Preventing plastic waste in Europe.
Date: 2019-11-26
Institutions: European Environment Agency
Subjects: environmental impact, environmental law, plastic waste, plastics, plastics industry, waste management, waste recycling

EEA Report  No 02/2019

Preventing plastic waste in Europe

ISSN 1977‑8449

1994-2019

EEA Report  No 02/2019

Preventing plastic waste in Europe

1994-2019

Cover photo: © Allen Giuseppe Amore, Picture2050/EEA

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© European Environment Agency, 2019
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Luxembourg: Publications Office of the European Union, 2019

ISBN 978‑92‑9480‑194‑4
ISSN 1977‑8449 
doi:10.2800/096909 

REG.NO. DK- 000244

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Contents

Contents

Acknowledgements .................................................................................................................... 4

Key messages .............................................................................................................................. 5

Executive summary .................................................................................................................... 6

1  Waste prevention and plastics ............................................................................................ 8

1.1  Environmental issues and plastics ........................................................................................ 9

1.2  Objective ................................................................................................................................... 9

1.3  Review methodology ............................................................................................................10

1.4  Policy background .................................................................................................................10

1.5  Definitions ..............................................................................................................................11

2  The plastics life cycle .......................................................................................................... 12

2.1  The plastics value chain ........................................................................................................12

2.2  Plastic consumption in Europe and the world ...................................................................13

2.3  Plastic waste management in Europe ................................................................................14

2.4  Plastic waste decoupling ......................................................................................................15

3  Plastic waste prevention in the waste prevention programmes of EEA countries 

18

3.1  Waste prevention programmes and plastic waste ...........................................................18

3.2  Policy instruments and measures .......................................................................................19

3.3  Good practice examples .......................................................................................................20

3.4  Targets ....................................................................................................................................24

3.5 

Indicators ................................................................................................................................24

4  Key findings, policy options and future prospects .......................................................... 28

4.1  Key findings ............................................................................................................................28

4.2  Conclusions and policy options ...........................................................................................28

4.3  Future prospects ...................................................................................................................31

Abbreviations and acronyms .................................................................................................. 32

References ................................................................................................................................. 33

Annex 1 ...................................................................................................................................... 35

Annex 2 ...................................................................................................................................... 38

Annex 3 ...................................................................................................................................... 39

Annex 4 ...................................................................................................................................... 41

3

Preventing plastic waste in EuropeAcknowledgements

Acknowledgements

This report was prepared by the European 
Environment Agency (EEA) and the European Topic 
Centre on Waste and Materials in a Green Economy 
(ETC/WMGE) in cooperation with the EEA and the 
European Environment Information and Observation 
Network (Eionet) countries.

The report has benefited greatly from the comments 
and feedback that were received from EEA member 
countries, cooperating countries and other partners 
during a survey conducted in 2018 and a final 
consultation process that took place in early 2019.

Lead authors

Henning Wilts (ETC/WMGE), 
Ioannis Bakas (EEA)

Contributions

Dirk Nelen, Kévin Le Blevennec, Ulrike Meinel, Bettina 
Bahn‑Walkowiak, Mona Arnold (all ETC/WMGE)

Lars Fogh Mortensen, Almut Reichel,  
Daniel Montalvo (EEA)

This is the fifth and last EEA report in a series of 
annual reviews of waste prevention programmes 
in Europe, as stipulated in the European Union 
(EU) Waste Framework Directive (EU, 2008). The 
Directive was revised in 2018 and now frames 
a different context for the EEA's work on waste 
prevention, which will be reflected in a new series 
of biannual waste prevention reports in the 
future. This year's review focuses on plastic waste 
prevention and covers 37 national and regional 
waste prevention programmes that had been 
adopted by the end of 2018.

4

Preventing plastic waste in Europe 
Key messages

Key messages

The use of plastics is increasingly 
recognised as a significant global 
environmental issue:

•  Within the mapped measures, 25 are regulatory 

and refer mainly to measures banning 
micro‑plastics, micro‑beads and some types of 
single‑use plastics.

•  Demand for plastics is increasing rapidly worldwide. 

In 2017, the demand for plastics in the 28 EU 
Member States stood at almost 52 million tonnes, up 
from 46 million tonnes in 2010. Global production of 
plastics reached 348 million tonnes in 2017, an extra 
13 million tonnes compared with the year before.

•  The review of the measures taken by countries 
revealed that 37 of the 173 measures identified 
are market based. The majority of the 
market‑based instruments referred to fees for 
plastic carrier bags.

•  Plastic production has harmful impacts on the 
environment and climate. Estimates put the 
contribution of plastic production and plastic waste 
incineration globally at 400 million tonnes of 
carbon dioxide equivalent (CO2e) annually.

•  A total of 30 voluntary agreements on plastic 

waste prevention have been initiated in different 
forms with different sets of stakeholders across 
the countries reviewed. They often include 
specific targets that are monitored by internal or 
external parties.

•  Almost one fifth of the global plastics production of 

335 million tonnes was produced in Europe.

•  Only nine countries have explicit waste 

•  Plastics are mainly used in packaging and in the 

building and construction sectors.

• 

In 2016, 31.1 % of plastic waste was recovered in 
Europe — but only 63 % of the recovery took place 
in Europe — and only about 6 % of the current 
European demand for plastics was covered by 
domestic recycled or secondary plastics.

Plastic waste prevention can offer 
solutions in reducing environmental 
pressures from plastic consumption. 
Countries are responding by taking waste 
prevention measures:

•  Plastic waste is declared a priority waste stream by 

nearly half of the countries investigated.

•  Of the 173 waste prevention measures identified, 

105 cover the production phase of plastic products 
and 69 cover the consumption phase.

•  With the exception of national legislative 

prevention targets included in their prevention 
programmes. Clear and common targets are 
still lacking for most product groups and thus 
the levels of activity and ambition clearly differ 
among the countries.

•  The good practice examples include both regulatory 

initiatives such as a ban on certain plastic 
products and softer measures such as stakeholder 
agreements to reduce the consumption of plastic 
products (mainly packaging), and training and 
capacity building. Unfortunately, there are very few 
cases in which the initiatives adopted have been 
properly evaluated.

The road ahead involves intensifying 
countries' waste prevention efforts:

•  Prevention of the most impactful plastic types, 

plastic products that are designed to be used once 
and for a very short time (the so‑called 'single‑use 
plastics') and non‑recyclable plastic products should 
be prioritised.

requirements, such as the levy on plastic carrier 
bags, the majority of the identified prevention 
measures refer to voluntary agreements and 
informative instruments.

•  Although the example of the fee placed on plastic 

carrier bags in many countries has borne impressive 
results, countries should be encouraged to 
diversify their implemented measures.

5

Preventing plastic waste in EuropeExecutive summary

Executive summary

Waste prevention is at the centre of EU waste 
legislation as it delivers the most effective results in 
dealing with environmental issues around waste. EU 
or national strategies and legislation around waste, 
therefore, routinely place waste prevention at the top 
of their objectives.

Waste prevention can be implemented in any waste 
stream, but it needs to be customised to reflect each 
stream's particularities. This report focuses on plastic 
wastes, as there is potential for substantial mitigation 
of the environmental issues raised by increased plastic 
consumption through the use of waste prevention 
instruments and mechanisms.

The scale of plastic production and plastic 
waste generation

Demand for plastic products is increasing worldwide 
and in Europe in particular. In 2017, total demand 
in Europe reached 52 million tonnes, representing 
around 15 % of global demand. The use of plastic in 
products keeps increasing because of its low price and 
the useful properties of the various plastic types, which 
make them effective in a wide variety of applications. 
Packaging is the sector that uses most of the plastic 
produced, followed by the construction, automotive 
and electronics sectors.

Different applications of plastics have different 
consequences for waste management. Plastics become 
waste almost instantly if used for packaging but do 
so only after up to 50 years if used in construction. 
Therefore, different approaches for implementing 
waste prevention are needed for the different plastic 
products and types. For example, prevention measures 
targeting short‑lived plastics can be more effective 
in both reducing waste generation and alleviating 
environmental impacts from their consumption.

The increasing consumption of plastics is reflected 
in plastic waste generation, which is also increasing. 
However, recovery of plastic waste is also on the rise, 
with plastic waste recycling reaching 31.1 % in 2016. A 
significant share of plastic waste generated in Europe 
is traded to other regions of the world and a lot of the 

recycling of this material takes place outside Europe. 
In 2016, only 6 % of European plastic production was 
based on recycled material.

A circular economy refers to an economic model 
in which the value of the products and materials is 
kept as high as possible and for as long as possible. 
This principle can be implemented by considering 
the design, manufacturing, consumption and waste 
management stages of the products' life cycles. 
Under the circular economy context, some of the 
plastics' inherent characteristics are in conflict with this 
main principle (see Figure 1.1).

Already, managing plastic waste generation presents 
multiple challenges, and this will increase in the future. 
As waste prevention is the preferable option in the 
waste hierarchy, prevention can play a fundamental 
role in curbing plastic waste generation. Waste 
prevention measures are suitable for addressing 
issues around increasing consumption, reducing 
recirculation of hazardous substances present in plastic 
products and difficulties faced by waste management 
in recovering a substantial amount of plastic resources. 
In this report, we aim to map waste prevention 
initiatives in Europe targeting plastics, with a view to 
understanding: 

1.  What is their main focus?

2.  To which policy structures (targets, indicators, 

measures) do they belong?

3.  What are the best practice examples in the area?

4.  What potential for improvement can be identified 

on the basis of this analysis?

Looking into data on plastic packaging waste 
generation helps us understand the effectiveness of 
waste prevention on plastic packaging to date. The 
effectiveness is primarily assessed by comparing rates 
of increase for waste generation and for the economy 
as a whole. Absolute decoupling indicates negative 
rates for waste generation and positive rates for gross 
domestic product (GDP). Relative decoupling indicates 
lower rates for waste generation comparedwith GDP. 

6

Preventing plastic waste in EuropeExecutive summary

Data from 2007 to 2016 for the 28 EU Member States 
show a recent relative decoupling of plastic packaging 
waste generation from economic growth. However, 
there are great differences in the development of 
plastic packaging waste generation per capita in 
the individual countries over the same time period. 
Of the 28 EU Member States, nine managed to 
decouple (absolutely or relatively) plastic packaging 
waste generation from economic growth. However, 
the economic level, structure and development of 
the countries plays an important role in the level 
of waste generation, making it difficult to attribute 
changes in waste quantities to waste prevention 
measures alone.

Scope and methodology

Based on a review of available waste prevention 
programmes, supplemented by a direct country 
consultation, 173 plastic waste prevention measures 
were identified as implemented, or planned for 
immediate implementation, by European countries. 
At the same time, the analysis was supported by 
identifying good practice examples.

Specific and concrete prevention targets addressing 
plastic waste are not widespread in Europe. Only 
nine countries have explicit targets for plastic waste 
prevention. However, most countries have included 
indicators or monitoring schemes to assess progress 
in their waste prevention programmes. These 
schemes are in many cases qualitative, but indicators 
based on specific data flows have also been adopted.

Best practice and information sharing

This report has identified a range of good practice 
examples that go beyond the average prevention 
status in Europe. The examples include both 
regulatory initiatives such as bans on certain plastic 
products and softer measures such as stakeholder 
agreements to reduce the consumption of plastic 
products (mainly packaging), and training and 
capacity building. Unfortunately, there are very 
few cases in which the initiatives adopted have 
been properly evaluated; therefore, most of 
the good practice examples identified lack the 
evaluation element that could help determine 
their effectiveness.

State of play of waste prevention in Europe

The road ahead

Around 60 % of the measures identified address 
plastic production, while the rest refer to consumption 
patterns of plastic products. The vast majority of 
measures aim to reduce the amount of plastic waste, 
which reveals an imbalance compared with other 
types of waste prevention such as eco‑design and 
measures to reduce the presence of hazardous 
substances in discarded products. The majority of 
policy instruments employed by countries are soft 
measures such as informative/public communication 
measures (42 % of all measures identified) and 
voluntary agreements. Market‑based instruments 
are also a substantial group of measures and most 
of them refer to legal obligations to reduce the 
consumption of plastic carrier bags.

It is very likely that the plastic consumption and waste 
issues and challenges will remain and intensify in the 
future as plastic products become an even more vital 
part of our consumption habits. It is therefore important 
to employ effective waste prevention measures so that 
some of the environmental and climate impacts of these 
developments are mitigated. Countries need to intensify 
their efforts and design more precise and concrete 
measures by giving priority to the most impactful plastic 
types or plastic products that are designed to be short 
lived and non‑recyclable. More diversity is needed 
in the measures to address various aspects of waste 
prevention, beyond waste reduction, such as better 
design requirements, increased durability or reducing 
the content of hazardous substances.

7

Preventing plastic waste in EuropeWaste prevention and plastics

1  Waste prevention and plastics

Waste prevention is at the centre of EU waste 
legislation, as it delivers the most effective results 
in dealing with environmental issues around waste. 
Prevention measures aim either to reduce the 
amount of waste generated by our economies 
or to minimise the environmental impacts from 
waste management. EU or national strategies and 
legislation around waste, therefore, routinely place 

waste prevention at the top of their objectives. 
Waste prevention can be implemented in any waste 
stream, but it needs to be customised to reflect each 
stream's particularities.

In recent years, various elements of EU environmental 
legislation have focused on plastics. Plastics are 
addressed by various strategies, action plans and 

Figure 1.1  

Environmental issues arising along the plastics value chain

Most plastics are designed
to be used once only
(limited recyclability)

Plastics are largely used
for short-lived products

PRODUCTION
AND DISTRIBUTION

The share of recycled
plastics in new products
is very low

ECO-DESIGN

T
e
c
h
n
ic

B
i
o
l
o
gic
al m
aterials

al m
aterials

A
P
E
R
,
E
S
U
RE

IR, REDISTRIBUTE, REFURBISH, RE

M
A
N
U
F
A
C
T
U
RE

CONSUMPTION
AND STOCK

Leakage to the environment, 
high persistence, 
hazardous substances

MATERIALS

WASTE

Plastics are mainly
based on  fossil fuels

Minimise

E
M
I
S
S
I
O
N
S

Very low recycling rates, 
downcycling prevails

EXTRACTION AND IMPORT OF NATURAL
RESOURCES, INCLUDING ENERGY CARRIERS

INCINERATION

LANDFILL

Source:   EEA.

8

Preventing plastic waste in Europe 
Waste prevention and plastics

dedicated directives, spanning from the circular 
economy package through the European strategy for 
plastics in a circular economy to the Single Use Plastics 
Directive (EC, 2018b).

Therefore, prevention of plastic waste would, by 
reducing demand for plastic products, subsequently 
reduce CO2 emissions.

The increased focus on plastics can be explained by 
the identification of various environmental issues and 
challenges associated with plastic consumption and 
plastic waste generation. As waste prevention is the 
preferred option for dealing with plastic waste and 
the one yielding the highest environmental benefits, 
it is interesting to examine the specific measures 
countries are taking to tackle plastic waste generation 
and the effects, if any, on plastic waste quantities and 
on the environment.

1.1  Environmental issues and plastics

The current plastics value chains have some inherent 
characteristics that are not compatible with the main 
objectives of the EU waste prevention and circular 
economy initiatives. Figure 1.1 shows a schematic 
representation of products' life cycle stages from a 
circular economy point of view. The figure also shows 
the challenges that plastics pose to increasing product 
circularity:

•  Many single‑use products, with very short life spans, 

are made of plastic and in many cases without 
considering their reuse potential.

•  Plastics are used, in very significant quantities, for 

short‑lived products (mainly packaging).

•  Plastic products may contain hazardous substances 

that may be recirculated in the economy 
through recycling.

•  Recycling rates are low.

Demand for plastics is increasing worldwide due to 
the materials' very useful properties. In 2017, the 
demand for plastics in the 28 EU Member States 
(EU‑28) stood at almost 52 million tonnes, up from 
46 million tonnes in 2010, following a stable increasing 
trend (Plastics Europe, 2018). Global production of 
plastics reached 348 million tonnes in 2017, an extra 
13 million tonnes compared with the previous year 
(Plastics Europe, 2018).

Waste prevention and corresponding measures 
address the majority of issues around the 
consumption of plastic products. As such, plastic 
waste prevention is the focus of this report. The 
main goal of the report is to map and analyse the 
countries' efforts to address plastic waste generation 
through waste prevention measures.

The scope of the report includes all plastic types, 
except biodegradable plastics, although, due to 
information and data limitations, the report focuses 
on plastic packaging. The properties, consumption 
patterns, and subsequent waste management 
systems and technologies are very different for 
biodegradable plastics and are outside the scope 
of this report. The scope of the report addresses all 
aspects of waste prevention, namely both qualitative 
and quantitative prevention.

1.2  Objective

Waste prevention measures are ideal for addressing 
many of the issues illustrated in Figure 1.1. Initiatives 
such as increased durability or reduction of packaging 
have the potential to significantly curb the increasing 
demand for plastic products. Better design of such 
products can increase recyclability and reduce the 
presence of hazardous substances in plastic waste. It is 
therefore important to look at the actions countries are 
taking, or planning to take, to prevent plastic waste and 
identify areas where increased efforts are required.

More specifically, the main objective of this report is to 
identify and map countries' policy efforts in the area 
of waste prevention that targets plastic wastes. This 
mapping aims to analyse efforts at European level to 
answer the following questions:

1.  What is the main focus of plastic waste prevention 

initiatives across the countries?

2.  What are the principal policy structures around the 

issue (targets, indicators, measures)?

3.  What are the best practice examples in this area?

Production of plastics is also environmentally costly. 
Estimates for 2012 put the contribution of plastic 
production and plastic waste incineration globally 
at 400 million tonnes of carbon dioxide equivalent 
(CO2e) (EC, 2018a), which is the equivalent of the 
annual emissions of Poland in the same year. 

4.  Which areas of improvement can increase the 

effectiveness and efficiency of implementing plastic 
waste prevention?

Through this process, the report attempts to highlight 
good practice in the sense of concrete initiatives 

9

Preventing plastic waste in EuropeWaste prevention and plastics

that may be applicable to other European countries. 
The report also offers solid recommendations for 
improving and intensifying efforts to prevent plastic 
waste. The recommendations build upon existing 
practice, respect the current and planned policy 
context and are forward looking.

Figure 1.2 

The EU waste hierarchy

Product
(non-waste)

Waste

Prevention

Preparing for re-use

1.3  Review methodology

In order to achieve the main objectives of the report, 
as outlined above, we will investigate how preventing 
plastic waste is addressed in the waste prevention 
programmes and in other programmes, strategies and 
initiatives, and provide data on the status of, and trends 
in, recent measures and initiatives in Europe.

