Report from the Commission to the Council and the European Parliament - Interim Report according to Article 6.3 (a) of Directive 94/62/EC on packaging and packaging waste
Date: 1999-11-19
Institutions: European Commission
Subjects: packaging, report, waste disposal, waste management, waste recycling

COMMISSION OF THE EUROPEAN COMMUNITIES

Brussels, 19.11.1999
COM(1999) 596 final

REPORT FROM THE COMMISSION
TO THE COUNCIL AND THE EUROPEAN PARLIAMENT

Interim Report according to
Article 6.3 (a) of Directive 94/62/EC
on packaging and packaging waste

I.

II.

III.

TABLE OF CONTENTS

Introduction......................................................................................... 3

Quantified targets set out in the Member States for recycling and
recovery ............................................................................................ 6

Targets achieved by Member States for recovery, recycling and
reuse................................................................................................... 12

IV.

Evaluation of the available figures ...................................................... 19

2

I.

INTRODUCTION

The legal context

Article 6.3(a) of Directive 94/62/EC1 on packaging and packaging waste indicates that the
European Parliament and the Council shall, on the basis of an interim report by the
Commission, and four years from the date referred to in paragraph 1 (a) on the basis of a
final report, examine the practical experience gained in the Member States in the pursuance
of the targets laid down in paragraphs 1(a) and 1(b) and 2 and the findings of scientific
research and evaluation techniques such as eco-balances.

Article 6.1(a) sets out a recovery target of 50-65% to be achieved by 30 June 2001. Recovery
includes both material recycling (including composting) and incineration with energy
recovery. Article 6.1(b) sets out a specific target of 25-45% for material recycling with a
minimum of 15% per packaging material, to be achieved by the same date.

Article 6.2 refers to the encouragement of the use of materials obtained from recycled
packaging waste for the manufacturing of packaging and other products.

Article 6, paragraph 5, of Directive 94/62/EC establishes that Greece, Ireland and Portugal
may, in view of their specific situation, i.e. the large number of small islands, the presence of
rural and mountain areas and the current low level of packaging consumption respectively,
decide to:

attain by 30 June 2001 lower targets than those fixed in Article 6(1) but shall at least
attain 25% recovery;

attain the targets fixed in Article 6(1), but with a supplementary delay of maximum four
years (that means, until 31 December 2005).

The exceptions for Greece, Ireland and Portugal are limited to the targets fixed in paragraphs
(a) and (b) of article 6(1).

The review by the European Parliament and the Council, referred to in Article 6, paragraph
3a, shall be made on the basis of:

an interim report by the Commission and,

by 30 June 2005, a final report.

There is no specific date set for the Commission for producing the interim report.

Member States which have, or will, set programmes going beyond the targets of Article 6.1
(a) and (b) and which provide to this effect appropriate capacities for recycling and recovery,
are permitted to pursue those targets in the interest of a high level of environmental
protection, on condition that these measures avoid distortions of the internal market and do
not hinder compliance by other Member states with the Directive, according to Article 6.6.
Austria, Belgium and the Netherlands have applied this measure and so far the Commission
has confirmed the measures notified by Austria2 and Belgium3.

1

2

OJ L 365, 31.12.1994, p.10
OJ L 14, 19.01.1999, p.24

3

-
-
-
-
Article 12 of the Directive 94/62/EC requires the establishment of databases on packaging
and packaging waste following the formats set by Commission Decision 97/138/EC4 of 3
February 1997 establishing the formats relating to the database system pursuant to European
Parliament and Council Directive 94/62/EC on packaging and packaging waste, in order to
monitor the implementation of the objectives set out in the Directive. The first set of data
covering the calendar year 1997 was to be provided to the Commission before 30 June 1999.
It has to include data concerning the quantity of packaging material placed on the market, re-
used (data provided on a voluntary basis), recycled, recovered and disposed of (on a voluntary
basis as well). Furthermore, these data are also intended, according to Article 7 of the
Commission Decision 97/138/EC, to serve for information purposes and as a basis for future
decision-taking.

