Accelerating Waste Reduction: Understanding Hong Kong’s Producer Responsibility Scheme (PRS) / 促進減廢 生產者責任計劃的重要性

Image Source: Friends of the Earth

As Hong Kong steps up its efforts to tackle waste and promote sustainability, the Producer Responsibility Schemes (PRSs), if implemented diligently, can be a game-changer in the city’s waste management strategy. By adopting a principle of ‘polluter pays’, the PRSs hold producers accountable for the management of post-consumer waste, encouraging more sustainable product design and more effective recycling practices, as well as minimising environmental impacts resulting from product consumption and disposal.

According to the Hong Kong government, its work in promoting waste reduction at the source and expanding recycling networks has led to a significant reduction in municipal solid waste (MSW), which was on a decline for the third consecutive year, falling from approximately 11,300 tonnes in 2021 to 10,000 tonnes in 2024, representing a 3.4% year-on-year reduction. Meanwhile, the daily per capita MSW disposal rate dropped from 1.44kg in 2023 to 1.4kg in 2024. 

The Environmental Protection Department (EPD) has emphasised its commitment to further promote these initiatives to achieve a continued decline in waste volume. However, a drastic, lasting impact on waste reduction cannot be possible without the participation of businesses. Here, businesses need to be cognisant of the fact that the PRSs aren’t just about policy and compliance—they are a catalyst for change. For stakeholders, producers, and consumers in the hospitality industry and beyond, the message is clear: sustainability is the next competitive edge.

Take a deep dive to learn all you need to know about the PRS, how you can integrate them into your business operations, and be an industry leader in sustainability.

香港加強應對廢物問題及推動可持續發展之際，「生產者責任計劃」（PRS）若能認真實施，將成為本港廢物管理策略的重要轉折點。該計劃奉行「污染者自付」原則，要求生產者承擔消費後廢物的管理責任，從而鼓勵更可持續的產品設計和更有效的回收做法，同時減少產品消費和處置對環境造成的影響。

根據香港政府數據，通過推動源頭減廢和擴大回收網絡，都市固體廢物（MSW）量已連續三年下降，從2021年約11,300公噸減少至2024年的10,000公噸，按年下降3.4%。同期，人均每日都市固體廢物棄置量亦由2023年的1.44公斤降至2024年的1.4公斤。

環境保護署強調會繼續推展這些措施，以實現廢物量的持續下降。然而，若沒有企業參與，廢物減量難以產生重大而持久的影響。企業必須明白，「生產者責任計劃」不僅關乎政策和合規要求，更是變革的催化劑。對於酒店業等行業的持份者、生產者和消費者而言，訊息很明確：可持續發展將成為下一波競爭優勢。

深入了解「生產者責任計劃」的所有須知事項，探索如何將其融入業務運作，成為可持續發展的行業領導者。

Image Source: Pexels.com/Magda Ehlers

What are the Producer Responsibility Schemes (PRSs)?

Enacted in July 2008, the Product Eco-responsibility Ordinance (Cap. 603) (PERO) serves as a piece of umbrella legislation with the primary purpose of introducing Hong Kong's Producer Responsibility Schemes. It establishes the fundamental regulatory framework for managing designated products under different PRSs, with detailed operational requirements set out in subsidiary legislation.

The PRSs are a key policy tool in the waste management strategy in Hong Kong. They aim at reducing waste by making stakeholders – including manufacturers, importers, wholesalers, retailers, and consumers – collectively responsible for the collection, recycling, treatment, and disposal of end-of-life products, thereby avoiding and reducing the environmental impacts caused by such products at the post-consumer stage. 

While the operational details of each of the PRSs were prescribed individually in the PERO, the government announced in the 2024 Policy Address that an amendment bill will be submitted to the Legislative Council in 2025 to establish a common legislative framework for PRSs applicable to different products, as there exist many common elements among the PRSs. The proposed common legislative framework will set out the general operational mechanism for PRSs, the responsibilities of relevant stakeholders, the associated regulatory control measures etc., while the operational details applicable to individual regulated products will be prescribed in the respective subsidiary legislation, with the aim of improving the efficiency of the implementation and regulation surrounding each PRS.

