
cleaner to protect their health and safety, and information on how to use first aid kits and nearby
hospitals were provided. Furthermore, a workshop was held to share with the cleaner the aims of waste
management in Dhaka and to encourage their awareness that they, as city employees, are involved in
the waste management.
The implementation of the four steps shown in Figure 7-7, i.e., (1) identify problems at the cleaning
work site, (2) analyze the causes of the problems, (3) discuss solutions, and (4) implement the solutions,
was facilitated for the on-site staff, including the cleaning supervisors who manage the cleaners.
Regular implementation of these steps led to monitoring of the cleaning work environment and
implementation of solutions.
1. Identification of problems at cleaning work sites 2. Problem cause analysis

No safety gear used The system is not restocked after consumption
First aid kit empty Cleaners do not understand how to use the
Accidents during cleaning work equipment
Cleaners do not meet at set times, so group

Cleaning work is not being done properly
cleaning work is not possible.
Lack of facilities for hand washing, etc.

Work environment is not sanitary
No regular supply of safety gear, etc.
Cleaners do not keep scheduled work hours Failure to control cleaners by cleaning monitors
3. Discussion of solutions / 4. Implementation of solutions

• Regular supply of safety gear is ensured by city cooperation (local government)
• An executive staffs of city cooperation will be responsible for properly running the Safety and
Sanitation Committee
• Increase the number of cleaners
• Establish sanitation facilities (e.g., hand washing stations) for hand washing at each ward to
maintain health
Source: Based on JICA “Project for Strengthening of solid waste management in Dhaka city (extension) Project
Completion Report” (2013),
Figure 7-7 Major Challenges, Causes and Proposed Solutions identified at Cleanup Work Sites
Photos 7-43 Workshop for Cleaner Photos 7-44 Part of the Cleaner Work
(The Director General of the Waste Manual
Management Department explained the waste (The manual is designed with many figures
management projects that should be aimed at, for both literate and illiterate staff)
etc.)
WBA3 - Promotion of Public Participation

Public participation is an essential part of waste management. One of the most effective ways to
promote public participation is to identify key people, such as community leaders or influential
people in the area and set up a community organization that includes them. Having these community
organizations conduct awareness-raising activities for residents in the same area makes it possible
to create an environment where residents can educate one another.
In Dhaka City, many residents previously did not know the location of the nearest collection point,
and some residents would dump their waste on the street or in vacant lots. As a result, the deterioration
of local sanitation environment became a problem, and the city considered how to involve residents
in waste management and maintain local sanitation environment. The focus was on the existence of
various local residents organizations, such as voluntary mutual self-help groups, religious groups, and
youth clubs. In order to implement community-based participatory waste management, it was
necessary to attract the attention of many residents and encourage them to change their behavior, and
the participation of influential figures in the community was essential. Therefore, a survey was
conducted to identify representatives and influential figures of local residents’ organizations in each
ward and new residents’ organizations for waste management were established, with the identified
individuals as key persons.
Activities were mainly carried out through these community organizations to encourage the
participation and cooperation of local residents in waste management. Activities included a march by
local residents calling for city beautification projects, campaigns to raise awareness of the environment
through plays and musical events, and clean-up campaigns organized together with cleaners. An active
community organization in one of the wards was monitoring conditions of road cleanliness. This
resulted in the cleanup of illegal dumping sites that were discovered over the course of activities in
cooperation with residents. Other community organizations also contributed to activities to beautify
the community through independent voluntary activities.
Photo 7-45 River Cleanup Campaign by Photo 7-46 Residents Cleanup Activities
Residents’ Groups
WBA4 - Improvement of Collection and Transportation

There are a number of different methods used to collect and transport waste, such as those that
utilize dust bins, containers, and compactor trucks. It is important to identify the features of each of
these methods and introduce collection methods that are appropriate for each individual area.
Waste collection and transportation in Dhaka City is classified into primary and secondary
collection. Primary collection is the transportation of waste from the source to the collection point (in
the case of Dhaka City, dustbins and containers). There are primary collectors who carry out this
primary collection on behalf of residents and others, and rickshaw9 vans are used for collection.
Secondary collection is the collection of waste from dustbins and containers in the city and transport
the waste to the final disposal site, which is handled by the government. The aim of WBA4 is to
improve collection and transportation, especially secondary collection.
In Dhaka City, waste collection by open trucks had been the mainstream, but the area around the
dustbin, where waste can be discharged 24 hours a day, was always overflowing with waste, resulting
in unsanitary conditions. Later, the city gradually switched to container collection, but like the dustbins,
the waste can be discharged 24 hours a day, so the unsanitary conditions persisted. In addition,
containers were often placed along the side of the road, and large containers blocked parts of the road,
causing traffic congestion. Therefore, in order to remove large dustbins and containers, Dhaka City
introduced compactor trucks for secondary collection. In parallel, the city introduced fixed- place
collection, in which waste is discharged at a designated time and place. Unlike dustbins and containers,
the time that waste was kept in the city was reduced, contributing to improved sanitation.
Photo 7-47 Waste Collection from Photo 7-48 Waste Collection by Compactor
Dustbins by open Trucks (Fixed-Place Collection at Regular Intervals)
9 A three-wheeled bicycle with a box-shaped cargo box. It is mainly used for primary collection in Dhaka.
After the Project

Although collection operations have improved with the introduction of compactors, the complete
removal of dustbins and containers and the establishment of regular, fixed- place collection have not
been achieved (as of March 2022). As shown in Table 7-18, Dhaka City decided to continue using
dustbins and containers because the collection methods using dustbins and containers provided the
residents with many advantages, such as ease of waste removal, the ability to transport large amounts
of waste at a time, and high collection efficiency. On the other hand, the careless placement of dustbins
and containers along the side of the road and in other areas of the city contributed to the deterioration
of the sanitary environment, so the city started promoting the installation of containers inside of
transfer stations that are enclosed by walls, aiming to shift to waste collection that has less impact on
the surrounding environment.
Photo 7-49 Containers Installed at a Photo 7-50 Workers Collecting Waste around
Transfer Station a Container at a Transfer Station
Table 7-18 Advantages and Disadvantage of Primary Collection Methods

Type Advantages Disadvantage
 Waste can be discharged at any time  Loading takes time and labor (if the
 Efficient because a large amount of collection vehicle is an open truck).
waste can be transported at one  Waste tends to be scattered around
Dust bins and
time dust bins and containers, which
containers
 Easier to maintain compared to degrades the sanitary environment
compactor trucks  Depending on where they are
placed, they become a source of
traffic congestion.
 Suitable for the collection of large  Difficult to transport a large amount
volumes as compactor trucks can of waste at one time compared to
Compactor
compress waste containers
trucks
 Can be used to collect waste in a  Complex structure makes
sanitary manner maintenance difficult
Lessons
To Improve Integrated Waste Management
WBA is an effective method for developing site-driven participatory waste management in the
community. The construction of the ward cleaning office provides administrative work space for the
cleaning supervisors and a place for the cleaner to rest and store their safety gear. It also serves as a
point of contact for residents to casually discuss waste management issues, helping to build a
relationship between the government and residents.
Protecting the occupational safety of cleaner is also important to avoid the sudden absence of staff
due to injury or illness, especially if weakness in occupational safety interferes with collection work.
Collection services can be improved by selecting appropriate collection methods, allowing services to
be provided that not only consider the sanitation of local residents and the surrounding environment,
but also the health and safety of the cleaner who perform collection work.
In order to encourage the participation of residents, who play an essential role in promoting proper
waste management, it is important to identify local representatives and influential people in the
community and establish a resident’s organization led by these individuals. The existence of such an
organization will establish a foundation for local residents to work together and contribute to the
implementation of activities to improve the sanitation environment in the community.
Column: Identification of Constraints and Introduction of Appropriate Technologies

Regional characteristics, even in the same country or city, are completely different. There are a
number of factors that are related to waste management systems, such as topography, religion,
climate, politics, and the presence of residential and commercial facilities. It is therefore difficult
to properly dispose of waste without a waste management system that is suited to these
characteristics. It is necessary to identify these characteristics and consider what type of waste
management system would be best suited. Examples of constraints in the waste management sector
are shown in the table below.
Table 7-19 Examples of Constraints in the Waste Management Sector

No. Constraints Measures
Lack of human resources Conduct trainings, promote public
and capacity participation, implement simple systems
Human and Securing new energy sources (small-scale
1 technological Energy insufficiency power generation facilities, use of
factors biogas/landfill gas, etc.)
Shortage of construction Use locally available materials
materials
Financial Introduce low-cost technologies, mobilize
2 Lack of funds
factors external funds
Unclear division of roles
Organizational
and authority
structure and Establish legal systems and neutral
3 Insufficient development
institutional professional organizations
and maintenance of laws
factors
and regulations
Social systems Community and NGO partnerships for
public participation, environmental
4 Social factors
Culture and customs education, and waste picker
countermeasures
Steep slopes, lowlands,
Innovations in design
highlands, etc.
Arid regions Reuse and recycle water
Introduce flood prevention measures and
Geographical Flood-prone areas
5 technologies
factors
Regions with high and low
Review/revise design conditions
temperatures
Introduce space-saving and advanced
Land shortages
technologies
Presence of wildlife Innovations in design
Presence of pests and
Innovations in design and usage
vermin
Education on causes of infection,
Environmental
6 Presence of endemic dissemination of proper techniques (e.g.,
factors
diseases introduction of incineration, implementation
of soil cover at final disposal sites, etc.)
Insufficient environmental Innovations in equipment/facility layouts
capacity and treatment methods
*: Refers to the allowable capacity of a pollutant that does not cause problems in the natural environment.
Source: Based on Kitawaki Hidetoshi “Appropriate technology in the field of environmental health in developing
countries” (1997), JICA “To Support Capacity Development in the Waste Sector in Developing Countries
Toward Improving the Waste Management Capacity of Society as a Whole” (2005)

Environmental Education ～
A multifaceted approach was taken in Malaysia to promote waste reduction, including the
establishment of a data and information management system, source separation, 3R activities and
environmental education.
Malaysia has a per capita GDP of approximately US$10,000 (in 2020) and is positioned as a
middle-developed country. The waste management level corresponding to the country’s stage of
development set by JICA is shifting from the second stage “reduction of environmental burden and
pollution prevention” to the third stage “establishment of a sound material-cycle society through
the 3Rs”. Therefore, the results of this project have many implications for developing countries
seeking to transition from one stage to another.
Region: Southeast Asia

Capital: Kuala Lumpur
Area: 330,000 km2
Population: 32 million (2017)
Ethnic groups: Malay (approx. 69%), Chinese (approx. 23%),
Indian (approx. 7%)
Languages: Malay (national language), Chinese, Tamil,
English
Religions: Islam (official religion, 61%), Buddhism (20%),
Confucianism/Daoism (1.0%),
Hinduism (6.0%), Christianity (9.0%), other
Source: Ministry of Foreign Affairs Website “Malaysia”
https://www.mofa.go.jp/mofaj/area/malaysia/data.html#section1 (accessed February 8, 2022)
Background
In Malaysia, prior to the transfer of waste management and recycling administration to the central
government (National Solid Waste Management Department) in 2011, waste management was a local
government task and the Ministry of Housing and Local Government (MHLG) was in charge of waste
administration. Since the mid-1980s, Malaysia has experienced an increase in the amount of waste
generated due to urbanization and diversification of lifestyles in line with economic development, as
well as problems with disposal costs and securing landfill sites. Therefore, the National Development
Policy has emphasized the concepts of reduce, reuse, recovery, and recycling, and made
recommendations on the use of environmentally friendly products. In addition, the Ministry of
Housing and Local Governments (MHLG) has been promoting recycling and raising awareness with
citizens on the 3Rs at the national level, while local governments have promoted recycling activities.
However, these efforts were limited to only a few local governments that had an advanced level of
environmental awareness, and recycling rate was only 2% to 5%. In this context, the Malaysian
government requested the support of Japan to implement a project with the aim of developing a clear
concept, strategy and plan for the creation of a sound material-cycle society. The project was
implemented during the period from July 2004 to July 2006. Table 7-20 provides an overview of the
project.
Table 7-20 Overview of Project Implemented in Malaysia

Item Content
Project name The Study on National Waste Minimization in Malaysia
Project period July 2004 - July 2006
Target cities Kuala Lumpur (Government agencies), Penang, Subang Jaya, Miri, Johor
(1) Formulate master plans, action plans, and guidelines to promote waste reduction
(reduce, reuse, recycle) based on the National Strategic Plan for Solid Waste
Project Purpose
Management.
(2) Strengthening of public sector organization for waste reduction
(1) Waste Minimization Master Plan
(Target: Municipal waste across Malaysia, Target year: 2020)
(2) Solid Waste Minimization Action Plan for Federal Government
(Target year: 2010)
(3) Guideline
・Guidelines for the Enhancement of 3Rs Activities in Schools
・Guideline for Formulation of Local Action Plan on Waste Minimization
・Guidelines for Source Separation of Municipal Solid Waste
Output ・3Rs Action Guide
(4) Implementation of the pilot projects
・PP-I：National Recycling Information System
・PP-II：Local Waste Minimization Unit and Source Separation of Municipal
Solid Waste
・PP-III：Waste Minimization Awareness and 3Rs Programme and Activities in
Schools
(5) Solid Waste Minimization Action Plan for Local Authorities in model cities
(Subang Jaya, Kinta Selatan, Miri, Penang)
Source: Based on JICA “The Study on National Waste Minimization in Malaysia Final Report” (2006)
Application of Japan’s experiences and technologies
Development of a Data and Information Management System
Creating a database of information related to waste is effective when used in planning and
promoting efficient waste management. However, it is important to have a structure in place that
can be used to maintain and manage the system, including securing the necessary human resources.
In Japan, the Ministry of the Environment of the central government, requests local governments to
submit data to a centralized database on waste. (for more details on the database created by the
Ministry of the Environment of Japan, refer to “Topic 1-2.1 Management of Waste-Related Data”.)
One of the Japanese technologies that has been applied under the project in Malaysia is for creating
databases on waste. The basic structure of the information management system is shown in Figure 7-
8. A database was created in an information management system using data on the collection of
recyclable materials digitally submitted by local governments and key information related to recycling.
The database contains the following information.
・General information about the local government: address, contact information of officer(s) in
charge, website URL, etc.
・Collection centers, collection container locations, administrators
・Types of recyclable materials collected
・List of related organizations submitted by the local government
This database has made it possible to access and search key data, as well as create tables and graphs
for purposes of research, analysis, and publication.
Creation of a database is important because it leads to the creation of waste flow diagrams and
preparing plans using the data. In order to make effective use of the data, training of personnel
submitting the data and those managing the data is also required. Therefore, on-the-job training was
provided to national and local government officials on how to input and manage data.
Photo 7-51 On-the-job Training on Data Photo 7-52 Example of Data Collection
Management for Municipal Form at a Recycling Center
Employees
公開全国リサイクル
活動報告書
データベース
（エクセル&アクセス）データ編集
ウェブサ
“RNU” ウェブサイト
イト
住宅地方自治省（MHLG）アクセス
住
民
Eメール／
地方自治体関
係
廃棄物減量化者
ユニット（WMU）
データ編集
登録・報告登録・報告
登録・報告
リサイクル業者リサイクルセンターコンセッショネア
有価物有価物有価物

収集データ収集データ収集データ
情報管理システムの基本構造
*: A concessionaire is a private contractor that operates a collection business under a concession contract with the
government.
Minimisation in Malaysia Final Report” (2006)
Figure 7-8 Basic Structure of the Information Management System (IMS)
After the project was completed

On the website10 of the Ministry of Housing and Local Government, data on waste is available to
the public and can be downloaded by anyone in Excel format. The data has been accumulated since
2012, and in addition to basic data such as the amount of waste generated, recycling rate, and disposal
sites, the number of complaints and illegal dumping are also available.
1
10 Ministry of Housing and Local Government Website, data viewing page: https://www.data.gov.my/
It is possible to search for data of waste by searching for "Sisa Pepejal "(Malay for solid waste).
Source Separation
Separation at the source is essential for waste reduction. Collection methods and waste to be
sorted were established according to different conditions - such as single-family houses, apartment
buildings, office buildings, mega-marts, and hotels - and source separation was conducted.
In order to reduce waste, it is necessary to understand waste flows and separate waste at source.
Five target groups were selected in this project to verify source separation under different conditions:
(1) general households (single-family houses), (2) general households (apartment complexes), (3)
office buildings, (4) mega-marts, and (5) hotels. Methods differ for each of the source separation
systems introduced and implemented in the target groups, and were selected according to the local
characteristics of the collection methods and collectors. An overview of source separation systems is
shown in Table 7-21.
Table 7-21 Overview of Source Separation Systems

Target Collection
Target Activity Equipment/facility Collectors
items frequency
One HDPE*
Door-to-door Recycling
General container Once/week
collection companies
households Separated into 2 types
(single- Door-to-door One Plastic bag and NGOs Once biweekly
family collection Paper one box for waste City
houses) Station Plastic paper contracted Once/week
collection Metal Separated into 3 types collectors
General Glass Three Plastic bags
households and collection
Station Recycling
(apartment containers Once/week
collection companies
complex) (4 locations)
Separated into 4 types
Office Reduced paper Three types of
Paper Concessionaire Once/week
buildings consumption collection containers
Establishment of Cabin for purchase
Mega-marts Paper, Concessionaire Daily
purchase center center
plastic,
Separation by Collection
metal, Recycling
Hotels housekeepers containers, bags, Once/week
glass companies
and guests boxes
*: HDPE：High-density polyethylene
Figure 7-9 shows the procedures used in separating waste at source in the project. After targets were
selected, waste was separated at source through the establishment of separation methods and collection
routes for resources, and the organization of workshops and briefings to obtain stakeholders’
understanding and cooperation. Finally, source separation guidelines were developed to promote
separation at source.
Since there was no clear specific law regarding source separation for commercial facilities, the
project team coordinated individually with each business operator targeted for the pilot project, such
as Mega Mart, hotels, etc., in the context of social contribution such as CSR (Corporate Social
Responsibility). For each business operator, it took time to coordinate with the pilot project for
introduction of source separation, because they were required to bear the costs of labor for sorting the
waste, costs to purchase containers for the sorted recyclables, as well as to allocate personnel and
consider a location for placing the containers. It is necessary to enact a law that stipulates the
responsibilities of business operators, similar to Japan’s recycling-related laws.
ターゲットの選定
発生源分別の方法・収集した資源物の回収ルートの構築
コミュニティにおけるコーディネーターの特定
関係者ワークショップ
発生源分別活動の説明会／
備品の配布
アンケート調査
（パイロットプロジェクト実施前）
３Ｒ啓発発生源分別の実施
活動アンケート調査
（パイロットプロジェクト実施中）
アンケート調査
（パイロットプロジェクト実施後）
評価・見直し
発生源分別活動のフロー図
Figure 7-9 Flow Chart of Source Separation Activities
Photo 7-53 Briefing on Source Separation Photo 7-54 Collection of Recyclables from
Activities to Residents Single Family Homes
3R Activities and Environmental Education
Environmental education in schools is effective in promoting the 3Rs, and it is expected that the
students will spread the 3Rs to their families and the society. In Malaysia, a key point was to classify
the schools into levels according to the extent that the 3Rs were being promoted in each school, and
then set and implement 3R activities according to that level. When implementing programs, it was
also important to devise methods for selecting target schools, such as selecting schools with
different levels of 3R activities and those with relatively high levels of awareness through
questionnaires and briefing sessions
Prior to the start of activities, guidelines were developed for promoting the 3Rs in schools in
collaboration with the ministries in charge of waste management, Ministry of Education, local
governments, and school teachers. Based on these guidelines the schools were classified into levels
according to the extent existing waste reduction programs were already being implemented. The
guidelines also indicated the need to incorporate PDCA (Plan, Do, Check, Act) cycles to review and
improve 3R activities that have been planned and implemented. For example, the “Check” component
of PDCA included specific instructions for use, such as measuring the amount of paper, PET bottles,
cans, and other waste generated at the school each day and evaluating the numerical amount of weight
reduction achieved by recycling. It was important to initially provide appropriate guidance to school
teachers so that guidelines could be properly implemented in educational settings, and therefore 3R
workshops were also organized for teaching staff. An overview of these guidelines is shown in Table
7-22.
Table 7-22 Overview of Guidelines Promoting 3R Activities in Schools

(1) Streamlining 3R activities in schools
(2) Promoting participatory approach
Purpose
(3) Evaluating 3R activities
(4) Ensuring the sustainability of 3R programs in schools
Level 1: Schools with no waste reduction programs in place
Classification
Level 2: Schools with basic waste reduction programs in place
of schools
Level 3: Schools with active waste reduction programs in place
Chapter 1: What are the 3Rs?
Chapter 2: Why do we need the 3Rs?
Chapter 3: The PLAN-DO-CHECK-ACT approach
Chapter 4: Where should we start?
Chapter 5: Step 1: Planning (PLAN)
Contents
Chapter 6: Step 2: Implementing (DO)
Chapter 7: Step 3: Monitoring & measuring (CHECK)
Chapter 8: Step 4: Reviewing & improving (ACT)
Chapter 9: 3R PDCS for beginners (Level 1)
Attachments
Next, 3R programs and 3R award programs were set up in the target cities, and each program was
implemented after schools were selected in each city.
・Miri City: Nine schools were selected based on questionnaires and information sessions to confirm
their intent to participate. A 3R award program was organized, with the winning school
identification at the award ceremony where each school gave a presentation on their activities.
・Johor State: A total of six elementary and junior high schools having different levels of 3R activities
were selected by the state board of education to conduct activities in classrooms, staff rooms,
cafeterias and students’ homes, as shown in Table 7-23.
Table 7-23 Overview of the 3R Program in Schools in Johor State

Level Level 1 Level 2 Level 3
・Improve level of awareness of the 3Rs among students and teachers
・Reduce waste generated at schools
Purpose ・Introduce the concept of ・ Reduce the number of ・Impart a message on the
separating waste at plastic bags in cafeterias 3Rs to families through
source students
Targets Classrooms, staff rooms Cafeterias Students’ homes
・Establish 3R ・Establish 3R ・Establish 3R
organizations organizations organizations
・Conduct waste surveys ・Conduct waste surveys ・Conduct waste surveys
in classrooms in cafeterias of households
・Set up collection points ・Replace plastic bags
Activities
for recyclables in each with reusable cups for
classroom beverages
・Encourage teachers and
students to bring their
own cups to school
The use of an inter-school competition to provide incentives to students in the 3R award program
in Miri City was expected to increase the students’ motivation to engage in 3R activities and build a
sense of unity in the entire school as well. In addition, both schools in Johor and the families of students
were included in 3R activities, so that activities could be extended to the families of students. Devising
places and methods for implementing the 3Rs resulted in even more effective activities. Environmental
education at schools has resulted in increased awareness of recycling and contributed to the spread of
buy-back centers, which are facilities for purchasing recyclables.
In the project, the collected recyclables were handed over to a contractor, and efforts were made to
reuse it at schools - such as making chairs from PET bottles, craft activities using unwanted materials,
and making statues from aluminum cans. Resource waste obtained through recycling becomes
meaningful as a resource when there are recipients and it is used effectively and appropriately.
Therefore, in order to carry out 3R activities, it is a prerequisite that there is a place for effective use
of separated recyclables.
Photos 7-55 Awareness Survey on 3Rs in Photos 7-56 3R Workshop for Junior High
Schools School Students
Photos 7-57 3R Workshop for Government Photos 7-58 Guidance on Sorting by City
Officials Staff
Photos 7-59 3R Workshop for School Photos 7-60 Seminar on Waste Reduction
Teachers
Lessons
Training and Securing Competent and Appropriate Human Resources
Data management, updates to networks, and monitoring are essential aspects of waste management
operations. Therefore, in order to maintain data management systems, it is necessary to educate not
only the central ministries and agencies that manage the databases, but also the local government
administrators who collect and submit data, and to appoint competent, appropriate, and trained
personnel to maintain the systems.
Coordination between Stakeholders on Source Separation
It took time to coordinate with the parties concerned, as they were required to bear the costs of labor
and sorting containers for the introduction of source separation, as well as to allocate personnel and
secure an installation site. Source separation programs for commercial facilities, such as supermarkets
and hotels, faced various problems such as informing customers and gaining their understanding of
cost burdens, etc. in terms of coordinating and negotiating with stakeholders. These problems lay
beyond the control of local governments and the project team, and caused significant delays in the
implementation of the program. For separation at source, it is necessary to coordinate with households
and commercial facilities separately, and pay particular attention to the interests of stakeholders of
commercial facilities.
Strategic Implementation of Educational and Dissemination Programs through Inter-

agency Collaboration
In order to introduce sustainable waste reduction practices, it is necessary to teach the philosophy
of the 3Rs to the younger generation through practical school education and extracurricular activities.
Collaborative activities between ministries responsible for waste management (in this case, the
Ministry of Housing and Local Government) and the Ministry of Education are essential for the
introduction of sustainable and strategic educational and awareness programs suitable to students. The
Ministry of Education and teachers were involved from the initial stage in developing guidelines to
promote 3R activities in schools, which made the guidelines even more applicable in educational
settings. It is important for multiple ministries and agencies to collaborate in order to efficiently
implement educational and awareness programs.
Column: Implementation of the E-Waste Management System in Malaysia

E-waste refers to waste from electrical and electronic equipment, which contains hazardous
substances such as lead and mercury, as well as rare metals. This makes recovery of these wastes
important from the perspective of the sustainable use of resources.
Since 2019, E-waste in Malaysia has been managed under ministries responsible for collection,
treatment and disposal under laws and regulations on hazardous waste in Malaysia for industrial
systems (manufacturing and assembly of electrical and electronic equipment). However, the
disposal of electrical and electronic equipment waste from households and businesses is in a legal
grey zone, as specific roles and responsibilities for its management have not been legally clarified
and systems for its implementation have not been specified within the government. Therefore, most
electrical and electronic equipment wastes (air conditioners, PCs, and cell phones that include rare
metals) that contain a significant amount of recyclables are collected by resource recovery and
recycling companies, including those in the informal sector, either free of charge or for a fee,
disassembled or dismantled using simple processes, and then recyclables are recovered and sold.
However, it is currently impossible to adequately control the health and safety hazards caused by
inappropriate treatment and disposal and the pollution caused by discharging hazardous substances
into the environment.
In response, the ministry has promoted the development of legislation for “E-waste management
regulations” and has specified the six items described in Table 7-24, in “electrical and electronic
equipment waste” disposed by households and business establishments as “designated hazardous
waste”, with an aim to establish the treatment flow shown in Figure 7-10. In connection with this,
ministries and agencies are implementing the individual/station collection of E-waste and
establishing/operating collection centers, while the private sector is collecting and purchasing such
waste.
To formalize informal collection, it is desirable to visualize resource and financial flows. To this
end, it is first important to understand the volume of household appliances sold (imported and
produced domestically), which is the basic information for estimating the volume of E-Waste
generated.
It was also estimated that in Malaysia, much of the E-Waste is collected on delivery of new
appliances when they are replaced, but much of the collected E-Waste is passed on by delivery
drivers to informal recyclers such as junk shops, etc. In order to eliminate the improper treatment
of E-Waste, it is necessary to establish a system whereby E-Waste flows from generators through
authorized channels (Authorized Collection Centers/ Collectors, Authorized Retailers) to formal
treatment, as shown in Figure 7-10.
By clarifying the resale price to informal recyclers, price incentives can be considered to collect
and process E-Waste through regular channels.
In other developing countries, laws are expected to be developed in the future from the
perspective of environmental protection and resource recycling, which will cause shifting from
informal to formal collection. It should be noted that employment opportunities will be lost in the
informal sector, and that it will be necessary to obtain the cooperation of local residents in the
separation and collection of waste.
Table 7-24 Waste Designated as Hazardous as Defined by E-Waste Management Regulations

1 TVs (including cathode-ray tube TVs and flat TVs)
2 Refrigerators
3 Washing machines (including clothes dryers)
4 Air conditioners (including integrated and separated types)
5 PCs (including desktops and laptops)
6 Cell phones (including feature phones, smartphones, and tablet PCs)
Source: Based on JICA “The Project for Implementation of Scheduled E-waste Management System in Malaysia
Final Report” (2019)
Source: JICA “The Project for Implementation of Scheduled E-waste Management System in Malaysia Final
Report” (2019)
Figure 7-10 E-Waste Recycling and Treatment Flow Based on the
“E-Waste Management Regulation”
Socialist Republic of Vietnam ～ 3R Activities Involving Multiple Stakeholders～
Vietnam is taking a step forward from the realization of proper waste management to the
establishment of a sound material-cycle society, and the project described in this section has
launched 3R initiatives, including the introduction and dissemination of source separation. The
efforts related to 3R activities involving various stakeholders, centering on local residents are
introduced hereafter.
Region: Southeast Asia

Capital: Hanoi
Area: 329,241 km2
Ethnic groups: Kinh (Vietnamese people) approx. 86%,
53 other ethnic minorities
Language: Vietnamese
Religions: Buddhism, Catholicism, Caodaism, other
Source: Ministry of Foreign Affairs Website “Malaysia”
https://www.mofa.go.jp/mofaj/area/vietnam/data.html#section1 (accessed February 8, 2022)
Background
Environmental pollution in Hanoi, the capital of Vietnam, was worsening due to un-collected solid
waste scattered on public roads and illegal waste dumping in lakes. Under the nation’s environmental
strategy to recycle 30% of waste by 2020, the government had been trying to promote a recycling
movement for solid waste, but the collection of recyclables remained mainly limited to informal waste
collectors.
The 3R Initiative, which combines the Reduce, Reuse
and Recycle of waste, was positioned as a key component
in the country’s environmental strategy. The Ministry of
Natural Resources and Environment was established in
2002 to work with local governments on environmental
measures related to water and air quality and solid waste
management. However, due to a lack of technical,
managerial and administrative capacities, the Vietnamese
government requested technical cooperation from Japan to
Photo 7-61 Collection Containers
build up these capacities. As a result, Japan supported this
Overflowing with Waste
project which was implemented from November 2006 to
November 2009. Table 7-25 provides an overview of the project.
Table 7-25 Overview of the Project Implemented in Vietnam

Item Content
Project name Implementation support for 3R INITIATIVE of Hanoi City for Cyclical Society
Project period November 2006 - November 2009
Hanoi City (Approx. 3 million people)
Model districts
Target cities Hoan Liem block (Approx. 8,000 people),
(Population) Hai Ba Trung block (Approx. 11,000 people),
Ba Dinh block (Approx. 25,000 people),
Dong Da block (Approx. 29,000 people)
(1) Establish a sound material-cycle society in Hanoi (long-term goal)
Overall goal (2) Harmonized 3R initiatives based on sorted collection will be implemented in
Hanoi (mid-term goal).
To prepare for a harmonized 3R approach based on separate collection throughout
Project purpose
Hanoi City.
(1) Through the model project of separate collection and composting of food waste,
the collection situation in the model districts will be improved.
(2) Awareness of residents in the model districts will be improved through 3R
environmental education and PR activities based on the “Mottainai Spirit”
Output
(3) The food waste sorting and collection program, environmental education
program, and 3R concept will be disseminated.
(4) Based on the food waste sorting and collection program, a strategy paper and
action plan to improve the municipal waste collection system will be developed.
Source: Based on JICA “Project for Implementation Support for 3R INITIATIVE in Hanoi City to Contribute to the
Public Participation Initiatives Involving Various Stakeholders
3R projects can be effectively promoted through the independent activities of the general public,
such as students and community groups. In addition, raising the public awareness on the 3R
activities through the media will contribute to successfully expanding these activities.
Hanoi’s 3R project, with its spirit of “mottainai”, which involved a diverse range of stakeholders,
including residents, local communities, government, media, students, experts, the private sector, and
NGOs, attempted to position local residents at the center of the project and turn the focus on them.
This was an attempt to apply Japan’s experience and knowledge of public participation as a key factor
in the sustainable implementation of waste management and the 3Rs.
Key Points on Public Participation:

1. Multi-faceted initiatives to raise awareness and encourage changes in the behaviors of
residents
2. Involvement of various stakeholders with a focus on residents
Over the course of the project, 85 organizations and individuals, including representatives from
government agencies, universities, the media, private companies, and model districts, came together
to form the “3R Stars”, and actively adopted initiatives focused on the 3R Stars. The “3R Stars Meeting”
organized by the members of the 3R Stars was held six times during the project period, and involved
650 participants from 85 organizations. The 3R Stars Meeting, along with the drafting of the “Action
Plan for Expanding Sorted Collection throughout Hanoi” and “Strategy Paper for Promoting the 3R
Initiative” provided the basis for discussions on revising the waste ordinances in Hanoi in order to
secure funding for 3R activities.
Table 7-26 Groups that Engaged in the 3R Activities and their Contribution to these Activities
Group Members Activities
Government organizations,
The 3R Stars Meeting was held six times during
universities, the media,
the project period, with 650 participants from 85
3R Stars private companies, and
organizations. It served as a basis for discussing
representatives of residents
revisions to the Hanoi Waste Ordinance.
in model districts
More than 50 activities were carried out in
cooperation with the project. These activities
included instruction on sorting waste on the
High school and university
3R Volunteers Club streets and in parks, participation in
students
environmental events and other 3R publicity
activities, and extracurricular 3R classes at
elementary schools.
Conducted more than 20 3R promotional events.
The groups focused on 3R awareness-raising
Residents groups in model
3R Supporters activities, such as providing guidance on sorting
districts
in the community and preparing and distributing
leaflets on sorting methods.
Source: Based on JICA “Project for Implementation Support for 3R INITIATIVE in Hanoi City to Contribute to the
In addition, a team of about 10 JICA Overseas Cooperation Volunteers (JOCV) were sent from
JICA’s head office to work on the project, which attracted media attention and gradually increased
momentum for expanding the 3Rs. The project also received local support from two prominent
individuals in Japan, Dr. Kitano Masaru, a Chemist and Ms. Kato Tokiko, a singer. In addition, the
3Rs gradually gained traction in Hanoi with the production of TV commercials and 3R songs as part
of the PR activities which were covered in the local media.
These activities motivated the mayor of Hanoi to issue the Hanoi 3R Stars Declaration, which set
targets for actions to be taken by the residents related to 3Rs. This is also believed to have contributed
to changes in the behaviors of residents in relation to the introduction of source separation.
Targets for 10 Actions Related to 3R in the “Hanoi 3R Stars Declaration”
1. Contribution to building a recycling-based society

2. Promotion of 3Rs
3. Promotion of the Mottainai spirit
4. Support for introduction and expansion of waste separation at source
5. Promotion of eco-bag use
6. Terminate littering in public places such as streets
7. Support raising awareness on 3R
8. Support building partnerships to implement 3R activities between citizens, government, and
the private sector
9. Supporting activities of 3R partners
10. Promotion of compost use in the agricultural sector
Photo 7-62 3R Stars Meeting Photo 7-63 3R Meeting with Residents
Photo 7-64 3R Event Photo 7-65 JICA Booth at a 3R Event
Photo 7-66 Mottainai Fair Held by the 3R Photo 7-67 Publicity Activities on the
Volunteers Club (annual event） Street by 3R Volunteers
Photo 7-68 Waste Separation Explanation Photo 7-69 Environmental Education at

and Discussion in the Women’s Association the Elementary School
After the Project

In 2020, the Law on Environmental Protection was amended to require residents to basically sort
their waste into three categories: recyclables, food waste, and other waste. The Law stipulates that
residents shall bear the cost of collection, transportation, and disposal of unsorted waste and other
waste that cannot be reused or recycled, and also stipulates the collection of fees based on a pay-as-
you-go system. The law also stipulates the reduction, reuse, and recycling of plastic waste for the
purpose of preventing and controlling marine plastic pollution.
The Hanoi Urban Environment Company (Hanoi URENCO), in cooperation with its sponsors,
launched the “Trash for Gift” program in 2020 to promote recycling and raise residents’ awareness on
waste separation. Exchange stations have been set up in various locations in the city to exchange
recyclables brought by citizens for “gifts” in the form of daily necessities every Saturday morning (the
program was temporarily suspended due to the Covid-19, but resumed in November 2021).
Photo 7-70 Exchange Station of Trash for Photo 7-71 Daily Goods Exchanged as
Gift Program Gifts for Trash
Separate Collection and Composting
Cooperation from residents is an essential aspect of source separation and separate collection of
waste. Of no less importance is to secure recipients for the separated waste before implementing
separate collection.
The same holds true for compost; it is necessary to confirm that there are buyers for compost or
develop the market before the compost can be commercialized.
As a result of the model project implemented in the four districts (total of four districts: about 18,300
households, population of 72,820) there have been improvements in the separate collection of the
recyclables, collection of the food waste, as well as composting.
・The introduction of fixed-time fixed-place (FTFP) collection using containers and collection vehicles
(trucks and hand-pushed waste carts) for use on narrow roads has made it possible to collect
separated waste regularly even in densely populated residential areas. This has improved the rate of
separate collection of food waste. With the cooperation of residents, the average weight reduction
rate of before and after the model project ranged from 31.2% to 45% (as of August 2009).
・The quality of compost improved with upgrades to the composting process. A better understanding
of the demand for compost was formed and then market expansion was attempted.
Key points on the introduction of separate collection:

1. Adequate advance preparation (including explanations to residents) and development of
monitoring systems after implementation
2. Changes in behavior of residents and establishment of checking mechanisms
3. Consistency in separating waste items and collection systems
4. Introduction of fixed-time fixed-place (FTFP) collection and collection days
5. Securing recipients for separated recyclables (determine items to be separated)
6. Building momentum throughout the society on source separation (use of media, etc.)
Photo 7-72 Containers for Designated Photo 7-73 Containers for Designated
Wastes at Collection Points Wastes in the Park
Key points on introducing composting:

1. Ensure compost quality by increasing the proportion of organic waste brought to
facilities through separation at source or identification of suitable sources (e.g., market
waste, etc.)
2. Shorten periods for maturing compost from 8 weeks (with an air blower fan) to 5 weeks
by using the “turn-over” method with a wheel loader to mix fermenting compost and
feed in air.
3. Secure demand for compost products through market research and development
4. Ease regulations on the quality of compost products and their use
Photo 7-74 Composting Facility Photo 7-75 Production of Compost

After the Project

 Separate collection
The separate collection that was introduced in the four districts of the city during the Hanoi 3R
Project has almost ceased to be implemented since the project was completed. This may be due to the
fact that collection in narrow alleys and transportation from waste collection points to collection
vehicles were burdensome for collection workers, and that only one type of container could be installed.
In order to implement separate collection, costs for collection containers, containers for separated
waste items, additional collection vehicles, public awareness, and education and training of collection
workers needed to be covered, but there was no budget allocated for these costs.
 Composting
After the project was completed, the amount of food waste brought to the composting plant from
the model districts decreased (3,245 tons in 2012 compared to a total of 4,744 tons in 2008). Although
a system to separate food waste had been introduced, the main reason for this decrease in food waste
was that the inedible parts of fish, meat, and vegetables were removed in fresh markets before they
were sold, which resulted in decreasing the amount of food waste generated by households.
In addition, management conditions at composting plants were becoming more difficult. The
primary reasons were that the income from sales (500 VND/kg) was much lower than the production
cost of compost (1,800 to 2,000 VND 11 /kg), farmers preferred chemical fertilizers that provided
immediate effects, and the demand for compost came from a location far from Hanoi where the
manufacturing plant was located. All these negative factors made it difficult to expand the compost
market, and an understanding of the soil improvement effects of compost could not be fully realized.
During the Hanoi 3R project, the project team conducted surveys of compost demand and fertilizer
1
11 VND: Vietnam Dongs, Currency Units in Vietnam (1USD ≒ 22,700VND January 2022)
effectiveness among customers and farmers, and then coordinated with the Ministry of Agriculture to
promote acceptance of compost products among farmers, expand the market, and promote sales, but
these efforts were mostly discontinued after the project was completed. As a result, the composting
plant completed in 2002 was closed at the end of 2014.
Thus, it is not simply a matter of securing a sustainable source of compost. When introducing sorted
collection, it is necessary to check in depth whether a sustainable source to receive sorted items
including compost can be secured.
Lessons
Mobilize and Promote Public Participation of a Wide Range of Stakeholders to

Effectively Implement the 3Rs Initiative
The creation of the 3R volunteer program was an opportunity for young people to become interested
in the 3Rs and environmental issues and led to independent activities involving residents. In addition,
a wide range of stakeholders were invited to take part in discussions at the 3Rs Stars Meeting and to
propose their ideas to policy-making organizations.
These activities encouraged public participation and increased the effectiveness and impacts of the
project. The greater the interest and louder the voices of the residents, the harder it is for policymakers
to ignore them. In today’s world, it is necessary to find ways to engage the public that are appropriate
to local conditions, such as the use of social networks.
Need for Innovation when Introducing Source Separation
Public participation and behavioral changes are essential when introducing source separation. Even
if rules for source separation are established, they will generally not be followed or sustained.
Furthermore, consistency between source separation and collection systems and securing a place to
pick up separated waste are also essential conditions. In order to introduce source separation and
establish relating rules, the introduction of incentives for residents and pick-up locations is considered
a challenge, but with the city’s budget constraints, no solution has been found.
As with Hanoi’s 3R initiatives, one solution may be to motivate residents by involving all
stakeholders and guide the momentum of society as a whole in the same direction. However, since it
is difficult to ensure sustainability only with the participation of local residents, synergistic effects
from multifaceted efforts, such as technological and operational improvements at recycling facilities
and the widespread use of reusable containers, are desired. In addition, in a large city such as Hanoi,
the challenges of rapid urban expansion continue, and in the waste agenda as well, there is a need to
review collection methods along with the development of transfer stations and incineration facilities,
and to position source separation and 3Rs in consideration of this background.
Column: Waste Wise Cities Tool (WaCT)

The use of quantitative data to understand the status of municipal solid waste (hereafter referred
to as MSW) management and the effectiveness and improvement of projects introduced in this
Topic is an important lesson learned.
Furthermore, the use of data management tools such as the Waste Wise Cities Tool (WaCT) are
useful for objectively evaluating the current status and issues in one’s own country and city through
comparison with other countries and cities, and for measuring the degree of achievement of
common global goals, such as the Sustainable Development Goals (SDGs).
(1) What is WaCT?

