What is the Situation with Cigarette Related Litter ... - Keep Britain Tidy

Table of Contents1 Foreward ...................................................................................................................................12 Executive Summary .................................................................................................................22.1 What is the extent of cigarette related litter...................................................................22.2 Identified solutions to reduce cigarette related litter....................................................32.3 Conclusions / Recommendations.....................................................................................43 Introduction...............................................................................................................................54 Background ..............................................................................................................................64.1 What are cigarettes?..........................................................................................................64.2 Consumption Profile ............................................................................................................75 The Problem ............................................................................................................................105.1 About cigarette related litter ..........................................................................................105.2 Where does CRL occur? ..................................................................................................115.3 Why does CRL occur? ......................................................................................................115.4 What is the impact of CRL? .............................................................................................135.5 Cigarette Litter Monitoring ...............................................................................................176 Identified Solutions .................................................................................................................206.1 Education ...........................................................................................................................206.2 Cleaning and Ashtrays .....................................................................................................246.3 Legislation ...........................................................................................................................296.4 International Management Models ...............................................................................317 Conclusion and Recommendations...................................................................................337.1 Research and monitoring ................................................................................................337.2 Education and Communication.....................................................................................337.3 Ashtrays / Infrastructure ....................................................................................................347.4 Enforcement of legislation ...............................................................................................347.5 Cleaning .............................................................................................................................34Situation Report - Final

1 ForewardBy Alan Woods OBE, Chief Executive, ENCAMSA survey last year by ENCAMS, which runs the Keep Britain Tidy Campaign, confirmedthere’s one type of litter which defaces our streets far more than any other. The annualLocal Environmental Quality Survey of England (LEQSE), which ENCAMS carries out onbehalf of the Department for Environment Food and Rural Affairs, monitored 12,000 sitesand found 79% were scattered with smoking-related litter. Added to this, in 2007 theGovernment plans to introduce a partial ban on smoking in public places. Therefore, it isonly sensible to acknowledge that England is likely to see an increase in cigarette litteron top of an already significant problem, unless action is taken.This type of litter is unsightly and difficult to clean up, as the small filters fall into grates andcracks in the pavement, avoiding detection by normal cleaning processes. Cigarettefilters are composed of cellulose acetate, a plastic that can take a long time to breakdown and be absorbed back into the environment. Cigarette litter can even lead totoxins leaking into watercourses which pose a threat to our wildlife.There are various responses to this situation: more street cleansing, better cigarette binprovision, enforcement through fines and penalties, changing public attitudes tocigarette litter or providing more convenient disposal solutions such as portable ashtrays.All of these could work. But how much better would they work if co-ordinated into aconcerted, focussed effort? I believe this is the way forward and for that reasonENCAMS has undertaken to establish a group of stakeholders who share a wish to seeless cigarette litter in the environment and to find effective and pro-active ways toachieve that end.This Situation Report is a step towards achieving that goal and I greatly welcome it as acomprehensive summary of the issues involved, as a document around which to build aconsensus and as a discussion piece.ENCAMS has evidence that smoking-related litter has increased by 20% in the last fouryears. I believe it’s time to reverse that trend. I also believe it can be done. WhenENCAMS ran a campaign earlier this year, it achieved a 35% reduction in cigaretterelated litter in the areas targeted. That’s a great result but what lessons can be learnedand how can that success be sustained?This Report is not intended as a static document. We will update and add to it as thework progresses. I wish to thank everyone who has supported and contributed to thework and I look forward to working with you to create cleaner environments for all.Situation Report - Final 1

3 IntroductionCigarette-related litter is the most common type of litter found in England. ENCAMS, anenvironmental charity, has recognized the need to develop a co-ordinated approachbetween stakeholders to address the issue. This complements the ENCAMS cigarettelittering campaign implemented across England in February 2006.This document aims to gather all available information about cigarette-related litter inEngland, in relation to:• The extent and impact of the problem;• The solutions – education, legislation and enforcement, ashtrays and cleaning.The ultimate purpose of the document is to identify ‘what works’ in terms of reducingcigarette-related litter in the English context, and to identify gaps in our knowledge andcurrent interventions. This will help to guide future cigarette-related litter interventions,ensuring that resources are allocated most effectively.This document is open to stakeholder input. It will be supplemented regularly, to includeverifiable information about cigarette related litter issues.Situation Report - Final 5

4 BackgroundThis section outlines information about the composition of cigarettes and a profile ofsmokers and their consumption patterns.4.1 What are cigarettes?Cigarettes are either packeted or hand-rolled. ‘Packeted cigarettes’ are the mostcommon type consumed in England and are referred to as ‘cigarettes’.4.1.1 Packeted Cigarettes (Cigarettes)‘Packeted’ cigarettes (i.e cigarettes) are a paper-wrapped cylinder, packed withshredded tobacco leaves (consisting of nicotine) 17 . After the tobacco leaves have beendried and cut to make cigarettes, they are treated with chemicals and additives,helping to ensure the cigarette remains lit, remains moist and in some cases, to modifythe flavour of cigarettes 1819 . A filter is affixed to one end of the cylinder, through whichthe cigarettes is smoked after the opposite end has been ignited. The smoulderingcigarette is inhaled until the cylinder portion of the cigarette has been consumed,leaving the filter (or the cigarette ‘butt’) as a waste product.The filter is made from a bundle of synthetic fibres called cellulose acetate 20 . Celluloseacetate is made from the chemical modification of cellulose to form a type of plastic 21 .Filters are made specifically to capture both nicotine (which acts as a stimulant on thecentral nervous system 22 , increasing the heart rate, reducing appetite and increasingalertness 23 ) and tar. Tar refers to hundreds of chemicals including arsenic, mercury andlead 24 .Used cigarettes filters are commonly known as cigarette ‘butts’ or cigarette ‘ends’.4.1.2 Hand rolled cigarettesHand rolled cigarettes are made from the same components as packeted cigarettes,however, the components (i.e loose tobacco, filters and cigarette papers) arepurchased separately and are assembled by the consumer.The overwhelming majority of UK smokers (73%) consume packeted cigarettes only. 18%of smokers consume only hand-rolled cigarettes and the remaining 9% consume bothpacketed and hand rolled cigarettes. Furthermore, men are almost twice as likely tosmoke hand rolled cigarettes as women 25 .17 Wikipedia (2006) http://en.wikipedia.org/wiki/Cigarette18 Pers comm. (10 July 2006) Nicky Donnelly, British American Tobacco19 ENCAMS Policy Statement, Cigarette related litter20 Register, K (2000) Cigarette Butts as Litter, Toxic as Well as Ugly underwater Naturalist, Bulletin of theAmerican Littoral Society, 25:221 ibid22 Pers comm. (10 July 2006) Nicky Donnelly, British American Tobacco23 Wikipedia (March 2006) http://en.wikipedia.org/wiki/Nicotine24 ibid25 Lader, D and Goddard, E (2004) Smoking related behaviour and attitudes Office of National StatisticsSituation Report - Final 6