In order to obtain the information, as a first step, 
the available national waste prevention programmes 
were screened for policy approaches and concrete 
initiatives to reduce plastic use and plastic waste. 
Given the recent prominence of the topic, however, 
it was decided to give countries the opportunity to 
flag new activities that may not have been captured 
in the waste prevention programmes as published, or 
that have evolved since. Therefore, as a second step, 
an additional survey was conducted, to verify and 
augment the information drawn from the national 
waste prevention programmes and to highlight good 
practice in preventing plastic waste. The survey was 
conducted by the European Topic Centre on Waste 
and Materials in a Green Economy (ETC/WMGE) in 
cooperation with the EEA and addressed all European 
Environment Information and Observation Network 
(Eionet) countries.

The report's geographical scope covers all EU Member 
States (except Cyprus, which has not adopted a waste 
prevention programme), Iceland, Norway, Switzerland 
(which are also subject to the obligations under the 
Waste Framework Directive) and Turkey. The review 
also covers the waste prevention plans available for 
these countries and their regions, as national waste 
prevention programmes may not exist (e.g. Belgium 
has three regional waste prevention programmes and 
the United Kingdom has four but no central plans).

1.4  Policy background

The amended Waste Framework Directive (EU) 
2018/851 reiterated the importance of waste 
prevention by confirming its place as a top priority 
for waste legislation, according to the so‑called waste 
hierarchy (Figure 1.2). In the revised Directive, the 
European Commission has confirmed the strategic 
importance of waste prevention, also in the context of 

Recycling

Recovery

Disposal

Source: 

EU (2008).

the circular economy, and has especially highlighted 
the field of plastic waste prevention as a specific 
priority (EU, 2018).

The Directive provides flexibility regarding the nature 
of waste prevention implementation. This flexibility is 
reflected in countries' waste prevention programmes 
and requires that objectives and qualitative or 
quantitative benchmarks are set. The EEA will need to 
publish periodic reports on waste prevention, according 
to Article 30 of the amended Waste Framework Directive, 
every 2 years. These reports will contain 'a review of the 
progress made in the completion and implementation of 
waste prevention programmes, including an assessment 
of the evolution as regards the prevention of waste 
generation for each Member State and for the Union 
as a whole, and as regards the decoupling of waste 
generation from economic growth and the transition 
towards a circular economy'.

In April 2015, Directive 94/62/EC on packaging and 
packaging waste, was amended by Directive 2015/720 
(EU, 2015) on lightweight plastic carrier bags. The 
amended Article 4 urges Member States to 'take 
measures to achieve a sustained reduction in the 
consumption of lightweight plastic carrier bags on their 
territory'. Such measures should ensure (1) an annual 
consumption of a maximum of 90 lightweight plastic 
carrier bags per person by 31 December 2019 and 
40 per person by 31 December 2025, and/or (2) the 
levying of charges on lightweight plastic carrier bags at 
the point of sale of goods or products before 2019. In 
addition, the Directive establishes reporting obligations 
on the annual consumption of lightweight plastic carrier 
bags.

Besides the prevention perspective in waste legislation, 
in 2018 the European Commission published its strategy 
for plastics in a circular economy. In the strategy, plastic 
waste prevention is placed in the context of a circular 
economy and it is supported with specific measures 
and objectives targeting various aspects of plastic waste 

10

Preventing plastic waste in EuropeWaste prevention and plastics

generation, such as reducing consumption of plastic 
bags and reducing marine litter. Overall, the main 
objective of decoupling waste generation from economic 
growth is underlined. 

Plastic packaging is addressed in the strategy by 
exploring ideas related to extended producer 
responsibility schemes, considerations about 
overpackaging, green public procurement, awareness 
campaigns and financial instruments that can help 
reduce packaging or replace single‑use with reusable 
packaging. Another important aspect of the strategy, 
related to prevention, is promoting reuse. The 
European Commission will take action so that all plastic 
packaging is reusable or recyclable in a cost‑effective 
manner by 2030.

1.5  Definitions

The Waste Framework Directive (EU, 2008) defines 
waste prevention as 'measures taken before a 
substance, material or product has become waste 
that reduce:

a) 

the quantity of waste, including through the reuse 
of products or the extension of the life span of 
products;

b) 

the adverse impacts of the generated waste on 
the environment and human health; or

c) 

the content of harmful substances in materials 
and products.'

The Single Use Plastics Directive contains extensive 
elements of waste prevention. EU Member States 
are encouraged to implement waste prevention 
measures, especially for single‑use plastic items for 
which a more sustainable product alternative does 
not yet exist. The Directive suggests appropriate 
waste prevention measures to be taken against 
single‑use plastic products such as providing 
information to consumers, market‑based instruments 
and product design requirements.

Waste prevention is thus applicable to products 
that are still in use, or that will be produced 
in the foreseeable future. Prevention relates 
only indirectly to waste management by (1) 
reducing the quantity of waste that would have 
to be managed in the future, often referred to as 
quantitative prevention, or (2) facilitating future 
waste management operations by avoiding the 
presence of undesired substances, the so‑called 
qualitative prevention.

The impacts of leaked plastic waste, especially into the 
marine environment, have also been the key drivers for 
the Helcom regional action plan for marine litter in the 
Baltic Sea (Helcom, 2015), the G20 action plan on marine 
littering (G20, 2017) or United Nations (UN) initiatives 
and resolutions on marine litter, single‑use plastics and 
fighting plastic pollution (UNEP, 2018). Industry and 
private initiatives (e.g. by the Ellen MacArthur Foundation 
or the International Solid Waste Association) have also 
initiated a broad range of activities that, inter alia, aim to 
reduce plastic waste generation.

For the scope of this assessment, plastic is defined 
according to the Single Use Plastics Directive 
(EC, 2018b), stating that ' 'plastic' means a material 
consisting of a polymer within the meaning of 
Article 3(5) of Regulation EC No. 1907/2006, to 
which additives or other substances may have 
been added, and which can function as a main 
structural component of final products, with the 
exception of natural polymers that have not been 
chemically modified.

11

Preventing plastic waste in EuropeThe plastics life cycle

2  The plastics life cycle

2.1  The plastics value chain

Successful plastic waste prevention and the design of 
appropriate policy measures for this purpose require 
an in‑depth understanding of the complex plastics 
value chain. It is important to note that, although 
plastics are usually referred to as a single, specific 
material, they are not. Instead, plastics should rather 
be seen as a big family of chemicals, composed of a 
great variety of materials designed to meet the very 
different needs of thousands of end applications. 
Flexible material design has resulted in a huge series 
of plastics and combinations of different plastics and 
other materials, such as fibres, each of them with highly 
specific, customised functionalities.

Two main categories of polymers can be clearly 
distinguished: thermoplastics and thermosets:

•  Thermoplastics are defined as polymers that 

can be melted when heated and hardened when 
cooled. These characteristics are reversible (it can 
be reheated, reshaped and hardened repeatedly). 
This feature allows the mechanical recycling of 
thermoplastics, converting plastic recyclate into new 
plastic products.

•  Thermosets, in contrast, are polymers that undergo 
a chemical change when heated. After they are 

heated and formed, they cannot be re‑melted and 
reformed, but they may be chemically recycled back 
to feedstock or used as a fuel in cement kilns.

Of the total global production of plastics of 
335 million tonnes, almost one fifth was produced 
in Europe. Plastics are produced by a relatively small 
number of globally active and large petrochemical 
companies. In the next stage of the value chain, the 
plastics produced are supplied to plastic converters, 
which are smaller in size and much greater in number 
than plastics producers. They convert the plastic resins 
into plastic products. This step might involve using a 
series of additives that allow converters to achieve the 
required user specifications.

The vast majority of plastics are composed of polymers 
of carbon and hydrogen, either alone or with oxygen, 
nitrogen, chlorine, fluorine or sulphur in the backbone 
(Professional Plastics, 2018). Plastics contain a main 
polymer and a bespoke load of additives to improve 
specific properties (e.g. hardness, softness, resistance 
to ultraviolet light, flame formation resistance) or their 
behaviour during manufacturing (lubricants, catalysts, 
stabilisers, solvents, polymerisation aids and recycling 
aids). The content of additives in plastics varies widely, 
from less than 1 % in polyethylene terephthalate (PET) 
bottles to up to 50‑60 % in polyvinyl chloride (PVC), 
often striking a balance between technical properties 

Box 2.1 

A cross‑value chain collaboration example

An example of the intended cross‑value chain collaboration is provided by the 'New Plastics Economy' initiative, launched 
in 2016. By the end of 2018, more than 250 organisation have signed for a global commitment to: 

 ‑
 ‑
 ‑

Design out problematic and unnecessary plastics.
Promote new business models that transform the way plastics are used.
Make sure that all plastics are safely re‑used, recycled or composted into new packaging and products.

The report 'The New Plastics Economy — Rethinking the Future of Plastics' (Ellen MacArthur Foundation, 2017) states that by 
fostering an 'explicitly systemic and collaborative approach, the New Plastics Economy aims to overcome the limitations 
of today's incremental improvements and fragmented initiatives, to create a shared sense of direction, to spark a wave 
of innovation and to move the plastics value chain into a positive spiral of value capture, stronger economics, and better 
environmental outcomes.'

The global Plastics Pact that fosters collaboration across value chains is supported by national Plastics Pacts such as the UK 
Plastic Pact and the French Pacte Nationale sur les emballages plastiques.

12

Preventing plastic waste in Europe 
The plastics life cycle

and economics, as some additives are considerably 
more expensive than the main polymers, while others 
are inexpensive (e.g. inorganic fillers such as limestone 
or talc).

Considering this complexity of the plastics value 
chain, the 2018 European strategy for plastics in a 
circular economy highlights the relevance of increased 
cross‑value chain collaboration, due to the many 
interlinkages of the value chain actors, to promote 
plastic waste prevention throughout the entire plastics 
life cycle. Global consumer goods companies, retailers, 
polymer producers, plastics manufacturers, consumers, 
governments, cities and businesses involved in plastics 
collection, sorting and reprocessing are the main actors 
and stakeholders in the plastics value chain.

2.2  Plastic consumption in Europe and 

the world

Waste prevention can be achieved through measures 
that affect products' life cycles before these become 
waste. It is therefore useful to have an overview of the 
consumption of plastic products in Europe so that the 
challenge of applying waste prevention to plastics is 
properly assessed.

Globally, humans had produced 8.3 billion tonnes 
of plastics by the year 2015, 6.3 billion tonnes of 

which had already become waste (Geyer et al., 2017). 
Of that waste total, only 9 % was recycled, 12 % was 
incinerated and 79 % accumulated in landfills or the 
natural environment. If current trends continue, roughly 
12 billion tonnes of plastic waste will be in landfills or 
the natural environment by 2050. The durability of many 
plastics is one of the key strengths of this material; 
however, as a consequence, most of this plastic waste is 
not expected to biodegrade significantly and will remain 
in the environment for years to come. Global production 
of plastics increased from 2 million tonnes in 1950 to 
over 400 million tonnes in 2015, outgrowing most other 
human‑made materials. Of the total amount of plastics 
produced from 1950 to 2015, roughly half was produced 
in the last 13 years and will become plastic waste in 
the near future. Against this background, Figure 2.1 
highlights the urgent need for effective prevention of 
plastic waste.

Taking into account that most plastic value chains are 
based on fossil fuel resources such as natural gas, oil 
or coal, it is estimated that about 5 % of all the oil and 
gas consumed in Europe is used in the production of 
plastic materials (Plastics Europe, 2018). About half of 
the fossil fuel resources are needed to provide energy 
to the production process; the other half are used as 
feedstock (World Economic Forum, 2016). Most plastics 
are produced from natural gas, feedstocks derived from 
natural gas processing and feedstocks derived from 
crude oil refining.

Figure 2.1  

Cumulative global plastic waste generation and disposal

Million metric tons

25 000

20 000

15 000

10 000

5 000

0

1950

1960

1970

1980

1990

2000

2010

2020

2030

2040

2050

Primary waste generated

All waste discarded

All waste incinerated

All waste recycled

Source:   Adapted from Geyer et al. (2017).

13

Preventing plastic waste in EuropeThe plastics life cycle

Figure 2.2 

Demand for plastic products broken 
down to industrial sectors in 2015 
(28 EU Member States, Norway and 
Switzerland)

Source: 

EC (2018a).

Figure 2.2 shows the share of the European industrial 
sectors that demand plastic products, highlighting that, 
within Europe, plastics are mainly used in packaging 
and in the building and construction sectors. One of 
the main differences between these applications for 
plastics is the life‑time before the product is discarded 
as waste. It can vary from hours for plastic packaging 
— for example a single‑use plastic shopping bag — to 
more than 50 years for plastic products in building and 
construction, such as PVC ceiling tiles (Baitz et al., 2004). 
This difference in the life span of products leads to a 
situation where packaging accounts for 40 % of the 

plastic demand but for as much as 60 % of the total 
plastic waste generation.

These differences in life‑time need to be taken 
into account and will require very different 
waste prevention strategies to be prepared and 
implemented. Prevention targeting packaging waste 
can be more effective and can yield immediate results, 
while tackling significant and short‑term environmental 
impacts. Moreover, the potential for preventing 
packaging waste is much higher than, for example, 
construction materials that perform a necessary 
function in a building.

2.3  Plastic waste management in Europe

A part of the waste prevention definition refers to 
actions taken on products' life cycles that reduce 
the environmental impacts arising from their waste 
management (e.g. eco‑design, design for recycling). 
There is indeed considerable potential for plastic waste 
management systems in Europe to improve and to 
reduce the environmental impacts stemming from 
them by moving up the waste hierarchy from disposal 
to recycling and preparing for re‑use.

The European strategy for plastics in a circular 
economy (EC, 2018a) notes that plastic recycling has 
not kept pace with the increasing global production 
of plastics. Currently, in Europe, only 30 % of plastic 
waste is collected for recycling. In addition, most 
recycling operations take place outside Europe, where 
environmental practices and standards may differ. 
The plastic waste that is collected but not recycled 
is landfilled or incinerated, with the consequent 
irrecoverable loss of non‑renewable resources 
and of material value. Both plastic production and 
plastic waste incineration contribute significantly to 
the generation of greenhouse gas emissions. The 
European strategy highlights the growing consumption 
of 'single‑use' plastics, including packaging, that are 
especially prone to being littered and diluted into the 

Box 2.2 

Plastic waste prevention in the construction sector

Case study: Reuse in renovation of office buildings in Sweden.

Approximately EUR 2.8 billion is invested annually in renovating offices and shops in Sweden. The turnover of interior 
materials and products is high, as is the potential for reuse. A Swedish study (Andersson et al., 2018) concluded that the 
best potential for reuse was for office furniture and glass panels. The reuse of an office chair leads to the avoidance of, on 
average, 8 kg of plastic waste and 6 kg of metal. An adjustable office desk contains on average 2 kg of plastic and 20 kg of 
metal. In windows, the plastic content is around 5 %. The waste prevention potential of the renovation of a 2 000 m2 office 
with 170 staff is 40 kt (combined with avoiding 69 tonnes of CO2 emissions and monetary savings of EUR 0.2 million). On a 
national level, this translates into a 25 kt waste prevention potential, combined with a monetary saving of EUR 126 million 
and 43 kt CO2 in Sweden alone.

14

Preventing plastic waste in Europe 
The plastics life cycle

environment, generating significant economic and 
environmental burdens. Moreover, all plastics that are 
not captured by an appropriate waste management 
system will degrade into micro‑plastics that finally end 
up in marine or terrestrial ecosystems, including the 
human food chain (Gesamp, 2015).

In Europe, 27.1 million tonnes of plastic waste were 
collected for treatment in 2016 through official 
schemes in the 28 EU Member States (EU‑28), together 
with Norway and Switzerland. According to Plastics 
Europe, for the first time, more plastic waste was 
recycled than landfilled. A total of 31.1 % of plastic 
waste was recovered — but only 63 % of the plastics 
recovery took place in Europe (the rest was exported 
for recycling outside Europe) and only about 6 % of the 
current European demand for plastics was covered by 
recycled or secondary plastics (Plastics Europe, 2018).

Data on generation of plastic waste are not available 
at European level. However, due to the EU Member 
States' obligations towards the Packaging and 
Packaging Waste Directive, data on plastic packaging 
waste are available and credible. Plastic packaging 

waste is the single most important plastic waste 
stream and it is used here as a proxy for analysis of 
the plastic waste stream. Looking at developments 
in packaging waste, Figure 2.3 shows the increasing 
amount of plastic waste that has to be collected and 
treated. Compared with 2007, the average waste 
generation per capita in the EU‑28 in 2016 increased 
from 30.1 kg to 31.9 kg — an increase of more than 
6 %. Important drivers of packaging waste have been 
an increasing share of convenience food and food to 
go, smaller production units in the food sector and 
the booming and especially waste intensive online 
shopping sector (UBA, 2018, p. 43).

2.4  Plastic waste decoupling

As outlined previously, the EEA is required to 
specifically analyse the decoupling of waste 
generation from economic growth. Against this 
background, waste intensity — the link between 
waste generation and gross domestic product (GDP) 
— becomes a key indicator, as depicted in Figure 2.3, 
again taking the example of packaging 

Figure 2.3 

Plastic packaging waste generation (kg per capita) and plastic waste generation intensity 
(kg per capita and gross domestic product), EU‑28 (1)

103.89 

100 

100 

99.53 

99.53 

101.39 

100.40 

101.37 

99.44

100.47 

98.94 

101.22

100.42 

100.83 

97.81 

98.50

96.74 

106.05 

102.90 

102.32 

%

108

106

104

102

100

98

96

0

2007

2008

2009

2010

2011

2012

2013

2014

2015

2016

Waste intensity (index)

Plastic packaging waste (index)

Source:   Based on Eurostat (2018a, 2018b).

(1)  Waste intensity is defined as the waste generation divided by GDP.

15

Preventing plastic waste in EuropeThe plastics life cycle

waste. The increase of 2.9 % in waste intensity from 
2007 to 2016 is lower than the increase in total plastic 
packaging waste generation, indicating a relative 
decoupling of waste generation from economic 
growth. Nevertheless an increase in GDP still leads to 
an increase in plastic waste generation, which means 
that absolute decoupling of waste generation has not 
yet been achieved.

The overall EU‑28 trends result from diverging 
national trends, as depicted in Figures 2.4 and 2.5. 

According to Eurostat data (Eurostat, 2018a), the 
development of plastic packaging waste generation 
per capita in the countries from 2007 to 2016 
ranges from an increase of 96 % (Poland) to a 
decrease of 36 % (Greece). The economic level, 
structure and development of the countries play an 
important role, but also looking at plastic packaging 
waste intensity shows a very mixed picture: of the 
28 EU Member States, nine managed to at least 
decouple plastic packaging waste generation from 
economic growth.