The PRSs under PERO address key waste streams and outline producers’/suppliers’ responsibilities through respective schemes:

• Plastic Shopping Bag Charging Scheme (PSBs): The first PRS introduced under the PERO, serving as a mandatory charge to curb excessive plastic bag use. The scheme requires retailers to charge consumers a mandatory fee (HK$1 per bag) to curb excessive plastic bag use. Retailers are required to comply with the ban on free plastic bag distribution by charging customers at least HK$1 per bag (unless exempted), retain the charges collected, keep proper records of plastic bag distribution, and cooperate with the Environmental Protection Department’s enforcement and inspection efforts to ensure compliance with the scheme. Since its 2009 launch and 2015 expansion to all retailers, the policy has successfully reduced plastic bag waste, with plastic bag usage dropping by 60% within two months of the policy’s update (the fee per plastic bag was raised from HK$0.5 to HK$1), following the public engagement exercise conducted by the Council for Sustainable Development (SDC) in 2021 on the control of single-use plastics and the SDC’s subsequent recommendations for enhancements.

• PRS on Waste Electrical and Electronic Equipment (WPRS): Implemented in 2018, the Waste Electrical and Electronic Equipment (WEEE) PRS mandates producer responsibility for recycling 70,000 tonnes of annual e-waste through supplier levies and licensed treatment. It mandates suppliers of regulated electrical equipment (such as air conditioners, refrigerators, washing machines, TVs, computers, printers, scanners, and monitors) to register with the EPD, submit regular returns and audit reports, pay recycling levies based on quantities supplied, and provide recycling labels. Additionally, a seller of the regulated electrical equipment must have a removal service plan endorsed by the EPD for selling the equipment. Upon request by the consumer, the seller should arrange for the consumer a free removal service to dispose of the same class of equipment and provide receipts containing the prescribed wording on the recycling levies. Expanded in 2023 to cover more appliances, the WPRS supports proper recycling at the government-funded WEEE treatment and recycling facility, WEEE·PARK, while banning landfill disposal.

• PRS on Glass Beverage Containers (GPRS): Due to the low recycling value of waste glass containers and high collection and logistics costs, the majority of the waste glass containers generated in Hong Kong are disposed of at landfills rather than being reused or recycled. Launched in 2023, the GPRS requires suppliers to fund recycling through levies, diverting waste from landfills to licensed processors. Suppliers of glass-bottled beverages are responsible for registering with the EPD, submitting returns, paying recycling levies proportional to the volume of glass containers distributed, and submitting audit reports. Suppliers who arrange their own recovery and reuse programmes may apply for levy exemptions. The phased implementation builds on earlier voluntary programmes to develop local glass recycling capacity.

• PRS on Plastic Beverage Containers and Beverage Cartons: In Hong Kong, waste plastics account for 20% of MSW, including 4-5% that are plastic beverage containers. To combat this, the PRS on Plastic Beverage Containers and Beverage Cartons will adopt a ‘market-led approach’ and is expected to be implemented in 2026 at the earliest, with the Amendment Bill already submitted to the Legislative Council earlier this year. Registered beverage suppliers will be required to meet statutory recovery targets by either self-managing collection and recycling or contracting registered scheme operators. The scheme will incentivise public participation through rebates for returning containers at designated points. Meanwhile, the EPD has already rolled out several stages of the Reverse Vending Machine (RVM) Pilot Scheme in 2021 and 2022 to test the collection of plastic beverage containers all over Hong Kong and pave the way for the implementation of the PRS. The government has proposed initial recycling targets as well as recovery targets for the next six to eight years.

