The role of reusable plastics packaging in the circular economy
The role of reusable plastics packaging in the circular economy
The British Plastics Federation (BPF) is the trade association representing the entire plastic supply chain in the UK, from polymer producers and distributors, to converters, equipment suppliers and recyclers. The BPF works in close collaboration with its member companies and liaises closely with government departments, as well as broad range of non-governmental stakeholders such as customer industries and brand, retailers and charities.
This report has been produced by the British Plastics Federation.
This document is intended for the plastic industry for general guidance and information purposes only. It does not constitute legal advice, nor should it be relied upon as such. The content is based on our current understanding and knowledge at the time of writing. For specific legal advice or interpretation, we recommend consulting with a qualified legal professional. The BPF accepts no liability for any actions taken based on this guidance.
This report does not necessarily reflect the views of individual companies mentioned in this report and information provided by companies does not necessarily reflect the views of the BPF.
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No part of this publication may be reproduced, stored in a retrieval system, or transmitted, in any form or by any means, electronic, mechanical, photocopying, recording and/or otherwise, without the prior written permission of the publishers. While all reasonable steps have been taken to ensure that the information contained within this document is correct, the British Plastics Federation can make no warranties or representations of any kinds as to the content and, to the maximum extent permitted by law, accept no liability whatsoever for the same including without limit, for direct, or indirect or consequential loss, business interruption, loss of profits, production, contracts or good will.
Despite many barriers facing the uptake of reusable plastics packaging there is much optimism as we are seeing pioneer companies beginning to introduce refill and reuse systems while using their learnings to refine and improve their products. There are many companies determined to make it work. With a modest change in direction from government, improving communication channels for consumers, and development of systems that deliver reusability without the difficulties normally associated, they will inevitably succeed.
Plastic packaging is ideally placed to be the material of choice for refill systems thanks to its durability, lightweight, ability to be hygienic, low carbon impact, and wide spectrum of mechanical properties. It is therefore hardly surprising that those refill solutions that are starting to achieve scale are using plastic packaging as the material of choice.
Continued work by the entire value chain is needed to make reuse become a mainstream part of consumers’ lives through developing the best systems, targeting the right products, and communicating the benefits. Pressure on government to adapt the existing legislation and introduce new measures that will promote reuse as part of a true circular economy is a key action to achieving the goal.
1. Introduction
“To reuse or not to reuse” is a longstanding question within the packaging industry. We all recognise the benefits of reuse and how in future it will be at the forefront of packaging solutions for more products. Companies need to learn from the fledgling trials and pilots conducted over recent years and urgently push forward with development of reuse products/systems to drive down the reduction of waste, litter and contribute to a netzero carbon future.
Reuse of packaging can be a divisive topic with arguments about which business model is the best, how packaging manufacturers would cope with reduced demand, what form of Life Cycle Assessment (LCA) should be used to verify if a
system has a positive carbon reducing benefit, and a myriad of other questions. Public concerns over hygiene, material preferences by system operators, and the effects of legislation, all featured heavily in our research and making a coherent argument from many diverse points of view can be complicated.
The plastics packaging industry has been under sustained pressure for many years to fundamentally change and transition to a more sustainable business model that doesn’t cause so much environmental harm. Reuse offers a way to achieve these and plastic is fast becoming a ‘go-to’ material for reuse systems.
2. The Case for Reuse
When we look at the waste hierarchy, reuse appears second on the list, below ‘reduce’ but above ‘recycling’.
Ironically, companies have been reducing the weight of their packaging for many years (Coca-Cola have reduced the weight of their 500ml PET bottles by 30%, from 28.9g to 19.9g since 2008),1 and the BPF in cooperation with RECOUP have published an updated Recycling Roadmap in 2024.2 Reuse has not had the attention it deserves mainly because it represents a fundamental change to current business models.
There are various descriptions of what types of reuse and refill models are available but the most widely used is from the Ellen Macarthur Foundation3 breaking the possibilities into four different business models.
“Reuse has not had the attention it deserves mainly because it represents a fundamental change to current business models.”
GoUnpackaged, in their 2025 report “A 30% reuse future for the UK”4 break Return from home (the most likely option for reuse) into four subgroups.