Figure 2.4 

Percentage change in plastic packaging waste generation (per capita) between 2007 and 2016

Poland

Estonia

Slovakia

Hungary

Malta*

Finland

Germany 

Croatia**

Austria

Sweden

Lithuania

Latvia

Bulgaria

Ireland

Denmark

Czechia

EU-28

Belgium

Netherlands

Portugal

Luxembourg

Romania*

United Kingdom

Slovenia

Cyprus*

France

Italy

Spain

Greece*

96.0 

76.3 

57.5 

44.9 

29.6 

20.0 

17.0 

16.0 

15.6 

14.9 

14.6 

14.5 

12.3 

7.2 

6.7 

6.4 

6.0 

4.2 

3.8 

2.2 

1.0 

0.8 

-0.4 

-0.9 

-1.0 

-1.6 

-6.0 

-11.5 

-36.4 

-60 %

-40 %

-20 %

0 %

20 %

40 %

60 %

80 %

100 %

120 %

Notes: 

*Percentage change between 2007 and 2015; **percentage change between 2012 and 2016.

Source: 

Based on Eurostat (2018a).

16

Preventing plastic waste in EuropeThe plastics life cycle

The plastic packaging waste generation fluctuations 
in the various EU countries cannot necessarily be 
attributed to waste prevention measures. Municipal 
waste generation (including packaging) is affected 
by different factors such as household income, 
expenditure and household size per capita. Changes 
in these econometric factors might influence waste 
generation more than waste prevention measures. 
For example, some of the countries that demonstrate 
a relative decoupling of plastic packaging waste 
generation from economic growth in Figure 2.5 were 

deeply affected by the economic crisis that started 
in 2008. That is not to say that waste prevention 
is ineffective: many examples with measures 
targeting plastic carrier bags have shown impressive 
results (see Chapter 3). A systematic analysis and 
evaluation of the implementation of waste prevention 
measures can reveal their effectiveness and their 
impact on waste generation. Until this type of 
evaluation becomes widely available, data such as 
those presented in Figures 2.4 and 2.5 should be 
interpreted with caution.

Figure 2.5 

Percentage change in waste intensity (per capita) between 2007 and 2016

Estonia

Poland

Hungary

Finland

Slovakia

Cyprus*

Austria

Sweden

Croatia**

Germany

Denmark

Latvia

Luxembourg

Italy

Malta*

Portugal

EU‑28

Belgium

Netherlands

Slovenia

Czechia

France 

United Kingdom

Lithuania

Bulgaria

Spain

Romania*

Greece*

Ireland

71.2 

48.8 

33.3 

29.0 

28.4 

15.1 

14.3 

8.7 

8.6 

8.6 

7.8 

6.2 

4.3 

4.2 

4.0 

4.0 

2.9 

2.4 

2.3 

‑0.4 

‑2.0 

‑2.2 

‑2.6 

‑6.4 

‑8.3 

‑8.9 

‑14.6 

‑15.5 

‑18.4 

‑60 %

‑40 %

‑20 %

0 %

20 %

40 %

60 %

80 %

100 %

120 %

Notes: 

*Percentage change between 2007 and 2015; **percentage change between 2012 and 2016.

Source: 

Based on Eurostat (2018a, 2018b).

17

Preventing plastic waste in EuropePlastic waste prevention in the waste prevention programmes of EEA countries

3  Plastic waste prevention in the waste 

prevention programmes of EEA countries

This chapter provides an analysis of how plastic 
waste is dealt with in countries' waste prevention 
programmes. The assessment follows the 
structure below:

1.  the extent to which plastic waste is addressed in the 

prevention programmes;

2.  measures envisaged for implementing prevention 

of plastic waste;

3.  mapping of targets and indicators for plastic waste 

prevention.

To support the assessment, a combination of 
publicly available information (as it appears in 
countries' prevention programmes) and the results 
of the European Environment Information and 
Observation Network (Eionet) survey were used. Waste 
prevention programmes have been officially adopted 
by 31 EEA countries: the EU Member States (except 
for Cyprus) and also four non‑EU countries that are 
members of the EEA (i.e. Norway, Iceland, Switzerland 
and Turkey).

By addressing the above three aspects of 
implementing plastic waste prevention, the 
assessment aims to identify deficiencies and 
successes in the entire policy chain with a view to 
providing solid recommendations for improvement, 
on the one hand, and underline the success stories and 
best practices, on the other. In this way, the analysis 
has a broader objective, that of providing feedback 
to countries on how to best implement plastic waste 
prevention by respecting the overarching EU waste 
prevention legislation.

3.1  Waste prevention programmes and 

plastic waste

To assess the position of plastic waste within ountries' 
waste prevention policies (including the waste 
prevention programmes), the following elements 
were examined:

1.  plastic waste declared as a priority waste stream in 

the waste prevention programmes;

2.  concrete measures taken or planned to address 

plastic waste prevention;

3.  objectives, quantitative targets and indicators of 
plastic waste prevention adopted by countries' 
waste prevention policies and strategies.

The second and third elements are examined in the 
following sections.

With regard to prioritising plastic waste, the results 
of the survey conducted show that plastic waste is 
declared as a priority waste stream by around half of 
the countries investigated. Thus, 14 countries and five 
regions (i.e. Brussels‑Capital Region and Flanders, as 
well as Scotland, England and Wales) have declared 
plastic waste as a priority waste stream within their 
waste prevention programmes, while 15 countries 
and two reporting regions did not. Table 3.1 depicts 
the survey results.

The survey results suggest that plastic waste 
prevention is considered a priority issue for many 
EEA countries, although a significant number of 
countries did not articulate a focus on plastics as a 
priority material with specific chapters in their waste 
prevention programmes. An increase in the strategic 
and policy attention given to plastics at EU level, 
such as the recent development of a plastics strategy 
and the Single Use Plastics Directive may enhance 
efforts to prevent plastic waste in the countries.The 
survey results suggest that plastic waste prevention 
is considered a priority issue for many EEA countries, 
although a significant number of countries did not 
articulate a focus on plastics as a priority material 
with specific chapters in their waste prevention 
programmes. An increase in the strategic and policy 
attention given to plastics at EU level, such as the 
recent development of a plastics strategy and the 
Single Use Plastics Directive may enhance efforts to 
prevent plastic waste in the countries.

18

Preventing plastic waste in EuropePlastic waste prevention in the waste prevention programmes of EEA countries

Table 3.1 

Prioritisation of plastic or packaging waste within waste prevention programmes

Austria

Belgium  
(Brussels‑Capital Region)

Belgium (Flanders)

Belgium (Wallonia)

Bulgaria (a)

Croatia

Czechia

Denmark

Estonia

Finland

France

Germany

Greece

Hungary

Iceland

Ireland (a)

Italy (a)

Latvia (a)

Lithuania

Luxembourg

Malta (a)

Netherlands (a)

Norway (a)

Poland

Portugal

Romania

Slovakia

Slovenia

Spain

Sweden

Switzerland

Turkey

United Kingdom 
(Northern Ireland) (a)

United Kingdom (Scotland)

United Kingdom (England)

United Kingdom (Wales)

Cyprus 

n/a

Packaging or plastics mentioned as priority waste stream/priority sector

Packaging or plastics may be addressed but not mentioned as priority waste stream/priority sector

Notes: 

(a) No data available based on Eionet survey; data obtained based on desktop research 
n/a, data not available.

3.2  Policy instruments and measures

•  map where interventions are anticipated in 

terms of supply chains;

All waste prevention programmes include measures 
that either directly address plastic waste prevention 
or are horizontal measures that also refer to avoiding 
plastic waste. In addition, a variety of countries have 
initiated targeted measures with regard to specific 
plastic products such as plastic bags (see Box 3.1), 
single‑use plastics or micro‑plastics. Several countries 
(e.g. Denmark and Belgium) have developed or are 
currently developing comprehensive plastic strategies 
that contain dedicated policy instruments on plastic 
waste prevention.

Through the review of the published and adopted waste 
prevention programmes, supplemented by the country 
responses to the Eionet survey, a total of 173 plastic 
waste prevention measures have been identified. The 
measures are not in most cases presented as supporting 
concrete targets but rather as generic objectives of waste 
prevention as a whole, namely reducing the amount of 
waste generated. In this chapter, the type and nature of 
these measures is analysed in order to:

•  correlate the three parts of the waste prevention 
definition and the different types of measures;

•  understand the type of interventions these 

measures reflect.

This assessment aims to better analyse the 
prevention measures with the goal of identifying 
areas of intervention where sufficient measures are 
taken (among which, best practice examples can be 
identified) and areas that are not well covered by the 
countries' initiatives.

Of the 173 measures, 61 % cover the production 
phase of plastic products and 39 % cover the 
consumption phase. Production‑oriented measures 
may refer to reducing production by, for example, 
smart packaging design or banning specific plastic 
products, while consumption‑oriented measures 
can be, for example, information campaigns or fees 

19

Preventing plastic waste in Europe 
 
Plastic waste prevention in the waste prevention programmes of EEA countries

Figure 3.1 

Distribution of measures identified 
according to waste prevention type

Figure 3.2 

Distribution of measures identified 
according to instrument type

14

5

150

25

36

69

30

3

Amount of measures

Reduce impacts from waste

Amount of measures

Reduce waste amounts

Reduce hazardous substances

Informative

Regulatory

Market based

Voluntary agreements

Financing

for specific plastic products such as plastic bags. 
The balance between these two types of measures 
is in line with the European Commission's plastics 
strategy, which in its Vision 2030 highlights the role 
of an innovative and sustainable plastics industry.

With respect to the three parts of the waste 
prevention definition (see Section 1.4), the majority 
of prevention measures set forth by the countries 
deal with quantitative prevention (Figure 3.1). Only 
14 measures can be identified as directly relating 
to the second part of the definition and they mainly 
address eco‑design. Regarding the reduction of 
hazardous substances in plastic products (part three 
of the definition), only five measures explicitly mention 
this objective. It is clear that the countries consider 
waste reduction, in terms of volumes generated, 
as the most important aspect of waste prevention, 
and the countries therefore support this objective 
with a wide variety of policy measures. It should 
be mentioned that in conducting this analysis only 
dedicated waste prevention measures were taken 
into account; countries might have measures in place 
that address eco‑design or the presence of hazardous 
substances in other pieces of legislation such as acts 
and ordinances for hazardous waste management.

of plastic waste prevention. This analysis has, 
of course, to take into account that the number 
of measures is not necessarily related to their 
effect on plastic waste generation or reduced 
environmental burdens. Nevertheless, it hints 
at the clearly expressed will of policymakers to 
effectively address the issue of plastic waste in the 
seas and oceans as well as onshore.

3.3  Good practice examples

This section identifies good practice examples from the 
information gathered during the review behind this 
report. The good practice examples are presented per 
type of policy measure (i.e. regulatory, market based, 
financing, voluntary and informative). The selection of 
examples aims to highlight the broad range of activities 
with regard to different products or waste streams 
and the different actors who initiated such measures 
or actively support them, as well as the large number 
of countries that implement plastic waste prevention 
measures. Many of these measures are implemented in 
various countries and the following examples obviously 
cannot give a comprehensive overview but aim to 
showcase especially inspiring approaches.

With regard to the choice of different types 
of policy instrument, Figure 3.2 differentiates 
between regulatory, market‑based and informative 
instruments as well as voluntary agreements and 
financing schemes.

Overall, countries show a clear focus on 
informative instruments (42 % of all measures) 
but, compared with the analysis in previous waste 
prevention progress reports, the share of more 
stringent and binding regulatory and market‑based 
instruments is significantly higher in the field 

Regulatory instruments are mandated by law and 
cover, for example, bans, prohibitions and standards. 
National and EU‑wide regulations can contribute to 
plastic waste prevention in several ways: they can, for 
instance, manage chemical content in plastic products, 
especially with threshold and authorised substances. 
They can also regulate access to the market by 
restricting production and commercialisation of specific 
plastic products. Of the measures mapped, 25 fall 
into this category, and they refer mainly to measures 
banning micro‑plastics, micro‑beads and some types of 
single‑use plastics. With regard to the product groups 

20

Preventing plastic waste in EuropePlastic waste prevention in the waste prevention programmes of EEA countries

Table 3.2 

Good practice examples of implemented regulatory instruments

Country

Description

France

United 
Kingdom

United 
Kingdom

Review of the packaging regulations to strengthen the prevention of overpackaging, the use of reusable packaging 
and the marketing of easily recyclable packaging. The current system includes, inter alia, a bonus of 8 % on the 
licence fee if the producer can prove an overall volume reduction, for example due to product concentration or 
deployment of refills.

Bans on certain single‑use plastics: in October 2018, the British Government set out its plan to ban the distribution 
and sale of plastic straws, plastic drink stirrers and cotton buds. Although non‑plastic alternatives are readily 
available, these single‑use plastic items are used for just a few minutes but take hundreds of years to break down. 
Cleaning up the effects of littering costs local government millions of pounds every year; limited exemptions will be 
discussed where using plastic straws is necessary (e.g. for medical reasons).

In Scotland, it is a criminal offence to manufacture or sell rinse‑off personal care products containing plastic 
micro‑beads. Ban infringement will result in penalties of up to 2 years imprisonment or a fine of up to GBP 5 000. 
Scotland announced the proposal to ban the manufacture and sale of plastic‑stemmed cotton buds in January 2018. 
A public consultation closed in June 2018 and the results were published in July 2018. Regulations have been drafted 
and are expected to be laid in parliament in May 2019, with an anticipated enforcement date in June 2019.

Box 3.1 

Examples of plastic bag regulations and their effects in Europe

Denmark has introduced the so‑called green taxes on packaging and plastic bags. The taxes cover all bags that have 
the capacity to handle at least 5 litres and that can be reasonably replaced by cloth bags, carrier nets and the like. Very 
strong plastic bags directly comparable with cloth bags and carrier nets are not covered by the tax, which amounts to 
DKK 22/kg. Consumers are paying DKK 2‑3.50 per bag. The revenue for retailers is in certain cases around DKK 1 per bag. 
The introduction of the tax halved consumption from around 800 million bags to 400 million bags, which amounts to 
around 80 bags per person annually.

In January 2018, Greece, in line with the Plastic Bags Directive (1) introduced a mandatory environmental fee of EUR 0.03 
(also subject to VAT) per lightweight (thinner than 50 μm) plastic bag, increased to EUR 0.07 per bag since January 2019, and 
(2) prohibited the supply of 50‑70 μm thin plastic bags free of charge at the point of sale of goods. The revenue collected 
through the aforementioned fee is earmarked for activities to produce, distribute and promote the use of reusable, 
biodegradable and compostable bags. Since the implementation of this measure, the reduction in the use of lightweight 
plastic carrier bags has reached 80 % in larger stores, mainly supermarkets, and 60 % in other stores.

In Portugal, the Green Taxation Reform imposed a charge on lightweight plastic bags (< 50 μm thickness plastic film), which 
has been applied since February 2015. Excluded are thin plastic bags used as bags primarily in contact with food. The charge 
amounts to EUR 0.10 per bag. Since the introduction of this tax, the use of plastic bags at stores and supermarkets across 
the country has seen a drop of more than 90 %.

In Sweden, in line with a voluntary agreement, supermarkets charge EUR 0.2‑0.5 for plastic bags. Furthermore, a law 
requires anyone selling or giving away plastic bags to provide information about how plastic bags affect the environment 
and how consumers can reduce their consumption. One year after this law had been introduced, consumption declined by 
35 % according to the Swedish Trade Federation. 

In line with a voluntary agreement, since 2017 in Switzerland, predominantly big retailers have charged CHF 0.05 per 
lightweight plastic bag (with a few exceptions, mainly for primary bags used for vegetables and fruits). After 1 year, this 
measure resulted in an 84 % decrease in consumption of these plastic bags (compared with 2016). Plastic bags, other than 
lightweight plastic bags have, for some time, been chargeable (CHF 0.20 per bag) in grocery stores (sometimes also in retail 
stores selling other products).

In the United Kingdom, various laws require a charge of GBP 0.05 per bag. In England, customers now purchase the 
equivalent of just 19 bags per person annually, compared with 140 bags previously, since the government introduced the 
charge in 2015 (i.e. a reduction of 86 %). In Scotland, the respective law came into force in 2014. Since then, a reduction of 
80 % has been achieved. The Scottish Government has committed to increasing the charge to GBP 0.10 as soon as possible. 
In Wales, where the GBP 0.05 charge had already been introduced in 2011, a reduction of 70 % was achieved by 2014. During 
2017/18 Northern Ireland saw a reduction in bag numbers of 67.1 %. Compared with a baseline of 300 million bags in 2014, 
some 98.8 million bags dispensed by retailers in 2017/18. 

An overview of all policy instruments for reducing the use of plastic bags as reported in the Eionet survey is provided in 
Annex 4, Table A4.1.

21

Preventing plastic waste in Europe 
Plastic waste prevention in the waste prevention programmes of EEA countries

addressed, the measures identified predominantly 
refer to plastic bags, single‑use plastics and cosmetics, 
and thus contribute to implementing European policy 
initiatives. For example, under the EU Plastic Bags 
Directive (amended Directive 94/62/EC), national 
governments must ensure that by the end of 2019 no 
more than 90 lightweight bags are consumed annually 
per person. By the end of 2025, that number should 
drop to 40 bags per person. Table 3.2 shows some 
good practice examples of regulatory instruments. 

preventing plastic waste. If well‑designed, they 
could also give rise to revenue for supporting 
national budgets as well as eventually acting as a 
means of reducing the reliance on labour‑related 
taxes (OECD, 2018). The review of the country 
measures revealed that 37 of the 173 identified 
measures are market based. The majority of the 
market‑based instruments referred to fees for 
plastic carrier bags. Table 3.3 shows some good 
practice examples of market‑based instruments.

Market‑based instruments are instruments for 
policymakers who wish to address environmental 
issues and achieve environmental objectives 
by encouraging targeted changes in business 
practices and consumer behaviour. Taxes and fees, 
subsidies and extended producer responsibility, 
and deposit refund schemes are known 
market‑based instruments that can contribute to 

Voluntary agreements usually refer to agreements 
that are not the result of an exclusively political 
decision‑making process but the outcome of 
negotiations between social partner organisations 
and other relevant stakeholders. Since the 1990s, 
the EU has been developing a new regulatory policy, 
which increasingly puts emphasis on the use of such 
alternative instruments that are complementary 

Table 3.3 

Good practice examples of implemented market‑based instruments

Country

Description

Several

Portugal

Pursuant to national packaging ordinances, the collection and recovery of packaging waste are financed through 
fees charged for participating in a collection and recovery scheme. The participation fees are calculated according 
to the specific material used in the packaging distributed and the weight thereof, and thus set incentives to avoid 
unnecessary packaging.