In 2021, UN-Habitat (United Nations Human Settlements Programme) launched the Waste Wise
Cities Tool (WaCT), which is a tool to collect information on municipal waste management,
especially in low- and middle-income countries.
The tool helps to collect important information, through primary data collection and set
parameters based on indicator 11.6.1 of Goal 11 of the SDGs. The statement of Goal 11 is to “Make
cities and human settlements inclusive, safe, resilient and sustainable”, and Indicator 11.6.1 is
defined as the “Proportion of municipal solid waste collected and managed in controlled facilities
out of total municipal waste generated, by cities”.
By using this tool, it is possible to collect unified data from each country and easily compare the
current situation among the countries. It will also enable the collection of information for the
development of waste and resource management strategies and action plans, as well as for funding
and stakeholder engagement.
(2) Expected Effects through WaCT

 Collect data on MSW generated, collected, and managed in controlled facilities, and
establish a baseline;
 Identify the MSW recovery chain and its related factors, as well as check the
environmental control level of waste management facilities;
 Measure plastic leakage from MSW management systems;
 Develop a Waste Flow Diagram (WFD) - waste flows and plastic leakage maps;
 Identify infrastructure gaps in MSW management system;
 Engage all waste chain stakeholders, from waste pickers, to recycling and collection
companies, and in a participatory approach identify key intervention areas.
(3) How to Collect Data

WaCT consists of 7 steps as shown in Table 7-27. Through implementation of each step, the
following items can be covered: (1) Preparation, (2) Discharge, Collection and Transportation, (3)
Intermediate Treatment, (4) Final Disposal, and (5) Other Important Items (food waste, recycling,
plastics leakage, greenhouse gas emissions and air pollution, etc.). The Guideline of Waste Wise
Cities Tool includes a summary of the work to be implemented in each step and considerations to
kept in mind.
The collected data can be compiled and analyzed in a spreadsheet with macro functions called
“WaCT Data Collection Tool”. After the application is approved by UN-Habitat, the “WaCT Data
Collection Tool” can be used.
Table 7-27 Steps of WaCT
No. Indicator
1. Preparation
1.1 Gain political and senior management endorsement and support
1.2 Establish a working team
1.3 Prepare tools and equipment
1.4 Identify key stakeholders and partnerships
1.5 Prepare workflow and budget
1.6 Obtain necessary data from statistics office
2. Household MSW Generation and Composition
2.1 Preparation
2.2 Waste sampling and waste composition analysis
2.3 Calculate per capita household solid waste generation
3. Non-Household MSW Generation
3.1 Using the proxy for non-household MSW
3.2 Identify premises to be interviewed
3.3 Interview selected premises and each contracted collection company
3.4 Obtain waste data from public spaces
3.5 Calculate MSW generated by non-household sources
4. MSW Received by Recovery Facilities and Control Level of Recovery Facilities
4.1 Identify recovery facilities
4.2 Arrange visits and interviews with identified recovery facilities
4.3 Evaluate the level of control of recovery facilities
4.4 Compile the collected information
5. MSW Received by Disposal Facilities and Control Level of Disposal Facilities
5.1 Identify disposal facilities
5.2 Arrange visits and interviews with identified disposal facilities
5.3 Evaluate the level of control of disposal facilities
5.4 Compile the collected information
6. Waste Composition at Disposal Facilities
6.1 Preparation
6.2 Waste sampling and composition analysis
7. Calculating Food Waste, Recycling, Plastic Leakage, Greenhouse Gas Emissions and
Air Pollution
7.1 Food waste
7.2 Recycling
7.3 City Plastic Leakage
7.4 Greenhouse Gas Emissions and Air Pollution
Source: Based on UN-Habitat “Waste Wise Cities Tool -Step by Step Guide to Assess a City’s Municipal Solid
Waste Management Performance through SDG indicator 11.6.1 Monitoring” (2021）
(4) References
 Website of Waste Wise Cities
(https://unhabitat.org/waste-wise-cities)
 Guideline for Waste Wise Cities Tool (English/French)
(https://unhabitat.org/wwc-tool)
 User Manual for Waste Wise Cities Tool (English)
(https://rwm.global/docs/WaCT-DCA-Manual.pdf)
 Introduction to the Waste Wise Cities Tool (English)
(https://www.youtube.com/watch?v=_SnL6Bdxn70)
Appendices
Table of Contents
Chronological Table ........................................................................................................................ A-1
Waste Management and Public Cleansing Law ................................................................................A-2
Basic Environment Law ..................................................................................................................A-39
The Fifth Basic Environment Plan ..................................................................................................A-48
List of Terminology ........................................................................................................................A-93
List of References ...........................................................................................................................A-97
Chronological Table
Waste Generation GDP
Events concerning Waste Management
(million tons) per capita
Year Transition Social Situation
Legal Framework Technology Municipal Industrial (thousand
Waste Waste JPY)
1950
1954 to 1973 High Economic Growth Period

1954 Public Cleansing Act
6
1960 9 178
1963 Act on Emergency Measures concerning the Development of Living Environment Facilities
1964 Tokyo Olympic Games

16 343
1967 Basic Law for Environmental Pollution Control
1970 1970 Waste Management Act ca.1970 Pollution became tangible 28 722
1970 Osaka Expo
1971 War against Waste in Tokyo
1973 Oil Crisis ("Oil Shock")
1975 Okinawa Expo 42 236 1,361

1976 Amendment of Waste Management Act
1979 Waste Treatment Facility Structure 1979 Second Oil Crisis

Guideline
1979 Final Disposal Site Structural Guidelines 1979 Tokyo Summit
1980 44 292 2,123
1981 Wide-area Coastal Environment Development Center Act
1983 Septic Tank Law
1985 Tsukuba Expo 42 312 2,731
1986 Tokyo Summit

Pollution Problems and Living Environment Protection
1986 to 1991 Bubble Economy Period
1990 1990 Osaka Expo 50 395 3,655

Public Health improvement
1991 Amendment of Waste Management Act 1991 Guidelines for the Promotion of Planned Disposal of Fishery Waste
1991 Law for the Promotion of Effective Utilization of Resources
1992 Act to Promote the Development of Specified Facilities for the Disposal of Industrial Waste
1992 Japanese Basel Act
1993 Basic Environment Law 1993 Tokyo Summit

1994 The First Basic Environmental Plan
1995 Containers and Packaging Recycling Law 1995 Great Hanshin Eearthquake 52 394 4,113
Establishment of a Sound Material-Cycle Society
1997 Act on Special Measures Concerning 1997 Guidelines for Prevention of Dioxin 1997 The 3rd Session of the Conference of
the Promotion of New Energy Usage Emissions from Waste Management the Parties to the United Nations
1997 Amendment of Waste Management Act Framework Convention on Climate Change;
Kyoto Conference
1998 Home Appliance Recycling Law 1998 Waste Treatment Facility Performance 1998 Nagano Olympic Games
Guidelines
1999 Law Concerning Special Measures against 1999 Basic Guidelines for the Promotion of Measures against Dioxins
Dioxins
1999 Act on Promotion of Private Finance Initiative
2000 2000 Basic Act for Establishing a Sound Material- 2000 Final Disposal Site Performance Guideline 2000 Kyushu/Okinawa Summit 55 406 4,165
Cycle Society 2000 The Second Basic Environmental Plan
2000 Construction Material Recycling Law
2000 Food Waste Recycling Law
2000 Act on Promoting Green Procurement
2000 Amendment of Waste Management Act
2001 Act on Special Measures concerning Promotion of Proper Treatment of PCB Wastes 2001 Reorganization of Central Ministries
2002 End-of-Life Vehicle Recycling Law
2003 Act on Special Measures concerning Removal of Environmental Problems Caused by Specified Industrial Wastes
2003 to 06 Amendment of Waste Management Act
2005 Manual for Calculation of Remaining 2005 Aichi Expo 53 422 4,114
Capacity of Final Disposal Sites
2006 The Third Basic Environmental Plan
2006 Gudline for Living Environment Impact Assessment of Waste Management Facilities
2009 Act on Promoting Treatment of Marine Debris 2009 Eco Point System
2010 2010 Amendment of Waste Management Act 45 386 3,901
2011 Act on Special Measures Concerning Procurement of Electricity from Renewable 2011 The Great East Japan Earthquake
Energy Sources by Electricity Utilities
2012 Small Home Appliance Recycling Act 2012 The Forth Basic Environmental Plan
2014 Guideline for Disaster Waste Management

44 391 4,193
2015/17 Amendment of Waste Management Act
2016 Guideline for Formulation of Basic Waste Treatment Plan

2017 Mercury Waste Guidelines
2018 The Fifth Basic Environmental Plan
2018 Manual for Treatment of Infectious Waste
2020 2020 Amendment of Waste Management Act 2020 Guidelines for Prevention of COVID-19 Infection related to Waste
2021 Tokyo Olympic Games
2022 Plastic Resource Recycling Promotion Act
Source:
Waste Generation Amount: History and Current State of Waste Management in Japan (Minitry of Environment)
GDP per capita: Annual Report on the Japanese Economy and Public Finance 2020 (Cabinet Office)
A-1
WASTE MANAGEMENT AND PUBLIC CLEANSING LAW
（Law No. 137 of 1970）
Amended by Law No. 71 of 1974, No. 47 and No. 68 of 1976, No. 43 of 1983, No. 87 of 1987,
No. 95 of 1991,No. 105 of 1992, No. 89 and No. 92 of 1993, No. 84 of 1994, No. 91 of 1995,
No. 85 of 1997, No.54 of 1998, No.64, No.87, No.151 and No.160 of 1999,No.91
and No.105 of 2000, No.66 of 2001.
https://www.env.go.jp/en/laws/recycle/01.pdf
Original Japanese
ChapterⅡ Municipal Solid Waste
Section 1 Municipal Solid Waste Management
Section 2 Municipal Solid Waste Management Service
Section 3 Municipal Solid Waste Disposal Facility
Section 4 Special Provision on Recycling of Municipal solid waste
Section 5 Export of Municipal solid waste
ChapterⅢ Industrial Waste
Section 1 Industrial Waste Management
Section 2 Information Processing Center and Industrial Waste Appropriate Management Promotion Center
Subsection 1 Information Processing Center
Subsection 2 Industrial Waste Appropriate Management Promotion Center
Section 3 Industrial Waste Management Service
Section 4 Specially Controlled Industrial Waste Management Service
Section 5 Industrial Waste Disposal Facility
Section 6 Special Provisions Pertaining to Recycling of Industrial Waste
Section 7 Export and Import of Industrial Waste
ChapterIII-II Waste Management Center
ChapterIV Miscellaneous Regulations
ChapterⅤ Penal Regulations
Supplementary Provision
(Purpose)
Article 1
This law is enacted for the purpose of preserving the living environment and improving public health through the restriction of
waste discharge, appropriate sorting, storage, collection, transport, recycling, disposal, or the like of waste and conservation of a
clean living environment.
(Definitions)
Article 2
1 In this Law, "waste" refers to refuse, bulky refuse, ashes, sludge, excreta, waste oil, waste acid and alkali, carcasses and other
filthy and unnecessary matter, which are in solid or liquid state (excluding radioactive waste and waste polluted by
radioactivity).
2 In this Law, "municipal solid waste" refers to waste other than industrial waste.
3 In this Law, "specially controlled municipal solid waste" refer to those municipal solid waste specified by a Cabinet Order as
wastes which are explosive, toxic, infectious or of a nature otherwise harmful to human health or the living environment.
4 In this Law, "industrial waste" refer to the waste categories defined below:
1) Ashes, sludge, waste oil, waste acid, waste alkali, waste plastics and others specified by a Cabinet Order among all the wastes
left as a result of business activity.
2) Imported waste (excluding the kinds of waste defined in the preceding Item, those wastes attributable to navigation of a ship
or aircraft (confined to the items specified by a Cabinet Order), which are defined as "navigational waste" in Paragraph1 of
Article 15-4-2, and waste personally carried into Japan by persons entering it (confined to the items specified by a Cabinet
Order), which are defined as "carried-in waste" also in Paragraph 1 of Article 15-4-2).
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5 In this Law, "specially controlled industrial waste" refer to those industrial wastes specified by a Cabinet Order as wastes which
are explosive, toxic, infectious or of a nature otherwise harmful to human health and the living environment.
6 In this Law, the term “electronic information processing systems” refer to those electronic information processing systems
which have the electronic computer (including the input and output devices; same in the following) pertaining to the use of the
Information Processing Center specified in Paragraph 1of Article 13,connected to the input and output devices of the
entrepreneurs specified in Paragraph 1of Article 12,commissioned transporters specified in Paragraph 2 of the same Article and
commissioned disposers specified in Paragraph 3 of the same Article by way of telecommunication lines.
(Principle of Management within Japan and Restriction of Imports)

Article 2-2
1 Waste generated within Japan shall be appropriately managed of within Japan whenever it is possible.
2 Imports shall be restricted so as to prevent them from hindering appropriate management of waste within Japan.
(Responsibilities of Citizens)
Article 2-3
1 The citizens shall cooperate with the central government and local governments in their activities for waste reduction by
restricting their waste discharge, using recycled Articles or otherwise contributing toward the recycling and re-use of waste,
sorting waste prior to discharge, managing of waste by themselves as far as possible and so on.
(Responsibilities of Businesses)
Article 3
1 The businesses shall appropriately manage of, the waste left as a result of their business activities.
2 The businesses must endeavor to reduce the amount of waste by recycling or re-use of waste. The businesses shall assess the
handling or processing difficulty of the waste generated when the products, their containers or whatever they manufacture,
process and seller the like are discarded. They shall develop such products, containers or the like which are unlikely to present
handling or processing difficulty, provide information on appropriate management of the waste generated when the products,
their containers or the like are discarded, or take some other actions to ensure appropriate management of the said products,
containers or the like without difficulty.
3 In addition to the preceding duties in this Article, the businesses shall cooperate with the central government and local
governments in their activities to reduce waste, ensure appropriate management and so on.
(Responsibilities of the Central government and Local Governments)

Article 4
1 The municipalities (self-governing bodies of cities, towns and villages) shall endeavor to promote residents' voluntary activities
to reduce their municipal solid waste in their respective administrative areas and take the necessary action for proper
management of those municipal solid waste. They shall also endeavor to perform the management work efficiently by
improving the ability of the management personnel, consolidating disposal facilities and developing operation techniques.
2 The prefectural governments shall endeavor to give the necessary technical advice to the municipalities under their
administration to ensure their adequate performance of the duties prescribed in the preceding Paragraph and shall endeavor to
grasp the conditions of industrial waste in the respective prefectures and take the necessary action for proper management of
such industrial waste.
3 The central government shall collect information about waste, keep it in orderly arrangement and use it, take measures for
promotion of waste management technology development and also take suitable action for proper and smooth waste
management throughout Japan. The central government shall endeavor to give the necessary technical and financial assistance
to the municipalities and to the prefectural governments for adequate performance of their duties mentioned in the preceding
two Paragraphs.
4 To suppress discharge of waste and ensure their proper management, the central government, prefectural governments and
municipalities shall all endeavor to enlighten both the general public and businesses on the importance of appropriate solid
waste management.
(Maintaining Cleanliness)
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Article 5
1 Land or building owners (or caretakers in the absence of such owners; and the same will apply hereinafter)shall endeavor to
maintain cleanliness of the land or buildings in their possession or under their care.
2 The owners of buildings shall conduct thorough cleaning of the whole building in accordance with a plan which shall be
prescribed by the municipality.
3 No person shall be allowed to soil a park, square, camping site, skiing ground, seaside resort, road, river, port or any other
public place.
4 The caretakers of the aforementioned places shall exert themselves to keep the places clean.
5 The municipalities shall provide public toilets and waste baskets where they are needed and keep them sanitary.
6 A person or company who operates a transport business with trains, ships or airplanes equipped with toilets shall treat the night
soil in a way not disruptive to the living environment.
(Basic Policy)
Article 5-2
1 The Minister of the Environment shall specified forth a basic policy (hereinafter referred to as "basic policy") for promoting
measures comprehensively and systematically on restrain of the waste discharge, waste reduction by recycling and other proper
management of waste.
2 The basic policy shall include the following matters

1) Basic direction on waste reduction and other proper management of waste
2) Matters in relation to set up targets for waste reduction and other proper management of waste
3) Basic matters in order to promote measures on waste reduction and other proper management of waste
4) Basic matters on maintenance of waste disposal facilities
5) Besides those prescribed in each of the preceding Paragraphs, necessary matters for waste reduction and other proper
management of waste
3 The Minister of the Environment shall specified forth a basic policy, and consult with the heads of the administrative bodies
concerned, before trying to change them.
4 The Minister of the Environment shall specified forth a basic policy, and make an announcement when changing them without
delay.
Article 5-4
The central government and prefectural governments shall endeavor to take the necessary action for achieving the waste
management plan.
(Waste Management Plan by the Prefectural Governments)

Article 5-5
1 The prefectural governments shall specified forth a plan for waste reduction and other proper management of waste in their
respective administrative areas in line with a basic policy (hereinafter referred to as "waste management plan").
2 The waste management plan shall include the following matters in regard to waste reduction and other proper management of
waste in their respective administrative areas in accordance with the standards specified by the Ordinance of the Ministry of
the Environment.
1) Estimate of the volume of waste to be generated and that to be managed.
2) Basic matters on waste reduction and other proper management of waste.
3) Matters on systems which are necessary in order to secure the proper management of municipal solidwaste.
4) Matters on maintenance of industrial waste disposal facilities.
5) Besides those prescribed in each of the preceding Items, necessary matters on waste reduction and other proper management
of waste.
3 The prefectural governments shall specified forth a waste management plan, and seek advice from the Council specified by the
provision of Article 43 of the Basic Environment Law (Law No. 91 of 1993), other bodies which have council system or the
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municipalities concerned, before changing them.
4 The prefectural governments shall set forth a waste management plan, and make an announcement when changing them without
delay.
(Council for Promotion of Waste Reduction)

Article 5-7
1 The municipalities may organize a council for promotion of waste reduction which is to contemplate matters related to reduction
of waste and others.
2 The necessary matters related to the organization and operation of the said council shall be prescribed by ordinances.
(Promoters of Waste Reduction)

Article 5-8
1 The municipalities may commission suitable persons with a social reputation and both enthusiasm about and expert knowledge
and views of proper management of municipal solid waste as promoters of waste reduction.
2 The promoters of waste reduction shall cooperate with the municipalities in taking measures for reduction of municipal solid
waste and in carrying out other activities.
Chapter II Municipal Solid Waste
Section 1 Municipal solid waste Management
(Municipal Solid Waste Management Plan)

Article 6
1 The municipalities shall specified forth a definite plan for management of municipal solid waste in their respective
administrative areas (hereinafter referred to as a "municipal solid waste management plan").
2 The municipal solid waste management plan shall include the following matters in regard to the management of municipal solid
waste in their administrative areas according to the Ordinance of the Ministry of the Environment.
1) Estimate of the volume of municipal solid waste to be generated and that to be managed.
2) Matters related to measures for suppressing discharge of municipal solid waste.
3) Kinds of municipal solid waste to be presorted for collectors and descriptions of those kinds.
4) Fundamentals of proper municipal solid waste management and also the fundamentals relating to the authorities/persons
carrying out such management.
5) Matters pertaining to the improvement or expansion of municipal solid waste disposal facilities.
6) Other matters necessary for the management of municipal solid waste.
3 The municipalities shall specified forth a municipal solid waste management plan in line with the basic plan in Paragraph 4 of
Article 2 of the Municipalities Law (Law No. 67 of 1947).
4 Each municipality shall endeavor to make its municipal solid waste management plan consistent with similar plans of other
municipalities with which the particular municipality is in close in terrelations and that significantly affect the municipal solid
waste management in its administrative area.
5 The municipalities shall set forth a municipal solid waste management plan, and make an announcement when changing them
without delay.
(Management by Municipalities)
Article 6-2
1 The municipalities shall collect, transport and dispose of (including recycling and the same will apply hereinafter (except for
Paragraph 3 of Article 7, Article 7-3, Paragraph 6 of Article 8-2, Paragraph 2 of Article 9, Paragraph 2 of Article 9-2, Paragraph
11 of Article 9-3, Paragraph 1 of Article 13-11, Article 15-12, Paragraph 1 of Article 15-15, Paragraph 2 of Article 16-2,
Paragraph 2 of Article 23 and Article 24, and the same will apply hereinafter) municipal solid waste in their municipal areas
before they interfere with the conservation of the living environment, according to the municipal solid waste management plan.
2 Standards on collection, transport and disposal of municipal solid waste (excluding specially controlled municipal solid waste;
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the same will apply in the rest of Article 6-2 ) which are to be conducted by the municipalities (excluding the standards
pertaining to the place and method of ocean disposal, defined by the Law Relating to the Prevention of Marine Pollution and
Maritime Disaster (Law No. 136 of 1970), for those of municipal solid waste which may be disposed of in a sea and which will
be referred to as the "municipal solid waste management standards") and standards for the case in which a municipality
commissions someone else collect, transport and dispose of municipal solid waste shall be prescribed in a Cabinet Order.
3 Standards on collection, transport and disposal of specially controlled municipal solid waste which are to be conducted by the
municipalities (excluding the standards pertaining to the place and method of ocean disposal, defined by the Law Relating to
the Prevention of Marine Pollution and Maritime Disaster, for those of specially controlled municipal solid waste which may
be disposed of in a sea and which will be referred to as the "specially controlled municipal solid waste diposal standards") and
standards for the case in which a municipality commissions someone else collect, transport and dispose of specially controlled
municipal solid waste shall be prescribed in a Cabinet Order.
4 Owners of land or buildings must exert themselves to dispose of municipal solid waste in their land or buildings that are easily
disposable without hindrance to the conservation of the living environment. As to the waste which the owners cannot dispose
of by themselves, they must endeavor to cooperate with the municipalities in the collection, transport and disposal of municipal
solid waste conducted by the municipalities by properly sorting and storing the said waste according to the municipal solid
waste management plan or take other necessary action.
5 The mayors of municipalities are entitled to give owners of land or buildings where a large amount of municipal solid waste is
generated due to their business activities in the particular administrative area,instructions regarding planning for reduction of
the said municipal solid waste, the place to which they are to be transported, the method of transporting them and other necessary
matters.
(Cooperation of Businesses)
Article 6-3
1 The Minister of the Environment is entitled to investigate the actual management of municipal solid waste by the municipalities
and specify, on the basis of the results of the investigation, certain municipal solid waste which are currently treated and
managed of by the municipalities and are deemed difficult to be treated and managed of properly in various parts of Japan with
the municipalities' present management facilities and technique.
2 The mayors of the municipalities are entitled to demand the cooperation of the businesses manufacturing,processing, selling or
otherwise handling a product, container or the like which will result in the generation of the municipal solid waste specified in
the preceding Paragraph in order to facilitate the proper management of the said waste by the municipalities according to the
Ordinance of the Ministry of the Environment.
3 The Minister of the Environment is entitled to demand to the Minister, who has the supervisory power over businesses that
manufacture, process, sell or otherwise handle products, containers or the like which may result in the generation of the
municipal solid waste specified in Paragraph 1 of this Article, to take necessary measures which enable municipalities to secure
the cooperation from those businesses who manufacture, process, sell or otherwise handle the said products, containers or the
like in managing the said waste originating from them.
4 Before specifying the municipal solid waste mentioned in Paragraph1 of this Article, the Minister of the Environment shall
consult the minister supervising the businesses that manufacture, process, sell or otherwise handle the products, containers or
the like which may result in the generation of the municipal solid waste to be specified under Paragraph1 of this Article.
Section 2 Municipal Solid Waste Management Service
(Municipal Solid Waste Management Service )

Article 7
1 No person is allowed to undertake as a contractor to collect and transport of municipal solid waste without permission from the
prefectual governor with the jurisdiction over the area in which the person is to conduct the service (or of the area in which that
person is to load and unload municipal solid waste if the person is to conduct a transport service only), except for businesses
(limiting to the ones who transport the municipal solid waste by themselves) who undertake to collect and transport of municipal
solid waste solely for recycling as contractors and anyone specified in the Ordinance of the Ministry of the Environment.
2 The permission prescribed in the preceding Paragraph becomes invalid upon the lapse of a period not less than one year in
length prescribed by a Cabinet Order unless the permission is renewed for another period.
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3 The mayors of the municipalities shall not grant the permission prescribed in the preceding Paragraph unless they judge that
the application for it satisfies the following requirements:
1) It is difficult for the respective municipalities to collect and transport municipal solid waste.
2) The application is in conformity with the municipal solid waste management plan.
3) The facilities used by the contractors and the ability of the applicant are judged sufficient for the proper and continuous
conducting of the said services in the light of the standards specified by the Ordinance of the Ministry of the Environment.
4) The applicant is not any of the following:
a. A ward who is an adult, a warrantee or a person who declared bankrupt and not yet reinstated.
b. One who has been sentenced to imprisonment or severer punishment and is still short of one's fifth year from the execution
or the interruption of the sentence.
c. One who has been sentenced to more than a fine because of violation of the Septic Tank Law (Law No. 43 of 1983) or any
other law for the conservation of the living environment specified by a Cabinet Order, disobedience to action based on such
law or law for prevention of unjustified action by gang (Law No, 77 of 1991. Except for Paragraph 7 of Article 31) or violation
of Article 204, 206, 208, 208-2, 222 or 248 of the Criminal Law (Law No. 45 of 1907) or the Law Pertaining To Punishment
for Act of Violence etc. (Law No. 60 of 1926) and is still short of one's fifth year from the execution or the interruption of the
sentence.
d. One whose permit has been revoked under Article 7-3 or Article 14-3 (including the cases applied by replacing wordings in
Article 14-6) or under the provision of Paragraph 2 of Article 41 of the Septic Tank Law and is short of one's fifth year from
the revocation. (In the case of a legal person, this includes one who is an executive of that organization (an employee, a
director or whoever executes the business, including a person who is recognized to have the same or more power to control
the business as the above person no matter what kind of title one has, such as an advisor. The same will apply hereinafter in
this Item and d. of Item 2 of Paragraph 3 of Article 14) within 60 days from the day it was notified the revocation under
Article 15 of Administrative Procedures Act (Law No. 88 of 1993) and is short of its fifth year from the revocation).
e. One who gives good reason to suspect a wrong or dishonest act on one's part in connection with one's municipal solid waste
management services.
f. A minor who lacks the abilities of an adult and whose lawful deputy is a person specified in one of a. to e. above.
g. A legal person having a director or employee who is a person specified in one of a. to e. above.
h. An individual having an employee who is a person specified in one of a. to e. above.
4 No person is allowed to undertake as a contractor the disposal of municipal solid waste without permission from the prefectual
governor with the jurisdiction over the area in which the person is to conduct the service, except for a business (provided he/she
is to dispose of the municipal solid waste by him/herself), a person undertaking the disposal of municipal solid waste solely for
recycling as a contractor and anyone specified in the Ordinance of the Ministry of the Environment.
5 The permission prescribed in the preceding Paragraph becomes invalid upon the lapse of a period not less than one year in
lengthprescribed by a Cabinet Order unless the permission is renewed for a further period
6 The mayors of the municipalities shall not grant the permission prescribed in Paragraph 4 of this Article. unless they judge that
the application for it satisfies the following requirements:
1) It is difficult for the particular municipality to dispose of municipal solid waste.
2) The application is in conformity with the municipal solid waste management plan.
3) The facilities used for disposal service and the ability of the applicant are sufficient for the proper and continuous conducting
of the waste disposal service in the light of the standards specified by the Ordinance of the Ministry of the Environment.
4) The applicant is none of the persons specified in a. to h. of Item 4) of Paragraph 3 of this Article.
7 The permission prescribed in Paragraph 1 or 4 of this Article may be granted only with respect to a certai area in which municipal
solid waste may be collected by the contractor or with conditions necessary for the conservation of the living environment
attached to it.
8 The persons with the permission prescribed in Paragraph 1 of this Article (hereinafter referred to as "municipal solid waste
collection and transport contractors") and those with the permission prescribed in Paragraph 4 (hereinafter referred to as
"municipal solid waste disposal contractors") shall not collect a charge in excess of the amount for collection and transport or
disposal prescribed by the provision of Paragraph 1 of Article 228 ofthe Municipalities Law in respect of their collection and
transport or disposal of municipal solid waste.
9 The municipal solid waste collection and transport contractors and municipal solid waste disposal contractors shall perform
their collection and transport or disposal activities in conformance with the municipal solid waste disposal standards (or the
specially controlled municipal solid waste management standards in the case of municipal solid waste in that category).
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10 The municipal solid waste collection and transport contractors and municipal solid waste disposal contractors shall not
commission anyone else carry out their collection and transport or disposal activities.
11 The municipal solid waste collection and transport contractors and municipal solid waste disposal contractors shall keep books
and enter in them the particulars about municipal solid waste management which are specified by the Ordinance of the Ministry
of the Environment.
12 The books prescribed in the preceding Paragraph shall be stored as directed in the Ordinance of the Ministry of the
Environment.
(Permission for Change or the Like)

Article 7-2
1 The municipal solid waste collection and transport contractors and municipal solid waste disposal contractors shall obtain the
municipality's permission for any change of the scope of the collection and transport business or disposal business except
discontinuation of part of the business.
2 The provisions in Paragraph 3 and 7 of the preceding Article will also apply to the said permission for a change of the scope of
the collection and transport business, and the provisions of Paragraph 6 and 7 of the same Article will apply to the said
permission for a change of the scope of the disposal business.
3 When a municipal solid waste collection and transport contractor or a municipal solid waste disposal contractor discontinues
the whole or part of the collection-and-transport/disposal business or changes the address or any other matter specified by the
Ordinance of the Ministry of the Environment., that contractor shall report it to the mayor of the municipality as prescribed by
the Ordinance of the Ministry of Health and Welfare.
(Revocation of Permission or the Like)

Article 7-3
1 In case a municipal solid waste collection and transport contractor or a municipal solid waste disposal contractor becomes the
person who falls under one of the following Items, the mayor of the municipality may revoke the permission or order that
particular contractor to suspend the whole or part of the business for a prefixed period.
1) When the person violates this Law or defies action taken under this Law (hereinafter referred to as "act against the Law"),
demands or asks another person to act against the Law, or indicates or helps another person to do so.
2）When the facility in which the person uses for their business or the capability of that person becomes not to satisfy the standards
prescribed in Item 3) of Paragraph 3 or Item 3) of Paragraph 6 of Article 7.
3）When the person becomes to be one of a. to h.of Item 4) of Paragraph 3 of Article 7.
4）When the person violates the condition attached to the said permission specified in Paragraph 7 of Article 7.
(Prohibition of Renting the Name)

Article 7-4
Any municipal solid waste collection and transport contractor or municipal solid waste disposal contractor must not have any other
persons perform collection or transport or disposal of municipal solid waste as a work under his own name.
Section 3 Municipal Solid Waste Disposal Facility
(Permission of Municipal Solid Waste Disposal Facility)

Article 8
1 Any person intending to install a municipal solid waste disposal facility (referring to a refuse treatment facility specified by the
Cabinet Order (hereinafter referred to simply as “refuse treatment facility”), night soil treatment facility (except for the septic
tank specified in Item 1) of Article 2 of Septic Tank Law; same in the following) and fimal disposal site of municipal solid
waste specified by the Cabinet Order; same in the following) (except for a municipality intending to install a municipal solid
waste disposal facility for disposal of municipal solid waste under the provision of Paragraph 2 of Article 6-2), must have
granted the permission of the prefectural governor with jurisdiction over the place of installation of said municipal solid waste
disposal facility (or mayor of a city or head of a special ward operating public health centers; same in the following except for
Paragraphs 1 of Article 20-2).
2 Anyone intending to procure the said permission shall file an application containing the following particulars under the
1) Name or title and address and, if a corporate person, name of its representative
2) Place of installation of the municipal solid waste disposal facility
3) Type of the municipal solid waste disposal facility
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4) Type of the waste disposed at the municipal solid waste disposal facility
5) Disposal capacity of the municipal solid waste disposal facility (or, in the case of a final disposal site for municipal solid waste,
square meterage of the place used for landfill disposal of municipal solid waste and landfill capacity)
6) Plan concerning installation including location and structure of the municipal solid waste disposal facility
7) Plan concerning operation and maintenance of the municipal solid waste disposal facility
8) Where the facility is a final disposal site for municipal solid waste, plan for prevention of disasters
9) Any other matters specified by Ordinance of the Ministry of the Environment
3 As prescribed in the Ordinance of the Ministry of the Environment, a document which states the result of assessment on effects
that the installation of that municipal solid waste disposal facility would cause the living environment in the surrounding areas
shall be attached to the application mentioned in the preceding Paragraph.
4 When a permission prescribed in Paragraph 1, for a municipal solid waste disposal facility (only those specified by the Cabinet
Order) is applied, the prefectural governor shall notify the particulars mentioned in Item 1) to 4) of Paragraph 2, the date of
application and the place of reference without delay, and shall provide the application of Paragraph 2 as well as the document
of Paragraph 3, for public reference for a month from the date of that notification.
5 When a notification is made under the preceding Paragraph, the prefectural governor shall notify, without delay, the mayors of
the areas concerned in the installation of that municipal solid waste disposal facility in terms of the conservation of the living
environment, and listen to their opinion from the point of the conservation of the living environment with specifying a certain
period of time.
6 When a notification is made under Paragraph 4, a person concerned in the installation of that municipal solid waste disposal
facility may submit a comment from the standpoint of the conservation of the living environment to the prefectural governor
by the day of two weeks from the following day of the termination of the period of reference.
(Standard of Permission or the like)

Article 8-2
1 The prefectural governor shall not grant the permission prescribed in Paragraph 1 of the preceding Article, unlessthey judge
that the application of the said permission satisfies every Item of the following.
1) The plan of the installation of that municipal solid waste disposal facility shall comply with the technical standards specified
in the Ordinance of the Ministry of the Environment.
2) The plan of the installation and the plan of operation and maintenance shall have adequate consideration incorporated for
conservation of the living environment in the surrounding area of said municipal solid waste disposal facility.
3) The capability of the applicant is sufficient for the proper and continuous conducting of the installation and operation and
maintenance of the municipal solid waste disposal facility in accordance with the plan of its installation and the plan of its
operation and maintenance in the light of the standards specified by the Ordinance of the Ministry of the Environment.
4) The applicant is none of the persons specified in a. to h. of Item 4) of Paragraph 3 of Article 7.
2 The prefectural governors may not grant the permission of the Paragraph 1 of the preceding Article, when they judge that it
may become difficult to satisfy the air environment standards (specified by the Cabinet Orders as those on environmental
conditions relating to air pollution by substances generated by refuse treatment facility or industrial waste disposal facility
which is specified by Cabinet Orders; the same will apply to Item 2) of Article 15-2), since refuse treatment facility or industrial
waste disposal facility (limited to those specified by the Cabinet Orders; the same will apply to the following of this Item and
Item 2) of Article 15-2) would become concentrated too much by installing the facility (limited to those specified by the Cabinet
Orders; the same will apply to the following of this Item and Item 2) of Article 15-2) relating to the said permission.
3 When the prefectural governor is to grant the permission of Paragraph 1, preceding Article (limited to those pertaining to the
municipal solid waste disposal facility specified in Paragraph 4 of the same Article), he/she must hear in advance the opinions
of the specialists about the matters cited in Item 2) of Paragraph 1 with respect to the matters specified by the Ordinance of the
Ministry of the Environment concerning the conservation of living environment.
4 The permission prescribed in Paragraph1 of this Article may be granted with necessary conditions for the conservation of the
living environment attached to it.
5 A person to whom the permission prescribed in Paragraph1 of this Article has been granted shall not use the municipal solid
waste disposal facility before it is inspected by the prefectural governer and the governer judges that it satisfies the technical
standards mentioned in Paragraph 2 of this Article.
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6 The Minister of he Environment is entitled to give necessary instructions on the actions taken by the prefectural governor to the
application of Paragraph 1 of the preceding Article in case that there is an urgent need for the conservation of living
environment.
7 The Minister of he Environment is entitled to give necessary instructions on the inspection by the prefectural governor specified
in Paragraph 5 in case that there is an urgent need for the conservation of living environment.
(Operation and Maintenance of Municipal Solid Waste Disposal Facility)

Article 8-3
A person having the permission of Paragraph 1 of Article 8, granted must have the municipal solid waste disposal facility pertaining
to said permission operation and maintenance in accordance with the technical standards specified in the Ordinance of the Ministry
of the Environment and the plan of operation and maintenance stated in the application Paragraph 2 of the same Article pertaining
to said permission (or, when the permission of Paragraph 1of Article 9, is granted with respect to said plan, the plan after alteration).
(Record and Reference)

Article 8-4
As prescribed in the Ordinance of the Ministry of the Environment, a person to whom the permission prescribed in Paragraph 1 of
Article 8 (provided only concerning the municipal solid waste disposal facility prescribed in Paragraph 4 of the same Article) has
been granted shall record the matters specified by the Ordinance of the Ministry of the Environment on its operation and maintenance
of the disposal facility, and place them in the disposal facility (when it is impossible, place them in the nearest office of the installer
of the facility) and show the record to satisfy the request by those who have interest in conservation of their living standard in
relation to its operation and maintenance.
(Reserves Fund for Maintenance)

Article 8-5
1 On a specific final disposal site for municipal solid waste (the final disposal site for municipal solid waste that is the municipal
solid waste disposal facility specified by the Ordinance of the Ministry of the Environment, the same will apply hereinafter), a
person to whom the permission prescribed in Paragraph 1 of Article 8 (they will hereinafter be referred to as a "installer of a
specific final disposal site for municipal solid waste ") shall reserve for the amount of money specified by the prefectural
governors in accordance with Paragraph4. as a reserve fund for the maintenance of each final disposal site every year until the
landfill disposal completes, in order to conduct its maintenance properly after the completion of the landfill disposal in relation
to that disposal site.
2 A reserve fund for the maintenance shall be made for the Japan Environmental Corporation under the Ordinance of the Ministry
of the Environment.
3 A reserve fund for the maintenance shall be administered by the Japan Environmental Corporation.
4 The amount of the reserve fund for the maintenance cost shall be calculated by the prefectural governors in accordance with the
standard for calculation specified by the Ordinance of the Ministry of the Environment based on the fee needed for maintaining
the specific final disposal site for municipal solid waste as well as the time required for the landfill.
5 The Japan Environmental Corporation shall remunerate interest for the reserve fund for the maintenance under the Ordinance
of the Ministry of the Environment.
6 A installer of a specific final disposal site for municipal solid waste may get refunded the reserve fund for the maintenance as
prescribed in the Ordinance of the Ministry of the Environment, if they will maintain the final disposal site after the completion
of the landfill disposal under the other Ordinance of the Ministry of the Environment.
7 When the position of a person procuring the permission prescribed in Paragraph 1 of Article 8 is succeeded by another person
under the provision of Paragraph 3 of Article 9-5, Paragraph 1 of Article 9-6 or Paragraph 1 of Article 9-7, it shall be regarded
that the reserve fund for the maintenance of the installer has been reserved by its successor.
8 In addition to the provisions in the preceding Paragraphs, the matters concerning the reserve fund for the maintenance as well
as its refund are given in the Ordinance of the Ministry of the Environment.
(Special Provision for Activities of the Japan Environmental Corporation)

Article 8-6
1 The Japan Environmental Corporation shall perform the activities prescribed in Article 18 of the Japan Environmental
Corporation Law (Law No. 95 of 1965, it will be referred to as the “Corporation Law” in the next Paragraph) as well as the
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following activities in order to achieve the purpose of this law.
1) Administrating the reserve fund for the maintenance as prescribed in Paragraph 3 of the preceding Article (including the case
applied under Article 15-2-3).
2) Activities incidental to those prescribed in the preceding Item.
2 When the Japan Environmental Corporation perform their activities under the preceding Paragraph, “the Waste Management
and Public Cleaning Law (Law No. 137 of 1970)” mentioned in Item 4) of Paragraph 1 of Article 18 of the Corporation Law
means “the Waste Management and Public Cleaning Law (Law No.137 of 1970) and it will hereinafter be referred to as “the
Waste Management Law””, “the said law” means“the Waste Management Law”, “the Waste Management and Public Cleaning
Law” mentioned in Item 6 of the same Paragraph means “the Waste Management Law”, “shall administer” mentioned in
Paragraph 1 of Article 25 of the Corporation Law means “shall administer, and the accounting relating to the activities
prescribed in Paragraph1 of Article 8-6 of the Waste Management Law shall be administered separately from the other
accountings”, “this law” mentioned in Paragraph 2 of Article 40, Paragraph 1 of Article 41 and Paragraph 1 of Article 44 of the
Corporation Law means “this law as well as the Waste Management Law”, “things” mentioned in Item 5) of Paragraph 1 of
Article 35 means “things as well as activities prescribed in Paragraph 1 of Article 8-6 of the Waste Management Law”, and
“Article 18” mentioned in Item 3) of Article 47 of the Corporation Law means “Article 18 as well as Paragraph1 of Article 8-
6 of the Waste Management Law”.
(Permission of Change or the Like)

Article 9
1 When a person having the permission of Paragraph 1 of Article 8 granted desires to change any of the matters cited in Items 4)
through 7) of Paragraph 2 of the same Article, he/she must obtain the permission of the prefectural governor as provided by the
Ordinance of the Ministry of the Environment. However, the preceding shall not apply if the change is a minor change specified
in the Ordinance of the Ministry of the Environment.
2 The provisions of Paragraphs 3 to 6 of Article 8, and Paragraphs 1 to 4 of Article 8-2 will apply to the permission of the
preceding Paragraph, the provision of Paragraph 5 of the same Article will apply to the person being granted the permission of
the preceding Paragraph, the provision of Paragraph 6 of the same Article will apply to actions taken by the prefectural
governors to the permission of the preceding Paragraph, and the provision of Paragraph 7 of the same Article will apply, under
the said Paragraph, to inspections taken by the prefectural governors specified by the provision of Paragraph 5 of the same
Article.
3 When the person having the permission of Paragraph 1 of Article 8 granted has made a minor change specified by the provision
of Paragraph 1 of the Ordinance of the Ministry of the Environment, or when there was a change in the matters cited in Item 1)
of Paragraph 2 of the same Article or any other matters specified by the Ordinance of the Ministry of the Environment, or when
he/she disused the municipal solid waste disposal facility (except where said municipal solid waste disposal facility is a final
disposal site for municipal solid waste) pertaining to said permission or stopped the municipal solid waste disposal facility or
reopened said stopped municipal solid waste disposal facility, he/she must immediately report to that effect to the prefectural
governor.
4 When a person to whom the permission mentioned in Paragraph 1 of Article 8 has been granted in respect of the final disposal
site completes the landfill disposal (including disposal for creating a useful subterranean space; the same will apply hereinafter)
for the said site, that person shall give notice to the prefectural governor within thirty days from the day of completion of the
landfill work under the Ordinance of the Ministry of the Environment together with the particulars specified by the said
Ordinance.
5 The person having the permission of Paragraph 1 of Article 8 granted, where the municipal solid waste disposal facility
pertaining to said permission is a final disposal site for municipal solid waste, may disuse the said final disposal site, provided
he/she has previously obtained the confirmation of the prefectural governor for compliance of the condition of the said final
disposal site with the technical standards specified by the Ordinance of the Ministry of the Environment, as provided by the
(Revocation of Permission or the like)

Article 9-2
1 The prefectural governors may revoke the permission of Paragraph 1 of Article 8 pertaining to the said municipal solid waste
disposal facility, or order the necessary improvements of the said municipal solid waste disposal facility to the person being
granted the permission of the same Paragraph within a specified period of time or the suspension of the use of the said municipal
solid waste disposal facility for a specified period of time, when there is a case which falls under one of the following Items.
1) Where the structure of municipal solid waste disposal facility pertaining to the permission of Paragraph 1 of Article 8 or its
operation and maintenance is recognized as not complying with the technical standards provided in Item 1) of Paragraph 1 of
Article 8-2 or Article 8-3 or the plan concerning installation or plan for operation and maintenance specified forth in the
application of Paragraph 2 of Article 8 pertaining to the said permission (or if the permission of Paragraph 1 of the preceding
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Article is granted for that plan, the modified plan is applied).
2) When the capability of the person who was granted the permission of Paragraph 1 of Article 8 is recognized as not satisfying
the standards specified by the Ordinance of the Ministry of the Environment in Item 3) of Paragraph 1 of Article 8-2.
3) When the person who was granted the permission of Paragraph 1 of Article 8 takes actions which violate the Law, or demands,
asks or indicates another person to act against the Law, or helps another person to do so.
4) When the person who was granted the permission of Paragraph 1 of Article 8 becomes to be one of a. to h. of Item 4) of
Paragraph 3 of Article 7.
5) When the person who was granted the permission of Paragraph 1 of Article 8 violates the condition attached to the said
permission under the provision of Paragraph 4 of Article 8-2.
2 The provision of Paragraph 6 of Article 8-2 will apply to actions by the prefectural governors taken under the provision of the
preceding Paragraph.
(Notification of Municipal Solid Waste Disposal Facility Pertaining to Installation by Municipality)

Article 9-3
1 When a municipality is to install a municipal solid waste disposal facility for disposing municipal solid waste according to the
provision of Paragraph 1of Article 6-2, it must notify to that effect to the prefectural governor with a document stating the
matters cited in the respective Items of Paragraph 2 of Article 8 and another document stating the result of investigation of any
impacts of the installation of said municipal solid waste disposal facility on the living environment in the surrounding area, as
provided by the Ordinance of the Ministry of the Environment.
2 The head of a municipality making a notification according to the provision of the preceding Paragraph shall, in preparing a
document stating the matters listed in items of Paragraph 2 of Article 8, as provided in the preceding Paragraph, public reference
the document stating the result of investigation specified in the preceding Paragraph as prescribed by regulations of the matters
specified by the Cabinet Order and give an opportunity to the persons having interests in installation of the municipal solid
waste disposal facility pertaining to said notification to present written opinions from the viewpoint of conservation of the
livingenvironment.
3 If he/she judges that the municipal solid waste disposal facility referred to in the preceding Paragraph does not satisfy the
technical standards mentioned in Item 1) of Paragraph 2 of Article 8, the prefectural governor may order the said municipality
to modify or cancel the plan within thirty days from the day of receipt of the notification (within sixty days from the said day
in respect of the final disposal site).
4 The municipality making the notification under this Article shall not construct the municipal solid waste disposal facility or
change its structure or scale before the lapse of the period allowed for the governor in the preceding Paragraph unless the said
municipality has received the governor's notice of his approval of the plan for installation or change.
5 The superintendent of the said disposal facility notified under the provision of Paragraph 1 of this Article shall conduct the
operation and maintenance of that municipal solid waste disposal facility in accordance with the technical standard prescribed
in Article 8-3 as well as the operation and maintenance plan stated in the document which mentions the matters prescribed in
each Item of Paragraph 2 of Article 8, under the Article 8-3 on the notification (the modified version, if the notification on the
plan was made under Paragraph 7 of this Article.).
6 The superintendent of the said disposal facility notified under the provision of Paragraph 1of this Article(only notified under
the provision of 4 of this Article) shall conduct recording about operation and maintenance of the municipal solid waste disposal
facility in accordance with the Ordinance of the Ministry of the Environment, and providing the record of the municipal solid
waste disposal facility (When it is impossible, provide at nearest office), and show the record to satisfy the request by people
having interest in conservation of their living standard, as provided by the Ordinance of the Ministry of the Environment.
7 The municipality making the notification under Paragraph1of this Article should notify the prefectural governor with a
document mentioning the matters prescribed in the Ordinance of the Ministry of the Environment, when it intends to change
the matters prescribed in Item 4) to 7) of Paragraph 2 of Article 8 under the Ordinance of the Ministry of the Environment
(excluding a slight change specified by the Ordinance of the Ministry of the Environment).
8 The provisions of Paragraph 2 and 3 will apply to the notification prescribed in the preceding Paragraph, and the provision of
Paragraph 4 will apply to the municipality making the notification under the preceding Paragraph. In this case, “the preceding
Paragraph” in Paragraph 2 shall be interpreted as “Paragraph 7”,“that Paragraph” as “the preceding Paragraph”, “Paragraph
1” in Paragraph 4 as “Paragraph 7” and “not to construct a municipal solid waste disposal facility” as “not to change the matters
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specified in Item 4) to 7) of Paragraph 2 of Article 8”.
9 If the prefectural governors judge that the structure of the said municipal solid waste disposal facility notified under the
provision of Paragraph 1 of this Article or its operation and maintenance does not satisfy the technical standard specified in
Item 1) of Paragraph 1 of Article 8-2 or Article 8-3, or the installation plan or the operation and maintenance plan stated in the
document mentioning the matters prescribed in each Item of Paragraph 2 of Article 8, under Paragraph 1 on the notification
(the modified version, if the notification on those plans was made under Paragraph 7 of this Article.), they may order the installer
or the superintendent to make the necessary improvements of the municipal solid waste disposal facility or to suspend its
operation for a fixed period of time.
10 The provisions in Item. 3) to 5) of Article 9 will apply to the municipality making the notification of the municipal solid waste
disposal facility under Paragraph 1 of this Article. In this case, "the proviso of Paragraph1” in Paragraph 3 of that Article shall
be interpreted as "Paragraph 7 of Article 9-3", “permission” as “notification”, “permission” in Paragraph 4 and 5 of this Article
as “notification”.
11 According to 3) or 9) of Article 8, the provisions of 6), Article 8-2 will apply to the management which shall be pursuited by
the Prefectural governor.
(Precaution and Provision for Surrounding Areas)

Article 9-4
A person to whom the permission mentioned in Paragraph 1 of Article 8 has been granted and a municipality making the notification
of the installation of a municipal solid waste disposal facility under Paragraph 1 of the preceding Article (both of them will
hereinafter be referred to as a "installer of a municipal solid waste disposal facility") shall take the necessary precaution and make
the necessary provision for the conservation and enhancement of the living environment in areas surrounding the municipal solid
waste disposal facility.
(Transfer of Municipal Solid Waste Disposal Facility or the Like)

Article 9-5
1 A person having transferred or borrowed a municipal solid waste disposal facility pertaining to the permission of Paragraph 1
of Article 8 from the person procuring the said permission (it shall be referred to as a "installer of the facility of the permission
being granted" in Paragraph 3, Paragraph 1 of the next Article and Article 9-7), he/she has to get the permission form the
prefectural governor under the Ordinance of the Ministry of the Environment.
2 The provision of Paragraph 1 of Article 8-2 will apply to the permission of the preceding Paragraph.
3 A person to whom the waste disposal facility was transferred or borrowed with the permission prescribed in Paragraph 1 shall
succeed the status of the installer of the facility of the permission being granted pertaining to the said municipal solid waste
disposal facility.
(Merger and Division)

Article 9-6
1 In the case of the merger of the corporation which is the installer of the facility of the permission being granted (except for the
case when the installer of the facility of the permission being granted continues to exist after the merger with the corporation
which is not a installer of the facility of the permission being granted), or the case of the division (limited to the case in which
the municipal solid waste disposal facility pertaining to the said permission will be succeeded), the corporation which continues
to exist after the merger, the corporation which is established through the merger, or the corporation which succeeds the said
municipal solid waste disposal facility through the division, shall succeed the status of the installer of the facility of the
permission being granted, when the permission is given by the prefectural governor on the said merger or the division.
2 The provision of Paragraph 1 of Article 8-2 (limited to the sections concerning the provisions of Item 3) and 4)) will apply to
the permission of the preceding Paragraph.
(Inheritance)
Article 9-7
1 If the property of the installer of the facility of the permission being granted is inherited, the inheritor shall succeed the status
of the person procuring the permission.
2 The inheritor who succeeded the status of the installer of the facility of the permission being granted under the provision of the
preceding Paragraph shall give notice to the prefectural governor within thirty days from the day he/she inherited it, as specified
by the Ordinance of the Ministry of the Environment.
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Section 4 Special Provision on Recycling of Municipal solid waste
Article 9-8
1 A person who undertakes or intends to undertake the recycling of municipal solid waste prescribed in the Ordinance of the
Ministry of the Environment may obtain an approval from the Minister of the Environment of meeting all of the Item of the
following Items under the Ordinance of the Ministry of the Environment.
1) Contents of recycling shall satisfy the standards specified in the Ordinance of the Ministry of the Environment for not causing
any disruption for conservation of the living environment..
2) A person who undertakes or intends to undertake the recycling shall satisfy the standards specified in the Ordinance of the
Ministry of the Environment.
3) The facility for recycling constructed or to be constructed by the person prescribed in the preceding Item shall satisfy standards
specified in the Ordinance of the Ministry of the Environment.
2 The Minister of the Environment shall grant the approval, when he approves that the recycling prescribed in the application for
the said approval satisfies every Item of the preceding Paragraph.
3 Despite of the provisions of Paragraph 1 or 4 of Article 7 or Paragraph1 of Article 8, a person who was granted the approval of
Paragraph1 of this Article may collect or transport the municipal solid waste under the said approval and may construct the
municipal solid waste disposal facility under the said approval.
4 A person who was granted the approval of Paragraph 1 of this Article shall be regarded as a municipal solid waste collection
and transport contractor or a municipal solid waste disposal contractor when the provisions of Paragraph 9, 11 and 12 of Article
7 and Article 19-3 are applied, and as a installer of a municipal solid waste disposal facility when the provision of Paragraph1
of Article 18 is applied.
5 The Minister of the Environment shall revoke the approval prescribed in Paragraph 1, when he realizes that the recycling
becomes not to satisfy any one of Item of the provision of this Paragraph.
6 In addition to the provisions in the preceding Paragraphs, the necessary matters concerning the approval of Paragraph 1 are
given in the Cabinet Orders.
Section 5 Export of Municipal solid waste

Article 10
1 Any person intending to export municipal solid waste must obtain the confirmation of the Minister of the Environment that the
export of municipal solid waste comes under the respective items in the following.
1) The municipal solid waste to be exported are deemed difficult to be treated of properly in Japan in the
light of the available disposal equipment and technique for the said municipal solid waste in Japan.
2) The municipal solid waste to be exported are not of the preceding description but satisfy the standards
specified in the Ordinance of the Ministry of the Environment as substances not hindering the proper
disposal of municipal solid waste in Japan.
3) It is judged that the municipal solid waste to be exported will certainly be managed of in a manner not
short of the municipal solid waste management standards (or the specially controlled municipal solid
waste management standards if the said municipal solid waste fall under that category).
4) The application for the acknowledgment is made by the following authorities/person.
a. Municipality
b. One specified by the Ordinance of the Ministry of the Environment
2 The provisions in the preceding Paragraph, however, are not applicable to the following authorities/persons.
1) Anyone going out of Japan and personally carrying municipal solid waste who is specified by the Ordinance of the Ministry
of the Environment.
2) The central government or anyone specified by the Ordinance of the Ministry of the Environment.
CHAPTER III INDUSTRIAL WASTE