Hong Kong’s PRSs hold producers accountable and responsible for the collection, recycling, treatment, and disposal of their own products, incentivising innovation in sustainable designs (e.g., recyclable/repairable products made with reusable parts) and funding recycling infrastructure. For example, the levies collected under the Producer Responsibility Scheme on Glass Beverage Containers are set to recover the full operating costs of the scheme, supporting local recycling facilities and collection networks, and helping to overcome market barriers—especially for low-value materials—by subsidising recycling activities and fostering a sustainable recycling industry in Hong Kong. Consequently, this can reduce landfill pressure, facilitate resource recovery, and drive innovation, accelerating the city’s transition towards a circular economy and achievement of waste reduction targets, as outlined in the Environment Bureau’s Waste Blueprint for Hong Kong 2035.

生產者責任計劃(PRSs)是什麼？

《產品環保責任條例》(第603章)(PERO)於2008年7月頒佈，主要目的是在香港引入「生產者責任計劃」（PRSs），並設立不同PRSs下指定產品的基本監管框架，同時在附屬法例中規定具體營運要求。

儘管PERO分別規定各個PRSs的具體運作方式，政府在2024年的《施政報告》中宣布，將於2025年向立法會提交修訂法案，因應各個PRSs存在的共同元素，決定建立適用於不同產品的通用立法框架。擬議的立法框架將確立PRSs的基本運作機制、相關持份者的責任以及相關監管措施等，而適用於個別受監管產品的具體細節將訂明於相應的附屬法例中，以此提升各個PRS的實行及監管效率。

相關計劃包括：

• 「塑膠購物袋收費計劃」：首個根據PERO實施的PRSs，強制零售商向消費者收取每個塑膠袋至少HK$1費用（除非獲得豁免），以此減少過度使用塑膠袋。零售商需要保留所有徵費和記錄塑膠袋分發數量，配合環境保護署（環保署）執法和檢查工作，以確保符合計劃要求。此政策自2009年推出並於2015年擴展至所有零售商後，已成功在政策更新後（強制收取費用由HK$0.5升至HK$1）兩個月内減少60%塑膠袋垃圾，並根據可持續發展委員會的公眾諮詢結果和建議下逐漸完善計劃。

• 「廢電器電子產品生產者責任計劃」(WPRS)：於2018年實施，要求生產者透過供應商徵費和持牌處理商的處置，承擔每年70,000公噸的電子廢物回收責任。此計劃要求受監管電器設備供應商（例如空調、冰箱、洗衣機、電視機、電腦、打印機、掃描器和顯示器）向環保署登記，並提交定期報告和審計報告；供應商亦需要根據供應數量繳納回收徵費和提供回收標籤。此外，受監管電器設備的銷售商必須在出售設備時擁有獲環保署核准的棄置服務計劃。消費者如有要求，銷售商應為其安排免費棄置同類型的舊設備服務，並提供包含回收徵費相關規定字眼的收據。計劃於2023年擴展，涵蓋更多類型的電器，同時禁止於堆填區處理電器，並鼓勵在WEEE·PARK進行妥善回收。

• 「玻璃飲料容器計劃」(GPRS)：由於回收玻璃容器的成本高昂和較低的回收價值，香港大部分的廢棄玻璃容器均被處置於堆填區，而非進行再利用或回收。因此此計劃於2023年推出，要求供應商透過徵費資助回收，將廢棄玻璃從堆填區轉移至持牌處理商。玻璃瓶裝飲料的供應商需向環保署登記和提供報表，亦需要根據所分發的玻璃容器數量繳納回收徵費，並提交審計報告。自行安排回收及再利用計劃的供應商則可申請徵費豁免。此項目建基於早期的自願性計劃，現時以分階段形式實施來發展本地回收玻璃能力。

• 「塑膠飲料容器及紙包飲品盒生產者責任計劃」：為應對佔香港都市固體廢物20%的廢塑膠（當中有4-5%為塑膠飲料容器），此計劃採用「市場主導」模式，預計最快於2026年實施，修訂法案亦於今年較早時候提交至立法會審批。根據策劃内容，註冊飲料供應商須達到法定回收目標，可以選擇透過自行管理收集和回收，或者委託計劃當中的註冊營運商處理。為了激勵公眾參與，市民能透過於指定地點退還容器去獲取回贈。與此同時，環保署已分別於2021年及2022年分階段推出「入樽機先導計劃」（RVM），測試本地塑膠飲料容器的收集工作，並為實行PRSs計劃奠定基礎。政府已提出初步回收目標及未來6-8年的回收率目標。