Article 17 of Directive 94/62/EC establishes a reporting obligation of the measures of
implementation of this Directive. In conformity with Council Directive 91/692/EEC5 on
standardising and rationalising reports on the implementation of certain Directives relating to
the environment, a questionnaire to be used as a basis for this reporting exercise was adopted
on 27 May 1997 (Commission Decision 97/622/EC6 concerning questionnaires for Member
States reports on the implementation of certain Directives in the waste sector (implementation
of Council directive 91/692/EEC)).

According to this questionnaire, Member States shall inform the Commission about the
application of the articles 4 (prevention), 6 (recovery and recycling), 7 (return, collection and
recovery systems), 9 (essential requirements), 11 (heavy metals), 12 (information systems),
13 (information for users of packaging), 14 (management plans), 15 (economic instruments)
and 16 (notification).

Although the legal obligation to report covers the period 1998-2000, the Commission has
invited Member States to provide, where possible, information of the implementation of the
Directive at an earlier stage. Reports were submitted by Denmark and the Flanders Region of
Belgium which were also used in preparing this interim report.

Scope of the interim report, data sources and structure

The scope of this interim report relates to the need to provide the Council and European
Parliament the appropriate information in order for them to examine the practical experience
gained in the Member States and the findings of scientific research and evaluation techniques
such as eco-balances. As there is no relevant information currently available on these last
topics,
this interim report focuses primarily on the “practical experience gained in the
pursuance of the targets”.

Overall, this is a broad issue, since one may include in it both the quantitative targets set by
Member States and the organisational, legislative and administrative infrastructure set up in
order to pursue those targets.

Detailed data on the practical experience gained,
in relation to the
“infrastructure” set up in pursuing the targets, are not yet available in a complete way for all
Member States. It should be taken into account that there has been a general delay in

in particular

3

4

5

6

OJ L 257, 2.10.1999, p.20
OJ L 52, 22.2.1997, p. 22
OJ L 377, 31.12.1991, p. 48
OJ L 256, 19.9.1997, p. 13

4

transposing the Directive into national legislation, therefore it is not always possible to draw
some conclusions about the experience gained. The delay in transposing the Directive relates
mostly to the complexity of the issues to be regulated, in particular to the various conflicting
interests of the concerned stakeholders, which made it often difficult for national legislators to
adopt the transposing measures within the timing foreseen by the Directive itself.

Data concerning the targets set out by Member States and also data on the recycling and
recovery rates achieved so far are available. Therefore this interim report focuses primarily on
this available information related to Articles 6(1)(a) and 6(1)(b) of Directive 94/62/EC.
However, additional useful information is provided, for instance as regards the reuse of
packaging as well as regards the applications made so far of Article 6(6) concerning the
possibility to exceed the targets set out in Articles 6(1)(a) and 6(1)(b).

In compiling the available data, the Commission has relied both on data which has been
officially communicated by some Member States and on other sources such as data published
by economic operators, studies carried out by or for industrial associations and data presented
at conferences on Directive 94/62/EC. The Commission has made use, in particular, of the
data presented in the studies “Eco-balances for policy-making in the domain of packaging and
packaging waste” (RDC and Coopers and Lybrand, May 1997) and “Management systems for
packaging waste" (Pricewaterhouse Coopers, 1998, carried out for ERRA).

The figures presented in this report are the most recent which the Commission has been able
to obtain. Some statistics on recycling may suffer from the fact
that figures in certain
countries are calculated by referring to “reuse and recycling” as a unique concept. However,
the overall picture resulting from the available data is thought to be a fair description of
reality.It gives already some clear indication, in particular about the feasibility of the targets
set out for the first five-year phase (1996-2001). This information is also deemed to be useful
in light of the obligation, set out by article 6(1) (c), to substantially increase such targets.

It is relevant to note that some figures contained in this report are partially based on working
documents on which the Member States, via the Committee established by Article 21 of
Directive 94/62/EC, were consulted and were given the opportunity to comment on, in order
to correct mistakes and fill possible omissions. As the Member States concerned have not
reacted, the Commission considers the figures presented in this report to be realistic and
appropriate for this interim report.

Concerning the final report referred to in Article 6.3(a) of Directive 94/62/EC to be prepared
by 2005, it is important to note that only official data in conformity with the approved
reporting requirements will be taken into account at that time.