4.1.3 CigarsA cigar is a roll of dried and fermented tobacco, one end of which is lit so that the smokeis drawn into the mouth through the other end. Cigars are larger and more potent thancigarettes. Consumption rates of cigars are lower than cigarettes, perhaps due to theiravailability, cost, potency and perhaps because they tend to be smoked as a ritual or tomark an occasion 26 . The remains of a consumed cigar should also not be littered,however, they are not as common as cigarette butts and are therefore not the focus ofthis project.4.2 Consumption ProfileIt is estimated that 70 billion cigarettes were consumed in the United Kingdom in 2004 27 ,equating to 200 million cigarettes per day.4.2.1 Tobacco manufacturersA number of tobacco manufacturers are represented in the United Kingdom, dominatedby Gallaher, Imperial Tobacco, and to a lesser extent, Rothmans UK 28 . British AmericanTobacco UK Ltd is also based in England, and while it manufactures tobacco products inhere, it sells almost all of them overseas. These organizations, (along with Philip Morris Ltd)are members of the Tobacco Manufacturers Association (TMA) which ‘represents theviews of its principal member companies and provides factual information on behalf ofthe UK industry as a whole’ 29 .4.2.2 Who are smokers?One quarter of the UK adult population are smokers 30 . Smoking rates vary by region andby socio-economic group and by age.A greater proportion of men (26%) smoke than women (23%). Overall, smoking rateshave declined dramatically in the UK since 1974, when the rate was 45%. Since 2000,there has been no statistically significant reduction in smoking 31 .The prevalence of smoking reduces with age. Smoking prevalence is highest in peopleaged between 20-24 years, 32% of whom are smokers. Smoking prevalence is lowest inpeople aged over 60, 14% of whom are smokers 32 .Smoking rates vary slightly between regions of England. The North East, North West, andYorkshire and the Humber regions have the greatest proportion of smokers (29%-28%)compared to the rest of England. London and the South East had the lowest proportionof smokers with 22% of the population smoking. The proportion of smokers in all regions isshown in Table 1.Table 1: Proportion of smokers by region in England (2004)26 Wikipedia (2006) Cigars, http://en.wikipedia.org/wiki/Cigar27 Tobacco Manufacturers Association, http://www.the-tma.org.uk.28 Tobacco Control Country Profiles (second edition, 2003) Shafey, O, Dolwick, S, Guindon, G.E (eds) (marketshare estimates are from 2001)29 The Tobacco Manufacturers Association, http://www.thetma.org.uk/30 Office of National Statistics (2005) General Household Survey 2004-05, www.statistics.gov.uk/ghs31 ibid32 ibidSituation Report - Final 7

Region Proportion of smokers (%)North East 29North West 28Yorkshire and the Humber 28East Midlands 27East of England 24West Midlands 23South West 23London 22South East 22Smoking rates also seemed to be linked to socio-economic groups. The prevalence ofsmoking is higher in those people who undertake routine and manual employment (31%of whom smoke). They consume an average of 15 cigarettes per day. The prevalence ofsmoking by those in intermediate employment (eg small employers and self employed) isless, at 23% (and they smoke an average of 14 cigarettes per day). Finally, theprevalence of smoking by those in managerial and professional employment is thelowest at 18% (and they smoke an average of 13 cigarettes per day).In summary, a typical smoker in England is likely to:• Live in the North East or North West of England;• Be a male;• Be aged between 16-44;• Consume packaged cigarettes (as opposed to hand rolled);• Consume less than 20 cigarettes per day; and• Work in routine or manual employment.4.2.3 Where do smokers consume cigarettes?Research undertaken on behalf of ENCAMS shows that smokers modify their smokingbehaviour according to who they are with and what they are doing 33 . Smokers are morelikely to smoke if they are around other smokers, or if they are drinking alcohol.Common locations for smoking and the reasons for choosing these locations are:• Home - Smokers modified their behaviour when at home, restricting theirsmoking to certain parts of their premises.33 ENCAMS (Sept 2005) Cigarette related litter, Stage 2 DebriefSituation Report - Final 8

• Bars/clubs/restaurants - when drinking alcohol;• Work – Smokers also stated that they tended to smoke at work in order to get abreak from work, or to socialize with other smokers (eg in the smoking room).• Out of doors – more men than women smoke out of doors, as women are moreself conscious about it 34 .About half of these smoking locations are both ‘away from home’ and outdoors. It isthese locations where smoking-related litter is a concern. With the introduction ofsmoking bans in 2007, the proportion of away from home, outdoor smoking locations willincrease.34 ibidSituation Report - Final 9

5 The ProblemThe extent and impact of cigarette related litter is described in further detail below.5.1 About cigarette related litterCigarette related litter (also known as smoking related litter) refers to a range of itemsthat are incorrectly disposed of through the act of smoking. These items and theircomposition are:• Cigarette butts and cigar ends–cigarette butts are made of cellulose acetate(plastic) and consist of trapped tar and some smoke particles leftover from theinhaled smoke. Cigar ends are less common and they also contain remnants oftobacco.• Cigarette box packaging – consisting of cardboard cigarette boxes, plasticwrappers and foil inserts.• Ignition source – i.e, wooden matches and plastic lighters.It is safe to assume that cigarette butts should be the focus of future cigarette-relatedlitter interventions. This is not only due to their vast quantity, but also due to thesignificance of their impacts (which are detailed in future sections of this document)compared to other cigarette related litter items, such as cardboard packaging.5.1.1 How many cigarette butts are littered?It is impossible to know with certainty the exact number of littered cigarette butts on theground across England, due to differing cleaning regimes, weather conditions, andaccumulated litter.Many publications quote that 200 million cigarette butts are ‘thrown away’ in the UKwhich could be misinterpreted as an assumption that all of these butts are littered. This isnot the case. In fact, 200 million cigarettes are consumed every day in the UK (asdescribed in a previous section), and it is unclear how many of these butts are littered inoutdoor settings.Probably the best indication of the extent of cigarette related litter in the environment isfrom the work undertaken by ENCAMS, which shows that cigarette related litter is presenton 79% of streets 35 . This figure was arrived at using rigorous survey protocols and qualityprocedures. Further, the data is collected quarterly and reported annually, providingmore reliable information than a one-off sample of litter composition.Several other studies have been conducted which provide an indication of thecomposition of litter in the environment. ENCAMS undertook a litter sample study onbehalf of INCPEN, finding that cigarette butts comprise of 32% of all litter, making themthe second highest type of litter by volume (after chewing gum) in England 36 . Theseresults were arrived at through litter counts at 30 sample sites (transects).35 ENCAMS (2005) LEQSE 2004-0536 ENCAMS (Oct 2004) INCPEN Litter Survey of England, INCPENSituation Report - Final 10

Finally, during the Marine Conservation Society’s Beachwatch 2003 beach litter survey, atotal of 14,659 cigarette ends were found on 244 beaches around the UK. An average108.7 cigarette ends were found for each kilometre of beach surveyed, equivalent toone every 10 metres, an increase of 25% from Beachwatch 2002 (86.7 per km) 37 .5.1.2 How much do littered butts weigh?Given the uncertainty surrounding the actual number of littered cigarette butts, itlogically follows that the actual weight of all littered cigarette butts is also impossible toestimate.We know that 1 cigarette butt weighs 0.1701g 38 . This figure can be used to extrapolate atotal weight if the number of littered cigarette butts is known.It is commonly stated that 122 tonnes of cigarette related litter is littered every day in theUK. However, the origin of this figure is unclear (pers comm. Fiona Campbell, PolicyDirector ENCAMS) and therefore, the method of calculation is not verifiable at this stage.5.2 Where does CRL occur?Cigarette related litter (CRL) occurs in those areas where smokers are most likely tocongregate. They include the areas outside of:• industrial warehouses / units;• retail areas 39 ;• offices; and• transport facilities 40 .5.3 Why does CRL occur?Cigarette related litter occurs largely as a result of smokers inappropriately disposing ofcigarette butts. (Clearly, inappropriate disposal refers to smokers dropping cigarettebutts on the ground, but it should also be noted that placing cigarette butts on the rim ofbins (where they can be blown onto the ground), and failing to extinguish a cigarettebutt before placing it into litter bins or ashtrays (causing a fire risk) are also inappropriatedisposal methods 41 ).Cigarette littering behaviour is driven by the attitudes and knowledge of smokers, and isinfluenced by their social and environmental context.37 Marine Conservation Society (Aug 2004) Cigarette Litter on Beaches – Marine Conservation SocietyStatement38 Register, K (2000) Cigarette Butts as Litter, Toxic as Well as Ugly underwater Naturalist, Bulletin of the AmericanLittoral Society, 25:239 ENCAMS (2005) LEQSE 2004-200540 Defra (1999) Environmental Protection Act 1990, Code of Practice for Litter and Refuse41 Hobart City Council (2004), Cigarette Butt Reduction Project for Hobart’s CBD, www.buttlitteringtrust.orgSituation Report - Final 11

