Rwanda: A Global Leader in Plastic Pollution Reduction - Zero Waste World
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Rwanda: A Global Leader in Plastic Pollution Reduction
Acknowledgments
This case study was authored by Aphrodice Nshimiyimana and Innocent Musore. It was edited by
Carissa Marnce, Niven Reddy, Neil Tangri, Alexandra Rollings, and Claire Arkin. Other contributors and
reviewers Kenza Elazkem and Sherma Benosa. The report was designed by Doun Moon.
Table of Contents
The report has been made possible in part through funding from the Plastic Solutions Fund (PSF). The
views expressed in this publication do not necessarily reflect those of PSF. This report or its parts may
be reproduced for non-commercial purposes provided the source is fully acknowledged. Reproduction
for sale or commercial purposes is prohibited without written permission of the copyright holder. Country information 1
Cover photos: Global Initiative for Environment and Reconciliation (GER) Background 2
Available online at: zerowasteworld.org/rwanda_plastic_ban The need for a plastic ban 3
Enforcement of the plastic bag ban 5
Introducing alternatives 8
©2021 Global Alliance for Incinerator Alternatives Community resistance and challenges 10
500 Esther Roberts Road, Glenwood, Durban, 4001, South Africa
www.no-burn.org
Current perceptions 11
Positive outcomes 12
GAIA is a global network of more than 800 grassroots groups, NGOs, and individuals. We envision a Local perspectives 15
just, zero waste world built on respect for ecological limits and community rights, where people are
free from the burden of toxic pollution, and resources are sustainably conserved, not burned or A way forward 17
dumped. We work to catalyze a global shift towards environmental justice by strengthening grassroots
social movements that advance solutions to waste and pollution. www.no-burn.org References 19
The #breakfreefromplastic (BFFP) Movement is a global movement envisioning a future free from
plastic pollution. Since its launch in 2016, more than 11,000 organisations and individual supporters
from across the world have joined the movement to demand massive reductions in single-use plastics
and to push for lasting solutions to the plastic pollution crisis. www.breakfreefromplastic.org
Global Initiative for Environment and Reconciliation (GER) is a non-governmental organization based in
Rwanda. GER was founded in 2015 with the mission of contributing to peace and reconciliation
process and improving environmental conditions in Rwanda, Great lakes as well. The organisation
supports the existing reconciliation process, community recovery and prevention of future violence.
We facilitate interactions of communities, authorities , religous leaders, young people to address the
existing effects of the 1994 Genocide against the tutsi, and consider environment as a driving factor
of peace building, healing the past and improving relations and lives throught develoment actions.
www.globalr.org
1 Rwanda: A Global Leader in Plastic Pollution Reduction GAIA ·GER (2021) 2
Country
information
Rwanda is a small, land-locked country
located in East Africa, dubbed ‘the
Background
land of a thousand hills’, thanks to its
mountainous topography (FAO, 2020). In 2003, the Rwandan Ministry of Environment carried out
The country shares borders with an assessment on the country ’s plastic problem,
Uganda in the north, Tanzania in the highlighting the impacts of plastic waste. These
east, Burundi in the south and the observations mainly related to topics such as cleanliness,
Democratic Republic of Congo in the human health, agricultural productivity, drainage systems,
west (REMA, 2018). The country ’s cattle health, air quality, water quality, and safety for
major economic sectors are packaged food. In 2004, the government of Rwanda started
agriculture, tourism, the industrial the journey of banning plastic shopping bags through
industry, trading and mining (National raising awareness and launching education campaigns
Institute of Statistics Rwanda, 2011). regarding the side effects of plastics, with a special focus
on plastic shopping bags.
In August 2004, with the Ministry of Environment in charge,
Rwanda shares borders with Uganda, Tanzania, Burundi and the Democratic Republic of
the country released instructions on the use and
Congo. © JonGorr/iStock manufacturing of plastic bags in Rwanda. Certain types of
plastics were prohibited and banned from manufacturing.