5

II.

QUANTIFIED TARGETS SET OUT IN THE MEMBER STATES FOR
RECYCLING AND RECOVERY OF PACKAGING WASTE

Member States have the right to set their own specific more detailed targets, measures and
time limits providing they are in accordance with the Directive. This is why targets stated
below differ greatly by country.

In Austria economic operators (manufacturers, importers, fillers and distributors) which take part
in a collection and recycling system agreed by public authorities have to achieve a rate of 25%
recycling, with a minimum of 15% for each packaging material. This has to be achieved, starting
from 1997, every calendar year. Economic operators not participating in an agreed system have to
achieve, every calendar year, the following recycling targets (by weight):

Paper, board, cardboard, corrugated cardboard

Glass

Ceramic

Metals

Plastics

Beverage composites

Other composites

90%

93%

95%

95%

40%

40%

15%

Each economic operator has to collect or take back 90% of the packaging material he has put on
the market. If he actually collects or takes back less than 90% but more than 50% of the
packaging material he has put on the market, he is obliged to participate for the difference up to
90% in an agreed collection and recycling system, and comply with the corresponding targets. If
he collects or takes back less than 50% of the packaging material he has put on the market, he is
obliged to participate for the difference up to 100% in an agreed collection and recycling system,
and comply with the corresponding recycling targets.

The following ratios of drinks packaging as a proportion of the bottling volume sold on the
domestic market shall be met through re-filling, environmentally compatible recycling and
energy recovery:

Mineral water, table water, soda water

Beer

Alcohol-free refreshment drinks (such as
lemonade), including alcohol-free hop and
malt drinks

Fruit juices, fruit-juice drinks, nectars

Milk and liquid milk products

Wine

Champagne-type drinks and spirits

1993

1994

1997

2000

90

90

80

40

25

60

60

92

91

80

45

40

65

65

92

92

80

60

60

80

70

96

94

83

80

80

80

80

6

In addition only the following residues of other packaging waste (packaging waste other than
drink packaging) may be treated in waste treatment facilities, whenever such facilities do not
carry out material recycling or thermal recovery (landfilling, incineration without energy
recovery).

Year

Glass

Plastics

1994

1998

2001

70,000 t

54,000 t

38,000 t

160,000 t

90,000 t

60,000 t

Paper, card, cardboard, corrugated cardboard

209,000 t

140,000 t

99,000 t

Metals

Composites

55,000 t

36,000 t

17,000 t

81,000 t

50,000 t

30,000 t

All these targets, combined, lead Austria to exceed the maximum recycling target set by
Directive 94/62/EC. Austria has therefore made use of Article 6(6) of this Directive. A
Commission Decision (1999/42/EC) was adopted on 22 December 1998 confirming the
measures notified by Austria pursuant to this Article.

In Belgium, the following targets have been set by an inter-regional co-operation agreement.
In this country, the Federal State has only competence to transpose Directive 94/62/EC as
regards product-related issues (such as, for instance, Article 9 and Annex II). The fixing of
targets for recovery and recycling of the packaging materials contained in the packaging
waste, as laid down in Article 6 of Directive 94/62/EC, comes into the exclusive competence
of the Regions. In order to ensure a coherent and consistent transposition and implementation
of Directive 94/62/EC and in particular its Article 6, the three Belgian Regions deemed it
necessary to conclude the Co-operation Agreement on the prevention and management of
packaging waste. This Agreement is a legally binding act and constitutes the transposition
measure as regards Article 6 of Directive 94/62/EC.

Year

1996

1997

1998

1999

Recycling

35% 40% 45% 50%

Recovery

50% 60% 70% 80%

By 1 January 1998 levels of recycling of 15% of each material should be achieved.
The measures containing targets exceeding the targets of Directive 94/62/EC have been
notified by Belgium on 13 July 1996 in accordance with Article 6(6) of the Directive.

In Denmark, a new consultation paper on waste strategy includes the following reuse or
recycling targets to be achieved by the year 2001.

Paper and board

Glass

Plastics

55%

65%

15%

The national waste plan “Affald” 21 (1998-2004) states that 45% of the packaging waste is
expected to be recycled by the year 2001 and the aggregate recovery is expected to exceed
80%.