5.3.1 Attitudes and knowledgeENCAMS have undertaken litter segmentation research, in order to understand thecommunity’s attitude about littering and drivers behind littering behaviour 42 .Some aspects of ENCAMS’ research demonstrated the attitudes or beliefs of smokers inrelation to the practice of smoking and littering. The trends from this research are:• Littering cigarette butts is a social norm – smokers do not expect retribution fromeither smokers or non-smokers 43 . This is supported by research which showedthat 82% of people in Ireland would do nothing if they saw a smoker ‘dump acigarette butt’ 44 . In a survey conducted in England, 67% of people had neverpointed out to a smoker that they have dropped a cigarette butt 45 .• Cigarette butts are not considered to be litter items – many smokers stated thatthey treat cigarette butts differently to other types of litter. While admitting thatthey would litter a cigarette butt, they would never drop other types of litter.Some smokers claim that cigarette butts are not as bad as other types of litter,such as chewing gum. Women tend to feel guiltier about littering cigarette buttsthan men. Cigarette butts are considered to be different because of theirphysical characteristics (they are small, believed to disperse easily and arebelieved to be biodegradable). However, it is acknowledged that cigarettebutts are unsightly when en masse.• The need for immediate disposal – Smokers feel that once consumed, cigarettebutts need to be disposed of immediately because of their uniquecharacteristics i.e, they are perceived to be a fire hazard, smelly and dirty. Theproblems associated with disposal mean that smokers are reluctant to carrycigarette butts around with them.• Concern about contributing to a fire – Smokers are very conscious of the fire riskposed by a lit cigarette. This can lead to littering as most smokers prefer tostamp out the butt on the ground to ensure that they are extinguished 46 .• Some smokers feel guilty about littering butts – most smokers admitted toglancing around to ensure no-one was looking before throwing their cigarettebutts on the ground 47 , suggesting that they are aware that this is inappropriatebehaviour.The research also featured drivers behind general littering which include:• Laziness of litterers;• Infrequent emptying of bins; and• Lack of education.42 ENCAMS (Sept 2005) Cigarette related litter, Stage 2 Debrief43 ENCAMS (Sept 2005) Cigarette related litter, Stage 2 Debrief44 ENCAMS (2005) Cig ban tipped to spark litter crisis. http://www.encams.org/home/newsdetail.asp45 ENCAMS (Sept 2005) Cigarette related litter, Stage 2 Debrief46 ibid47 ibidSituation Report - Final 12

5.3.2 Smokers contextSome smokers, mostly older women, claim to never litter cigarette butts 48 . However formost smokers, the context / location they are in influences the way in which a cigarettebutt is disposed.• Draining it - If walking on the street, many smokers will aim their littered buttstoward the drain, as they feel that this is more responsible than dumping buttson the ground 49 .• In a vehicle - many people feel it is impossible to be ‘found out’ in this context 50 ,and are therefore more likely to litter. Furthermore, most smokers said that theythrew cigarette butts out of the window because it was safer and because ofthe offensive smell of a full ashtray in the confined space of a car 51 .• Dirt = dirt - If a place is seen as ‘respectable’ or tidy, then smokers are less likelyto litter there 52 .• Availability and suitability of infrastructure – smokers admitted that if an ashtraywas readily available they would use it, but they would not go far to seek oneout 53 . Research from Australia suggests that smokers will not walk to outdoorashtrays that are more than 12m away 54 . Furthermore, smokers preferreddedicated ashtrays with a good design that enabled smokers’ hands to remainclean 55 .• Bars/clubs – cigarette litter is accepted in this environment 56 .5.4 What is the impact of CRL?Cigarette related litter has environmental, economic and social impacts.5.4.1 Environmental impactsCigarette litter persists in the environment, harming animals, impacting water quality andposing a fire risk.5.4.1.1 Water qualityCigarette butts are easily carried into watercourses after being discharged throughstormwater systems, because they are small and lightweight.When in water, chemicals the cigarette butt was designed to trap can leach out 57 . Thetoxicity of cigarette butts on aquatic ecosystems has been tested in the US and Australia48 ENCAMS (Sept 2005) Cigarette related litter, Stage 2 Debrief49 ibid50 ENCAMS, (2001) Litter Segmentation Study Knowledge Bank51 ENCAMS (Sept 2005) Cigarette related litter, Stage 2 Debrief52 ENCAMS (2001), Litter Segmentation Study, Knowledge Bank53 ENCAMS (Sept 2005) Cigarette related litter, Stage 2 Debrief54 BIEC & Community Change Pty Ltd, (2001), Littering Behaviour Study III, Measuring environmentally desirablechange in Australia. BIEC, Sydney.55 ENCAMS (Sept 2005) Cigarette related litter, Stage 2 Debrief56 ibid57 Ager, O (Sept 2005) Marine and Coastal Litter The Marine Biological Association of the United KingdomSituation Report - Final 13

on planktonic animals. Planktonic animals are often used to measure acute toxicity, dueto their critical position in the ecosystem. They transfer energy and organic matter fromalgae to higher consumers.In the US, the impact of used cigarette butts in freshwater were tested on the Daphinamagna (water flea). The tests showed that chemicals in cigarette butts are toxic towater fleas at a level of 1 cigarette butt per 8L of water. Interestingly, the leachate fromthe remnant tobacco portion of the butt is deadlier in smaller portions (because itcontains more tobacco) than the leachate from the filter portion of the butt 58 .In Australia, the impact of used cigarette butts in freshwater were undertaken on a similarfreshwater crustacean, the Ceriodaphnia cf. dubia and the marine bacterium VibrioFischeri. The study found that chemicals leached from the cigarette butts after 1 hour ofcontact with freshwater, and this persisted for at least 7 days. It also found that 1cigarette butt per 40L of freshwater were toxic to both the crustacean and bacterium.Similarly to the US study, the remnant tobacco portion of the cigarette butt was moretoxic to the crustacean. However, both the tobacco portion and filter portion of thecigarette butt were just as toxic to the bacterium 59 .5.4.1.2 Harming animalsAnimals can be harmed by ingesting cigarettes butts through poisoning (nicotinetoxicosis) and choking.Low doses of ingested nicotine affects the central nervous system leading to excitement,tremours, auditory and visual disturbances, incoordination, weaknesses, twitching andpossible convulsions. Higher doses (eg the nicotine in 1-5 cigarettes) result in aprogression of the above signs, and can lead to respiratory arrest and death. Ingestionand the affects of nicotine toxicosis are more common in larger, younger animals such aspuppies, perhaps due to their more indiscriminate eating behaviour. There are fewexamples of smaller animals (such as birds) presenting with symptoms of nicotinetoxicosis. This may be because nicotine products are unpalatable, their stomach’s havea higher pH (and therefore nicotine is absorbed slower), and smaller animals tend tospontaneously vomit often soon after ingestion of nicotine 60 .There is evidence of ingestion (as opposed to nicotine toxicosis) particularly in marine life,who mistake small plastic pellets for authentic food. Plastic particles have been found inthe stomachs of 63 of the world’s 250 species of seabirds 61 , and cigarette butts havebeen found in the stomachs of sea turtles and other marine creatures 62 63 . Ingestion is aproblem because plastic pellets can clog the intestines of these animals resulting instarvation 64 .58 Register, K (2000) Cigarette Butts as Litter, Toxic as Well as Ugly Underwater Naturalist, Bulletin of the AmericanLittoral Society 25:259 Warne, MStJ, Patra R, Cole, B, and Lunau B. in prep. Toxicity of cigarette butts and their constituents to thefreshwater cladoceran Ceriodaphnia cf. dubia and the marine bacterium Vibrio fischeri.60 Nicole C. Hackendahl, and Colin W. Sereda, (March, 2004) The dangers of nicotine ingestion in dogsVeterinary Medicine, pp 218-22461 James, R.B, (April 1999) Solids In Storm Water Runoff, Water Resources Management62 Ager, O (Sept 2005) Marine and Coastal Litter The Marine Biological Association of the United Kingdom63 EcoRecycle Victoria (1998), Cigarette Butt Litter www.litter.vic.gov.au64 James, R.B, (April 1999) Solids In Storm Water Runoff, Water Resources ManagementSituation Report - Final 14