The Portuguese National Budget Law for 2018 established an interministerial working group coordinated by the 
Portuguese Environment Agency to evaluate the application of fiscal incentives associated with the reduction in 
the consumption of plastic bags and their applicability to other disposable plastic products of fossil fuel origin.

Table 3.4 

Good practice examples of implemented voluntary agreements

Country

Description

Czechia

Luxembourg

The Ministry of the Environment of Czechia enters voluntary agreements with restaurants and refreshment 
outlets in shopping centres, cafes or fast food shops to make sure that customers have the opportunity to 
return their plastic dishes.

The multiple‑use 'eco‑sac' carrier bag was introduced through a voluntary agreement between the 
Luxembourg Ministry of Sustainability and Infrastructures, the Luxembourgish Confederation of Commerce 
and VALORLUX a.s.b.l., a non‑profit association and licensee of 'Green Dot Luxembourg', as part of the national 
waste prevention plan. Since the project's start, there has been a saving of some 300 million disposable 
shopping bags. Thanks to the eco‑sac, the emissions of CO2 equivalent, linked to the production of disposable 
shopping bags, have been reduced by 1 000 tonnes annually.

Netherlands

The Sustainability Agenda for Packaging, as agreed in the Packaging Framework Agreement, was implemented. 
The main subjects for 2015 are reviewing the highest achievable goals in the branch sustainability plans, 
supervising research into the environmental effects of the Packaging Agreement 2013‑2022 and carrying out 
the academic research programme. 

United 
Kingdom

United 
Kingdom

The UK Plastics Pact is a voluntary pact between industry, the Waste & Resources Action Programme and 
the Ellen MacArthur Foundation, which seeks to create a circular economy for plastics. It brings together 
businesses from across the entire plastics value chain with the British government and non‑governmental 
organisations (NGOs) to tackle plastic waste. The targets include eliminating unnecessary single‑use packaging 
by 2025.

The Courtauld Commitment, a voluntary agreement aimed at improving resource efficiency and reducing 
waste within the United Kingdom's grocery sector, was implemented. The agreement is funded by the devolved 
governments of England, Scotland, Wales and Northern Ireland. It was launched in 2005 and is now in its third 
phase, which includes the quantified target to reduce traditional grocery ingredient, product and packaging 
waste in the grocery supply chain by 3 %.

22

Preventing plastic waste in EuropePlastic waste prevention in the waste prevention programmes of EEA countries

to traditional legislation. There are 30 voluntary 
agreements on plastic waste prevention that have 
been initiated in different forms with different sets of 
stakeholders across the countries reviewed. They often 
include specific targets that are monitored by internal 
or external parties. Table 3.4 shows some good practice 
examples of voluntary agreements.

Financial instruments are a different type of 
measure. Public investment can support the 
implementation of regulatory as well as market‑based 
instruments. Different forms of investments can 
support various stakeholders and be applied to 
several stages of the plastic product's life cycle. 
Development of infrastructure for plastic waste 
prevention and management, provision of funding 
for research and development and new businesses 
and green public procurement are instruments 
identified that can contribute to preventing plastic 

waste (OECD 2018; EC, 2018b). However, only three 
measures (from Austria, Sweden and the United 
Kingdom) have explicitly earmarked funds for waste 
prevention activities. Table 3.5 shows some good 
practice examples of financial instruments.

Informative instruments that can facilitate the 
exchange of information among the plastics value 
chain and influence the behaviour of targeted 
stakeholders can contribute to preventing plastic 
waste. Awareness and education, as well as 
environmental labelling are identified tools that 
public authorities can implement to achieve that 
purpose and they are all reflected in the measures 
planned by the countries. Of the reviewed 
measures, 69 are informative; thus, this type of 
instrument is the most popular type identified. 
Table 3.6 shows some good practice examples of 
informative instruments.

Table 3.5 

Good practice examples of implemented financial instruments

Country

Description

Austria

Sweden

In compliance with a provision of the Austrian Federal Waste Management Act, the Austrian collection and 
recycling systems for packaging make 0.5 % of the fees collected available for the promotion of waste prevention 
projects.

From 2018 until 2020, the government will allocate more than SEK 100 million annually to minimise the negative 
impacts of micro‑plastics and plastics. The funds will be used to reduce the release of micro‑plastics into the 
aquatic environment, to aid municipalities in cleaning beaches and for a public information campaign to reduce 
littering and increase understanding of the environmental impact of plastic. The funds may also be used to 
encourage the innovation of sustainable solutions, to develop standards to promote plastic recycling, etc., and 
other measures to recue plastic in the oceans and nature. 

United 
Kingdom

Micro‑plastics research: approximately GBP 54 million has been invested in plastics innovation in the past 7 
years. The research reports, inter alia, that 9 out of the 10 most common types of plastics were discovered in 
stool samples, and suggests that plastic packaging and synthetic fibres are sources of the plastic, while being 
clear that any impact on the human body is yet to be studied in depth. A further GBP 60 million was announced 
in December 2018 for development of sustainable plastic packaging, subject to matched funding from industry

Table 3.6 

Good practice examples of implemented informative instruments

Country

Description

Austria

Greece

Waste consultancy training in the packaging sector, through the packaging coordination centre; promoting the 
issue of waste prevention at consumer level.

A pilot project for public fountains aims to prevent the use of plastic bottles; it started in the municipality of 
Athens with the intention of expanding to other municipalities.

Italy

Promoting points of sale for loose/bulk products.

Poland

Slovenia

Developing and implementing a database dedicated to products, packaging and waste management that will 
enable monitoring of waste prevention.

A consumer awareness programme for the reduced use of lightweight plastic bags and educational programmes 
for children.

23

Preventing plastic waste in EuropePlastic waste prevention in the waste prevention programmes of EEA countries

Table 3.7 

Identified plastic waste prevention targets

Target

Country

Absolute numerical targets (× kg of waste reduction or 
percentage reduction compared with baseline) for specific 
waste materials

Austria, Belgium, France, Romania, Switzerland,  
United Kingdom

Decoupling targets (reduction targets in relation to economic 
indicators)

Estonia, Lithuania

Reduction target combined with quantitative target

Sweden

Quantitative target for reuse

Romania, United Kingdom

3.4  Targets

3.5 

Indicators

Table 3.7 shows a summary of all waste 
prevention‑related targets set by countries. The 
targets might refer to entire waste streams such as 
municipal waste (including packaging), packaging 
waste, plastics or specific products such as plastic 
carrier bags. The targets are rather diverse as they 
are quantitative, qualitative and related to economic 
indicators or not.

Within their waste prevention programmes, EEA 
member countries have set out various indicators by 
which the development of plastic waste prevention can 
be measured and distance to target can be assessed. 
Table 3.8 depicts the indicators and shows that they 
can be condensed into five types, measuring:

1.  the amount of plastic waste/plastic packaging waste;

Only 9 countries have explicit waste prevention 
targets included in their prevention programmes. 
This might be explained by the fact that measuring 
prevention is challenging, as a country needs to 
measure 'what is not there' in the case of waste 
reduction. Moreover, it is difficult to evaluate the 
effect of measures on waste reduction targets, as 
waste generation is affected by many factors other 
than waste prevention measures, such as economic 
developments and lifestyle changes.

Apart from quantitative targets, qualitative objectives 
have also been declared in the waste prevention 
programmes. These objectives mostly remain on a 
more general level, such as reducing plastic waste 
or the volume of municipal waste. However, some 
ambitious objectives have been adopted, such as the 
objective in the United Kingdom (Wales) to develop a 
zero waste society by 2050.

The absence of concrete targets for prevention in 
most countries makes the process of implementing 
policy more difficult. Without a target functioning 
as a reference point, it is difficult to assess progress 
(indicators) and to evaluate and review the wide 
variety of policy measures taken in the field of waste 
prevention. On the other hand, the presence of 
concrete targets dictates to a certain extent the type of 
policy measures required, their appropriateness and 
the effort needed to implement them.

2.  the reuse of plastics/plastic packaging;

3.  the introduction of deposit fees;

4.  the number of measures implemented for plastic 

waste prevention;

5.  the use of plastic carrier bags.

Apart from the indicators of plastic waste 
prevention stated in waste prevention programmes, 
as depicted in Table 3.8, some countries and regions 
have developed targets for, and indicators of, plastic 
waste prevention in other strategic documents (for 
an overview, see Table A3.1 in Annex 3). Some of 
these strategic documents focus particularly on 
plastic waste prevention.

For example, in the United Kingdom, the 
'Plastics Pact' has been adopted as a voluntary 
pact between industry, the Waste & Resources 
Action Programme and the Ellen MacArthur 
Foundation. The Plastics Pact has been signed 
by 68 organisations representing 80 % of plastic 
packaging sold through supermarkets in the 
United Kingdom. In this agreement, the following 
targets have been set for 2025:

•  100 % of plastic packaging to be reusable, recyclable 

or compostable;

24

Preventing plastic waste in EuropePlastic waste prevention in the waste prevention programmes of EEA countries

Table 3.8 

Indicators of plastic waste prevention in waste prevention programmes

Country

Indicator

Indicators relating to the amount of plastic waste/plastic packaging waste (a)

Belgium (Brussels‑Capital Region)

Volume of household packaging waste (kg)

Denmark

Estonia

Lithuania

Poland

Slovakia

Spain 

Trends in the amount of packaging and the proportion of packaging that is 
collected for recycling and recovery

Growth rate of packaging waste generation in relation to the growth rate of 
gross domestic product

Quantity of packaging placed on the domestic market (per capita) 

Quantity of packaging waste (kg) in relation to the volume of products put on 
the market (kg)

Amount of packaging waste generated and ratio of plastic packaging waste to 
amount of plastic packaging put on the market

Amount of packaging waste generated per year

Indicators relating to the reuse of plastics/ plastic packaging 

Greece 

Iceland (b) 

Percentage of reusable plastic packaging

The proportion of reusable beverage packaging in total packaging bearing a 
recycling deposit

Indicators relating to the introduction of deposit fees

Germany

Iceland (b)

Amount of returnable (reusable) beverage packaging

Proportion of beverage packaging for which customers can receive a recycling 
deposit in the total amount of beverage packaging 

Indicators relating to the number of implemented measures for plastic waste prevention

Greece 

Italy (b)

Number of awareness raising events

Number of signed agreements to promote points of sale of loose/bulk products 
and number of businesses that sell loose/bulk products

Number of information campaigns created to encourage the consumption of 
tap water instead of bottled water

Number of programme agreements to encourage the use of tap water

Sectoral indicators

United Kingdom (England)

Amount of packaging waste in grocery supply chains

Indicators referring to the use of plastic carriers bags

Bulgaria (b)

Croatia

Iceland (b)

Romania

Slovenia

Switzerland

Turkey

Amount of used polymer bags

Number of bags put on the market

Number of new plastic carrier bags made per year

Number of shopping bags

Number of plastic bags (very lightweight plastic carrier bags are excluded)

The percentage reduction of lightweight plastic bags compared with a reference 
year (based on a voluntary agreement of the retailers)

Consumption of single‑use carrier bags

United Kingdom (Northern Ireland) (b)

Consumption of single‑use carrier bags

Notes: 

Some countries might use a combination of indicators to account for waste prevention (e.g. in Austria the combination of 'amount 

(a) 
of residual waste' and 'quantity of separately collected waste packaging') but these are not reflected in this table.

(b)  No data available based on Eionet survey; data obtained based on desktop research.

n/a 

Information not indicated in Eionet survey.

25

Preventing plastic waste in Europe 
 
Plastic waste prevention in the waste prevention programmes of EEA countries

Box 3.2 

Examples of monitoring schemes for plastic waste prevention

Belgium — Flanders region

Together with Flemish industry, quantitative targets were set out. Progress in accomplishing the targets will be monitored by 
the Flemish government: 

By 2022, 90 % of beverage packaging is collected and recycled.

By 2023, 65 % of all plastic packaging is recycled. By 2030, 70 % of all plastic packaging is to be recycled. 

By 2025, 95 % of all household packaging is recycled. These targets are laid down in the agreement with the sector. If they 
are not met, considerable fines will be imposed. The fines set out in the agreement will be increased.

In addition, these types of ambitions and targets have been formulated for other waste fractions commonly found in litter. It 
is hoped there will be enthusiastic uptake by the sector, but failing that the government will impose higher targets.

By the end of 2023, the Flemish government will re‑evaluate the situation. If the targets are not met, the sector will be asked 
to organise deposit schemes or introduce a general reward system.

The Flemish government will monitor the general packaging targets and the material‑related packaging targets via the 
reporting instruments that are in place for monitoring the implementation of the Packaging and Packaging Waste Directive. 
For the monitoring of targets specific to beverage packaging, new parameters are proposed for inclusion in the new 
legislation (inter‑regional cooperation agreement on packaging waste). The sector will be asked to report on the specific use 
of packaging for beverages; for each material used it will have to report in detail the quantity placed on the market and the 
quantities collected and recycled. For this target, OVAM, the Flemish government service dealing with waste, will propose a 
methodology that differs slightly from the methodology used in the Directive. There must be scrutiny of the collection and 
recycling of glass beverage packaging because glass is heavier than other beverage packaging materials and may skew the 
calculation of the recycling targets. In fact, it should be ensured that the targets are not met by including this category of 
beverage packaging.

Austria

In July 2016, in Austria, the voluntary agreement for reducing the use of carrier bags came into force. An increasing number 
of Austrian retail companies have entered into this voluntary agreement, which was initiated by the Federal Ministry for 
Sustainability and Tourism. The agreement includes the following objectives:

The use of carrier bags made of all kinds of materials will be reduced.

The number of plastic carrier bags put on the market should be reduced by 50 % by 2019 (reference year 2014).

For all kinds of carrier bags, a fee has to be charged that corresponds at least to the wholesale price. Retailers can 
differentiate the price depending on material, size or the wall thickness of the bags.

Bags for fresh food that is sold loose, such as meat, fish, fruit, vegetables, herbs, bread or pastries, or snacks, are excluded.

Every year, on 31 May, the Federal Ministry for Sustainability and Tourism (BMNT) draws up a report on the carrier bags put 
on the market in Austria and on the progress towards achieving the objectives. The first report was due on 31 May 2017. 
Data are provided by the companies taking part (the number of carrier bags placed on the market, broken down by material 
and, in the case of plastic carrier bags, according to wall thickness.)

26

Preventing plastic waste in Europe 
Plastic waste prevention in the waste prevention programmes of EEA countries

•  70 % of plastic packaging to be effectively recycled 

or composted;

of Flanders, Wallonia and Brussels‑Capital. The 
aim of this agreement is to prevent and manage all 
packaging waste on Belgian territory.

•  problematic or single‑use packaging items to 

be eliminated through redesign, innovation or 
alternative (reuse) delivery models;

•  30 % average recycled content across all plastic 

packaging.

In the United Kingdom (Scotland), a ban on plastic 
cotton buds is in place, and a deposit return system will 
be in place by 2020. Scotland has also committed to a 
ban on non‑recyclable single‑use plastics from 2030, 
and its carrier bag charge has reduced plastic bags in 
circulation by over 80 %. Scotland's circular economy 
strategy, 'Making Things Last', has been in place 
since 2016 and its circular economy investment fund 
supports innovative circular technologies, including 
recycling plastics. All of this is supported by more 
general waste management targets:

• 

Reduce waste arising by 15 % by 2050 against the 
2011 baseline of 13.2 million tonnes.

•  No more than 5 % of all waste is to go to landfill 

by 2025.

• 

Recycling targets: 70 % of all waste by 2025 and 
60 % of household waste by 2020.

Furthermore, in the United Kingdom (England) 
the 25‑year environment plan aims to eliminate all 
avoidable waste by 2050 and all avoidable plastic 
waste by the end of 2042. An additional target refers 
to working towards all plastic packaging placed on 
the market to be reusable, recyclable or compostable 
by 2025.

In Belgium, a cooperation agreement on packaging 
waste has been concluded between the three regions 

Finally, in Switzerland, the Swiss ordinance on 
beverage packaging fixes a minimum rate of 75 % 
of material recovery of polyethylene terephthalate 
(PET) bottles put on the market yearly. In 2017, a 
material recovery rate of 83 % was reached with 
a collection rate of 92 %. The recycling system is 
based on a voluntary prepaid disposal fee and offers 
more than 50 000 collection points for PET bottles in 
Switzerland.

In addition to introducing specific targets, several 
countries and regions have also reported specific 
monitoring schemes as shown in Box 3.2.

Based on the depicted survey results, several 
conclusions can be drawn. First, survey results 
show that a broad range of indicators concerning 
plastic waste prevention has been developed in 
EEA member countries. However, particularly 
the indicators developed in waste prevention 
programmes (see Table 3.8) are in many cases not 
connected to targets for indicator development. 
Indicators normally measure progress, but in the 
absence of concrete targets, progress is more 
difficult to assess. 

Second, the diversity of indicators applied inhibits 
comparison of the state of plastic waste prevention 
across EEA member countries at present. The fact 
that there are no EU‑wide prevention targets, data 
flows and indicators leaves room for countries 
to develop their own tools to implement waste 
prevention policies. This means that comparing 
actions across countries is not possible, but, on the 
other hand, a lot of country‑specific knowledge and 
experience is developed that can be communicated 
across EEA member countries.

27

Preventing plastic waste in EuropeKey findings, policy options and future prospects

4  Key findings, policy options and future 

prospects

4.1  Key findings

Plastic waste and, in particular, its prevention has 
become an important policy issue and highlights the 
growing role of waste prevention in the transition 
towards a circular economy. Currently slightly more 
than 30 % of plastic waste is collected for recycling. 
In its plastics strategy, the European Commission 
notes that plastic recycling has not kept pace with 
the increasing global production of plastics and that 
plastic waste that leaks into the environment poses a 
severe threat not only to marine ecosystems but also 
economic activities such as fishing and tourism.

Against this background, plastic waste prevention is 
directly addressed as a policy priority, for example in 
the revised Waste Framework Directive, the revised 
Packaging and Packaging Waste Directive, the plastics 
strategy and the Single‑Use Plastics Directive. In 
addition, industry and other organisations, and 
stakeholders have initiated various measures that aim 
to fight plastic pollution and have called for innovative 
policy instruments to avoid plastic waste at source.

