When the government launched its review of waste policy in 2010, packaging was one of the key issues it said it would address. But to date there has been very little indication of what direction of travel ministers might take.
However, the Advisory Committee on Packaging (ACP) a group of experts which advises Defra on packaging policy is preparing to publish a report of recommendations at the end of May which is expected to heavily influence the review.
According to committee chair Bob Lisney, one of the core messages of the report is how far the UK has come in tackling packaging waste.
As well as meeting European packaging recycling targets, he claims the UK is also number one in the world for reducing packaging per person.
But achievement is one thing and perception another. The committee found a significant problem remains in how packaging is perceived.
In the responses to Defras waste review consultation, 50% of respondents mentioned packaging and retailer survey have also found public frustration over packaging.
To combat this mentality, the committee decided that it was important not to get complacent about achievement so far and to keep the foot on the pedal with regards to increasing packaging recycling and recovery rates.
And, it is expected in its report, the committee will set out a pathway to 2020 in which it recommends that a considerably higher target for plastics than the 23% that was recycled in 2010 and similar to the ambitious planslaid out by the former government (see letsrecycle.com story).
“Value”
It is also understood that the ACP is likely to recommend ruling out the idea of split targets for glass and plastics to incentivise recycling into re-melt and the collection of mixed plastics respectively, as the previous government had proposed (see letsrecycle.com story).
The ACP said that its aspirations would help to ensure that packaging recycling evidence known as PRNs – retain some value.
The government has attracted a lot of criticism in recent months for keeping packaging recycling targets broadly the same for 2011 and 2012 which has meant that currently the price being paid for PRNs has hit rock-bottom (see letsrecycle.com story).
The big message is that packaging waste is not a problem at all but there is a huge perception issue and we have to keep our foot on the pedal, Mr Lisney explains. We got everyone across the supply chain to say where they want to be by 2020 and if there are any key issues which need development.
Plastics
One of the key areas where perception is a problem, according to Mr Lisney, is with plastics. Although accounting for just 2.4 million tonnes of waste a year, this waste stream accounts for over 65% of packaged goods meaning that it is highly visible.
With plastics there needs to be a step-change in collections, he explains. That means collecting all bottles we can and at least 50% of local authorities collecting mixed plastics. We have looked at best practice across Europe and we need to pick the best systems from different countries as non-one is doing everything right.
Once you turn the tap on for many of these material streams then the influx of volumes allows for domestic reprocessing infrastructure to be developed.
On the film front, Mr Lisney pointed to work already underway by retailers to collect plastic bags and film in store (see letsrecycle.com story).
However, he stresses the importance of the film not being contaminated: This can be very hard to recycle and costly.
Quality
The importance of quality is something which the ACP is in fact keen to promote for all materials.
The committee fears that export markets for all lower-quality recovered material may potentially dry up by 2020, meaning that unless the quality improves, it may have to be landfilled.
To avoid this, the ACP is keen for councils to specify quality requirements when they re-let their collection contracts and to recognise the potential value of the materials they recover. It is also keen to see more uniformity in the type and standard of materials collected.
This is a shift to see it not as waste or recycling, but a material commodity, Mr Lisney says. There is more that can be done through collections contracts in order to meet volume and quality requirements.
Seventy five per cent of contracts will be re-let between now and 2020 so there is a great opportunity to let them with very generic outcomes with regards to quality and, for example, for glass to be collected as glass not down-cycled as aggregate.
This is not about one type of collection system. Local government should see themselves as working to one service for households as well as industry and they should get more value for the material which will go some way to offsetting the collection costs.
Industry
Mr Lisney explains that industry could work with councils to help make this happen, through partnerships such as that trail-blazed by Marks and Spencer (M&S) and the Somerset Waste Partnership (see letsrecycle.com story).
However, he stresses that M&S was somewhat unique in its approach to waste and pointed out that businesses would not subsidise collections unless there was a strong business case.
It could be collection deals that industry does or industry with local government, linked in with the next phase of the Courtauld Commitment which looks at function and quality. I think the agenda is moving that way. Essentially if we collect a lot of rubbish it wont sell, he says.
Collection
With regards to the method of collection the ACP is not prescriptive: We dont need to get into debate over kerbside sort or commingled both will be fit for purpose.
One model which Mr Lisney suggests may help to drive quality is if councils form into large consortia to sell materials. WRAP and the iESE (Improvement and Efficiency South East) are planning to look into this by evaluating the efficiency of consortia of up to 50 councils selling recyclables together.
Local authorities have not had a stake in the market for reprocessing, Mr Lisney claims. There is an opportunity to get them involved in that and get to grips with the value of material. There is a false idea that collecting more materials leads to more costs. There is also an opportunity for councils to provide recycling services to small businesses.
With regards to which collection method to use, the ACP is more neutral: We dont need to get into debate over kerbside sort or commingled both will be fit for purpose.
Design
Another area in which the ACP sees scope for improvement in its report is packaging design. While producers have already made great strides in reducing the weight of packaging they use the ACP says that there is room for more innovation.
If those ordering packaging specify what function it needs rather than what type of packaging. That can lead to innovation in design, Mr Lisney says. Innovation is important and we will be very strong on that as a recommendation.
The committee is also keen for the Environment Agency to tighten up its enforcement of the Packaging Regulations and is interested in a possible change in legislation to make wholesalers who currently dont pay towards packaging recycling to be obligated under the PRN system.
Legislation
So is the ACP confident that the messages in its report will be listened to?
We have given the minister and Defras policy team our recommendations and briefed them. We are hoping they will take them on board, reports Mr Lisney.
Given the amount of work everyone has put in they have worked incredibly hard I think the government would be silly to not accept them especially as we are not looking for a change in legislation.”
Mr Lisney says he expects targets to be put in place by the government until at least 2014 to help incentivise the market.
At this point, the Packaging Waste Directive is expected to be revised, meaning that it will be an apt time to review the targets proposed for future years.
Im not saying that by 2012 it will be wonderful but if in three years time I feel we are on track I will feel quite comfortable, Mr Lisney says.
We have got the ingredients and recipe. Now the task is to make sure everyone understands what is needed.
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