There are several widely used definitions of reuse but all have common features.
UKRI/UK Circular Plastics Network5
Reuse: reusing an item or component repeatedly for the same purpose it was originally designed for.
Refill: use of the same container/packaging vessel to acquire consumable product two or more times.
Ellen MacArthur Foundation6
The repeated use of a product or component for its intended purpose without significant modification. Small adjustments and cleaning of the component or product may be necessary to prepare for the next use.
WRAP7
An item of packaging can be defined as reusable if it is conceived, designed and marketed to carry out multiple trips in its lifetime by being refilled or reused for the same purpose for which it was conceived.
UK Government8
A product is reusable if it can be used safely and easily many times for its original intended purpose. For example, by being:
• refilled at home over an extended lifespan
• reused by a business for many circuits or rotations
European Union
Packaging is deemed reusable if:
• It was conceived, designed and placed on the market with the aim of being reused multiple times
• It can complete as many cycles as possible under normally foreseeable conditions of use
• It fulfils consumer health, safety and hygiene requirements
Any case for reusable plastics has to be backed up by evidence, including but not limited to, LCA data proving it has a positive environmental effect. The fact that the primary pack will be refilled and used again providing a reduction in material usage and emissions, needs to offset the emissions associated with either recovering, cleaning and refilling packs, depending on the model used. Without this there is a potential that the effort creates more environmental issues (emissions, water usage, etc.) than the single use alternative.
There are many studies of reuse systems available including:
1. Life cycle assessment of reusable plastic food packaging (Pooja Yadav, Frans Silvenius et. al. - Journal of Cleaner Production: 5th April 2024) – Which found that PP take-away food container, when used six times, had a lower Global Warming Potential (GWP) than single-use equivalents.9
2. Current state and research directions for disposable versus reusable packaging: A systematic literature review of comparative studies (Henrik Pålsson, John Olsson – Packaging Technology and Science: 6th March 2023) “Slightly under half of the studies use the Life Cycle Assessment (LCA) methodology. The review of these studies provides some indicative suggestions for when disposable and reusable packaging is environmentally preferable, but the number of LCA studies is too limited, and their content too fragmented to draw general conclusions about this.”10
3. Reusability and recyclability of plastic cosmetic packaging: A life cycle assessment (Isaac Jordan Gatt, Paul Refalo - Resources, Conservation & Recycling Advances: November 2022) “Findings showed that the positive effect of reusability outweighs by far the effects of dematerialisation by 171%, and that removing resourceful materials which render the package
to be reusable, resulted in a 74% reduction in environmental impacts only when the packaging materials are fully recycled.”11
4. Many Happy Returns: Combining insights from the environmental and behavioural sciences to understand what is required to make reusable packaging mainstream (Sarah Greenwood, Stuart Walker, et. al – Sustainable Production and Consumption: July 2021) “The findings of the life cycle assessment indicate that reusable containers outperform singleuse plastic containers on most measures of environmental impact.”
5. Comparative LCA of Reusable and SingleUse Packaging Systems for Grocery Items in the UK (Eunomia) Gives a detailed analysis of GoUnpackaged in-store refill (Aldi) and home delivery (Ocado) systems, concluding that there are significant benefits for categories such as granola/muesli, cereals and some oats for the former, and for rice, pasta and detergent/ conditioner in the latter.12
As well as reducing emissions, reuse can lower industry’s dependence on extraction of raw materials. Many natural resources are already under strain and if we keep reusable packaging in circulation for as long as possible and recycle it at the end of its life, then we will be less reliant on using these finite materials. This will also reduce our need for energy for processing, water for manufacture, and transport of materials.13 This will also alleviate the need to import materials from abroad where geopolitical conditions or conflict may lead to supply issues.
The Ellen MacArthur Foundation also highlight the financial benefits to companies by introducing reuse systems: “Globally, replacing just 20% of single-use plastic packaging with reusable alternatives offers an opportunity worth at least USD 10 billion. Reuse models can bring major user and business benefits including superior user experiences, user insights, brand loyalty, and cost savings.”14
There are both environmental benefits to using reusable packaging as well as business opportunities for companies that adopt reuse. As long as we employ the appropriate systems, both should be possible.