Details This ban began with shopping bags of less than 60 microns
in thickness. In 2008, the parliament established the Law
N57/2008 of 10 September 2008 relating to the prohibition
Total area: 26,338 km 2 (National Institute of Statistics Rwanda, 2017) of manufacturing, importation, use and sale of polyethylene
Population density: 445 people/km 2 in 2018 (National Institute of Statistics Rwanda, 2012) bags in Rwanda. This law was later extended to include
Population: 12,374,397 additional single-use plastic items in Law No.17/2019 of 10
Capital city: Kigali August 2019. This law prohibits manufacturing, importation,
National languages: Kinyarwanda, English, French and Kiswahili. use and sale of single-use plastic such as straws, bottles
Currency: Rwandan francs and food containers. Both laws provide penalties and strong
Climate zone: Rwanda is located within the equatorial belt, but its climate is not of the means of their enforcement.
equatorial rainy type. It has a modified humid climate including rain forest and Savannah
ecotones. The central and eastern parts of the country are generally semi-arid as a result
of the rain shadow caused by the western highlands (Rwanda Meteorology Agency, 2020)
Time zone: Central African Time (CAT) GMT +2
3 Rwanda: A Global Leader in Plastic Pollution Reduction GAIA ·GER (2021) 4
The need for
a plastic ban
The Rwanda Environmental plastic being found inside many
Management Authority (REMA), dead fish,” (The Dominion, 2011).
which operates under the
supervision of the Rwandan Local communities said that they
Ministry of Environment, witnessed the lack of cleanliness
acknowledges the various before the enforcement of the
environmental challenges posed ban, as plastic bags were
by single-use plastic items, scattered across the roadsides
including plastic bags. These and in other public places.
environmental challenges include:
blocking of water channels;
preventing water from infiltrating
the soil; threatening biodiversity
in water bodies like lakes and
rivers; clogging of drainage
systems, which triggers flooding;
and air pollution from the burning
of waste.
Moreover, plastic stays in the soil
for a long time, resulting in soil
degradation, which poses a big
challenge for the agricultural
sector in Rwanda. The former
Director of REMA, Dr. Rose
Mukankomje said that the problem
with plastic was beyond what was
just seen on the surface: “Layers
of plastic were found under the
surface and in our soil, hindering
agricultural production in
Rwanda, as plants cannot grow
with its roots past the plastic.
Our water sources were
becoming highly polluted with An illustration depicting the environmental challenges caused by plastic bags in Rwanda. © Doun Moon
GAIA ·GER (2021) 6
plastic management, exhibitions The ban was further enforced by
on plastic recycling, as well as strict control at the borders and
flight announcements before at all the country ’s entry points,
flying and landing in Rwanda, of along with regular enforcement
which the announcements stated inspections. One of the challenges
‘please refrain from bringing that arose from the strict
plastic bags to Rwanda. Banned by monitoring of plastic bags was a
law since 2008, any plastic bags black market. Plastic bags were
in your luggage will be smuggled into the country from
confiscated at the airport or other neighboring countries and then
point of entry.’ Furthermore, the sold illegally (Global Citizen, 2015).
‘Visit Rwanda’ website, which While the country ’s enforcement
encourages visitors to come to of the plastic bag ban has been
Rwanda, displays a message successfully implemented, it has
stating, ‘as a country we strive to also been met with international
As a result of the plastic bag ban, shoppers now bring reusable bags to the market. © OscarEspinosa/iStock
protect, safeguard and promote criticism for the strict measures
the environment – a matter which put in place, to ensure national
is written into our constitution compliance.
Enforcement of
and carefully observed by our Law No.57/2008 bears strong
citizens, who all participate in a fines for manufacturers and
community service on the last dealers of plastic bags (Republic
Saturday of every month,’ (Visit of Rwanda, 2008).
the plastic bag ban Rwanda, 2020).