The negative impact of litter on animals is supported by an ENCAMS study where 95% ofvets reported that they had treated an animal with an injury or illness caused by litter 65 .5.4.1.3 Persisting in the environment (Biodegradability)Cigarette butts are not readily biodegradable as many smokers believe. Cigarette buttsare made of plastic, and research to date shows that biodegradability is hugely varied,which seems to be related to the environmental conditions to which they are exposed –i.e whether they are in terrestrial or aquatic environments, and their exposure to air.Estimates range from a minimum of 1-2 months to a maximum of 15 years.Research by different organizations shows that cigarette butts take the following lengthof time to biodegrade:• 1-2 months in aerobic (with air) conditions;• 6-9 months in anaerobic (without air) conditions 66 ;• 80% of a cigarette butt degrades in 12 months in a terrestrial environment 67 ;• 1 year in fresh water 68 69 ; and• 3 70 – 15 71 years in sea-water.Research continues into the area of biodegradable cigarette filters. One packagingcompany owns a patent to a process for making biodegradable filters made from foodgradestarch. The starch-derived butts supposedly decompose after 2 months.Apparently, further research and funding is required in order to fully commercialise thenew filters 72 .It should be considered that the promotion of biodegradable filters as a ‘solution’ to theproblem of cigarette littering sends a mixed message to smokers about takingresponsibility for litter.5.4.1.4 FiresCarelessly littered cigarette butts can contribute to fire. If a butt is dropped withoutbeing extinguished, it can smoulder for up to 3 hours 73 . There is no data available aboutoutdoor fires that may have been caused by carelessly dropped cigarette butts in a65 ENCAMS (2003) Veterinary Surgery Survey – a brief summary66 Victorian Litter Action Alliance, (2006) http://www.litter.vic.gov.au/www/html/571-environmentalimpacts.asp,Australia67 Co-operative Centre for Scientific Research Relative to Tobacco (August 2000)http://www.litter.vic.gov.au/www/html/571-environmental-impacts.asp, Australia68 Japan Tobacco Inc, (1996) Tobacco Science Research Laboratoryhttp://www.litter.vic.gov.au/www/html/571-environmental-impacts.asp, Australia69 Victorian Litter Action Alliance, (2006) http://www.litter.vic.gov.au/www/html/571-environmentalimpacts.asp,Australia70 ibid71 Marine Conservation Society (Aug 2004) Cigarette Litter on Beaches – Marine Conservation SocietyStatement http://www.adoptabeach.org.uk/72 Good News Filters Through on Stanelco http://www.stanelco.co.uk/press.html73 Clean Up Australia, (2006) Cigarette Butts and the Environment, www.cleanup.com.auSituation Report - Final 15

public place. The Fire Service does not record the source of outdoor fires because theyare mostly secondary fires, as opposed to primary fires 74 .In dwellings, cigarettes, cigars and pipes were the source of ignition for an average of4,200 fires per year in the UK between 1999 - 2003. The majority of these fires werecaused by the careless disposal of cigarettes 75 . Lit cigarette butts were a contributingfactor to two of Britain’s worst disasters: the Bradford City Football fire in which 40 peopledied in 1985, and the King’s Cross Underground station fire in 1987 when 31 peopledied 76 .While these are very serious impacts, the management of cigarette consumption wasteinside private dwellings and commercial buildings is outside of the scope of this project,which is focusing on outdoor litter in public places.5.4.2 Economic impactsCigarette related litter is costly to clean-up. Much of this cost is absorbed by LocalAuthorities in the form of dedicated cleaning staff (eg answering calls on a telephonehotline, street cleaners). Some indication of this cost is reflected in recent research,which shows that the clean-up of all types of litter (not just cigarette related litter) costsLocal Authorities an average of £124,155 (2004). It is estimated that the clean up costs oflitter incurred across all regions in England is over £340 million per year 77 .In Australia, most Local Councils spend less than AU$5,000 (approximately £2,080) onspecific cigarette littering initiatives per year 78 .Furthermore, cigarette butts can also contribute to blocking and flooding drainagesystems, which can be costly to repair.5.4.3 Social impactsHuman health and aesthetics can be affected by cigarette related litter.5.4.3.1 Ingestion of cigarette butts by childrenIf cigarette butts are ingested by children, vomiting, gagging and lethargy are likely tooccur as a result of nicotine present in tobacco. More severe symptoms (such as limbjerking and unresponsiveness) occur when larger amounts of nicotine are ingested (i.e byingesting either a whole cigarette or three cigarette butts) 79 . It should be noted,however, that in most cases, children are more likely to be exposed to these dangersthrough cigarette consumption waste left around the home of smokers (which is outsidethe scope of this project) rather than littered cigarette butts in outdoor settings 80 , so theseimpacts should be viewed in that context.74 Pers comm., 10 th February 2005, Lyndsey Avery, Office of the Deputy Prime Minister75 Office of the Deputy Prime Minister (March 2005) Fire Statistics United Kingdom, 2003, London76 ENCAMS, Cig Bans Tipped to Cause Litter Crisis (Nov 2005)77 ENCAMS, (2004) Local Environment Quality, A Local Authority Perspective78 Butt Littering Trust (2003) Local Government Butt Littering Survey, http://www.buttlitteringtrust.org/79 Smolinske SC, Spoerke DG, Spiller SK, Wruk KM, Kulig K, Rumack BH Cigarette and nicotine toxicity in childrenHum Toxicol. 1988 Jan;7(1):27-31 Rocky Mountain Poison and Drug Centre80 Novotny, T and Zhao, F (1999) Consumption and Tobacco Waste: another externality of tobacco use Tob.Control 8; 75-80Situation Report - Final 16

5.4.3.2 Social disamenitySmokers agree that littered cigarette butts do not look good 81 . Furthermore, as ENCAMShas documented, litter not only lowers the aesthetics of a locality. The prevalence oflitter, together with other environmental crimes, and the maintenance of streetinfrastructure, also contributes to our quality of life 82 . Essentially, ‘litter attracts litter’,which can attract other environmental crimes, sending out a message that people donot care for the environment and that it is acceptable to litter.5.5 Cigarette Litter MonitoringMeasuring the extent of cigarette litter in the environment is important in order tounderstand whether interventions have successfully reduced cigarette related litter.Several monitoring methodologies are described below.5.5.1 The Local Environment Quality Survey of England (LEQSE)Since 2001, the extent of cigarette related litter (i.e including cigarette butts, cigarettepackaging and ignition source – the majority of which is cigarette butts) has beenestimated in England through the annual ENCAMS Local Environment Quality Survey ofEngland (LEQSE).The LEQSE measures the presence or absence of litter in transects at over 12,000 sitesacross England. It also measures the impact of litter and other anti-social behaviouractivity that affects the physical local environment.The latest report showed that cigarette related litter is present on 79% of England’sstreets 83 . This has increased by 16% since measurement began in 2001/02 (Table 2).ENCAMS suspect that this increase is related to a noted rise in cigarette butts littered inthe transects monitored outside of industrial/warehouse/retail sheds. (Which canprobably be attributed to an increase in workplace smoking bans, forcing smokersoutside where there is insufficient butt disposal infrastructure).Table 2: Proportion of transects where cigarette related litter is presentYearCRLpresent(%)Increasesince 2001/02(%)2004/05 79 162003/04 79 162002/03 60 -32001/02 63 -81 ENCAMS (Sept 2005) Cigarette related litter, Stage 2 Debrief82 ENCAMS (2003-04) LEQSE83, ENCAMS (2005) LEQSE 2004-05Situation Report - Final 17