Section 1 Industrial Waste Management
(Management by Businesses and Local Governments)
Article 11
1 The businesses shall be required to manage of their industrial waste by themselves.
2 The municipalities may manage of those industrial waste which can be managed of together with municipal solid waste and
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which are judged to be in need of their management, either solely or jointly with someone else as part of their work.
3 The prefectural governments are entitled to manage of, as part of their work, the industrial waste which is judged to be in need
of their management in order to ensure the proper management of industrial waste.
(Management by Businesses)
Article 12
1 In a case where a business transports or disposes of their industrial waste (excluding specially controlled industrial waste; the
same will apply in the rest of this Article except for Paragraph 3 to 5) by themselves, it shall be in accordance with the standards
on the collection, transport and disposal of industrial waste specified in the Cabinet Order. In a case where a business transports
or disposes of their industrial waste(excluding specially controlled industrial waste; the same will apply in the rest this Article)
by themselves, it shall be in accordance with the standards on the collection, transport and disposal of industrial waste specified
in the Cabinet Order (excluding standards on the place and method of ocean dumping, if such standards are specified in the
Law Relating to Prevention of Marine Pollution and Maritime Disaster, in respect of industrial waste which may be disposed
of in the sea, if such industrial waste is specified in the above-mentioned standards specified in the Cabinet Order). (The above-
mentioned standards specified in the Cabinet Order will hereinafter be referred to as "industrial waste management standards".).
2 The business shall store the industrial waste till the time of management without hindering the conservation of the living
environment in accordance with the technical standards specified in the Ordinance of the Ministry of the Environment (which
will hereinafter be referred to as "industrial waste storage standards").
3 If businesses (including contractors of intermediate treatment (who treat industrial waste intermediately within the whole
process of its generation to final disposal (landfill disposal, disposal into the sea (which is conducted in accordance with the
standards prescribed in the Law Relating to the Prevention of Marine Pollution and Maritime Disaster in regard to the place to
be dumped and its methods) or recycling), and the same will apply hereinafter) and the same will apply in the next Paragraph,
Paragraph 5 and Paragraph 3 to 5 of the next Article) are to commission anyone else to transport or dispose of their industrial
waste(excluding specially controlled industrial waste, and including industrial waste of intermediate treatment(which is treated
in the intermediate process within the whole of its generation to final disposal), they shall commission to industrial waste
collection and transport contractors specified in Paragraph 8 of Article 14 or someone else prescribed by the Ordinance of the
Ministry of the Environment for their transport, and to industrial waste disposal contractors specified by the same Paragraph or
someone else prescribed by the Ordinance of the Ministry of the Environment for their disposal.
4 When businesses are to commission anyone else to transport or dispose of their industrial waste under the provision of the
preceding Paragraph, they shall act in accordance with the standards prescribed in the Cabinet Order.
5 When businesses are to commission anyone else to transport or dispose of their industrial waste under the preceding 2
Paragraphs, they shall endeavor to take the necessary action for proper management of the said industrial waste in the whole
process from its generation to final disposal.
6 A business who has places of business equipped with a industrial waste disposal facility mentioned in Paragraph 1 of Article
15 for treating of the industrial waste generated there as a result of the business activities shall appoint an industrial waste
manager in each place of business in order to execute its business associated with the management of industrial waste
appropriately. However, the places of business where the business itself is an industrial waste manager are excluded.
7 Businesses specified by the Cabinet Order as those who have places of business generating industrial waste abundantly as a
result of their business activities (referred to as " generator who emits a large quantity of waste " in the next Paragraph) shall
make the plan on reduction and other management of industrial waste from the said places in accordance with the standards
specified by the Ordinance of the Ministry of the Environment and submit it to the prefectural governors.
8 Generator who emits a large quantity of waste shall report the status of executing the plan mentioned in the preceding Paragraph
to the prefectural governors as specified by the Ordinance of the Ministry of the Environment.
9 The prefectural governors shall publish the plan mentioned in Paragraph 7 as well as the status of its execution mentioned in
the preceding Paragraph as specified by the Ordinance of the Ministry of the Environment.
10 The Minister of the Environment shall consult with the heads of the administrative organs before he/she is to set forth the
Ordinance of the Ministry of the Environment mentioned in Paragraph 7 as well as to modify it.
11 The provisions of Paragraph 11 and 12 of Article 7 also apply to those businesses generating industrial waste as a result of
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their activities who are specified by the Cabinet Order. However, "municipal solid waste" in Paragraph 11 of Article 7 shall be
interpreted as "industrial waste".
(Management of Specially Controlled Industrial Waste by Businesses)

Article 12-2
1 When businesses are to transport or dispose of their specially controlled industrial waste by themselves, it shall be in accordance
with the standards on the collection, transport and disposal of specially controlled industrial waste specified in the Cabinet
Order (excluding standards on the place and method of ocean dumping, if such standards are specified in the Law Relating to
Prevention of Marine Pollution and Maritime Disaster, in respect of specially controlled industrial waste which may be disposed
of in a sea, if such specially controlled industrial waste is specified in the above-mentioned standards specified in the Cabinet
Order). (The above-mentioned standards specified in the Cabinet Order will hereinafter be referred to as "specially controlled
industrial waste management standards".).
2 The business shall store the specially controlled industrial waste till the time of management without hindering the conservation
of the living environment, in accordance with the technical standards specified in the Ordinance of the Ministry of the
Environment (which will hereinafter be referred to as "specially controlled industrial waste storage standard").
3 When a business is to commission anyone else to transport or dispose of their specially controlled industrial waste (including
industrial waste of intermediate treatment, and the same shall apply in the next Paragraph and Paragraph 5), that business shall
act in accordance with the standards specified in the Cabinet Order and commission an industrial waste collection and transport
contractor mentioned in Paragraph 8 of Article 14-4 or someone else prescribed by the Ordinance of the Ministry of the
Environment to transport the specially controlled industrial waste and commission a specially controlled industrial waste
disposal contractor also mentioned in Paragraph 8 of Article 14-4 or someone else prescribed by the Ordinance of the Ministry
of the Environment to dispose of them.
4 When businesses are to commission anyone else to transport or dispose of theirspecially controlled industrial waste under the
provision of the preceding Paragraph, they shall act in accordance with the standards prescribed in the Cabinet Order.
5 When businesses are to commission anyone else to transport or dispose oftheir specially controlled industrial waste under the
preceding two Paragraphs, they shall endeavor to take the necessary action for proper management of the said specially
controlled industrial waste in the whole process from its generation to final disposal.
6 Businesses who have places of business where specially controlled industrial waste is generated as a result of the business
activities shall appoint a specially controlled industrial waste manager in each place of business in order to perform their work
associated with specially controlled industrial waste management appropriately. However, the places of business where the
business itself is in charge of specially controlled industrial waste management are excluded.
7 The specially controlled industrial waste manager to be appointed under the provision of the preceding Paragraph shall possess
the qualification specified in the Ordinance of the Ministry of the Environment.
8 Businesses specified by the Cabinet Order as those who have places of business generating specially controlled industrial waste
abundantly as a result of their activities (referred to as " generator who emits a large quantity of waste " in the next Paragraph)
shall make the plan on reduction and other management of specially controlled industrial waste from the said places in
accordance with the standards specified by the rdinance of the Ministry of the Environment and submit it to the prefectural
governors.
9 Generator who emits a large quantity of waste shall report the status of executing the plan mentioned in the preceding Paragraph
to the prefectural governors as specified by the Ordinance of the Ministry of the Environment.
10 The prefectural governors shall publish the plan mentioned in Paragraph 8 as well as the status of its execution mentioned in
the preceding Paragraph as specified by the Ordinance of the Ministry of the Environment.
11 The Minister of the Environment shall consult with the heads of the administrative organs before he/she is to set forth the
Ordinance of the Ministry of the Environment mentioned in Paragraph 8 as well as to modify it.
12 The provisions of Paragraph 11 and 12 of Article 7 also apply to businesses generating specially controlled industrial waste as
a result of their activities. "Municipal solid waste" in Paragraph 11 of Article 7, however, shall be interpreted as "specially
controlled industrial waste".
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(Control Manifest of Industrial Waste)
Article 12-3
1 When businesses (including contractors of intermediate treatment) generating industrial waste as a result of their activities are
to commission someone else to transport or dispose of those waste (including industrial waste of intermediate treatment, and
the same shall apply to Paragraph 1 of Article 12-5) (except the cases specified in the Ordinance of the Ministry of the
Environment), that business shall issue to the party commissioned to transport the said waste (or the party commissioned to
dispose of them if he is commissioned to perform that function alone) a control manifest of industrial waste indicating the kind
of industrial waste, its quantity, the name of the party commissioned to transport or dispose of the waste and other matters
specified by the Ordinance of the Ministry of the Environment (which will hereinafter be referred to as "control manifest") at
the time of delivering those waste pertaining to the said commission.
2 The party commissioned to transport the said industrial waste (who will hereinafter be referred to as"commissioned transporter")
shall enter the particulars specified by the Ordinance of the Ministry of the Environment in the control manifest issued under
the provision of the preceding Paragraph after completion of the transport, and send a copy of the said manifest within a period
prescribed by the said Ordinance to the party issuing the manifest under the said provision (who will hereinafter be referred to
as "issuer"). If anyone has been commissioned to dispose of the waste in this case, the control manifest shall be forwarded to
that commissioned party.
3 After completion of the disposal, the said commissioned party (who will hereinafter be referred to as "commissioned disposer")
shall enter the particulars prescribed by the Ordinance of the Ministry of the Environment (in case that disposal is the final one,
particulars specified by the Ordinance of the Ministry of the Environment as well as the effect of a completion of the final
disposal) in the control manifest issued in accordance with the provision in the former part of the preceding Paragraph or the
control manifest forwarded in accordance with the provision in the latter part of the said Paragraph and send a copy of the
control manifest to the issuer who has commissioned the said party to dispose of the waste, within a period prescribed by the
Ordinance of the Ministry of the Environment. If the control manifest has been forwarded to the said party in accordance with
the latter part of the preceding Paragraph, another copy of that manifest shall be sent to the party who has forwarded the
manifest.
4 When the commissioned disposer receives a copy of the control manifest containing the effect of a completion of the final
disposal of industrial waste of intermediate treatment pertaining to the said disposal under the provision of the former part of
the preceding Paragraph, this Paragraph or Paragraph 5 of Article 12-5, as specified by the Ordinance of the Ministry of the
Environment, he/she shall enter the effect of a completion of the final disposal in the control manifest issued in accordance with
the provision of the Paragraph 1 or the control manifest forwarded in accordance with the provision of the latter part of
Paragraph 2, and send a copy of the control manifest to the issuer who has commissioned the said disposal, within a period
prescribed by the Ordinance of the Ministry of the Environment.
5 When the issuer receives a copy of the control manifest transmitted under the provisions of the preceding three Paragraphs or
Paragraph 5 of Article 12-5, he/she must confirm on the said copy of the control manifest that the transportation or disposal has
completed and keep the said copy of the control manifest for a period specified by the Ordinance of the Ministry of the
Environment from the day of receipt of said transmittal.
6 The issuer shall prepare a report on the control manifest in accordance with the Ordinance of the Ministry of the Environment
and submit it to the prefectural governor.
7 In case the issuer receives no copy of the control manifest prescribed in the provisions of Paragraph 2 to Paragraph 4 and
Paragraph 5 of Article 12-5 within the period prescribed by the Ordinance of the Ministry of the Environment, or he/she receives
a copy of the control manifest, in which the particulars specified by these provisions are not entered, or a copy of the control
manifest, in which false information are entered, the issuer shall promptly investigate the transport or disposal by the
commissioned party and take appropriate action in accordance with the said Ordinance.
8 Apart from the provisions in the preceding Paragraphs of this Article, necessary prescriptions concerning the control manifest
are given in the Ordinance of the Ministry of the Environment.
(Prohibition of Issuing False Control Manifests)

Article 12-4
The industrial waste collection and transport contractors specified by Paragraph 8 of Article 14 or the
specially controlled industrial waste collection and transport contractors specified by Paragraph 8 of Article
14-4 and the industrial waste disposal contractors specified by Paragraph 8 of Article 14 or the specially
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controlled industrial waste disposal contractors specified by Paragraph 8 of Article 14-4 must not enter the
false information on particulars prescribed by Paragraph 2, 3 or 4 of the preceding Article and issue that
control manifest, notwithstanding they were not commissioned to transport or dispose of industrial waste.
(Use of Electronic Information Processing System)

Article 12-5
1 When the businesses specified in Paragraph 1 of Article 12-3 (limited to such entrepreneur whose input and output devices are
connected by way of telecommunication lines to the electronic computer pertaining to the use of the information processing
center specified in Paragraph 1 of Article 13-2 (referred to simply as“information processing center” in this Article); referred
to as “businesses using the electronic manifest system” in the following in this Article) commissions transportation or disposal
of the industrial waste to any other person (except the case to be specified by the Ordinance of the Ministry of the Environment
provided in Paragraph 1 of Article 12-3), asks the transportation or disposal commissioned person (limited to those persons
whose input and output devices are connected to the electronic computer used by the information processing center by way of
telecommunication lines; same in the following in this Article) to report the completion of transportation or disposal of the said
industrial waste via the information processing center in use of the electronic information processing system, and, as provided
by the Ordinance of the Ministry of the Environment, has registered the type and quantity of the industrial waste pertaining to
the said commission, name or title of the person having the transportation or disposal commissioned and any other matters
specified by the Ordinance of the Ministry of the Environment in the information processing center in use of the electronic
information processing system within a period specified by the Ordinance of the Ministry of the Environment after delivering
industrial waste pertaining to the said commission, it is not required to deliver a control manifest notwithstanding the provision
of Paragraph 1 of Article 12-3.
2 In case that the commissioned transporter or the commissioned disposer is asked to report by the businesses using the electronic
manifest system according to the provision of the preceding Paragraph, when the transportation or disposal of the industrial
waste pertaining to the said report is completed, as provided by the Ordinance of the Ministry of the Environment, he/she must
report that effect (in case that disposal is the final one, the effect of a completion of the final disposal) to the information
processing center by using the electronic information processing system within a period specified by the Ordinance of the
Ministry of the Environment, notwithstanding the provisions of Paragraphs 2 and 3 of Article 12-3.
3 When the commissioned disposer receives a copy of the control manifest containing the effect of a completion of the final
disposal of industrial waste of intermediate treatment pertaining to the said disposal under the provisions of Paragraph 5 and
Paragraphs 3 and 4 of Article 12-3, as provided by the Ordinance of the Ministry of the Environment, he/she must report that
effect to the information processing center by using the electronic information processing system within a period specified by
the Ordinance of the Ministry of the Environment, notwithstanding the provisions of the said Paragraphs.
4 Upon receipt of the report according to the provisions of the preceding two Paragraphs, the information processing center shall
immediately notify the businesses using the electronic manifest system who has commissioned the transportation or disposal
of industrial waste pertaining to the said report that the commissioned transporter or the commissioned disposer has completed
the said transportation or disposal (in case that disposal is the final one, the effect of a completion of the final disposal).
5 When the commissioned disposer receives the report of the effect of a completion of the final disposal of industrial waste of
intermediate treatment pertaining to the said disposal under the provision of the preceding Paragraph and the party who
commissioned the said disposal is not businesses using the electronic manifest system, he/she must enter the effect of a
completion of that final disposal in the control manifest issued in accordance with the provision of the Paragraph 1 of Article
12-3 or the control manifest forwarded in accordance with the provision of the latter part of Paragraph 2 of the same Article,
and send a copy of that control manifest to the issuer who has commissioned the said disposal, within a period prescribed by
the Ordinance of the Ministry of the Environment.
6 Upon receipt of the notification according to the provision of Paragraph 4, the businesses using the electronic manifest system
must confirm, upon the notification, the completion of the said transportation or disposal.
7 The information processing center must record the information pertaining to registration under the provision of Paragraph 1 and
report under the provision of Paragraph 2 or 3 in the file provided in the electronic computer pertaining to its use and keep the
information for a period specified by the Ordinance of the Ministry of the Environment from the day of receipt of the said
report.
8 The information processing center must report the matters concerning the registration under the provision of Paragraph 1 and
the report under the provision of Paragraph 2 or 3 to the prefectural governor, as provided by the Ordinance of the Ministry of
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the Environment.
9 When the information processing center does not receive a report under the provision of Paragraph 2 or 3 within the period
specified by the Ordinance of the Ministry of the Environment in regard to the registration according to the provision of
Paragraph 1, it must immediately notify the businesses using the electronic manifest system and of having the said registration
listed to that effect in use of the electronic information processing system.
10 When the businesses using the electronic manifest system receives a notification under the provision of the preceding
Paragraph or receive a notification under the provision of Paragraph 4 and that report prescribed by the provision of Paragraph
2 or 3 contains the false information, he/she must immediately grasp the condition of transportation or disposal of the industrial
waster pertaining to the said notification and take appropriate measures, as provided by the Ordinance of the Ministry of the
Environment.
11 Except as provided in the preceding Paragraphs, any other necessary matters concerning the electronic information processing
system shall be determined by the Ordinance of the Ministry of the Environment.
(Advice)
Article 12-6
If the prefectural governor judges that a business, commissioned transporter or commissioned disposer mentioned in Paragraph 1
of Article 12-3 does not observe the provision of any of Paragraph 1 to 7 of the same Article or Paragraph 1 to 3, 5, 6 or 10 of the
preceding Article, the prefectural governor is entitled to advise that party to take appropriate action for proper management of
industrial waste.
(Management by Local Governments)

Article 13
1 The collection, transport and disposal of industrial waste which the prefectural governments or municipalities are obliged to
perform as part of their work, under the provision of Paragraph 2 or 3 of Article 11, shall all be carried out in accordance with
the industrial waste management standards (or the specially controlled industrial waste disposal standards in respect of industrial
waste in that category).
2 The prefectural governments or municipalities shall collect charges for the installation of an industrial waste disposal facility
and the collection, transport and disposal of industrial waste by them in accordance with the prefectural or municipal ordinance.
Section 2 Information Processing Center and Industrial Waste Appropriate Management PromotionCenter Subsection 1
Information Processing Center
(Designation)
Article 13-2
1 The Minister of the Environment may designate a legal parson coming under Article 34 of the Civil Law (1896 Law No. 89)
and being recognized as to be capable of adequately and exactly executing the works specified in the following Article, upon
his/her application, as an information processing center which is limited to only one throughout the country.
2 When the Minister of the Environment has made the designation according to the provision of the preceding Paragraph, he must
publicly notify the name and address of said information processing center and the location of its office.
3 When the information processing center changes its name or address or the location of its office, it must give notice to that
effect in advance to the Minister of the Environment.
4 Upon receipt of such notice under the provision of the preceding Paragraph, the Minister of the Environment must publicly
notify the particulars of said notice.
(Services)
Article 13-3
The information processing center shall execute the works specified in the following.
1) Use and management of electronic computers and other machines required for processing the registration according to the
provision of Paragraph 1 of Article 12-5, reports according to the provision of Paragraph 2 or 3 of the same Article, and office
works pertaining to the notification according to the provisions of Paragraphs 4 and 9 of the same Article (referred to as
“registration and report works” in the following Item) by the electronic information processing system.
2) Preparing necessary programs, data and files for processing registration and report works by the electronic information
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processing system and keeping them.
3) Recording and keeping the record according to the provision of Paragraph 7 of Article 12-5, and reporting under the provision
of Paragraph 8 of the same Article.
4) Works incidental to the works specified in the preceding three Items.
(Operational Rules)
Article 13-4
1 The information processing center must, before starting the works specified in the Items of the preceding Article (referred to as
“information processing works” in the following), determine the rules concerning the information processing works with respect
to the method of executing the information processing works, matters concerning the fee and other matters specified by the
Ordinance of the Ministry of the Environment (referred to as “operational rules” in the following and obtain the approval of the
Minister of the Environment. The same shall apply in the case of changing the working rules.
2 The Minister of the Environment may order to change the approved operational rules under the preceding Paragraph when
he/she recognizes that said operational rules are no longer adequate for appropriate and exact execution of the information
processing works.
(Operation Plan or the like)

Article 13-5
1 The information processing center shall prepare every fiscal year an operation plan and a budgetary statement of income and
expenditure and obtain the approval of the Minister of the Environment, as provided by the Ordinance of the Ministry of the
Environment. The same in the case of changing them.
2 The information processing center must prepare an operation report and a statement of income and expenditure concerning the
information processing works after termination of every fiscal year and submit them to the Minister of the Environment, as
specified by the Ordinance of the Ministry of the Environment.
(Suspension or Discontinuation of Services)

Article 13-6
The information processing center shall not suspend or discontinue all or part of the information processing works unless the
permission of the Minister of the Environment is obtained.
(Duty of Keeping Secret)

Article 13-7
An officer or a staff member of the information processing center or a person who was once in such position must not leak a secret
he could know with respect to the information processing works.
(Books)
Article 13-8
The information processing center must maintain books, as provided by the Ordinance of the Ministry of the Environment, enter
the matters specified by the Ministry of Health and Welfare Ordinance regarding the information processing works and keep them.
(Report and On-site Inspection)

Article 13-9
1 The Minister of the Environment may have the information processing center submit necessary reports on the information
processing works or the financial condition or have his/her personnel enter the office of the information processing center and
inspect the condition of information processing works or books, documents and other Articles only to the extent required for
securing adequate operation of the information processing works.
2 The personnel making an on-site inspection according to the provision of the preceding Paragraph must carry an identification
certificate and show it to the individuals concerned.
3 The power of on-site inspection according to the provision of Paragraph 1 shall not be construed as that authorized for the sake
of criminal.
(Supervisory Order)
Article 13-10
The Minister of the Environment may give necessary orders to the information processing center wit respect to the information
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processing works to the extent required for enforcement of the provisions of thi subsection.
(Revocation of Designation)
Article 13-11
1 When the information processing center comes under any of the following Items, the Minister of the Environment may revoke
the designation under the provision of Paragraph 1 of Article 13-2 (referred to simply as “designation” in the following in this
Article).
1) When recognized that the information processing works are no longer appropriately and exactly carried out.
2) When there was an unlawful act regarding the designation.
3) When violating either any of the provisions of this subsection or an order or disposition based said provision or performed the
information processing works without following the approved operational rules in Paragraph 1 of Article 13-4.
2 When the Minister of the Environment revoked the designation according to the provision of the preceding Paragraph, he must
publicly notify to that effect. Subsection 2 Industrial Waste Appropriate Management Promotion Center
(Designation)
Article 13-12
The Minister of the Environment may designate a corporation established under Article 34 of Civil Law and intended for promoting
voluntary activities of businesses for securing appropriate management of industrial waste and recognized as to be capable of
appropriately and exactly carrying out the services specified in the subsequent Article, upon its application, as the industrial waste
appropriate management promotion center (referred to as “appropriate management promotion center” in the following) which is
limited to only one throughout the country.
(Services)
Article 13-13
The appropriate management promotion center shall execute the works cited in the following.
1) Giving necessary advice or guidance to businesses for check or improvement of the method and system of industrial waste
management.
2) Collecting information concerning the industrial waste collection and transportation contractors and industrial waste disposal
contractors and furnishing such information to businesses.
3) Training the businesses and their employees for appropriate management of industrial waste.
4) Developing enlightenment activities and public relations which will contribute to securing appropriate management of industrial
waste.
5) Where industrial waste is inappropriately disposed, extending cooperation including execution of the removal of said industrial
waste and funding to the prefectures taking the measures of removing hazards or the like under the provision of Paragraph 1 of
Article 19-8.
6) Executing works incidental to the works cited in the preceding Items.
(Special Provisions for Permission or the like of Industrial Waste Management Service)
Article 13-14
1 When the appropriate management promotion center or person entrusted by the center undertakes removal of industrial waste
or the like upon request for cooperation under the provision of Article 19-9, said center or person may execute the removal and
other necessary acts as a trade without permission notwithstanding the provision of Paragraph 1 or 4 of Article 14 or Paragraph
1 or 4 of Article 14-4.
2 In the case of entrusting the acts specified in the preceding Paragraph to any other person, the appropriate management
promotion center must follow the standards specified by the Cabinet Order.
(Fund)
Article 13-15
1 The appropriate management promotion center shall provide a fund for the works specified in the Items of Article 13-13 and
may appropriate the total amount of the contributions from the businesses on condition that they are appropriated for the
expenses required for the works.
2 The Minister of the Environment shall try to obtain necessary cooperation of the businesses for the contributions to the fund
provided in the preceding Paragraph.
(Application of Provisions of Other Articles)

Article 13-6
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The provisions of Paragraphs 2 through 4 of Article 13-2, Article 13-5, Article 13-10 and Article 13-11 shall apply by analogy to
the appropriate management promotion center. In this case, the wording “information processing works” in Article 13-5, Article
13-10 and Item 1) of Paragraph 1 of Article 13-11 shall be interpreted as “works cited in the Items of Article 13-13,” and in Item 3)
of the same Paragraph “either - - or said” be interpreted as “or said” and “when violated or performed the information processing
works without following the approved working rules in Paragraph 1 of Article 3-4” be interpreted as “when violated.”
Section 3 Industrial Waste Management Service

(Industrial Waste Management Service)
Article 14
1 No person is allowed to undertake as a service the collection and transport of industrial waste (excluding specially controlled
industrial waste; the same will apply in the rest of this Article to Article 14-3-2 and Article 15-4-2 ) without permission from
the prefectural governor with the jurisdiction over the area in which the person is to conduct the service (or of the area in which
that person is to load and unload industrial waste if the person is to conduct a transport service only), except for a service
(provided he/she is to transport the industrial waste by him/herself), a person undertaking the collection and transport of
industrial waste solely for recycling as a business and anyone specified in the Ordinance of the Ministry of the Environment.
2 The permission mentioned in the preceding Paragraph becomes invalid upon the lapse of a period not less than five years in
length prescribed by a Cabinet Order,unless the permission is renewed for another year.
3 The prefectural governors shall not grant the permission mentioned in Paragraph 1 of this Article unless they judge that the
application for it satisfies the following requirements:
1) The facilities used for the service and the ability of the applicant are judged sufficient for the proper and continuous conducting
of the said service in the light of the standards set by the Ordinance of the Ministry of the Environment.
2) The applicant is none of the persons specified in the following.
a. The person is any of the one who comes under a. to e. of Item 4) of Paragraph 3 of Article 7.
b. A gang member who is specified by Paragraph 6 of Article 2 of the Law for Prevention of Unjustified Action by Gang
(referred to as "gang member" in this Item) or the one who becomes not a gang member but still is short of one's fifth year
from that day (referred to as "gang member or the like" in this Item).
c. In regard to sales activities, a minor who lacks the abilities of an adult and whose lawful deputy is a person specified in one
of a. or b..
d. A legal person whose director or employee specified by the Cabinet Order is a person specified in one of (a) or (b).
e. A legal person whose activities are controlled by a gang member or the like.
f. An individual and an employee specified by the Cabinet Order is a person specified in one of a. or b.
4 No person is allowed to undertake as a service the disposal of industrial waste without permission from the prefectural governor
with the jurisdiction over the area in which the person is to conduct the service, except for a business (provided he/she is to
dispose of the industrial waste by him/herself), a person who is to dispose of industrial waste solely for recycling as a business
and anyone specified in the Ordinance of the Ministry of the Environment
6 The prefectural governors shall not grant the permission mentioned in Paragraph 4 of this Article unless they judge that the
1) The facilities used for the business and the ability of the applicant are sufficient for the proper and continuous conducting of
the waste disposal service in the light of the standards specified by the Ordinance of the Ministry of the Environment.
2) The applicant is none of the persons specified in a. to f. of Item 2) of Paragraph 3.
7 4 of this Article may be granted with conditions necessary for the conservation of the living environment attached to it.
8 A person who has procured the permission mentioned in Paragraph 1 of this Article (who will hereinafter be referred to asn
"industrial waste collection and transport contractor") and one who has procured the permission mentioned in Paragraph 4 of
this Article (who will hereinafter be referred to asn "industrial waste disposal contractor") shall perform their industrial waste
collection and transport activities and industrial waste disposal activities respectively in conformance with the industrial waste
management standards.
9 Any other persons than the industrial waste collection and transportation contractors, industrial wastedisposal contractors and
others specified by the Ordinance of the Ministry of the Environment, shall not have the collection, transportation or disposal
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of industrial waste entrusted.
10 The industrial waste collection and transport contractors and industrial waste disposal contractors shall not commission anyone
to collect and transport or dispose of industrial waste, but they may re-commission someone to collect and transport or dispose
of the industrial waste committed to them by a service, in conformance with the standards prescribed by a Cabinet Order, or
commission someone to perform their collection and transport function or disposal function in accordance with the Ordinance
of the Ministry of the Environment.
11 The provisions in Paragraph 11 and 12 of Article 7 also apply to the industrial waste collection and transport contractors and
industrial waste disposal contractors. "Municipal solid waste" in Paragraph 11 thereof, however, shall be interpreted as
"industrial waste".

Article 14-2
1 An industrial waste collection and transport contractor or industrial waste disposal contractor shall obtain the prefectural
governor's permission for any change of the scope of the collection and transport service or disposal service except
discontinuation of part of the service.
2 The provisions of Paragraph 3 and 7 of the preceding Article also apply to the permission for a change of the scope of the
collection and transport service mentioned in the preceding Paragraph, and the provisions of Paragraph 6 and 7 thereof apply
to the permission for a change of the scope of the disposal service also mentioned in the preceding Paragraph.
3 The provision of Paragraph 3 of Article 7-2 shall apply to the industrial waste collection and transport contractors and industrial
waste disposal contractors. "Municipal solid waste" in the same Paragraph, however, shall be interpreted as "industrial waste",
and "mayor of the municipality" as "prefectural governor". "Mayor of the municipality" in Article 7-3 shall be interpreted as
"prefectural governor".
(Revocation of Permission or the like)

Article 14-3
In case a industrial waste collection and transport contractor or industrial waste disposal contractor becomes the one who falls under
one of the following Items, the prefectural governor may revoke the permission or order that particular contractor to suspend the
whole or part of the service for a prefixed period.
1) When the person violates laws, or demand or ask another person to act against laws, or indicate or help another person to do so.
2) When the facility in which the person uses for the service or the capability of that person becomes not to satisfy the standards
prescribed in Item 1) of Paragraph 3 or Item 1) of Paragraph 6 of Article 14.
3) When the person becomes to be one of a. to f. of Item 2) of Paragraph 3 of Article 14.
4) When the person violates the condition attached to the said permission specified in Paragraph 7 of Article 14.
(Prohibition of Nominal Transfer)

Article 14-3-2
The industrial waste collection and transportation contractors and industrial waste disposal contractors must not have any other
person perform collection or transportation or disposal of industrial waste as a trade under their own names. Section 4 Specially
Controlled Industrial Waste Management Service
(Specially Controlled Industrial Waste Management Service)

Article 14-4
1 No person is allowed to undertake as a service the collection and transport of specially controlled industrial waste without
permission from the prefectural governor with the jurisdiction over the area in which the person is to conduct the service (or
over the area in which the person is to load and unload specially controlled industrial waste if he is to conduct a transport service
only), except for a service (provided he is to transport the specially controlled industrial waste by him/herself) or anyone
specified in the Ordinance of the Ministry of the Environment.
3 The prefectural governor shall not grant the permission mentioned in Paragraph 1 of this Article unless he/she judges that the
1) The facilities used for the service and the ability of the applicant are judged sufficient for the proper and continuous conducting
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of the said service in the light of the standards set by the Ordinance of the Ministry of the Environment.
2) The applicant is none of the persons specified in a. to f. of Item 2) of Paragraph 3 of Article 14.
4 No person is allowed to undertake as a service the disposal of specially controlled industrial waste without permission from the
prefectural governor with the jurisdiction over the area in which that person is to conduct the disposal service, except for an
business (provided he is to dispose of the specially controlled industrial waste by him/herself) and anyone specified in the
6 The prefectural governor shall not grant the permission mentioned in Paragraph 4 of this Article unless he judges that the
1) The facilities used for the service and the ability of the applicant are sufficient for the proper and continuous conducting of the
waste disposal service in the light of the standards set by the Ordinance of the Ministry of the Environment.
7 The permission mentioned in Paragraph 1 or 4 of this Article may be granted with conditions necessary for the conservation of
the living environment attached to it.
8 A person who has procured the permission mentioned in Paragraph 1 of this Article(who will hereinafter be referred to as
"specially controlled industrial waste collection and transport contractor") and one who has procured the permission mentioned
in Paragraph 4 of this Article (who will hereinafter be referred to as "specially controlled industrial waste disposal contractor")
shall perform specially controlled industrial waste collection and transport activities and specially controlled industrial waste
disposal activities respectively in conformance with the specially controlled industrial waste management standards.
9 Any other persons than the specially controlled industrial waste collection and transportation contractors, specially controlled
industrial waste disposal contractors and others specified by the Ordinance of the Ministry of the Environment must not have
the collection and/or transportation or disposal of industrial waste entrusted.
10 The specially controlled industrial waste collection and transport contractors and specially controlled industrial waste disposal
contractors shall not commission anyone to collect and transport or dispose of specially controlled industrial waste, but they
may re-commission someone to collect and transport or dispose of the specially controlled industrial waste committed to them
by a service, in conformance with the standards prescribed by a Cabinet Order, or commission someone to perform their
collection and transport function or disposal function in accordance with the Ordinance of the Ministry of the Environment.
11 Despite the provision in Paragraph 1 or 4 of Article 7, the specially controlled industrial waste collection and transport
contractors, specially controlled industrial waste disposal contractors and some other persons specified by the Ordinance of the
Ministry of the Environment may undertake as a service the collection and transport or disposal of special municipal solid waste
in accordance with the Ordinance of the Ministry of the Environment. In that case, they shall conduct their waste collection and
transport service or disposal service in conformance with the specially controlled municipal solid waste management standards.
12 The provisions of Paragraph 11 and 12 of Article 7 also apply to the specially controlled industrial waste collection and
transport contractors and specially controlled industrial waste disposal contractors. "Municipal solid waste" in Paragraph 11 of
Article 7, however, shall be interpreted as "specially controlled industrial waste (including specially controlled municipal solid
waste in the case of a contractor conducting a specially controlled industrial waste collection and transport or disposal service
under the provision of Paragraph 11 of Article 14-4 )".

Article 14-5
1 A specially controlled industrial waste collection and transport contractor or specially controlled industrial waste disposal
contractor shall obtain the prefectural governor's permission for any change of the scope of the collection and transport service
or disposal service except discontinuation of part of the service.
2 The provisions of Paragraph 3 and 7 of the preceding Article also apply to the permission for a change of the scope of the
collection and transport service mentioned in the preceding Paragraph, and the provisions of Paragraph 6 and 7 thereof apply
to the permission for a change of the scope of the disposal service also mentioned in the preceding Paragraph.
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3 The provision of Paragraph 3 of Article 7-2 also applies to the specially controlled industrial waste collection and transport
contractors and specially controlled industrial waste disposal contractors. "Municipal solid waste" in that provision, however,
shall be interpreted as "specially controlled industrial waste", and "mayor of the municipality" as "prefectural governor".

Article 14-6
The provision of Article 14-3 also applies to specially controlled industrial waste collection and transport contractors and specially
controlled industrial waste disposal contractors. In this case, "Item 1) of Paragraph 3 or Item 1) of Paragraph 6 of Article 14-3" in
Item 2) of the same Article shall be interpreted as "Item 1) of Paragraph 3 or Item 1) of Paragraph 6 of Article 14-4", and "Paragraph
7 of Article 14" in Item 4) of the same Article as "Paragraph 7 of Article 14-4".
(Prohibition of Nominal Transfer)

Article 14-7
The specially controlled industrial waste collection and transportation contractors and specially controlled
industrial waste disposal contractors must not have any other person perform the collection or transportation
or disposal of specially controlled industrial waste as a trade under their own names.
Section 5 Industrial Waste Disposal Facility
(Industrial Waste Disposal Facility)

Article 15
1 Any person desiring to install an industrial waste disposal facility (referring to those waste plastics treatment facilities, final
disposal site for industrial waste and other industrial waste disposal facilities which are specified by the Cabinet Order; same
in the following) must obtain the permission of the prefectural governor with the jurisdiction over the place of installation of
said industrial waste disposal facility.
2 The person desiring to obtain the permission of the preceding Paragraph must file an application stating the matters listed below,
as provided by the Ordinance of the Ministry of the Environment.
1) Name or title and address, and in the case of a legal parson, name of its representative
2) Place of installation of the industrial waste disposal facility
3) Type of the industrial waste disposal facility
4) Type of industrial waste disposed at the industrial waste disposal facility
5) Disposal capacity of the industrial waste disposal facility (or, in the case of a final disposal site for industrial waste, area and
landfill capacity of the site used for landfill disposal of industrial waste)
6) Plan for installation including location, structure or the like of the industrial waste disposal facility
7) Plan for operation and maintenance of the industrial waste disposal facility
8) In the case of a final disposal site for industrial waste, plan for disaster prevention
9) Any other matters specified by the Ordinance of the Ministry of the Environment.
3 The application of the preceding Paragraph must accompany a document stating the result of investigation of any effects of the
installation of said industrial waste disposal facility on he living environment in the surrounding area, as provided by the
4 The prefectural governor, when he received an application for permission of Paragraph 1 for an industrial waste disposal facility
(limited to those specified by the Cabinet Order), must without delay publicly notify the matters cited in Items 1) through 4) of
Paragraph 2 and the date of application and place of reference, and offer the application of the said Paragraph and the document
of the preceding Paragraph for a period of one month from the day of said publication.
5 The prefectural governor, when he has made the notification according to the provision of the preceding Paragraph, must without
delay notify to that effect to the heads of the municipalities concerned for conservation of the living environment with respect
to installation of said industrial waste disposal facility and hear the opinions of said heads of municipalities from the standpoint
of conservation of the living environment with a period specified.
6 Where there was the notification under the provision of Paragraph 4, any person who has interests in the installation of said
industrial waste disposal facility may file a statement of opinion from the standpoint of conservation of the living environment
with the prefectural governor by the day elapsing two weeks calculated from the day next to the day of expiration of the
reference of the same Paragraph.
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(Standards on Permission)
Article 15-2
1 The prefectural governor shall not grant the permission specified in Paragraph 1 of the preceding Article, unless he judges that
the application for that permission satisfies both of the following requirements:
1) A plan for installation of industrial waste disposal facilities shall satisfy the technical standards set by the Ordinance of the
Ministry of the Environment(or by the ordinances of the Office of the Prime Minister and the Ministry of Health and Welfare
in the case of a final disposal site for industrial waste).
2) The plan for installation and the plan for operation and maintenance of industrial waste disposal facilities shall have adequate
considerations incorporated for conservation of the living environment in the surrounding area of the said industrial waste
disposal facilities as well as the surrounding area specified by the Ordinance of the Ministry of the Environment.
3) The capability of the applicant is sufficient for the proper and continuous conducting of the installation and operation and
maintenance of industrial waste disposal facilities in accordance with the plan of its installation and the plan of its operation
and maintenance in the light of the standards set by the Ordinance of the Ministry of the Environment.
2 The prefectural governors may not grant the permission of the Paragraph 1 of the preceding Article, when they judge that it
may become difficult to satisfy the air environment standards, since refuse treatment facilities or industrial waste disposal
facilities would become concentrated too much by installing the facility relating to the said permission.
3 The prefectural governor, before giving the permission of Paragraph 1 of the preceding Article (limited that which pertains to
the industrial waste disposal facility specified in Paragraph 4 of the same Article), must hear the opinions concerning the matters
specified in Item 2) of Paragraph 1 from the persons owning special knowledge on the matters specified by the Ordinance of
the Ministry of the Environment with respect to conservation of the living environment.
4 The permission of Paragraph 1 of the preceding Article, may have necessary conditions attached for conservation of the living
environment.
5 The person having the permission of Paragraph 1 of the preceding Article, granted (referred to as“installer of industrial waste
disposal facility” in the following) shall not use the industrial waste disposal facility pertaining to said permission before it is
recognized upon inspection by the prefectural governor that it is in conformity with the plan for installation stated in the
application of Paragraph 2 of the preceding Article, pertaining to said permission.
(Operation and Maintenance of Industrial Waste Disposal Facility)

Article 15-2-2
The installer of an industrial waste disposal facility must operation and maintenance said industrial wast disposal facility in
accordance with the technical standards specified in the Ordinance of the Ministry of th Environment and the plan for operation and
maintenance stated in the application of Paragraph 2 of Articl 15, pertaining to the permission of said industrial waste disposal
facility (or, when the permission of Paragraph 1 of Article 15-2-4 is granted for the plan, the plan after change).
(Application by Analogy)
Article 15-2-3
The provision of Article 8-4 applies to a installer of an industrial waste disposal facility (only those who were granted the permission
of Paragraph 1 of Article 15 on the industrial waste disposal facility prescribed in Paragraph 4 of the same Article), and the provision
of Article 8-5 applies to the person who was granted the permission of the same Article for the final disposal site for industrial waste
prescribed by the Ordinance of the Ministry of the Environment.” In this case, “the permitted municipal solid waste disposal facility”
and“the municipal solid waste disposal facility” in Article 8-4 shall be interpreted as “the industrial waste disposal facility”, “a
specific final disposal site for municipal solid waste” in Paragraph 1 of Article 8-5 as “a specific final disposal site for industrial
waste”, “a final disposal site for municipal solid waste that is the municipal solid waste disposal facility” as “a final disposal site
for industrial waste that is the industrial waste disposal facility”, ”Paragraph 1 of Article 8” as “Paragraph 1 of Article 15”, “a
specific final disposal site for municipal solid waste” in Paras.4 and 6 of Article 8-5 as “specific final disposal site for industrial
waste”, “Paragraph 3 of Article 9-5, Paragraph 1 of Article 9-6 and Paragraph 1 of Article 9-7” in Paragraph 7 of Article 8-5 as
“Paragraph 3 of Article 9-5, Paragraph 1 of Article 9-6 and Paragraph 1 of Article 9-7 which are applied in Article 15-4”, and
“Paragraph 1 of Article 8” as “Paragraph 1 of Article 15”.
(Permission of Change or the like)

Article 15-2-4
1 The installer of an industrial waste disposal facility must obtain the permission of the prefectural governor, as provided by the
Ordinance of the Ministry of the Environment when he desires to change any of the matters cited in Items 4) through 7) of
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Paragraph 2 of Article 15, pertaining to said permission. Provided, the preceding shall not apply when hr change is a minor
change specified by the Ordinance of the Ministry of the Environment.
2 The provisions of Paragraph3 to Paragraph 6 of Article 15 and Paragraph 1 to Paragraph 4 of Article 15-2 also apply to the
permission mentioned in the preceding Paragraph, and the provision of Paragraph 5 of the same Article applies to a person who
has procured the said permission.
3 The provisions of Paragraphs 3 through 5, Article 9 shall apply by analogy to the installer of an industrial waste disposal facility.
In this case, the wording, in Paragraph 3 of the same Article, “provisoion of Paragraph 1” shall be interpreted as “provision of
Paragraph 1of Article 15-2-4,” “Item 1) of Paragraph 2 of the same Article” be interpreted as “Item 1) of Paragraph 2 of Article
15,” “municipal solid waste disposal facility pertaining to said permission” be interpreted as “said industrial waste disposal
facility,” and“municipal solid waste” be interpreted as “industrial waste” and “municipal solid waste disposal facility” be
interpreted as “industrial waste disposal facility” and, in Paragraphs 4 and 5 of the same Article, “municipal solid waste disposal
facility pertaining to said permission” be interpreted as “said industrial waste disposal facility” and “municipal solid waste” be
interpreted as “industrial waste.”
(Revocation of Permission or the Like)

Article 15-3
The prefectural governors may revoke the permission of Paragraph 1 of Article 15 pertaining to the said industrial waste disposal
facility, or order the installer to make the necessary improvements of the said industrial waste disposal facility within a specified
period of time or suspend its operation for a specified period of time, when there is a case which falls under one of the following
Items.
1) Where the structure of industrial waste disposal facility pertaining to the permission of Paragraph 1 of Article 15 or its operation
and maintenance is recognized as not complying with the technical standards provided in Item 1) of Paragraph 1 of Article 15-
2 or Article 15-2-2 or the plan concerning installation or plan for operation and maintenance set forth in the application of
Paragraph 2 of Article 15 pertaining to the said permission (or if the permission of Paragraph 1 of the preceding Article is
granted for that plan, the modified plan is applied).
2) When the capability of the installer of industrial waste disposal facilities is recognized as not satisfying the standards specified
by the Ordinance of the Ministry of the Environment in Item 3) of Paragraph 1 of Article 15-2.
3) When the installer of industrial waste disposal facilities takes actions which violate the Laws, or demands, asks or indicates
another person to act against the Laws, or helps another person to do so.
4) When the installer of industrial waste disposal facilities becomes to be one of a. to f. of Item 2) of Paragraph 3 of Article 14.
5) When the installer of industrial waste disposal facilities violates the condition attached to the said permission under the provision
of Paragraph 4 of Article 15-2.