The challenge of implementing plastic waste prevention 
is significant. The plastic family consists of thousands of 
materials used in wide‑ranging applications that span 
various economic sectors. Some of these applications 
even help implement waste prevention, for example 
by reducing food waste or by enabling lightweight 
design solutions. Moreover, prevention is expected to 
overcome inherent technical barriers, consumption 
patterns, established value chains and economic 
barriers. For example, the absence of commercial 
recycling technologies for certain plastic materials 
restricts efforts to design for recycling. Nevertheless, 
there is a clear need to decouple economic growth 
and well‑being from ever‑increasing waste generation. 
Taking the example of plastic packaging waste as 
the most important plastic waste stream, the 28 EU 
Member States failed to achieve such a decoupling 
in the last decade. The future outlook hints at 
ever‑increasing pressures from plastic waste and 
packaging waste in particular (EC, 2018a).

The survey conducted in the context of this report first 
mapped the indicators and connected targets that have 

already been introduced by EEA member countries. In 
summary, five aspects of plastic waste prevention are 
reflected in the indicators adopted:

1.  the amount of plastic waste;

2.  the reuse of plastics;

3.  the proliferation of deposit fees;

4.  the number of implemented measures on plastic 

waste prevention;

5.  the use of plastic carrier bags.

Furthermore, the analysis has shown that indicators 
introduced by the countries are often not yet 
connected to concrete targets.

In their waste prevention programmes, and additional 
strategies on plastics in general or those focused on 
specific product groups/materials (e.g. micro‑plastics or 
plastic bags), the countries have already developed a 
broad range of measures on plastic waste prevention. 
For this report, 173 specific measures have been 
reported and analysed — mostly informative and 
awareness‑raising measures but with an increasing 
share of binding regulatory or market‑based measures.

4.2  Conclusions and policy options

This report addressed a range of questions, as laid out 
in Section 1.2. The assessment provided some insights 
to improve our understanding of the way countries 
have implemented waste prevention for plastics.

•  Main focus of initiatives

Most countries have opted to adopt softer measures 
to support preventing plastic waste. With the 
exception of legislative requirements, such as the levy 
on plastic carrier bags, the majority of the identified 
prevention measures refer to voluntary agreements 
and informative instruments. These primarily aim 
to increase cooperation among stakeholders across 
the plastics value chain and exchange information. 

28

Preventing plastic waste in EuropeKey findings, policy options and future prospects

Some agreements even set out targets and monitoring 
schemes. There are some stricter measures that 
focus on banning certain types of plastics such as 
micro‑beads and there are others that countries have 
adopted in order to be prepared for the new legislation 
on single‑use plastic products.

•  Policy structure (targets, indicators, measures)

The waste prevention policy domain in general lacks 
initiatives that include concrete targets, and plastic 
waste prevention is no exception. Very few countries 
have put in place quantitative targets, although some 
have adopted qualitative ones. These include plans to 
decouple waste generation from economic growth or 
targets on reuse. On the other hand, most countries 
have decided to collect data and information for 
developing indicators and monitoring progress 
towards implementing waste prevention. Again, a 
lot of the indicators are related to the consumption 
of plastic carrier bags, which is related to the 
corresponding EU legislation.

Another aspect is the lack of evaluation of measures 
implemented and targets agreed. Without a proper 
evaluation, we cannot draw conclusions on the 
effectiveness of measures and the ambition of 
targets. Most of the countries' waste prevention 
programmes are still ongoing and have not yet been 
evaluated or replaced. In the coming years, these 
evaluations will help achieve a better understanding 
of which of the implemented measures, specifically 
which types of targets and incentives, have proven to 
be most effective.

•  Good practice examples

This report has identified a range of good practice 
examples that go beyond the average status of waste 
prevention in Europe. The examples include both 
regulatory initiatives, such as banning certain plastic 
products, and softer measures, such as stakeholder 
agreements for reducing the consumption of plastic 
products (mainly packaging), and training and capacity 
building. Unfortunately, there are very few cases in 
which the initiatives adopted have been properly 
evaluated; therefore, most of the good practices 
identified lack the evaluation element that could help 
draw conclusions on their effectiveness.

•  Areas of improvement

The analysis conducted in this report revealed 
improvement opportunities to make preventing 
plastic waste more effective. Efforts to increase plastic 

waste prevention need to become focused, better 
coordinated and more explicit in terms of scope 
and ambition. The types and uses of plastic can be 
differentiated: priority for prevention should be given 
to the most impactful plastic types, to plastic products 
that are designed to be used once and for a very 
short time (the so‑called single‑use plastics (2)) and to 
non‑recyclable plastic products. Such prioritisation 
would help direct and structure prevention efforts, 
reduce environmental impacts more quickly and 
also bear significant results in terms of reducing 
the waste generated. The mapping of plastic waste 
prevention initiatives in this report shows that the 
scope of national initiatives is often well defined and 
targeted (e.g. plastic carrier bags, single‑use plastics 
or packaging). However, in many cases, the scope of a 
planned intervention is too generic, which might result 
in reduced effectiveness. For example, with regard to 
the often‑mentioned support for the waste‑light design 
of plastic products, it remains unclear how such an 
objective can actually be achieved.

4.2.1  Concrete options

Apart from their scope, a more detailed analysis of 
the mapped measures reveals some imbalances 
in their type and nature. The arrangement of the 
measures according to whether they support 
quantitative or qualitative plastic waste prevention 
shows that the great majority of them focus on 
quantitative prevention. Of the 173 measures, only 
five explicitly refer to qualitative prevention (e.g. 
reducing hazardous substances in packaging material), 
while 14 refer to eco‑design (e.g. design for recycling 
plastics). It is therefore evident that countries are 
focusing significantly more on quantitative prevention. 
However, the broad definition of waste prevention 
helps to identify the broad benefits its implementation 
brings. Reductions in hazardous substances lead to 
cleaner supply chains, while better product design 
that extends the product's life span or increases 
its recyclability helps establish a circular economy. 
It is thus important for countries to address these 
aspects and focus more on qualitative prevention. It is 
possible that the lack of provisions reducing hazardous 
substances can be explained by the presence of 
similar provisions in other pieces of legislation, 
strategies and plans that cover other policy areas. In 
any case, waste prevention, as expressed through the 
countries' prevention programmes, is approached as 
an isolated area, while links and synergies with other 
efforts (e.g. the circular economy) are still in their 
infancy. The identification and processing of these links 
would increase the effectiveness and efficiency of the 

(2)  The Single Use Plastics Directive encourages Member States to focus on preventing exactly this type of plastics.

29

Preventing plastic waste in EuropeKey findings, policy options and future prospects

measures implemented and would facilitate a more 
comprehensive approach to environmental issues, for 
example burden shifting between plastic packaging 
and packaging made of extremely resource‑intensive 
aluminium, or trade‑offs between packaging waste 
prevention and food waste prevention.

When looking at the types of measures adopted by 
countries, especially stringent market‑based and 
regulatory measures are dominated by one or two 
measures, often linked to the plastic carrier bag. These 
are, for example, the introduction of charging for, or 
the banning of, these bags. Although the charge that 
many countries have placed on plastic carrier bags 
has borne impressive results, countries should be 
encouraged to diversify the measures implemented, 
as this would target a greater variety of prevention 
measures. Diverse measures exist and have been 
successfully implemented, as the best practice examples 
show. Moreover, the newly revised Waste Framework 
Directive includes (in Article 9) examples of measures to 
implement waste prevention effectively. These examples 
are of a generic nature but can function well by inspiring 
countries to customise them to their particular needs 
and objectives.

The distribution of existing prevention measures for 
plastics into types of instruments (see Figure 3.2) 

reveals that very few refer to financing. The EU plastics 
strategy, as well as the Single Use Plastics Directive 
(including establishing extended producer responsibility 
schemes) both call for financial stimuli related to more 
sustainable production and consumption patterns of 
plastic products. Given the effectiveness of financial 
instruments in shaping waste policies, countries could 
make better use of available financial instruments to 
reduce plastic consumption and contribute to waste 
prevention. These instruments could explore using 
state funds, as well as involving voluntary public‑private 
partnerships, for example to provide eco‑modulated 
packaging fees that promote not only recycling but 
also preventing packaging waste at source. Another 
possibility is to use the state's consumer power by 
taking account of waste prevention in green public 
procurement (see Box 4.1). 

Moving away from measures, the survey of the countries 
revealed that adopting concrete targets, supported by 
relevant indicators, has not yet really spread throughout 
the EEA member countries. The potential driver 
presented by an EU‑wide target (3) for decoupling waste 
generation (for plastic waste or more broadly household 
waste) and economic growth is reflected in the 
countries' limited initiatives. However, concrete targets 
enable countries to intensify their efforts to prevent 
waste, monitor them against a benchmark and define 

Box 4.1 

Green public procurement

Europe's public authorities are major consumers of goods. By using their purchasing power to choose environmentally 
friendly goods, services and works, they can make an important contribution to sustainable consumption and production 
— and specifically to waste prevention. Green public procurement (GPP) can help stimulate a critical mass of demand for 
more sustainable goods and services, which otherwise would be difficult to get on to the market. GPP is therefore a strong 
stimulus for eco‑innovation. To be effective, GPP requires the inclusion of clear and verifiable environmental criteria for 
products and services in the public procurement process. 

The European Commission and a number of European countries have developed guidance in this area, in the form of GPP 
criteria, e.g. the EU GPP criteria for cleaning products and services (EC, 2019a), which include very specific and measurable 
requirements for packaging:

• 

The weight‑utility ratio (WUR) for primary packaging must not exceed the following values:

 ‑

 ‑

For concentrated products, including liquid concentrates and solids, that are diluted in water before use — 
WUR 1.20 g packaging per litre solution (washing water).

For ready‑to‑use products, namely products used without further dilution — WUR 150 g packaging per litre solution 
(washing water).

• 

The challenge of increasing uptake by more public sector bodies so that GPP becomes common practice still remains. 

There is an example of this in Germany: mandatory consideration of waste prevention aspects in GPP regulations has been 
established in German waste management law, for example taking into account the reduced total costs of ownership for 
more durable products.

(3)  The European Commission will consider in future adopting an EU‑wide target for preventing food waste.

30

Preventing plastic waste in Europe 
Key findings, policy options and future prospects

appropriate indicators. More importantly, concrete 
targets for waste prevention help in the selection of a 
suitable spectrum of measures by providing structure 
and content to the potentially adopted measures.

4.3  Future prospects

Despite the high level of public interest in plastic 
waste and its severe impacts on the environment and 
eventually on human health, the generation of plastic 
waste is still increasing and, according to all available 
predictions, it will continue to do so.

Against this background, preventing plastic waste at 
source will rise in strategic importance, particularly 
taking into account the necessary investments 
in end‑of‑pipe waste treatment facilities and 
infrastructures that would become necessary to deal 
with these increasing amounts of plastic waste. The EU 
and its Member States have already started to develop 
much more stringent and binding waste prevention 
policies as, inter alia, reflected in the increasing share 
of regulatory and market‑based instruments. The 
successful example of quantified reduction targets 
for plastic bags and single‑use plastics, and the broad 
range of innovative approaches to reach these targets, 
might be an inspiration for future activities.

Nevertheless, this review of activities has shown that 
such clear and common targets are still lacking for 
most product groups and thus the levels of activity 
and ambition clearly differ between countries. 
This might be caused by very different framework 
conditions, the technical levels of the collection and 
recycling infrastructure or the willingness of industry 
to cooperate. Nevertheless, this diversity risks creating 
confusion for consumers. For example, should I simply 
replace a plastic bag with a paper bag or try to use 
reusable alternatives? The same is true for incentives 
for industry to engage in waste‑light alternative designs 
or to promote waste‑preventing business models. 
Plastic waste prevention policies will benefit from 
continuous coordination, cooperation and exchange of 
best practice examples.

Other aspects of waste prevention, such as product 
design (e.g. design for reuse) and reducing hazardous 
substances in products, may be implemented in the 
near future. Product design is expected to play a 
significant role in reducing plastic waste in the future. 

For example, the European Commission will, by the 
end of 2020, consider the possibility of reinforcing 
the essential requirements for packaging products, 
especially with respect to design for reuse. On the other 
hand, alternative feedstocks (e.g. bio‑based) that share 
the same functionality as plastics but come at a lower 
environmental cost could offer solutions for designing 
products with alternative materials and lower overall 
environmental impacts.

Moreover, focus will be given to the presence of 
hazardous substances in plastic products as indicated 
by the amended Waste Framework Directive: 
Member States are encouraged to modulate fees for 
extended producer responsibility schemes on the 
basis of durability, reparability, reusability and the 
presence of hazardous substances, and a database 
will be created containing information on hazardous 
substances in products. These indications, along with 
this report's conclusions that existing plastic waste 
prevention measures do not focus on qualitative 
prevention, show that there is room for improvement 
in this way of implementing waste prevention in the 
short term.

However, especially with regard to the broad range of 
applications for plastics, prevention policies will have 
to carefully take into account unintended side effects: if 
consumers switch from plastic packaging to aluminium 
foil, the overall burden to the environment might even 
increase, although plastic waste generation might 
decrease. The design of effective prevention measures 
will also have to take into account the specific 
functionality, for example, of packaging, and trade‑offs 
between plastic waste prevention and an increase, for 
example, in food waste should be avoided.

This issue of the actual effectiveness of waste 
prevention measures, policies and programmes will 
become an increasingly important topic in upcoming 
waste prevention reports. In the revised Waste 
Framework Directive, the EEA will not only report on 
implemented measures but also assess 'the evolution 
as regards the prevention of waste generation for 
each Member State and for the Union as a whole'. This 
extended mandate will require the development of 
a more analytical approach, even closer cooperation 
with the countries and a deeper discussion of the role 
of waste prevention in the transformation towards a 
circular economy.

31

Preventing plastic waste in EuropeAbbreviations and acronyms

Abbreviations and acronyms

CO2e 

EEA 

Carbon dioxide equivalent

European Environment Agency

ETC/WMGE 

European Topic Centre on Waste and Materials in a Green Economy

EC 

European Commission

Eionet 

European environment information and observation network

EU 

European Union

EU‑28 

GDP 

GPP 

The 28 European Union Member States: Austria, Belgium, Bulgaria, Croatia, Cyprus, Czechia, 
Denmark, Estonia, Finland, France, Germany, Greece, Hungary, Ireland, Italy, Latvia, Lithuania, 
Luxembourg, Malta, Netherlands, Poland, Portugal, Romania, Slovakia, Slovenia, Spain, Sweden, 
United Kingdom

Gross domestic product 

Green public procurement

Helcom 

Baltic Marine Environment Protection Commission (Helsinki Commission)

PET 

PVC 

UN 

Polyethylene terephthalate

Polyvinyl chloride

United Nations

WUR 

Weight‑utility ratio

32

Preventing plastic waste in EuropeReferences

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återbruk på svenskt kontor [Potential and solutions for 
reuse in Swedish offices], IVL Rapport Nr C 339 (https://
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Committee of the Regions, 'A European strategy 
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01aa75ed71a1.0001.02/DOC_1&format=PDF) 
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Economic and Social Committee and the Committee of 
the Regions, 'Proposal for a Directive of the European 
Parliament and of the Council on the reduction of the 
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(text with EEA relevance) (COM(2018) 340 final), 
2018/0172 (COD).

EC, 2019a, EU GPP criteria for cleaning products & services 
(http://ec.europa.eu/environment/gpp/pdf/toolkit/
cleaning_product/en.pdf) accessed 3 April 2019.

EU, 2015, Directive (EU) 2015/720 of the European 
Parliament and of the Council of 29 April 2015 
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consumption of lightweight plastic carrier bags (text 
with EEA relevance) (OJ L 115, 6.5.2015, p. 11‑15).

EU, 2018, Directive (EU) 2018/851 of the European 
Parliament and of the Council of 30 May 2018 
amending Directive 2008/98/EC on waste (text with 
EEA relevance) (OJ L 150, 14.6.2018, p. 109‑140).

Eurostat, 2018a, 'Packaging waste by waste 
management operations and waste flow' (http://
appsso.eurostat.ec.europa.eu/nui/show.
do?dataset=env_waspac&lang=en)  
accessed 23 November 2018.

Eurostat, 2018b, 'Real GDP per capita' (https://
ec.europa.eu/eurostat/tgm/table.do?tab=table&plugin=
1&language=en&pcode=sdg_08_10) 
accessed 23 November 2018.

G20, 2017, G20 Action plan on marine litter (https://www.
g20germany.de/Content/DE/_Anlagen/G7_G20/2017‑
g20‑marine‑litter‑en___blob=publicationFile&v=4.pdf) 
accessed 29 November 2018.

Gesamp, 2015, Sources, fate and effects of microplastics 
in the marine environment: A global assessment (Kershaw, 
P. J., ed.), IMO/FAO/UNESCO‑IOC/UNIDO/WMO/IAEA/
UN/UNEP/UNDP Joint Group of Experts on the Scientific 
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Gesamp No 90, (http://ec.europa.eu/environment/
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GESAMP_microplastics%20full%20study.pdf) 
accessed 28 November 2018.

Ellen MacArthur Foundation, 2017, The new plastics 
economy — Rethinking the future of plastics (https://
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EllenMacArthurFoundation_TheNewPlasticsEconomy_
Pages.pdf) accessed 28 November 2018.

Geyer, R., et al., 2017, 'Production, use, and fate of 
all plastics ever made', Science Advances 3(7 suppl.) 
(http://advances.sciencemag.org/content/advances/
suppl/2017/07/17/3.7.e1700782.DC1/1700782_SM.pdf) 
accessed 28 November 2018.

33

Preventing plastic waste in EuropeReferences

Helcom, 2015, 'Regional action plan', Baltic Marine 
Environment Protection Commission (http://www.
helcom.fi/action‑areas/marine‑litter‑and‑noise/marine‑
litter/marine‑litter‑action‑plan) 
accessed 3 April 2019.

OECD, 2018, Policy approaches to incentivise sustainable 
plastic design, Background paper 3, Organisation for 
Economic Co‑operation and Development, Paris.

Plastics Europe, 2018, Plastics — The facts 2017. An 
analysis of European plastics production, demand and 
waste data (https://www.plasticseurope.org/application/
files/5715/1717/4180/Plastics_the_facts_2017_FINAL_for_
website_one_page.pdf) accessed 28 November 2018.

Professional Plastics, Inc., 2018, 'Plastics' (https://www.
professionalplastics.com/Plastics) 
accessed 29 November 2018.

UBA, 2018, Aufkommen und Verwertung von 
Verpackungsabfällen in Deutschland im Jahr 2016, Umwelt 
Bundesamt (https://www.umweltbundesamt.de/sites/
default/files/medien/2546/publikationen/aufkommen_
und_verwertung_von_verpackungsabfaellen_in_
deutschland_im_jahr_2016_final.pdf) 
accessed 28 November 2018.

