The report, produced by Eunomia, is entitled ‘Facilitating the Adoption of Takeaway Reuse Systems’ and aims to show the course of action for public authorities to best “maximise the environmental and economic benefits” of reuse systems.
Switching to these systems may reduce greenhouse gas emissions by as much as 54% in Aarhus and 34% in Berlin, according to the report.
The report explores the costs associated with six formats of single-use and reusable takeaway packaging systems – based on two city case studies – and investigates the policy instruments likely to drive higher levels of market adoption of reuse systems for packaging.
While the difference in net cost varies by format, small vendors in cities like Aarhus and Berlin could see cost savings covering takeaway drinks cups and food service formats, while large businesses may face higher costs due to the economies of scale favouring single-use packaging.
The report has revealed that, while single-use packaging seems cheaper, there are hidden costs, such as those related to litter clean-up, litter disamenity and carbon impacts, that are said to make it more expensive for vendors and consumers than a reuse system.
Zero Waste Europe has said that to level the playing field, these external costs must be factored in, and public authorities should implement fiscal measures, such as levies or taxes, to create fair competition with its single-use counterparts.
More stringent measures
The report also outlined a series of complementary measures: while setting minimum requirements for reuse systems or making reuse the default packaging option in shops can encourage gradual shifts, more “stringent measures” such as setting meaningful targets for reuse or establishing an outright ban on single-use packaging are considered more effective.
Larissa Copello, packaging and reuse policy officer at Zero Waste Europe, said: “Nobody can question the fact that reuse systems for takeaway packaging are needed to address our waste crisis. But without a serious scale and a rock-solid framework, it’s just not going to cut it. Single-use packaging still dominates the market, with reuse playing catch-up. It’s time to level the playing field through policy intervention to unlock reuse’s full potential.”
Andy Grant, technical director, Eunomia Research & Consulting, added: “Increased interest in the development of reuse systems for takeaway packaging within EU cities, regions and Member States is a really positive step forward.
“However, single-use takeaway packaging is currently the prime choice for vendors due to its low cost and convenience, with externalities unaccounted for in supply chain costs. Our analysis shows that to enable reuse systems to compete against these strong market forces, public authorities should implement specific policy measures to level the playing field. This will set up the right conditions for reuse systems to thrive and eventually become the norm.”
Fernando Rodríguez-Mata, director general at the New European Reuse Alliance, said: “This report is unique in shedding light on the costs associated with both reusable and disposable containers for six of the most common types of takeaway packaging. The results are unambiguous: we need policies that provide the conditions and incentives to transition to well-designed reuse systems, unlocking their full environmental and economic potential.”
Geir Sæther, SVP circular economy and head of TOMRA Reuse, concluded: “Since the Aarhus pilot began in January 2024, the municipality has seen less litter from disposable cups on city streets. Also, the largest vendor participating decided to replace all disposable beer and soda cups with reusables, reducing on-site litter and waste management costs, following the success of the pilot.
“However, achieving the necessary adoption levels for full environmental benefits remains challenging, despite positive feedback on the system’s convenience. We believe regulatory measures are essential for reusable takeaway packaging to become the norm. The report’s findings from the Aarhus pilot should be valuable for other cities and countries considering similar systems.”
Read the full report here.
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