7

Finland has set a combined reuse and recovery target of 82%, to be reached by 30 June 2001.
The following specific targets for recycling and recovery, to be achieved by 30 June 2001,
have also been set:

Recycling

Recovery

Paper and board

Glass

Metals

Plastics

TOTAL

53%

48%

25%

15%

42%

75%

45%

61%

In France, the targets specified in the Directive are to be achieved by 30 June 2001:
In addition, Eco-Emballages7 has fixed a recovery target for household packaging waste of
75% by the year 2003 with no material recovered at less than 60%.

The overall recycling and recovery targets set by Germany, to be achieved by 30 June 2001,
are as follows: recovery - 65% recycling - 45%.
The targets for recycling of specific materials, to be achieved by 1 January 1999, are as
follows:

Glass

Tinplate

Aluminium

Paper/board

Composites

75%

70%

60%

70%

60%

Plastics

36% (mechanical recycling)

A recovery target for plastics of 60% is also set at for the same date.

Greece aims at achieving the targets specified in the Directive (executing its right according
to Article 6 paragraph 5 of the Directive).

Ireland, executing its right according to Article 6 paragraph 5 of the Directive, has set the
following recovery targets, to be achieved by 30 June 2001:

Paper

Glass

Plastic

Aluminium

Steel

Metals

TOTAL

31%

45%

10%

25%

5%

10%

27%

7

Eco-Emballages - French organisation in charge of a scheme for the collection, recycling and financing
of packaging waste

8

Italian legislation on packaging waste contains the target ranges set by the Directive
(recycling 25-45% - with a minimum 15% per material – recovery 50-65%), to be achieved
by March 2002. The general programme on waste prevention and management of packaging
waste, elaborated in the context of this legislation, establishes for the year 2001 a recovery
target of 49% and a recycling rate of 42%. However, these targets do not seem to be
mandatory.

The following recovery and recycling rates are expected in relation to the specific waste
materials:

Material

Recycling 2001

Recovery 2001

Recycling 2002

Recovery 2002

Steel

Aluminium

Paper

Wood

Plastic

Glass

Total

38%

35%

45%

58%

17%

48%

42%

38%

35%

50%

63%

37%

48%

49%

51%

51%

46%

61%

21%

53%

46%

51%

51%

52%

66%

50%

53%

55%

Luxembourg has set a target of 45% recycling, with at least 15% for each material, and a
recovery target of 55%. Both targets are to be achieved by 30 June 2001.

In The Netherlands, the maximum recycling (45% with at least 15% for each material) and
recovery (65%) targets laid down in Directive 94/62/EC have been included in a regulation
and are to be achieved by August 1998. A “packaging Covenant” lays down an overall target
for material recycling of 65% to be achieved by 30 June 2001 as well as specific targets, in
the following way:

Glass

Paper/board

Metals

Plastics

Wood

90%

85%

80%

27%

15%

A target of 9% for the chemical recycling of plastic has also been established. Finally, it is
aimed at reducing the generation of packaging waste of 10% compared to the level of 1986.

Portugal aims at reaching the targets specified in the Directive (executing its right according
to Article 6 paragraph 5 of the Directive).

Spain has fixed a target specified in the Directive. Additionally, by April 2000, a 15%
recycling rate shall be achieved, with a minimum rate of 10% for each packaging material. A
10% reduction rate of the generation of packaging waste has also been set.

9

In Sweden, reuse and recycling targets for 1 January 1997 have been set as follows:Reuse
and recycling (excluding biological treatment)

Aluminium (beverage containers)

Aluminium (other than beverage containers)

Steel

PET (beverage containers)

Plastics (other than PET beverage containers)

Paper/non corrugated cardboard

Corrugated cardboard

Returned glass bottles for wine and spirits
Filled in Sweden

Returned glass bottles for beer and soft
Drinks filled in Sweden

Glass

90%

50%

50%

90%

30%

30%

65%

90% (reuse)

95% (reuse)

70%

By 30 June 2001, the following targets shall have to be achieved in Sweden:

Recycling

Recovery

Aluminium (beverage containers)

Aluminium (other than beverage containers)

Steel

PET (beverage containers)

Plastics (other than PET beverage containers)

Paper/non corrugated cardboard

Corrugated cardboard

Glass

Wood

Other materials (% per material)

The following targets have been set in the United Kingdom:

90%

70%

70%

90%

30%

40%

65%

70%

15%

15%

70%

70%

70%

30%

Year

1999

2000

2001

Recycling per material

10% 13% 16%

Recovery

43% 43% 52%

10

Table II.1:

Summary table of the targets established by the Member States for 2001 [%]

Recycling Recycling

Recycling targets for packaging materials

of each
material

paper and
board

aluminium

steel

glass

plastics

beverage
composites

15

15

15

15

15

Recovery
(1)

50-65
(25)

Targets in
directive (2)

Austria (3)
1997

Austria (4)
1997

25-45

25

15

15

Belgium (1999)

80

50

15 (1998)

Denmark

Finland

France

Germany

Greece

Ireland

Italy

Luxembourg

Netherlands

Portugal

Spain

Sweden

United
Kingdom

82
(reuse and
recovery)

50-65

65

50-65
(2005)

50-65
(2005)

50-65
(2002)

55

65
(1998)

25 (2001)
50 (2005)

50-65

25-45

45

25-45
(2005)

25-45
(2005)

25-45
(2002)

45

45 (1998)

25 (2005)

15

15
(2005)

15
(2005)

15
(2002)

15

15
(1998)

15
(2005)

25-45
(15 by
4/2000)

15
(10 by
4/2000)

52

16

15

90

55

53 (recovery
75)

95

15

25

95

93

15

25

65

48

70

60

70

75

40

15

15
(recovery
45)

36
(recovery
60)

40

60

31
(2001)

45 (recovery
50)

25
(2001)

35

5
(2001)

45
(2001)

10
(2001)

38

48

17
(recovery
37)

85
(2001)

80
(2001)

80
(2001)

90
(2001)

27
(2001)

40 (paper, 70
recovery) 65
(board)

90
(beverage)
70 (other)

70

70

30 (70
recovery)

15 (30
recovery)

(1) Recovery includes recycling but not reuse (except in Finland which set the common target for recovery and reuse).

(2) Greece, Ireland and Portugal can set lower targets but shall at least attain 25% for recovery, and shall attain the other levels

before 1 January 2006

(3) Operators taking part in an agreed system

(4) Other operators

11

III.

TARGETS ACHIEVED BY MEMBER STATES FOR RECOVERY,
RECYCLING AND REUSE.

The data presented in Table III.1 was collected from the reports on packaging and packaging
waste according to the Commission Decision 97/138/EC, for the year 1997. Data related to
the population have been taken from Eurostat source.

Qty pckg
placed

on the
market in
ktonnes

Qty in
kg/hab
by year

paper
and
board

1269

159

971

418

11069

13731

187

84

191

168

52

48

58

35

40

Austria

Belgium

Denmark

Finland

France

Germany

Greece

Ireland

Italy

Luxembourg

composites /
wood /
textiles

2 / 4 /

- / 6 / 0.4

- / 15 / -

- / 14 / 0.1

Quantity of packaging materials in %

metals

glass

plastics

steel

Al

7

6

8

6

7.5

8.1

0.6

20

21

12

30

27

14

19

22

14

11

17

22

Netherlands

2745

178

53

Portugal

Spain

Sweden

United
Kingdom

923

7755

105

133

57

39

8

8

10

19

23

16

17

/ 10 / 0.2

Table III.1: Summary table of the quantity of packaging placed on the market according to

the different materials by Member States

12

The data presented in Table III.2 was collected in different years so only a general
comparison can be made based on this data. About half of the Member States have sent their
reports on packaging and packaging waste according to Article 12 of the Directive 94/62/EC and the
derived Commission Decision 97/138/EC.