In a recent statement Aldi, Asda, Co-op, Lidl GB, Morrisons, Ocado Retail, Sainsbury’s, Tesco and Waitrose made a joint commitment to furthering reusable models within their stores. “We, the grocery retailers of the UK, have a common ambition to work together to enable increased consumer adoption and participation in a circular economy by exploring how reusable packaging (with a focus on prefill) could be implemented through interoperable systems. Recognising the challenges to achieving this at scale, we intend to collaborate on an approach that has the potential to deliver a reduction in single use packaging by 2030.”15
Reuse needs its own complete ecosystem to be successful. It is no good to just sell a product in a piece of packaging and call it reusable if there is no way to collect it, clean it, repurpose it and refill it.
For companies looking to set up reuse systems there are many considerations:
• A compelling business case taking into account environmental benefits, supporting data, and a longer-term view on Return On Investment (ROI).
• Investment over a longer-term including capital and people.
• Buy-in from consumers and senior management.
• Communications both for education and brand values.
Reuse needs its own complete ecosystem to be successful. It is no good to just sell a product in a piece of packaging and call it reusable if there is no way to collect it, clean it, repurpose it and refill it.
To develop a reuse system it will need the cooperation of several companies as the necessary skills, knowledge, and infrastructure are not usually owned by a single operator.
• Collaboration is needed across different industry sectors but there must be a “driving force” to convene the system (possibly an independent third party).
• Mapping of the circular supply chain including the likely pinch points in the system, and the profit margins.
• Consortia need a clear vision of reuse and refill and to be open to those that can add value.
• Careful management of competition law and the Groceries Supply Code of Practice (GSCOP)
Reuse is already common in Business to Business (B2B) operations but less prevalent in Business to Consumer (B2C) situations. B2B often involves closed loop delivery systems and compact geography which aids return and reverse logistics.
For B2C ensuring the reusable packaging is returned in B2C loops remains a key challenge, especially as products tend to be more widely spread, is a serious limiting factor (except for in an enclosed venue such as a stadium or festival).
There are many good examples of plastics being used in packaging for B2B applications, mainly in returnable transit systems, including:
• Plastics crates for fresh fruit and vegetables.
• Intermediate Bulk Containers (IBC’s).
• Fitted trays for delicate or complex components and sub assemblies.
• Drums, crates and sacks.
• Pallets.
Under the European Packaging and Packaging Waste Regulations (PPWR) there are mandated compulsory levels of reusable transit packaging required for certain products, and these include many of the formats listed above. This will give a boost to many types of plastic packaging that are already proving their ability to deliver on reusability.
Legislation can also play a role in helping consortia develop reuse systems. Currently the Plastics Packaging Tax (PPT), packaging Extended Producer Responsibility (pEPR), Deposit Return Scheme (DRS), and Simpler Recycling, the main pieces of legislation in the packaging and waste management field, do very little to help. pEPR only charges fees on the first use of a piece of reusable packaging. Although this provides a small incentive for reusable packaging it does not provide a more positive boost that the French system (of using EPR funds to invest in reuse systems) does. None of the other legislation has any provision, even though some claim encouraging reuse as an aim.
In December 2024, the Welsh Government announced that they would withdraw from a unified UK wide DRS system based on recycling. Their argument is that the collection rates of the target products (beverage bottles in PET, Aluminium, Steel and Glass) are already widely collected and recycled in the principality. Subsequently they have agreed to introduce a unified system along with the rest of the UK for PET and Aluminium, but will look to a reuse system as well, probably for glass containers.
4. Why Plastics?
Plastics already play a role in some of the more successful reuse schemes. Companies such as Able & Cole,16 Refill Coalition,17 Bower Collective,18 Ocado,19 and many others have opted for plastic packaging for their systems.
There are many reasons why plastic is a good material for reusable packaging:
• Plastics are both lightweight and durable and can be reused many times before being recycled at end-of-life.
• There is normally an LCA advantage in using plastic packaging over alternatives.
• Plastics are easy to mould into shapes to aid stacking and nesting, ergonomics, and functionality.