香港的生產者責任計劃(PRSs)要求生產者承擔其產品的收集、回收、處理和處置責任，並鼓勵具有創新性的設計方案（例如可回收/可修復零件製造產品）及資助回收基礎設施來促進可持續發展。例如，「玻璃飲料容器生產者責任計劃」的營運理念中預計所收取的徵費能夠完全覆蓋該計劃的運營成本，以此支持本地回收設施和拓展市場，並通過補貼回收活動和培育香港的可持續回收產業來克服市場障礙，尤其是低價值材料。因此將經濟誘因和環保目標互相結合，共同減少堆填區的壓力，並促進資源回收和推動創新，加快實現循環經濟，達成《環境局香港廢物管理藍圖2035》所訂立的減廢目標。

Image Source: Hotel ICON

What Can the Hospitality Industry Do to Comply with the PRSs?

Given these PRS frameworks—from plastic bag charges to upcoming beverage container regulations—Hong Kong's hospitality sector finds itself at a critical intersection of compliance and leadership. As both major waste generators and customer-facing influencers, hotels, restaurants, and catering businesses can play a vital role in PRSs implementation and success by:

• Fully integrating sustainability in their business operations: Hospitality businesses can adopt sustainability policies, such as reducing single-use plastics (e.g., replacing plastic straws and toiletries with sustainable alternatives), minimising food waste through better inventory and menu planning, and investing in energy-efficient technologies. Leading hotels like Rosewood Hong Kong demonstrate how sustainability can be a core business value. For example, by partnering with dynamic NGOs such as Food Angel, Rosewood Hong Kong works to educate families on ethical food production and food waste reduction.

• Partnering with suppliers who comply with PRS requirements: Hospitality businesses looking to recycle their glass containers can participate in the glass recycling programmes supported by the government, including the Glass Container Recycling Programme for the Hotel Sector organised by the Hong Kong Hotels Association, and the Glass Bottle Recycling Campaign organised by Hong Chi Association.

• Setting up collection points for recyclable materials on-site: Collected items can be sent to waste collectors and recyclers registered with the EPD. Refer to this site for more information on the collectors and recyclers for different kinds of waste.

• Educating staff and guests about responsible disposal and recycling: Use GREEN Hospitality’s resources to develop the protocols for your hospitality business’ waste reduction and recycling initiatives. Train staff and inform guests on the importance of and methods for waste separation, recycling, and reduction. Equally important is documenting the results and impact of your waste reduction efforts, and showcase the positive impact to further incentivise the involvement of your staff and guests.

By participating in the PRSs, hospitality businesses can not only lead the industry by contributing positively to Hong Kong’s waste reduction endeavours, but they also stand to benefit from a positive brand image and attract the increasing number of sustainability-minded customers.

酒店餐飲業如何配合生產者責任計畫（PRSs）？

從塑料袋收費到即將推出的飲料容器監管措施，PRSs框架持續發展。香港酒店餐飲業作為主要廢物產生者和面向消費者的關鍵產業，在PRSs政策中扮演著重要角色。酒店、餐廳和餐飲企業可以透過以下方式參與PRSs：

• 將可持續發展設計全面融入於業務營運：酒店餐飲企業可採用可持續政策，例如減少使用一次性塑膠製品（以可持續替代品取代塑膠吸管和洗漱用品），透過優化庫存和菜單規劃減少食物浪費，以及投資節能技術。以香港瑰麗酒店為例，該酒店透過與惜食堂等非政府機構合作，教育家庭減少食物浪費及其環境影響，展示以可持續發展作為運營核心價值。

