On December 16, 2024, the European Council formally adopted the European Union’s long-anticipated Packaging and Packaging Waste Regulation (PPWR), legislation aimed at improving the sustainability of all packaging across the union. The regulation has been in the works since November 2022 when it was first proposed by the European Commission. It introduces a wide range of binding requirements and targets intended to reduce packaging waste and promote recycling, reuse, and sustainability. However, the PPWR has been the most lobbied political process in the EU’s history (FPF reported), with many expressing concerns that the requirements in this final version have been heavily diluted by profit-driven special interest groups.
A central aspect of the new regulation is the requirement that, by 2030, all packaging placed on the market must be recyclable. To support this goal, new standards will be developed, setting out design-for-recycling criteria. Additionally, there are mandatory targets for incorporating recycled content into packaging materials. For single-use plastic beverage bottles, the recycled content target will increase progressively, reaching up to 65% by 2040.
Reuse and refill are also addressed in the regulation, although less extensively than in a previous draft (FPF reported). The final version sets targets to reach 10% reusable beverage containers by 2030, increasing to 40% by 2040, with various exceptions for wines, spirits, and milk. Takeaway operators will be obligated to accommodate reusable containers brought by customers at no additional charge and will need to offer “10% of products for sale in a reusable packaging format.” Concerning refill, distributors with a retail area exceeding 400 m² will be required to allocate at least 10% of their space to refill stations by 2030.
Certain types of single-use plastic packaging will be prohibited under the new rules. Specifically, the regulation bans the use of single-use plastic packaging for pre-packed fruits and vegetables weighing less than 1.5 kg, as well as for food and beverages consumed within hotels, bars, and restaurants. Additionally, individual portions of condiments, sauces, milk creamers, and sugar provided in such establishments will no longer be allowed. Lightweight plastic bags commonly offered in grocery stores are also included in the ban.
The regulation introduces limits on the presence of per- and polyfluoroalkyl substances (PFAS) in packaging. Packaging items exceeding the following thresholds will be prohibited 18 months from its entry into force:
- 25 parts per billion (ppb) for any single PFAS detected through targeted analysis (excluding polymeric PFAS),
- 250 ppb for a group of PFAS detected through targeted analysis (excluding polymeric PFAS), and
- 50 parts per million (ppm) for all PFAS, including polymeric PFAS.
In addition, the regulation requires manufacturers to limit substances of concern and to design packaging materials, including recycled ones, to “not have any adverse effect on human health or the environment throughout their lifecycle.” Further details on how this will or should be implemented or enforced in practice are not provided in the text.
The adopted regulation will become applicable 18 months after its publication in the Official Journal of the European Union, which marks its entry into force and can be expected in the coming weeks. More details on the recycled content and reuse targets within the PPWR are quoted directly below:
Detailed recycled content targets: Article 7
“By 1 January 2030 or 3 years from the date of entry into force of the implementing act […], whichever is the latest, any plastic part of packaging placed on the market shall contain the following minimum percentage of recycled content recovered from post-consumer plastic waste […]:
- 30 % for contact-sensitive packaging made from polyethylene terephthalate (PET) as the major component, except single-use plastic beverage bottles;
- 10 % for contact-sensitive packaging made from plastic materials other than PET, except single-use plastic beverage bottles;
- 30 % for single-use plastic beverage bottles;
- 35 % for plastic packaging other than those referred to in points (a), (b) and (c).
By 1 January 2040, any plastic part of packaging placed on the market shall contain the following minimum percentage of recycled content recovered from post-consumer plastic waste […]:
- 50 % for contact-sensitive packaging made from PET as the major component, except single-use plastic beverage bottles;
- 25 % for contact-sensitive packaging made from plastic materials other than PET, except single-use plastic beverage bottles;
- 65 % for single-use plastic beverage bottles;
- 65 % for plastic packaging other than those referred to in points (a), (b) and (c).”
Detailed reuse targets: Article 29
“From 1 January 2030, final distributors that make alcoholic and non-alcoholic beverages in sales packaging available on the territory of a Member State to consumers shall ensure that at least 10% of those products are made available in reusable packaging within a re-use system.
From 1 January 2040, economic operators shall endeavour to make at least 40 % of the products referred to in the first subparagraph available in reusable packaging within a re-use system.
The targets laid down in [the above] paragraph shall not apply to:
(a) beverages which are highly perishable within the meaning of Article 24 of Regulation (EU) No 1169/2011 and milk and milk products listed in Part XVI of Annex I to Regulation (EU) No 1308/2013 and their dairy analogies falling within codes 2202 99 11 and 2202 99 15 of the Combined Nomenclature (CN) in Annex I to Council Regulation (EEC) No 2658/8770;
(b) categories of grapevine products listed in […] Part II of Annex VII to Regulation (EU) No 1308/2013;
(c) aromatised wine products as defined in Regulation (EU) No 251/2014 of the European Parliament and of the Council;
(d) products that are similar to wine products and aromatised wine products and that are obtained from fruit other than grapes and vegetables, and other fermented beverages falling within CN code 2206 00;
(e) alcohol-based spirituous beverages corresponding to CN heading 2208.”
Detailed takeaway sector reuse targets: Article 33
“By … [36 months from the date of entry into force of this Regulation], final distributors that conduct their business activity in the HORECA sector and that make available on the territory of a Member State hot or cold beverages or ready-prepared food in take-away packaging shall give consumers the option of obtaining the products in re-useable packaging within a system for re-use.”
“From 2030, final [take-away] distributors shall endeavour to offer 10% of products for sale in a reusable packaging format.”
References
European Council (December 16, 2024) “Sustainable packaging: Council signs off on new rules for less waste and more re-use in the EU.”
European Union (December 4, 2024) “Regulation (EU) 2024/… on packaging and packaging waste.”
Read more
Radhika Sikaria (March 6, 2024) “’Packaging lobbyists have won,’ says EPN after EU Parliament and Council revamp PPWR agreement.” Packaging Insights
Leonie Cater (January 26, 2024) “Parliament probing lobbyists who fought sustainable packaging rules.” Politico
Maria Rachal (December 16, 2024) “EU packaging regulation clears final legislative hurdle.” Packaging Dive
Charlotte Niemec (December 18, 2024) “PFAS restrictions in EU food packaging to apply from 2026 under PPWR.” Chemical Watch News & Insight
Philip Chadwick (April 30, 2024) “What does Europe’s new packaging regulation mean for food and beverage manufacturers?” Chemical Watch News & Insight