• Plastics are safe and hygienic, being approved for direct food contact and easy to clean.
• Plastics are low cost and can help reuse systems be economically viable.
• It is also easy to print instructions on plastics packaging.
There are some drawbacks that may prompt the use of other materials, such as Polypropylene can stain with some food types, odours can persist, PET can get scratched, and plastics can absorb some of the contents making it unsuitable for some medicines or food applications. There are also emerging materials and bio-based polymer alternatives to the major plastics used in packaging but for the most part these currently do not have the required durability and barrier properties for many applications.
For the vast majority of cases, plastics have the characteristics to be the best performing choice in reuse systems.
Packaging manufacturers and waste management companies will in part become packaging system suppliers and developing new reuse business models can drive profitability. This can present opportunities for companies who are willing to take the risk to make this transition. Once a business case makes sense, operational, organisational, and technical considerations will be less problematic. This may be easier for smaller or specialised companies but more difficult for larger ones.
Communication can also play a part in developing reuse systems. Creating a consistent compelling message and then communicating it effectively is key. The question of who actually does the
communicating within a consortium is more difficult but it needs to be public facing so the onus will probably fall to the brand and retailers.
Harmonisation of systems, materials, and design, are essential in creating workable reuse systems. They offer a route to standardisation enables the system to work across multiple supply chain actors, and means economy of scale can be reached more quickly, which is especially important for new products. If collecting, sorting, and washing is shared between products, companies, retailers etc. then scale can be achieved. Using the same materials can help in reducing the complexities of differing needs. Multiple companies using the same packaging, or multiple products using the same packaging will enable manufacturing costs to be reduced.
Packaging manufacturers and waste management companies will in part become packaging system suppliers and developing new reuse business models can drive profitability.
6. Legislation
The legislative landscape has the ability to support the introduction of reuse systems. Domestic and international laws and conventions which can be very wide and varied, hold the key to creating conditions where reuse can thrive.
Packaging
and packaging Extended Producer Responsibility (pEPR)
Currently this does little to promote reuse over recycling of single use plastics and isn’t yet optimised in favour of the waste hierarchy. Favourable fee modulation or exemption from fees altogether for proven scaled systems would be an important stimulus, as would ringfencing some of the fees to go towards establishing new reuse systems (as is done in France i.e. Citeo).
Simpler Recycling
Again, this holds no provision but could be amended to collect reusable packaging at kerbside, vastly reducing the complexity for consumers.
Deposit Return System (DRS)
The aligned systems being introduced in England, Scotland and Northern Ireland hold no provisions for reuse which is a significant missed opportunity. Established DRS in other countries already collect a limited number of reusable packaging items. The Welsh government is currently consulting on introducing reuse into their DRS.
Plastics Packaging Tax (PPT)
The only way this helps is by penalising single use plastic packaging that does not contain 30% recycled material. There are no positive incentives for reuse and no hypothecation of the monies raised.
Packaging and Packaging Waste Regulations (PPWR) – EU including Northern Ireland)
This has a very positive message in that it has mandatory targets for reusable packaging for beverage containers and certain types of B2C packaging including boxes, wrapping and strapping, IBCs, pails and drums, which will be phased in over the next twenty years. This is the first international legislation of any size that mandates the compulsory use of reusable packaging so is a significant move. Because many supply chains are international and the provisions of the Windsor Framework ensure Northern Ireland will need to comply, it is inevitable some of these systems will become established in the rest of the UK on economic grounds as international companies will not want to run different systems in different countries.
There are other provisions that could be used by legislators to drive the introduction of reuse systems. When we consider the possible environmental benefits, these could be a contributor to a net zero economy so are worthy of consideration:
• Levies (i.e. Scottish Latte Levy) where the funds raised could be reinvested in reuse systems.
• Standards for design and hygiene.
• 0% VAT and other tax breaks.
• The introduction of a Reuse Tzar in government to drive reuse.
• Introduction of a reuse development fund.
• Their contribution to recycling rates.
There are areas to consider other than positive levers when it comes to developing policy to encourage reuse systems:
• There is an element of reuse that will almost never be convenient – lawmakers must bear this in mind when creating legislation.