5.5.2 Litter CountDuring a litter count, the amount of litter is counted at a site (or in a set area within asite). Cigarette litter would be included as part of this survey.This requires several visits to the site. On the first visit, litter is counted, collected andcategorised. After a certain period of time (eg one month), the site is visited again andthe same process is repeated.This is a comprehensive and reliable way to measure litter levels. It is more resourceintensive, however, it provides information on the net amount of litter accumulatedwithin a given timeframe. It can also provide information on the effectiveness of litteringinterventions.5.5.3 Market researchMarket research can also take place on a broader level with a sample of the public. Thisenables an understanding of general knowledge, attitudes and behaviours of smokersday to day, and not in direct relation to a specific campaign.5.5.4 Attitude and Awareness SurveysSurveys measure the attitudes and knowledge of smokers related to a specificcampaign. Face to face surveys mostly occur at a local level eg, in response to a localanti-littering campaign. This provides an understanding of whether the campaign is likelyto have changed the littering behaviour of smokers. This can be flawed, as self reportingof behaviour change is often biased, with interviewees often telling the interviewer whatthey want to hear. Surveys of this nature often take place face to face, which can beresource intensive. This type of monitoring has been used extensively in Australian antilitteringprojects run through grants by the Butt Littering Trust and EcoRecycle Victoria. Itis also being used by ENCAMS for the cigarette litter campaign with local authorities.5.5.5 Cigarette Litter Action ScoreThe ‘Cigarette Litter Action Score’ (CLAS) is an observational method owned byAustralian consultants ‘Community Change’. It is derived from the ‘Clean CommunitiesAssessment Tool’, which measures the changes in the following four factors that influencedisposal actions- context, facilities, attitudes and actions. The CLAS is derived from theactions component of the CCAT, and specifically relates to cigarette butt disposals.The CLAS is the number of negative disposals (i.e - littering of cigarette butts) as aproportion of total cigarette disposals. The CLAS is used to track the specific impact ofanti-cigarette littering programs 84 .Since this method is owned by the consultants, it is not used by all stakeholders.5.5.6 Behavioural observationThe behavioural observation monitoring method is used to measure the litteringbehaviour of smokers before and after an anti-cigarette littering campaign. It has beenused widely on projects funded by the Butt Littering Trust. A large number of observationsneed to be made in order for the outcomes to be rigourous.84 Hobart City Council (2004), Cigarette Butt Reduction Project for Hobart’s CBD, www.buttlitteringtrust.orgSituation Report - Final 18

5.5.7 Comments about cigarette litter monitoring methodsTable 3 displays a matrix of the methodologies described above. It highlights that there isno single method that measures all aspects of the problem. There are several monitoringmethods available that measure the attitudes and behaviour of smokers. However, italso highlights that there is currently not an accessible, non-resource intensive,repeatable monitoring methodology that takes into account the amount of cigarettelitter, and links it to smokers littering behaviour. This is a key challenge that may beaddressed throughout this project.Table 3: Monitoring Methods MatrixMethod What does it measure? Timeframe ofmeasurement?Presenceanddistributionof litterQuantity oflitterAttitudes /Knowledgeof targetaudienceBehaviour oftarget audienceInresponseto acampaignQuarterly(reportedannually)ObservedSelf reportedLEQSE X XLitter Survey X XAttitudeSurveysMarketResearchX X XX X XCLAS X XBehaviouralobservationXXSituation Report - Final 19

6 Identified SolutionsThere are several solutions for the prevention of cigarette related litter. They are:1) positive behavioural education and awareness raising with smokers and otherstakeholders; and2) appropriate design and installation of ashtrays and other types of preventativeinfrastructure;3) anti-littering legislation and effective enforcement of littering fines.Improved packaging design may also be a factor that could be considered to ‘designout’some types of cigarette related litter.Once littered, the impacts of cigarette-related waste can be reduced by cleaning it up,which is usually undertaken by mechanical means.Finally, certain aspects of streetscape design can also be modified / reviewed todiscourage littering and make cleaning it up easier and more efficient.6.1 EducationEducation aims to raise awareness about the impact of butts and ultimately positivelychange the littering behavior of smokers.Education campaigns are implemented by local authorities (at a local level), orenvironmental charities such as ENCAMS, which ran a national anti-cigarette littercampaign in February 2006. Furthermore, infrastructure providers are playing anincreasing role in supporting local authorities to run education campaigns through theprovision of campaign materials.Most campaigns are based on the theory of social marketing, which draw oncommercial marketing techniques to change the attitudes, beliefs and behaviours ofindividuals for a social benefit. It attempts to identify and leverage the barriers andbenefits driving people’s behaviour. Social marketing is enhanced even further whenthe target audience is involved in driving the campaign, because ‘people are morelikely to change deeply entrenched behaviours and beliefs when they concludethemselves that change is necessary rather than change because someone exhortedthem to 85 .ENCAMS involved smokers in the development of their recent cigarette litteringcampaign by undertaking market research before the campaign. This research helpedENCAMS to establish that smokers’ behaviour was more likely to change if the followingfactors were included in the campaign:• Make the connection that cigarette butts are litter – consider linking thisinformation with the threat of a fine for littering;85 Tilbury, D., Coleman, V. and Garlick, D. (2005) 'A National Review of Environmental Education and itsContribution to Sustainability in Australia: School Education'. Canberra: Australian Government Department ofthe Environment and Heritage and the Australian Research Institute in Education for Sustainability (ARIES).Situation Report - Final 20

• Appeal to reason and consideration– consider providing a ‘call to action’; and• Provide relevant visual images – vivid images such as piles of cigarette butts orgroups of smokers outside offices 86 .6.1.1 Case studiesSeveral case studies of cigarette litter education campaigns implemented around the UKare described below. It is hoped that further case studies from local authorities inEngland will be supplemented to this document over time.ENCAMS Cigarette Litter Campaign: ENCAMS ran a successful cigarette-litteringcampaign in February 2006, in partnership with ten local authorities. The campaignresulted in a 35% decrease in cigarette related litter. The campaign was targeted at allsmokers and the slogan was ‘However you disguise it, it’s still litter. No butts – stub it, bin it’.The campaign was a multi-faceted approach including:• Poster advertising – Three images and a slogan were developed to let smokersknow that cigarettes are litter (‘however you disguise it its still litter’), provide acall to action (i.e ‘stub it – bin it’) and provide them with a solution (i.e a freeportable ashtray at ASDA).The images appeared on 417 billboards, 1492phoneboxes, 410 bus shelters, 95 bus rears and 16 train stations across 23 cities.Additionally, over 13,000 A3 posters were distributed to business and localauthorities.• Giveaways – ASDA distributed 250,000 free portable ashtrays at storesthroughout the UK, plus ENCAMS distributed 6,400 portable ashtrays to membersof the public. This provided a practical means by which to appropriatelydispose of cigarette butts.• Website promotion – due to promotion on the ENCAMS website, 380 dedicatedcigarette bins were purchased by local authorities and a total of 69,395portable ashtrays were sold during the campaign period. The cigarette littercampaign section of the ENCAMS website received 7,148 hits between Januaryand March 2006. This further extended awareness of the campaign and helpedto implement practical solutions to the problem.• Media – 2 weeks of media relations were conducted to create awarenessabout the campaign. Media coverage was extensive, with the campaignfeaturing in national newspapers such as Daily Express and Daily Star andwebsites such as BBC News Online and Manchester Online. TV and radiocoverage included BBC South East TV, Granada TV, BBC TV East Midlands andFive Live, BBC Radio Two drivetime and BBC Radio Foyle. Regionally, around 50regional newspapers and 30 radio stations covered the campaign.The ten local authorities (Barnsley, Blackpool, Bolton, Bristol, Cambridge, Charnwood,Enfield, Leeds, Sheffield and, Tonbridge and Malling) participated by displaying posters,installing wall mounted ashtrays, carrying out local PR, promoting portable ashtrays,increasing enforcement and monitoring cigarette litter.86 ENCAMS (Sept 2005) Cigarette related litter, Stage 2 DebriefSituation Report - Final 21