The 2008 law created national aimed at raising community
sensation and raised awareness to awareness and behavior change
implement the ban on plastic on the negative impacts that
bags. This ban was enacted using plastic has on human health, and
various channels, such as biodiversity, as well as on Offense Punishment
community work, media community development.
campaigns on television, radio, Campaigns included activities
Fine of between RWF 100,000 (USD 101.95) and
and print. Furthermore, training, lined up during the national Factories using
RWF 500,000 (USD 509.77) and owners facing jail
school environmental clubs, environment weeks, countrywide plastic bags
time of 6-12 months
environmental committees, and inspection of the illegal use of
the involvement of different plastic bags, community work
stakeholders in the private sector, (Umuganda), ‘Beat Plastic Individual selling Fine between RWF 10,000 (USD 10.20) and RWF
revenue authorities, local Pollution Walk’ in Kigali during Car banned bags 300,000 (USD 305.86)
government, standards bureau, Free Day, media campaigns and
and security sector were roadside billboards (FONERWA,
Individual purchasing Fine between RWF 5,000 (USD 5.10) and RWF
implemented. 2018). There were also ‘Green
banned bags 100,000 (USD 101.95)
The government began campaigns Drinks Kigali’ discussions on
7 Rwanda: A Global Leader in Plastic Pollution Reduction GAIA ·GER (2021) 8
The law states that any person enforcement and control. Anyone
found manufacturing, selling or seeking an exception to use
using prohibited polyethylene polyethylene bags should request
bags shall be dispossessed of a signed authorization from REMA.
their bags, and the bags shall be The private sector recognises this
taken to the appropriate stores as the fairness of the law and its
established by REMA (Republic of enforcement, since campaigns
Rwanda, 2008). In the case of included the preparedness of the
repeated incidents, the penalty private sector and community to
shall be doubled (Republic of adapt to the law and seek
Rwanda, 2008). sustainable alternatives.
Agents of REMA and the Ministry
of Environment in collaboration
with Rwanda National Police and
other social security
organisations carried out law A food market in Huye Rwanda, operating without single-use plastic. © OscarEspinosa/iStock
Policy exceptions
Introducing
alternatives
The law banning plastic bags allows exceptions for
packaging of meat, chicken, fish and milled cassava
leaves because it makes it easier to refrigerate them. An
Order of the Prime Minister establishes a list of
polyethylene bags necessary to be used in exceptional Since introducing the law Resources Assessment (2020)
cases for particular goods (Republic of Rwanda, 2008). banning plastic bags, the reported "an estimated 420
Furthermore, the law states that the list of polyethylene Rwandan government began million hectares of forest has
bags shall be updated at any time where it is deemed supporting local factories that been lost worldwide through
necessary. started the transition to deforestation since 1990." In
producing materials made out of response to this, the country has
Rwanda devotes much focus on single-use plastic items bamboo and paper, as well as developed progressive
which contribute to environmental destruction and other alternatives to plastic. reforestation plans to restore
degradation. The law leaves space for some high-density While Rwanda introduced paper the environment. One of these
polyethylene (HDPE) products since their intended design as a biodegradable alternative, being a 10-year tree planting
and purpose allows for reusability, primarily used in the material comes with its own initiative that aims to “focus on
sectors such as roofing and water storage. set of environmental challenges. monitoring tree growth and
Paper has been said to be a impact on ecosystems and
significant contributor to biodiversity” (Sabiiti, 2020).
deforestation. The Global Forest
9 Rwanda: A Global Leader in Plastic Pollution Reduction GAIA ·GER (2021) 10
During the campaigns against
plastic bags, there was a slogan
used which stated ‘what plastics
reusable alternatives” and
adhering to sustainable
environmental practices (Rema,
Community resistance
do, paper and wood can do it’.
This resulted in paper shopping
bags taking the place of plastic
2018).
While paper packaging is used as
and challenges
bags in shopping packaging (KT an alternative to plastics,
Press, 2019). On the other hand, authorities believe that
paper bags are sometimes said to environmentally friendly materials One of the initial challenges Another challenge that arose
be too fragile to carry fresh food were used prior to the during the outset of the plastic after the ban was the increased
and other products for a long introduction of single-use plastic bag ban was a lack of community cost of locally produced products.
period of time. There are no materials. The former Director awareness regarding plastic bags’ As a result, local manufacturers
recycling facilities for paper bags General of REMA, Eng. Coletha impact on the environment and blamed their poor performance on
as yet, but these were preferred Ruhamya said that “most single- ecosystems (Duhuze, 2018). This the high cost of packaging.