Article 15-4
1 The provision of Article 9-4 also applies to the installer of industrial waste disposal facilities, and the provisions of Article 9-5
to Article 9-7 apply to industrial waste disposal facilities. In this case, "municipal solid waste disposal facilities" in Article 9-4
shall be interpreted as "industrial waste disposal facilities", "Paragraph 1 of Article 8" in Article 9-5 as "Paragraph 1 of Article
15", and "Paragraph 1 of Article 8-2" in Paragraph 2 of the same Article and Paragraph 2 of Article 9-6 as "Paragraph 1 of
Article 15-2". Section 6 Special Provisions Pertaining to Recycling of Industrial Waste Article 15-4-2 As specified by the
Ordinance of the Ministry of the Environment, any person performing or desiring to perform recycling of industrial waste
specified by the Ordinance of the Ministry of the Environment may obtain approval of the Minister of the Environment for
conformity with any of the following Items.
1) That the contents of said recycling comply with the standards specified by the Ordinance of the Ministry of the Environment
as one not hazardous to conservation of the living environment.
2) That the contents of said recycling comply with the standards specified by the Ordinance of the Ministry of the Environment
as one not hazardous to conservation of the living environment.
3) That the facility which the person specified in the preceding Item installs or going to install for use for said recycling complies
with the standards specified by the Ordinance of the Ministry of theEnvironment.
2 The provision of Paragraph 2 of Article 9-8 shall apply to the approval of the preceding Paragraph, and the provisions of
Paragraphs 3 and 4of the same Article to the person having the approval of the preceding Paragraph granted. In such case, the
wording in Paragraph 3 of the same Article “Paragraph 1 or 4 of Article 7 or Paragraph 1 of Article 8” shall be interpreted as
“Paragraph 1 or 4of Article 14 or Paragraph 1ofArticle 15”; “municipal solid waste” be interpreted as “industrial waste”;
“municipal solid waste disposalfacility” be interpreted as “industrial waste disposal facility”; and in Paragraph 4 of the same
Article“Paragraphs 9, 11 and 12 of Article 7” be interpreted as “Paragraphs 8, 9 and 11 of Article 14”; “municipal solid waste
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collection and transportation contractor” be interpreted as “industrial waste collection and transportation contractor” and
“municipal solid waste disposal facility” be interpreted as “industrial waste disposal facility”; and in Paragraphs 5 and 6 of the
same Article “Paragraph 1” be interpreted as “Paragraph 1 of Article 15-4-2.” Section 7 Export and Import of Industrial Waste
(Permission for Import)

Article 15-4-3
1 A person intending to import waste (excluding navigational waste and carried-in waste; the same will apply to Paragraph 3 of
this Article) shall procure the Minister of the Environment's permission.
2 The Japanese central government and other authorities/persons specified in the Ordinance of the Ministry of the Environment
are not subject to the provision of the preceding Paragraph.
3 The Minister of the Environment shall not grant the said permission unless he judges that the application for it satisfies the
following requirements:
1) It is judged that the waste to be imported (which will hereinafter be referred to as "foreign waste") are likely to be properly
treated of in Japan in the light of the currently available equipment and technique for disposal of the said foreign waste.
2) The applicant must fall under one of the following categories:
a. An industrial waste disposal contractor or specially controlled industrial waste disposal contractor with a scope of service
including the disposal of the particular foreign waste
b. A person with an industrial waste disposal facility capable of disposing of the said foreign waste (excluding the contractor
specified in a. hereof).
c. One specified by the Ordinance of the Ministry of the Environment
4 The permission mentioned in Paragraph 1 of this Article may be granted with conditions necessary for the conservation of the
living environment attached to it.
(Special Provision of Importer of Foreign Waste)

Article 15-4-4
1 An importer of foreign waste (except a business) shall be regarded as a business subject to the provisions of Paragraph 1 of
Article 11, Paragraph 1 to 4 of Article 12 and Paragraph 1 to 5 of Article 12-2. (Application of Provisions of Other Articles)
Article 15-4-5 The provision of Article 10 also applies to anyone exporting industrial waste. "Municipality" in Item 4) of
Paragraph 1 of that Article, however, shall be interpreted as "business" (provided he exports the said industrial waste by
him/herself). The other necessary replacements of terms in the provision of that Article are prescribed by a Cabinet Order.
2 The provisions of Paragraph 1 of Article 12-3 and Paragraph 1 of Article 12-5 will also apply to an importer of foreign waste
(excluding a business who generates industrial waste as a result of his/her activities).
CHAPTER III-II WASTE MANAGEMENT CENTER
(Designation)
Article 15-5
1 The Minister of the Environment is entitled to designate a legal person of dealing with investment and donation of the central
government and local governments (limited to those specified by the Cabinet Order), or other legal person of being applied to
be the said legal person specified by the Cabinet Order or the selected contractor specified in Paragraph 5 of Article 2 of the
Private Finace Initiative Law (Law No. 117 of 1999), which is established for the purpose of support of proper, wide-area
management of waste, in each prefecture in compliance with his/her application as a waste management center (which will
hereinafter be referred to as "center") provided the said legal person is judged to be capable of performing the activities
prescribed in the following Article.
2 When so designating a legal person as a center, the Minister of the Environment shall publicize the name and address of that
center and the location of its office.
3 When intending to change its name or address or the location of its office, the center shall give the Minister of the Environment
advance notice.
4 When receiving such advance notice prescribed in the preceding Paragraph, the Minister of the Environment shall publicize the
particulars of the notice.
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(Activities)
Article 15-6
A center shall perform all or some of the following activities in accordance with the Ordinance of the Ministry of the Environment:
1) Management of specially controlled municipal solid waste and installation, improvement, operation and maintenance of a
facility for disposal of such waste on commission from municipalities.
2) Management of the municipal solid waste specified in Paragraph 1 of Article 6-3 and installation, improvement, operation and
maintenance of a facility for disposal of such waste on commission from municipalities.
3) Management of the municipal solid waste, and the installation, improvement, operation and maintenance of a facility for
disposal of such waste on commission from municipalities (excluding the activities prescribed in the preceding two Items).
4) Management of specially controlled industrial waste and installation, improvement, operation and maintenance of a facility for
disposal of such waste.
5) Management of industrial waste and installation, improvement, operation and maintenance of a facility for disposal of such
waste (excluding the activities prescribed in the preceding Paragraph).
6) Activities incidental to those prescribed in each of the preceding Paragraphs.
(Fund)
Article 15-7
1 A center shall raise a fund for its activities prescribed in Items 2), 4) and 5) of the preceding Article by collecting contributions
from businesses and others on condition that those contributions will be spent to meet the expenses entailed by all or part of the
said activities of the center.
2 The Minister of the Environment shall endeavor to secure the needed cooperation of businesses and others in the form of
contribution to the fund mentioned in the preceding Paragraph through the minister with the supervisory power over the
businesses and others.
(Operational Plan)
Article 15-8
1 In each fiscal year, a center shall prepare an operational plan and a budgetary statement of income and expenditure and submit
them to the Minister of the Environment in accordance with the Ordinance of the Ministry of the Environment. To revise its
operational plan, the center shall prepare a revised operational plan and a revised income and expenditure budget and submit
them to the Minister of the Environment.
2 After the end of each fiscal year, a center shall prepared an operation report and a year-end income and expenditure report and
submit them to the Minister of the Environment in accordance with the Ordinance of the Ministry of the Environment.
(Separate Bookkeeping for Different Groups of Activities)

Article 15-9
A center shall keep books separately for the following groups of activities, establishing separate accounts fo them:
1) Activities prescribed in Items 1) and 3) of Article 15-6 and or and those incidental to them
2) Activities prescribed in 2 of Article 15-6 and those incidental to them
3) Activities prescribed in Items 4) and 5) of Article 15-6 and those incidental to them
(Charges)
Article 15-10
A center shall collect charges not short of the reasonable cost incurred under efficient management for its installation of an industrial
waste disposal facility and management of industrial waste.
(Granting of Subsidy or the Like)

Article 15-11
1 When a center constructs or improves a municipal solid waste disposal facility on commission from municipalities under the
provision of Article 15-6, the central government may grant to the center a subsidy for the expenses for the installation or
improvement work which is to be granted to municipalities under the provision of Article 22 or a subsidy included in the budget.
2 If the subsidy originally intended for municipalities is granted to the center under the provision of the preceding Paragraph, the
center shall be regarded as a subsidized business or the like under the Law Pertaining to Proper Appropriation of Funds for
Subsidies and Others in Budget.
(Disposal of Assets and Other Matters)
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Article 15-12
1 A Cabinet Order shall prescribe the manner of management and the manner of disposal for the assets at the final disposal site
for municipal solid waste (confined to a site for water area reclamation with municipal solid waste) installed on commission
from municipalities and other necessary matters pertaining to the management and disposal of the said assets.
2 In case the assets mentioned in the preceding Paragraph are disposed of within a period specified in a Cabinet Order, the
remainder, if any, after deduction of the expenses prescribed by a Cabinet Order from the total disposal price of the assets shall
be distributed to the party who bore the cost of constructing or improving the final disposal site and to the party who subsidized
that party. The same applies to the remainder, if any, after deduction of the cost prescribed by a Cabinet Order from the value
of the assets kept under management even after the said prescribed period as appraised upon lapse of that period.
(Report and Inspection)

Article 15-13
1 The Minister of the Environment is entitled to have a center submit the necessary report on the activities prescribed in all the
Paragraphs of Article 15-6 or the assets or have its officials inspect activities, books and documents or the like at the office of
the center only to the extent necessary to ensure proper performance of the said activities.
2 The officials sent for the inspection under the provision of the preceding Paragraph shall carry with them an identification
certificate and show it to the individuals concerned.
3 The power to make the inspection under the provision of Paragraph 1 of this Article shall not be understood as the right of
criminal investigation.
(Supervisory Order)
Article 15-14
The Minister of the Environment is entitled to issue a necessary supervisory order to a center with regard to the activities prescribed
in any of the Paragraphs of Article 15-6 only to the extent necessary to ensure observation of a provision in this chapter.
(Revocation of Designation and Other Matters)

Article 15-15
1 In any of the following cases, the Minister of the Environment may revoke the designation of Article 15-5 (which will hereinafter
be referred to as "designation"):
1) The center is judged to be incapable of properly and adequately performing the activities prescribed in any Paragraph of Article
15-6.
2) The center commits an illegitimate act regarding the designation.
3) The center violates any provision in this chapter, disobeys an order based on such provision or defies a punishment based on
such provision.
2 When he revokes the designation under the provision of the preceding Paragraph, the Minister of the Environment shall
publicize the revocation.
(Administrative Works Conducted by Prefectural Governors)

Article 15-6
A part of the administrative works given to the Minister of the Environment as its authority specified by this Chapter shall be
conducted by prefectural governors as specified by the Cabinet Order.
CHAPTER IV MISCELLANEOUS REGULATIONS
(Prohibition of Dumping)
Article 16
No person shall unnecessarily dump waste.
(Prohibition of Incineration)
Article 16-2
No one shall incinerate waste except the following methods.
1) Incineration of waste, which is conducted in accordance with the municipal solid waste disposal standards, the specially
controlled municipal solid waste disposal standards, the industrial waste disposal standards and the specially controlled
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industrial waste disposal standards.
2) Incineration of waste, which is conducted in accordance with the other laws or disposal method based on these laws.
3) Incineration of waste, which has no other way to incinerate for the reason of the public good or the social custom, or which
only has a slight impact to the living environment of the surrounding area as specified by the Cabinet Order.
(Restrictions on Use of Excreta)

Article 17
Excreta shall not be applied as a fertilizer unless the method of application is in accordance with the standard which is specified by
the Ordinance of the Ministry of the Environment.
(Collection of Report)
Article 18
1 The prefectural governors and the mayors of municipalities are entitled to demand from businesses, municipal solid waste and
industrial waste collection and transport contractors, municipal solid waste and industrial waste disposal contractors, installers
of a municipal solid waste disposal facility (including the superintendents of facilities installed by municipalities for the purpose
of disposal of municipal solid waste under Paragraph 1 of Article 6-2 ) and installers of an industrial waste disposal facility,
and the information processing center the Necessary reports on storage, collection, transport or disposal of waste or the structure
or operation and maintenance of a municipal solid waste or industrial waste only disposal facility only to the extent necessary
for enforcement of this Law.
2 The Minister of the Environment is entitled to demand from a person who intends to import or has alinterpretedy imported
foreign waste or one who intends to export waste the necessary report on the import of foreign waste or the export of waste, to
the extent necessary for enforcement of this Law.
(Spot Inspection)
Article 19
1 The prefectural governors and the mayors of municipalities are entitled, only to the extent necessary for the enforcement of this
Law, to have their officials enter the office or the place of business of a business, municipal solid waste or industrial waste
collection and transport contractor or municipal solid waste or industrial waste disposal contractor or the land or building where
a municipal solid waste or industrial waste disposal facility is located and inspect books and other documents related to the
storage, collection, transport and disposal of waste or related to the structure or operation and maintenance of a municipal solid
waste or industrial waste disposal facility or collect samples of the waste without paying any price only to the extent required
for a test.
2 The Minister of the Environment is entitled, only to the extent necessary for the enforcement of this Law, to have his/her
officials enter the office, the place of business or the like of a person who intends to import foreign waste or has alinterpretedy
imported them or one who intends to export waste and inspect books and other documents or collect samples of the waste
without paying any price only to the extent required for a test.
3 The officials making the said spot inspection under the provision of Paragraph 2 of this Article shall carry an identification
certificate with them and show it to the individuals concerned.
4 The right of spot inspection under Paragraph 1 and 2 of this Article shall not be construed as the right of criminal investigation.
(Measure In Respect of Product or the Like)

Article 19-2
To ensure proper management of waste, the Minister of the Environment is entitled to demand from the minister with the regulative
power over manufacturing, processing, sales and other business a measure to have those businesses place a mark indicating the
material and the method of processing it on a product, container or the like manufactured, processed, sold or otherwise handled by
the said businesses.
(Order for Improvement)

Article 19-3
To ensure proper management of municipal solid waste or industrial waste, the heads of the regional governments named in
Paragraph 1 or 2 of this Article in the case specified are entitled to order a person storing, collecting, transporting or disposing of
those waste (a business, municipal solid waste collection and transport contractor, municipal solid waste disposal contractor,
industrial waste collection and transport contractor, industrial waste disposal contractor, specially controlled industrial waste
collection and transport contractor or specially controlled industrial waste disposal contractor (who will be referred to asn
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"contractor or the like" in the rest of this Article) or an importer of foreign waste (excluding a business) to change the method of
storing, collecting, transporting or disposing of the waste or take some other necessary measure by a prefixed time limit.
1) The mayor of the municipality in case collection, transport or disposal of municipal solid waste nonconforming with the
municipal solid waste management standards (specially controlled municipal solid waste management standards in the case of
waste of that description) is performed by a person of whom conformance with the said standards is required.
2) The prefectural governor in case storage, collection, transport or disposal of industrial waste nonconforming with the industrial
waste disposal standards or industrial waste storage standards (specially controlled industrial waste management standards or
specially controlled industrial waste storage standards in the case of waste of that description) is performed by a person of
whom conformance with the said standards is required.
(Order for Actions)

Article 19-4
1 In the case where disposal of municipal solid waste nonconforming with the municipal solid waste disposal standards (the
specially controlled municipal solid waste disposal standards in the case of specially controlled municipal solid waste) is
conducted and it is recognized that there occurs or may occur a difficulty for conservation of the living environment, the mayor
of the municipality may order, to the extent required, the person executing the said disposal (excluding a municipality executing
the said disposal under the provision of Paragraph 1 of Article 6-2, and including, when the said disposal was made upon
entrustment in violation of the provision of Paragraph 10 of Article 7, or Paragraph 3 or 4 of Article 12, the person assigned
such entrustment, and he/she shall be referred to as “disposer or the like” in Article 19-7) to take necessary measures for removal
or prevention of occurrence of the difficulty (referred to as “measures for removal or the like of difficulty” in the following)
within a specified time.
2 When an order according to the provision of the preceding Paragraph is rendered, a statement of order setting forth the matters
specified by the Ordinance of the Ministry of the Environment must be delivered.
Article 19-5
1 In the case where disposal of industrial waste nonconforming with the industrial waste disposal standards (the specially
controlled industrial waste disposal standards in the case of specially controlled industrial waste) is conducted and it is
recognized that there occurs or may occur a difficulty for conservation of the living environment, the prefectural governor (in
the case of the person conducted the said disposal is the one who imported the said indutrial waste, the Minister of the
Environment or the prefectural governors, and the same shall apply in the next Article and Article 19-8) may order, to the extent
required, the person of the following (referred to as "disposer or the like"in the next Article and Article 19-8) to take necessary
measures for removal of the difficulty within a specified time.
1) The person who conducted the said disposal (excluding the municipality or prefecture which conducted the said disposal as
their work under the provision of Paragraph 2 or 3 of Article 11 ).
2) When the said disposal was made upon entrustment in violation of the provision of Paragraph 3 or 4 of Article 12, Paragraph
3 or 4 of Article 12-2, Paragraph 10 of Article 14 or Paragraph 10 of Article 14-
4, the person assigned such entrustment.
3) The person, in the case which falls under one of the following, with regard to duties relating to control manifests in the whole
process of disposal from generation of the said industrial waste to its disposal (including duties relating to the use of the
electronic information processing system, in the case it is used).
a. In violation of the provision of Paragraph 1 of Article 12-3, the person who did not issue a control manifest, or issued a
control manifest without entering the particulars specified by the same Paragraph or with entering the false information.
b. In violation of the provision of the former part of Paragraph 2 of Article 12-3, the person who did not send a copy of a control
manifest, or sent a copy of a control manifest without entering the particulars specified by the former part of the same
Paragraph or with entering the false information.
c. In violation of the provision of the latter part of Paragraph 2 of Article 12-3, the person who did not forward a control
manifest.
d. In violation of the provision of Paragraph 3 or 4 of Article 12-3 or Paragraph 5 of Article 12-5, the person who did not send
a copy of a control manifest, or sent a copy of a control manifest without entering the particulars specified by these provisions
or with entering the false information.
e. In violation of the provision of Paragraph 5 of Article 12-3, the person who did not keep a copy of a control manifest.
f. In violation of the provision of Paragraph 7 of Article 12-3, the person who did not take necessary measures.
g. The person who made the false registration when registering under the provision of Paragraph 1 of Article 12-5.
h. In violation of the provision of Paragraph 2 or 3 of Article 12-5, the person who did not report or report the false information.
i. In violation of the provision of Paragraph 10 of Article 12-5, the person who did not take necessary measures.
4) The person who conducted the said disposal, or the one who demanded or asked to the person who are specified in the preceding
two Items to do the said disposal or to take actions which are against the provisions of the preceding two Items (hereinafter
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referred to as "the said disposal or the like"), or indicated or helped these persons to do the said disposal or the like.
2 The provision of Paragraph 2 of the preceding Article will also apply to the orders made under the provision of the preceding
Paragraph.
Article 19-6
1 In the case prescribed by Paragraph 1 of the preceding Article, when it is recognized that there occurs or may occur a difficulty
for conservation of the living environment as well as that it falls under every of the following Item, the prefectural governor
may order the business who generates the said industrial waste as a result of the business activities (in the case of the said
industrial waste of being industrial waste of intermediate treatment, contractors in the whole process of disposal from its
generation to the said disposal and contractors of intermediate treatment excluding disposers or the like, and they shall be
referred to as "generator or the like" hereinafter) to take necessary measures for removal of the difficulty within a specified
time. In this case, the said measures shall be ranged considerably from the points of the nature of the said industrial waste, its
quantity, the way of disposal and the other circumstances.
1) From the points of resources or other circumstances of disposers or the like, it is difficult to take necessary measures to remove
the difficulty by disposers or the like alone, or it would not be enough, even if they did so.
2) Generators or the like are not paying the proper amount of money on disposal of the said industrial waste and they know or
can know the said disposal will be conducted, or it is appropriate to make generators or the like take measures for removal of
the difficulty in the light of the provision of Paragraph 5 of Article 12 or Paragraph 5 of Article 12-2.
2 The provision of Paragraph 2 of Article 19-4 will also apply to the orders made under the provision of the preceding Paragraph.
(Measures for Removal or the like of Difficulty for Conservation of Living Environment)
Article 19-7
1 In any of the cases cited in Items of Paragraph 1 of Article 19-4, where it is recognized that there occurs or may occur a difficulty
for conservation of the living environment and that any of the following Items is applicable, the person specified in each Item
may take by him/herself the whole or part of the measure for removal, etc of difficulty. In such case, if Item 2) is recognized to
be applicable, he must publicly notify in advance and with a period specified that the measure for removal or the like of said
difficulty should be taken and that when the measure for removal or the like of said difficulty is not taken, he would take by
him/herself the measure for removal or the like of said difficulty and collect the expense required for said measure.
1) Under the provision of Paragraph 1 of Article 19-4, where disposers or the like ordered to take measures for removal of the
difficulty do not act by the specified time pertaining to the said order, take but insufficiently or are not likely to take.
2) Where it is difficult, in giving the order to take measures for removal of the difficulty under the provision of Paragraph 1 of
Article19-4, to specify the disposer to whom measures for removal of the difficulty be ordered because of the absence of
negligence.
3) Where there is an urgent need to take measures for removal of the difficulty and there is no time to order to do so under the
provision of Paragraph 1 of Article 19-4.
2 When the mayor of the municipality has taken, wholly or partly, measures for removal of the difficulty in the preceding
Paragraph under the same Paragraph, he may have disposers or the like bear the expense required for measures for removal of
the difficulty, as provided by the Ordinance of the Ministry of the Environment.
3 For collection of the expense to be borne under the provision of the preceding Paragraph, the provisions of Articles 5 and 6,
Administrative Acts Subrogation Law will be applied.
Article 19-8
1 In the cases specified by Paragraph 1 of Article 19-5, where it is recognized that there occurs or may occur a difficulty for
conservation of the living environment and that any of the following Items is applicable, prefectural governors may take by
themselves the whole or part of measures for removal of the difficulty. In this case, if Item 2 is recognized to be applicable,
they must publicly notify in advance and with a specified period that measures for removal of the said difficulty should be taken
and that when measures for removal of the said difficulty is not taken, they would take by themselves measures for removal of
the said difficulty and collect the expense required for the said measures.
1) Under the provision of Paragraph 1 of Article 19-5, where disposers or the like ordered to take measures for removal of the
2) Where it is difficult, in giving the order to take measures for removal of the difficulty under the provision of Paragraph 1 of
Article19-5, to specify the disposer to whom measures for removal of the difficulty be ordered because of the absence of
negligence.
3) Under the provision of Paragraph 1 of Article 19-6, where generator or like ordered to take measures for removal of the
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4) Where there is an urgent need to take measures for removal of the difficulty and there is no time to order to do so under the
provision of Paragraph 1 of Article 19-5 or Paragraph 1 of Article 19-6.
2 When the prefectural governors have taken, wholly or partly, measures for removal of the difficulty in the provision of the
preceding Paragraph (excluding the cases relating to Item 3)) under the same Paragraph, they may have the said disposers or
the like bear the expense required for measures for removal of the difficulty, as provided by the Ordinance of the Ministry of
the Environment.
3 When the prefectural governors have taken, wholly or partly, measures for removal of the difficulty in the provision of
Paragraph 1 (In the case which may be concerned with Item 3 only)) under the same Paragraph, they may have the said generator
or the like bear the expense required for measures for removal of the difficulty, as provided by the Ordinance of the Ministry
of the Environment.
4 When it is recognized that the prefectural governors have taken, wholly or partly, measures for removal of the difficulty in the
provision of Paragraph 1 (In the case which may be concerned with Item 4 only) under the same Paragraph and that it falls
under every of Item of Paragraph 1 of Article 19-6, they may have the said generator or the like bear the expense required for
measures for removal of the difficulty, as provided by the Ordinance of the Ministry of the Environment. In this case, the
amount to be borne to the said businesses who generate waste or the like shall be considerable from the points of the nature of
the said industrial waste, its quantity, the way of disposal and the other circumstances.
5 For collection of the expense to be borne under the provision of the preceding Paragraph, the provisions of Articles 5 and 6 of
Administrative Acts Subrogation Law shall be applied.
(Cooperation of Appropriate Management Promotion Center)

Article 19-9
When the prefectural governor is to take the measure for removal or the like of a difficulty for conservation of the living environment
under the provision of Paragraph 1of preceding Article, he/she may request the Appropriate Management Promotion Center to
cooperate for implementation of the measure for removal or the like of the difficulty as specified by the Ordinance of the Ministry
of the Environment.
(Preparation of Record of Final Disposal Site and Other Matters)

Article 19-10
1 The prefectural governor shall prepare a record of final disposal sites of which he was notified under 4 of Article 9 (or according
to Paragraph 10 of Article 9-3 or Paragraph 3 of Article 15-2-4 ) and keep that record.
2 The particulars to be entered in the record prescribed in the preceding Paragraph and other necessary matters associated with
the preparing and keeping of the record are prescribed by the Ordinance of the Ministry of the Environment.
3 The prefectural governor shall show the record prescribed in Paragraph 1 of this Article or a copy of it to a party concerned in
response to his/her request.
(Environmental Sanitation Supervisor)

Article 20
Prefectural governors shall appoint environmental sanitation supervisors from the staff who possess the qualifications specified by
the Ordinance of the Ministry of the Environment for the purpose of inspection under Paragraph 1 of Article 19 or for the purpose
of advising about waste disposal under Paragraph 2 of Article 53 of the Septic Tank Law.
(Waste Recycling Business)

Article 20-2
1 A person who undertakes waste recycling as a business is eligible for registration of his/her place of business by the prefectural
governor with the jurisdiction over the place where the said of business is located, in accordance with the Ordinance of the
Ministry of the Environment, provided the facilities used for the business and the ability of the applicant for the said registration
are judged sufficient for the proper and continuous conducting of the service and therefore conform to the standards set by the
2 The necessary matters pertaining to the registration mentioned in the preceding Paragraph are prescribed by a Cabinet Order.
3 Only the persons registered under the provision of Paragraph 1 hereof may use the name "registered waste recycling business".
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4 The municipalities are entitled to demand from persons registered in accordance with the provision of Paragraph 1 hereof the
necessary cooperation in recycling municipal solid waste in the respective municipalities.
(Technical Manager)
Article 21
1 The installer (or the superintendent in the case of a facility installed by a municipality for management of municipal solid
waste under the provision of Paragraph 1 of Article 6-2 ) of a municipal solid waste disposal facility (except a night soil
treatment facility and the final disposal site specified by a Cabinet Order) or the installer of a final disposal facility of industrial
waste (except a final disposal site for industrial waste specified by a Cabinet Order) is required to place technical manager in
charge of the technical work for the operation and maintenance of the municipal solid waste or industrial disposal facility.
However, municipal solid waste and industrial waste disposal facilities which are managed by a superintendent who also serves
as technical manager are excepted.
2 The technical manager shall supervise the other personnel engaged in the operation and maintenance of the municipal solid
waste or industrial waste disposal facilities so as to ensure the conformance of the said municipal solid waste or industrial
waste disposal facilities with the technical standards mentioned in Paragraph 3 of Article 8 or 2 of Article 15-2.
3 The technical manager mentioned in Paragraph 1 hereof shall possess the qualification prescribed by the Ordinance of the
Ministry of the Environment.
(Government Subsidy)
Article 22
The central government is entitled to give a municipality a subsidy for part of the following expenses in accordance with a Cabinet
Order:
1) Expenses incurred for installation of refuse treatment facilities and night soil treatment facility.
2) Expenses for the disposal of waste specially required due to a disaster or some other cause.
(Special Assistance)
Article 23
The central government shall endeavor to provide financial assistance or mediate such assistance for the installation of municipal
solid waste or industrial waste disposal facilities or other disposal facilities for the purpose of conservation of the living environment
and enhancement of public health.
(Promotion or the like of Information Exchange)

Article 23-2
The central government shall endeavor to promote the exchange of information between the central government and the prefectural
governments and between the respective prefectural governments so tha the office works pertaining to the industrial waste which
the prefectural governors execute and take necessary measures according to the condition of execution of said office works.
(Getting Advice on Permission or the like)

Article 23-3
1 When prefectural governors are about to give permission specified in Paragraph 1 or 4 of Article 14, Paragraph 1 or 4 of Article
14-4, Paragraph 1 of Article 15, Paragraph 1 of Article 9-5 which is applied by being interpreted under Article 15-4 or Paragraph
1 of Article 9-6 which is applied by being interpreted under Article 15-4, they shall get advice from the Superintendent-General
of the Metropolitan Police or the chief of prefectural police on whether or not there are cases applying to b. to f. of Item 2) of
Paragraph 3 of Article 14 (in the cases applying to c., d. or f., limited to those only relating to b., and the same shall apply to
the next Paragraph and the next Article).
2 When prefectural governors are about to conduct disposal specified Article 14-3 (including the cases applied by being
interpreted under Article 14-6) or Article 15-3, they may get advice from the SuperintendentGeneral of the Metropolitan Police
or the chief of prefectural police on whether or not there are cases applying to b. to f. of Item 2) of Paragraph 3 of Article 14.
(Advice to Prefectural Governors)

Article 23-4
The Superintendent-General of the Metropolitan Police or the chief of prefectural police may give advice to prefectural governors
on industrial waste collection and transportation contractors, industrial waste disposal contractors, specially controlled industrial
waste collection and transportation contractors, specially controlled industrial waste disposal contractors and installers of industrial
waste disposal facilities (which will hereinafter be referred to as "industrial waste collection and transportation contractors or the
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like" in this Article) when it is judged to be needed that prefectural governors to take an appropriate action against that industrial
waste collection and transportation contractors or the like because there are good reasons to suspect that there are cases applying to
b. to f. of Item 2) of Paragraph 3 of Article 14.
(Inquiry to Administrative Organs Concerned or the like)

Article 23-5
Prefectural governors may inquire for or ask for the corporation on administrative works specified by this Law besides those
specified by Article 23-3 to administrative organs or local governments which are concerned.
(Request for Reexamination)

Article 24
A person who is dissatisfied with the decision of the request for reexamination of the disposition (limited to those relating to the
Item 1) statutory commissioned administrative service specified by Article 24-4) made by the mayor of a municipality or special
ward having public health centers installed according to the provisions of this Law, may file a request for reexamination with the
Minister of the Environment.
(Fee)
Article 24-2
A person applying for the acknowledgment prescribed in Paragraph1 of Article 10 (or applying for it under
Paragraph 1 of Article 15-4-5 ) and one applying for the permission prescribed in Paragraph 1 of Article 15-4-3 shall pay a fee fixed
by a Cabinet Order in accordance with the actual cost.
(Execution of Administrative Works by the Minister of the Environment under Emergency)

Article 24-3
1 The administrative works given to the prefectural governors as their authorities specified by Paragraph 1 of Article 18 or
Paragraph 1 of Article 19 (limited to those relating to municipal solid waste disposal facilities) shall be conducted by the
Minister of the Environment or prefectural governors when the Minister of the Environment recognizes that they are necessary
for conservation of the living environment. In this case, the provisions relating to prefectural governors (limited to those relating
to the said administrative works) under this Law shall be applicable to the Minister of the Environment as those relating to the
said Minister.
2 In the case specified by the preceding Paragraph, when the Minister of the Environment or prefectural governors conduct the
said administrative works, they shall corporate closely each other to do so.
(Division of Administrative Works)

Article 24-4
Administrative works to be conducted by prefectures, municipalities or special wards having public health centers installed under
the provisions of Paragraph 6 of Article 12-3, Paragraph 8 of Article 12-5, Article 12-6, Paragraphs 1 and 6 of Article 14(including
the cases applied in Paragraph 2 of Article 14-2), Paragraph 1 of Article 14-2, Paragraph 3 of Article 7-2 which is applied in
Paragraph 3 of Article 14-2, Article 14-3 (including the cases applied in Article 14-6), Paragraphs 1, Paragraph 3 (including the
cases applied in Paragraph 2 of Article 14-5), Paragraph 4 and Paragraph 6 (including the cases applied in Paragraph 2 of Article
14-5) of Article 14-4, Paragraph 1 of Article 14-5, Paragraph 3 of Article 7-2 which is applied in Paragraph 3 of Article 14-5,
Paragraph 1 of Article 15, Paragraphs 4 to 6 of Article 15 (including the cases applied in Paragraph 2 of Article 15-2-4), Paragraphs
1 to 3 (including the cases applied in Paragraph 2 of Article 15-2-4) and Paragraph 5 of 15-2, Paragraph 4 of Article 8-5 which is
applied in Article 15-2-3, Paragraph 1 of Article 15-2-4, Paragraphs 3 to 5 of Article 9, which are applied in Paragraph 3 of Article
15-2-4, Article 15-3, Paragraphs 1 and 2 of Article 9-5, Article 9-6 and Paragraph 2 of Article 9-7 which are applied in Article 15-
4, Paragraph 1 of Article 18 (limited to the cases relating to industrial waste or industrial waste disposal facilities), Paragraph 1 of
Article 19 (limited to the cases relating to industrial waste or industrial waste disposal facilities), Article 19-3 (limited to the cases
relating to Item 2), Paragraphs 1 of Article 19-5, Paragraph 2 of Article 19-4 which is applied in Paragraph 2 of Article 19-5,
Paragraphs 1 of Article 19-6, Paragraph 2 of Article 19-4 which is applied in Paragraph 2 of Article 19-6, Article 23-3 and Article
23-4, shall fall under the Item 1) statutory commissioned administrative service specified in Item 1) of Paragraph 9 of Article 2 of
the Local Autonomy Law.
(Process Measures)
Article 24-5
When an order is decided on, improved or abolished in accordance with this Law, the order may, within the limits reasonable and
necessary for that decision, improvement or abolishment, prescribe certain process measures (including process measures regarding
punishment).
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CHAPTER V PENAL REGULATIONS
Article 25
A person described in any of Items of this Article shall be imprisoned for five years or less or fined 10,000,000 yen or less, or
subjected to both of these punishments.
1) One who undertakes as a service the collection and transport or disposal of municipal solid waste or industrial waste in violation
of Paragraph 1 or 4 of Article 7, Paragraph 1 or 4 of Article 14 or Paragraph 1 or 4 of Article 14-4.
2) One who undertakes as a service the collection and transport or disposal of municipal solid waste or industrial waste in violation
of Paragraph 1 of Article 7-2, Paragraph 1 of Article 14-2 or Paragraph 1 of Article 14-5.
3) One who disobeys the order specified in Article 7-3, Article 14-3 (including the cases applied in Article 14-6), Paragraph 1 of
Article 19-4, Paragraph 1 of Article 19-5, or Paragraph 1 of Article 19-6.
4) One who commissioned another person to dispose of industrial waste in violation of Paragraph 3 of Article 12 or Paragraph 3
of Article 12-2.
5) A person who has had any other person perform the collection or transportation or disposal of municipal solid waste or
industrial waste in violation of the provision of Article 7-4, Article 14-3-2 or Article 14-7.
6) One who constructs a municipal solid waste or industrial waste disposal facility in violation of Paragraph 1 of Article 8 or
Paragraph 1 of Article 15.
7) A person who has changed the matters cited in Items 4) through 7) of Paragraph 2 of Article 8 or matters cited in Items 4)
through 7) of Paragraph 2 of Article 15 in violation of the provision of Paragraph 1 of Article 9 or Paragraph 1of Article 15-
2-4.
8) One who dumps industrial waste in violation of Article 16.
Article 26
A person described in any of Items of this Article shall be imprisoned for three year or less or fined 3,000,000 yen or less, or
subjected to both of these punishments.
1) One who commissions someone to management and disposal municipal solid waste or industrial waste in violation of Paragraph
10 of Article 7, Paragraph 4 of Article 12, Paragraph 4 of Article 12-2, Paragraph 10 of Article 14 or Paragraph 10 of Article
14-4.
2) One who disobeys the order specified in Article 9-2, Article 15-3 or Article 19-3.
3) A person to whom municipal solid waste disposal facilities or industrial waste disposal facilities were transferred or borrowed
in violation of Paragraph 1 of Article 9-5 (including the cases applied in Article 15-4).
4) A person who exported municipal solid waste or industrial waste in violation of Paragraph 1 of Article 10 (including the cases
applied in Paragraph 1 of Article 15-4-5).
5) One who is commissioned to to management and disposal industrial waste in violation of Paragraph 9 of Article 14 or 9 of
Article 14-4.
6) One who imports foreign waste in violation of Paragraph 1 of Article 15-4-3.
7) One who violates the conditions attached to the permission under Paragraph 4 of Article 15-4-3.
8) One who dumps municipal solid waste in violation of Article 16-2.
Article 27
One who violates Article 13-7 shall be imprisoned for one year or less or fined 500,000 yen or less.
Article 28
One who uses a municipal solid waste or industrial waste disposal facility in violation of Paragraph 5 of Article 8-2 (or the same
provision applied in accordance with Paragraph 2 of Article 9) or Paragraph 5 of Article 15-2(or the same provision applied in
accordance with Paragraph 2 of Article 15-2-4 ) shall be imprisoned for six months or less or fined 500,000 yen or less.
Article 29
A person described in any of Items of this Article shall be fined 500,000 yen or less.
1) In violation of the provision of Paragraph 1 of Article 12-3 (including the cases applied in Paragraph 2 of Article 15-4-5), the
person who did not issue a control manifest, or issued a control manifest without entering the particulars specified by the same
Paragraph or with entering the false information.
2) In violation of the provision of the former part of Paragraph 2 of Article 12-3, the person who did not send a copy of a control
manifest, or sent a copy of a control manifest without entering the particulars specified by the former part of the same Paragraph
or with entering the false information.
3) In violation of the provision of the latter part of Paragraph 2 of Article 12-3, the person who did not forward a control manifest.
4) In violation of the provision of Paragraph 3 or 4 of Article 12-3 or Paragraph 5 of Article 12-5, the person who did not send a
copy of a control manifest, or sent a copy of a control manifest without entering the particulars specified by these provisions or
with entering the false information.
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5) In violation of the provision of Paragraph 5 of Article 12-3, the person who did not keep a copy of a control manifest.
6) In violation of the provision of Article 12-4, the person who issued a control manifest with entering the false information.
7) The person who made the false registration when registering under the provision of Paragraph 1 of Article 12-5.
8) In violation of the provision of Paragraph 2 or 3 of Article 12-5, the person who did not report or report the false information.
Article 30
A person described in any of Items 1) to 6) of this Article shall be fined 300,000yen or less:
1) One who fails to keep books or enter the prescribed particulars in them in violation of Paragraph 11 of Article 7 (or the same
provision applied in accordance with Paragraph 11 of Article 12, Paragraph 12 of Article 12-2, Paragraph 11 of Article 14 or
Paragraph 12 of Article 14-4 ), makes false entries or fails to store the said books in violation of Paragraph 12 of Article 7 (or
the same provision applied in accordance with Paragraph 7 of Article 12, Paragraph 8 of Article 12-2 and Paragraph 12 of
Article 14-4 ).
2) One who fails to make the report prescribed by Paragraph 3 of Article 7-2 (or the same provision applied in accordance with 3
of Article 14-2 or Paragraph 3 of Article 14-5 ), 3 of Article 9 (or the same provision applied in accordance with Paragraph 3 of
Article 15-2-4 ), Paragraph 4 of Article 9 (or the same provision applied in accordance with 3 of Article 15-2-4 ) or Paragraph
2 of Article 9-7 (or the same provision applied in accordance with Article 15-4 ) or makes a false report. 3) One who fails to
record, makes a false record or fails to prepare the said record in violation of Article 8-4( or the same provision applied in
accordance with Article 15-2-3).
4) One who fails to appoint an industrial waste manager in violation of Paragraph 6 of Article 12 or a specially controlled industrial
waste manager in violation of Paragraph 6 of Article 12-2.
5) One who fails to make the report (except for the matters concerning the information processing center, the same will apply
hereinafter) prescribed by Article 18 or makes a false report.
6) One who denies access for the inspection or the collection of samples mentioned in Paragraph 1 or 2 of Article 19, or impedes
or avoids the said inspection or sample collecting action.
7) One who fails to place technical manager in charge of the technical work in violation of Paragraph 1 of Article 21.
Article 31
When coming under any of the following Items, the officer or personnel of the information processing center or waste management
center committing the violating act shall be punished with a fine of 300,000 yen or less.
1) When discontinued all of the information processing works without obtaining the permission specified in Article 13-6.
2) When failed to provide books or enter in the books or entered false entries in violation of the provision of Article 13-8, or failed
to keep the books in violation of the provision of Article 13-8.
3) When failed to make the report under the provision of Paragraph 1 of Article 13-9, Paragraph 1 of Article 15-13 or Article 18
or made a false report.
4) When refused, obstructed or evaded the inspection under the provision of Paragraph1 of Article 13-9 or Paragraph 1 of Article
15-13.
Article 32
When a representative of a legal parson or an agent, employee or any other worker of a legal parson or an individual did an act
violating of the provisions cited in the following Items with respect to the works of the legal parson or individual person, the actual
offender shall be punished, and further the legal parson shall have a fine specified in the applicable Item imposed, and the individual
person shall have a fine under this Article imposed.
1) Item 8) of Article 25 (limited to the cases only relating to industrial waste): A fine of 100,000,000 yen or less.
2) Article 25 (except for the cases of the preceding Item), Article 26 or Articles 28 through 30: A fine under this Article.
Article 33
One who attaches the qualification "registered waste recycling business" to his/her own name in violation of Paragraph 3 of Article
20-2 shall be fined 100,000 yen or less.
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The Basic Environment Law
Law No.91 of 1993. Effective on November 13, 1993
http://www.env.go.jp/en/laws/policy/basic/index.html
Chapter 1 General Provisions (Articles 1-13)

Chapter 2 Basic Policies for Environmental Conservation
Section 1 Guidelines for Policy Formulation (Article 14)
Section 2 Basic Environment Plan (Article 15)
Section 3 Environmental Quality Standards (Article 16)
Section 4 Environmental Pollution Control in Specific Areas (Articles 17 and 18)
Section 5 Implementation of Policies for Environmental Conservation by the State (Articles 19-31)
Section 6 International Cooperation for Global Environmental Conservation etc. (Articles 32-35)
Section 7 Implementation of Policies by Local Governments (Article 36)
Section 8 Bearing of Costs and Financial Measures (Articles 37-40)
Chapter 3 Environment Council etc.
Section 1 Environment Council (Articles 41-44)
Section 2 Conference on Environmental Pollution Control (Articles 45 and 46)
(Purpose)
Article 1
The purpose of this law is to comprehensively and systematically promote policies for environmental conservation to ensure
healthy and cultured living for both the present and future generations of the nation as well as to contribute to the welfare of
mankind, through articulating the basic principles, clarifying the responsibilities of the State, local governments, corporations and
citizens, and prescribing the basic policy considerations for environmental conservation.
(Terminology)
Article 2
1 For the purpose of this law, "environmental load" means any adverse effects on the environment generated by human activities
which may cause interference with environmental conservation.
2 For the purpose of this law, "global environmental conservation" means environmental conservation regarding such phenomena
as global warming the ozone layer depletion, marine pollution, decrease in wildlife species and others which are caused by
human activities and affect the environment of the entire globe or a large part of it, which contributes to the welfare of mankind
as well as to the healthy and cultured living of the people.
3 For the purpose of this law, "environmental pollution" ("Kogai" in Japanese) means, among interference with environmental
conservation, air pollution, water pollution (including a deterioration of water's unadulterated state other than the water quality
and the quality of the bottom. The same shall apply hereinafter except for Article I6 Paragraph 1.), soil contamination, noise,
vibration, ground subsidence (excluding subsidence caused from land excavation for mineral exploitation. The same shall apply
hereinafter.) and offensive odors affecting an extensive area as a result of business and other human activities, which cause
damage to human health or the living environment (including property closely related to human life, as well as fauna and flora
closely related to human life and their living environment. The same shall apply hereinafter.).
(Enjoyment and Future Success of Environmental Blessings)

Article 3
Environmental conservation shall be conducted appropriately to ensure that the present and future generations of human beings can
enjoy the blessings of a healthy and productive environment and that the environment as the foundation of human survival can be
preserved into the future, in consideration that preserving the healthy and productive environment is indispensable for healthy and
cultured living for the people, and that the environment is maintained by a delicate balance of the ecosystem and forms the
foundation of human survival, which is finite in its carrying capacity and presently at risk of being damaged by the environmental
load generated by human activities.
(Creation of A Society Ensuring Sustainable Development with Reduced Environmental Load)

Article 4
Environmental conservation shall be promoted so that a society can be formulated where the healthy and productive environment
is conserved and sustainable development is ensured by fostering sound economic development with reduced environmental load,
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through practices on environmental conservation such as reducing as much as possible the environmental load generated by socio-
economic and other activities, which are voluntarily and positively pursued by all the people sharing fair burden; and so that
interference with environmental conservation can be anticipatively prevented through enhancing scientific knowledge.
(Active Promotion of Global Environmental Conservation through International Cooperation)

Article 5
Global environmental conservation shall be actively promoted in cooperation with other countries, utilizing Japan's capacities and
resources, and in accordance with Japan's standing in the international community, in consideration of the fact that global
environmental conservation is a common concern of mankind as well as a requirement in ensuring healthy and cultured living of
the people into the future, and that the Japanese economy and society is closely interdependent with the international community.
(Responsibility of the State)

Article 7
The local governments are responsible for formulating and implementing policies with regard to environmental conservation
corresponding to national policies and other policies in accordance with the natural and social conditions of the local governments'
jurisdiction, pursuant to the basic principles.
(Responsibility of Corporations)
Article 8
1 In conducting business activities, corporations are responsible for taking necessary measures to prevent environmental
pollution, such as the treatment of smoke and soot, polluted water and wastes, etc. resulting from their activities, and to properly
conserve the natural environment, pursuant to the basic principles.
2 In manufacturing, processing or selling products, or engaging in other business activities, corporations are responsible for taking
necessary measures for ensuring proper disposal of the wastes generated from products and other goods related to their
activities, so as to prevent interference with environmental conservation, pursuant to the basic principles.
3 Besides the responsibilities prescribed in the preceding tao Paragraphs, in manufacturing, processing or selling products, or
engaging in other business activities, corporations are responsible for making efforts to reduce the environmental loads resulting
from the use or disposal of the products and other goods related to their activities; and for making effort to use recyclable
resources and other materials and services which contribute to reducing the environmental loads in their activities, so as to
prevent interference with environmental conservation, pursuant to the basic principles.
4 Besides the responsibilities prescribed in the preceding three Paragraphs, corporations are responsible for making voluntary
efforts to conserve the environment such as reduction of the environmental loads in the course of their business activities; and
for cooperating with the policies implemented by the State or local governments with regard to environmental conservation,
pursuant to the basic principles.
(Responsibility of Citizens)
Article 9
1 Citizens shall make efforts to reduce the environmental loads associated with their daily lives so as to prevent interference with
environmental conservation, pursuant to the basic principles.
2 Besides the responsibility prescribed in the preceding Paragraph, citizens are responsible for making efforts to conserve the
environment and for cooperating with the policies implemented by the State or local governments with regard to environmental
conservation, pursuant to the basic principles.
(Environment Day)
Article 10
1 In order to promote awareness and understanding of environmental conservation among corporations and the people, and to
encourage willingness to pursue activities related to environmental conservation, there shall be designated the Environment
Day.
2 The Environment Day shall be June 5th.
3 The State and local governments shall make efforts to carry out events which support the spirit and objective of the Environment
Day.
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(Legislative Measures etc.)
Article 11
The Government shall take legislative, financial and other measures required to implement the policies with regard to environmental
conservation.
(Annual Report)
Article 12
1 The Government shall submit annually to the Diet a report on the state of the environment and the policies implemented with
regard to environmental conservation.
2 The Government shall make and submit annually to the Diet a document explaining the policies the Government is going to
implement considering the State of the environment as described in the report in the preceding Paragraph.
(Prevention of Air Pollution and the like by Radioactive Substances)

Article 13
The measures to prevent air pollution, water pollution and soil contamination caused by radioactive substances shall be implemented
under the Atomic Energy Basic Law (Law No.186 of 1955) and other related legislation.
ChapterⅡ Basic Policies for Environmental Conservation
Section 1 Guidelines for Policy Formulation

Article 14
The formulation and implementation of the policies for environmental conservation set forth in this chapter shall be administered
comprehensively and systematically, coordinating the various measures, pursuant to the basic principles and aiming at ensuring the
following objectives.
1) To maintain natural elements of the environment such as air, water and soil in good condition so as to protect human health, to
conserve the living environment and to properly preserve the natural environment.
2) To protect the biodiversity such as the diversity of ecosystems and wildlife species, and to orderly conserve the various features
of natural environment such as in the forest, farmlands and waterside areas in accordance with the natural and social conditions
of the area.
3) To maintain rich and harmonious contacts between people and nature.
Section 2 Basic Environment Plan

Article 15
1 The Government shall establish a basic plan with regard to environmental conservation (hereinafter referred to as the " Basic
Environment Plan" ) in order to comprehensively and systematically promote the policies for environmental conservation.
2 The Basic Environment Plan shall stipulate the following matters.

1) The outline of the comprehensive and long-term policies for environmental conservation
2) Besides the preceding matter, the matters required to comprehensively and systematically promote the policies for
environmental conservation
3) The Prime Minister shall formulate a draft of the Basic Environment Plan and ask the Cabinet for its decision, after hearing
the opinion of the Central Environment Council.
4) The Prime Minister shall promulgate the Basic Environment Plan without delay when the Cabinet has made its decision in
accordance with the preceding Paragraph.5. The preceding two Paragraphs shall apply mutatis mutandis to changes of the
Basic Environment Plan.
5) The preceding two Paragraphs shall apply mutatis mutandis to changes of the Basic Environment Plan.
Section 3 Environmental Quality Standards

Article 16
1 With regard to the environmental conditions related to air pollution, water pollution, soil contamination and noise, the
Government shall respectively establish environmental quality Standards, the maintenance of which is desirable for the
protection of human health and the conservation of the living environment.
2 In the event that the standards referred to in the preceding Paragraph establish more than one category and stipulate that land or
water areas to which those categories are to be applied should be designated, the Government may delegate to the prefectural
governors concerned the authority to designate those land or water areas, in accordance with Cabinet Order.
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3 With regard to the standards set forth in Paragraph 1, due scientific consideration shall always be given and such standards shall
be revised whenever necessary.
4 The Government shall make efforts to attain the standard provided for in Paragraph 1 by comprehensively and effectively
implementing policies concerning environmental pollution control which are set forth in this chapter (hereinafter referred to as
the "environmental pollution control policies" ).
Section 4 Environmental Pollution Control in Specific Areas

(Formulation of Environmental Pollution Control Program)
Article 17
1 The Prime Minister shall instruct the prefectural governors concerned to formulate programs on measures for environmental
pollution control (hereinafter referred to as the "Environmental Pollution Control Program" ), concerning areas specified as
either of the following categories, by presenting the basic directions of the environmental pollution control policies to be
implemented in those areas.
1) Areas where environmental pollution is currently serious and where it is recognized that it is very difficult to prevent
environmental pollution unless the environmental pollution control policies are comprehensively implemented.
2) Areas where environmental pollution is likely to become serious due to the rapidly increasing concentration of population,
industry etc., and where it is recognized that it will be very difficult to prevent environmental pollution unless the
environmental pollution control policies are comprehensively implemented.
2 The basic directions provided for in the preceding Paragraph shall be formulated on the basis of the Basic Environment Plan.
3 When the prefectural governor concerned has received the instruction provided for in Paragraph 1, he/she shall formulate an
Environmental Pollution Control Program in accordance with the basic directions provided for in the same Paragraph and shall
submit it to the Prime Minister for his/her approval.
4 Prior to issuing the instruction under Paragraph 1 or giving the approval required under the preceding Paragraph, the Prime
Minister shall ask the Conference on Environmental Pollution Control for its decision.
5 Prior to issuing the instruction under Paragraph 1, the Prime Minister shall hear the opinions of the prefectural governors
concerned.
(Promotion of Attainment of Environmental Pollution Control Program)

Article 18
The State and local governments shall make efforts to take measures necessary or the attainment of the Environmental Pollution
Control Programs.
Section 5 Implementation of Policies for Environmental Conservation by the State

(Consideration in Formulation of Policies by the State)
Article 19
The State shall consider environmental conservation when formulating and implementing policies which are deemed to influence
the environment.
(Promotion of Environmental Impact Assessment)

Article 20
The State shall take necessary measures to ensure that, when corporations are engaged in alteration of land shape, construction of
new structures and other similar activities, they will conduct in advance, surveys, forecasts or evaluations of the environmental
impact of such activities and will give proper consideration to environmental conservation based on the results of them.
(Regulations to Prevent Interference with Environmental Conservation)

Article 21
1 The Government shall take the following regulatory measures to prevent interference with environmental conservation.
1) Regulatory measures necessary to prevent environmental pollution, inter alia, by setting the Standards with which corporations
must comply regarding such activities as emission of substances causing air pollution, water pollution, soil contamination or
offensive odors; generation of noise or vibration; and the taking of underground water causing ground subsidence.
2) Regulatory measures necessary to prevent environmental pollution with regard to land use and construction of facilities causing
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pollution in an area where the pollution is serious or is likely to become serious.
3) Regulatory measures necessary to prevent interference with appropriate conservation of the natural environment regarding
activities which may cause those interference, such as alteration of land shape, construction of new structures, cutting of trees
and other activities in areas where conservation of the natural environment is especially required.
4) Regulatory measures necessary to prevent interference with appropriate protection of natural objects with regard to such
activities as capturing collecting, damaging which may cause those interference as to natural objects necessary to be protected
such as the wildlife, geographical and geological features of land or sources of hot springs.
5) Regulatory measures necessary to prevent both environmental pollution and interference with conservation of the natural
environment where both of them occur or may occur.
2 Besides the regulatory measures provided for in the preceding Paragraph, the State shall make efforts to take necessary
regulatory measures similar to Subparagraph 1 and 2 of the preceding Paragraph, in order to prevent interference with
environmental conservation with regard to human health and the living environment.
(Economic Measures to Prevent Interference with Environmental Conservation)

Article 22
1 In order to encourage persons who are conducting the activities generating or causing to generate environmental load (referred
to as the "load activities" in this Article) to take appropriate measures such as introduction of facilities which reduce the
environmental load, and thus to prevent interference with environmental conservation, the State shall make efforts to take
necessary measures to provide necessary and appropriate economic assistance to those persons taking into consideration their
economic situation.
2 In consideration of the fact that the measures, which aim at encouraging persons who are conducting the load activities to
undertake voluntarily to reduce the environmental load by means of imposing appropriate and equitable economic surcharges
on them, are expected to be effective in preventing interference with environmental conservation, and that such measures are
internationally recommended; the State shall appropriately conduct surveys and researches on the effectiveness of implementing
such measures with regard to prevention of interference with environmental conservation and on the effects of such measures
on Japanese economy; and should it be deemed necessary to implement such measures, the State shall make efforts to acquire
the understanding and cooperation of tile people with regard to utilization of such measures to prevent interference with
environmental conservation. In this case, should such measures be implemented for global environmental conservation, the
State shall consider international collaboration so as to appropriately ensure the effectiveness of such measures.
Article 23
(Promotion of Construction of Facilities and Other Projects for Environmental Conservation)
1 The State shall take necessary measures to promote projects for prevention of interference with environmental conservation,
i.e. construction of public facilities such as buffer zones, and other projects such as dredging of sludge and protection and
breeding of the endangered wildlife.
2 The State shall take necessary measures to promote projects which contribute to prevent interference with environmental
conservation, i.e. the construction public facilities such as sewerage, public waste disposal facilities, traffic facilities (including
transportation facilities) which contribute to reduce the environmental load, and other projects such as improvement of forests.
3 The State shall take necessary measures to promote projects for appropriate improvement and sound use of the natural
environment, including such public facilities as parks and green areas.
4 The State shall take necessary measures to promote appropriate use of the public facilities provided for in the preceding two
Paragraphs and other measures to increase the function of environmental conservation with regard to these facilities.
(Promotion of Use of Products Contributing to Reduction of Environmental Load )

Article 24
1 The State shall take necessary measures such as providing corporations with technical assistance so that, in manufacturing,
processing or selling products, or engaging in other business activities, they can appropriately consider the reduction of the
environmental load associated with products and other goods, by voluntarily assessing in advance the environmental load
generated by the use or disposal of the products and other goods.
2 The State shall take necessary measures to encourage use of recyclable resources and other materials, products and services
which contribute to the reduction of environmental load.
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(Education and Learning on Environmental Conservation)
Article 25
The State shall take necessary measures to increase corporations' and citizens' understanding of environmental conservation and to
encourage their willingness to engage in activities related to environmental conservation, by means of promoting environmental
education and learning and improving public relations activities with regard to environmental conservation.
(Measures to Promote Voluntary Activities by Private Organizations)

Article 26
The State shall take necessary measures to promote voluntary activities with regard to environmental conservation such as tree
planting and the recovery of recyclable resources conducted by corporations, citizens or private bodies organized by these entities
(hereinafter referred to as the "private bodies etc.").
(Provision of Information)
Article 27
The State shall make efforts to appropriately provide necessary information on environmental conservation including the state of
the environment, so as to promote the education and learning provided for in Article 25 and to contribute to the activities voluntarily
conducted by the private bodies etc. provided for in the preceding Article, in consideration of the protection of the rights and benefits
of individuals and legal entities.
(Implementation of Researches)
Article 28
The State shall conduct surveys on the state of the environment, researches on forecast of environmental changes and other studies
for formulation of policies with regard to environmental conservation.
(Improvement in Systems for Monitoring and Others)

Article 29
The State shall make efforts to establish systems of monitoring, patrolling, observations, measurements, examinations and
inspections in order to ascertain the state of the environment and to properly implement the policies with regard to environmental
conservation.
(Promotion of Science and Technology)

Article 30
1 The State shall promote science and technology with regard to understanding of the mechanisms of environmental changes,
reduction of environmental load, development of methods to evaluate comprehensively both the effects on the environment
caused by the economy avid the blessings on the economy derived from the environment, and other science and technology
with regard to environmental conservation.
2 In order to promote science and technology with regard to environmental conservation, the State shall establish research
systems, promote research and development, disseminate the results of research and development, train researchers, and take
other necessary measures.
(Settlement of Environmental Pollution Disputes and Relief of Damage)

Article 31
1 The State shall take necessary measures to effectively implement mediation, arbitration, etc. with regard to disputes related to
environmental pollution, and take other necessary measures to smoothly resolve problems arising from environmental pollution.
2 The State shall take necessary measures to smoothly implement measures for relieving the damage caused by environmental
pollution.
Section 6 International Cooperation for Global Environmental Conservation etc.