• 與符合PRSs要求的供應商合作：有意回收玻璃容器的酒店餐飲業者可參與政府支持的玻璃回收計劃，包括由香港酒店業協會組織的「玻璃容器回收計劃」，以及匡智會主辦的「玻璃瓶回收行動」。

• 在場内設立回收材料收集點：將分類回收物品交由環保署認可的回收商處理，具體回收位置和不同類型廢物回收商資訊可參考環保署相關網站。

• 加強向員工與顧客宣傳負責任的廢物處置及回收方式：可透過利用GREEN Hospitality的資源來制定減少廢物及回收計劃的標準流程，並以此來培訓員工和向顧客介紹分類、回收及減少廢物的重要性及方法。與此同時，廢物減量工作的成果及影響應被記錄下，向公眾展示其正面影響，以進一步鼓勵員工及顧客積極參與。

透過實踐PRSs原則，酒店餐飲業不僅能引領行業潮流，積極參與香港減廢計劃，更能提升品牌形象，借此吸引越來越多具有環保意識的客戶群體。

Image Source: Hong Kong Waste Reduction Website

How Can We Support PRS as a Consumer or Business?

Regardless of our professional roles, on a personal level, we can all take actions in our day-to-day routine to support the PRSs. Some of these actions can look like:

• Bring cleaned recyclables to designated collection points: For instance, GREEN@COMMUNITY is Hong Kong’s own community recycling network that comprises 12 Recycling Stations (district hubs for environmental education and recycling support), 82 Recycling Stores (recycling points near neighbourhoods and public rental housing estates), and 600 Recycling Spots (mobile collection booths). Additionally, the GREEN$ Electronic Participation Incentive Scheme further encourages Hongkongers to make a consistent effort in recycling, offering daily necessities, groceries, and environmentally friendly products as gifts for redemption.

• Choosing products from brands committed to PRS: For example, companies such as Procter & Gamble Hong Kong Limited (especially their brands Braun and Oral-B), Canon, and Shun Tak Property Management Ltd. (The Westwood) currently support and fund the HK Waste Reduction’s Rechargeable Battery Recycling Programme. Meanwhile, Mil Mill, the first pulp mill and education centre that recycles beverage cartons in Hong Kong, facilitates a circular economy through its paper products.

• Staying informed about new PRSs developments and opportunities: As the PRSs landscape in Hong Kong continues to evolve, new regulatory updates will likely be made. By staying up-to-date with PRS-related news, businesses can be ahead of the game to plan for the adaptation to new compliance requirements and explore new waste reduction and recycling technologies. A great way to get started is through the official EPD website, which regularly publishes updates on important events and activities, and provides guidance to support stakeholders in aligning with PRS goals. The Waste Reduction Website also provides resources and tips to help you get started on your waste reduction and recycling journeys.

作為消費者或企業，我們如何支持生產者責任計劃 (PRSs)？

我們在個人層面方面上可以在日常生活中採取行動來支持PRSs，例如：

• 將清潔後的可回收物品帶到指定收集點：綠在區區作為香港的社區回收網絡，擁有12個回收站（環保教育和回收支援的社區樞紐）、82個回收店（鄰近社區和公共屋邨的回收點），以及600個回收流動點（移動回收站）。此外，「綠綠賞（電子）積分計劃」亦透過提供日常用品、食品雜貨及環保產品作為回贈禮品，鼓勵香港市民持續進行回收。

• 選擇支持PRSs的品牌產品：寶潔香港有限公司（尤其是旗下品牌Braun及Oral-B）、佳能（Canon）及信德物業管理有限公司（西寶城）目前均支持並資助香港減廢計劃中的「充電電池回收計劃」。同時，香港首間專門回收飲料紙盒的紙漿工廠及教育中心——「Mil Mill」，運用其紙製品來促進循環經濟。

緊貼PRSs的最新發展和機遇：隨著香港的PRSs框架持續地演變和進步，未來監管措施會不斷更新來貼合社會需要。企業可透過掌握最新的PRSs資訊，提前做好規劃來適應新的規定和要求，並探索新的減廢及回收技術。市民可透過環境保護署官方網站獲取最新活動和重要公告，瞭解PRS政策相關指引，確保能夠協助持份者與PRSs的目標保持一致。另外，參閱「減廢網站」能夠提供資源及指導，幫助您開展減廢及回收行動。