More detailed information on recycling and recovery targets achieved (including dates and
sources) are provided below in Tables III.3, 4 and 5 with regard to municipal and non-
municipal waste.

composites /
wood /
textiles

15 / 15 / 15

29 / 14 / -

- / 0 / 0

- / 42 / -

- / 55 / 0

Recovery Recycling

paper
and
board

Recycling targets for packaging materials

metals

glass

plastics

steel

Al

Targets in
Directive (1)

50-65
(25)

25-45

Austria

Belgium

Denmark

Finland

France

Germany

Greece

Ireland

Italy

Luxembourg

Netherlands

Portugal

Spain

Sweden

United
Kingdom

66

70

83

54

50

65

25

18

35

78

15

65

34

61

62

37

42

35

63

25

18

32

33

55

3

58

30

15

75

47

57

40

59

48

19

37

27

65

66

53

15

34

4

8

44

82

82

17

2

7

5

72

67

17

26

45

26

72

35

20

12

15

17

20

24

15

77

75

61

48

41

75

26

38

36

59

75

44

37

76

25

15

20

6

10

5

45

5

4

10

2

12

14

7

(1) Greece, Ireland and Portugal may set lower targets but shall at least attain 25% for recovery, and shall attain the other levels
before 1 January 2006

Table III.2:

Summary table of the targets achieved by the Member States [%]

13

Table III.3: Recycling [%]

TOTAL Municipal Non municipal

Austria

Belgium

Denmark

Finland

France

Germany

Greece

Ireland

Italy

Luxembourg

Netherlands

Portugal

Spain

Sweden

United Kingdom

(61)*

62

(37)*

(42)*

(35)*

(63)*

25

18

32

33

(55)*

3

(58)*

(30)*

58

61

29

86

6

33

41

21

13

40

63

26

61

37

Year

1997

1997/98

1997

1997

1997

1997

1996

1995

1998

1995/96

1997

1998

1997

1997

1997

Source:

except:

Italy:

“Management systems for packaging waste” Pricewaterhouse Coopers 1998
for ERRA;

Programma generale di prevenzione e gestione dei rifiuti di imballaggio-
CONAI – 1999.

and the following ones marked ( )*:

A, D, DK, FIN, FR, NL, SW, UK: Reports on packaging and packaging waste according to

the Commission Decision 97/138/EC, for the year 1997.

14

Table III.4: Recovery [%]

TOTAL Municipal Non municipal

Austria

Belgium

Denmark

Finland

France

Germany

Greece

Ireland

Italy

Luxembourg

Netherlands

Portugal

Spain

Sweden

United Kingdom

(66)*

70

(83)*

(54)*

(50)*

(65)*

25

18

35

(78)*

15

(65)*

(34)*

67

77

45

92

6

33

71

31

23

40

65

26

73

38

Year

1997

(1997/98)

1997

1997

1997

1997

(1996)

(1995)

(1998)

(1995/96)

(97)* 1996

1998

1997

1997

Source:

except:

Italy:

“Management systems for packaging waste” Pricewaterhouse Coopers 1998
for ERRA;

Programma generale di prevenzione e gestione dei rifiuti di imballaggio-
CONAI – 1999

and the following ones marked ( )*:

A, D, DK, FIN, FR, NL, SW, UK: Reports on packaging and packaging waste according to

the Commission Decision 97/138/EC, for the year 1997.

15

Table III.5: Recycling per fraction [%]

Total

Paper/Board

Metals

Glass

Plastics

Austria

Belgium

Denmark

Finland

France

Germany

Greece

Ireland

Italy

Luxembourg

Netherlands

Portugal

Spain

Sweden

United Kingdom

Sources:

61

62

37

42

36

63

25

18

32

33

55

3

58

30

Steel

Aluminium

34L

50C

4M
8I
44N
82G

67K

45H
26J

82C

72G
35C
20C
12F

15K
17C
20C

24J

82G
17D
2D
7F
5A
72K

17E

26J

77L
75B
61M
48I
41N
75G
26B
38B
36F
59A
75K
44B
37B
76H
25J

75L

47M
57I
40N
59G
48D
19D
37F
27A
65K

66H
53J

20L

6M
20I
5N
45G
5D
4D
10F
2A
12K

14H
7J

A - "Eco-balances for policy-making in the domain of packaging and packaging waste" (RDC and Coopers and

Lybrand) May 1997 European Commission (data from 1994/95)

B - Glass Gazette September 1998 (FEVE, data from 1997)
C - EEA (data from 1997)
D - ERRA, AIM, CIAA (December 1998 Report, data from Greece: 1995/96)
E - APEAL News October 96 (data from 1995)
F - Programma generale di prevenzione e gestione dei rifiuti di imballaggio – CONAI - 1999 (data from 1998).
G - Report of Germany on packaging and packaging waste according to the Commission Decision 97/138/EC

(data from 1997).