due to the fact that they can use plastic, including plastic resulted in resistance from local Kigali-based food processing and
decompose after a short period of bags, used in the country were plastic manufacturers and the packaging companies faced the
time and prevent water clogging. introduced to replace other private sector food industry. A price increase of packaging
There has been no concrete study reusable materials that were local business dealer from Kigali material from RWF 29.55 (USD
done in Rwanda to identify the already in use. What is required said that the plastic ban was hard 0.03) to RWF 118.20 (USD 0.12)
negative impacts that paper has is to go back to our original to adopt in the beginning because after the ban was enforced.
had on human health and practices abandoned while they plastic bags were readily According to The East African
biodiversity in general. Studies are more environmentally available and cheap. "It was not (2016), “Sosoma packed its
have shown that reusables are the friendly. It is time to pay the cost easy for us to stop using plastic products in aluminium bags, the
most sustainable option, with a to the environment.” straight away, and the cost of the final product
lower environmental impact alternatives to plastic bags were increased from RWF 236.40 (USD
compared to single-use plastic hard to find at that time. 0.24) to RWF 305.35 (USD 0.31)
(Russo, Stafford, Nahman, However, now that we have per unit. At Inyange Industries,
2020).The use of reusables have adapted, the local manufactures the cost of packaging increased
been gaining more traction in of paper bags are providing the from RWF 59.10 (USD 0.06) to
Rwanda, so much so that REMA’s packaging alternatives," said the RWF 295.50 (USD 0.30). At
national Beat Plastic Pollution local business dealer. Uruburtso, it increased from RWF
campaign is focused on “choosing 39.40 (USD 0.04) to RWF 177.30
Furthermore, this initial (USD 0.18) and at Ruhango
resistance gave rise to the black Cassava from RWF 98.50 (USD
Rwanda reverted to its traditional practices, where handmade baskets are used as alternatives to plastic bags. market of plastic bags. The 0.10) to RWF 423.55 (USD 0.43)”.
© Stellalevi/iStock plastic bag black market has
become less of an issue over the
years, and authorities in charge
of the enforcement of the plastic
bag ban have said that fewer
cases of plastic bags found on
the black market are seen every
year (Danielsson, 2017).
11 Rwanda: A Global Leader in Plastic Pollution Reduction GAIA ·GER (2021) 12
Current Positive African continent and it sets a
high standard for the rest of the
continent, and the world (Africa
perceptions outcomes
Renewal, 2016). Thanks to an
ambitious national development
plan, the city is an ultramodern
metropolis that boasts
recognizable social, economic,
and environmental successes. In
Since the enforcement of the plastic bag ban, Rwandan citizens are As a result of Rwanda restricting 2008, UN-Habitat awarded its
becoming more aware of the environmental impacts of plastic the importation of plastic bags, Scroll of Honour to Kigali for its
bags, thus resulting in the reduction of plastic packaging. Citizens creating awareness of the plastic upgrading of urban amenities,
say that they see the advantages of using plastic bag alternatives. policy within the country ’s basic particularly refuse collection and
education curriculum, and the provision of housing, water,
Ngango Jean de Dieu, a fast food shop owner at Nyamirambo, Kigali addressing the plastic bag black and sanitation (Africa Renewal,
said: “I am glad about the law because now customers bring their market, the behaviours of citizens 2016). The success of the Plastic
own bags or reuse the old ones. It is cheaper than always giving have changed and the use of Bag Ban has led to the
plastic bags away." plastic bags has been greatly development of further measures
reduced. The outcomes of the and targets towards a sustainable
Claire Uwimana, a local from Kigali said: “for us Rwandans, we plastic bag ban in Rwanda has and clean country free of plastic
understand the value of maintaining a good environment. It is demonstrated its benefits waste.