UNEP, 2018, Banning single-use plastics: Lessons 
and experiences from countries, UN Environment 
(https://wedocs.unep.org/bitstream/
handle/20.500.11822/25496/singleUsePlastic_
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weforum.org/docs/WEF_The_New_Plastics_Economy.
pdf) accessed 28 November 2018.

34

Preventing plastic waste in EuropeAnnex 1

Annex 1

Table A1.1  Waste prevention programmes in Europe as of 1 November 2018

Country 

Austria (a)

Belgium  
(Brussels‑Capital 
Region) (a)

Belgium (Flanders) (a)

Title of programme (English translation (c))

Link to programme

Abfallvermeidungsprogramm  
(Waste Prevention Programme)

Plan de gestion des ressources et des déchets/Hulpbronnen 
en afvalbeheerplan (Resource and Waste Management 
Plan) A new regional waste prevention and resources 
plan was developed in the meantime and will be adopted 
by the end of 2018

On 16 September 2016, the Flemish Government 
adopted 'Het uitvoeringsplanvoor het huishoudelijkafval 
en gelijkaardigbedrijfsafval'. This plan replaces two 
former plans, namely 'Milieuverantwoordbeheer van 
huishoudelijkeafvalstoffen (UMBHA)' and 'Gescheideninzame
lingbedrijfsafval van kleineondernemingen'. 
(The Implementation Plan for Household Waste and 
Similar Industrial Waste)

https://www.bmnt.gv.at/umwelt/
abfall‑ressourcen/abfallvermeidung/
Abfallvermeidungsprogramm‑2017.html

https://www.ovam.be/sites/default/files/
atoms/files/HA‑uitvoeringsplan‑VR‑2016
1609‑def‑LR.pdf

http://document.environnement.
brussels/opac_css/elecfile/PLAN_
Gestion_DechetHulpbronnen_FR

Belgium (Wallonia) (a)

The Waste Prevention Plan is part of the National Waste 
Management Plan 2014‑2020

http://www.moew.government.bg/
wp‑ content/uploads/filebase/Waste/
NACIONALEN_PLAN/_/NPUO_2014‑2020.
pdf (in Bulgarian)

Bulgaria (b) 

Croatia (a)

Czechia (a)

Denmark (a)

Estonia (a)

Finland (a)

France (a)

Germany (a)

Greece (a)

Plan wallon des déchets-ressources (adopted by the 
Walloon Government on 22 March 2018)  
(Walloon Plan for Waste‑Resources)

http://environnement.wallonie.be/
rapports/owd/pwd/PWDR_3.pdf 
(in French)

Waste Management Plan of the Republic of Croatia for the 
period 2017‑2022; an integral part of the plan is the 
Waste Prevention Plan

https://www.mzoip.hr/doc/
management_plan_of_the_republic_of_
croatia_for_the_period_2017‑2022.pdf

Waste Prevention Programme (WPP) of Czechia was 
adopted by the Czech Government on 27 October 2014

Danmark uden affald II — Strategi for affaldsforebyggelse 
(Denmark without waste II 
— Strategy for waste prevention)

Riigi Jäätmekava 2014‑2020 
(Current State Destination 2014‑2020)

From recycling to a circular economy  
— The National Waste Plan 2030

Programme national de prévention des déchets 2014‑2020 
(National waste prevention programme 
2014‑2020); Furthermore: Feuille de Route pour une 
Economie Circulaire (FREC, 23 April 2018, Roadmap for a 
Circular Economy)

Abfallvermeidungsprogramm des Bundes unter Beteiligung 
der Länder

https://www.mzp.cz/
C1257458002F0DC7/cz/predchazeni_
vzniku_odpadu_navrh/$FILE/OO‑EN_
WPP_Czech‑20150407.pdf

https://mst.dk/media/90395/danmark_
uden_affald_ii_web_29042015.pdf

https://www.envir.ee/sites/default/files/
riigi_jaatmekava_2014‑2020.pdf

http://julkaisut.valtioneuvosto.fi/
handle/10024/160889

https://www.ecologique‑solidaire.
gouv.fr/sites/default/files/
Programme_national_prevention_
dechets_2014‑2020.pdf

(Waste prevention programme of the 
federal government with participation of 
the federal states)

ΕΘΝΙΚΟ ΣΤΡΑΤΗΓΙΚΟ ΣΧΕΔΙΟ ΠΡΟΛΗΨΗΣ ΔΗΜΙΟΥΡΓΙΑΣ 
ΑΠΟΒΛΗΤΩΝ
(National strategic waste management prevention plan)

http://www.ypeka.gr/LinkClick.aspx?filet
icket=2Y2%2B%2BPSM4P0%3D&tabid=2
38&language=el‑GR

35

Preventing plastic waste in EuropeAnnex 1

Table A1.1  Waste prevention programmes in Europe as of 1 November 2018 (cont.)

Country 

Hungary (a)

Iceland (b)

Ireland (b)

Italy (b)

Latvia (b)

Lithuania (a)

Luxembourg (a)

Malta (b)

Netherlands (b)

Norway (b)

Title of programme (English translation (c))

Link to programme

Országos Megelőzési Program (Országos 
Hulladékgazdálkodási Terv 2014‑2020)
(National Waste Management Plan 2014‑2020)

http://videkstrategia.kormany.hu/
download/c/96/90000/Orszagos%20
Hulladekgazdalkodasi%20Terv%20
2014‑2020.pdf

Samangegnsóun — Almennstefna um úrgangsforvarnir 
2016‑2027 (Together against waste — Public policy on 
waste prevention 2016‑2027)

https://www.stjornarradid.is/media/
umhverfisraduneyti‑media/media/pdf_
skrar/saman‑gegn‑soun‑2016_2027.pdf

Towards a Resource Efficient Ireland — National Waste 
Prevention Programme, 2014‑2020

http://www.epa.ie/waste/nwpp

Programma Nazionale di Prevenzione dei Rifiuti 
(National Waste Prevention Programme)

http://www.minambiente.it/sites/
default/files/archivio/comunicati/
Programma%20nazionale%20
prevenzione%20rifiuti.pdf

Atkritumu Apsaimniekošanas Valsts Plānu 2013‑2020.gadam 
(Waste Management Plan for 2013‑2020)

http://polsis.mk.gov.lv/documents/4276

Valstybinė Atliekų Prevencijos Programos Patvirtinimo 
(National Waste Prevention Programme)

https://www.e‑tar.lt/portal/lt/legalAct/
TAR.09C26B84F785/ejmYyEmdlI.

Plan national de gestion des déchets et des ressources 2018 
(National Waste and Resource Plan 2018)

The Waste Prevention Programme is an integral part of 
the 'Waste Management Plan for the Maltese Islands  
— A Resource Management Approach, 2014‑2020'

https://environnement.public.lu/
dam‑assets/documents/offall_a_
ressourcen/pngd/plan/PNGD.pdf

https://msdec.gov.mt/en/document%20
repository/waste%20management%20
plan%202014%20‑%202020%20‑%20
final%20document.pdf

Afvalpreventieprogramma Nederland (Waste Prevention 
Programme Netherlands)

https://www.vang‑hha.nl/@148486/
nederland‑2013

Forebyggingavavfall (Chapter 4 in the waste management 
plan Fra avfalltilressurs) 
(Prevention of Waste)

https://www.regjeringen.no/contentasse
ts/27128ced39e74b0ba1213a09522de08
4/t‑1531_web.pdf

Poland (a)

National Waste Prevention Programme

Portugal (a)

National Waste Prevention Programme

The National Waste Prevention Programme is included in 
the National Waste Management Plan (adopted through 
Governmental Decision nr. 942/2017)

Program predchádzaniavznikuodpadu SR na roky  
2014‑2018 (Waste Prevention Programme for 2014‑2018 
in the Slovak Republic)

http://www.minzp.sk/sekcie/
temy‑oblasti/odpady‑obaly/program‑pre
dchadzania‑vzniku‑odpadu

Romania (a)

Slovakia (a)

Slovenia (a)

Spain (a)

Sweden (a)

Program Ravnanja z Odpadki in Program Preprecevanja 
Adpadkov Republike Slovenije 
(Waste Prevention Programme)

Programa estatal de prevencion de residuos 2014‑2020
(State Programme for Waste Prevention 2014‑2020)

Swedish Waste Prevention Programme for 2014 to 2017  
— Together we will gain from a non‑toxic, resource 
efficient society

https://archiwum.mos.gov.pl/fileadmin/
user_upload/odpady/National_Waste_
Prevention_Programme.pdf

https://apambiente.pt/_zdata/
DESTAQUES/2014/Portaria_
PlanoEstrategico_PERSU2020_final.pdf

http://www.mmediu.ro/app/webroot/
uploads/files/2018‑01‑10_MO_11_bis.pdf

http://www.mop.gov.si/fileadmin/mop.
gov.si/pageuploads/zakonodaja/varstvo_
okolja/operativni_programi/op_odpadki.
pdf

http://www.conama.org/conama/
download/files/conama2014/STs%20
2014/1996968947_ppt_TBarres.pdf

https://www.naturvardsverket.se/
upload/miljoarbete‑i‑samhallet/
miljoarbete‑i‑sverige/avfall/
avfallsforebyggande‑programmet/Toget
her‑gain‑rom‑non‑toxic‑resource‑efficien
t‑society‑2017‑05‑22.pdf

Currently under development

Switzerland (a)

Abfallvermeidungsstrategie
(Waste Prevention Strategy)

36

Preventing plastic waste in EuropeTable A1.1  Waste prevention programmes in Europe as of 1 November 2018 (cont.)

Annex 1

Country 

Turkey (a)

Title of programme (English translation (c))

Link to programme

National Waste Management and Action Plan (2016‑2023)

United Kingdom 
(Northern Ireland) (b)

The waste prevention programme for Northern Ireland  
— The road to zero waste

United Kingdom 
(Scotland) (a)

Safeguarding Scotland's Resources  
— waste prevention programme
Making Things Last — circular economy strategy

United Kingdom 
(England) (a)

Prevention is better than cure – The role of waste 
prevention in moving to a more resource efficient 
economy

United Kingdom 
(Wales) (a)

The Waste Prevention Programme for Wales.  
The programme supports the overarching waste strategy 
'Towards Zero Waste'

Cyprus (b)

Waste Prevention Programme and Waste Management 
Plan (for municipal waste only)

http://webdosya.csb.gov.tr/db/cygm/
haberler/ulusal_at‑k_yonet‑m‑‑eylem_
plan‑‑20180328154824.pdf

https://www.daera‑ni.gov.uk/sites/
default/files/publications/doe/waste‑pr
evention‑programme‑NI‑road‑zero‑was
te‑2014.pdf

https://www.gov.scot/publications/safe
guarding‑scotlands‑resources‑blueprint
‑more‑resource‑efficient‑circular‑econo
my/pages/2

https://www.gov.scot/publications/mak
ing‑things‑last‑circular‑economy‑strateg
y‑scotland/

https://assets.publishing.service.gov.uk/
government/uploads/system/uploads/
attachment_data/file/265022/pb14091‑
waste‑prevention‑20131211.pdf

https:///www.gov.uk/government/
publications/resources‑and‑waste‑
strategy‑for‑england

https://gov.wales/topics/
environmentcountryside/epq/waste_
recycling/prevention/waste‑prevention‑p
rogramme/?lang=en

http://www.moa.gov.cy/moa/
environment/environmentnew.nsf/4874
C4A6C6CE24F5C2257EF2003365EA/$file/
Strategic%20Plan%202016‑2018.pdf

Notes 

(a) 

(b) 

(c) 

Countries reporting to Eionet survey.

Survey data are lacking; data obtained from internet research conducted by the authors.

Translations conducted by the authors.

37

Preventing plastic waste in Europe 
 
 
Annex 2

Annex 2

Questionnaire for Eionet survey on prevention of plastic waste

Eionet survey on prevention of plastic waste

Invitation to provide information by 30 September 2018/12 November 2018

Introduction

In 2018, the European Commission launched a 
European strategy for plastics in a circular economy 
(EC, 2018a). Prevention of plastic waste streams is 
a key element in this strategy. The EEA's next waste 
prevention review will focus on the prevention of 
plastic waste. It will identify relevant measures in 
the Eionet countries, already taken or planned, 
within the framework of their national waste 
prevention programmes or beyond.

The available national waste prevention 
programmes have been screened for policy 

approaches and concrete initiatives to reduce 
plastic use and plastic waste. Given the recent 
prominence of the topic, however, we would like to 
give countries the opportunity to flag new activities 
that may not have been captured in the waste 
prevention programmes as published, or that have 
evolved since.

The aim of this survey is to verify and augment 
the information drawn from the national waste 
prevention programmes, and to highlight good 
practices to prevent plastic waste.

Questions

Please have a look at the results of the screening (document attached), showing what has been stipulated in 
the present Waste Prevention Programme of your country in order to prevent plastic waste.

1.  Does this information correctly reflect the ongoing measures, policies or initiatives implemented in 

your country?

2.  Are there additional, newly implemented or planned initiatives?

If so, could you please elaborate briefly on these in terms of:

• 
•  objective (open, specific, etc.)
•  measure (how does it work, scale of application, etc.)
• 

type of instrument (e.g. voluntary, regulatory, market‑based, sectoral, etc.)

3.  What is the primary target of the measure in the life cycle (intervention point)?

•  Does it address production, retail, or consumption? Any other?

4.  Are there any other promising practices that you want to share? 

38

Preventing plastic waste in Europe 
Annex 3

Annex 3

Table A3.1 

Indicators and targets of plastic waste prevention in other strategic documents of  
EEA countries

Country

Indicator

Target

Strategic document

Indicators relating to the amount of plastic waste/plastic packaging waste

Belgium

n/a

Prevent and manage all packaging 
waste on Belgian territory.

United Kingdom 
(England)

n/a

Eliminating all avoidable waste 
by 2050 and all avoidable plastic 
waste by the end of 2042. All 
plastic packaging placed on the 
market to be reusable, recyclable or 
compostable by 2025.

Cooperation agreement on 
packaging waste between 
the three regions of Flanders, 
Wallonia and Brussels‑Capital. 

A Flemish waste management 
plan for 'all plastic waste' is 
under preparation.

25‑year environment plan 

Indicators relating to the recycling of plastics/plastic packaging 

Belgium 
(Flanders Region)

Share of beverage packaging/all 
household packaging/all plastic 
packaging that is recycled 

By 2022, 90 % of beverage 
packaging is collected and recycled.

By 2023, 65 % of all plastic 
packaging is recycled. By 2030, 70 % 
of all plastic packaging is recycled.

Agreement of the industry 
with the Flemish government. 
If the targets are not met, 
considerable fines will be 
imposed.

Switzerland

United Kingdom 
(England)

Minimum rate of material 
recovery of PET bottles put on the 
market yearly

By 2025, 95 % of all household 
packaging is recycled.

75 % collection rate

• Share of reusable/recyclable/

By 2025:

compostable plastic packaging

• 100 % of plastic packaging 

• Share of effectively recycled or 
composted plastic packaging

to be reusable, recyclable or 
compostable.

• 70 % of plastic packaging 

effectively recycled or composted.

• Eliminate problematic or 

single‑use packaging items 
through redesign, innovation 
or alternative (reuse) delivery 
models.

• 30 % average recycled content 
across all plastic packaging. 

Swiss ordinance on beverage 
packaging

UK Plastics Pact (voluntary 
pact between industry, WRAP 
and the Ellen MacArthur 
Foundation, which has been 
signed by 68 organisations 
representing 80 % of plastic 
packaging sold through 
supermarkets in the United 
Kingdom).

United Kingdom 
(Scotland)

United Kingdom 
(Wales)

Indicators of the UK Plastics 
Pact (see information on United 
Kingdom — England, above)

Targets of the UK Plastics Pact (see 
information on United Kingdom — 
England, above)

UK Plastics Pact (see 
information on United 
Kingdom — England, above)

Indicators of the UK Plastics 
Pact (see information on United 
Kingdom — England, above)

Targets of the UK Plastics Pact (see 
information on United Kingdom — 
England, above)

UK Plastics Pact (see 
information on United 
Kingdom — England, above)

39

Preventing plastic waste in EuropeAnnex 3

Table A3.1 

Indicators and targets of plastic waste prevention in other strategic documents of  
EEA countries (cont.)

Country

Indicator

Target

Strategic document

Indicators referring to the use of plastic carriers bags

Austria

Number of plastic carrier bags 
put on the market

The number of plastic carrier 
bags put on the market should be 
reduced by 50 % by 2019 
(reference year 2014).

Switzerland

Percentage of lightweight plastic 
bags reduced compared with a 
reference year

70‑80 % reduction by 2025

Voluntary agreement for the 
reduction of carrier bags. 
An increasing number of 
Austrian retail companies 
have joined this voluntary 
agreement, which was initiated 
by the Federal Ministry for 
Sustainability and Tourism 
(BMNT).

Voluntary agreement by 
retailers

Notes:  n/a 

Information not indicated in Eionet survey; WRAP, Waste & Resources Action Programme.

40

Preventing plastic waste in EuropeAnnex 4

Annex 4

Table A4.1 

Policy instruments for reducing the use of plastic bags — results from Eionet consultation

Table A4.1 provides an overview of policy instruments for reducing the use of plastic bags in European countries 
based on the results of the Eionet survey. In the absence of a response from a country, the authors collected the 
information from desktop research.

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Measure

Voluntary agreement

Austria

In July 2016, the voluntary agreement for the reduction of carrier bags came into force. An 
increasing number of Austrian retail companies has joined this voluntary agreement, which 
was initiated by the Federal Ministry for Sustainability and Tourism (BMNT).

Amount  
of tax

For all kinds of carrier bags a fee has to be charged that corresponds at least to the wholesale 
price. The retailers can differentiate the price depending on material, size or thickness of the 
bags.

Objectives

Excluded are bags for fresh food that is offered loose, e.g. meat, fish, fruits, vegetables, herbs, 
bread or pastries, or snacks.

Reduction of carrier bags made of all kinds of materials. The number of plastic carrier bags put 
on the market should be reduced by 50 % by 2019 (reference year 2014). For all kinds of carrier 
bags, a fee has to be charged that corresponds at least to the wholesale price. The retailers 
can differentiate the price depending on material, size or thickness of the bags. Excluded are 
bags for fresh food that is offered loose, such as meat, fish, fruits, vegetables, herbs, bread or 
pastries, or snacks.

Outcomes

As a result of the savings from the fee for carrier bags, the partners have been able to reduce 
the annual consumption of plastic shopping bags by 20 % since the reference year 2014. 
This corresponds to a reduction in the total number of plastic bags of 112 million pieces. The 
decrease in very lightweight plastic carrier bags (so‑called fruit bags) is 13 %, while for heavy 
plastic bags it is as much as 71 %.