H - Report of Sweden on packaging and packaging waste according to the Commission Decision 97/138/EC

(data from 1997).

I - Report of Finland on packaging and packaging waste according to the Commission Decision 97/138/EC

(data from 1997).

J - Report of UK on packaging and packaging waste according to the Commission Decision 97/138/EC (data

from 1997).

K - Report of Netherlands on packaging and packaging waste according to the Commission Decision 97/138/EC

(data from 1997).

L - Report of Austria on packaging and packaging waste according to the Commission Decision 97/138/EC

(data from 1997).

M - Report of Denmark on packaging and packaging waste according to the Commission Decision 97/138/EC

(data from 1997).

N - Report of France on packaging and packaging waste according to the Commission Decision 97/138/EC

(data from 1997).

16

Table III.6 presents the targets achieved for reuse of various beverage packaging.

Packaging

EU total
consumption

Packaging
material

EU total reuse

Austria

Belgium

Denmark

Finland

France

Germany

Greece

Ireland

Italy

Luxembourg

Netherlands

Portugal

Spain

Sweden

United Kingdom

Soft drinks +
juices packaging

Beer packaging

Mineral water
packaging

Wine packaging

39 109 litres
(1996)

30 109 litres
(1996)

26 109 litres
(1997)

12 109 litres

Milk
packaging

37 109 litres

(1996)

Glass

PET

Glass

Metal
kegs

Glass and PET

Glass

Barrels Glass and PC

13

2.2

12

10

10

2.1

1.3

9

109 litres

109 litres

109 litres

109 litres

109 litres

109 litres

109 litres

109 litres

47

8

81

44

3

61

9

39

15

31

3

45

0

11

0

0

0

29

0

58

53

92

71

14

60

73

4

12

34

69

54

33

28

3

32

39

8

25

24

21

6

80

16

52

31

30

34

13

66

89

96

94

2

88

9

17

10

12

86

83

9

27

71

10

29

0

0

5

50

32

55

0

1

30

20

10

19

6

0

0

0

6

1

15

0.5

0

0

32

Source: Reuse of primary packaging. Final report 1999 (Abfallberatung Müllvermeidung &
Recycling, Andreas Golding D-72074 Tübingen)

17

In addition to these data, Finland has provided the Commission with the following
information concerning reused packaging materials.

Material

Total use

Reuse

(in tonnes)

(in tonnes)

Quantity placed on
the market

(in tonnes)

Reuse rate

(%)

GLASS

378 500

328 600

PLASTICS

294 100

201 700

FIBREBOARD

256 800

13 300

METALS

239 400

206 900

Total

1 168 800

750 500

49 900

92 400

243 500

32 500

418 300

87

69

5

86

64

18

IV.

EVALUATION OF THE AVAILABLE FIGURES

Reuse

Looking at the available figures on the rates of reused packaging in the Member States, the
following conclusions can be drawn.

On average in the EU, about one-third of packaging for soft-drinks, mineral water and wine is
reused. However, reuse systems are available to a much greater extent in northern Member
States than in southern Member States. Packaging materials concerned by reuse are mainly
glass (all drinks) and PET8 (mineral water, soft drinks).

The highest reuse rates are achieved in the mineral water sector in Denmark, Finland, Austria,
Germany and Sweden, where reuse approaches or exceeds 90% of the volumes bottled (glass
and PET). On the contrary, very low reuse rates are achieved in the other Member States.
Austria and Finland achieve a very high reuse rate beyond 70% in the wine sector9, but also
Sweden and Portugal achieve considerably high reuse rates above 50% in this sector.