• Communication is vital in both getting across the need for reuse systems and highlighting the benefits.
• Legislation must cater for and not stifle innovation.
• To be effective reuse legislation must have both a push and a pull factor and these need to be reasonably balanced.
• Lots of people within government understand the need for legislation to promote reuse but they should take advice from industry in helping to frame it to make it practicable.
It is obvious that legislation in this area can be complex and experience has shown that it can lead to unexpected consequences. However, lawmakers should not be put off and any positive help that industry can be given will be a very strong force in promoting the introduction of effective reuse systems.
7. Barriers
If it is widely accepted that reuse systems are a good idea, then why have they not been adopted widely already? The truth is that there are a great many hurdles that a reuse system must overcome to succeed.
1. Profitability
The negative externalities of single-use aren’t built into the P&L of a company so there is an inherent un-level playing field for reuse from the start.
Reuse systems are in direct competition to single use packaging, so the brand owner has to ask themselves if the balance between risk and reward is enough to make the system profitable both economically and ecologically. If a proposition is sufficiently compelling, then how long will it take to break even and become profitable? Manufacturers will need to pass on the costs of operating systems to consumers, so this has to be taken into consideration as well.
Because learnings are not being widely shared from trial systems that have been piloted by some larger companies (a notable exception being from the Refill Coalition),20 it is often difficult to gauge what parameters are needed to make a system successful, resulting in repeating failure. Companies will often also need to justify writing off decades of investment in single use systems that would become redundant.
Deposits are often touted as one way to increase consumer participation and increase return rates, but deposit return systems can be difficult to administer and expensive to operate, especially for digital systems. Deposit levels need to be high enough to add value but low enough to still be accessible.
Another possibility is to charge a fee for nonreturned reusable packaging, so there isn’t a deposit fee at the time of purchase (Example - City to Sea Refill Return Cup scheme who charge a fee if not returned after 14 days). This removes any
barrier, but still adds value to the packaging. The fee would also cover the cost of lost packaging. There are also voucher systems with discounts on future purchases (Reposit M&S system).
Adding a value to the packaging would ensure consumers value their packaging, rather than discarding it as waste, which would have the added advantage of reducing littering.
“There are a great many hurdles that a reuse system must overcome to succeed.”
2. System design
Transitioning from single-use to reusable packaging systems would require businesses to invest time and money in-order to reach a viable scale. Developing reuse systems can be challenging because different products have different needs, distribution patterns (i.e. local, national, international etc.), so there is no blueprint for building the infrastructure.
When designing a system the current regulatory environment needs to be considered, especially the area of competition law where a consortium of companies is involved. Whole supply chain buy in is essential to ensure each party is fully committed and benefits from their activities.
Data and evidence (both environmental and commercial) are vital for senior management in companies to approve the introduction of reuse systems, but this is hard to get. This is also important for decisions to scale existing pilot systems or invest in production equipment.
Refill systems may require product redesign too. For example, the dilution of a super concentrate that would require a reformulation. It may need to account for other factors such as when being discharged through a bulk dispensing system, e.g. in-store that the product does not become susceptible to microbiological contamination and subsequent failure as well as broader hygiene concerns.
4. Consumers
No reuse system will succeed if consumers find it difficult to participate. A major part of any introduction will need to include comprehensive and effective communications that will ease the way for changing consumer behaviours. System operators will have to ask themselves what will compel my customer to bring back the container for refill or return the packaging into the system to be reused?
Currently we do not really know how consumers behave as there is so little access to reuse at the moment. However, there is plenty of evidence
(reusable cups at sports stadiums where the fans are hardly eco people) that with the right reuse system, and possibly de-listing single-use, consumers are happy to accept. Additionally the Refill Coalition learnings show a 30%+ take up the Aldi and Ocado reusable offers.
Current ‘lack of consumer demand’ is actually a ‘lack of consumer availability’.
Cleanliness and hygiene are also barriers to consumer acceptance especially for food and personal care products. Worries persist around cross contamination from other products, allergen exposure, and even scratching, staining and discolouration on packaging used multiple times.