Attitude and awareness questionnaires were carried out in towns and cities acrossEngland. The results showed that 40% of the people questioned had seen the cigarettelitter posters and 52% stated the posters would be likely to change their behaviour in thefuture.Preston City Council: Preston City Council have run a number of integrated educationcampaigns from 2004 – 2006.A high profile ‘Butts Out’ cigarette litter campaign in 2004 and 2005, focusing on thedistribution of free Butts Out portable ashtrays at key litter hotspots such as bars, clubsand hospitals. This was supported by branded campaign materials such as beer matsand posters. 500 Business Packs were also developed as part of the campaign, andincluded a catalogue of permanent ashtrays, blank surveys, posters, and a letteroutlining the responsibilities of businesses in relation to cigarette litter. Furthermore, aCouncil representative met with each of the 500 businesses who received the Packs. Theadditional effort put into relationship building with businesses seems to have contributedto the success of the campaign, eg, Council now has the support of many businesseswhen enforcing Fixed Penalty Notices 87 . Preston has continued to follow-up thecampaign with one off giveaways and the distribution of campaign materials to pubsand clubs on an occasional basis.Another factor contributing to Preston’s success has been the implementation of alittering enforcement campaign, called ‘We Are Watching You’. Council staff drive abranded van through the city to ‘name and shame’ litterers. Volunteers witness incidentsof littering and radio a description back to the van. A Council staff member thenannounces the incident of littering over a loud speaker. Importantly, physicalcharacteristics of the people who littered are not described, only the incident itself (i.e,the litter type, location and whether the litterer was male or female). The van is put intooperation about once a month, acting as a constant reminder to the community not tolitter. Preston report that in all cases, the litterer has realized that they have done thewrong thing and they go back and correctly dispose of their litter. The Council hasreceived positive support for the campaign by the community.The combination of these efforts has resulted in a long-term decline in cigarette relatedlitter with up to an 88% reduction in cigarette litter at monitored areas.Greater London Authority: The Mayor of London launched a campaign to distribute15,000 portable ashtrays within 26 London boroughs in September 2004. The Mayor ofLondon also wrote to London companies signed up to the Mayor’s Green ProcurementCode asking them to ensure that they take steps to prevent their staff dropping smokinglitter outside their offices and elsewhere.A long-term training programme for London Borough Enforcement Officers was alsoimplemented, about how to effectively use available litter enforcement powers.Butts and Gum: Butts and Gum are suppliers of soft plastic, pocket-sized ashtrays. Theycan provide mascots, advertising material and online services 88 .87 Pers comm. (Feb 28 th 2006) Sonia Scowcroft, Preston City Council88 Butts and Gum, www.buttsandgum.comSituation Report - Final 22

ButtsOut: ButtsOut are suppliers of plastic portable ashtrays shaped like a bottom.ButtsOut also provide campaign packs to Councils for £275. They include portableashtrays for free distribution to smokers, a ButtsOut Project Manager to assist planning thecampaign, a Council manual, t-shirts, distribution bags, artwork, publicity through theButtsOut website, and guidelines for distributors 89 .Many local authorities in the UK (including Leeds, Liverpool, Birmingham, Preston,Rochdale, Gedling, Croydon, Dralington, Oldham, Rotherham, York, Slough, Guildford,Basingstoke, Bracknell Forest, North Cornwall, Islington, Woking, Swindon, and Braintree),have used the support of ‘ButtsOut’ to implement cigarette litter campaigns. ButtsOutcan also supply a human sized mascot to appear as part of the campaign and drawattention to the issue 90 .ButtsOut also supply workplace campaign packs, to mitigate litter outside of officebuildings. They include portable ashtrays, display boxes, presentation packs, leaflets, t-shirts and posters 91 .6.1.2 Comments about education campaignsThe education campaigns described above are compared across a range of factors inTable 4.Some general observations about education campaigns to date are:• Currently, education campaigns are targeted at consumers (i.e smokers).• Consumer focused education campaigns successfully reduce cigarette relatedlitter at a local level. However, this local level success is yet to transfer intobroad sweeping social change.• Most campaigns use social marketing techniques and focus on the impact ofbutts on the environment, and appropriate disposal options.• Most campaigns do not target smokers in a specific context, rather theyattempt to address all smokers as they go about their day to day lives. If aparticular context is targeted, it is most commonly outside office buildings.• Advertising and giveaways are the most common components of campaigns.• Face to face education with smokers does not tend to be a feature ofeducation campaigns.• Additional success factors include relationship building (eg with local businesses)and the enforcement of anti-littering legislation.Table 4: Education Methods Matrix89 ButtsOut, www.buttsout.net/UK90 ibid91 ibidSituation Report - Final 23

ProgrammeNameOrganisationAwarenessraisingContext Methods KeymessageRationaleOutcomeEnviro impactDisposaltiEnforcementCoastalPedestriansVehiclesOffice BuildingsAdvertisingFace to faceGiveawaysOtherButtsOut32 LocalAuthorities in theUKX X X X X X X Butt Outfor…No ButtsBin YourButtsAwarenessraising anddisposalsolutionVarybetweenCouncils.Smoking-RelatedLitterENCAMS X X X X X X Howeveryoudisguiseit, its stilllitter,no butts– stub itbin it.Awarenessraising anddisposalsolutions,withpartnerCouncilsandbusinesses35%reductionWe AreWatching YouPrestonCityCouncilX X X We AreWatching YouName andshameConsistentreduction inbuttsover 12monthsThe ButtsStopHereLondonCityCouncilX X X X The ButtsStopHereAwarenessraising anddisposalsolutionsTo bedetermined6.2 Cleaning and AshtraysCleaning cigarette litter can help to minimize the impacts associated with the problem.Providing appropriate ashtrays is a crucial component of managing cigarette litter.6.2.1 Cleaning cigarette litterCleaning cigarette litter is difficult, as butts are small and lightweight. They get trapped incracks easily making them time consuming to pick up. Furthermore, deposited ash andstubbed out cigarettes also stain on many surfaces.Current measures to clean-up cigarette litter are mostly mechanical, including suctionand sweeping. Manufactures of suction equipment include Karcher CleaningEquipment and Micro-Voire. Karcher Cleaning Equipment, is trailing their equipment onSituation Report - Final 24

uneven (eg cobbled) streets in Ireland in partnership with TASCQ 92 . The results of the pilotwill be monitored and included in this document in the future.Some aspects for consideration when purchasing suction equipment are the weight ofthe equipment, its size and the level of suction. Oversized equipment can be awkwardto negotiate in small areas, making the collection of cigarette butts in ‘nooks andcrannies’ difficult. If the equipment is heavier than the bearing load of the pavement,the substrate could be affected making the pavement vulnerable to cracking. Not onlydoes this provide more cracks for cigarette litter to accumulate, it also means that thesubstrate can be inhaled by the equipment, compromising the quality of the surface.Finally, the suction level of the equipment should not be set too high, as further substratecan be removed by excess suction, further contributing to the problems describedabove 93 .In order to avoid some of these issues, aspects of streetscape design could beconsidered (especially in areas that attract cigarette litter) to discourage cigarette litterand assist with its clean-up. Considerations include:• Surfaces- Absorbancy should be minimised, and surfaces should be sensiblycoloured. Further, surfaces that resist cracking should also be considered.• Joints - Joints should be butted up in order to minimize gaps. Bagged / brushed jointsare preferable as they create a smooth finish 94 .6.2.2 AshtraysAshtrays can be either permanent (i.e wall/post mounted or free standing) or portable,and should be purchased / installed in response to a particular context - EG wallmounted ashtrays may be suitable for building entrances, while freestanding ashtraysmay be more suitable for street installation.6.2.2.1 Portable ashtraysPortable ashtrays are small enough to be carried around by smokers, and are designedto store cigarette butts until they can be disposed appropriately in a garbage bin. Thebenefit of the portable ashtray is that it provides an immediate disposal option for a litcigarette butt in any context. A range of portable ashtrays are on the market, as listed inTable 5.In market research undertaken by ENCAMS, most smokers initial reaction to the portableashtray was to dismiss the idea of using one, because they perceived that it would smell,they would be bulky to carry around and would be a potential fire hazard 95 . However,after a sample of these smokers were asked to road test the ashtrays, the majority ofsmokers (80%) continued to use them in certain circumstances after one week. The mostlikely usage scenarios were at transport hubs (eg train station platform, bus stops) orwhen smokers were on their own. They were least likely to use them in the car, in apub/club or at home.92 Pers comm. (27 Feb 2006) Micheal O John Mahony, An Taisce93 Pers comm. (May 2006) Brian Johnson, ENCAMS94 Pers comm. (May 2006) Brian Johnson, ENCAMS95 ENCAMS (Sept 2005) Cigarette related litter, Stage 2 DebriefSituation Report - Final 25