Image Source: SCMP/May Tse

Looking Ahead: Challenges and Opportunities

While the PRSs collectively serve as a powerful tool for us to combat MSW, there remain some challenges in their implementation. Such challenges can be in the expansion of coverage of more product categories, increasing public awareness and participation, and the strengthening of collaboration between the government, the industry, and consumers. Hence, the future of PRSs depends on broad cross-sector collaboration and knowledge exchange, continued innovation, and collective action—something the hospitality sector is uniquely positioned to champion.

展望未來：挑戰與機遇

儘管「生產者責任計劃」是本港持續減少都市固體廢物的重要策略，但其推行仍面臨著不少挑戰，包括如何將計劃擴大和涵蓋至更多產品類別、提高公眾的認知度和參與度，加強政府、企業和消費者之間的合作。因此，PRSs的未來將會取決於跨行業合作的廣泛程度與知識交流、持續創新，以及團結性，而酒店餐飲業正處於推動這一轉變的獨特位置。

Join the Movement

At GREEN Hospitality, we empower individuals and businesses to take greater collective actions by ensuring our rich library of resources, research reports, and toolkits on waste reduction and recycling is publicly accessible. Some examples include our Waste Reduction Guide, complete with six guides that offer quick wins on the waste reduction journey; our F&B Playbook for creative ways to minimise food waste and cut costs; and our Waste Deep Report, offering an overview of the hospitality industry’s contribution to Hong Kong’s waste crisis.

If you are interested in equipping yourself with the skills and knowledge to transform food waste into new resources, explore the third iteration of Food Waste to Good Taste, an impact project in collaboration with The University of Hong Kong School of Biological Sciences and CHOMP.  We’re showcasing the potential of nine  often overlooked food scraps from Asian households and restaurants in  “Conscious Cooking - Asian Delights” - a bilingual cookbook featuring  20 creative recipes by nine of Hong Kong’s top chefs, CHOMP’s founder and food-saving expert Carla Martinesi, and HKU Students. All proceeds from the sale of the cookbook benefit Foodlink Foundation. Purchase your copy now. 

True to our mission of transforming the hospitality industry into a catalyst for sustainability, we at GREEN Hospitality have the expertise and connections to help your hospitality business achieve your sustainability goals, whether it is related to sustainability certification, consultation, employee engagement, waste reduction training, or more. Get in touch with us to learn more.

加入這場環保運動

GREEN Hospitality致力於協助個人及企業在這場環保運動中共同採取行動。我們確保公衆都能獲取豐富的資源庫、研究報告及減廢與回收工具，其中包括：《減費⼯具包》，涵蓋六項指南，提供快速減廢的有效方法；《餐飲業減廢手冊》，探索創意方式來減少食物浪費並同時降低成本；以及《深入廢棄報告》，概述酒店餐飲業對香港廢物危機的影響。

如果您希望學習將食物廢料轉化為新資源的技術和知識，請關注我們的「惜食惜味計劃」項目第三期。該項目與香港大學生物科學學院及食品節約應用程式CHOMP共同合作，並推出雙語烹飪書《Conscious Cooking - Asian Delights》，展示亞洲家庭和餐廳中九種常被忽視的剩菜的潛力。這本烹飪書收錄了由九位香港頂級廚師、CHOMP創始人兼食物節約專家Carla Martinesi以及港大學生創作的20道創意食譜。該烹飪書的所有收益將捐贈給膳心連基金，請廣傳並立即購買！

秉持著將酒店餐飲業轉型為可持續發展先鋒的使命，GREEN Hospitality提供專業知識和業界聯繫方式，可幫助您的酒店業務實現可持續發展目標，包括可持續認證、諮詢服務、員工參與度、減廢培訓等。如有興趣，歡迎與我們聯繫了解更多資訊。