(International Cooperation for Global Environmental Conservation etc.)
Article 32
1 The State shall make efforts to take necessary measures to secure international collaboration for global environmental
conservation and to promote other international cooperation for global environmental conservation; and to assist conservation
of the environment in developing regions and the environmental features being recognized of its international value, which
contribute to both the welfare of mankind and the healthy and cultured living of the Japanese people (referred to as the
"environmental conservation in developing regions etc." in this Article) and to promote other international cooperation for
environmental conservation in developing regions etc.
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2 The State shall make efforts to take necessary measures to smoothly promote international cooperation with regard to both
global environmental conservation and environmental conservation in developing regions etc. (hereinafter referred to as the
"global environmental conservation etc." ), including training experts on the international cooperation with regard to global
environmental Conservation etc., and the collection, arrangement and analysis of information on global environmental
conservation etc. e.g. the state of the environment in areas outside Japan.
(Ensuring International Cooperation for Monitoring, Observation and Others)

Article 33
The State shall make efforts to ensure international collaboration so as to effectively promote the monitoring, observation and
measurement of the environmental situation with regard to global environmental conservation etc. It shall also make efforts to
promote international cooperation to carry out surveys, examinations and researches with regard to global environmental
conservation etc.
(Measures to Promote Activities by Local Governments and Private Organizations)

Article 34
1 In consideration of importance of the roles played by local governments in promoting international cooperation with regard to
global environmental conservation etc., the State shall make efforts to take necessary measures e.g. providing information, to
promote such activities by local governments for international cooperation.
2 In consideration of the importance of voluntary activities conducted by private bodies etc. outside Japan for the international
cooperation with regard to global environmental conservation etc., the State shall make efforts to take necessary measures e.g.
providing information, to promote such activities by private bodies etc.
(Considerations in Implementation of International Cooperation and Others)

Article 35
1 The State, in implementing international cooperation, shall make efforts to consider global environmental conservation etc. in
the areas where the international cooperation is implemented.
2 The State shall make efforts to take necessary measures e.g. providing information to corporations, so that the corporations can
properly consider global environmental conservation etc. in the areas outside Japan where these corporations conduct their
business activities.
Section 7 Implementation of Policies by Local Governments

Article 36
Local governments shall comprehensively and systematically implement and promote policies corresponding to the national policies
provided for in Section 5 and other policies necessary for environmental conservation in accordance with the natural and social
conditions of the local governments' jurisdiction. In this case, the prefecture shall mainly implement the policies for a large area and
comprehensively coordinate the policies administered by the municipalities.
Section 8 Cost Bearing and Financial Measures

(Cost Bearing by Causers)
Article 37
The State and local governments shall take necessary measures to ensure that, when the State, local governments or their equivalents
(referred to as the "public corporation entities" in this Article) implement a project which is deemed necessary and appropriate in
order to prevent environmental pollution or interference with conservation of the natural environment (referred to as the
"interference related to environmental pollution etc." in this Article) considering the necessity of prompt prevention of the
interference, the scale of the project and other circumstances, persons who have caused the circumstances necessitating the project
are required to bear appropriate and equitable share of the entire or a part of the expenses to implement the project, upon recognizing
it is appropriate to make them bear the cost taking into account the extent of interference related to environmental pollution etc.
caused by and the degree of responsibility attributed to their activities.
(Cost Bearing by Beneficiaries)

Article 38
The State and local governments shall take necessary measures to ensure that, when persons receive a special benefit from the
implementation of nature conservation projects carried out in areas where conservation of the natural environment is especially
required, those persons are required to bear appropriate and equitable share of the entire or a part of the expenses to implement such
projects in accordance with the degree of benefit received.
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(Financial Measures for Local Governments)
Article 39
The State shall make efforts to take necessary financial measures and other measures with regard to the expenses borne by the local
governments to formulate and Implement policies for environmental conservation.
(Cooperation between the State and Local Governments)

Article 40
The State and local governments shall cooperate on implementing policies for environmental conservation.
ChapterⅢ Environment Council etc.

Section 1 Environment Council
(Central Environment Council)
Article 41
1 There is hereby established a Central Environment Council (hereinafter referred to as the "Council" ) in the Environment
Agency.
2 The Council shall be in charge of the following tasks.

1) To handle the task provided for in Article 15 Paragraph 3 with regard to the Basic Environment Plan.
2) To Study and discuss the basic matters with regard to environmental conservation in response to the consultation by the Prime
Minister.
3) To Study and discuss the important matters with regard to environmental conservation in response to the consultation by the
Director General of the Environment Agency or other ministers concerned.
4) In addition to the tasks referred to in preceding three subparagraphs, delegated tasks as provided for by other laws and
ordinances.
3 The Council may submit its opinions to the Prime Minister, the Director General of the Environment Agency or other ministers
concerned, with regard to the matters provided for in the preceding paragraph.
(Organization of the Central Environment Council)

Article 42
1 The Council shall be comprised of no more than 80 members.
2 The Council may designate special members when necessary to Study and discuss specific matters.
3 The Council members and special members shall be appointed by the Prime Minister from among academics or those having
expertise or experiences with regard to environmental conservation.
4 The Council members and special members shall serve on a part-time basis.
5 Beside those provided for in the preceding paragraphs, matters necessary for the organization and administration of the Council
shall be stipulated by Cabinet Order.
(Prefectural Environment Council)

Article 43
1 The prefecture shall establish a Prefectural Environment Council to study and discuss the basic matters and others with regard
to environmental conservation within the prefecture's jurisdiction.
2 The matters necessary for the organization and administration of the Prefectural Environment Council shall be stipulated by
prefectural ordinances.
(Municipal Environment Council)

Article 44
The municipality may establish a Municipal Environment Council, as stipulated by municipal ordinances, to study and discuss the
basic matters and others with regard to environmental conservation within the area of the municipality.
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Section 2 Conference on Environmental Pollution Control
(Establishment and Mandates)
Article 45
1 There is hereby established a Conference on Environmental Pollution Control (hereinafter referred to as the " Conference") as
a special organization in the Prime Minister's Office.
2 The Conference shall perform the following mandates.

1) To deal with matters provided for in Article 17 Paragraph 4 with regard to the Environmental Pollution Control Program.
2) In addition to the task referred to in the preceding subparagraph, to discuss the planning of basic and comprehensive policies
for environmental pollution control and promote the implementation of such policies.
3) In addition to the tasks referred to in preceding two subparagraphs, delegated tasks as provided for by other laws and cabinet
orders.
(Organization etc.)
Article 46
1 The Conference is comprised of a chairman and Conference members.
2 The Prime Minister shall be the chairman.
3 Members shall be appointed by the Prime Minister from among the heads of the ministries and agencies concerned.
4 There shall be secretaries of the Conference.
5 Secretaries shall be appointed by the Prime Minister from among officials of the ministries and agencies concerned.
6 Secretaries shall assist the chairman and members in dealing with mandates of the Conference.
7 The administrative work of the Conference shall be handled by the Environment Agency.
8 Besides those provided for in the preceding paragraphs, matters necessary for organization and operation of the Conference
shall be provided for by Cabinet Order.
This law shall enter into force on the day of its promulgation except for the provisions of Articles 43 and 44, which shall enter into
force on the day stipulated by Cabinet Order within a year since the promulgation of this law.
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The Fifth Basic Environment Plan
(Cabinet decision on April 17, 2018)
https://www.env.go.jp/policy/kihon_keikaku/plan/plan_5.html
https://www.env.go.jp/policy/kihon_keikaku/plan/plan_5/attach/ref_en-01.pdf
Original Japanese
Introduction
Part 1 Environmental, economic and social conditions and direction of development of environmental policies
Chapter 1 Current state of environment, economy, and society, and recognition of challenges
Chapter 2 Basic concepts for the development of future environmental policies to build a sustainable society
1. What does a future sustainable society look like?
2. Expected roles of future environmental policies ~ Creating innovations in socio-economic systems, lifestyles, and
technologies, and providing simultaneous solutions for economic and social challenges ~
3. Basic concepts for the development of future environmental policies
(1) Implementation of measures for II2ES
(2) Appropriate responses to international and domestic situations based upon the basic principles and concepts for
environmental policies
(3) Utilization of the concepts of "Sustainable Development Goals" (SDGs)
Chapter 3 Principles and methods of environmental policy

1. Principles of environmental policy
2. Approaches to implement environmental policies
Part 2 Putting the environmental policy into action

Chapter 1 Concepts of priority strategy setting
1. Establishment of a priority strategy based on the administrative plan for each area
2. Enriching and strengthening partnerships
(1) Role of each entity as a prerequisite for partnership
(2) Enriching and strengthening partnerships
3. Building a sustainable community - Creating the Circulating and Ecological Economy
Chapter 2 Development of environmental policies for each priority strategy

1. Formulation of a green economic system for realizing sustainable production and consumption
2. Improvement of value of national land as stock
3. Sustainable community development using local resources
4. Realization of a healthy and prosperous life
5. Development and dissemination of technologies supporting sustainability
6. Demonstration of Japan's leadership through international contributions and building strategic partnerships
Chapter 3 Development of environmental policies to support priority strategies

1. Climate change measures
2. Establishment of sound material-cycle society
3. Securing biodiversity and living in harmony with nature
4. Environmental risk management
5. Various basic measures
6. Reconstruction after the Great East Japan Earthquake and responses to future large-scale disasters
Part 3 Effective implementation of the Basic Environment Plan

1. Implementation of the Plan
2. Review of the progress of the Plan
3. Revision of the Basic Environment Plan
Introduction
Japan is fast becoming a society marked by a decreasing birthrate and rapidly aging demographics, leading to an overall population
decline. In addition, there is continuing internal migration mainly among young people from rural to urban areas, which has resulted
in an uneven population distribution across different regions of the country, with a sharp drop in rural areas particularly among
young people and those of working age. This has had a serious impact on efforts to conserve the environment. For example, a
decrease in the number of farmers and foresters has resulted in a greater amount of abandoned cultivated land and forests without
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sound management, leading generally to a deterioration of biodiversity and ecosystem services. In this way, environmental,
economic and social challenges are inseparably linked, and are set to become ever-more complex.
Turning our attention to the international community, 2015 witnessed the most major environmental developments to take place
since the year 2012, when Japan’s Fourth Basic Environment Plan was formulated. Reflecting the global environmental crises,
countries quickly adopted the "2030 Agenda for Sustainable Development" which incorporates the Sustainable Development Goals
(SDGs), and the "Paris Agreement". Indeed, 2015 could be considered as a turning point in international environmental diplomacy.
With the entry into force of the Paris Agreement, the global community has steered major efforts towards building a carbon-neutral
society, and ESG (Environment, Society and Governance) investment has become a major international trend. Thus, now is the time
to start moving towards a new civilized society, with a major shift in our basic thinking (paradigm shift).
This is the first Basic Environment Plan prepared after the adoption of the SDGs and the Paris Agreement. Recognizing this, the
Plan should appropriately respond to these new international developments as well as to changing domestic situations. In doing so,
it is important to utilize the concepts of SDGs by addressing multiple issues in an integrated manner. It is particularly important to
recognize that the basic approach adopted in this Plan is different from that adopted previously. In the previous plans, priorities
were set separately in each of the environmental fields with a focus upon directly addressing specific environmental issues. This
Plan, on the other hand, sets up six interdisciplinary cross-cutting strategies, such as specific measures to solve several different
issues in a complementary manner. By doing so, this Plan aims to adopt and embody the basic approach of the "Integrated
Improvements on Environment, Economy and Society (II2ES)" proposed in the Third Basic Environment Plan. Even though at first
glance they might be considered unrelated to the environment, quite a few activities actually have considerable environmental
dimensions, such as efficient use of resources and pursuit of a low carbon emissions pathway. Making stakeholders more clearly
aware of the usefulness of this approach could greatly contribute to further dissemination of II2ES. This is indeed one of the intended
roles that this Plan should play.
Going forward, environmental policies will be required to create innovations across all perspectives including those concerning
socio-economic systems, lifestyles, as well as technologies. Future policies have to be effective in addressing relevant environmental
issues to the fullest extent. Furthermore, they should be designed so as to bring about synergistic effects that contribute to solving
economic and social challenges concerned simultaneously (i.e. simultaneous solutions), drawing upon interlinkages that exist among
different challenges. These will open up "new avenues for growth" that ensure quality of life is maintained into the future.
The momentum has already started to build. Even in rural areas that are most seriously affected by current economic and social
problems, there are a few local governments, business entities, and nongovernment organizations that are revitalizing their areas by
applying creative thinking and sustainably utilizing rich natural resources. The government is required to find out about these
emerging efforts and to share their innovative practices among all stakeholders concerned, which will contribute to realizing II2ES
throughout Japan.
The key to achieving II2ES is to first form a self-reliant and decentralized society in tune with local needs, and then have various
elements complement each other among neighboring communities making use of available regional resources. This concept could
be called the “Circulating and Ecological Economy" and it will be an effective concept to maximize the potential of each region
across Japan, making use of the wide range of resources found in mountainous, agricultural and fishing villages as well as in cities.
Regions across Japan are certainly facing difficult challenges arising from declining populations, falling birthrates, and aging
demographics, on the one hand, yet these regions are also endowed with various resources such as beautiful natural landscapes. As
such, local communities can serve as effective models for achieving II2ES. Ultimately, it is essential to maximize the sustainable
use of regional resources.
New environmental policies are required to contribute to international communities as well as to respond to national challenges.
Japan has a great deal of experience in overcoming serious problems concerning pollution. In addition, Japan has successfully
developed and implemented advanced technologies for energy saving and resource efficiency. Furthermore, it embodies traditional
wisdom such as the "Mottainai" spirit and harbors a long history of living in harmony with nature. With the exacerbation of
environmental problems on a global scale, Japan's advanced environmental technologies and infrastructures, underlying ideas,
systems, and human resources together provide an exemplary model for improving the state of the global environment.
For Circulating and Ecological Economy to be reliably put into practice, it will become increasingly important to forge partnerships
with a wide range of stakeholders. This will enable us to provide various viewpoints, which will lead to the development of human
resources to realize II2ES. In other words, enhancing and strengthening partnerships can nurture relevant human resources.
By way of illustration, environmental policy as a whole can be considered as a tree, with priority strategies representing its "flowers"
and the "environmental policies to support priority strategies" making up its "trunk" and “roots”. Without a trunk and roots, the tree
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will not bloom and only when the flowers bloom will the tree bear fruit for future generations. Just as the roots and trunk of a tree
form the main support, it is vital to steadily advance environmental policies to support priority strategies.
Certain progress has been made towards restoration following the Great East Japan Earthquake, including through decontamination
and reconstruction of infrastructure. However, overall restoration is still only half completed. Remaining challenges include safe
handling of contaminated soils produced by decontamination and radioactive wastes generated by the accident. All government
agencies must conduct concerted efforts to continue addressing these remaining issues. It is also a matter of urgency to make Japan
fully resilient against potential large-scale natural disasters such as earthquakes centered directly within Tokyo as well as those
caused by the Nankai Trough.
Over the course of humankind’s coexistence with nature, we have built up knowledge and perspective on how to thrive on this
planet. We need to make full use of this capacity in conjunction with information and communication technologies (ICTs) and other
modern science and technologies, thereby ensuring minimal environmental impacts even as Japan’s economy grows. Environmental
impacts can be kept to a minimum in three ways: (i) "circulation" of materials and natural resources, (ii) "symbiosis" between nature
and human beings, as well as "symbiosis" between regions through maintenance and rehabilitation of sound ecosystems, and (iii)
realization of “low carbon” societies through various measures including those mentioned above. This kind of circulation and
symbiosis based society ("Environmental and Life Centered Civilized Society") stands to provide the image of a sustainable society
that Japan can aim for.
Based on the Basic Environment Act enacted in 1993, and taking into consideration the overall developments accumulated over the
previous four basic plans, this Plan will describe ideas and measures to further develop sustainable societies as mentioned above.
We hope that this Plan will serve as a guide on future directions not only for the government but also for all various stakeholders
concerned.
Part 1 Environmental, economic and social conditions and direction of development of environmental policies
Chapter 1 Current state of environment, economy, and society, and recognition of challenges
Japan is now faced with complex crises and challenges related to all three areas of environment, economy, and society.
With its declining birthrate and aging population, it is inevitable that the total population of the country will continue to drop over
the coming decades. In addition to this, migration from rural to urban areas, particularly of young people, has accelerated the uneven
distribution of Japan’s population across its various regions. Consequently, the numbers of young people and those of working age
are rapidly dwindling in rural areas. These demographic changes have weakened local communities and in turn have become
obstacles to delivering effective administrative services by local governments. The changes have seriously affected various
administrative sectors of certain localities, including local environmental conservation efforts. For example, the decrease in the
labor market for agricultural and forestry workers has resulted in a surplus of abandoned uncultivated land, and forests without
sound management are increasing. Similarly, agricultural and other damage caused by unmanaged wildlife is becoming worse due
to a decrease in hunters and so on. In such areas, vulnerability to natural disasters is rising, abundant nature such as Satochi-Satoyama
(socio-ecological production landscapes) is being lost, and diverse wildlife and associated rich cultures are being put at stake.
The Great East Japan Earthquake in March 2011 and the subsequent accidents at TEPCO’s Fukushima Daiichi Nuclear Power Plant,
brought about enormous human, physical and economic damage. The disaster brought into sharp relief the inflexibility of centralized
and large-scale energy supply systems. At the same time, the disaster also drew attention to the potential of localized energy systems
in effectively complementing major infrastructure. In affected areas, a certain amount of progress has been made to restore the
region through decontamination and reconstruction of infrastructure. However, overall restoration is still only half completed.
Remaining challenges include safe handling of contaminated soils produced by decontamination and radioactive wastes generated
by the accident. Looking at Japan overall, infrastructure which was rapidly constructed during the period of high economic growth
is now showing signs of deterioration. Thus, it is also a matter of urgency to make Japan fully resilient against potential large-scale
natural disasters such as earthquakes centered directly within Tokyo or those caused by the Nankai Trough.
In contrast to Japan’s continued demographic shift, the world’s population is increasing, mainly in countries in Africa and other
parts of Asia. This will lead to a growth in global demand for natural resources, energy, water and food, which could in turn have
major implications for the Japanese economy in the future. Although the Japanese economy has improved in terms of employment
and income in recent years, burgeoning economic growth in developing countries has resulted in a reduction of relative presence of
the Japanese economy on the international stage. It is important to encourage economic growth to ensure it remains globally
competitive. This can be achieved by restructuring the Japanese economy as well as strengthening international competition by
enhancing technological innovations such as artificial intelligence (AI) and the Internet of Things (IoT) which are essential parts of
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the Fourth Industrial Revolution, together with a substantial increase in inbound tourism.
Bearing all this in mind, global-scale environmental crises are likely to seriously exacerbate the various aforementioned challenges
facing Japan.
The "2030 Agenda for Sustainable Development" (hereinafter the "2030 Agenda") adopted at the UN General Assembly in
September 2015 has 17 goals and 169 targets1 as sustainable development goals (SDGs). SDGs include goals related to water and
sanitation, energy, sustainable cities, sustainable production and consumption, climate change, terrestrial ecosystems, and marine
resources. Some of them are directly related to global environmental issues, while others have indirect but close environmental
links. This is understood as a clear reflection of the very real sense of crisis felt by the international community about global
environmental sustainability.
Above all, serious and widespread irreversible impacts created by climate change are likely to extend to Japan. For example, there
is concern that the risk of natural disasters is likely to be amplified. According to the Intergovernmental Panel on Climate Change
(IPCC) Fifth Assessment Report, warming of the climate system is unequivocal. In addition, it has become clear that the world
average temperature rise within the range up to 2100 is almost proportionate to cumulative CO2 emissions from anthropogenic
sources. The Paris Agreement, adopted in December 2015 as an international response to climate change, tries to hold the increase
in the global average temperature to well below 2 °C, and aims to pursue efforts to limit the temperature increase to 1.5 ° C. For
this purpose, the Paris
Agreement aims to mitigate anthropogenic greenhouse gas emissions to practically zero (i.e. balancing emissions and removals of
anthropogenic greenhouse gases) in the second half of this century. This has become a turning point on the path to building carbon-
neutral societies throughout the world2 This long-term goal of the Paris Agreement can be achieved by limiting cumulative emissions
to less than a certain amount, taking into account the amount of removals by sinks. (The idea that there is a certain upper limit on
the anthropogenic cumulative emissions in accordance with removals by sinks is called the "carbon budget"3.)
For this reason, Japan should continue to pursue rapid reductions of greenhouse gases emissions based upon the best available
science. In response to the Paris Agreement, Japan formulated the Plan for Global Warming Countermeasures in May 20164. While
the amount of emissions in Japan has declined over the past three years, there are a number of factors that may contribute to an
increase of these emissions in the future. These include: prolonged shutdown of nuclear power plants; potential expansion of coal-
fired power plants; progress of transitioning from ozone depleting substances to hydrofluorocarbons (HFCs) that have no ozone
depletion effect but have high global warming potential; and an increase in disposal of refrigerators and air conditioners using
refrigerants that have high greenhouse effect including HFCs. There are certainly many challenges to overcome if the target is to be
achieved. Japan's carbon productivity5 was among the highest in the world until the mid1990s. However, as a result of steady
improvements made by some European countries, Japan’s international carbon ranking has declined since around 2000. Currently
it is not even close to the top of the list.
In the G7 Leaders’ Declaration of the Ise-Shima Summit in 2016, G7 countries committed to formulate ambitious mid-century long-
term low greenhouse gas (GHG) emission development strategies well ahead of the 2020 deadline. G7 countries also recognized
the importance of providing incentives such as domestic measures and enacting carbon pricing in furthering emission reduction
activities. In June 2017, the US announced its withdrawal from the Paris Agreement. Immediately following that, Japan expressed
its firm will6 to continue to commit to implementation of the Agreement. Countries around the world also reaffirmed their continued
commitment. At the G7 Environment Ministers’ Meeting, a communique7 was adopted, agreed by seven countries including the
US.
Footnote
1 The "goal" of SDGs means the ultimate level of achievement at the global level for each of the issues covered by SDGs. On the other hand, the "targets" could be
determined by governments, taking into account different situations in each country, keeping accordance with the global level goal concerned. Thus, targets are more
detailed so as to include the final achievement level and intermediate levels by specifying the final target year and numerical figures. For example, Goal 12 states
"Ensure sustainable consumption and production patterns", while Target 12.3 states "By 2030, halve per capita global food waste at the retail and consumer levels and
reduce food losses along production and supply chains, including post-harvest losses."2 To achieve the balance between the anthropogenic emissions of greenhouse
gases and the removals by sinks in the second half of the century, i.e. carbon neutrality
throughout the world
3 Carbon budget is sometimes used in the meaning of "carbon balance" with respect to carbon dioxide levels in the atmosphere.
4 Refer to the Part 2, Chapter 3, Section 1
5 GDP per greenhouse gas emissions. Differences in the industrial structure need to be taken into account when international comparison is made.
6 The official statement of Japan after the announcement of the US withdrawal from the Paris Agreement (Press release
made by the Ministry of Foreign Affairs on June 2, 2017)
7 The environmental ministers of the six countries except for the US and the European Commissioner in charge of environment and climate issues reaffirmed the strong
commitment to address climate change effectively and urgently and to implement the Paris Agreement rapidly and effectively, which continues to be a worldwide
instrument to adapt to climate change impacts. The US decided not to participate in these commitments. However, as a signatory to the United Nations Framework
Convention on Climate Change, the US indicated its willingness to continue reducing CO2 emissions.
At the G20 in July 2017, G20 leaders including the US continued to commit to reducing greenhouse gas emissions including through
innovation. In addition, G20 members except for the US reaffirmed a strong commitment to the Agreement, arguing that the accord
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cannot be reversed. As observed in several national automobile policies8 and energy policies9, many developed countries are already
pursuing efforts to realize a carbon-neutral society, with even a few developing countries following suit. Private sector efforts are
also making good progress. Many private companies have set their own mid- and long-term reduction targets (e.g. Science-Based
Targets10) and are taking measures. In the finance sector, ESG investment (i.e. investment that takes into consideration factors such
as Environment, Social and corporate Governance) is expanding, and institutional investors are increasingly viewing environmental
performance as one of the key factors for consideration in their investment decisions. Thus, the world has started to steer major
efforts towards a carbon-neutral society, triggered by the entry into force of the Paris Agreement. Businesses are also waking up to
the fact that it is not only climate change that is a direct risk, but there is also a risk associated with how we deal with the potential
impacts of climate change (such as adaptation measures). In addition, changes are likely to spring up in the industrial structure in
response to climate change, requiring support for issues such as fair workforce transition, creation of decent work and high quality
employment.
Footnote
The global environment has been substantially altered by both uncontrolled developments on a global scale, and by climate change.
This has resulted in the continued loss of biodiversity including a decline and loss in various genetic resources. If this trend persists
at the current pace, as pointed out by many experts, the global ecosystem may exceed a critical threshold in the near future, which
could result in a dramatic loss of biodiversity and a widespread decline of ecosystem services (i.e. various benefits for human beings
such as food, water and a stable climate). As a result, the overall welfare of human beings may decline due to mid-to-long-term
contractions of global supply, and demand for food and water.
The earth’s natural resources are finite, yet demand continues to grow. Environmental impacts associated with mining and waste
disposal are increasing. At the same time, there is a concern that mounting resource constraints will impact economic growth.
Meanwhile, Japan made great improvements to resource productivity and recycling rates including through the promotion of the
3Rs (Reduce, Reuse and Recycle), which has been successful in reducing the amount of final disposal of waste—even despite the
fact that recent progress has not been significant. Ultimately, Japan should further strengthen its efforts to raise resource productivity
through the 3Rs, and promote the 3Rs internationally as a matter of priority in the future.
Environmental pollution of air, water, and soil is certainly not a problem that only existed in the past. Marine pollution due to marine
litter including microplastics is a serious issue and global pollution due to anthropogenic emissions of mercury and other persistent,
highly-accumulating hazardous chemical substances into the environment is becoming more serious. Thus, there is a global concern
that human health and ecosystems are seriously affected by the above-mentioned pollution through water, air, and food chains.
However, international actions by G7 countries and others to deal with marine litter, and efforts under the Minamata Convention
on Mercury which entered into force in August 2017, have only just started. On the domestic front, the achievement of environmental
standards in Japan is generally improving over the medium-to-long term, and countermeasures against extreme pollution that
occurred nationwide have achieved certain results. Soil contamination by heavy metals, asbestos in buildings, and polychlorinated
biphenyl (PCBs) that have yet to be detoxified persist as a negative legacy from the past. Remaining challenges also include
atmospheric pollution with fine particulate matters (PM 2.5), and photochemical oxidants. Water pollution caused by eutrophication
in enclosed water areas still also poses a problem. These issues should be tackled appropriately, including ensuring proper
management of various chemicals from emerging industries, with a view towards protecting public health and living environment.
The explanation thus far points to the overall deteriorating of the environment, which forms the basis for our socio-economic
activities. In an effort to objectively evaluate the influence of human activities on the earth’s natural systems, some notable research
on "planetary boundaries11" has been carried out.
Footnote
8 Examples include new policies introduced in UK and France in 2017 to prohibit the sales of gasoline and diesel cars by 2040.
9 There was the launch of a coalition for the abolition of coal-fired thermal power plants announced at COP 23 of the UNFCCC, which was led by UK and Canada joined
by a few developing countries such as Costa Rica and Fiji.
10 SBT (Science-Based Targets) aims to set reduction targets consistent with scientific knowledge to achieve the "2 °C target" defined in the Paris Agreement. It is a joint
initiative by the World Wildlife Fund (WWF), the Carbon Disclosure Project (CDP), the World Resources Institute (WRI), and the United Nations Global Compact.
SBT requires companies to set their greenhouse gas (GHG) target to match the reduction level necessary to maintain global temperature rise below 2 °C as compared
to that of the pre-industrial revolution, as described in the 5th Assessment Report (AR 5) of the Intergovernmental Panel on Climate Change (IPCC). Japan announced
in the Climate Change Summit held in Paris, France in December 2017, that it would support registration of Japanese companies and aim for certification of 100
companies by March 2020.
11 "Annual Report on the Environment in Japan 2017", Johan Rockström et al. “A safe operating space for humanity”,
The research has clearly indicated that human society could continue to develop and prosper, as long as human activities remain
within the “safe operating space” of the earth’s systems. Yet, the research also underlines that if such thresholds12 are crossed,
irreversible changes may take place, which will totally transform the natural environment on which human beings safely depend.
Among the nine environmental factors covered by this research, the extinction rate of species and the circulation of
nitrogen and phosphorus are evaluated to be in the high risk area, which is beyond the range of uncertainty. Climate change and
land use change have been assessed to extend into the area of uncertainty associated with considerable risk. The research poses an
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important question―how will human beings pursue wealth and affluence within the limits determined by the planetary boundaries?
Many of the above-mentioned crises and challenges confronting Japan go well beyond all the usual temporal and spatial ranges, and
transcend specific policy areas. In addition, they are intrinsically related to one another, which makes it even more difficult to deal
with them effectively. Japan may be seen as an "advanced nation" precisely because it is facing these crises and serious challenges
ahead of other countries. One way of dealing with this is to give up trying to think how to solve these problems and become very
pessimistic; another way is to learn to live with the problems and simply maintain the status quo. But of course, neither of these are
viable options. Rather, we must change our mindset, and only then can we turn these challenges into opportunities.
With the entry into force of the Paris Agreement, the world is steadily steering towards carbon-neutral societies. Potential demand
for advanced environmental technologies including those for energy efficiency promoted by Japanese companies, are thus likely to
expand significantly. In fact, some Japanese companies have already begun initial efforts towards this end, viewing them as potential
new business opportunities. Capitalizing on potential demands for such advanced technologies stands to be a major driving force
for the Japanese economy. In Japan, the nation’s infrastructure will soon need a comprehensive overhaul and such structural reform
can be regarded as an excellent opportunity to render the country more resilient and attractive. As part of this, climate change
adaptation and ecosystem-based disaster prevention/reduction13 could be more fully incorporated to enhance the effectiveness of
such processes. Appropriate utilization of regional resources offers the key to simultaneous achievement of environmental
conservation and regional economic revitalization. Meanwhile, many developing countries still face serious air pollution problems
as well as rapidly increasing amounts of waste. Japan's wisdom and experience, especially with regard to the technologies it has
developed in addressing severe pollution and waste issues in the past, could provide
effective ways to solve these problems in developing countries. Taking fully into account the current state of Japan in view of the
challenges described above, the Fifth Basic Environment Plan sets out major directions for the development of future environmental
policies.
Footnote
Nature, September 24, 2009, Vol 461, and Will Steffen et al.
“Planetary boundaries：Guiding human development on a changing planet”, Science, February 13, 2015, Vol347, Issue6223.
12 At which level the "boundary" should be set is not determined only by natural science knowledge. While natural science provides the basis, social and policy judgments
are needed regarding to what extent risks can be tolerated. The boundaries in this study are set with conservative and risk-averse approaches.
13 The 3rd United Nations World Conference on Disaster Risk Reduction held in March 2015 adopted the Sendai Framework for Disaster Risk Reduction which recognizes
effectiveness of utilizing natural ecosystems for management and reduction of disaster risks.
Chapter 2 Basic concepts for the development of future environmental policies to build a sustainable society
1. What does a future sustainable society look like?
In light of the growing sense of crisis outlined in Chapter 1, modern society is becoming more complex than ever before, with
environmental, economic and social aspects very closely linked. If we want to pass on a sound and abundant environment to the
next generation, we must ensure that environmental considerations are fully incorporated into socio-economic systems, thereby
securing environmental sustainability. The socio-economic systems themselves must also remain sound and sustainable. A
sustainable society can only be achieved if actions are undertaken to improve environmental, economic and social aspects in an
integrated manner. It is no longer acceptable to pursue economic/social development at the expense of environmental conservation,
or to protect the environment by sacrificing economic or social gains. What is needed is to develop a “Win-Win” or synergistic
approach that covers all three pillars of sustainable development. Current international trends such as adoption of SDGs, the entry
into force of the Paris Agreement, and expansion of ESG investment, indicate that now is the time to enact a major paradigm shift,
aimed at ultimately bringing about a new civilized society. Based on this recognition, this Plan presents a broad image of a
"sustainable society" to be realized by putting in place the environmental policies set out below.
Following the definition of "sustainable development 14 " proposed by the “UN Commission on Environment and Development”
(Brundtland Commission) in 1987, the concept of "sustainable society" has been the basic direction set out in the "Basic
Environment Act" (Act No. 91 of 1993) and subsequent Basic Environment Plans. The Fourth Basic Environment Plan (Cabinet
decision on April 27, 2012) stated that the ideal sustainable society contains the premise that "the risk to human health and
ecosystems is sufficiently reduced and “safety” is secured”. The plan then sets out the definition of sustainable society, stating that
each of the three environmental challenges, i.e. "low carbon", "circulation" and "harmony with nature", is to be achieved in an
integrated manner with the participation of all major stakeholders, thereby ensuring a sound and rich environment from global to
local levels. To further develop this definition, the Fifth Basic Environment Plan defines sustainable society as follows.
Footnote
14 Our Common Future defines "sustainable development" as "meeting the needs of the present without compromising the ability of future generations to meet their own
needs.”
The environment consists of the “circulation” of elements through photosynthesis and food chains cutting across the atmosphere,
water, soil, as well as living creatures, and a delicate balance is maintained between ecological systems. Human beings are part of
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this environment. However, economic activities have resulted in the exploitation of resources beyond the earth’s environmental
capacity. There has also been an excessive impact on the environment from discharged substances. As a result, the delicate
equilibrium among ecosystems has been broken. The collapse of this balance is manifested in the form of climate change and loss
of biodiversity. Now is the time to make use of the wisdom inherited from our ancestors who lived with natural laws and
mechanisms, and take up new challenges to realize a new civilized society. We must strengthen our efforts to proactively drive
innovations from all perspectives, thereby transforming society into a sustainable one based on SDGs.
While nature is certainly a source of abundance, it can sometimes result in serious threats to humans.Traditional beliefs in Japan do
not oppose nature; rather the Japanese have developed a reverence towards the natural world, adapting and cultivating wisdom to
live in harmony with nature. We need to make full use of this traditional knowledge in conjunction with ICTs and other modern
science and technologies, thereby ensuring minimal environmental impacts even as Japan’s economy grows. Environmental impacts
can be kept to a minimum in three ways: (i) "circulation" of materials and natural resources, (ii) "symbiosis" between nature and
human beings, as well as "symbiosis" between regions through maintenance and rehabilitation of sound ecosystems, and (iii)
realization of “low carbon” societies through various measures including those mentioned above. This kind of circulation and
symbiosis based society ("Environmental and Life Centered Civilized Society") provides a vision of a sustainable society that Japan
can aim for. This Plan advocates building a "sustainable society" through innovative environmental policies, so that Japan becomes
the most "advanced nation to solve modern challenges" ahead of other countries. Based on this future-oriented approach, we will
work hard to address the mounting challenges facing Japan.
2. Expected roles of future environmental policies ~ Creating innovations in socio-economic systems, lifestyles, and
technologies, and providing simultaneous solutions for economic and social challenges ~
In building a sustainable society, it is important to recognize that a sound and rich environment is the basis for socio-economic
activities. There needs to be a transformation in our society so that efforts to promote economic growth and improvement of social
infrastructure do not increase environmental burdens.
One important role that future environmental policies can serve is to create innovations across all perspectives including those
concerning socio-economic systems, lifestyles, and technologies. Such innovations include incremental improvements of existing
goods and services, as well as those that are outside the reach of conventional technologies and systems. For this to be realized, it
is first necessary to present a vision of what a sustainable society might look like for society as a whole, then share it among all
stakeholders including citizens and businesses. This will hopefully lead to a shared understanding that it is not only relevant to
research and development for purposes of promoting future technology innovations, but also to facilitate greater financial investment
from business. As such, the following measures are considered critical: provision of incentives to reward early movers of innovation;
creation of market demand for environmental conservation; generation of new employment opportunities and equitable systems for
transition of the labor market; internalization of externalities by imposing responsibilities on polluters in line with the polluter-pays
principle; incorporation of environmental considerations from the planning stage; promotion of environmental awareness through
environmental education and Education for Sustainable Development (ESD), as well as introduction of measures to promote
partnership with a wide range of stakeholders. Taken together, these measures will contribute to building mechanisms to support
more sustainable societies.
Another aim involves maximizing the impacts of future environmental policies. In fact, what is critical for future environmental
policies is to contribute to providing solutions to economic and social challenges (hereinafter referred to as "simultaneous
solutions"), fully recognizing the ways in which they are linked. Emerging challenges to the environment, economy and society are
becoming not only more serious but they are also inter-related. For this reason, policy design must include elements which allows
for environmental measures to contribute to addressing economic and social challenges, and at the same time, economic and social
measures help in solving environmental issues.
Future environmental policies should create innovations across all perspectives including those concerning economic and social
systems, lifestyles, and technologies, and facilitate simultaneous solutions for socio-economic challenges. These could open up
"new avenues for growth" that ensure quality of life is maintained into the future.
3. Basic concepts for the development of future environmental policies
(1) Implementation of measures for II2ES
The environmental, economic and social challenges facing Japan now seem to be characterized by certain complexities due to the
fact that dominant market trends in other sectors result in impacts on other areas. II2ES should be adopted as a basic approach to
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address this complex set of challenges. However, this basic approach is different from those adopted by previous Basic Environment
Plans, in which priorities were set separately in each of environmental fields with a focus upon directly addressing specific
environmental issues in question. For this reason, this Plan underlines a need to strategically establish a focused, cross-cutting
framework that accounts for interlinkages, and enables specific measures to help address various challenges in an integrated manner.
(2) Appropriate responses to international and domestic situations based upon the basic principles and concepts for
environmental policies
Internationally agreed frameworks such as the 2030 Agenda and the Paris Agreement are key elements in building sustainable
societies. They can take on the attributes of a “catalyst” to fundamentally change the direction of socio-economic activities over the
next several decades. Indeed, there is a possibility that major changes such as those observed in the finance sector may affect other
sectors in the future. A number of developed countries have already promoted efforts towards a carbon-neutral society, and some
developing countries are also making similar efforts. On the other hand, Japan is lagging behind, and its international presence is
diminishing. Failure to properly deal with these sustainability challenges may, in the future, affect the reliability and competitiveness
of Japanese companies. It has even been pointed out that there is a risk of Japanese companies being excluded from global value
chains. Yet, such a crisis also presents a good opportunity to enhance the position in the global value chain, by taking full advantage
of Japan’s excellent environmental technologies.
A sustainable society as envisaged by this Plan should incorporate the important points mentioned above. By drawing upon the
basic principles and concepts presented in previous Basic Environment Plans, accurately identifying major changes in international
and domestic situations, and appropriately reflecting interests of future generations in decision-making, progress can be made to
enhance national measures and to strengthen international cooperation.
(3) Utilization of the concepts of "Sustainable Development Goals" (SDGs)
SDGs with their interlinked 17 goals and 169 targets advocate an approach to address multiple challenges in an integrated manner.
The SDGs also comprise a multiple-benefit approach, in which one particular measure can generate a positive array of subsidiary
returns. The 2030 Agenda also states that "they are integrated and indivisible and balance the three dimensions of sustainable
development: the economic, social and environmental." From an environmental perspective, the basic relationship among the goals
could be understood as follows: the role of the environment is to function as the foundation, upon which socio-economic activities
are carried out on a sustainable basis15.
Footnote
15This is basically consistent with the idea presented by the above-mentioned concept of the planetary boundaries. A
Some of the SDGs may seem difficult to achieve together and some of them indicate a relationship of trade-offs. This is why an
integrated approach is needed to create synergies. It is, indeed, important to broaden our horizons to consider other goals, which
enables us to adopt a win-win approach. We can then pursue "both” objectives with one action simultaneously, as opposed to
“either/or”.
In addition to the above, the 2030 Agenda outlining the SDGs has also declared the promotion of "allinclusive" partnership, which
encourages all stakeholders to participate. It is not appropriate to conduct relevant actions based solely on building upon feasibilities
and realities of the existing society. Rather it is important to adopt a "back-casting" approach, by which the image of a future society
we seek can guide what we need to do now16. In other words, we must let the future dictate “our next steps”. These basic concepts
underlying SDGs are instrumental in promoting II2ES.
Furthermore, making the SDGs a reality is directly linked to addressing various regional challenges in Japan. Major improvements
could be made to a range of regional plans, by using the basic concepts of SDGs, focusing on and fully incorporating local
perspectives.
Footnote
remaining question of this research could be to further elaborate how to pursue rich economies and societies under these limits of the earth.
16 UN Sustainable Development Solutions Network (SDSN), “Getting Started with the SDGs”, December 2015.
Chapter 3 Principles and methods of environmental policy
The following principles should be given full consideration, for successful implementation of the measures to realize a sustainable
society elaborated in Chapter 2, as well as priority strategies and their supporting environmental policies s also described in Part 2,
and the measures listed in the system of environmental protection measures outlined in Part 4.
1. Principles of environmental policy
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Environmental efficiency
Sustainable development requires economic development without compromising the integrity of environmental conservation. This
translates into a need for efforts to raise "environmental efficiency”, i.e. reducing environmental impacts per unit of goods and
services generated, thereby avoiding an increase in environmental burdens, despite an increase in wealth or expansion of the
economy(decoupling).
Concepts of risk assessment and precautionary approach

Many environmental problems are associated with some scientific uncertainty. Examples include environmental impacts of global
warming, and the effects of chemical substances on health and ecosystems. In such cases, environmental risk assessment should be
carried out based on the scientific knowledge available at the time, evaluating to what extent a particular issue generates impacts on
health and environment, and looking at the probability of such impacts occurring. The next critical step would be to judge the
necessity and urgency of countermeasures, taking into account the predetermined acceptable level of risk, and then to set priorities
and put countermeasures in place.
Still the fact remains that there will always be some uncertainty left in identifying causes of the problem and in evaluating consequent
impacts, and in planning and implementing countermeasures, even if those countermeasures were put in place based on the latest
scientific knowledge at that time. However, if no measures are taken because of uncertainty, then once the problem does occur, it
may well cause massive damage and incur massive costs associated with countermeasures which then become necessary. The
consequences could be long-term or even irreversible.
For this reason, scientific uncertainty should not be the reason for delaying measures to tackle problems that may cause
environmental problems. Every effort should be made to enhance scientific knowledge, and preventive measures should be taken
based on the “precautionary approach”. This fundamental approach has already been adopted in various environmental policies to
deal with, among others, global warming, biodiversity conservation, chemical substances, and air pollution. For example, the "Basic
Act on Biodiversity" (Act No. 58 of 2008) has provisions supporting the precautionary approach. Many of the international
conventions ratified by Japan also include the precautionary approach. This points to a growing need to implement domestic
measures based on the precautionary approach. From now on, it will be vital to continue promoting and developing policies
underpinned by this approach.
Since the Great East Japan Earthquake, the importance of risk assessment and the precautionary approach has been reaffirmed not
only from the disaster prevention point of view, but also from the environmental policy perspective. Indeed, risk assessment should
be carried out as objective as possible based upon scientific knowledge, thereby promoting policies that are fully in line with the
concept of "environmental risk" and the "precautionary approach".
In order to make policy decisions when there is some level of uncertainty, it is essential to form a consensus with stakeholders and
citizens. In that case, all-out efforts should be made to promote communications among stakeholders, and policymakers should hold
full accountability.
Even after policy decisions have been made, for example, in the area of biodiversity conservation, regular review should continue
for necessary additions and other changes of policy measures in accordance with the adaptive approach, drawing on newly
accumulated scientific knowledge.
Polluter-pays principle
The "polluter-pays principle", a standard for allocating environmental expenses, is important to incorporate the cost of
environmental measures in the market through pricing, thereby promoting the more rational use of scarce environmental resources.
In addition, it should be noted that the polluterpays principle in Japan has been discussed as a principle of justice and equality that
would contribute to bearing the cost of decontamination and relief measures for victims. Corporate management and consumption
behavior should be encouraged to take safety and environmental aspects into account by reflecting the cost of preventing
environmental pollution caused by accidents and operations in the prices of products and services.
In addition to the above, it is important to utilize the principle of "extended producer responsibility".
This means that producers have certain responsibilities physically and financially until the postconsumption stage in the product
life-cycle. We should also apply another principle of “taking measures at pollution source" through, for example, eco-designing and
eco-manufacturing so as to minimize the emissions of pollutants and wastes as much as possible from the start.
2. Approaches to implement environmental policies
Based on major environmental policy directions elaborated above, and to find solutions to individual environmental policy
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challenges listed in Part 2, it is necessary to prioritize policies, improve costeffectiveness, and reduce expenses borne by society as
a whole. Up until now, various policy approaches such as direct regulation, subsidies, tax incentives, and public awareness raising
have been implemented. However, there is still a need for developing new policy approaches, improving existing policy approaches,
and expanding the scope of policy application. This is indicated in Chapter 2, Section 5 of the Basic Environment Act. The
environmental policy approaches that satisfy specific policy objectives are outlined below.
Direct regulation approach