The research also showed that males and females tended to have different needs /preferences for portable ashtrays. Women were more likely to use the portable ashtraysthan men. Men were more self conscious about using portable ashtrays. They also foundit more difficult to stub out cigarettes in certain types of ashtrays. Men were concernedabout the portability of certain ashtrays, preferring a flat soft shape. Overall, men wereless concerned about the smell of portable ashtrays.In terms of cost, the majority of smokers indicated that they would pay less than £2.00 perunit for an ashtray. 28% would only use a portable ashtray if they were free 96 .Generally, most smokers were concerned about the appearance of the ashtrays(especially if they were to use it in front of their peers), the ease of use and cleanliness ofthe ashtrays. These aspects could be addressed in the future if portable ashtrays are afeature of education campaigns.Table 5: Portable Ashtray SuppliersManufacturerProduct Name Shape Material WebsiteButts andGumButt Pouch Flat square Heat resistant,flexible plasticwww.buttsandgum.comStubbi &Co LtdStubbi Anti-LitterPouchFlat squareHeat resistant,flexible plasticwww.stubbi.netPocketashtrayPocket ashtray Flat square Heat resistant,flexible plasticwww.pocketashtray.co.ukButtsOutBUTTsOUTAshtrayRectangular,the end isshaped like abottomHeat resistant,rigid plasticwww.buttsout.co.ukCleanerCitiesMini-bin keyring Cylindrical Metal www.cleanercities.co.uk6.2.2.2 Permanent ashtraysPermanent ashtrays are those that are accessible for the disposal of cigarette butts inoutdoor, public areas. They include wall mounted ashtrays, freestanding ashtrays or postmounted ashtrays (i.e that would attach to either a garbage bin or a post).Metal stubber plates can also be classified under this category. They are designed to befixed to a general litter bin. Stubber plates enable smokers to extinguish their cigarettebutts and then dispose them safely in a general litter bin.Permanent ashtrays are useful at transition points (eg entrances to buildings) where ageneral litter bin is unsuitable. Issues for consideration with permanent ashtrays are:96 ENCAMS (Sept 2005) Cigarette related litter, Stage 2 DebriefSituation Report - Final 26

a. Design – including volume, allowance for stubbing, allowance for binning,possibility of cross contamination with other types of litter.b. Maintenance – responsibility should be allocated for emptying outcigarette ends as well as keeping the external bin clean.c. Context – the aesthetics and overall look of the area need to beconsidered when choosing the ashtray.d. Signage - the type of sign / instructions for use, its visibility and messageshould be considered.ENCAMS research 97 shows that the overall preference for permanent ashtrays was fordedicated, freestanding ashtrays, with the following features:• Large enough to hold a high volume of cigarette butts;• Easy and clean to use with large holes; and• Displayed clear signage.Additional information that may be valuable, would be to understand the suitability ofashtrays in certain contexts, as we know that the littering behaviour of smokers changesaccording to their surroundings.A listing of suppliers is in Table 6. Few suppliers provide ‘No Littering’ signs – they are morelikely to provide ‘No Smoking’ signs. Furthermore, few suppliers offer an ashtray emptying/ maintenance service.Table 6: Permanent Ashtray SuppliersManufacturerType of ashtrays Other WebsiteWallmountedFreestandingWindproofStubberplatesServicingNo smokingsignageNo litteringsignageSmokingsheltersWybone X X www.wybone.infoThe No ButtsBinCompanyCigaretteBins UKX X X X X www.nobuttsbin.co.ukX X X X X www.ciggybins.co.ukUnicorn X X X www.unicorn-97 ENCAMS (Sept 2005) Cigarette related litter, Stage 2 DebriefSituation Report - Final 27

ManufacturerType of ashtrays Other WebsiteContainersWallmountedFreestandingWindproofStubberplatesServicingNo smokingsignageNo litteringsignageSmokingshelterscontainers.comGlasdon UKLimitedEnviroPolesfromOxygenMultimediaUrbanRevolutionGumcatchersX X X X www.glasdon.comX X www.consideratesmoking.comX X www.urbanrevolution.bizX X www.gumcatchers.com6.2.3 Comments about cleaning and ashtraysThe fundamentals of streetscape design need to be considered along with cleaningmethods in order to discourage littering and ensure that cleaning up cigarette litter ismore efficient.A range of permanent ashtrays are available different types of which are suitable for arange of contexts. The cleanliness, ease of use and appearance of portable ashtraysneed to be considered when convincing smokers to use these as an immediate disposalsolution.Situation Report - Final 28

6.3 LegislationLegislation that influences the incidence of cigarette related litter is described below.6.3.1 Litter LegislationIt is an offence to litter cigarette butts in England, and authorized officers have the powerto fine offenders. This is outlined in several pieces of legislation which are describedbelow.6.3.1.1 Clean Neighbourhoods and Environment Act, 2005This Clean Neighbourhoods and Environment Act (CNEA) intends to improve the power,duties and guidance to deal with a range of local environment quality issues, including‘Litter and Refuse’ in Part 3. Further, the CNEA amends certain sections of theEnvironment Protection Act. These amendments raise the profile of cigarette litter, andgive local authorities greater power to mitigate cigarette litter. Key features of the CNEAthat are relevant to cigarette litter are:• the offence of dropping litter has been extended to “all open places”;• cigarette litter (i.e, ‘the discarded ends of cigarettes, cigars and like products’)is specified as litter through the extended litter definition in Section 27;• fixed penalty notices can be issued to litterers of the amount set by the principallitter authority.Another feature of the CNEA is that local authorities can serve a ‘Litter Clearing Notice’to certain building occupiers (or owners). The Litter Clearing Notice requires the occupierto whom it is served to clear the land of litter and / or to take reasonable steps to preventit from being defaced (eg which in some cases, could include the installation of anoutdoor ashtray).6.3.1.2 Environmental Protection Act 1990The Environment Protection Act sets out the power and duties relating to litter in Part IV.It imposes a duty on local authorities (and certain other landowners and occupiers) tokeep specified land and public highways clear of litter and refuse.Much of the EPA that was relevant to cigarette litter has now been amended in theCNEA.6.3.1.3 Local Government Act 2003The Local Government Act is relevant to the issue of cigarette litter because section119(2) allows the local authority to retain the receipts issued for fixed penalty notices.6.3.2 Enforcement of litter legislationThe enforcement of litter legislation is increasing in England – approximately 19,140 finesfor litter offences were issued by Local Authorities in 2004-2005 (of which 56% were paidSituation Report - Final 29

to the Local Authority) 98 . Before January 2004, litter prosecutions in the UK had fallenfrom 2,400 in 1990, to less than 500 a year.ENCAMS advice to Local Authorities about enforcement is to pursue a fixed penaltynotice (FPN) only if there is enough evidence to pursue defaulters in court. To ensure thata FPN ‘sticks’, the following points need to be proven in court: a clear description of theoffender (if possible check ID); an unobstructed view of the offence; evidence of whatwas deposited; detailed description of how it was deposited; and the ability to verifynon-payment if applicable 99 .6.3.3 Smoking Ban LegislationIndoor smoking bans are relevant because of their potential impact on cigarette litter,with smokers being forced outside to smoke.6.3.3.1 Health Bill (UK)On February 15 th 2006, the House of Commons voted to make all enclosed public spacessmoke free in England and Wales, under Chapter 1, Part 1 of the Health Bill (Bill). Privatehomes, residential care homes, hospitals, prisons and hotel bedrooms, are exempt. TheBill brings in fines for £2,500 for not stopping people smoking in enclosed spaces.The Bill will probably come into effect on May 31 st 2007 100 . This is of relevance to the litterissue, as smokers will be forced outside to smoke where they are more likely toinappropriately dispose of cigarette butts. ENCAMS responded to the Health Bill in theconsultation round, requesting that the bill be amended to force those premises wheresmoking is exempt, to provide suitable outdoor disposal infrastructure and suitablemaintenance of the infrastructure.This follows the trend of other UK nations, who are also phasing in smoking bans, asdescribed in Table 7.Table 7: Introduction of smoking bans across the UKNation Status of smoke free areas TimingNorthern Ireland Full Ban From April 2007Scotland Full ban From March 2006Wales Full ban (likely) Timing dependent on England6.3.3.2 International Smoking Ban LegislationSmoking bans have been also been implemented internationally. Many bans are at alocal or regional level, rather than a national level. Bans are in place in Ireland, Australia(phased in on a state by state basis between 2006-2008), parts of the USA (includingCalifornia and New York), parts of Canada (including Montreal, Ontario and Quebec),South Africa, Tanzania, Kenya and Norway.98 Defra (2006) http://www.defra.gov.uk/environment/localenv/legislation/fpn/fpn-apr04mar05.xls99 ENCAMS (2005) ENCAMS Smoking Getting Enforcement Right100 Pers comm. (12 May 2006) Ian Willmore, ASHSituation Report - Final 30