In the soft drink sector Austria, Germany, Sweden, Finland and Portugal reuse between one-
third and two-thirds of glass packaging. Denmark exceeds 80%, whereas in the other
countries for which data are available, reuse rates do not exceed 10-15%. Finland and Sweden
also achieve significant reuse rates for PET packaging for soft drinks.

As regards beer, the north-south differences are less evident: only Italy, the United Kingdom,
Ireland and France do not reach 20% of reuse, whereas all the other countries reuse between
30% and 50% (Sweden, Spain) or even above 70% of packaging, with Denmark reaching
almost 100%.

Finally, United Kingdom, Austria and the Netherlands and to a lesser degree Belgium and
Germany, maintain reuse systems in the milk sector.

Although Directive 94/62/EC has not set any specific quantitative target for the reuse of
packaging, reuse is – as stated in Article 1(2) of the Directive, a fundamental principle of
packaging management. Article 5 of the Directive encourages reuse systems of packaging,
which can be reused in an environmentally sound manner, in conformity with the Treaty.
Furthermore, Article 3(5) of the Directive establishes that packaging which is reused is not to
be considered waste until it is no longer reused.

Recycling

The conclusion that can be drawn from the available figures (see tables III.2 and III.3) is that
the recycling targets set out in 1994 in the packaging Directive have proven be capable of
being reached. The general target of 25% recycling has already – four years in advance of the
compliance date - been achieved by all the Member States which were to comply with this
target. Ireland, Portugal and Greece benefit from the clause set out in Article 6(5) of the
Directive, allowing for lower targets to be achieved or the same targets at a later stage. Greece
and Ireland have already achieved a recycling targets of 25 and 18% respectively.

8

9

PET – Polyethylene Terephthalate
These figures refer to the year 1994, therefore they should be taken with some precaution.

19

The maximum target of 45% recycling has been exceeded by Austria, Belgium and the
Netherlands, which have in fact applied Article 6(6), although the statistics available seem to
indicate that also Sweden and Germany, which have not applied Article 6(6) so far, have
exceeded the maximum recycling target. Denmark and Finland are not far from the maximum
recycling target, whereas Italy, Luxembourg and the United Kingdom have reached a
recycling rate which is above the minimum target of the Directive, although not by a very
considerable amount.

Concerning the minimum recycling target of 15% by material, where statistics are available
they show that this figure is largely exceeded in the majority of Member States (see tables
III.2 and III.5). The recycling rate for steel and aluminium far exceeds 50% in the northern
countries. Southern countries lag behind, although recycling is also increasing in these
countries.

Glass and paper are the materials where the figures show the lowest geographical differences.
the
Recycling rates for glass are between 70 and 90% in Austria, Germany, Belgium,
Netherlands, and Sweden. France, Italy, Finland, Portugal the United Kingdom, Spain and
Greece all recycle more than 25%, in several cases approaching 50%. These figures are also
confirmed by statistics published by the European Federation for Glass Packaging. For paper,
high recycling rates are not only to be found in countries, which have a consolidated recycling
tradition but also in other countries such as Luxembourg and Italy.

The only material for which the recycling rate is still, in several countries, below the rate set
by the Directive, is plastic. The 15% recycling rate for plastic was exceeded by Germany
(45% inclusive the so-called “feed stock recycling”) and Austria (20%). However,
the
Netherlands, Italy, Sweden and Finland are – four years in advance of the target date of 30
June 2001 – not far from this rate. The Commission does not have figures on the recycling of
composite materials, such as beverage and milk cartons, for the majority of Member States.
The recycling of beverage cartons is often included in figures on the recycling of paper and
board, although composite beverage packaging should obviously not be considered paper
packaging.

Recovery

The minimum target of 50% has already been achieved by most of the Member States which
were to comply with this target by June 2001.

The maximum recovery target of 65% was exceeded in Austria, Belgium, Denmark and the
Netherlands. In addition, the available statistics seem to indicate that Sweden, Germany and
Denmark might also be under the obligation to apply Article 6(6) of the Directive as regard
the recovery rate achieved. Germany and Sweden are not far from the maximum recovery
target, whereas Italy and the United Kingdom could not reach the minimum recovery rate of
50% although reporting substantial recycling rates.

20