Direct regulation specifies certain goals and compliance matters to be achieved by society as a whole, then utilizes laws and other
control measures to achieve them. It is effective for prevention of environmental pollution and land use control for conservation of
natural environment.
Regulatory frameworks approach

This approach intends to achieve regulatory objectives by presenting goals, with mandatory actions and procedures to achieve them.
This approach is effective to take preventive or advanced measures to deal with new environmental pollution for which quantitative
target setting and specific compliance matters are difficult to set, while making full use of creativity and ingenuity of those subject
to regulation.
Economic approach
This approach aims to achieve policy objectives by providing economic incentives to stakeholders so that they take economically
rational actions in the market. Specific measures include subsidies, financial support by tax incentives, imposing an economic
burden via taxation, emissions trading, and feed-in-tariffs (FIT), among others. This approach is effective for those to whom the
command and control measures such as those two mentioned above cannot be applied. This approach utilizes changes in market
prices to make stakeholders reduce environmental burdens.
Voluntary approach
This approach seeks to achieve policy objectives by way of encouraging businesses to set voluntary targets for their own actions. It
is particularly effective in cases where businesses have widely expressed their commitments to society and their progress is checked
by the government, i.e. almost equal to a social commitment. This creates an incentive for technological innovation, and
contributesto raising environmental awareness and bringing in environmental education/learning for stakeholders concerned. This
approach is expected to be effective in cases where businesses need to deal with complicated environmental problems quickly and
flexibly by making full use of their expert knowledge and ingenuity.
Information approach
This approach promotes the disclosure and provision of information on the environmental load of business activities, products and
services so that businesses actively engaged in sound environmental practices and producing environmentally friendly goods can
be selected for investment and procurement. Publishing environmental reports and demonstrating environmental performance are
notable examples, which are expected to be effective in promoting environmental considerations of all stakeholders including
suppliers of products and services.
Procedural approach
This approach intends to incorporate procedures and criteria for environmental considerations into the decision-making processes
of a particular actor or entity. Examples include Environmental Impact Assessment (EIA), and the Pollutant Release and Transfer
Register (PRTR) to require documenting and reporting the amounts of release and transfer of chemical substances in the
environment. This approach is considered effective in integrating environmental considerations into actions of each entity.
Action approach
This is an approach to meet policy objectives through direct implementation of necessary actions by public entities, i.e. national and
local governments. This contrasts with other approaches mentioned above which intend to exert certain pressure to non-public
actors.
In addition to those listed above, the Basic Environment Act also mentions a few other approaches, including measures to promote
understanding through environmental education and learning. Applying only one of these approaches proved effective in addressing
pollution problems resulting from specific large-scale sources in the past. However, the modern policy challenges are the
simultaneous realization of a low carbon and a sound material-cycle society in harmony with nature, moving towards a truly
sustainable society, through II2ES. Obviously application of a single policy measure alone cannot be effective to deal with modern
challenges. New and innovative policy approaches are needed. Also an appropriate combination of policy options could be made
by way of an effective policy mix, taking fully into account nature and characteristics of policy objectives. By doing that, policy
packages could be developed to draw on synergies that exist among different policy approaches.
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When considering and implementing individual measures according to this Plan, it is necessary to consider an appropriate
combination of various policy approaches elaborated above.
Part 2 Putting the environmental policy into action
Part 1 Chapter 1 described the current state of Japan regarding environment, economy and society. This Plan covers environmental
measures over the next five years, and specific measures described in Part 2 will be implemented, based upon what should be
achieved by 2030 and 2050, as well as the review of the Fourth Basic Environment Plan, keeping in mind SDGs for development
targets set for 2030, Japan’s mid-term target for greenhouse gas emission reductions by 2030, and the long-term goals of the Paris
Agreement set for the second half of this century.
Chapter 1 Concepts of priority strategy setting
1. Establishment of a priority strategy based on the administrative plan for each area
Complex modern challenges can only be tackled by setting a cross-cutting strategy that enables specific measures to address various
problems in an integrated manner, keeping in mind that a plan has been in place for each of the major policy areas of the environment.
A sustainable society can only emerge if economic activities shift towards a green economy that enables sustainable production and
consumption. Japan’s national land is the basis of its socioeconomic activities and it should be ensured that the national land is
sustainable and remains resilient against disasters. Furthermore, each region should come up with a solution for its own economic
and social challenges by making the best use of local resources. Citizens in urban and rural areas should be more engaged with each
other, by preserving the environment closest to them, and forming a space with further reduced environmental risks so that citizens
can enjoy lives that are healthy and prosperous.
There needs to be research, development, demonstration and dissemination of environmental technologies supporting Japan’s
economy, land, community, and way of life. Of course, developing these technologies not only contributes to sustainable
development and reduction of the environmental loads on a global scale, it also contributes to the promotion of Japan’s
environmental businesses. Therefore, it is important for Japan to implement policy measures that contribute to environmental
conservation of the planet as a whole.
Bearing the above in mind, this Plan has six priority strategies as listed below:
(1) Formulation of a green economic system for realizing sustainable production and consumption
(2) Improvement of value of national land as stock
(3) Sustainable community development using local resources
(4) Realization of a healthy and prosperous life
(5) Development and dissemination of technologies supporting sustainability
(6) Demonstration of Japan's leadership through international contributions and building strategic partnerships
Each strategy will be elaborated in Chapter 2, while Chapter 3 will explain the measures that support priority strategies in detail.
There is some overlap between the six priority strategies. Rather than strictly separating each strategy, this overlap will enable one
policy measure to address more than one priority issue, thereby creating the synergy needed to accelerate the realization of a
sustainable society.
Some of the measures are relevant to several priority strategies, but are listed under the one considered most substantially related.
Thus, in implementing each of the measures, broad attention needs to be paid to interlinkages that exist between the priority
strategies concerned.
2. Enriching and strengthening partnerships
(1) Role of each entity as a prerequisite for partnership
In putting these environmental policies in place, every entity that makes up society should be aware of its own responsibility to the
environment. We must realize that addressing environmental measures can bring great benefits for our lives, as well as for regional
and corporate management. We must also recognize a major risk will emerge if we neglect or postpone environmental measures.
Keeping these in mind, voluntary and proactive efforts are required to reduce environmental loads as much as possible by each
entity through understanding the role to be played and the significance of participation in environmental conservation under a fair
allocation of responsibilities according to each respective position.
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The following points clarify the roles that the government should play in order to enhance and strengthen partnerships, as well as
the roles that local governments, businesses, non-government organizations and citizens are expected to perform.
National government
The national government plays a role in promoting comprehensive environmental conservation measures by establishing a
framework to encourage participation and close cooperation among national and local governments, businesses, non-government
organizations, and citizens with close governmental coordination so that the environment can be conserved through the participation
of society as a whole. The national government presents respective goals, directions and roles of all entities for their environmental
conservation efforts. The government also creates a foundation to facilitate actions by all entities through a transformation of the
overall socio-economic systems and incorporation of environmental considerations in utilization of the national land.
The national government promotes voluntary and proactive efforts by all entities through promotion of environmental education
and learning, support for activities of non-government organizations, and provision of information. The government also promotes
dialogues among all entities to enable networks and partnerships to be more firmly established.
Furthermore, the national government will proactively and broadly incorporate environmental considerations into its own initiatives.
Local governments
Local governments are key to promoting regional priority strategies and play a major role as promoters of regional environmental
conservation as the basis for building a sustainable society. It is the local government that is expected to act as the coordinator for
regional actions. Local governments are expected to implement comprehensive environmental conservation measures in the region,
working closely with related departments, and in collaboration with local residents, businesses, nongovernment organizations, other
local governments and national organizations concerned. Taking the regional characteristics into account, local governments present
goals and major directions of various initiatives in the region. Local governments also lay a regional basis by promoting
operationalization of various policy systems concerned, as well as developing social infrastructure, and promote actions by each
entity
Furthermore, local governments will proactively and broadly incorporate environmental considerations into their own initiatives.
Businesses
Businesses account for a major part of economic activities and as such, businesses play an important role in reducing environmental
loads. Businesses are expected to take voluntary and proactive efforts across the entire value chain of products and services. Such
efforts could include not only pollution prevention but also efficient use of resources and energy, reduction of wastes, and reduction
of environmental loads throughout production to distribution processes.
In particular, businesses are expected to gain new business opportunities for their market expansion by developing new technologies
for environmental conservation, as well as promoting environmentally friendly product designs, and devising product distribution
processes.
Businesses providing products and services that contribute to environmental conservation play an important role in the creation of
a sustainable society with less environmental loads. In fact, their products and services are expected to provide a basis for other
entities to implement their respective environmental measures. Therefore, active development is expected. Financial institutions,
investors and others are also expected to create a flow of funds for building a sustainable society through environmentally-friendly
investment.
Non-government organizations
Non-government organizations set up by citizens and businesses, such as NPOs/NGOs, educational institutions, research institutes,
scientific communities, cooperatives, labor unions and others, are involved in a wide range of autonomous and organizational
initiatives on environmental conservation. Their activities provide an important contribution to building a basis for efforts to promote
environmental conservation. These organizations have a pivotal role in constructing a society in which every entity proactively
participates in environmental conservation, featured by well-nuanced efforts such as grassroots activities and private international
cooperation.
In addition to carrying out specific environmental conservation activities, non-government organizations are expected to make
evaluations on efforts made by public agencies, businesses and individuals, to act as a bridge for conveying information among
different entities through, for example, communicating expert information to the public in an easy-to-understand manner, and to
offer policy recommendations drawing on their respective expertise.
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Educational institutions, research institutes, and scientific communities in particular are expected to further enhance scientific
knowledge as well as sharing data and providing information, and promoting innovative technology development based on the most
recent scientific knowledge.
Citizens
Environmental impacts resulting from our daily lives are on the increase, which makes it necessary for citizens to shift towards
more sustainable lifestyles.
Citizens need to deepen their understanding concerning the relationship between people and the environment, and should try to
incorporate environmental considerations into their behaviors to reduce
environmental loads caused by their daily lives.
They are expected to take voluntary and proactive actions to improve their immediate environment.
Furthermore, building a sustainable society requires that citizens’ views are reflected in the decisionmaking processes, thus they are
expected to actively participate in various opportunities provided by national and local governments.
(2) Enriching and strengthening partnerships
Partnership is stated as one of the "Five Ps17 " that form basic elements underlying the SDGs. Diversifying partnerships among a
variety of entities will become more and more important to ensure a steady implementation of the Basic Environment Plan.
Partnerships among different entities concerned are a vital element for successful implementation of priority strategies and related
supporting policies. Environmental information is indispensable in promoting proactive participation of entities concerned. Thus,
each entity is encouraged to provide the environmental information they have according to the needs of other stakeholders, thereby
enhancing and strengthening partnerships at each stage of policy implementation.
Indeed, partnership is of particular importance to ensure appropriate and effective implementation of specific policies in support of
priority strategies.
The following initiatives require enhanced and strengthened partnerships:
◇ Further promotion of environmental education based on the concept of ESD through all-inclusive partnership among
administrators, schools, companies, residents, community associations, NPOs, NGOs, scientific communities, cooperatives, and
others.
◇Promotion of voluntary efforts by companies to contribute to measures to deal with global warming, and proactive and voluntary
actions by citizens through promotion of public campaigns that facilitate wise choices.
◇Promotion of technological development and dissemination to conserve the rich environment for the future through partnerships
between government, industry and academia such as open innovation.
◇Promotion of risk communications through dialogue and joint-thinking between the national government, local governments,
businesses, non-government organizations, and citizens to further deepen mutual trust. All entities are encouraged to work
together to reduce environmental risks and realize a sustainable society.
◇Promotion of international collaboration at all levels, between the government of Japan and other national governments as well
as international organizations, and among municipalities, businesses, and non-government organizations.
These enhanced actions will make it possible to cultivate multifaceted viewpoints, and will lead to equipping human resources with
the skills to realize II2ES. In other words, enhancing and strengthening partnerships will contribute to human resource development.
Identifying and awarding best practices that contribute to II2ES could be one of specific measures to enhance and strengthen
partnerships, which enables such good practices to be widely shared across the whole society, thereby encouraging each stakeholder
to take voluntary initiatives and to further strengthen partnership among all entities.
Footnote
17 People, Planet, Prosperity, Peace, Partnership
3. Building a sustainable community - Creating the Circulating and Ecological Economy
In order to build a sustainable society across the entire country, each region needs to be sustainable. For this reason, each region is
required to autonomously pursue the implementation of efforts toward II2ES, while taking advantage of its own characteristics. But
in today’s modern era in which socioeconomic activities are carried out over a wide area, it is impossible to isolate socio-economic
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activities in a closed region; as such, it is vital for regions to become complementary to each other.
This Plan aims to create a "Circulating and Ecological Economy”18 that produces new value chains, complements and supports
regional resources by building broader networks, which is composed of natural connections (connections among forests, the
countryside, rivers and the sea) and, economic connections (composed of human resources, funds, and others), while making full
use of mountainous, agricultural and fishing villages, and cities. Each region will demonstrate its strengths by utilizing its unique
characteristics, thereby building a self-reliant and decentralized society where different resources are circulated within each region,
and symbiosis and exchange with neighboring regions according to unique characteristics of each region.
“Circulating and Ecological Economy” incorporates the concept of “Regional Circular Sphere” indicated in the "The Second
Fundamental Plan for Establishing a Sound Material-Cycle Society" (Cabinet decision on March 25, 2008). The concept underlines
the importance of promoting resource circulation at optimal scales according to the characteristics of regions concerned, and the
nature of resources to be recycled. Basically, resources suitable for circulation in a small area should be circulated in the smallest
zone possible, while resources suitable for circulation in a larger area should be circulated in a much more expanded area, thereby
resource circulation could be optimized with a combination of overlapping circular areas according to resources to be circulated.
“Regional CES” also incorporates the concept of "Social-ecological Sphere" indicated in the "National Biodiversity Strategy of
Japan 2012-2020" (Cabinet decision on September 28, 2012), which takes consideration of communities and people closely
connected with the supply and demand of local ecosystem services, or the blessing of nature, in a holistic way, and promotes
deepening and enhancing collaboration and mutual support. As such, Regional CES is a concept that aims to promote the utilization
of regional resources, and ultimately realize low carbon development, as detailed below.
“Circulating and Ecological Economy” could be applied to small areas at the community or municipality level (including special
wards in Tokyo) in certain cases, but may be appropriately applied in a scale even larger than river basins and prefectures, in other
cases. Circulating and Ecological Economy will therefore cover a variety of geographical areas from the level of villages,
through municipalities, to that of prefectures and river basins.
“ Circulating and Ecological Economy” has in its scope almost all resources including foods, products, circular resources,
renewable resources, artificial stocks, natural capital19, as well as basic chemical elements such as carbon and nitrogen. All of these
resources are circulating through every stage of human socio-economic activities such as production, distribution, consumption,
disposal, as well as through natural systems. In order to make resources circulation appropriate, first of all, inputs of resources
including materials and energies should be minimized as much as possible, thereby utmost efficiency could be achieved. In addition,
“Circulating and Ecological Economy” minimizes environmental burdens through diversified and multilayered resource circulation,
and mobilizes regions through promoting circular regional economies.
Footnote
18 The idea of "Circulating and Ecological Economy " is proposed in "Building a society by integrated policy approach on low-carbon, resource circulation, and living in
harmony with nature ~ Creating environmental and life centered civilized society ~ (recommendation)" (Central Environment Council, July 2014).
19 Circular resources (livestock manure, food waste, sewage sludge, plastic, metal etc.), renewable resources (wood, renewable energy sources such as geothermal, wind
and hydropower etc.), artificial stock (social capital, buildings etc.), and natural capital (forest, soil, water, air, biological resources, etc.)
“Circulating and Ecological Economy” will ensure a symbiotic relationship with nature, between people, environment and living
creatures in particular, recognizing the fact that humans are a part of environment and are living creatures themselves. Based upon
this recognition, “Circulating and Ecological Economy” will ensure symbiosis between nature and humankind from the perspectives
of both conservation of secondary nature and suppliers and consumers of local ecological services.“Circulating and Ecological
Economy” also promotes symbiosis among different regions ranging from mountainous, agricultural and fishing villages, and cities.
The key to creating “Circulating and Ecological Economy” is to re-discover regional resources and to utilize them properly. To find
new values in overlooked resources of each region will be the first step moving towards II2ES. For example, power generation and
heat use utilizing regional biomass ensures low carbon and resource saving by replacing fossil fuels and reducing long-distance
transportation. It also creates economic and social benefits through increasing employment for the region, and strengthening
resilience by securing energy locally in times of disaster. Benefits could be even greater if utilized biomass is derived from thinning
of local forests and management of secondary nature (i.e. Satoyama), which will certainly contribute to sound management of forests
and conservation of rich natural environment (i.e. ecosystem services), thereby creating multiple benefits cutting across economy,
society and environment.
“Circulating and Ecological Economy” is a new approach, which is not only beneficial for mountainous, agricultural and fishing
villages but also for cities. People in urban areas could become more aware of or even “visualize” the fact that they are supported
by agricultural, forestry, and fishing products from mountainous, agricultural and fishing villages, and other benefits from nature
(i.e. ecosystem services). This could lead to concrete actions to support villages through increased participation in nature
conservation activities and expanded purchase of products from environmentally sound agriculture. In other words, “Regional CES”
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is a concept to maximize the vitality of all regions, making full use of mountainous, agricultural and fishing villages as well as cities.
This Plan will mobilize all the measures listed in the priority strategies centering on initiatives in Chapter 2 "3. Sustainable
community development using local resources". It will create innovations across all perspectives including those concerning socio-
economic systems, lifestyles, and technologies. The Plan aims to realize sustainable societies by developing multifaceted and
multilayered policies that cover from regions of Japan to the rest of the world through creation of“Circulating and Ecological
Economy.”
Chapter 2 Development of environmental policies for each priority strategy
1. Formulation of a green economic system for realizing sustainable production and consumption
(Basic concept)
In order to ensure sustainable production and consumption patterns, this Plan will aim for socioeconomic system innovation, as well
as improved resource productivity20 and carbon productivity (economic growth can be achieved while reducing natural resource
inputs and greenhouse gas emissions).
From this point of view, decision-making and investment decisions are encouraged that will contribute to the construction of a
sustainable society and promote environmental business as well as encouraging the expansion of supply and demand of green
products and services (in particular by expanding overseas demand) by cultivating environmental business to become the driving
force of the Japanese economy. At the same time we will work to reduce environmental impacts and create a virtuous circle
for the economy.
Further, it is necessary to transform Japan's energy supply and demand structure by promoting thorough energy conservation and
making maximum use of the renewable energy that is available in Japan which is a major pillar of our measures against global
warming. At the same time, through reduction of primary energy imports, energy self-sufficiency will expand, contributing to better
energy security. This will also contribute to the improvement of international balance of payments and the strengthening of industrial
competitiveness in Japan. From this point of view, we will encourage efforts towards the maximum introduction of energy
conservation and renewable energy by companies, consumers and others.
From the viewpoint of resource circulation, Japan must develop an economy that moves towards the ultimate form of socio-economy
whose material flow is in harmony with the circulation of nature. This requires a break from the old economic system designed to
create a successful model enabling efficient economic activities based on "concentration" and "homogenization", which made
"goods" and "money" the source of competitiveness to create added value. What is required now is to propel innovation based on
the Fourth Industrial Revolution and ensure it is reflecting across all industries and areas of social life. It would be possible to
transform the economy as a whole from one based on "quantity” to one based on “quality" and improve labor productivity21 , by
ensuring that "people (human resources)" and "data" are represented as sources of value. By connecting diversity with "selfreliance"
to bring about "integration", the new business model can be expanded to one that produces more added value, by "providing
necessary products and services to those who need them, when necessary, and only in the amounts needed ". This will optimize
material flow of the current economic society into a flow that reduces environmental impacts and encourages thorough resource
circulation throughout the entire life cycle.
In order to boost the efforts of companies etc., it is essential to promote the greening of the economic system. As seen in ESG
Investment, investors are increasingly looking at environmental considerations of companies as one of the factors for investment
decisions. In line with this growing trend, we will promote the greening of the whole tax system and green finance that shifts the
flow of capital into the development of sustainable society such as investment and loans to markets related to environmental fields
including climate change countermeasures, resource circulation and harmony with nature.
Footnote
20 Added value per input amount of natural resources. When comparing internationally, it is necessary to pay attention to differences in industrial structure, etc.
21 Value added per labor input
(1) Expansion of environmental business and mainstreaming of environmental considerations in corporate strategy
(Expansion of environmental business)

Environmental businesses in Japan continue to expand in market size creating viable opportunities for employment. To further
expand environmental business and set it as a driving force for the Japanese economy, there should be continuous monitoring of
corporate environmental business and promotion of green products and services supplied by companies over the short run. We also
need to gain a better understanding of the market size of environmental business, develop best operating practices as well as promote
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efforts to secure and nurture human resources and improve productivity, including policies for such promotion. Environmental
business will be thus supported through various measures (described below) such as green procurement, green contract, expansion
of green finance, and greening of the whole tax system.
(Promotion of environmental management throughout the value chain)

As ESG investment expands globally, Japan is seeing a growing interest in the activities of companies with environmental
considerations. Companies are required to respond to environmental issues such as climate change and degradation of natural capital,
not only within their own company but also the entire value chain including their business partners. This trend will broaden the
scope of activities of companies with environmental consideration and will be a major driving force for building a sustainable
society.
To promote further expansion, companies are to be encouraged to calculate and reduce emissions associated with the value chain,
quantify and visualize reduction amounts through the value chain, and support the formulation of mid and long-term reduction
targets based, for example, on the ScienceBased Targets for individual companies. Introduction of environmental management
systems will be promoted based on the PDCA cycle such as ISO 14001 and Eco Action 21 for small and mediumsized enterprises
(SMEs) throughout the value chain.
We will also encourage companies to promote further environmental management through active disclosure of environmental
considerations and the direction of future efforts with improvements in comparability and trustworthiness of information, through
making their environmental reports public.
Furthermore, for the purpose of creating new corporate value by incorporating environmental aspects into corporate management,
we will encourage companies to conduct in-house and external training to develop human resources to work on environmental
management and conservation within their companies and guide the greening of the economy and society.
(Understanding and promotion of new business models such as servicizing and sharing economy)
With the use of IoT and AI, there has been a rapid expansion of businesses focusing on providing functions of a product as services,
i.e. servicizing (e.g., product lease and rental, ESCO (Energy Service Company) business), and sharing economy22 (e.g., car sharing,
cycle sharing, temporary lodging at private residence) which is one form of servicizing. Expansion of these new business models
are expected to encourage long-life of products and easy-to-recycle designs, and encourage conversion from the conventional mass-
production and mass-consumption type economic systems. For this reason, there needs to be better understanding of these new
business models including contribution to low carbonization and resource saving, and they should be promoted widely through
“visualization” of their environmental benefits.
Footnote
22 Economic activities that other individuals etc. can use such as idle assets etc. that can be utilized possessed by individuals etc. (assets (space, goods, money, etc.) and
abilities (skills, knowledge etc)).
(Green procurement / Green contract)

In order for companies to expand the supply of green products and services, it is essential to expand demand for such products and
services. For this purpose, the national government, etc. works actively on the initiative of green procurement and green contract,
and we carry out public awareness raising to encourage green procurement and green contract of local governments, companies and
individuals. To move green procurement forward, a review will be conducted on the roles and directions of the "Act on Promotion
of Procurement of Eco-Friendly Goods and Services by the State and Other Entities" (Act No. 100 of 2000).
(Promotion of advanced Japanese green products/services/environmental infrastructure)

Demand for green products and services is not limited to Japan. Efforts towards a carbon-neutral society have accelerated
internationally with the entry into force of the Paris Agreement. Developing countries are also now looking to maintaining a good
environment along with economic development, so this provides opportunities for Japan to promote superior green products and
services. Through top sales utilizing bilateral policy dialogues and regional forums, among others, we will promote infrastructure
exports to improve the environment of developing countries. Promotion can be packaged with systems, technologies and finance
together, and will also contribute to diverse business development in Japan. To promote green products, negotiations will resume
on the EGA (Environmental Goods Agreement) so that a conclusion can be reached as soon as possible to promote
free trade of goods contributing to environmental protection and climate change countermeasures.
(2) Improvement of the balance of payments and strengthening of the industrial competitiveness through maximum use of
domestic resources
(Promotion of all-out efforts for energy conservation)
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Improving energy efficiency is one of the main global warming measures and at the same time it is the key to productivity
improvement.
Based on the "Act on the Rational Use of Energy" (Act No. 49 of 1979, hereinafter referred to as the "Energy Conservation Act"),
we will implement further energy management and promote the introduction of energy-saving facilities and equipment.
Improvements should also be made on the energy efficiency of household appliances and automobiles utilizing the equipment top
runner system. SMEs are not included in the specified businesses23 under the Energy Conservation Act, but we will promote energy
conservation efforts by SMEs, by encouraging them to recognize the need for energy conservation, to support their investment in
energy conservation, and promote detailed assistance needed by SMEs through the "Energy Conservation Regional Consultation
Platforms".
Footnote
23 Operators with energy consumption (converted to crude oil equivalent) of the entire business operation of 1,500 kl / year or more
Regional efforts by local governments will be strengthened through the support of the formulation and implementation of action
plans developed based on the "Act on Promotion of Global Warming Countermeasures" (Act No. 117 of 1998).
Furthermore, utilizing IoT for example, a new energy saving (negative watt) trading market will be established so that consumers
themselves can manage their energy use in a more proactive manner.
In order to reduce environmental loads of the entire supply chain in the field of logistics, there will be more collaboration between
consigners requesting cargo transport and cargo shipping companies engaged in cargo transportation, as well as efficient and low
carbon transport modes by introducing vehicles that contribute to high efficiency of truck transportation such as articulated lorries
as well as promoting a modal shift. To simultaneously conserve energy and reform workstyles, low carbon transportation and
delivery systems will be constructed through collaboration among those concerned. Measures will include creating a "carbon free
port", reduction of re-delivery by utilizing delivery boxes, joint transportation among companies, combination of freight and
passenger transport, and other efforts using IoT.
(Maximum introduction of renewable energy)

Utilizing the abundant renewable energy that is available in Japan in combination with energy saving and energy storage can lead
not only to CO2 reduction but can also to the improvement of energy selfsufficiency and the revitalization of regional economies.
This could be achieved with the proper application of the Act of Partial Revision of the “Act on Special Measures Concerning
Procurement of Electricity from Renewable Energy Sources by Electricity Utilities” (Act No.59 of 2016), which was implemented
in April 2017 to prompt the cost efficient introduction of renewable energy. Taking other comprehensive measures such as
overcoming grid system restrictions and research and development will promote development of a self-sufficient power supply over
the mid to long-term, in harmony with the nature and local societies, while finding a balance between the maximum introduction of
different renewable energy sources, and alleviating the burden on citizens.
Technological developments will be promoted for higher efficiency and lower cost of solar power equipment. For wind power
generation, technologies will be developed to enhance the efficiency of electricity generation, lower costs, upgrade grid operations,
and expand the introduction of offshore wind power generation. Stakeholders will be consulted to examine the idea of promoting
wind power generation based on a zoning approach, which separates areas where wind power could be introduced, from areas where
priority is given to nature conservation and other living environments. We will also take up measures to speed up EIA. For
hydroelectric power generation, we will promote the installation of power generation capacities in existing dams that have no power
generation facilities, as well as replacing the old facilities installed in other existing dams, coordinating with stakeholders concerned.
For small and medium hydroelectric power generation, there are many undeveloped sites so these will be utilized as an energy
source to lay a foundation of decentralized energy supply and demand structure of the region, taking into account the associated
business challenges such as high cost. This will require rapid and smooth installation of equipment for geothermal power generation
by reducing investment risk, promoting understanding of local residents, accelerating EIA, and further rationalization of the
regulations and systems concerned as necessary.
As renewable energy is expanded, a critical issue is fluctuations in electricity generation, and the resultant loads on the grid system.
This requires much wider operation of the grid system, acquisition of power sources that have higher capabilities to respond to
changes in demand, and demand response adjusted to supply capability, and introduction of batteries on both grid side and demand
side (including utilization as batteries for electric vehicles), as well as storage using hydrogen, strengthening inter-regional
connection lines, thereby further expanding the capacity of the electricity grid to accommodate renewable energy, and at the same
time introducing a self-reliant and decentralized renewable energy system off grid.
There is also a need to make more effective use of heat produced by renewable energy sources (such as solar heat, geothermal heat,
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snow and ice heat, hot spring heat, seawater heat, river heat, and sewage heat) and un-utilized waste heats. We support the
introduction of renewable energy heat supply facilities and demonstrate and construct models that make effective use of various
thermal energies in the region, taking fully into account economic efficiency and local characteristics.
(Expansion of the use of hydrogen)

Hydrogen is expected to contribute to the improvement of total energy efficiency utilized in fuel cells, which could be a part of a
decentralized energy system. It will also contribute to stabilization of the grid system being used as storage of electricity produced
by renewable energy (Power-to-Gas), as well as to the reduction of greenhouse gas emissions in the transport sector.
In order to expand the use of hydrogen in the domestic, business and industrial sectors, we will promote the dissemination of
residential fuel cells (i.e. Ene-Farm) as well as technological development and demonstration of fuel cells for offices and industrial
power generation to make them less costly and more efficient. This will require hydrogen-related facilities to be incorporated into
existing energy systems such as power generation and heat supply, thereby building a low carbon hydrogen supply chain.
For industrial vehicles such as fuel cell vehicles (FCV), fuel cell buses and fuel cell forklift trucks, development of necessary
technologies will be promoted to lower prices and improve performance and encourage wider use.
Hydrogen stations are essential for the operation of FCV and they will be systematically set up while looking at the possibility to
use hydrogen produced from renewable energy. In addition to promoting technological development aimed at reducing costs
associated with hydrogen stations, we will also consider reviewing relevant regulations based on the improvement of safety and
reliability of the technologies concerned.
Technological development for stable production and transportation of hydrogen at low cost will be vital, as well as promotion of
technological development and demonstration of hydrogen production, transportation and storage technologies with as few CO2
emissions as possible, such as hydrogen production from renewable energy and hydrogen transformation of un-utilized energy
sources.
This will require expanding the use of hydrogen according to the "Basic Hydrogen Strategy” 24 including efforts elaborated above.
Footnote
24 Decision by Ministerial Council on Renewable Energy, Hydrogen and Related Issues (December 26, 2017)
(Utilization of biomass as energy and circular resources)

Expanding the use of biomass-derived energy and products could be effective to create the vitality of mountainous, agricultural and
fishing villages, and return profits to local areas. This is expected to lead to a virtuous cycle of the regional economy.
Comprehensive utilization of woody biomass including expansion of power generation and heat use by woody biomass aims to
promote the expansion of the use of domestic timber including that produced through thinning, thereby promoting the growth of
wood and forestry industry. Food waste will be thoroughly used as animal feeds and fertilizers, for which demand should be
expanded through the promotion of agriculture, forestry and fishery based upon materials circulation. Wet biomass such as livestock
excreta, sewage sludge, and food waste not converted into animal feeds and fertilizers should be used for power generation and heat
use utilizing biogas produced by the methane fermentation process. Residual liquid left in the process could be used as fertilizer for
agriculture. These actions will promote environmentally friendly and disaster-resilient towns and villages centered on the biomass
industry.
(Utilization of circular resources, urban mining)

Use of domestic circular resources contributes, in the same way as renewable resources do, to improvement of the balance of
payments in addition to reducing the environmental burden associated with transportation. Upstream measures will be strengthened
such as environmentally conscious designs, sustainable procurement, reduce, reuse, and increasing the use of recycled materials.
Such efforts should be made by all stakeholders concerned to ensure efficient resource circulation throughout the entire life cycle.
We aim to promote low carbon and resource circulation models such as sharing and re-manufacturing, and others fully utilizing IT,
and support will be given to efforts on improving resource productivity in each industry.
Particular focus will be put on efficient use of urban mining (i.e. extraction of useful resources included in used products). We will
analyze how metals could be collected, looking at the impact and effect of recycling of small household appliances. Further full use
will be made of the local characteristics, including collaboration among various entities such as venous/recycling industries and
material industries, thereby maximizing the total amount of metals recovered, including base metals and rare metals.
Citizens will be encouraged to participate in 3R activities associated with the Tokyo Olympic and Paralympic Games in 2020,
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through a project to produce Olympic medals using metals recycled from small household appliances.
(3) Formulation of a green economic system through finance
(Promotion and expansion of ESG investment etc.)

In recent years, ESG investment has been expanding. Many asset owners such as pension fund (funding contributors) and asset
managers have signed onto the "Principles for Responsible Investment" (PRI) advocated under the initiative of the United Nations
in 2006. The Government Pension Investment Fund (GPIF) —the world’s largest institutional investor—is one such institution.
The result is a burgeoning global ESG investment since 2012. This movement is spreading to other sectors such as banking and
insurance. There has been some expansion of ESG investment in Japan, but not as much as that in other parts of the world. Japan
needs to encourage stakeholders and investors to be more aware of the importance of ESG investment, get a clearer understanding
and move ahead with further expansion. Therefore, we will encourage more companies to disclose environmental information and
optimize the quality of that information to improve corporate value. A platform will be maintained and improved to boost active
dialogue between investors and companies.
(Promotion of investment and loans to green projects)

In order to meet the 2 ° C target and achieve the SDGs, huge investments are required for projects that contribute to global warming
countermeasures and prevention of degradation of natural capital. In order to attract private investment to such projects, we will
support low carbon projects where private funds are not sufficiently supplied, and support green bond issuance and subsequent
investment.
(4) Tax system as the basis of green economic system
(Promotion of greening of the whole tax system)

Promoting greening of environment-related taxation systems including energy taxes and vehicle taxes is an important program to
build the basis of the green economic system because it leads to the further promotion of environmental conservation through
incorporating environmental considerations into the actions of various stakeholders including companies and citizens. We will
promote greening of the whole tax system, through synthetic and systematic survey and analysis of environmental and other effects
from environment-related taxes, while considering the situation of foreign countries.
Using tax revenue from the special tax measure of the Petroleum and Coal Tax for climate change mitigation, we will steadily
implements measures to control energy-originated CO2 emissions.
2. Improvement of value of national land as stock
(Basic concept)
Given the declining population, declining birth rate and aging population, apparent impacts of climate change, energy issues,
intensifying global competition, aging of infrastructure, as well as an increase in land which can no longer be appropriately managed,
it is important to promote various policies for sustainable national land management. In order to deal with these issues, it is necessary
to incorporate environment considerations in both hardware and software of social infrastructure development and land use, and to
develop national land that can respond to economic and social challenges.
Therefore, measures will be implemented to conserve the diversity of the national land based on live in harmony with nature.
Conserving the natural environment also leads to sustainable use of ecosystem services and support of industry and living in Japan,
and it also serves as a source of high value added goods and services. Not only pristine natural areas, but also local natural
environments such as Satochi-Satoyama (socio-ecological production landscapes) and agricultural lands, parks, and green spaces
in urban areas lead to an improved quality of life (QOL), with accompanying health benefits.
Furthermore, we will implement policies focused on encouraging the creation of sustainable and attractive cities. Cities could be
made more compact and consequent sustainable regional public transport networks could contribute to the reduction of CO2
emissions due to less traffic. Central urban areas are being revitalized to ensure a healthy lifestyle by increasing the amount of
walking and bicycling. The volume of construction waste and construction byproducts could be reduced through appropriate
maintenance and effective utilization of stock, and this would also encourage low carbon housing, thereby building up a good
housing stock as a foundation for current and future living.
Policies will also be implemented on improving resilience using environmental infrastructure and green infrastructure25 . We believe
that strengthening of regional capacity to prevent and reduce disasters utilizing diversified functions held by the natural environment,
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the provision of a stable supply of energy including in times of disaster through the introduction of self-reliant and decentralized
energy system, as well as the provision of a consistent waste treatment system during both periods of disaster and non-disaster
periods, will lead to improved resilience. It is essential to ensure a safer living environment by encouraging relocation from areas
with high disaster risk to low risk areas.
Footnote
25 Green infrastructure is a sustainable and attractive landscape building that utilizes various functions of the natural environment (provision of habitats for living creatures,
formation of good landscape, suppression of temperature rise, and disaster prevention and reduction). This implies both a way of thinking and method for promoting
community development.
(1)Maintenance of the diversity of the national land centered on living in harmony with nature
(Maintaining, enhancing and utilizing natural capital)

For ensured and sustained benefits of nature and sound socio-economic activities in all regions, we will promote properly evaluating,
maintaining, enhancing the value of natural capital as stock and its sustainable conservation and use by mainstreaming biodiversity
across sectors.
Japan is a nation of many islands that stretch a long way from north to south, and as such various wildlife including many endangered
species and endemic species inhabit and flourish here. It is necessary to harmonize human activities and maintain biodiversity
through habitat conservation with endangered species, as well maintaining and revitalizing various natural environments damaged
in the past such as rivers, wetlands, tidal flats, and algae fields. We will also promote measures against invasive alien species, and
promote wildlife management, while maintaining connections among forests, the countryside, rivers and the sea. In this way,
national land use will also be promoted responding to economic and social challenges with environmental considerations
incorporated.
(Maintenance and conservation of forests)

It is necessary to promote diversified and healthy forests in order to demonstrate the multifaceted functions of forests such as
conservation of national land, water source recharge, conservation of biodiversity, and measures to deal with global warming. Thus,
forest management should ensure timely and appropriate re-forestation and thinning over certain regions, and promotion of mixed
forests of conifers and broadleaf trees according to local natural conditions. For this purpose, we will establish a new forest
management system aimed at making forestry a new growth industry, and realizing sound management of forest resources. At the
same time, forest maintenance and conservation should be promoted through utilization of new tax schemes such as a forest
environmental tax (tentative title) and a forest environment transfer tax (tentative title).
(Establishment of ecosystem networks)

We will establish ecosystem networks according to catchment basins centered on rivers, utilizing conspicuous large bird species as
symbols. Specifically, the following measures should be promoted: recovery of dis-continued rivers, regeneration of flood plains
and wetlands, sound connections between rivers and man-made water bodies such as waterways, ponds, swamps and paddy fields
in the river basins, conservation and restoration of habitats of endangered animals and plants, promotion of environmentally sound
agriculture, support for branding of environmentally sound agricultural products, and promotion of natural resource-based tourism.
In this way, both biodiversity conservation and revitalization and mobilization of regions will be simultaneously promoted. At the
same time, the efforts described above could contribute to securing pathways for animals and plants to move and migrate according
to changes in natural environment brought about by climate change.
(Conservation of marine environment)

In order to promote conservation and sustainable use of the marine environment, while fully taking into account related international
frameworks such as SDGs, the following comprehensive measures should be taken: establishment and sound management of marine
protected areas, conservation of vulnerable ecosystems such as coral reefs, proper responses to ocean acidification, measures to deal
with marine litter including microplastics, prevention of marine pollution, comprehensive coastal area management, harmonization
of exploitation and conservation of oceans, monitoring and research as a basis for proper management of the ocean environment.
(Maintenance and restoration of sound water circulation)

It is essential to re-discover that water is common property for all human beings, that water should circulate healthily, and that the
benefits associated with water should be handed down to future generations. Based upon this recognition, comprehensive measures
should be taken to maintain or restore healthy water circulation. In line with the understanding described above, the "Water
Circulation Basic Act" (Act No. 16 of 2014), was enacted, increasing the momentum for efforts to address various problems
concerning water circulation such as droughts, floods and water pollution. Comprehensive and integrated watershed management
should be promoted based upon the "Water Circulation Basic Plan" (Cabinet decision on July 10, 2015). Collaboration among
stakeholders concerned should be promoted by strengthening of institutional arrangements, which include establishment of a river
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basin water circulation council as well as formulation of a watershed circulation plan by local governments and other organizations
concerned.
(Appropriate land management responding to a declining population and national land use that conserves, regenerates, and
utilizes the natural environment)
In the face of a declining population, sound management and effective use by land owners is the basis for appropriate land
management. In cases where the owner is not able to carry out appropriate land management and use or where the owner cannot be
identified, it becomes necessary to identify someone other than the land owner for appropriate land management and use. Sustainable
management of national land requires various measures such as proper management and circular utilization of renewable resources
and energy including local biomass, learning wisdom and technologies concerning good management and utilization of local
resources such as practices known as traditional Satochi-Satoyama (socio-ecological production landscapes) management, and
development of specific mechanisms to enable various stakeholders such as city residents and businesses to manage common natural
resources (i.e. commons) together.
In cases where proper land management is not possible even after the above mentioned measures are considered, first of all,
management costs should be reduced as much as possible according to local conditions. Then, possibilities should be examined to
identify alternative land use by finding new objectives such as creation of habitats of endangered animals and plants or buffer zones
in case of disasters. Specific measures include regeneration of the natural environment such as transition to natural forests and
restoration of wetlands.
(Measures against invasive alien species)

Based on the priority on conservation of biodiversity, the following measures should be promoted: designation of invasive alien
species, regulation on raising, importing, and transferring such species, enhanced awareness regarding proper raising, and activities
to control and remove such species. In the case of unintended introduction of invasive species such as red imported fire ants, quick
countermeasures at or near possible points of entry should be carried out.
(2)Creation of sustainable and attractive cities and communities
(Realization of compact urban space with neighborhood nature)

Effective sustainable cities require a concentration of key urban functions in core areas, with residents living in the surrounding
zones and along public transportation lines, thereby constructing compact cities that connect through networks of public and other
transportation means. In cases where compact cities enable concentration of supply (heat sources) and demand for heat, support for
the introduction of local heat supply systems could be effective in promoting local heat utilization. Such systems will
enhance feasibilities of un-utilized local renewable heat energies generated using solar, geothermal, snow and ice, and sewage,
among others. Promotion of a public transportation network centered on light rail transit systems (LRT) / bus rapid transit systems
(BRT) will contribute to the mitigation of greenhouse gas emissions through consequential reductions in the volume of automotive
traffic.Compact cities could be promoted through "visualizing" the reduction of environmental burdens to be realized by these
measures.
In addition, the formation of an ecosystem network in urban areas in tandem with compact cities will be promoted through the
construction of livable cities with green and blue (water) areas, and the conservation and creation of agricultural lands, parks, green
spaces, waterways, non-concretized rivers (with sand and gravel) all of which could contribute to maintaining certain biodiversity
in cities.
(Formation of “Small hubs”)

In hilly and mountainous areas marked with sharp population decrease and aging, it is important to maintain a "community living
area" as an integral daily life zone. In this way, we will promote the formation of "small hubs" in an effort to create a sustainable
community. At these hubs, the availability of local thermal energy will increase, and options for introducing renewable energy
utilizing local resources will also grow, thereby contributing to reducing greenhouse gas emissions through the introduction of
support for such measures.
(Maintenance and utilization of traffic networks)

Declining population and aging makes it difficult to maintain transportation services for daily life. Revitalization of private bus
services through rearrangement of local bus routes, and effective introduction of community buses and demand-based transport
systems could be effective in maintaining and sustaining transportation networks for daily life.
Public transportation encourages the use of local resources, improves the attractiveness of the area and encourages interaction with
other regions, leading to the development of broader regional economic activities such as production, logistics, and tourism. In
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addition, improvement of services will be promoted through collaboration among multiple public transportation companies, and
introduction of park and ride systems. ICTs could provide information on local traffic routes for smooth transportation.
We will also promote initiatives to encourage bicycle use, together with relevant safety measures. Such initiatives include measures
such as provision of parking lots and paths for bicycles, utilization and dissemination of cycling-trains and bike-sharing schemes,
which contributes to reducing overall environmental impacts.
(Appropriate maintenance and effective utilization of the existing infrastructure stock)

The value of stocks of existing infrastructure composed of public facilities including water supply and sewerage systems and waste
treatment facilities, transport infrastructure, and energy infrastructure, should be improved. They could be rearranged, renovated,
and re-modified, by ensuring prolonged use, improved disaster prevention function, and promotion of energy efficiencies.
We will promote measures to create high-quality social stock and prolonged use by modifying functions according to changes in
social demand, including prolonged use of existing houses by modification, as well as promote the net-Zero Energy Buildings (ZEB)
and the net-Zero Energy Houses (ZEH).26
.
Effective use of existing buildings in good condition should be promoted as lodging and communications facilities through
renovation for regional revitalization, or as medical and caring facilities for the elderly.
(3)Improvement of resilience by use of environmental and green infrastructure
(Securing consistent safety in usual times and in times of accident / disaster)

In order to carry out collection and treatment of household garbage, human waste and disaster waste properly and promptly in usual
times and in times of disaster, the waste treatment system should be strengthened in a multilayered manner at all levels from
municipal, through regional, to national. Management of chemical substances has been developed mainly based on the assumption
that it will be carried out in usual times. In the case of disasters and accidents, therefore, there remains a significant risk of
environmental pollution with chemical substances. Thus, we will promote various measures to minimize this risk.
Renewable energy should be promoted to the maximum extent as self-reliant and decentralized energy sources for each region by
combining with, whenever appropriate, co-generation and fuel cells. Waste treatment facilities could also be promoted as regional
energy and disaster prevention centers. All of those listed above will enable prompt energy provision in time of disasters, and
promote coherent initiatives to strengthen resilience of national land, reduce carbon emissions, and promote resource circulation.
(Promotion of green infrastructure and Eco-DRR)

We will pursue efforts to strengthen green infrastructure and make national land and community sustainable and attractive in both
hard and soft aspects of improving social infrastructure and land use, drawing upon various functions of the natural environment
(e.g. provision of habitats for living creatures, formation of good landscape, suppression of temperature rise, and disaster risk
reduction).
Eco-DRR27 should be promoted by evaluating the disaster risk reduction function of the ecosystem, conserving and restoring the
relevant ecosystem functions. For example, effective initiatives should be promoted to conserve and restore wetlands which function
as reservoirs to accommodate floods, and to conserve diversified and healthy forests for maintaining resilience of national land. In
so doing, we will respond to challenges associated with changes in the social structure, particularly those posed by population
decline and aging of the social infrastructure and to drastic worsening of natural disasters, together with contribution to the
conservation of biodiversity.
(Promotion of climate change adaptation measures28)

In order to contribute to the creation of a resilient and sustainable society that can deal with climate change, adaptation measures
should be taken, based on the "National Plan for Adaptation to the Impacts of Climate Change " (Cabinet decision on November
27, 2015), which include strengthening of an information base regarding climate change adaptation, and promotion of adaptation
measures in agriculture and disaster prevention sectors of each region. Support will be provided to all entities including local
governments and private companies so that adaptation related business opportunities are generated in Japan and overseas through
branding of agriculture, forestry and fishery products, and developing infrastructure technologies that build resilience against natural
disasters.
Footnote
26 Buildings / houses whose annual primary energy consumption is zero at net.
27 Ecosystem-based Disaster Risk Reduction
28 Regarding the adaptation, the Working Group II Background Box SPM.2 of IPCC Fifth Assessment Report explains "the process of adjustment to actual and expected
climate and its effects.
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3. Sustainable community development using local resources
(Basic concept)
Local socio-economic activities are based on diverse local resources, which include local energy, natural resources, urban
infrastructure, and industrial assets, as well as local culture, local features, and institutions/communities.
Accordingly, in order for a local area to be sustainable, it is important to enhance socio-economic activities by improving the quality
of local resources and maximizing utilization of the natural capital, the artificial capital and the human capital of the area in a
sustainable way. In local areas, issues arising from the declining population, decreasing birthrate and aging of society have become
obvious. However, all areas have various potential resources, and therefore comprise viable sites for pursuing II2ES.
From this point of view, we will implement measures to maximize the utilization of local resources in a sustainable manner. The
introduction of self-reliant and decentralized energy utilizing local renewable sources is expected to improve local energy balance
and contribute to the promotion of employment and resilience of the national land. It is also expected that utilizing circular resources
and renewable resources will restrict the inputs of natural resources and the outflow of funds from the area, hereby reducing the
amount of final disposal of waste, and contributing to local revitalization through the growth of recycling industry. Furthermore,
conservation of the rich natural environment is expected to contribute to supporting both local culture and features, thereby
enhancing the provision of local products for high value-added tourism and agricultural, forestry and fishery products. In this way,
local areas will contribute to developing major parts of Circulating and Ecological Economy.
In addition, we will implement measures to promote the creation of a wide area network, in order to educate and foster human
resources who support such efforts, promote symbiosis and exchange between mountainous, agricultural and fishing villages, and
cities, and to widen financial flows within the area.
In advancing such a sustainable community, it is important for local governments to promote measures to achieve SDGs. For this
reason, we will select SDGs Future Cities and SDGs Model Programs for Local Governments, and provide financial support. Strong
support is also provided by the SDGs Task Force, a body established based upon collaboration among all Ministries concerned.
Success stories and good practices will be widely communicated, leading to further implementation of sustainability efforts
supporting local revitalization.
(1) Maximizing utilization of local energy and biomass resources
(Introduction of renewable energy utilizing local resources)

Utilization of diverse renewable energy sources such as solar, wind power, hydropower, geothermal power, biomass, heat from
renewable energy sources such as geothermal and hot springs, according to local characteristics, could improve local energy balance
and contribute to the construction of a strong local economy. In addition, joint implementation of projects related to renewable
energy, energy conservation, and elderly persons watching systems will create new employment and help maintain and develop
local vitality.
Most renewable energy production is self-reliant and decentralized. Thus, it will, together with power generation and heat use at
waste treatment facilities, contribute to improving local resilience in times of disaster, hence also it is effective to strengthen
resilience of the national land.
(Promotion of new local power producers and suppliers)

Drawing on the ingenuity of private companies, new power producers and suppliers in a local area that utilize local renewable
energy can sustainably promote low carbon development as their business activity. The formation of businesses entities should be
promoted to support the diffusion of self-reliant low carbon activities in local areas.
(Promotion of farming photovoltaics (FPV))

FPV is an approach to install photovoltaics (PV) equipment above farmland, while continuing to carry out farming. Installation of
FPV has started in various regions. Encouraging the use of FPV will promote stabilization of farmers' management and self-
utilization of renewable energy electricity for agricultural facilities, storage batteries and agricultural machinery so as to contribute
to local revitalization and improvement of energy balance.
(Community development with un-utilized biomass resources)

Woody biomass such as thinned timber and logged trees in riverine areas, as well as agriculture and forestry biomass such as rice
straw and rice husk, will be used as materials and energy sources, with a view to creating sustainable businesses. Agriculture,
forestry and biomass operators working together with local governments will formulate a biomass utilization plan, leading to
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improved local energy balance, promotion of agriculture and forestry, and revitalization of local areas.
Taking into account the amount of viable resources, we will establish a "local-scale ecosystem", which is made up of elements
ranging from people who can make sustainable use of woody biomass resources scattered in the area as materials and energy, to
power generation and heat use. By doing so, sustainable, self-reliant and decentralized energy will be secured, which will lead to a
virtuous circle of local economies, conservation and rehabilitation of forests, and contribute to conservation of biodiversity at
Satochi-Satoyama (socio-ecological production landscapes).
(Resource circulation including utilization of waste biomass in local areas)

Resource circulation in local areas includes waste biomass such as food waste, livestock excreta, sewage sludge, paper, construction-
generated wood, and sludge from Johkasou (decentralized wastewater treatment system). The responsibility for disposing of these
waste products rests with waste generating entities, complemented by municipalities having overall responsibility concerning
general waste disposal. Keeping this basic framework in mind, under cooperation with diverse stakeholders such as agricultural,
forestry and fishery workers, local circular resources and renewable resources should be circulated and utilized through reuse,
recycling and energy use, promoting sustainable community development, thus contributing to local revitalization.
(2) Maximizing utilization of local natural resources and tourism resources
(Local revitalization centering on national parks etc.)