great to live and work in a clean city like Kigali.” socially, economically, and
politically. The country established a new
law, passed in 2019, which bans
A positive impact of the 2008 ban single-use plastic (Republic of
is that plastic bags are almost Rwanda, 2019). The former
nonexistent in Rwanda and Minister of Environment, Vincent
cleanliness is evident throughout Biruta, said that the law was
the city of Kigali, and other urban intended to check unnecessary
areas of the country. Claire consumption and disposal of
Uwimana, from Kigali, gave an single-use plastic items, which
account of life before the plastic are harmful to the environment
ban, “I can recall how the streets (KT Press, 2019). The newly
and public places were polluted banned products include, but are
by a lot of thin plastic bags not limited to, water bottles,
before they were banned. Now packaging of fizzy drinks, juice,
you can see how clean the city is, milk, single-use plastic straws,
even people from abroad know plates and forks. The single-use
that Kigali is clean, not only of plastic law, which was gazetted on
plastic bags but also other waste the 23rd of September 2019,
materials." states that local government
officials fine any individuals who
Furthermore, Kigali is known as dump waste in public spaces RWF
A plastic-free landscape is a benefit of the plastic bag ban. © Grauy/iStock
the tidiest urban area in the 50,000 (USD 51.28) (Republic of
13 Rwanda: A Global Leader in Plastic Pollution Reduction GAIA ·GER (2021) 14
Rwanda, 2019). Moreover, waste and recyclables from other
individuals will be required to waste.
remove their waste and repair any
damages made. In addition to this, Furthermore, while most plastic
local governments can fine bags were imported from other
manufacturers, retailers, and countries, the alternatives to
importers up to RWF 5,000,000 plastic bags like paper bags and
(USD 5,128.21), if they violate the wooden packages were found
single-use plastic legislation locally. This has boosted
(Republic of Rwanda, 2019). employment, generated income
for local factories and contributed
The new single-use plastic ban to the country ’s development (KT
states that businesses dealing in Press, 2019). The Rwandan
the production of single-use government invests itself in
plastic materials like plastic cups, supporting and empowering local
forks and straws have three factories that are involved in the
months to start the process of production of alternatives to
shifting to manufacturing other single-use plastic materials.
product materials to replace Rwanda has seven established
plastic (Republic of Rwanda, plastic recycling facilities in the
2019). Factories have two years to country. The plastic bag ban has
begin this process. “We have boosted the tourism industry in
already started talks with three Rwanda, which is a significant
local factories that have started contributor to the country ’s
the process of shifting to economy. The resulting ban has
producing materials made out of seen Kigali become renowned as
paper, bamboo among others, the cleanest city in Africa. In 2019
and the government is supporting an estimate of 1,219,529
them in this transition,” said international tourists visited the
Vincent Biruta, the former country, as a result within the
Minister of Environment (KT sector almost 89,607 jobs exist
Press, 2019). (Odunga, Manyara, Yobesia, 2020).
Another positive outcome of the
plastic ban is that the city's
cleaning companies established
smart garbage bins by roadsides
that are well-placed and well-
managed. Waste collectors also
attest to the positive impacts of
the ban, which they attribute to
the fact that plastic bags made it Kigali in Rwanda is known as the tidiest urban area in the African continent. © Andreas/Pexels
harder to differentiate degradable
15 Rwanda: A Global Leader in Plastic Pollution Reduction GAIA ·GER (2021) 16
Local
perspectives
It is more than 26 years after the collaboration between the
1994 genocide against Tutsis that government, civil society and
took more than 1 million lives, communities has made this policy
destroyed the country ’s possible. The government
development and infrastructure, invested in the policy since they
crippled essential services and had a clear vision, and was in line
spoiled environmental conditions with the Article 22 of the National
in general (Moodley, Gahima and Constitution of 2003, with
Munien, 2010). The swift amendments through 2015 Rwanda's investment into plastic alternatives has boosted employment and generated income for
transformation of Kigali and the guaranteeing rights to a clean local businesses in the country. © King County, WA/Flickr
entire country was due to environment (Constitute Project,
determined efforts to forge 2020).
national unity and formulate a Innocent Musore, the director of Global Initiative for Environment and Reconciliation
new vision for the country. (GER) said that Rwanda has a lot of experience to share,
Kigali has environmental and
sustainability goals that include a “ especially in the neighbouring countries where plastic bags are still an
vision for a safer, cleaner and
more competitive modern city environmental and social issue. There should be a joint effort for
Theodette, a waste collector from
(Africa Renewal, 2016). President Bugesera in Rwanda, said: awareness campaigns that cross borders since pollution is borderless,
Paul Kagame speaking at the 35th
session of IFAD's Governing we will still suffer the flow of cross border plastic if nothing is done.”
