Packaging
Packaging waste is growing in the EU. New EU legislation will tackle this problem, harmonising rules across member states and boosting the circular economy.
Packaging on the rise
EU legislation on packaging has been in place since the 1990s. However, despite measures and efforts to reduce packaging, the amount of packaging waste in the EU is growing, particularly because of the increase in online purchases and home deliveries in recent years, as well as in on-the-go consumption.
The latest figures released by Eurostat show that on average each European generated over 188 kg of packaging waste in 2021. From parcels for online purchases, film wrapping or foil to coffee-to-go cups and beverage capsules, and much more, every single European throws away – often immediately after purchase – half a kilo of packaging every single day.
In 2021, EU countries generated 84 million tonnes of packaging waste, 24% more than in 2010.
If no action is taken, packaging waste could increase by another 19% by 2030. In recent years, packaging has grown faster than the EU’s economy and population.
A widening gap between waste and recycling rates
While recycling rates in the EU have increased by 23% compared with 2010, this was not enough to keep up with the increase in the total amount of packaging waste generated. Data shows a gap between the growth of packaging waste and that of recycling.
Line chart showing the increase in packaging waste and recycling between 2010 and 2021 in kilograms per capita. Until 2017, the increase in recycled packaging volumes is almost as high as the increase in packaging waste. Since then, the lines have diverged because the volumes recycled have not increased as much as the volumes of packaging waste.
A recent report issued by the European Commission revealed that many member states are struggling to meet the EU’s recycling targets. One of the causes is unrecyclable packaging. Packaging is unrecyclable when it cannot be collected separately or sorted properly, or when recycling infrastructure and processes are lacking or inefficient.
Paper and cardboard are first among packaging waste materials
The most common material of packaging waste is paper and cardboard, contributing with 34 million tonnes to the total packaging waste generated in 2021.
Pie chart showing the share of material in packaging waste in 2021:
- paper and cardboard: 40%
- plastic: 19%
- glass: 19%
- wood: 17%
- metal: 5%
Environmental impact of packaging
Packaging makes it easier to transport and protect goods. Yet, both the production of packaging and its waste have a big impact on the environment.
Natural resource use
50% of paper used in the EU is destined for packaging.
Pollution
About half of marine litter consists of packaging; packaging also pollutes soil and land.
Climate change
CO2 emissions from packaging equal the emissions of a small to medium EU country.
New EU rules on packaging and packaging waste
In November 2022, the European Commission proposed revised EU legislation on packaging and packaging waste. The new rules were adopted in December 2024.
The aim is to:
- reduce the generation of packaging waste
- promote a circular economy for packaging in a cost-efficient way
- harmonise packaging rules across the EU
The rules will contribute to the goals of the European Green Deal and its circular economy action plan, and replace the 1994 packaging and packaging waste directive by transforming it into a regulation. That means that these rules will become directly applicable in all member states without the need to transpose them into national law.
The regulation will create new jobs and business opportunities. The packaging sector, including both production and waste management operations, currently generates a total turnover of €370 billion in the EU. With the new rules, the packaging sector will play a greater role in transforming the EU into a cleaner, more sustainable and more circular economy, in line with the European Green Deal.
Prevent, reuse, recycle
The foremost goal of the EU is to prevent packaging in the first place. Where packaging cannot be avoided, it should be reused, recycled or its energy should be recovered. The proposal integrates fully this principle.
The EU's waste priority order
The rules will cover all packaging, regardless of the material used, and all packaging waste, regardless of its origin (including industry, manufacturing, retail and households).
Cutting down on packaging waste
The new rules include targets for reducing packaging waste, compared to 2018 quantities, of:
- 5% by 2030
- 10% by 2035
- 15% by 2040
The targets will apply per capita per member state.
To reach these targets, the new rules will:
- restrict certain kinds of single-use packaging
- minimise packaging material
- increase the reuse of packaging
Single-use packaging
Certain kinds of single-use plastic packaging will be restricted, such as for items directly consumed inside restaurants and cafés, sachets for condiments, disposable cups and plates, single-use miniature packaging for hotel toiletries and single-use plastic packaging for fresh fruit and vegetables. Very lightweight plastic bags, such as those provided at markets, will also be restricted under the new rules, unless they are required for hygiene reasons.
Minimised packaging material
Companies will have to minimise the amount of material necessary for packaging, for example avoiding double walls and false bottoms, and disproportionately large packages to transport small items. The goal is to avoid unnecessary packaging and the waste of resources.
Reuse, refill and return
Consumers should be able to reuse, refill and return packaging. The regulation sets targets for various sectors and packaging formats to increase the possibility of reuse and refilling, whereby end consumers fill their own containers, including for takeaway items.
Promoting the circular economy
The proposal aims to make all packaging on the EU market recyclable in an economically viable way by 2030.
Recycling targets
The recycling targets for 2025 and 2030, set out in the previous EU directive for all main packaging materials, will remain. Member states will be able to postpone reaching the targets by up to five years.
| Type of packaging | by 2025 | by 2030 |
| All packaging | 65% | 70% |
| Paper and cardboard | 75% | 85% |
| Glass | 70% | 75% |
| Plastic | 50% | 55% |
| Wood | 25% | 30% |
To reach these targets, the new rules will:
- ensure all packaging is recyclable
- increase the use of recycled plastic
- implement clearer labels
- ensure the collection of some single-use containers
Recycled plastic
From 1 January 2030, plastic packaging should contain a certain minimum amount of recycled plastic, so as to increase the use of recycled plastics.
Labels for sorting
New labelling rules will make it easier for consumers to know how to sort packaging waste of different types, to identify compostable waste, and see the amount of recycled content in packaging waste. This will support the recycling and recovery of materials and boost the circular economy, and as a consequence reduce pressure on the use of primary raw materials.
Collecting single-use containers
The new rules require member states to set up deposit and return systems for certain single-use containers. By 2029 member states will ensure the separate collection of at least 90% of single-use plastic bottles and metal beverage containers annually.
Other provisions
The new rules will also address the safety of packaging materials, with the goal of phasing out the most harmful substances used.
They also contain provisions on extended producer responsibility and green public procurement.
What will change for consumers?
With the adoption of the regulation, changes in packaging design and waste management will be visible to consumers. How?
Here are some examples:
Products will carry labels that clearly identify which bin they should go in.
The label will list the materials used in the packaging.
Hotels will use refillable containers for toiletries.
Consumers will be able to receive reusable containers when buying takeaways, at no higher costs.
Packaging will be minimised to avoid the unnecessary waste of resources.
Deposit and return systems will be set up for some single-use containers.
Last review: 16 December 2024