6.4 International Management ModelsSeveral initiatives have been undertaken to manage cigarette litter internationally.6.4.1 AustraliaIn Australia, cigarette littering is addressed at both a state and national level. At astate level, the littering behaviour of smokers is targeted through awareness raisingand behavioural change campaigns. They include:• The NSW government runs the mass media litter campaign ‘Don’t Be a Tosser’,as part of the broader ‘It’s a Living Thing’ programme.• The Victorian government (i.e, Sustainability Victoria) provides grants to localauthorities and provides capacity building and toolkits to local authoritiesthrough the Victorian Litter Action Alliance.• In South Australia, the non government organization ‘Keep South AustraliaBeautiful’ runs the Please Butt It Then Bin It’ campaign, providing localorganizations with promotional items, key messages, ashtrays and mediaassistance, for a fee.These initiatives have proven effective at galvanizing action within these States,however, the only national approach to cigarette litter is through the Butt LitteringTrust.6.4.1.1 The Butt Littering TrustThe Butt Littering Trust (Trust) is a producer responsibility organization, initiated byBritish American Tobacco Australia (BAT Australia). The mission of the Trust is toreduce cigarette butt littering by initiating and supporting actions encouragingpositive community behavioural change.The Trust was born out of BAT Australia’s recognition for a need to proactivelymanage butt litter, due to growing expectations from the government andcommunity. The structure and scope of the Trust was developed in consultation witha wide range of stakeholders. The Trust was initiated in 2003 as a two year trial, andwas provided with AU$1.4 million in funding solely from BAT Australia. This fundingwas renewed in 2005 for a further 2 years, enabling the Trust to build on its initialachievements and continue its butt litter reduction strategy. The Trust is managed bya board of Trustees (including a Chairman) and Executive Officer, whose roles andresponsibilities are outlined in the Trust Deed.The Trust aims to be independent and transparent. This is achieved through theappointment of the Board of Trustees, and public reporting via an Annual Reportand the availability of the minutes of the Board meetings, on the Trust website.The key activity of the Trust is to primarily allocate funds to local authorities, Stategovernment organizations and NGOs, for the implementation of anti-butt litteringbehavioural change campaigns. The Trust also implements the Butt Free Citycampaign with Australian capital cities. This is a national week of action to addressbutt litter across Australia, and as such, is intended to galvanize stakeholder andmedia attention to the issue.Situation Report - Final 31

The Trust also undertakes research into the state of butt litter in Australia includingsurveys with local authorities and smokers 101 .The key learnings about Trust activities are:• Cigarette butt litter is a shared issue, and requires tobacco industry stewardship,effective bin management from local authorities and land managers, andbehavioural change from smokers.• Research and information should be easily accessible to stakeholders.• Creating partnerships is crucial, in order to have a ‘multiplier effect’ and createbroad reaching social change.• Campaigns are most effective when a range of methods are combinedincluding face to face education, promotion, advertising, enforcement and theprovision of ashtrays.6.4.2 United States of AmericaKeep America Beautiful (KAB) leads the cigarette related litter issue in the USA, withfunding from the tobacco manufacturer Philip Morris. KAB’s approach is based aroundthe Cigarette Litter Prevention Guide, which includes a range of tools and resources forthe implementation of a local anti-cigarette litter campaign. The Guide acts as acapacity building tool for project managers, and was developed after three years offield testing across dozens of communities. The Guide is divided into three sections,including:• Information – including the impacts on quality of life, environment and localeconomy.• Solutions – outlines four strategies for reducing cigarette litter, includingeducation, enforcement, portable ashtrays and permanent ashtrays.• Designing a campaign – including measures for a cigarette litter assessment,funding blueprints, photos, brochures and a campaign checklist.In pilot testing by KAB America, these strategies reduced cigarette litter by an averageof 46% 102 .101 Butt Littering Trust, www.buttlitteringtrust.org102 Keep America Beautiful Inc, (2005) Guide to Cigarette Litter PreventionSituation Report - Final 32

7 Conclusion and RecommendationsCigarette related litter is an important environmental issue, as demonstrated by its topposition as the most common litter item. However, it is currently managed in a disparatenature across England, with little co-ordination between stakeholders.Prevention of cigarette litter can be achieved by changing the littering behaviour ofsmokers through education, improved ashtrays and infrastructure, improved streetscapedesign, and enforcement of legislation. The challenge is getting the balance ‘right’between these elements.While many solutions to cigarette litter are in place to some extent, some preliminaryrecommendations to enhance these solutions are described below. This provides initialguidance for the proposed Cigarette Litter Action Group, and will form the basis of theirdiscussion and future actions.7.1 Research and monitoringResearch about the impacts of cigarette litter is based on few scientific reports. The bestindication of cigarette litter in the environment is measured through the LEQSE. Therecommendations about research / monitoring are:• Observations about smokers littering behaviour has not been undertaken in theEnglish context. This could be considered.• An accessible, repeatable monitoring methodology could be developed to measurethe quantity of cigarette butts in the environment, and therefore better understandthe impact of interventions.7.2 Education and CommunicationEducation campaigns currently target smokers, encouraging them to change theirlittering behaviour through a call to action, the supply of ashtrays and advertising. Therecommendations about education / communication are:• The successful ENCAMS cigarette-related litter campaign could be repeated in thefuture, to build on the momentum it has generated. The learnings from the 2006campaign should be built into the 2007 campaign. Future smoker related educationcampaigns could be targeted toward smokers in specific cigarette litter hotspotscontexts (eg smokers outside office buildings, smokers in pubs, smokers in vehicles).• Specific education / communication programmes could be conducted withstakeholders other than smokers to generate broader community awareness of theissue. This could include:oooretailers (eg tobacconists, supermarkets), including the distribution ofpractical solutions such as portable ashtrays.pubs/hotels, with an emphasis on preparedness for the litter implicationsfollowing the smoking bans in 2007.magistrates, police and other officials who are involved with high endenforcement of litter legislation, including the importance of the issue andthe need to increase enforcement to discourage littering.Situation Report - Final 33

ooffice managers / property managers, including information about theinstallation of permanent ashtrays at the entrance of office buildings.7.3 Ashtrays / InfrastructureA range of permanent and portable ashtrays are available for cigarette litter capture.The recommendations about ashtrays / infrastructure are:• ENCAMS existing list of ashtray suppliers could be further expanded and developedto include a description of the characteristics and price of ashtrays.• Best practice guidelines about the types of ashtrays available, their installation andmaintenance could be developed to accompany the information gathered byENCAMS. This could include guidance about the type of ashtrays that are suitable indifferent contexts.• A recognizable, repeatable, consistent disposal symbol for display on ashtrays thatrepresents positive disposal behaviour of cigarette butts could be developed andmade freely available.7.4 Enforcement of legislationEnforcement of littering legislation is low but is increasing. The recommendation in thisarea is:• Ways to increase enforcement levels could be investigated, such as further trainingprogrammes for enforcement officers and street wardens.7.5 CleaningCleaning up cigarette related litter is difficult due to its physical properties. Therecommendations about cleaning are:• Efficient, cost effective cleaning equipment that targets cigarette butts wouldcomplement preventative measures, especially at the start of an educationcampaign.• The fundamentals of streetscape design could be considered, especially in thoseareas where cigarette litter accumulates.Finally, the reduction in cigarette litter is likely to be more significant in England if theidentified solutions are implemented in a targeted, coordinated fashion, with strongpartnerships between government, industry and NGOs.Situation Report - Final 34

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