An increase in the number of tourists from overseas visiting national parks leads to a boom in tourist guide businesses and an
increase in the amount of spending for tourism, which contributes to economic and regional revitalization. National parks in Japan
should be branded as world-class "National Parks", encouraging people to make more use of them. Conservation measures will be
carried out where necessary. Furthermore, by utilizing ICTs and other means to carry out promotion activities and also
by using park fees and private funds, a mechanism will be promoted for sustainably conserving the local natural environment as an
important tourism resource, thereby creating a virtuous cycle of revitalization of the local economy and nature conservation.
National gardens such as the Kokyo Gaien and Shinjuku Gyoen attract an increasing number of visitors including overseas tourists.
Efforts to improve the quality as gardens and the convenience and safety facilities will be promoted to further
increase the number of visitors.
(Promotion of tourism including ecotourism)

Tourism including ecotourism and green tourism contributes to local revitalization by sustainably utilizing local natural resources
while conserving the area.
For areas that are engaged in ecotourism, the creation of a sustainable community will be promoted, which takes full advantage of
the local-specific attractions, by supporting human resource development such as guides and coordinators who can explain about
natural tourism resources in the area, create attractive programs, and communicate what the area has to offer, while conserving local
natural tourism resources. These actions will be also supported by strategic public relations activities.
In addition, efforts will be made to promote, among others, green tourism including agricultural experiences and blue tourism.
(Utilization of diverse cultural resources from nature)

In Japan, there are local features rooted in the nature of each area, and diverse histories and cultures unique to the area emerging
from this background. These features and cultures are closely linked with nature. Scenery and landscapes will be further refined
including agricultural fields, old Japanese-style houses, local streets, beaches, as well as the cultural resources unique to each area
such as traditional festivals, folk performing arts, traditional crafts, and traditional foods. These tourism resources will be linked
with many types of tourism to ensure they are sustainably used and passed on to future generations.
(Improvement of added value of local industries focusing on environmental conservation and sustainability)
Increasing areas are taking biodiversity conservation and sustainable farming into consideration, thereby producing and selling
value added agricultural, forestry and fishery goods. These include branding of agricultural products linked with conservation of
wildlife symbolizing the local areas, such as ibises and storks, as well as the certification system applied to the Globally Important
Agricultural Heritage Systems (GIAHS) in recognition of the conservation and succession of traditional agriculture, forestry and
fishery practices. Initiatives will be promoted to fully enhance the value of local resources and raise attractiveness by local ingenuity.
Natural capital that has nurtured the distinctive features of local areas has the potential to generate added value, and in so doing also
lead to the creation of new businesses. The so-called sextiary industries (primary x secondary x tertiary industries) of agriculture
will be promoted utilizing natural capital. We will also promote the creation of an attractive environment for certain businesses by
connecting them through a supportive transportation network and IT systems, which in turn will lead to an increase in people
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relocating to rural areas, or moving back to the country areas where they grew up. Local on-site efforts will be supported by
analyzing and sharing success stories and future challenges on initiatives that has generated added value through the sextiary
industries.
(Drastic measures to strengthen capture of designated wildlife species for management)

Culling projects to control designated wildlife (i.e. Sika deer and wild boar) will be promoted, requiring intensive control on a wider
geographical scale. To enhance population control, recruitment and education of hunters will be promoted according to different
purposes and functions under different control systems. In addition, the development and diffusion of effective and efficient new
technologies will be promoted, using ICTs and sharp shooting technologies. Also control measures will be promoted in accordance
with target wildlife. Further, we will encourage local businesses to make planned and sustainable use of some of the captured
wildlife as resources such as wild game meat (i.e. gibier) and leather.
(3) Symbiosis and exchange among mountainous, agricultural and fishing villages, and cities, and creation of a wide-area
network
(Efforts to connect and support forests, the countryside, rivers, and the sea)
We will establish a natural connection (resources from nature) and an economic connection (funds, human resources) between cities
and mountainous, agricultural and fishing villages through conservation and regeneration of forests, the countryside, rivers and the
sea, and sustainable use of resources. Specifically, we will pursue a virtuous cycle of biodiversity conservation and local
economic revitalization through sustainable use (e.g. development of environmentally conscious products, branding and promotion
of tourism) of local resources from forests, the countryside, rivers and the sea (e.g. food, materials and energy), thereby aiming at
integration of low-carbonization, resource circulation and harmony with nature.
(Symbiosis and exchange among mountainous, agricultural and fishing villages, and cities)
We will utilize local resources from agriculture, forestry, fishery and tourism, and increase population exchanges in collaboration
with various fields such as education and welfare. Based on movements such as returning to rural areas, we aim for symbiosis
through mutual contribution of mountainous, agricultural and fishing villages, and cities. Specifically, we will promote ecotourism,
green tourism and blue tourism as well as long-stay tourism. In addition, these exchanges between cities and mountainous,
agricultural and fishing villages will not remain temporary. Thus, we will promote the development of "an area where you want to
live" and develop further exchange between the two areas moving progressively from dual-residence lifestyle, through migration to
settlement. Furthermore, we will promote efforts to reuse vacant old Japanese-style houses in rural areas, and provide them to those
who wish to relocate, or reconstruct them for sightseeing or interactive purposes for local residents. At the same time, we will
support efforts for students to carry out exchange whereby universities in the Tokyo area establish satellite campuses in rural areas
(including use of closed school buildings), as well as universities in rural areas and those in Tokyo implementing a joint credit
system. On the other hand, actions are being taken to maintain sound urban landscape by dismantling deteriorating, unusable
facilities before they become hazardous and eventually collapse. We will recycle dismantled waste as much as possible and dispose
of it appropriately. In this way, in accordance with local circumstances, we will regenerate the local environment including
restoration of security and landscape, revitalization of local area, and conservation of nature. At the same time, we will promote
the reduction and recycling of construction waste such as concrete blocks and construction sludge.
(Community development through human development)

To make local areas more self-reliant and sustainable, what is essential are good human resources, who understand the relationship
between the environment, economy and society, who are capable of identifying and sustainably utilizing local resources, and are
effective in connecting with various experts. Based on the concept of ESD, we will seek to promote “human resource development”
aimed at creating sustainable communities that feature cooperation with diverse stakeholders, thereby cultivating human resources
that can promote more effective partnerships and exchange with other regions.
(Expansion of green finance in local areas)

For low-carbon projects conducted in local areas where private funds are not sufficient, we will work together with local
governments and financial institutions to promote commercialization and fundraising. That will lead to simultaneous solutions for
local economic and social challenges and for local environmental issues.
We will also promote understanding of green finance among local financial institutions that play a major role in creating local
investment flows, while expanding green finance in local areas across the whole of Japan.
4. Realization of a healthy and prosperous life
(Basic concept)
Japanese culture is based on harmony with nature, nurturing Japanese sensibility through long-term interaction with nature.
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Traditional arts and a sophisticated manufacturing culture have emerged. However, due to dependence on overseas resources, rapid
urbanization, population decline and aging of society, connections between people and nature and those among people are being
diluted, and traditional communities are being lost. Our lives are supported by various natural resources (i.e. ecosystem services)
from forests, the countryside, rivers and the sea. In order to maintain and improve the vitality of Japan, it is essential to create diverse
and attractive Circulating and Ecological Economy, making full use of unique local features. The values of unique nature including
forests, the countryside, rivers and the sea should be recognized in each region, to reconstruct the connection between people and
nature, and within communities.
People's values, lifestyles and workstyles are directly and indirectly affecting the global environment through consumption
behaviors, and use of fuels, energy and resources. Technological innovations such as AI and IoT will bring major changes in
lifestyles and workstyles. For example, the sharing economy represented by car sharing is expected to lead to a reduced
environmental load by effectively utilizing resources in society as a whole, which could lead to a new lifestyle that replaces
overconsumption and throw-away culture. By transforming our lifestyles and workstyles, and selecting goods and services in a more
environmentally-conscious way, we will create new demands, which lead to innovation of new goods and services. Thus, it is indeed
necessary to promote innovation across various lifestyles.
Japanese values and lifestyles have become more diversified, and recently there has been increasing awareness among urban
residents particularly the youth, about relocation to rural agricultural areas. Even urban residents can maintain connections with
forests, the countryside, rivers and the sea. For example, having some contacts with neighborhood nature and local nature and
culture in everyday life and leisure time can boost the connection between people and nature, and this can be reflected in daily life.
Contact with nature is also useful for maintaining and promoting health and has a positive effect on the mind and body. In response
to a declining and aging population, we must re-examine how we live and work, and shift to a way of living that is environmentally
friendly, healthy and high quality.
The environment is the foundation of people's health and prosperous lives, yet it faces various risks posed by adverse effects both
on people and ecosystems associated with pollution of water, air and soil with chemical substances, and heat island effects. Thus,
environmental risk assessment as well as precautionary approaches are considered effective to better deal with such risks.
(1) Switching to environmentally friendly, healthy and high quality living
(Switching to a sustainable lifestyle and consumption)

Consumers should not only pursue "low cost" and "convenience", but should also be aware of the hidden social costs, recognizing
that their consumption behaviors affect the environment and society. ESD could raise such awareness, and promote understanding
of sustainable lifestyles including consumption behavior considering people, society and environment (i.e. ethical consumption)
such as local revitalization and employment.
The small choices that we make in our daily lives can make major changes for the future, with environmentally friendly choices
having a positive impact on households, health and lifestyle. We will further extend a national campaign, called “COOL CHOICE”,
to encourage people to choose lowercarbon products and services.
We will promote reduction of unnecessary containers and packaging, and the use of reused goods and recycled products. Reduction
and reuse can be further encouraged by using IT to promote servicizing, sharing, repair and reuse.
At the Tokyo Olympic and Paralympic Games in 2020, "Sustainable Sourcing Codes" have been established based on the
"Sustainability Plan (1st edition)". Through procurement of Japanese food materials such as agricultural products that match these
codes, we will encourage easy-to-understand actions to communicate about sustainable Japanese food culture in Japan and overseas.
The Tokyo Olympic and Paralympic Games will be a good opportunity to expand the use of eco-friendly agricultural, forestry and
fishery products, with certification issued to indicate this. Other efforts will consider biodiversity in the promotion of organic
agriculture that avoids chemically synthesized fertilizers and pesticides. We will work on local production for local consumption as
well as disseminating traditional Japanese food culture or Washoku.
(Reduction of food waste)

To reduce food waste, we will promote coordinated efforts among business entities, consumers, and local and national governments.
This includes revision of commercial habits to make the entire food chain more efficient, which is difficult for individual companies
to achieve, as well as promoting the introduction of high accuracy prediction of supply and demand in the production and distribution
process, which utilizes big data analysis and AI. It also includes facilitating the “Enjoyable Ways to Not Waste Food Campaign ”
by local governments which consists of, for example, running the "3010 project" to reduce leftovers by setting a "time to eat" at
parties, as well as encouraging households to use up all food materials. We also promote area-wide initiatives under the coordination
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of, and with cooperation among local governments concerned. In addition, we will proceed with efforts regarding setting a target
for the reduction of food waste, and measuring the amount of food waste.
(Low carbon and healthy housing)

Houses with high thermal insulation not only are low carbon but also contribute to maintaining comfort and health. We will promote
the spread of zero energy housing (ZEH) to cover the amount of energy consumed annually by renewable energy, while achieving
substantial energy saving through improvement of heat insulating and introduction of highly efficient equipment. ZEH will also be
promoted to use domestic timber and other materials contributing to low-carbonization.
Senior citizens who reside in well-insulated and airtight housing can live healthy and comfortable lives at home, thereby avoiding
brain and heart diseases caused by heat shock. In this way, we can ensure extended healthy lives for citizens, as well as controlling
energy-related greenhouse gas emissions.
(Extension of healthy life expectancy by walking, riding bicycle, etc.)

Along with efforts such as making cities more compact and promoting the use of public transportation, we can create an attractive
space and environment where more residents can move safely and comfortably on foot or by bicycle. This will increase the
percentage of transportation on foot or by bike and reduce greenhouse gas emissions from transportation, as well as benefit health
and ease traffic congestion.
(Promotion of a workstyle reform by teleworking)

By introducing teleworking and a flextime system using ICTs and promoting paperless offices, we will reduce transport-related
CO2 emissions and see a decrease in paper consumption. This will also enable to improve a balance between work and life including
childcare/nursing as well as to enhance productivity. We will support promotion of a workstyle reform through “visualization” of
environmental effects.
By reviewing low-demand business hours such as late-night and round-the-clock retailing, we will contribute to securing the labor
force even in the face of population decline, reducing personnel expenses, and maintaining the health of workers, thereby reducing
greenhouse gas emissions at the same time.
We will promote safe, secure, low carbon medical care and nursing care by promoting effective use of ICTs.
(Extension of healthy life by “ONSEN stay”)

Modern day society brings with it many stresses and the need for a better work-life balance. As such, hot spring spa resorts offer
suitable places for refreshment and healthy longevity. We will promote "ONSEN stay" that aims to ensure rejuvenation both
physically and mentally by enjoying a variety of programs making full use of the surrounding nature, history, culture, food in
addition to bathing in hot springs and interacting with local people and other visitors. We will also gather and analyze scientific data
on the positive health benefits through close contact with nature, and promote efforts to encourage more contacts to extend healthy
life expectancy.
(Improvement of quality of life by promoting proper care of pets)

Care of pets is one way for people and animals to coexist, enriching people’s lives and extending life expectancy in the process. We
aim to realize a society where people and pets can live together, and comprehensively promote measures to encourage proper care
by owners, including measures to prevent damaging neighborhood living conditions by inappropriately keeping too many pets at
one place.
(2) Transformation of lifestyles more in contact with forests, the countryside, rivers and the sea
(Promotion to experience nature and lifestyles of mountainous, agricultural and fishing villages)
Today’s children have fewer opportunities to interact with nature, so they need not only education and learning in schools and
communities, but also opportunities for original experiences to feel nature “through all five senses” wherever possible in their
everyday life. We will build a social system to have children freely play in nature through creation of forests, the countryside,
waterfronts and seashores, where necessary, creation of space in urban areas to interact with local nature, and promotion of long-
stay activities in mountainous, agricultural and fishing villages. We will also promote the operation of the accreditation system for
expanding opportunities for nature experiences and related activities as prescribed in Article 20 of the “Act on the Promotion of
Environmental Conservation Activities through Environmental Education” (Act No. 130 of 2003, hereinafter referred to as the "Act
on Promotion of Environmental Education etc.")
(Promotion of rural migration and dual-residence lifestyle that contribute to sound management of forests, the countryside,
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rivers and the sea)
Through participation in conservation initiatives and activities to experience nature, some people start to feel the attraction of a rural
lifestyle. We will provide information for those people through a unified information sharing system, and one-stop window for
consultation. Aimed at encouraging lifestyles wherein people reside in cities during week and spend the weekend in rural areas—a
so-called “dualresidence lifestyle”—while also encouraging relocation to rural areas, we will provide information necessary and
enhance consultation support for daily life including housing, medical care and care of the elderly, employment opportunities in the
agriculture, forestry and fisheries, and agricultural work for experience.
We will enrich the system to support dual-residence, dual-activity and dual-work lifestyles and develop a nationwide promotion
campaign.
Younger generations in particular benefit from direct involvement in local activities, which will create a strong attachment to the
regions concerned, thus expanding future possibilities to promote exchange of people. Therefore, we will promote opportunities for
young people to study in mountain villages, and on remote islands, as well as to experience forests, the countryside, rivers and the
sea.
(Creation of new timber demand and educating consumers)

In order to sustain the multifaceted functions of forests, it is necessary to continue sound management in an efficient and effective
manner. We must secure a stable demand for timber and aim to develop and disseminate new products and technologies such as
Cross Laminated Timber (CLT) and refractory materials. We will promote wooden construction of medium and large-scale
buildings in rural and urban areas, diffusion of wooden interiors for core regional facilities such as public buildings and large stores
as well as general households, and expansion of using wood in furniture, toys, and daily necessities.
To boost measures mentioned above, we will actively promote practical activities such as the "”KiZukai (wood-using) movement",
a national movement to disseminate the significance of and expand the use of wood, as well as "Wood Education" to learn
advantages and significance of wood use.
(3) Conservation of a good living environment as a basis for safe and secure life
(Maintenance and restoration of healthy and rich water environment)

Conservation of water environment requires comprehensive understanding of an entire watershed including coastal waters into
which a river flows, and appropriate measures according to features of each part of the watershed areas. We will continue to maintain
the regulatory approach as the basis for policy measures, centered on water quality control through preventing pollution. In addition,
we will evaluate, maintain and restore habitats for living creatures in accordance with the characteristics of watershed areas by
considering factors other than water quality. Voluntary participation by various stakeholders and cooperation among them are
essential.
(Ensuring good air environment)

Conservation of the air environment requires not only conventional air pollution prevention measures, but also additional measures
as necessary based on scientific knowledge. We will work on comprehensive measures both inside and outside of Japan to ensure
good air quality.
(Promotion of appropriate treatment of waste)

Proper treatment of waste is essential for environment conservation and improved public health. Responding to social conditions,
we will promote three initiatives to promote the development of systems, structure, and technologies to properly process waste.
First we will promote the design and implementation of systems for collection and transportation of waste, in line with an increase
in the number of elderly households. Secondly, waste treatment facilities, the core of general waste treatment, need to be enhanced
for improved energy utilization and concentrated to serve wider areas and utilized intensively over much longer periods. Third, we
need to achieve sophisticated and labor-saving monitoring of appropriate treatment process by utilizing IoT and AI. With business
operators taking full responsibility for waste they generate, we try to prevent the increase of illegal dumping and inappropriate
treatment of waste by precautionary actions and early response. In addition, we will promote the development of environment for
waste disposers to select high performance industrial waste disposal companies and the digitization of procedures on waste, as well
as consider the use of information including on-line manifest.
(Comprehensive management throughout the entire life cycle of chemical substances)

As a base to secure safety and peace of mind of citizens, it is necessary to evaluate and manage risks associated with chemicals
across their entire life cycle ranging from production, through importation, utilization in products, and recycling, to final disposal
of chemical substances. The World Summit on Sustainable Development (WSSD) indicates a goal of minimizing significant adverse
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effects of chemicals on human health and the environment by 2020. Therefore, we will promote the proper use of chemical
substances in order to minimize the environmental risk caused by chemical substances through improving environmental efficiency
by safe and efficient production of chemicals as well as reducing the environmental burden of chemical substances. Furthermore,
we will work on appropriate treatment at the times of disposal and recycling as well as promote communicating information on
appropriate treatment.
(Promotion of measures against marine litter including microplastics)

We will conduct studies on marine litter including microplastics to gain accurate information on its distribution in the ocean and its
impacts on marine ecosystems. At the same time, we will provide support for local governments to take measures for collection and
treatment of marine litter, and preventing generation of the amount of marine litter. Further comprehensive actions will be promoted
which include public awareness-raising, reduction of single-use plastic containers and packaging, improvement of separation
practices after use, recycling, and ensuring appropriate treatment including prevention of illegal dumping. International cooperation
regarding marine litter should be promoted based upon related international frameworks, as well as multilateral and bilateral
collaboration.
(Creation of a comfortable sensory environment)

We will promote the creation of comfortable sensory environment for communities, utilizing fragrant trees and flowers. We also
take measures against light pollution and promote star observation.
(Measures against heat island effect)

With the Tokyo Olympic and Paralympic Games in 2020 as impetus, and taking fully into account current thermal environment and
future trends, we will promote heat island countermeasures based on reduction of anthropogenic heat, improvement of urban
surfaces, urban structure and lifestyle, and implementation of adaptation measures to reduce the effects on human health.
5. Development and dissemination of technologies supporting sustainability
(Basic concept)
Technology is required to contribute not only to sustainability efforts in Japan but also the world, including achieving the 2 ° C
target of the Paris Agreement and adapting to the effects of climate change. Development and dissemination of environmental
technologies have to be promoted, which can assist in addressing impending social issues such as a declining population, a declining
birthrate and aging society, as well as the issue of overdependence on overseas for energy and other natural resources. Such
technologies could also contribute to regional revitalization, and help to minimize impacts of disasters.
Japan is considered as an advanced nation facing various social and other challenges. Thus, Japan will promote development of
innovative technologies that contribute to solving these problems using emerging ICTs such as AI and IoT, and realize the Society
5.029 through social implementation of developed technologies and systems.
We will develop state-of-the-art environmental technologies that support sustainable production and consumption through securing
stable and efficient use of energy and other resources, taking measures against climate change, promoting automation and labor-
saving by utilizing ICTs.
Low impact environmental technologies have been advancing rapidly in recent years. They include technologies utilizing symbiotic
relationship with organisms such as low pesticide agriculture using a symbiotic relationship between microorganisms and plants,
technologies of anti-fouling materials that do not use any chemical compounds using “biomimetics” that obtain ideas from superior
functions and shapes of living creatures, and technologies which enable the production of useful substances by microorganisms and
plants other than fossil resources. These technologies enable low environmental impacts in a similar manner found in natural laws
and mechanisms, by utilizing and mimicking functions of living organisms. Looking ahead to industrialization, we will promote the
development of low impact environmental technologies (so-called "environment / life technologies") which utilize the natural laws
and mechanisms as well as living organisms.
Furthermore, in order to promote social implementation of newly developed technologies and established ones in some cases, and
to accelerate their dissemination and deployment, we will work jointly across all sectors of government to develop an integrated
approach that features a promotion of standardization and rationalization of regulations.
Footnote
29 Society 5.0, which is a form of the future society that we aim for the "5th Science and Technology Basic Plan"(Cabinet decision on January 22, 2016), by highly
integrating cyber space and physical space, providing goods and services that responds to various needs and potential needs finely, without disparity due to region, age,
sex, language, etc., thereby achieving both economic development and solving social challenges. It is a human-centered society where people can live a comfortable
and high quality life filled with energy.
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These technological developments should be based not only on scientific requirements such as substantiality, reproducibility, and
objectivity, but also on comprehensive promotion of environmental research and technological development that ranges from basic
research, development of underlying technologies, to social implementation. At the same time, it is certainly necessary to develop
human resources capable of promoting such environmental research and technological development. Consequently, environmental
research and technological development will be promoted based on the integrated innovation strategy as set out in “the Science and
Technology Basic Plan”.
(1) Development of state-of-the-art technology supporting the realization of a sustainable society
(Ensuring efficient use of energy and secure a stable supply of energy)

In order to promote efficient energy use, we will further promote research, development and dissemination of energy conservation
technologies, by, for example, developing next generation power electronics technologies using new materials such as gallium
nitride for industries, offices and households, as well as for transportation (vehicles, ships, and aircrafts). We will also promote
research and development on technologies for improving efficiency and lowering cost of renewable energy, upgrading system
operation technologies that will contribute to expanding introduction and technologies for stabilizing energy utilization by hydrogen
and stored energy, and will also promote the dissemination of next-generation vehicles30 utilizing technologies mentioned above.
Fukushima suffered significant damage due to the nuclear power plant accident. The Fukushima Innovation Coast concept
developed subsequently contains components such as hydrogen production from renewable energy and full-scale operation of
floating offshore wind power generation. By promoting this initiative, we will take early action to lead the way forward to a future
energy society, thereby driving the world towards decarbonization.
Footnote
30 In the "Automobile Industry Strategy 2014", hybrid vehicles, electric vehicles, plug-in hybrid vehicles, fuel cell vehicles, clean diesel cars, compressed natural gas
vehicles, etc. are defined as next-generation vehicles.
(Responding to climate change)

In order to respond to climate change challenges, it is necessary to drastically reduce greenhouse gas emissions on a global scale,
and contribute to climate change adaptation both in Japan and across the world.
The best way to promote climate change measures from a long-term and global perspective is to continue to gather the latest
scientific knowledge within Japan as well as internationally. As to monitoring and observation of climate change, we continue to
promote comprehensive observation of the global environment, using equipment such as satellites, radar, sensors, and marine
vessels. We will also promote further development of observation technologies, development of technologies to calculate and verify
greenhouse gas emissions, and their practical application. Regarding the Arctic region which has seen a noticeable impact from
climate change, we have to advance observation and research including development of Arctic observation technologies. Based
upon these observation results, we will develop research and development as a basis for overall climate change measures, including
understanding climate change mechanisms through more sophisticated prediction models and simulation technologies using
supercomputers, and also constructing an earth system model, thus contributing to the development of a global earth observation
system.
To mitigate climate change, we will promote research and development for social implementation on innovative technologies that
will contribute to drastic reduction of global greenhouse gas emissions, such as CCUS (Carbon dioxide Capture, Utilization and
Storage), based on the "National Energy and Environment Strategy for Technological Innovation towards 2050 " (decided on April
19, 2016 Council for Science Technology and Innovation). Such technologies include carbon capture and storage (CCS) technology
and artificial photosynthesis that produces carbon compounds from CO2 as a raw material.
In addition, climate change adaptation requires technology development that enables prediction and evaluation of climate change
and its impacts. In addition, the technology development is also promoted to contribute to solving economic and social challenges
caused by climate change by integrating observation and prediction data of the global environment.
(Securing stable supply of resources and circular utilization)

A sustainable and sound material-cycle society is one that improves resource productivity and recycling rates, and controls the
amount of final disposal, taking into consideration stable supply of resources and their lifecycles. Keeping the above in mind, we
will promote research and development of resource efficient technologies, technologies to produce safer substitute materials,
technologies to refine raw materials with reduced environmental loads, and technologies that recover, separate and regenerate
resources from waste. We also promote research and development to provide high value added materials through a manufacturing
process that draws upon resource regeneration technologies with reduced environmental impact.
(Utilization of ICTs such as AI, IoT)

Through the integration of cyber-space and physical-space utilizing ICTs such as AI and IoT, a new productivity revolution is
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expected to materialize, which could not only contribute to decarbonization, energy conservation and improvement of resource
productivity, but also overcome Japan’s labor shortage resulting from its declining population, decreasing birthrate and aging
population.
We will work on more efficient operation and management of factories, and better automatic control of consumer's electricity
consumption through efficient demand-response devices, thereby contributing to promoting low carbon and energy conservation
activities. We also promote efficient logistics, and improve the precision and yield in crushing and sorting of urban mines. We will
further move ahead with digital twin technologies to shorten the time required to develop energy equipment and promote
technologies to reduce CO2 emissions.
We will promote technological development to improve resource productivity by supplying products and services to people who
need it, when they need it, and in the amounts they need. With this in mind, the following will be promoted: optimization of
production volume and production timing by analyzing the weather and consumption patterns using AI, optimization of inspection,
repair, exchange and reuse using IoT, and operationalization of sharing platforms on the Internet.
In addition, we will advance technology development for more efficient and effective environmental conservation in local areas,
such as implementation of thinning in Satoyama using robot technology, and surveying and planning of natural parks using ICTs.
("Logistics Revolution" by utilizing new technologies)

We will promote efficient logistics through development and implementation of unmanned automatic delivery services in designated
areas, utilization of drones, and wireless power transmission technology as the basis for above mentioned services. We will also
promote an information sharing platform among businesses, so they can operate more efficiently and with fewer carbon emissions.
(2) Development of technologies applying natural laws and mechanisms
(Production of high-value-added chemical products from biomass)

Cellulose nanofiber31, which is a highly functional material made from, among others, forest resources and agricultural waste, is a
plant-derived carbon-neutral material, and is a renewable resource which is biodegradable and recyclable. This material is expected
to contribute greatly to global warming countermeasures through improvement of fuel economy and efficiency by reducing the
weight of automobile parts, generators, household electric appliances, which ultimately contributes to building a sound material-
cycle society sustainably using forest resources and the like.
Footnote
31 Ultra fine plant crystal fiber about 5 times as strong as steel but one fifth the weight
Chemical products derived from biomass can be expected to contribute to the realization of a low carbon and sound material-cycle
society, so we will develop innovative underlying technology for separation, conversion, synthesis, etc. so as to produce high value
added chemical products from biomass.
Assuming that biomass-based chemical products become widespread in the future, it is now necessary to study technical issues
related to their recycling. Ahead of the social implementation of next generation materials such as cellulose nanofibers and biomass
plastics, we are moving ahead with applications development, performance evaluation at the time of installation, demonstrating that
composite and forming processes can also achieve low carbon performance, and addressing any issues at the time of recycling as
mentioned above. In addition, we will promote research and development towards international standardization and
commercialization of cellulose nanofibers and lignin. These efforts will lead to the spread of biomass-derived chemical products.
(Boosting innovative biotechnology)

In the field of biotechnology, integration with big data and AI technology has developed rapidly, making it possible to apply
potential biological functions that have not yet been put to use. On the other hand, there is still only a small domestic market for
expensive biotechnology products. This underlines that Japan is not making full use of this emerging technology.
We will strengthen the basic technology for advanced use of the genome, and integrate the development of innovative biotechnology
by academia, together with public-private industrial technology infrastructure and the creation of a market. In this way, we will use
new biotechnology to create new industries and realize a sound material-cycle society. In addition to encouraging industry, academia
and government to develop technology to create functional materials from living organisms, we promote comprehensive measures
including institutional improvements to realize a low-carbon society with innovative bio materials.
(Utilization of technology closer to natural laws and mechanisms)

Technology that profiles natural mechanisms based on research on biomimetics and symbiotic relationships is expected to bring
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about a paradigm shift in the way we develop technology so that it minimizes the burden on ecosystems, and also brings with it
technological innovations that will contribute to sustainability. In order to contribute to the development and practical application
of these technologies, we will conduct survey research for research and development, and gain a better understanding of the current
situation and challenges for industrial applications.
(Conservation and restoration of biodiversity)

In order to prevent loss of biodiversity and improve land value, we are conducting research and development on technologies related
to the protection of threatened species, technologies concerning the control of invasive alien species, as well as technologies for
monitoring, conservation and restoration of ecosystems including those of secondary nature.
Research and development will also be conducted both on technologies that evaluate and measure the economic and social value,
and on technologies for sustainable management and utilization of ecosystem services and natural capital including genetic
resources, as well as technologies to utilize ecological functions in the area of climate change adaptation.
(Ecosystem-based disaster risk reduction)

In terms of ecosystem-based disaster risk reduction and adaptation measures such as a forest function to prevent landslides, and a
function of coral reefs to reduce wave energy and height, we will continue to advance research and development on construction
methods, maintenance and management methods, and evaluation of relevant ecosystem functions. It is important to respond
adaptively according to site conditions while developing regional consensus. We will also make efforts to collect and utilize
traditional knowledge such as disaster history and technology related to disaster risk reduction specific to the area. We will also
develop hybrid technologies that combine ecosystems and artificial structures.
(3) Promotion of early social implementation of technology to realize a sustainable society
(Acceleration of dissemination and development through standardization and streamlined regulations)

In order to institutionalize already established and newly developed technologies, and accelerate dissemination and development,
an integrative approach is needed, which includes promotion of standardization and streamlining of regulations.
We will make efforts to review and demonstrate the legal system as well as the approval and permission procedures, corresponding
to changes in technological progress. We will establish an environment and regulations as well as system regarding installation of
energy systems and their security, and establish an EIA method and optimize its operation.
In addition, we will promote international standardization of technical guidelines and certification systems related to strengthening
international competitiveness, expand and promote international standards on energy and environment management, and move
forward with the creation and expansion of a broad-scale framework including local governments to put in place an energy platform.
(Support for technical evaluation / demonstration)

It is important for the national government to provide appropriate information on environmental technologies and support the
dissemination of such technologies by evaluating and demonstrating utilities of such technologies developed by private companies.
Some environmental technologies can already be put to use, so we will ensure that they are effective for environmental conservation
by having them objectively verified by third-party institutions, which enables end users to use them with confidence.
We also support technology development and demonstration on practical, versatile and economically efficient technologies that
promote sound material-cycle society and proper treatment of waste.
In addition, in order to ensure that the technologies described in Chapter 2, 5. are fully developed and widely disseminated, we will
support cost reduction, establishment of mass production methods, and efficient implementation.
6. Demonstration of Japan's leadership through international contributions and building strategic partnerships
(Basic concept)
Japan has vast experience to overcome serious pollution problems. In addition, despite the lack of mineral resources, we have also
worked on development and implementation of relevant technologies to save of both energy and resources. In addition, we have the
spirit of "Mottainai" that cherishes the value of everything useful (corresponding to the spirit of circulation) as well as wisdom and
tradition (symbiosis's wisdom and tradition) that emphasize coexistence with nature, rather than opposition to it. In fact "Mottainai"
and "Satoyama” have become common phrases across the world.
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As environmental problems on a global scale become increasingly serious, Japan's superior environmental technologies and
infrastructure, as well as supporting ideas, systems, and human resources could greatly contribute to the improvement of global
environmental problems.
For these potential Japanese contributions to be realized internationally, it is particularly important what international rules should
be like such as multilateral environment conventions and various guidelines associated with each convention. Therefore, Japan
needs to be actively involved in developing fair and effective international rules.
In the process of formulating such international rules, it is always crucial to have discussions based on objective data and scientific
bases. Therefore, we will contribute to the enrichment of relevant scientific knowledge as a basis for international rule-making.
Environmental problems respect no national borders, thus efforts to improve the environment in developing countries will also
contribute to the improvement of the environment in Japan. This recognition will indicate potential demands in other countries for
excellent Japanese environmental technologies and infrastructure. Many developing countries are still in the process of establishing
various systems for the environment. Thus, if the systems introduced are consistent with those of Japan, local institutional conditions
are considered very facilitative in promoting smooth international cooperation by Japan, and creating potential opportunities for
Japanese companies. In the long term, economic disparity between emerging/ developing countries and Japan will shrink, while the
economic and social situations of each country are expected to diversify. In this context, although the unilateral assistance by
developed countries could remain important, the focus will shift to building a partnership to promote collaboration and share wisdom
together, thereby leading to generating two-way collective innovations. From this point of view, we will pursue cooperation across
all dimensions including institutional design, human resource development, dissemination of technology and infrastructure, with a
view to building a sustainable society in developing countries, especially in the Asia-Pacific region. In particular, besides bilateral
cooperation, we will promote cooperation in a multilayered manner through multi-level environmental cooperation with
organizations such as the Association of Southeast Asian Nations (ASEAN).
As already elaborated, we will proceed with each priority strategy mentioned in Chapter 2 from 1. through 5., and realize the model
advocated by the Circulating and Ecological Economy in Japan. Based upon that, Japan could present, utilizing its strengths in the
international arena, a coherent package of its successful experiences to the world, including the Asia-Pacific, thus contributing to
the formation of a sustainable region. In this way, we will proactively contribute to building a sustainable society around the world.
(1) Active involvement and contributions to international rule-making
(Active involvement in discussions of international rule-making)

We will actively participate in international negotiations in the environmental field, aiming to formulate rules that can make use of
our strengths, and contribute to international consensus building.
Specifically, in the field of climate change, we will actively participate in discussions towards preparation of implementation
guidelines (regarding mitigation, adaptation, transparency, global stocktake, market mechanisms, etc.) for the Paris Agreement
scheduled in 2018. In particular, in implementing the Paris Agreement, it is important to improve the transparency of information
regarding climate change countermeasures in each country. In cooperation with Global Environment Facility (GEF) and others, we
will promote the effective use of the "Capacity Building Initiative for Transparency (CBIT)" to support capacity development in
developing countries. We will contribute to improving transparency on measuring and reducing emissions in each country through
ongoing global scale greenhouse gas observation using a satellite “IBUKI” in the GOSAT series, and through development and
dissemination of monitoring methods utilizing ICTs. In formulating implementation guidelines, we will continue discussions while
working in cooperation with countries and related organizations.
Regarding the field of natural environment, we will actively participate in following the achievement of the Aichi Biodiversity
Targets, and lead the initiative to formulate and achieve new global targets (post-2020 global biodiversity framework) after 2020.
Regarding chemical substances and waste management, we will utilize our knowledge and experience in negotiations developing
guidelines for implementing the Minamata Convention on Mercury, and development of a successor framework to the "Strategic
Approach to International Chemicals Management" (SAICM), thus contributing to further consensus building. In addition, we will
promote cooperation with Europe and North America in order to ensure that chemical substances management in other countries is
consistent with the system in place in Japan. In addition, at the G7, G20 and other forums, we will lead discussions on resource
efficiency and promotion of 3Rs, contributing to a drastic improvement in global resource efficiency.
(Enhancement and active provision of scientific knowledge as a basis for international rules)
Scientific knowledge on climate change, biodiversity and ecosystem services, and resource circulation is a prerequisite for
formulating international rules and this knowledge must continue to be enhanced. From this perspective, we will continue to support
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IPCC, Intergovernmental Science-Policy Platform on Biodiversity and Ecosystem Services (IPBES), and the UNEP International
Resource Panel (IRP). Whenever evaluation reports are prepared, Japan will make inputs particularly based on knowledge in the
Asia-Pacific region by, for instance, increasing the number of Japanese authors.
The greenhouse gas observation satellite "IBUKI" (GOSAT) series will continue to make observations of greenhouse gas
concentration distribution, ensuring more accurate estimates of greenhouse gas emissions and removals. By making this data
available to government agencies and scientists in various countries, we will contribute to the advancement of international research
on climate change and effectiveness of countermeasures to address it.
With regard to marine litter including microplastics, we will promote efforts to harmonize methods of monitoring microplastics
under the framework of G7 and others. This will contribute to clarifying the global distribution of microplastics in the ocean.
Through information-sharing and international cooperation under multilateral and bilateral frameworks, we will contribute to getting
a clearer understanding of the actual situation of marine litter, and how to prevent generations, especially in the Asian region.
As measures against transboundary air pollution (PM 2.5, photochemical oxidants, dust and sand storm (yellow sand)), Japan will
provide knowledge to bilateral partners and share the latest information, and exchange opinions under a multilateral framework,
with a view to widening the scope of air environmental management across the Asian region.
Regarding chemical substance management, Japan will contribute to the implementation of the Minamata Convention on Mercury
by supporting the development of a mercury monitoring network. Japan will also contribute to international efforts under the
Stockholm Convention by promoting the horizontal extension of monitoring technologies related to persistent organic pollutants
(POPs).
(2) Support for building sustainable societies in other countries
(Dissemination of excellent environmental infrastructure overseas)

Through the Joint Crediting Mechanism (JCM) and Official Development Assistance (ODA), Japan will support introduction of
various environmental infrastructure such as facilities for waste treatment, energy conservation, renewable energy, and pollution
control, in developing countries, with the aim of improving local environment as well as expanding opportunities for Japan's
environmental business.
Japan has a particular advantage in the resource recycling industry, and we plan to promote its international development, while
fully taking into account the needs of developing countries. A package of support will be developed from feasibility studies to actual
construction and maintenance, in terms of institutions, systems and technologies in the areas of waste-to-energy, recycling, domestic
wastewater treatment, and mercury management.
(Support for climate change mitigation in developing countries)

Developing countries have increasing needs for climate change mitigation that require technical support. Taking a long-term
perspective up to 2050, we will develop infrastructure to promote mitigation measures and reduce emissions by mainstreaming low-
carbon technologies. This will be carried out by designing soft infrastructure, such as institutions, technologies and finance as a
package, through funding mobilization, development of relevant plans, and establishing new institutions for the mainstreaming of
effective technologies.
(Adaptation support in developing countries, international development of good practices in Japan)

It should be fully acknowledged that adaptation plans must be formulated and implemented based on scientific knowledge, and so
Japan will create the “Asia-Pacific Climate Change Adaptation Information Platform (AP-PLAT)” to support adaptive behaviors in
all sectors of developing countries vulnerable to climate change risks.
We will promote the "Satoyama Initiative", which is the result of the 10th Meeting of the Conference of the Parties to the Convention
on Biological Diversity held in Japan in 2010. We will also demonstrate the international appeal of the Circulating and Ecological
Economy to be built in Japan based on this Basic Plan.
(Institution building, capacity development support, and awareness raising in developing countries)
In the field of climate change, we will provide support for capacity development to improve access to various funds including the
Green Climate Fund (GCF) for developing countries, support for capacity development by providing latest scientific knowledge,
and support for the introduction of institutions and measures to reduce emissions of greenhouse gases. We will assist efforts to
improve transparency of information on countermeasures taken by various stakeholders under partnership among those concerned
as a basic information infrastructure, thereby create innovations in collaboration with developing countries.
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In the field of natural environment, developing countries will need to build the capacity required to achieve the Aichi Targets, so
we will provide technical assistance on the formulation and implementation of National Biodiversity Strategy, making use of the
"Japan Biodiversity Fund" set up by the Secretariat of the Convention on Biological Diversity and “Nagoya Protocol Implementation
Fund” set up by GEF.
We will cooperate with international organizations to proactively relay information across Asia on the long-term environmental and
economic merits of proper waste management, by introducing advanced technology and promoting resource circulation. In
cooperation with NGOs, we will also promote exchange and support at the grassroots level for raising public awareness about
environmental conservation. In addition we will also take the lead in Asia in strengthening cooperation among countries to prevent
illegal imports and exports of hazardous waste through the Asian Network Workshops.
In the field of chemical substances, we will support countries in Asia that are in the process of constructing a chemical substance
management system to ensure coordination with the system already in place in Japan. We will also provide assistance for the
implementation of the Minamata Convention on Mercury including technical cooperation for mercury management carried out by
developing countries, making full use of the National Institute for Minamata Disease. Moreover, in order to improve air quality and
reduce water pollution, we will promote and utilize a co-benefits approach that simultaneously realizes greenhouse gas emission
reduction and improvement of the local environment through bilateral cooperation. In the field of water environment, we will aim
to promote support for institution building and capacity development through a network of administrative officials across many
Asian countries.
In addition, we will promote city-to-city collaboration to stimulate actions cutting across many sectors, drawing upon knowledge
accumulated in many local governments.
Chapter 3 Development of environmental policies to support priority strategies
Japan’s environmental policy originated from countermeasures taken against serious pollution that occurred during the period of
high economic growth after World War II. The policy undoubtedly brought tangible environmental benefits responsible for much
of today’s dramatically improved living conditions. Our current standard of living tends to be thought of as “a given”, but it must
be remembered that it is in fact due to “a culmination of historical efforts” to improve environmental health.
Environmental policies that started to deal with pollution control now cover a wide range of issues including climate change, waste
management, and biodiversity, and government plans in each of these areas have been formulated to deal with these issues.
Countermeasures are making progress, but they fall short in many ways. The government will continue to promote measures in each
field and strengthen measures to ensure responses are adequate.
By way of illustration, environmental policy as a whole can be considered as a tree, with the six priority strategies in the previous
chapter as its "flowers" and the "environmental policies to support priority strategies" in this chapter making up its "trunk" or "roots".
Without a trunk and roots, the tree will not bloom and only when the flowers bloom will the tree bear fruit for future generations.
Just as the roots and trunk of a tree form the main support, it is vital to steadily advance environmental policies to support priority
strategies.
1. Climate change measures
Based on the Paris Agreement, Japan has implemented various measures listed in the "the Plan for Global Warming
Countermeasures" (Cabinet decision on May 13, 2016) formulated under the Act on Promotion of Global Warming
Countermeasures, and progress is being made towards achievement of the mid-term target of a 26% greenhouse gas emission
reduction by 2030 (compared with 2013; and by 25.4% compared with 2005). The Action Plan states that “Under the fair and
effective international framework in which all major emitting countries participate, based on the Paris Agreement, Japan leads the
international community so that major emitting countries can tackle emission reductions according to their capabilities, and with
the long-term goal of reducing greenhouse gas emissions by 80% by 2050, aims at simultaneously achieving both global warming
countermeasures and economic growth. Such a deep cut in emissions is difficult to achieve through the extension of existing
measures so far. Therefore, we will pursue solutions through innovation such as development and deployment of innovative
technologies that enables drastic emission reductions, and, while promoting domestic investment, enhancing the international
competitiveness, and requesting opinions from the public, aims to achieve a deep cut in emissions through long-term, strategic
actions, thereby contributing to global GHG emission reductions.”
We fully recognize the current state of the environment, economy, and society, and will meet the challenges ahead by way of
concrete measures. Based on the accumulation of lessons learned from practices of various measures both at home and abroad
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including introduction of carbon pricing, we will promote policies that contribute to II2ES by utilizing regional resources,
technological innovation, originality and ingenuity. This in turn will lead to economic revitalization, employment creation, and a
solution to regional challenges. We will put in place policies leveraging a broad scope of actions to move forward with global
warming countermeasures that promote the reduction of emissions while driving regional revitalization and economic development
to support a high-quality of life for Japan’s citizens, including through energy conservation, maximum introduction of renewable
energy, further acceleration of technology development, social implementation, and lifestyle and workstyle reform.
Japan’s electric power sector, for instance, accounts for about 40% of the country’s energy-originated CO2 emissions: low
carbonizing this sector remains a significant challenge. Coal-fired power generation in particular has higher CO2 emissions than
other thermal power plants, bringing about moves mainly by developed countries to curb coal-fired power generation and the
resulting CO2 emissions. We will make every effort to meet the targeted emission factor of 0.37 kg - CO2 / kWh, which is consistent
with the reduction target and the energy mix of 2030. To comply with the Paris Agreement aimed at net zero emissions of
anthropogenic greenhouse gases (balancing anthropogenic greenhouse gas emissions and removals) in the second half of this
century, it is necessary to drastically reduce emissions from thermal power generation. In light of this, while paying close attention
to domestic and overseas trends, actions will be taken to address global warming in the electric power sector.
Nuclear power is a low-carbon baseload power source that does not emit greenhouse gases when operating. Safety issues of nuclear
power plants will be in line with the expert judgment of the Nuclear Regulation Authority, and nuclear power plants will be restarted
if the Authority deems that regulatory standards are met. In such cases, it is crucial to gain the understanding and cooperation of
stakeholders such as the local governments concerned.
We will move to reduce emissions of fluorocarbons, by strengthening comprehensive measures throughout the lifecycle of
fluorocarbons from upstream to downstream (production, use, recovery, and destruction/recycle), in consideration of the Kigali
Amendment to the Montreal Protocol.
In addition, it is important to consistently show the direction that the country is taking towards longterm substantial reductions so
as to contribute to investment decisions and decision-making for bold low carbonization actions by all stakeholders. Based on the
Paris Agreement, what is needed are significant reductions in domestic emissions based upon a long-term low-emission
development strategy, thereby making maximum contributions to global emission reductions, and simultaneously achieving further
economic growth in Japan
Measures listed in the "National Plan for Adaptation to the Impacts of Climate Change" will be implemented to adapt to the impacts
of climate change.
2. Establishment of sound material-cycle society
Regarding the formation of a sound material-cycle society, based on the priority strategies set out in Chapter 2, comprehensive
efforts will be made for the creation of a sustainable society according to the system of environmental conservation measures in
Part 4. These measures will be promoted comprehensively and systematically according to the Fundamental Plan for Establishing
a Sound Material-Cycle Society, based on the “Fundamental Law for Establishing a Sound Material-Cycle Society” (Act No. 110
of 2000).
3. Securing biodiversity and living in harmony with nature
Regarding initiatives to secure biodiversity and to live in harmony with nature, measures will be comprehensively and systematically
promoted based on the National Biodiversity Strategy of Japan 2012-2020 formulated under the Basic Act on Biodiversity. In line
with post-2020 global biodiversity framework expected to be decided at the 15th Meeting of the Conference of the Parties to the
Convention on Biological Diversity in 2020, and based upon the priority strategies set out in Chapter 2 and the system of
environmental conservation measures in Part 4, revisions to the national biodiversity strategy will be made after 2021.
4. Environmental risk management
Measures to protect public health and living environment by preventing pollution in the atmosphere, areas of public water,
groundwater, and soil, and preventing environmental pollution from harmful chemical substances are the starting point of the
environmental administration, thus these will be steadily promoted going forward.
(1) Environmental conservation of water, air and soil

