
PPWR: The EU Packaging Waste Regulation
Unpacking the EU’s new packaging regulation: A turning point for packaging
The European Union’s Packaging and Packaging Waste Regulation (PPWR) was published into law in early 2025, signaling a step-change in packaging circularity across Europe. It’s the most transformative legislation in decades, designed to drive a circular economy with a strong focus on recycling, reuse, and sustainable innovation. But what does this mean for businesses, policymakers, and consumers? Let’s break it down.
A snapshot of the current landscape
To understand the significance of the PPWR, it helps to first look at the existing framework:
- Packaging and Packaging Waste Directive (PPWD): In place since 1994, the PPWD introduced recovery targets for packaging waste, but left much of the implementation to individual member states.
- Single-Use Plastics Directive (SUPD): Focused on tackling waste from single-use plastics, the SUPD set specific reduction targets and mandates for plastic beverage bottles.
The PPWR builds on these foundations while addressing gaps and raising the bar for circularity. It replaces the PPWD entirely, introducing harmonized rules that apply across all EU member states.
What is the Packaging & Packaging Waste Regulation (PPWR)?
The PPWR is a binding regulation that replaces the PPWD and revises rules on packaging and waste across the EU. Unlike directives, which require member states to create their own laws to meet goals, regulations apply directly and uniformly across all countries.
The PPWR aims to reduce the environmental impact of packaging, and boost high-quality recycling and the circular economy. It harmonizes rules across the EU to create a level playing field for producers, waste management companies and other stakeholders,” explains Bilyana Ignatova, Head of EU Policy; Public Affairs at TOMRA. “The PPWR will be the most transformational piece of legislation for the packaging sector in the last 30 years, setting wide-ranging requirements and enablers for packaging circularity.”

This regulation evolved from the EU Packaging & Packaging Waste Directive (PPWD), introduced in 1994. Over time, the directive became outdated as waste levels rose and fragmented national rules created barriers for brands and producers. Triggered by the EU’s 2020 Green Deal, the PPWD was reexamined, leading to the development of the PPWR. As Bilyana Ignatova explains, “The PPWR is an outcome of the previous Green Deal era, and heralds the shift from a previous mandate to a new mandate.”
Unlike directives, which set goals and allow member states to decide how to meet them, regulations like the PPWR are directly enforceable across all EU countries. This ensures consistency in implementation and accelerates progress toward circularity.
While the PPWR builds on the SUPD, it doesn’t replace it. The SUPD remains a “lex specialis” - a specific law that takes precedence over general provisions in its scope. Its targets remain unchanged, though the PPWR does integrate the SUPD’s recycled content target for plastic beverage bottles and corresponding reporting obligations.
Key innovations of the PPWR
Separate collection targets and deposit schemes for drink containers
The PPWR builds upon existing targets for the separate collection of drink containers, including the 90% target for plastic beverage bottles by 2029, and extends this to include metal beverage cans. It mandates the implementation of deposit return systems (DRSs) as a key mechanism for achieving these goals, emphasizing their effectiveness in reaching high collection rates. Additionally, the PPWR outlines minimum requirements for DRSs, such as independent system operators, clear labeling, and reinvestment of revenues into public awareness campaigns, ensuring these systems are not only efficient but also accessible and consumer-friendly.Expanded recycling goals
The PPWR sets ambitious requirements for all packaging to be designed for recyclability, mandating that at least 70% must be recyclable to be allowed on the EU market from 2030 onwards. Design alone will not be enough, as packaging must also be practically recyclable. This will necessitate improvements in collection, sorting, and recycling infrastructures.Recycled content requirements
By 2030, plastic packaging must include 10%–35% recycled content, with stricter benchmarks by 2040 up to 65%. These requirements are important for the plastics value chain, driving innovation in eco-design and advanced recycling technologies like advanced mechanical recycling (AMR) and chemical recycling.Reusable packaging requirements
For the first time, the EU introduces specific requirements for reusable packaging. Under the PPWR, retailers will be required to offer a percentage of beverages in reusable formats, and quick-service establishments must provide reusable cups and containers. This represents a major shift in consumer behavior and packaging systems.Secondary legislation
While the PPWR sets overarching goals, many key requirements will need to be fleshed out through secondary legislation, which will provide the detailed rules or technical specifications necessary to implement or enforce the primary legislation effectively. These technical acts will play a critical role in defining implementation details for businesses and waste management systems.Challenges on the horizon
Adapting to the PPWR won’t be easy. Key hurdles include:
- Infrastructure investment: Many regions lack the necessary collection and sorting systems to meet the new standards. Scaling deposit return systems (DRS) and MWS will be crucial.
- Economic feasibility: Meeting recycled content targets and reuse mandates will incur costs. Policies like eco-modulated fees will be essential to balance these expenses and incentivize innovation.
- Collaboration across the value chain: Producers, recyclers, and waste management operators must work together to align efforts and achieve success.
- International dimension and level-playing field: The European market and economy do not exist in isolation. To ensure fair competition and sustainability, the PPWR rules would need to apply equally to imported packaging.
Timelines for change
The PPWR has been published into law, with most provisions taking effect in the second half of 2026 unless otherwise specified. However, businesses must begin preparing now to meet these ambitious goals and align with upcoming technical regulations.

Global implications of the PPWR
Beyond Europe, the PPWR sets an international benchmark for packaging circularity. Its level of ambition and harmonized rules provide a template for other regions and could influence global negotiations, such as the global plastic treaty.
Turning challenges into opportunities
The PPWR not only aligns with growing consumer and market demand for sustainable products, but it is also a catalyst for innovation, pushing industries to develop new solutions and technologies. For TOMRA, this is an opportunity to lead by example. Offering pioneering solutions like advanced collection and sorting technologies, we’re supporting this transformative shift and shaping a more resource-efficient future.
Learn more about PPWR

What the Packaging & Packaging Waste Regulation means for deposit return schemes

Packaging's next chapter: The PPWR and the power of reuse

Recycled content targets: What the PPWR means for packagings future

Stronger packaging smarter recycling: The PPWRs impact
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