Sources

https://www.bmnt.gv.at/umwelt/abfall‑ressourcen/pfiadtdisackerl/Bericht_2018.html

https://www.bmnt.gv.at/service/presse/umwelt/2018/K‑stinger‑‑Plastiksackerl‑Verbrauch‑um‑
122‑Mio.‑St‑ck‑seit‑2014‑gesunken.html

41

Preventing plastic waste in EuropeAnnex 4

Table A4.1 

Policy instruments for reducing the use of plastic bags — results from Eionet consultation 
(cont.)

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Measure

Law

Belgium (Wallonia)

(1) Prohibition of the use of single‑use plastic bags. Wallonia (cashier bags, December 2016); 
Brussels (September 2017); (2) Prohibition of the use of all other single‑use plastic bags. 
Wallonia (bags other than cashier bags, intended for the packing of goods, March 2017); 
Brussels (September 2018)

Wallonia: 

(1) Exceptions to the prohibition of the use of single‑use cashier plastic bags since  
1 December 2016:

 ‑ for the packaging of liquids, aerosols and gels purchased at a point of sale in an airport 

beyond the boarding check‑point.

(2) Exceptions to the prohibition of the use of single‑use plastic bags other than cashier bags 
since 1 March 2017:

 ‑ until 1 September 2018: for packaging of foodstuffs other than bulk fruits and vegetables;

 ‑ until 1 March 2020: for primary packaging of fruit and vegetables sold in bulk. The bags 

concerned must contain, since 1 January 2018, a minimum of 40 % bio‑sourced material and 
they must be compostable at home;

 ‑ for the primary packaging of aquatic plants and aquatic animals;

 ‑ for packaging by the retailer of wet, liquid or liquid‑containing foodstuffs sold at retail. These 
bags, since 1 January 2018, must have a minimum bio‑sourced content of 40 % (60 % from  
1 January 2025) and be compostable at home. The bags must be sealed at the service 
counter.

Amount  
of tax

Objectives

Outcomes

Sources

https://portals.iucn.org/library/sites/library/files/documents/2017‑052.pdf

https://www.ff‑packaging.com/plastic‑bags‑law‑belgium/

Belgium (Brussels)

Type of 
agreement

Law

Single‑use carrier (shopping) bags ≤ 50 µm prohibited since 1 September 2017. All other 
single‑use plastic bags ≤ 50 µm prohibited since 1 September 2018. Temporary exceptions apply 
for fruit and vegetables (until 29 February 2020) and for moist food (until 31 December 2029). 
These bags have to be biosourced and compostable. Another exception is made for plastic 
bags < 15 µm for the packaging of aquatic plants and animals until 31 December 2029. 

Measure

Amount  
of tax

Objectives

Outcomes

Sources

Type of 
agreement

Law

Belgium (Flanders)

Measure

Law in preparation to no longer use lightweight plastic carrier bags free of charge.

Amount  
of tax

Objectives

Outcomes

90 lightweight plastic carrier bags per person per year by 31 December 2019. 40 lightweight 
plastic carrier bags per person per year by 31 December 2025.

Sources

Law in preparation; link not yet available

Policy 
instruments 
for reducing 
the use of 
plastic bags

Policy 
instruments 
for reducing 
the use of 
plastic bags

42

Preventing plastic waste in EuropeAnnex 4

Table A4.1 

Policy instruments for reducing the use of plastic bags — results from Eionet consultation 
(cont.)

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Measure

Amount  
of tax

Objectives

Outcomes

Sources

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Measure

Amount  
of tax

Bulgaria

Law

Determining the amount of tax received from 
the sale of disposable plastic bags since 2015.

https://www.eea.europa.eu/themes/waste/
waste‑prevention/countries/bulgaria‑waste‑
prevention‑fact‑sheet/view

Croatia

Tax since October 2011. 
This tax is imposed on producers and 
importers and is then passed on to retailers, 
who pass it on to consumers.

15 stotinki (EUR 0.08) per bag. 
Increasing to 55 stotinki (EUR 0.28).

Bag consumption more than halved in the first 
month of the tax.

https://permaculturenews.org/2014/05/05/
downfall‑plastic‑bag‑global‑picture/

Annex IV of Directive 2008/98/EC

Regulation

Measure 7: Encouraging waste plastic bag 
prevention:

Prohibition of the free distribution of plastic 
bags after 31 December 2018.

 ‑ introduce obligatory fee; obligation on 

sellers to inform consumers of the negative 
effects; 

 ‑ awareness campaigns.

Objectives Municipal waste prevention

Reduce the consumption of lightweight plastic 
bags

Outcomes

Sources

http://www.mzoip.hr/doc/management_
plan_of_the_republic_of_croatia_for_the_
period_2017‑2022.pdf

https://www.total‑croatia‑news.com/
business/22586‑from‑2019‑no‑more‑free‑
lightweight‑plastic‑bags‑in‑supermarkets

Cyprus

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Regulation

Measure

Tax (from July 2018)

Minimum fee will be EUR 0.05

Amount  
of tax

Objectives

Outcomes

Sources

http://cyprus‑mail.com/2017/07/13/134580

http://www.goldnews.com.cy/en/companies/plastic‑bags‑to‑be‑charged‑from‑july‑1st

43

Preventing plastic waste in EuropeAnnex 4

Table A4.1 

Policy instruments for reducing the use of plastic bags — results from Eionet consultation 
(cont.)

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Measure

Law

Czechia

A law that requires retailers to charge for plastic bags with a thickness of 15 µm or more came 
into force in January 2018. Now, plastic carrier bags cannot be provided free of charge at the 
point of sale. Very lightweight plastic carrier bags are excluded from this measure.

Amount  
of tax

The price is to be determined by shop owners but must cover the cost of the bag. 
Fine of up to CZK 500 000 (c. EUR 19 000).

Objectives

Reduce the use of plastic bags

• Currently: 300 units per person
• 2019: 90 bags per person
• End of 2025: 40 units per person

Outcomes

Sources

https://news.expats.cz/weekly‑czech‑news/czech‑republic‑bids‑farewell‑free‑plastic‑bags‑2018

http://www.plasticsnewseurope.com/article/20161215/PNE/161219930/czech‑republic‑to‑
introduce‑compulsory‑plastic‑bag‑fees

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Measure

Amount  
of tax

Objectives

Outcomes

Law

Denmark

Green taxes on packaging and plastic bags. Bags are covered by the tax if they have capacity 
to handle at least 5 litres and they can be reasonably replaced by cloth bags, carrier nets and 
the like. Very strong plastic bags directly comparable with cloth bags and carrier nets are not 
covered by the tax.

DKK 22 (EUR 2.90) per kg. 
Consumer is paying up to DKK 2‑ 3.50 (EUR 0.27‑0.47) per bag. 
The share of the tax is DKK 0.44 (EUR 0.06) per bag. 
Marginal revenue for retailers is, in certain cases, around DKK 1 (EUR 0.13) per bag

The introduction of the tax halved consumption from around 800 million bags to  
400 million bags, which amounts to around 80 bags per person annually. 
The retailer revenue has amplified the effects of the tax.

Policy 
instruments 
for reducing 
the use of 
plastic bags

Sources

http://www.seas.columbia.edu/earth/wtert/sofos/Denmark_Waste.pdf 
Fact sheet: tax on plastic bags (pdf: 150812_Tax on plastic bags)

Type of 
agreement

Legislation

Measure

At the point of sale of a packaging undertaking:

Estonia

(1) lightweight and very lightweight plastic carrier bags shall not be supplied to consumers 

free of charge, except for very lightweight plastic carrier bags, which are used for ensuring 
hygiene or for primary packaging of loose food when this helps to prevent food wastage;

(2) besides lightweight plastic carrier bags, including very lightweight plastic carrier bags, other 

possibilities for packaging goods shall be offered to consumers;

(3) the sale or free of charge supply of oxo‑degradable plastic carrier bags shall be avoided. 

Clause 1) of subsection (2) came into force on 31 December 2018.

Amount  
of tax

The price is to be determined by shop owners. Price range is EUR 0.30‑1.00 per bag. Current 
average cost of reusable textile bags, which are a more durable and less expensive alternative, 
is EUR 0.75 on average.

Objectives

• 90 lightweight plastic bags per person by 31 December 2019
• 40 lightweight plastic bags per person by 31 December 2025

Outcomes

Many shops had stopped supplying consumers with lightweight and very lightweight plastic 
carrier bags before this claim entered into force. Some have been really successful and do not 
give any bags for free any more (e.g. some clothing shops which usually pack merchandise in 
plastic bags).

Sources

Pakendiseadus (https://www.riigiteataja.ee/akt/104042012006?leiaKehtiv) § 5. Packaging Act in 
English (https://www.riigiteataja.ee/en/eli/ee/510042017001/consolide/current) paragraph 5.

44

Preventing plastic waste in EuropeAnnex 4

Table A4.1 

Policy instruments for reducing the use of plastic bags — results from Eionet consultation 
(cont.)

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Measure

Plastic Carrier Bag Agreement

Finland

Companies in the trade sector are free to decide on the measures and how these are to be 
implemented. The issues to be included in the measures are, at least, the following: advice 
and information is provided to reduce the consumption of lightweight plastic carrier bags and 
prevent littering; there is a price for lightweight plastic carrier bags; and very thin plastic carrier 
bags are no longer available at retail outlets on a self‑service basis.

Amount  
of tax

By 2025, no more than 40 bags per person per year

Objectives

Reducing the consumption of plastic carrier bags and preventing litter

Outcomes

Sources

http://www.euronews.com/2017/05/05/finland‑fights‑plastic‑pollution‑with‑green‑bags

http://www.ym.fi/en‑US/The_environment/Waste/Green_Deal_agreements

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Measure

Measures to reduce the use of single‑use 
plastic bags (p. 66).

France

Law

Amount  
of tax

Objectives

2019: just 90 bags per year and person

Outcomes

Sources

http://www.developpement‑ durable.gouv.fr/
IMG/pdf/Programme_national_prevention_
dechets_2014‑2020.pdf

Since 1 July 2016, single‑use lightweight 
(< 50 µm) plastic bags (no matter which kind 
of plastic) are forbidden at point of sale.

Since 1 January 2017, single‑use lightweight 
(< 50 µm ) plastic bags are also forbidden for 
the packing of goods at point of sale (e.g. for 
fresh fruit, vegetables, cheese, fish). However, 
lightweight plastic bags made of bio‑plastics 
are allowed in this situation.

http://www.thepaperbag.org/for‑compliance‑
with‑the‑law/regulations‑in‑eu

http://www.euronews.com/2016/06/30/
france‑bans‑plastic‑bags‑what‑about‑the‑rest‑
of‑the‑eu

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Measure

Amount  
of tax

Agreement on Plastic Carrier Bags

Germany

From 1 July 2016 to 30 June 2019, payment of a fee for plastic bags. The agreement will extend 
for another 2 years if it is not recalled 3 months before the end point.

Objectives

40 bags per capita until 2025

Outcomes

According to the HDE trade association, one third less was used in Germany in 2016 than a year 
earlier (still 3.7 billion units). In 2017 there was a further reduction of 35 % to 2.4 billion units.

Sources

http://www.bmu.de/fileadmin/Daten_BMU/Download_PDF/Abfallwirtschaft/vereinbarung_
tragetaschen_bf.pdf

http://kunststofftragetasche.info/wordpress/daten‑erhebungen

https://www.zeit.de/wissen/umwelt/2018‑01/umwelt‑eu‑kommission‑strategie‑plastikmuell‑
vermeidung

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Table A4.1 

Policy instruments for reducing the use of plastic bags — results from Eionet consultation 
(cont.)

Greece

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Joint Ministerial Decision No 180036/952/2017 (OJG 2812 B), Law No 4496/2017 (OJG 170 A)

Measure

Charge since January 2018.

Amount  
of tax

At least EUR 0.04 per bag (including VAT). From 2019, EUR 0.09 per bag (including VAT).

Objectives

Reduction of consumption of lightweight (thin) plastic carrier bags.

Outcomes

To date, since the measure has been implemented, the reduction in the use of lightweight plastic 
bags reached 80 % through the sales in large stores and 60 % through the rest of the stores.

Sources

http://www.plasticfreegreece.com/blog/category/zero‑waste‑solutions

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Measure

Amount  
of tax

Objectives

http://www.keeptalkinggreece.com/2018/02/06/greece‑plastic‑bags‑fee‑measure‑results/

http://www.ypeka.gr/Default.aspx?tabid=389&sni[524]=6087&language=el‑GR

Law/Fee

Hungary

Since 1 January 2012, a significantly high environmental product protection fee payable on 
lightweight plastic carrier bags.

Ongoing: from 2019 higher, weight‑based fee system for all types of plastic bags, and higher 
fees for single‑use plastic tools. Planned: July 2019 ban of oxo‑plastic tools, from 2021, also 
planned ban of certain types of plastic bag.

HUF 57 or 1 900/kg at present.

From 2019 higher, weight‑based fee for all plastic bags.

Reduction of plastic bags (also planned ban of certain plastic bags) and oxo‑plastics, reduce use 
of single‑use plastics implementing the related EU legislation

Outcomes

Further reduction of plastic waste generated

Sources

https://www.dontwasteit.hu/2018/09/20/a‑greenpeace‑is‑udvozli‑az‑itm‑muanyag‑zacskos‑
tilalmi‑tervet

No information

Iceland

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Measure

Amount  
of tax

Objectives

Outcomes

Sources

46

Preventing plastic waste in EuropeAnnex 4

Table A4.1 

Policy instruments for reducing the use of plastic bags — results from Eionet consultation 
(cont.)

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Ireland's bag levy

Ireland

Regulation

Measure

Levy/Tax (Started March 2002)

Levy

Amount  
of tax

• EUR 0.15 (Start)
• EUR 0.07 (July 2007)
• 2011 allowed to amend the levy once 

(max. EUR 0.70)

Objectives

Limiting use to 21 bags per person per year 
or less

Outcomes

• Over 90 % decrease in consumption — from 
328 bags per consumer per year to 21 bags
• A subsequent increase in consumption — to 

31 bags per person by 2006

Sources

https://permaculturenews.org/2014/05/05/
downfall‑plastic‑bag‑global‑picture

EUR 0.22 per shopping bag

https://www.revenue.ie/en/companies‑and‑
charities/plastic‑bag‑environmental‑levy/
index.aspx

https://www.dccae.gov.ie/en‑ie/environment/
topics/waste/litter/plastic‑bags/Pages/default.
aspx

http://www.irishstatutebook.ie/eli/2001/
si/605/made/en/print

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Measure

Amount  
of tax

Italy

Italy introduced a law in 2011 stating that single‑use plastic shopping bags of thickness 
< 60 µm (100 µm for food‑contact applications) distributed by retail stores must be made from 
biodegradable plastics, which are certified compostable according to EN 13432.

Objectives

Elimination of single‑use plastic bags

Outcomes

Sources

https://portals.iucn.org/library/sites/library/files/documents/2017‑052.pdf

https://www.legambiente.it/sites/default/files/docs/a_ban_on_plastic_bags_legambiente2016.pdf

https://www.greenbiz.com/news/2011/01/05/italy‑dumps‑plastic‑bags‑world‑first‑nationwide‑ban

https://www.nytimes.com/2018/01/08/world/europe/italy‑plastic‑bags.html

http://edition.cnn.com/2010/WORLD/europe/12/31/italy.plastic.bags/index.html

http://www.thepaperbag.org/for‑compliance‑with‑the‑law/regulations‑in‑eu

Latvia

Type of 
agreement

Measure

Prohibition of free plastic bags in shopping centres and other locations.

Amount  
of tax

Objectives

Outcomes

Sources

http://bnn‑news.com/stores‑in‑latvia‑will‑no‑longer‑provide‑plastic‑bags‑free‑of‑charge‑178081

http://bnn‑news.com/free‑plastic‑bags‑to‑be‑prohibited‑in‑the‑eu‑147940

Policy 
instruments 
for reducing 
the use of 
plastic bags

47

Preventing plastic waste in EuropeAnnex 4

Table A4.1 

Policy instruments for reducing the use of plastic bags — results from Eionet consultation 
(cont.)

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Measure

Amount  
of tax

Law on Packaging and Packaging Waste

Lithuania

Ban on the distribution of lightweight plastic carrier bags, except very lightweight plastic carrier 
bags (wall thickness below 50 µm) at the points of sale of goods or products.

Not regulated

Objectives

Reduce the consumption of lightweight plastic carrier bags

Outcomes

Lithuania has recorded the number of lightweight plastic carrier bags used since 2014. The 
number of plastic bags with wall thickness below 15 µm changed from 206 in 2014 to 224  
in 2016. The number of plastic bags with wall thickness 15‑50 µm decreased from 39 in 2014  
to 36 in 2016.

Sources

http://senas.am.lt/VI/en/VI/article.php3?article_id=823

http://www.am.lt/VI/en/VI/article.php3?article_id=625

Luxembourg

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Measure

A voluntary agreement is in place between the Environment Ministry and Valorlux (association 
of producers and importers of packaging material) regarding the sale of the multiple‑use 'eco‑
sac' carrier bag. The eco‑sac replaces single‑use plastic bags in supermarkets.

The voluntary agreement has the target to maintain a market share for multi‑use carrier bags 
of at least 60 % while taking the necessary steps to achieve a higher rate. This agreement was 
first made with food and DIY (do it yourself) shops. The first agreement was made in 2004, the 
second in 2006, the third in 2008, and the fourth in 2012. It was renewed again in 2017 for a 
further period of 5 years. It is applicable throughout the country. Other sectors will be analysed 
in order to extend the project. 

As of 31 December, 2018, no plastic bags are provided free of charge at the point of sale of 
goods or products.

Luxembourg is actively seeking a multiple‑use solution to replace the very lightweight bags in 
fruit and vegetable shops.

Luxembourg has also introduced, in 2018, the 'ECOBOX', a return‑and‑refill system to take away 
food and leftovers. The aim is to prevent takeaway packaging.

There are also several initiatives in order to use multiple‑use cups at public events or popular 
marches.

Amount  
of tax

EUR 0.03 per bag.

EUR 0.05 per bag (since January 2018).

Objectives

Reduce the use of single‑use packaging

Outcomes

Since 2004, thanks to the eco‑sac, around 560 million single‑use bags have been saved, saving 
3 738 tonnes of plastic and 8 313 680 litres of oil.

Sources

https://environnement.public.lu/fr/offall‑ressourcen/principes‑gestion‑dechets/Plan_national_
de_gestion_des_dechets_PNGD.html

http://prevention‑valorlux.lu/en/eco‑sac/operation‑eco‑sac

https://environnement.public.lu/fr/actualites/2018/juin‑2018/Ecobox.html

https://environnement.public.lu/fr/actualites/2017/09/29_wanderbecher.html

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Preventing plastic waste in EuropeAnnex 4

Table A4.1 

Policy instruments for reducing the use of plastic bags — results from Eionet consultation 
(cont.)