We aim to meet environmental standards related to water, air and soil as the basis for our survival. We will implement appropriate
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measures based on related laws, including the “Air Pollution Control Act” (Act No. 97 of 1968), “Water Pollution Prevention Act”
(Act No. 138 of 1970), and the “Soil Contamination Countermeasures Act” (Act No. 53 of 2002). Particular focus will be placed
on the following matters.
－1－Promotion of water pollution measures

Achieving and maintaining environmental water-quality standards requires respective responses to various types of wastewater such
as that from factories, offices, and households, as well as waste water from non-point sources such as urban / agricultural land. To
this end, we will promote the following measures to reduce pollutant loads: regulations to control effluent and the total emission
reduction, based on the Water Pollution Prevention Act; regulations on the use of pesticides based on the“Agricultural Chemicals
Control Act” (Act No. 82 of 1948); and putting in place various household wastewater treatment facilities such as sewage, facilities
to deal with wastewater from agricultural settlement, and Johkasou(decentralized wastewater treatment system)from individual
households. In addition to this, we will make every effort to comprehensively promote proper conservation, regeneration and
sediment improvement of natural coasts, tidal flats, and seaweed beds, among others. Actions are also needed to facilitate treatment
of drifting waste in enclosed coastal seas.
－2－Conservation of groundwater and ground environment, and sustainable groundwater use

We will promote and support actions in areas suffering from continuing ground subsidence, but where extraction of groundwater is
not regulated by law. Effective technologies should be introduced to control the amount of groundwater extracted. Actions are also
needed to prevent recurrence of subsidence by the regulation of extraction of groundwater in those areas that had ground subsidence
in the past. Furthermore, thermal use of groundwater for renewable energy is on the increase in recent years, which has resulted in
increasing extraction of groundwater. In view of this, we will undertake a study on ways to control extraction of groundwater and
to carry out management to prevent ground subsidence.
－3－Promotion of PM2.5 and photochemical oxidant countermeasures

We will continue to appropriately implement countermeasures against fixed sources and mobile sources based on the Air Pollution
Control Act. Comprehensive measures will be taken to reduce photochemical oxidants and precursors causing PM2.5, while paying
economic and technical considerations, based on an understanding and full scientific knowledge of actual emissions, as well
as looking at how emission control technologies are developed and disseminated.
－4－Promotion and enhancement of measures to prevent scattering of asbestos

In order to strengthen measures to prevent scattering of asbestos, further consideration will be given on the issues such as
countermeasures for removal of asbestos-containing materials other than the specified construction materials for which
countermeasures are already in practice, along with ensuring through preliminary surveys based on Air Pollution Control Act before
demolition or refurbishment works begin and raising more awareness among orderers and contractors of such works.
－5－Appropriate management of environmental risks by countermeasures against soil pollution

For the appropriate risk management of soil contamination, relevant governmental and ministerial ordinances will be prepared, to
implement the “Amendment to the Soil Contamination Countermeasures Act” (Act No.33 of 2017). We will also ensure safety
through properly continued investigations and measures. In addition, we will ensure proper information disclosure and
dissemination, aimed at bringing about improvements of sense of security and facilitation of land transactions.
－6－Initiative actions for the creation of a comfortable sensory environment

In order to effectively address problems concerning the living environment that adversely affect senses of people such as noise,
vibration, offensive odor, heat stress, and light pollution, we will promote actions by local governments, necessary study and
research and public awareness. The actions could include preparation and distributing manuals that set out regulations and good
practices based on the Noise Regulation Act” (Act No.98 of 1968) and others. Also public awareness will be raised by providing
guidelines on measures to deal with excessive heat, by researching the impact of excessive heat on humans, and by providing
information to prevent heat illness.
Indicators to promote countermeasures

As stated above various countermeasures are implemented, and the progress is evaluated based on the following indicators:
(Indicators on water environmental conservation)

◇Achievement of environmental quality standards concerning water pollution of areas of public water and groundwater
◇Number of watershed circulation plans formulated
(Additional indicators on water environmental conservation)

◇Monitoring spots for water quality
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◇Pollutant loads in major enclosed water areas
◇Total quantity of waste dumped at sea
◇Amount of wastewater reuse
◇Number of groundwater springs
◇Forest areas (monolayer forest, multilayered forest, natural forest)
◇Areas of forest reserves
◇Areas of protected waterside zones from the water environment conservation point of view
◇Areas of tidal flats and seaweed beds in major enclosed coastal seas
◇Number of areas that started to create rural natural environment from the viewpoint of ecosystem conservation
◇Number of sites for activities to create Satoumi
◇Areas covered by joint conservation activities of the water environment around agricultural land
◇Water and green public spaces secured in urban areas
◇Number of participants in the national aquatic organisms survey
(Indicators on air quality conservation)

◇Achievement of environmental quality standards for each air pollutant
◇Achievement of environmental quality standards and guideline values of hazardous air pollutants
◇Achievement of environmental quality standards on automobile noise in areas along main trunk roads
◇Achievement of environmental quality standards on noise caused by Shinkansen and aircrafts
◇Achievement of environmental quality standards on noise in general areas
(2) Chemical substance management

With regard to the management of hazardous chemical substances, comprehensive countermeasures will be implemented from the
viewpoint of protecting public health and the environment, including through the implementation of related laws and regulations,
such the “Act on the Evaluation of Chemical Substances and Regulation of Their Manufacture” (Act 117 of 1973, hereafter Act on
the Evaluation and Regulation of Chemical Substances), the “Act on Confirmation of Release Amounts of Specific Chemical
Substances in the Environment and Promotion of Improvements to the Management Thereof” (Act No.86 of 1999). Particular
attention will be placed on the following issues:
－1－Promotion of actions on risk minimization throughout the whole lifecycle of chemical substances
Chemical substance management will be based on the SAICM National Implementation Plan (InterMinisterial Meeting on SAICM,
September 2012) with the objective as indicated at WSSD to achieve“by 2020, that chemicals are used and produced in ways that
lead to the minimization of significant adverse effects on human health and the environment.” In particular, the following will be
implemented:
I. Risk assessment of chemical substances based on the Act on the Evaluation and Regulation of Chemical Substances, and
designation of those found posing significant risks as Class II Specified Chemical Substances,
II. Much wider assessment of toxicity through the development of Quantitative Structure-activity Relationship (QSAR),
III.Regarding exposure assessment, development of methodologies for measuring the released amounts to the environment from
the entire lifecycle of chemical substances, and improvement of the methodologies based on the PRTR system and other
monitoring systems,
IV.Based on the above, implementation of risk reduction focusing on the entire lifecycle of chemicals from manufacturing to
disposal. For particularly high risk substances, risk management by continuing emission control based on the Air Pollution
Control Act, Water Pollution Prevention Act, and the “Act on Special Measures against Dioxins” (Act No. 105 of 1999). A
review of the domestic implementation plan corresponding to the framework of SAICM after 2020, as well as progress checks
and updates various policy measures with check results.
－2－Promotion of survey research on chemical substances

Chemical substance countermeasures require administrative efforts based on scientific knowledge. Therefore, working to
accumulate this knowledge, we will move forward with improving the efficiency and sophistication of risk assessment, as well as
with conducting survey research on unresolved issues, thereby leading to detailed understanding of environmental risks and their
reduction. In addition, research on chemical substance countermeasures will be promoted by various institutions including local
environmental research institutes, and reliable and efficient implementation of surveys including monitoring will be carried out,
followed by systematic organization and management of the accumulated survey data.
－3－Promotion of understanding and dialogue on management and risks of chemical substances

Partnership should be strengthened among stakeholders (national and local governments, citizens, NGOs, industry, and experts)
aimed at sharing accurate information and communicating through dialogue on the risks of chemical substances. By making use of
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methods for classification and labeling of chemicals such as GHS (Globally Harmonized System of Classification and Labelling of
Chemicals) labels, and SDS (Safety Data Sheet), information can be shared among businesses and between business operators and
consumers, thereby promoting understanding in schools and businesses about environmental risks.
－4－Japan Environment and Children’s Study (JECS)

We will establish an appropriate risk management system by clarifying environmental effects that chemical substances in the
environment have on the physical and mental health of children, by conducting a large-scale and long-term cohort survey, targeting
100,000 mother-child pairs for the purpose of leading to a safe and secure child-rearing environment, tracking from the fetal stage
during pregnancy until they become 13 years of age.
－5－Improvement of ecological risk assessment of pesticides

Looking at pesticides from the viewpoint of protecting the living environment, conventional risk assessment should be carried out
based on acute effects on particular aquatic animals and plants, new risk assessment methods should be developed to detect effects
from long-term exposures, and on organisms other than aquatic animals and plants used by conventional assessment, thereby with
improving ecological risk assessment used currently for the pesticide registration system.
Indicators to promote countermeasures

As stated above various countermeasures are implemented, and the progress is evaluated based on the following indicators:
(Indicators on the residual conditions in the environment)

◇Achievement of environmental quality standards, targets, guideline values on harmful substances designated
◇Implementation status of various environmental and monitoring surveys (the number of chemical substances surveyed, that of
survey sites, and that of different environmental media)
◇For substances that are continuously monitored for long periods of time, such as POPs, study on indexing any increasing and
decreasing trends in concentration (e.g. the number of substances whose concentration tends to decrease)
(Indicators on releases into the environment)

◇Amounts of release and transfer of chemical substances which are designated under the PRTR system
(Indicators on risk assessment)

◇Implementation status of screening evaluation and risk assessment based on the Act on the Evaluation and Regulation of
Chemical Substances
◇Implementation status of new ecological risk assessment for the pesticide registration system
(3) Environmental health measures
Proactive measures, including those given in (1) and (2) above, will be taken to prevent the occurrence
of pollution related health damage. Prompt and fair protection and securement of health for pollution
victims will also be promoted.
－1－Pollution health damage compensation

Based on the “Act on Pollution Health Damage Compensation” (Act No. 111 of 1973, hereafter Act on Compensation), and giving
consideration to the polluter-pays principle, Japan will implement compensation benefits and programs of pollution health and
welfare for acknowledged patients and provide prompt and fair relief.
－2－Implementation of activities to prevent damage to health by environmental pollution

Making use of the investment profit of the Pollution Health Damage Prevention Fund created in the Environmental Restoration and
Conservation Agency, necessary projects will be conducted such as research to prevent health damage due to air pollution and to
ensure the health of local residents
－3－Environmental health surveillance for air pollution

Along with the 1987 Partial Revision of the Act on Compensation (De-listing of the Type 1 designated areas), Environmental Health
Surveillance for Air Pollution has been implemented with the aim of regularly and continuously monitoring the relationship between
the health conditions of local populations and air pollution, and of taking measures required when necessary.
－4－Promotion of measures on Minamata disease

Based on laws such as the “Act on Special Measures Concerning Relief for Victims of Minamata Disease and Solution to the
Problem of Minamata Disease” (Act No. 81 of 2009), we will implement compensation, medical treatment and welfare measures,
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and revitalization and reconciliation of local communities in collaboration with relevant local governments and others so that all
victims and local people can live in the community with peace of mind.
－5－Relief for asbestos health damage

Based on the “Act on Asbestos Health Damage Relief” (Act No.4 of 2006), prompt relief will be carried out for victims and others
with health damage caused by asbestos. Moreover, based on the report of the Asbestos Health Damage Relief Subcommittee of the
Environmental Health Subcommittee of the Central Environment Council, compiled in December 2016, we will study on health
management methods, operation of the Asbestos Health Damage Relief System, and promotion of the research.
5. Various basic measures
In partnership with various stakeholders, we will carry out effective implementation of the priority strategies outlined in Chapter 2
and various measures listed in sections from 1 to 4 above. Specific actions taken will include implementation of EIA, enhancement
of scientific knowledge, development of human resources through education, and analysis and provision of related information.
(1) EIA
Regarding EIA, the national government, local governments and related organizations will collaborate to develop a common basis
for ensuring appropriate environmental considerations. We will conduct a comprehensive review on how to institutionalize a system
that contributes to the reduction of cumulative and complex environmental impacts.
－1－Development of comprehensive measures for EIA system

We will consider how to implement strategic environmental assessment to properly incorporate environmental considerations in
policies and plans to be developed before deciding actual sites and scales of development projects. Moreover, subsequent to EIA,
we will make efforts to follow up by utilizing standardized reporting procedures. In addition, we will strive to gather information
on projects not covered by the "Environmental Impact Assessment Act" (Act No. 81 of 1997). If necessary, we will also look at
measures to promote environmental considerations in the planning and implementation of the projects not subject to the
Environmental Impact Assessment Act.
－2－Implementation of qualified and efficient EIA system

We will take measures to properly and effectively operate the Environmental Impact Assessment Act including strengthening the
review system, and regular reviewing and revision of enforcement. We will also promote the development of information
infrastructure, such as providing basic environmental information and actual examples of EIA. We will also work on research and
development as well as dissemination of the latest technical methodologies related to EIA, in addition to capacity building.
Furthermore, studies and consideration will be carried out from environmental conservation perspectives on development projects
possibly subjected to the Environmental Impact Assessment Act in the future and necessary measures will be taken.
(2) Promotion of research and development as a basis of policy decisions based on scientific knowledge
－1－Strengthening of institutions engaged in environment research and technology development

We will strengthen the basis for research and development concerning the environment with the following measures:
implementation of research and development that contribute to environmental policies development utilizing the Environment
Research and Technology Development Fund, strengthening functions of the National Institute for Environmental Studies (NIES)
to maximize results of research and development as a core institution for environmental research, strengthening the role of local
environmental research institutes, improvement of basic information that contributes to research, technology development and
policy planning in the environmental field, strengthening cooperation with local public environmental research institutes, and
capacity development through enhancement of training courses conducted at the National Environmental Research and Training
Institute.
We will also promote academic research, and nurture the environment industry including creation of environmental business by
enhancing support for research and development carried out by various entities such as private companies, universities and local
governments. We will systematically collect and analyze information on research and development conducted jointly by public and
private entities, and share such information with the public.
－2－Promotion of research and development as a basis of policy decisions based on scientific knowledge
Based on this Basic Plan, we will formulate a strategy to promote research and technology development for the environment. The
strategy will lay the basis for NIES to revise its medium-tolong term goals. We will steadily implement research responding to the
needs for further environment policy development, utilizing the Environment Research and Technology Development Fund.
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(3) Promotion of environmental education and learning
Environmental education and learning will be carried out to develop capacity and qualification of those who will act as core persons
to build a sustainable society, under the Act on Promotion of Environmental Education etc. and the basic policies stipulated by the
government based on that Act according to the concept of ESD. In particular, the following points will be priority areas:
－1－Deepening and enriching environmental education through training practitioners

In practicing environmental education, it is especially important to foster the right spirit to create a sustainable society and nurture
the skills necessary for problem-solving. To that end, each one of us should continuously learn lessons throughout our lifetime by
developing attitudes from finding specific challenges in their daily lives in relation to surrounding nature and communities, making
efforts to work on solutions for themselves, and reviewing resultant changes accordingly. The Ministries concerned will cooperate
in the training of practitioners to ensure each actor involved in environmental education could recognize the importance of such
learning and put it into practice.
－2－Expansion of “places to experience opportunities” where citizens can participate

“Learning by doing” is effective in fostering interest about the environment and encouraging motivation for creating a sustainable
society. However, interests among parents toward participation remain low at present. Therefore, efforts will be made on the
expansion of “places to experience opportunities” to build momentum for establishing a sustainable society and nurturing the skills
necessary for problem-solving, in collaboration with various stakeholders including companies. We will carry out leadership
training with the active involvement of citizens to enhance the effectiveness of learning by doing. This approach will be undertaken
by making full use of the accreditation system for “places to experience opportunities” based on the Act on Promotion of
Environmental Education etc., the registration system for initiatives to certify expert personnel, and the agreement system on
environmental conservation.
－3－Promotion of learning through participation in diverse activities for environmental conservation and community
development
Due to the declining birthrate and aging society, and expansion of regional economic disparity, there is concern that we may not be
able to gain sufficient support among citizens to engage in activities for environmental conservation and in sustainable communities.
On the other hand, we will have more time to spend on activities other than our work due to workstyle reform. As a result, the time
will come when re-learning becomes a part of life. Our lives will no longer be based on a single road system, where new graduates
are hired by companies and then work until retirement. Based upon the above, we will provide opportunities for young people, those
of working age, and people just before retirement to participate in various activities for environmental conservation and sustainable
community development, and promote learning through these activities.
－4－Support for business on environmental leadership development

Efforts will be promoted to train environmental leaders inside and outside companies with a view to appropriately integrate
environmental considerations into corporate management, and generate new corporate values. Such environmental leaders are
expected to have the capacity to tackle environmental management and environmental conservation, thereby promoting greening
economy and society.
(4) Improvement and provision of environmental information
We will promote comprehensive and systematic utilization of public-private data in the environmental field based on "Declaration
to be the World’s Most Advanced IT Nation: Basic Plan for the Advancement of Public and Private Sector Data Utilization" (Cabinet
decision on May 30, 2017) formulated based on the "Basic Act on the Advancement of Public and Private Sector Data Utilization"
(Act No. 103 of 2016). We will promote steady improvement and utilization of statistical data for environmental policymaking to
promote evidence-based policymaking (EBPM) based on the “Final Report of Statistical Reform Promotion Council” (approved by
Statistical Reform Promotion Council in May 2017) and “Basic Plan on Public Statistics Improvement” (Cabinet decision on March
6, 2018). In particular, the following points will be prioritized.
－1－Improvement of environmental information to promote EBPM

We will collect and maintain a wide range of statistical data on environment, economy and society held by international
organizations, the national government, local governments and private companies to steadily promote EBPM in environmental
administration. Meanwhile, statistical information for policymaking will also be steadily improved.
－2－Promotion of information provision in response to user needs

We will strengthen efforts to promote open-data related to the environmental for mutual utilization of data held by the government,
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local governments and businesses, based on the "Basic Principles on Open Data" (approved by Strategic Headquarters for the
Promotion of an Advanced Information and Telecommunications Network Society, Strategic Conference for the Advancement of
Public and Private Sector Data Utilization in May 2017). In the meantime, we will advance the provision of information based on
user needs to enhance and strengthen partnerships, promote citizens’ participation in environmental policies, and encourage a shift
to sustainable lifestyles. Information should be available in a user-friendly manner, accessible anywhere anytime through the use of
IT with both reliability and accuracy ensured.
6. Reconstruction after the Great East Japan Earthquake and responses to future large-scale disasters
(1) Reconstruction after the Great East Japan Earthquake
－1－Construction of Interim Storage Facility(ISF)

Necessary measures will be carried out with regard to establishing Interim Storage Facility (where soil from decontamination
operations in Fukushima is managed and stored safely until final disposal), and continuous transport of the contaminated soil to
such facilities, as well as treatment of radioactive material contaminated waste, and reduction as well as recycling of removed soil.
Projects to promote these measures will be taken promptly and appropriately by all Ministries concerned with close cooperation
among various stakeholders particularly with local governments.
－2－Development of specified reconstruction and revitalization bases (Reconstruction Hubs) in the Areas where Returning
is Difficult (ARD)
We will promote integrated implementation of decontamination, dismantling, and infrastructure development at “Reconstruction
Hubs” in the Areas where Returning is Difficult (ARD) along with the reconstruction and revitalization plan for approved and
specified reconstruction and revitalization sites of each local government based on the “Act on Special Measures for the
Reconstruction and Revitalization of Fukushima”(Act No. 25 of 2012 and revised in May 2017).
－ 3 － Health management and response to health concerns of residents regarding radiation exposure through risk
communication
The following points were raised as “Direction of the Immediate Measures by the Ministry of the Environment” in February 2015
based on the “Interim report of experts’ meeting for the health management of the public following TEPCO Fukushima Dai-ichi
nuclear power plant accident” (December 2014): (1) Promotion of initial radiation dose assessment after the accident, (2) Monitoring
of disease morbidity trends in Fukushima Prefecture and neighboring prefectures, (3) Improvement of Fukushima health
management surveys "thyroid ultrasound examination", and 4) Continuation and improvement of risk communications. Moving
forward, support measures will be carried out including radiation dose assessment, research on radiation health effects, support for
Fukushima health management surveys, and consultations by radiation counselor support center.
－4－Reconstruction of disaster-hit areas through resource circulation

Future-oriented reconstruction through resource circulation will be promoted by thermoelectric utilization of waste disposal
facilities and improvement of low carbon-type recycling. At the same time, measures focusing on the natural connections among
forests, the countryside, rivers and the sea, and circulation of funds within the community will be promoted.
(2) Response to natural disasters
－1－Disaster waste treatment

Recently, large-scale disasters have taken place almost every year in Japan. Among major challenges are the treatment of garbage
and human waste because waste treatment facilities are significantly damaged, and the treatment of large amounts of disaster waste.
It is now predicted that the Nankai Trough earthquake and an earthquake centered directly under Tokyo are likely to occur in the
near future. If the treatment of large amounts disaster waste is impeded, recovery and reconstruction will be delayed significantly.
The other concern is the fact that a single municipality, the body responsible for waste management, cannot singlehandedly cope
with disaster waste treatment at the time of such a large-scale disaster.
Based on the above, we aim to strengthen in non-disaster time a waste treatment system on a more multi-layered basis cutting across
the local, regional and nation levels. When a disaster hits, appropriate and prompt treatment of disaster waste will be conducted
mainly by local municipalities in cooperation with regional units concerned, and nationwide frameworks, depending on the scale of
disaster.
－2－Environmental conservation measures in disaster-hit areas

We will make every effort to widely disseminate the following information to prevent asbestos from scattering in the event of a
disaster: gaining an understanding of asbestos use in building constructions in non-disaster time; warning neighbors; promoting
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emergency measures and environmental monitoring at the time of disaster.
In addition we will provide information on countermeasures against pests and odors associated with disaster waste as well as
measures to cope with odor at temporary toilets at evacuation shelters. Experts will be dispatched on an as-needed basis to provide
guidance and advice by pinpointing causes of odor, and ways and means to control these matters.
Furthermore, support will be made in cooperation with local governments such as promoting pet-care at evacuation shelters and
developing a temporary care system for affected pets, based on the guidelines developed by the experience of past disasters such as
the Great East Japan Earthquake and the Kumamoto Earthquake.
Part 3 Effective implementation of the Basic Environment Plan

1. Implementation of the Plan
(1) Implementation of the Plan by government

In order to effectively implement the Basic Environment Plan, it is first important to share information about the intended direction
of II2ES set out by this Plan both inside and outside the government, and to take action to support cooperation between all entities
concerned.
In addition to the Cabinet meeting, the government will deepen common understanding of this direction through related ministerial
meetings and meetings between relevant ministries and agencies, and work closely with relevant organizations to implement
measures on environmental conservation raised in the Basic Environment Plan in a comprehensive and systematic manner. We will
work to obtain a shared recognition on the way forward to institutionalize II2ES, among all stakeholders including local
governments, businesses, private organizations and citizens.
In order to implement various measures listed in the Basic Environment Plan, we will put in place the necessary systems, financial
arrangements and others, while verifying how effective the measures will be. Based on the progress of the Plan and the state of the
environment, the government will work appropriately by adding necessary improvements, and promoting comprehensive
implementation of various projects under the cooperation of relevant organizations. The government will also work to take financial
and other necessary measures to cover the costs for environmental conservation actions taken by local governments voluntarily and
proactively according to local situations.
Based on the Basic Environment Plan, the relevant ministries and agencies will promote environmental considerations, according
to basic policies regarding environmental considerations both for actions by ordinary economic entities such as use of goods and
energy in offices, conferences and events, and for policy development such as drafting new institutions which could significantly
impact the environment. To enhance initiatives of environmental considerations, we will proactively promote efforts to improve
environmental management systems through reviewing the implementation of measures for environmental considerations, and
strengthening mechanisms to reflect the results of such reviews in each relevant activity.
(2) Implementation of Plans by non-government entities

It is necessary for all entities to cooperate and collaborate closely to voluntarily and actively promote various measures under a fair
division of roles based on the Basic Environment Plan. Each entity is to make maximum efforts to incorporate environmental
considerations into its own actions in line with the Plan’s direction of II2ES. The procedural methods such as the environmental
management system will be utilized to promote this challenge.
Along with the direction mentioned in the Plan, local governments are expected to proceed comprehensively and systematically
with measures in line with the national government as well as with their own measures, by formulating a comprehensive
environmental conservation plan in cooperation with the national government and in response to local natural and social conditions.
(3) Collaboration with various plans

Socio-economic activities are becoming more closely linked with the environmental issues of today. As a result, policies in a wide
range of areas are now related to environmental policy. In formulating plans that are considered to have an impact on the
environment, the national government must consider environmental conservation in line with II2ES. The following policies are
prioritized in consideration for environmental conservation.
In terms of environmental conservation, there should be clear coordination between the Basic Environment Plan and other national
plans.
In addition, other national plans, exclusively aimed at conserving the environment should be formulated and promoted in accordance
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with the fundamental direction of the Basic Environment Plan.
For those plans that include components concerning environmental conservation, the part prescribing environmental matters shall
be in line with the fundamental direction of the Basic Environment Plan. Therefore, both these plans and the Basic Environment
Plan should be coordinated and mutually supportive. Particularly, for those plans for which specific laws and regulations require
harmonization with the Basic Environment Plan, special care needs to be taken to ensure that they are in line with the fundamental
direction of the this Plan.
2. Review of the progress of the Plan
(1) Implementation policy

The Central Environment Council will review the progress of the measures based on the Basic Environment Plan, while listening
to the opinions of citizens of various categories to ensure the steady implementation of the Basic Environment Plan. The Council
will report to the government on subsequent policy directions as needed.
－1－Progress review of individual measures stipulated in the Plan

The Council will review in FY2019 and FY2021 the progress of individual measures through interviews with related ministries on
Part 2 Chapter 2 “Priority strategies”, Chapter 3 “Environmental policies to support priority strategies” and Part 4 “System of
environmental conservation measures”. As for “1. Climate change measures”, the latest review results of the Plan for Global
Warming Countermeasures and the National Plan for Adaptation to the Impacts of Climate Change will be utilized as much as
possible. Regarding “2. Establishment of sound material-Cycle society” and “3. Securing biodiversity and living in harmony with
nature”, the latest review results of the Fundamental Plan for Establishing a Sound Material-cycle Society and the National
Biodiversity Strategy of Japan will be utilized as much as possible.
－2－Review of comprehensive progress of the Plan

The Council will review the priority strategies in FY2020 and FY2022 by referring to the review results of individual measures
implemented in the previous year respectively. The review will emphasize how much progress has been made on “Innovations
across all perspectives including those concerning economic and social systems, lifestyles and technologies” and “Simultaneous
solutions for socio-economic challenges through environmental policy”. These two points are mentioned in Part 1 Chapter 2 as roles
in future environmental policies. In addition, interviews will be conducted on good practices by public and private initiatives related
to priority strategies. We will also review progress made on each of the measures as a part of environmental policies to support the
priority strategies and the system of environmental conservation measures. Based on these results, a report will be compiled
respectively on the comprehensive progress of the Basic Environment Plan.
－3－Utilization of indicators for understanding the progress

The review will use a set of indicators that collectively show the environmental situation and the progress made on various initiatives
concerned. This will clarify the overall trends regarding progress of the Plan and contribute to ensuring the effectiveness of the Plan.
Quantitative indicators will be used as much as possible. However, in case it is difficult or inappropriate to quantify the indicators
due to the nature of the measures concerned, qualitative evaluation is used as a basis and quantitative indicators will be applied
supplementary.
The characteristics and limitations of these indicators should be taken into account. It is also important to strive to gain broad
understanding of stakeholders. Reviews will be routinely carried out so that the indicators accurately reflect the direction of the Plan
and appropriately match the state of the environment, economy and society. Indicators should be revised flexibly as necessary,
considering their continuity and further improvement.
(2) Utilization of review results of progress of the Plan
The review results by the Council will be utilized for planning national policies, and reflected in the annual report as stipulated in
Article 12 of the Basic Environment Act, thereby communicated widely to a wide range of stakeholders.
3. Revision of the Basic Environment Plan
The government will revise the contents of the Plan approximately five years following its formulation. Based on the above
mentioned review results by the Council, necessary consultations will be made with the Council. Considering the revision of the
contents of the Plan, the Plan will be re-formulated when considered necessary.
In terms of the concrete goals of each area and specific measures contained in the Plan, it is important to respond flexibly and
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appropriately, with a view to realizing a sustainable society envisaged, according to changes in the economy and society both in and
outside Japan as well as considering and updating of progress of measures taken.
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List of Terminology
No Term Description
1 Municipal Waste Municipal waste is waste other than industrial waste. It is classified
into business waste and household waste.
Extended Producer EPR is the concept of the producer being responsible (physically or
2 financially) for the appropriate reuse, recycling, and disposal of the
Responsibility (EPR) product.
EIA is a series of procedures followed to ensure proper environmental
Environmental considerations are made by evaluating the environmental impact of
3 Impact Assessment the project, hearing the opinions of residents and relevant local
(EIA) governments, and reviewing the content of the assessment from a
professional view when implementing a large-scale development
project.
The Ministry of Environment is a national administrative agency that
promotes global environmental conservation, pollution prevention,
Ministry of preservation of the natural environment, and other environmental
4 Environment preservation activities. The Environment Agency, established in
1971, was reformed and became the Ministry of Environment with
the reorganization of central ministries and agencies in 2001.
Chemical recycling is recycling of used resources after their
5 Chemical Recycling composition has been converted through chemical reactions. This
mainly refers to the conversion of waste plastics into oil, gas, coke
oven chemical fuel, etc.
Inter-municipal waste disposal/treatment is a type of
disposal/treatment with neighboring municipalities collaborating in
Inter-Municipal order to optimize their waste management. The introduction of wide-
area treatment will lead to "ensuring sustainable and appropriate
6 Waste treatment," "promoting climate change countermeasures,"
Disposal/Treatment "promoting recycling and biomass utilization of waste,"
"strengthening disaster countermeasures," and "creating new value to
the community.
Ministry of Health, Labour and Welfare is a national administrative
agency that promotes social welfare, social security, public health,
improvement of the working environment for workers, and the
securing of jobs.
7 Ministry of Health, The Ministry of Health and Welfare and the Ministry of Labor merged
Labour and Welfare in 2001 through the reorganization of central ministries and agencies.
As a result, the Ministry of the Environment is now in charge of the
affairs related to waste disposal and cleaning, which were under the
jurisdiction of the Water Supply and Environment Department of the
Public Hygiene Bureau of the Ministry of Health and Welfare.
Components of waste is a generic term for the physical and chemical
Components of contents of waste. Typically, waste is classified by three components
8 Waste (combustible, ash, and moisture), unit volume mass (apparent specific
gravity), physical composition (composition by type), chemical
composition (elemental composition), and lower heating value.
Compost is material made from food waste and other organic wastes,
9 Compost/Composting and composting is the method to produce compost. Food, paper pulp,
sludge from wastewater treatment in the petrochemical industry and
livestock waste are used.
Thermal recycling is the process of recovering and utilizing the heat
10 Thermal Recycling generated during waste treatment, especially in incineration plants, as
energy. In the EU, the concept of "energy recovery" is used to
distinguish it from recycling.
Industrial waste refers to 20 types of waste generated by business
activities, including cinders, sludge, oil, acid, alkali, and plastic.
11 Industrial Waste Many of them are discharged in large quantities and special
techniques are required for disposal. The proper treatment is required
by the Waste Management and Public Cleansing Law.
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No Term Description
The principle of waste disposal within the administrative boundary is
the idea that waste disposal should be done within the community
Principle of Waste where waste is generated. This principle has been advocated since the
Disposal within the War against Waste, which is a conflict regarding site selection for
12 Administrative waste treatment facilities in Tokyo, in the 1960s. However, there is no
Boundary legal basis for the principle of waste disposal within the
administrative boundary, and although it is a concept that is known
throughout Japan, it does not deny wide-area disposal beyond the
administrative boundaries.
A sound material-cycle society is a concept proposed as an alternative
to a mass-production, mass-consumption, and mass-disposal society.
According to the “Basic Act for Establishing a Sound Material-Cycle
Society (Law No. 110 of 2000)”, a material-cycle society is “a society
13 Sound Material- in which consumption of natural resources is controlled and the
Cycle Society burden on the environment is reduced as much as possible". This is
achieved by preventing products from becoming waste, as much as
possible properly using the existing waste as resources, and ensuring
the proper disposal of waste cannot be used.
“Basic Act for Establishing a Sound Material-Cycle Society” is a law
established in June 2000 to promote effective efforts toward the
formation of a sound material-cycle society.
In addition to the priorities of waste disposal: (1) control of
generation, 2) reuse, 3) recycling, 4) heat recovery, and 5) proper
disposal, the law specifies the following national measures for the
Basic Act for establishment of a sound material-cycle society.
 Measures to control the generation of waste
Establishing a Sound
14 Material-Cycle  Regulations and other measures to ensure "Responsibility by waste-
generating business operators”
Society
 Measures based on "Extended Producer Responsibility", such as
take-back of products, implementation of recycling and prior
assessment of products
 Promotion of using recycled products
 Measures to obligate business operators to bear the cost of restoring
the environment to its original state when environmental
conservation issues arise
Leachate is liquid that has seeped out of a landfill after water from the
waste and rainwater permeate into the landfill through the waste layer.
15 Leachate Leachate is discharged into the public sewage system only after the
water has been treated at the waste water treatment plant and has met
the water quality standard specified in the effluent agreement.
3R stands for “Reduce”, “Reuse” and “Recycle”. In recent years, the
concept of 4Rs, 5Rs, 6Rs has been introduced by adding other ideas
16 3Rs to the 3Rs, for example, “Refuse” meaning not to accepting things
that will become waste, “Repair” meaning repair, and “Recover”
meaning collecting waste for recycling.
Zero emission is a concept proposed by the United Nations University
in 1994, and refers to a resource circulating social system that does
17 Zero Emission not produce any waste by effectively utilizing all types of waste as
raw materials. It aims to reduce the amount of waste generated by
increasing the yield (ratio of products to raw materials) in the
production process and to thoroughly recycle waste.
Transfer station is a facility that compacts and transships waste in
order to gather the waste in intermediate treatment plants or landfill
18 Transfer Station sites efficiently. Waste collected by small- and medium-size
collection vehicles is compacted at the transfer station and
transshipped to larger trucks to carry large quantities of waste at one
time, increase efficiency and save fuel costs.
The Basel Convention is an agreement on the control of
19 Basel Convention transboundary movements of hazardous waste and their disposal. It
was adopted by the United Nations Environment Programme in 1989
and enacted in 1992.
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No Term Description
Biomass is a concept that expresses the quantity (mass) of biological
resources (bio), such as organic resources excluding fossil resources,
20 Biomass derived from plants and animals that can be recycled into energy or
materials. It includes agricultural, forestry, and fishery products, rice
straw, rice husks, food waste, livestock manure, and wood waste.
According to the Waste Disposal and Public Cleansing Law, waste is
21 Waste unwanted materials generated as a result of household and business
activities.
Waste Management and Public Cleansing Law is basic law on waste
management which describes the definition of waste, responsibilities
Waste Management for its disposal, and standards for disposal methods. The purpose of
22 and Public Cleansing the law is to conserve the living environment and improve public
Law health by controlling waste emissions, disposing of waste
appropriately, and maintaining the cleanliness of the living
environment.
“Responsibility of waste-generating business operators” is the
principle that waste generators are responsible for the proper disposal
Responsibility of of waste from their business activities. In Japan, this is the basic
23 Waste-Generating principle of the Waste Management and Public Cleansing Law, and it
Business Operators obliges waste generators to submit plans for the reduction and proper
disposal of industrial waste and to confirm the completion of final
disposal through manifests.
Public comment is a procedure in which the government publicly
announces their proposals and other information to the public in the
24 Public Comment decision-making process, and takes into account the opinions and
information submitted from the citizens when the government
establishes, revises, or abolishes regulations.
Fukuoka Method is an example of the structure of a final disposal site,
also known as a semi-aerobic landfill system, developed by Fukuoka
University and Fukuoka City. The Fukuoka method requires a
leachate collection and drainage system consisting of stones and
Fukuoka Method perforated pipes at the bottom of the landfill. This allows leachate in
25 (Semi-aerobic the waste layer to be drained quickly, and thermal convection occurs
Landfill Structure) inside the layer due to the fermentation heat generated by the
decomposition of the waste. This will then lower the moisture content
in the layer, and air is naturally supplied from the collection and
drainage pipes. As a result, the decomposition of waste while
maintaining aerobic conditions in the waste layer is made possible.
Material recycling consists of collecting used products and waste
26 Material Recycling from production processes, processing and using them as raw
materials or materials for new products.
Manifest system is a procedure in which business operators
discharging waste manage the flow of waste and ensure proper
27 Manifest System disposal by issuing documents for industrial waste management
(manifest) to a waste disposal operator, and by receiving the copy
from the waste disposal operator after the disposal of waste is
completed.
Precautionary approach is the concept stated in Principle 15 of the
Rio Declaration, which sets forth 27 general principles for sustainable
development adopted at the Earth Summit in 1992. The Rio
Precautionary Declaration states, "In order to protect the environment, the
28 Approach precautionary approach shall be widely applied by States according
to their capabilities. Where there are threats of serious or irreversible
damage, lack of full scientific certainty shall not be used as a reason
for postponing cost-effective measures to prevent environmental
degradation".
LCC is the total cost of a product or structure on the stages of
Life Cycle Cost procurement, manufacturing, use, and disposal. It is also an important
29 (LCC) basis for estimating cost-effectiveness, and consists of initial
construction costs and running costs such as energy, maintenance,
repair, and renewal costs.
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No Term Description
Various recycling laws exist in Japan to reduce the volume of waste
and to promote the effective use of resources by promoting recycling
and other measures. Specifically, there is the “Containers and
30 Recycling Laws Packaging Recycling Law”, “Home Appliance Recycling Law”,
“End-of-Life Vehicle Recycling Law”, “Food Waste Recycling Law”,
“Construction Material Recycling Law”, and “Small Home Appliance
Recycling Act”.
A-96
List of References
Langu Issue Issuing
No. Name of Documents age*1 Year Organization*2
Waste Management in General
1 History and Current State of Waste Management in Japan JP, EN 2014 MoE
2007-
2 Annual Report on the Environment in Japan 2007-2008 JP, EN MoE
2008
Annual Report on the Environment, the Sound Material-Cycle 2009-
3 JP, EN MoE
Society and Biodiversity in Japan 2009-2020 2020
1976-
4 日本の廃棄物処理(昭和 47 年度～令和元年度) JP MoE, MHLW
2020
5 日本の 3R 推進の経験 –循環型社会の構築に向けて- JP 2005 MoE
6 第四次循環型社会形成推進基本計画 JP 2018 MoE
7 廃棄物処理施設整備計画 JP 2018 MoE
8 ごみ処理基本計画策定指針 JP 2016 MoE
9 広域化・集約化に係る手引き JP 2020 MoE
10 市町村分別収集計画策定の手引き(九訂版) JP 2019 MoE
11 廃棄物処理施設環境影響評価調査指針 JP 2006 MoE
12 廃棄物処理施設生活環境影響調査指針 JP 2006 MoE
廃棄物処理施設長寿命化総合計画作成の手引き(ごみ焼
13 JP 2021 MoE
却施設編)
14 G20 海洋プラスチックごみ対策実施枠組の概要 JP 2020 MoE
15 一般廃棄物処理有料化の手引き JP 2013 MoE
循環型社会への改革・Recipe Book -3R 推進交付金(循環型
16 JP 2006 MoE
社会形成推進交付金)ガイド
17 循環型社会形成推進交付金等申請ガイド(施設編) JP 2021 MoE
18 循環型社会形成推進地域計画作成マニュアル JP 2005 MoE
19 不思議な水銀の話(第 2 版) JP 2021 MoE
20 水銀廃棄物ガイドライン(第 3 版) JP 2021 MoE
21 石綿含有廃棄物等処理マニュアル(第 3 版) JP 2021 MoE
22 災害廃棄物対策指針(改訂版) JP 2018 MoE
23 Disaster Waste Management Guideline for Asia and the Pacific EN 2018 MoE, JSMCWM
海岸漂着物対策を総合的かつ効果的に推進するための基
24 JP 2019 MoE
本的な方針
25 海洋プラスチックごみ対策アクションプラン JP 2019 MoE
26 プラスチック資源循環戦略 JP 2019 MoE
G20 大阪サミットにおける海洋プラスチックごみ対策に
27 JP 2019 MoFA
関する成果
28 海洋プラスチックごみ対策に関する国際協力 JP 2019 MoFA
大阪ブルー・オーシャン・ビジョン実現のための日本のマ
29 JP 2019 MoFA
リーン・イニシアティブ
30 官民連携事業(PPP/PFI)のすすめ JP 2020 MLIT
31 家電リサイクル法［担当者向けガイドブック 2021］ JP 2022 METI
32 PPP/PFI 手法導入優先的検討規程運用の手引 JP 2017 CAO
日本の産業廃棄物管理における経験と発展 –急速に工業
33 JP 2013 UNEP
化する開発途上国に向けて-
34 Global Mercury Assessment 2018 EN 2018 UNEP
Waste Wise Cities Tool -Step by Step Guide to Assess a City’s
35 municipal Solid Waste Management Performance through SDG EN 2021 UN-Habitat
indicator 11.6.1 Monitoring
36 Guidelines for Environmental and Social Considerations JP, EN 2022 JICA
37 Guideline for Promoting Waste to Energy Facility Projects JP, EN 2017 JICA
38 Build Back Better-Supporting Nepal for Earthquake Recovery EN 2017 JICA
Municipalities
39 一般廃棄物処理基本計画 JP 2015 TMG
40 令和 2 年版事業概要 JP 2020 TMG
41 令和元年清掃事業年報 JP 2019 TMG
42 令和元年度清掃工場等作業年報 JP 2019 TMG
43 大田区一般廃棄物処理基本計画 JP 2021 Ota City
A-97
Langu Issue Issuing
No. Name of Documents age*1 Year Organization*2
TMG Bureau of
44 東京都清掃事業百年史 JP 2000
Environment
Claen Authority
45 令和 3 年度東京 23 区清掃一部事務組合清掃事業概要 JP 2021
of TOKYO
Claen Authority
46 Tokyo Model (Overview) JP, EN 2018
of TOKYO
47 横浜市災害廃棄物処理計画 JP 2018 Yokohama City
48 藤沢市一般廃棄物処理基本計画 JP 2017 Fujisawa City
49 令和 2 年度藤沢市一般廃棄物処理実施計画 JP 2020 Fujisawa City
50 藤沢市災害廃棄物処理計画 JP 2018 Fujisawa City
51 令和元年度清掃事業の概要 JP 2020 Fujisawa City
52 相模原市次期一般廃棄物最終処分場基本構想 JP 2021 Sagamihara City
53 福岡方式準好気性埋立構造とは？ JP 2013 Fukuoka City
54 What is an Organic Waste Composting Project? JP, EN 2009 Kitakyushu City
55 志布志市一般廃棄物処理基本計画 JP 2016 Shibushi City
Others
56 災害廃棄物分別・処理実務マニュアル JP 2012 JSMCWM
Hidetoshi
57 開発途上国における環境衛生分野の適正技術 JP 1997
KITAWAKI
58 ごみ処理施設の計画・設計要領 2017 改訂版 JP 2017 JWMA
廃棄物最終処分場整備の計画・設計・管理要領 2010 改
59 JP 2010 JWMA
訂版
Toru Furuichi
(Kyoritsu
60 廃棄物計画計画策定と住民合意 JP 2000
Shuppan Co.,
Ltd.)
*1 JP: Japanese, EN: English
*2 MoE: Ministry of the Environment, MHLW: Ministry of Health, Labour and Welfare, MoFA: Ministry of Foreign Affairs,
MLIT: Ministry of Land, Infrastructure, Transport and Tourism, METI: Ministry of Economy, Trade and Industry, CAO:
Cabinet Office, TMG: Tokyo Metropolitan Government, JSMCWM: Japan Society of Material Cycles and Waste
Management, JWMA: Japan Waste Management Association, UNEP: United Nations Environment Programme, JICA:
A-98
Back Cover Photos
Upper left: Suginami Incineration Plant (2021) (Clean Authority of TOKYO)
Upper middle: Shin-Koto Incineration Plant (2019) (Tokyo Metropolitan Government)
Upper right: Unloading Waste in Osaka Landfill Site (2021) (Osaka Bay Regional Offshore
Environmental Improvement Center)
Bottom left: New Sea Surface Disposal Site (2018) (Tokyo Metropolitan Government Bureau
of Environment)
Bottom middle: Waste Collection (2021) (Shibushi City)
Bottom right: Compacted Cans for Recycling (2021) (Shibushi CIty)

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Japan International Cooperation Agency

Japan International Cooperation Agency

Yachiyo Engineering Co., Ltd.

Japan Environmental Sanitation Center

Japan’s Experiences on Waste Management:

Waste Management Efforts Made by Fujisawa City..................................................... 52

Waste Management as Targeted by the SDGs and Japan's Experience

Purpose and Utilization of the Training Material

Purpose of the Training Material

Utilization of this Training Material

Topic 2 Topic 3 Topic 1

Waste Management Administration

Central Administrative Organization

＜Collection and Intermediate ＜ Final disposal＞ Businesses

Figure 1 Schematic Diagram of Topics Introduced in the Training Material

Important Points for each Topic

Waste Management Facts and Plans (Topic 1)

Present Status of Waste Management in Japan

Definition and Categorization of Waste

The scope of Waste Management Act

The main scope of this training material

＝Waste other than Raw Sewage

Figure 2 Categories of Waste in Japan

Waste Management Conditions

(a) Waste Generation Amount

(b) Waste Management Flow

Waste Collection and Transport/ Intermediate Treatment/ Final Disposal

Discharged waste is collected using collection

Direct Recycling Amount＋Group Collection Amount

“Final disposal” means that waste is ultimately

Waste Management Plans

Management of Waste-Related Data

Planning and policy review

Weighing of Waste Waste composition Survey of Three

Proper operation and management of facilities

Figure 5 Examples of Utilization of Waste Survey Data

National-Level and Municipality Level Waste Management Plans

Table 1 Waste Management Plans

Legislation and Government Policy pertaining to Waste (Topic 2)

History of Waste Management in Japan

management facilities • Private Sewerage System Act (Johkasoh Law) (1983)

History of Waste Management in Japan

Source: JICA “Technical Expertise of Japan in Solid Waste Management” (2005)

Legislation Pertaining to Waste Management

Changes in Legislation Pertaining to Waste Management

The first law pertaining to waste was the

Legal Structure to Waste Management

Basic Environment Law

Basic Environmental Plan

・Ensuring material-cycle in the society

Appropriate Waste Treatment Promotion of recycling

Regulations in accordance with the properties of individual products

Policies Pertaining to Waste Management

Table 3 Policies Pertaining to Waste Management

Administrative Organization and Finance (Topic 3)

Government Organizations Involved in Waste Management

The Structure of Government Organizations

1,741 Municipality Office

Figure 8 Waste Management System in Japan

Central Prefectures Waste generators

designated cities) Residents operators

Government Waste Management Services

Residents Participation and Consensus Building

＜Industrial Waste＞＜Municipal Waste＞