Council in 2012 said that “there is “you cannot see any plastic
reason to remain optimistic
because experience in some bag of that type [polyethylene]
parts of the world indicates that
with the right policies and
in the whole volume of waste Rwanda was the first country in the Musore said that, “in Rwanda, 75% of
adequate investment, we can we collect from different African region to introduce a law the total population is the youth, most
increase food production while banning plastic bags and is now of them do not know of plastic bags
protecting our environment,”
places, you will never find any recognized as one of the few countries and have quickly adapted to
(IFAD, 2012). plastic bags.” in the world that progressively reacted alternatives and the policy. Therefore,
to the pressing environmental issues of this will enhance the sustainability of
Environmental welfare is among plastic waste and pollution. this plastic ban policy.”
the top priorities of the country's
development, and the17 Rwanda: A Global Leader in Plastic Pollution Reduction GAIA ·GER (2021) 18
A way forward impacts on the environment. We
are planning to conduct a study to
get the data that will support
“since plastic is a continental and
global issue, the experience of
Rwanda, in plastic banning, needs
monitoring and evaluating the to be shared with other countries
Rwanda envisions Kigali as a city of bags. But other single-use plastics impact of the ban, as well as other that are still struggling to beat
green transport, ensuring the are just as bad or even worse than initiatives such as recycling plastic. Compared to other African
reduction of air pollution and plastic bags. At the global level, investment.” countries I have managed to reach,
congestion to conserve the city ’s countries are also discussing how Rwanda has lessons and a good
environment (REMA, n.d). to ban single-use plastic. Rwanda GER recommends an extended record to share. However we have
must be at the forefront.” quantitative study on the impacts of not reached 100% of the ban,
The country is currently enforcing Rwanda plastic bag ban on plastic ban is a process. In this
the law banning single-use plastic, These measures go hand in hand environmental health and socio- process, we appreciate the
through awareness-raising and with developing policies to protect economic impacts in Rwanda. GER's collaboration of the government
engaging with the private sector to the environment, not only from Innocent Musore said that "those of with civil society, private sector
avoid excess loss within internal plastics but all kinds of pollution us who have been in the field, have and the population in general.”
production. The public has and strengthening the waste viewed the positive changes
responded positively to the use of management sector. Rwanda has through the cleanliness in the The country is striving to achieve
single-use plastic alternatives, this made notable achievements thus country, how the public adapted to the same success with their newly
includes the use of bamboo straws, far, however there is still a long way alternatives can see a vivid implemented single-use plastic ban,
non-plastic takeaway food to achieving the goal of the total reduction of plastic bags in to create a sustainable and plastic
packaging at restaurants, reusable zero pollution plan, which is collected waste, but there is no free environment for all citizens.
water bottles and many other included in the first National tangible data showing the impacts
behavioural changes between Strategy for Transformation (NST1). of the ban, as well as the extent to Rwanda has demonstrated that
traders and customers as a result of which the process is towards the plastic pollution reduction is
the progress of the single-use
plastic policy.
Furthermore, the former REMA
Director, Eng. Coletha Ruhamya said
ban goals." possible through strict bans on
single-use plastic, and have reaped
2019
that there is no accurate data on Rwanda has seen the benefits of environmental, social and economic
REMA’s former Director of quantities of single-use plastic implementing a plastic bag ban, benefits, as a result of its
Environmental Regulation and generated in Rwanda. through the noticeable reduction of progressive plastic bans.
Pollution Control, Remy Norbert plastic in the country. Innocent
Duhuze, said that “this is a positive “Most of the single-use products in Musore also recommends that Manufacturing,
step in the right direction. We have the country are imported. It is importation, use and sale of
mainly been dealing with plastic important that we avoid any single- 2008 single-use plastic such as
use plastic because of the negative straws, bottles and food
containers were banned by Law
2003 Manufacturing,
No.17/2019
2004 importation, use and sale of
polyethylene bags were
The Rwandan Ministry of Certain types of plastics were prohibited in Rwanda by Law
Environment carried out prohibited and banned from No.57/2008.
an assessment on the manufacturing; shopping bags
country’s plastic of less than 60 microns in
problem thickness were banned
Skyline view of Kigali. © Stellalevi/iStock19 Rwanda: A Global Leader in Plastic Pollution Reduction GAIA ·GER (2021) 20
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