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Measure

Since 2009: tax on plastic bags

Amount  
of tax

EUR 0.15 eco‑contribution

Malta

Objectives

Aim of eliminating the use of conventional bags

Outcomes

Sources

Plastic waste EU Liste

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Measure

http://www.independent.com.mt/articles/2009‑01‑01/news/is‑this‑the‑end‑of‑conventional‑
plastic‑bags‑218342

Voluntary agreement Law

Netherlands

• Ban on free plastic bags — prohibition of free plastic bags
• Since the mid‑1990s, supermarkets have voluntarily charged for most kinds of  

plastic bags. Customers pay about EUR 0.20 per bag.

Policy 
instruments 
for reducing 
the use of 
plastic bags

Amount  
of tax

Objectives

Reducing plastic waste

Outcomes

Sources

https://www.government.nl/topics/environment/ban‑on‑free‑plastic‑bags

https://permaculturenews.org/2014/05/05/downfall‑plastic‑bag‑global‑picture

Poland

Type of 
agreement

Law

Measure

Recycling fee for bags with a thickness of below 50 µm

Amount  
of tax

Objectives

Outcomes

Sources

PLN 0.20 (EUR 0.05).

Maximum PLN 1 (EUR 0.23).

http://www.freshplaza.com/article/187217/Poland‑Introduction‑of‑recycling‑fee‑for‑plastic‑
bags‑at‑supermarkets

http://wbj.pl/poland‑to‑introduce‑fees‑on‑plastic‑bags

49

Preventing plastic waste in EuropeAnnex 4

Table A4.1 

Policy instruments for reducing the use of plastic bags — results from Eionet consultation 
(cont.)

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Measure

Amount  
of tax

Objectives

Outcomes

Green taxation reform

Portugal

Charge on lightweight plastic bags (< 50 µm thickness plastic film) 
(applied since 15 February 2015)

NOT thin plastic bags used as primary bags in contact with food (for food safety, e.g. to carry 
meat and fish)

Justification: The landfill tax is not specific for plastic bags. A new law was published (Decree 
Law 152‑D/2017 of 11 December) that transposes Directive 2015/720. Decree 286‑B/2014 on 
lightweight plastic bags has been repealed. Reference to the term 'no handles' is no longer in 
the legislation.

http://www.apambiente.pt/index.php?ref=16&subref=84&sub2ref=197&sub3ref=276

EUR 0.10 per bag

The use of plastic bags at stores and supermarkets across the country has seen a drop of more 
than 90 % since the introduction of a government tax on their use.

Sources

http://portugalresident.com/portugal%E2%80%99s‑%E2%80%9Cplastic‑bag‑tax%E2%80%9D‑
has‑increased‑the‑use‑of‑%E2%80%A6‑plastic‑bags

http://www.theportugalnews.com/news/plastic‑bag‑use‑plummets‑a‑year‑after‑tax‑
introduction/37473

Law

Romania

Lightweight plastic bags below 50 µm and very thin bags under 15 µm, plastic bags with 
a handle will be banned to introduce in stores and supermarkets (forbidden starting 
1 July 2018). These bags will be banned from being sold as of 1 January 2019.

Fines from RON 15 000 to RON 25 000 (c. EUR 3 000‑5 000)

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Measure

Amount  
of tax

Objectives

Outcomes

Sources

https://www.romania‑insider.com/romania‑ban‑thin‑plastic‑bags

https://www.romaniajournal.ro/plastic‑bags‑to‑be‑banned‑in‑romania

https://www.esiasee.eu/romania‑thin‑plastic‑bags‑banned‑july‑1

https://www.romania‑insider.com/romania‑ban‑thin‑plastic‑bags

50

Preventing plastic waste in EuropeTable A4.1 

Policy instruments for reducing the use of plastic bags — results from Eionet consultation 
(cont.)

Annex 4

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Regulatory

Measure

Ban on free plastic bags

Slovakia

Voluntary

Amount  
of tax

Objectives

Outcomes

Sources

Should be at least EUR 0.25 on the basis that 
shops currently charge EUR 0.05‑0.09 for such 
a bag and that the revision will not reduce 
the number of plastic bags sold if this price is 
maintained.

The main goal is to lower the use of light 
plastic bags for shopping, which will result in a 
decrease in waste from packaging.

http://www.plasticsnewseurope.com/
article/20160804/PNE/160809916/slovak‑
environment‑ministry‑plans‑to‑ban‑free‑
plastic‑bags

https://spectator.sme.sk/c/20236167/slovakia‑
seeks‑to‑curb‑usage‑of‑plastic‑bags.html

https://spectator.sme.sk/c/20491160/
parliament‑passed‑ban‑on‑giving‑out‑plastic‑
bags‑for‑free.html

Initiative 'Without plastic bags' (initiated by the 
Minister of Environment and realised during 
2018). It includes a call for commercial chains 
to stop offering plastic bags to customers and 
to focus on more environmentally friendly 
alternatives. Chains accepting the call will use 
the official label 'Bez igelitiek' (‘Without plastic 
bags'). Furthermore, the media campaign 
'Slovakia without plastic bags' is expected to 
be implemented during the period 2019‑2021, 
under the umbrella of a national project to 
be implemented by the Slovak Environmental 
Agency (Operational Programme Quality of 
Environment, EU European Structural and 
Investment Funds).

Call for commercial chains to stop offering 
plastic bags to customers and to focus on 
more environmentally friendly alternatives.

Significant reduction in the use of light plastic 
bags in the territory of Slovakia.

51

Preventing plastic waste in EuropeAnnex 4

Table A4.1 

Policy instruments for reducing the use of plastic bags — results from Eionet consultation 
(cont.)

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Legislation (Decree)

Measure

Ban on free plastic bags (not later than January 2019)

Slovenia

Exception: Consumers have free very light plastic carrier bags for primary non‑prepackaged 
foods such as fruit, vegetables, fish, meat and meat products, dairy products, freshly prepared 
sandwiches and other freshly prepared food that is not prepacked.

Information campaigns since 2016 (links in sources).

Environmental tax: EUR 0.0017/kg plastic

Prices of plastic bags: ban on free plastic bag. The minimum price of plastic bags is not set by law.

Amount  
of tax

Objectives

90 lightweight plastic bags per person by 31 December 2019.

40 lightweight plastic bags per person by 31 December 2025.

Very light plastic carrier bags for primary non‑prepackaged food are excluded.

Outcomes

Reduce consumption of plastic carrier bags.

The first records for consumption of plastic carrier bags indicate that the first target for 2019 
will be achieved.

We also try to achieve a high level of consumer awareness to reduce the consumption of plastic 
bags. An awareness‑raising campaign is in progress.

Sources

http://www.rtvslo.si/news‑in‑english/operator‑bans‑use‑of‑plastic‑bags‑at‑farmers‑markets‑in‑
ljubljana/415800

http://www.rtvslo.si/news‑in‑english/the‑average‑plastic‑bag‑in‑slovenia‑is‑used‑for‑only‑30‑
minutes/368964

https://www.uradni‑list.si/glasilo‑uradni‑list‑rs/vsebina/2017‑01‑1927?sop=2017‑01‑1927 
(Articles 10.e in (3) 40)

Environmental tax: https://www.uradni‑list.si/glasilo‑uradni‑list‑rs/vsebina/2017‑01‑3258/
uredba‑o‑spremembah‑in‑dopolnitvah‑uredbe‑o‑okoljski‑dajatvi‑za‑onesnazevanje‑okolja‑
zaradi‑nastajanja‑odpadne‑embalaze

http://www.fu.gov.si/davki_in_druge_dajatve/podrocja/okoljske_dajatve/#c4651

Awareness‑raising campaign: 

http://www.mop.gov.si/si

http://www.mop.gov.si/si/medijsko_sredisce/novica/8429

http://www.mop.gov.si/si/delovna_podrocja/odpadki/akcije_ozavescanja_javnosti

52

Preventing plastic waste in EuropeTable A4.1 

Policy instruments for reducing the use of plastic bags — results from Eionet consultation 
(cont.)

Annex 4

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Measure

National Regulation Other initiatives

Regional regulation

Voluntary 
agreement

Spain

Andalucía: tax 
since 2010‑2011 
introduction, 2012 
increasing the tax

Navarra: Ley 
14/2018 de Navarra 
sobre Residuos y su 
Fiscalidad (articulo 23) 

Voluntary agreement 
among Catalonia's 
waste agency, 
regional and 
national business 
groups, plastic bag 
manufacturers, food 
distributors and 
supermarkets.

Real Decreto 293/2018, 
de 18 de mayo, 
sobre reducción del 
consumo de bolsas de 
plástico y por el que 
se crea el Registro de 
Productores:

Summary of different 
initiatives related 
to reducing plastic 
bag use in Spain 
(private sector and 
regional and local 
governments).

 ‑ 1 July 2018: ban on 
providing plastic 
bags free of charge 
at the point of 
sale of goods or 
products except very 
lightweight plastic 
bags and bags with 
thickness up to 
50 µm containing 
70 % recycled plastic.

 ‑ 1 January 2020: 

ban on providing 
oxo‑degradable 
plastics bags and 
compulsory for 
plastic bags with 
thickness up to 
50 µm to contain 
50 % of recycled 
plastic.

 ‑ 1 January 2021: 

lightweight plastic 
bags (including very 
lightweight) shall be 
compostable.

Amount  
of tax

Objectives

Outcomes

EUR 0.05‑0.10

Sources

http://www.boe.es 
/buscar/doc.php 
?id=BOE‑A‑2018‑6651

https://www.
mapama.gob.es/es/
calidad‑y‑evaluacion‑
ambiental/ 
campanas/Iniciativas_ 
Bolsas_Comerciales_ 
un_Uso.aspx

https://www. 
juntadeandalucia 
.es/hacienday 
administracion 
publica/tributos/ 
impuestos/propios/ 
bolsas.htm

https://www.boe.es/ 
diario_boe/txt.php? 
id=BOE‑A‑2018‑8953

Single‑use plastic 
bag consumption in 
the region dropped 
by more than 40 % 
between 2007 and 
2011.

Annual supermarket 
plastic bag use 
dropped by 1 billion 
units in that time, a 
87 % decline.

https://
permaculturenews 
.org/2014/05/05/
downfall 
‑plastic‑bag‑global 
‑picture/

53

Preventing plastic waste in EuropeAnnex 4

Table A4.1 

Policy instruments for reducing the use of plastic bags — results from Eionet consultation 
(cont.)

Voluntary agreement

Voluntary agreement

Law

Sweden

Supermarkets charge  
EUR 0.2‑0.5 for each 
plastic bag.

Deposit‑refund system for 
plastic bags

https://www.
svenskdagligvaruhandel.
se/riktlinjer/
branschoverenskommelser/
plastbarkassar

http://www.pantapasen.se

Anyone selling or giving 
away plastic carrier bags 
should provide information 
about how plastic bags affect 
the environment and how 
consumers can reduce their 
consumption. Manufacturers 
and importers to Sweden 
should report to the Swedish 
Environmental Protection 
Agency how many plastic 
bags they have added to the 
Swedish market.

• Reduce consumption of all 

plastic carrier bags

• 90 lightweight plastic bags 

per person by 
31 December 2019

• 40 lightweight plastic bags 

per person by 
31 December 2025

According to the Swedish 
Trade Federation there 
was an average reduced 
consumption of 35 % in the 
first year after the law came 
into force.

http://www.naturvardsverket.
se/Stod‑i‑miljoarbetet/
Vagledningar/Plast‑och‑
mikroplast/plastbarkassar

http://www.riksdagen.se/sv/
dokument‑lagar/dokument/
svensk‑forfattningssamling/_
sfs‑2016‑1041

http://www.svenskhandel.
se/aktuellt‑och‑opinion/
pressmeddelanden/2018/
handlarna‑ser‑minskad‑
konsumtion‑av‑plastbarkassar

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Measure

Amount  
of tax

Objectives

Outcomes

Sources

54

Preventing plastic waste in EuropeAnnex 4

Table A4.1 

Policy instruments for reducing the use of plastic bags — results from Eionet consultation 
(cont.)

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Measure

Voluntary agreement of retailers

Switzerland

The biggest retailer associations in Switzerland signed an agreement to voluntarily stop giving 
away single‑use plastic bags for free in retail stores, where mainly food is sold. Single‑use 
plastic bags can still be given for free when used for the packing of fruit/vegetables sold 
without packaging or for hygienic reasons.

Amount  
of tax

No tax

Objectives

Reduction of the consumption of single‑use plastic bags of 70‑80 % by 2025

Outcomes

Between 2016 and 2017, a reduction in single‑use plastic bags in retail stores of 84 % was 
reached.

Sources

http://www.swiss‑retail.ch/wp‑content/uploads/2017/09/Branchenvereinbarung_signed‑1.pdf

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Regulation

Measure

Charge for plastic carrier bags from 1 January 2019

Sales point must charge for all plastic carrier bags

Turkey

NOT thin plastic bags (< 15 µm two‑ply thickness) used as primary bags in contact with food

Amount  
of tax

The price will be determined by the Packaging Commission, established by the presidency of 
the Ministry of Environment and Urbanisation.

Objectives

Reduce the use of plastic bags:

• By 31 December 2019: 90 bags per person

• End of 2025: 40 units per person

Outcomes

Sources

55

Preventing plastic waste in EuropeAnnex 4

Table A4.1 

Policy instruments for reducing the use of plastic bags — results from Eionet consultation 
(cont.)

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Measure

Amount  
of tax

Objectives

Outcomes

Sources

Law

Environment plan

United Kingdom

The 25‑year environment plan included a 
specific commitment to extend the carrier bag 
charge to small and medium‑sized businesses 
(those with fewer than 250 employees) on a 
mandatory basis if voluntary approaches were 
not deemed to be sufficient. A consultation 
will be undertaken later this year to explore 
what further environmental benefits can 
be achieved by mandating the charge to all 
retailers and possibly increasing the current 
GBP 0.05 charge to at least GBP 0.10.

Charge for all single‑use plastic carrier bags 
(shops with fewer than 250 employees are 
currently exempt from the charge, which is 
voluntary) 
Exceptions: 

• paper bags;

• shops in airports, or on board trains, 

aeroplanes or ships;

• bags that only contain certain items, such as 
unwrapped food, raw meat and fish where 
there is a food safety risk, prescription 
medicines, uncovered blades, seeds, bulbs 
and flowers, or live fish.

GBP 0.05

Reduce the use of single‑use plastic carrier 
bags, and the litter associated with them, by 
encouraging people to reuse bags.

The data show that the seven main retailers 
have distributed almost 15.6 billion fewer bags 
since the charge was introduced. Customers in 
England now purchase the equivalent of just 
19 bags per person in England, compared with 
140 bags since the government introduced 
the charge in 2015 — a dramatic reduction of 
86 %.

pdf: 2017‑052; IUCN (2017) National marine 
plastic litter policies in EU Member States: an 
overview

http://www.bbc.com/news/uk‑42630898

https://www.theguardian.com/
environment/2018/apr/05/drop‑in‑plastic‑
bags‑littering‑british‑seas‑linked‑to‑
introduction‑of‑5p‑charge

https://www.gov.uk/government/publications/
single‑use‑plastic‑carrier‑bags‑why‑were‑
introducing‑the‑charge/carrier‑bags‑why‑
theres‑a‑5p‑charge

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Measure

Law

United Kingdom — Scotland

Since 2014, all shops must charge their customers for each new single‑use carrier bag supplied 
for the purpose of taking goods home, regardless of material. Exemptions provided for health 
and safety, privacy or security. Very small bags and bags intended for multiple reuse are not 
included in the charge.

Amount  
of tax

Minimum required charge is GBP 0.05

Objectives

Reduce litter and resource use by encouraging switch to reusable alternatives.

Outcomes

One year on report indicated a cut of around 80 % in uptake.

Sources

https://www.zerowastescotland.org.uk/content/carrier‑bag‑charge‑%E2%80%98one‑year‑
on%E2%80%99‑report‑0

56

Preventing plastic waste in EuropeAnnex 4

Table A4.1 

Policy instruments for reducing the use of plastic bags — results from Eionet consultation 
(cont.)

Policy 
instruments 
for reducing 
the use of 
plastic bags

Type of 
agreement

Measure

Law

Voluntary

United Kingdom — Wales

Since 2011, all shops must charge their 
customers for each new single‑use carrier bag 
supplied, including those made from plastic, 
paper and bioplastics. Exemptions:

Shops selling, at point of sale, plastic bags 
designed for multiple reuse voluntarily charge 
customers for them. Charges vary according 
to retailer and bag construction.

• shops in airports, or on board trains, 

aeroplanes or ships;

• public health exemptions — bags which only 
contain certain items, such as unwrapped 
food, raw meat and fish where there is a 
food safety risk, prescription medicines, 
uncovered blades, seeds, bulbs and flowers, 
or live fish; 

• bags designed for multiple reuse.

Amount  
of tax

GBP 0.05

Determined by retailer, but equal to or greater 
than £0.05, often significantly more

Objectives

• Encourage a shift in consumer behaviour to reusable alternatives.

• Cut down on the use of resources.

• Prevent waste.

• Reduce litter.

Outcomes

Between 2006 and 2009, a UK‑wide, voluntary charge in seven major supermarkets resulted in 
an estimated 48 % reduction in single‑use bag consumption. 

The introduction of the Welsh single‑use bag charge resulted in a further reduction of 
78 % between 2010 and 2014 in the same supermarkets. Consumption was estimated at 
25 single‑use bags per capita. 

In 2016, our post‑implementation review investigated the impact of the charge across the 
whole retail sector, estimating a 70 % reduction in single‑use bags between 2011 and 2014. 
Reusable 'bags for life' usage was also estimated, giving an overall reduction of 57 % for both 
bag types over the same time period.

Sources

Voluntary agreement 2006 to 2009: http://www.wrap.org.uk/sites/files/wrap/UK‑Voluntary‑
Carrier‑Bag‑Agreement‑Presentation_v4_0.pdf

WRAP Data, 2010 until 2014: http://www.wrap.org.uk/2015_carrier_bag_figures

Post‑implementation Review: https://gov.wales/docs/caecd/research/2016/160314‑post‑
implementation‑review‑single‑use‑carrier‑bag‑charge‑summary‑en.pdf

57

Preventing plastic waste in EuropeEuropean Environment Agency

Preventing plastic waste in Europe

2019 — 57 pp. — 21 x 29.7 cm

ISBN 978‑92‑9480‑194‑4
doi:10.2800/096909 

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