Many companies are now advocating pre-fill systems rather than fill-in-store models as these fears can be alleviated by the packer-filler taking the responsibility to ensure standards are maintained. Also pack design can help in allowing access for cleaning and draining of packs (a good example of this is the Ocado refillable container used for home delivery, where the pack has a wide neck that allows easier cleaning of the interior).
5. Practical issues
The practicality of developing reuse systems cannot be overlooked. The need to outsource or share infrastructure with competing companies, the ease of repair and maintenance of system components, reverse logistics (especially for nationally based products), and legal restrictions (competition law, ownership of containers, legal liabilities), will all need to be dealt with at some point in designing and operating a system.
Turning off the single use tap may be difficult because the technologies used to manufacture reusable packaging are outdated when measured against the economies of the new ecological economies but the alternatives are not yet sufficiently developed to immediately replace them.
6. Packaging Design
Existing single-use packaging formats have not been designed to be reused. The packaging has been optimised to remove excess materials and reduce costs, so has not been developed to endure multiple trips around a reuse system. Some formats such as pouches are difficult to clean, so they need to use technology to ensure they are filled with the same product again so they don’t require cleaning (Brewer Collective). They are also very compact when empty, so are easier to handle and return. The pouches are typically reused 10 times. Others may have complex shapes or components that are difficult to remove all of the product inside and to clean out.
New packaging designs, which are specifically engineered for the rigours of reuse will almost certainly be needed, which may also prompt changes of format or material to match the needs of a system. Smoother, simpler designs to aid washing, wider apertures to enable cleaning, emptying and refilling, less complex parts like pumps and sprays, or larger standard sizes are all basic design criteria that need to be considered.
Also end-of-life needs to be taken into account with full recoverability (recyclability) of the components when they have circulated around the reuse cycle in a sufficient number of occasions to pay back the effort of repurposing.
There is also an argument for adopting standardised packaging formats as well. They can deliver savings through manufacturing at scale, as well as standardised cleaning/repurposing facilities,
local collection in bulk, and reduced transportation. There are also benefits in standardised packaging that is used by multiple retailers for various product types, as it can be returned via any store (often referred to as buy anywhere, return anywhere), or any other method of return. Standardised packaging then doesn’t need to be returned to its original point-of-origin for refill, for example a branded bottle of Scottish whisky would need to be returned to be refilled in Scotland, even if it was sold in a different country, but a standardised bottle could be refilled with a different product wherever the packaging is disposed of.
As well as standardised packaging there are opportunities for new innovation in packaging design, cost savings through design optimisation, and shared assets.
7. External factors
Factors outside of the control of companies trying to set up reuse systems are wide and varied. The Government has launched the Circular Economy Taskforce and one of the areas it is looking at is the introduction of reuse systems which can lead to improvements and encouragement in the future.
For brands the potential loss of brand identity that iconic packaging formats present, can be an issue with marketing teams. Visual aspects of packaging design (think Coca-Cola, Marmite), are important for brand differentiation so standardised or simplified shapes offer less value for pack designers. However, standardised formats such as beverage cans do already exist and are widely adopted by brands.
For retailers being a first mover, such as Ocado with on-line deliveries, can have its disadvantages as they would need to do all the hard work on consumer behaviour change and establishment of a model system which would be easy to replicate by other retailers later on without the effort. However, it is encouraging to see UK retailers working together to develop shared reuse systems with the ‘The Reuse Packaging Partnership’, which would negate the first mover disadvantage’.
There is also a fatigue with trials as so many pilot schemes have been launched and have disappeared without trace.
8. Current state
Establishing a baseline
To be able to measure how the reuse market will develop over the next 10 years we need to assess where it stands at present. According to the WRAP Plastic Pact Report “In 2022 approximately 3,340 tonnes of reusable primary packaging were reported by members and 26,400 of reusable transit packaging.”21 There are no reliable figures available to say how much of this is plastic packaging though. However, we know that there was 1.27m tonnes of consumer plastic packaging put onto the market in 202222 showing there is a huge opportunity for the industry.
A survey by environmental charity City to Sea found that 81% of UK respondents regularly use reusable shopping bags, 65% use reusable water bottles, and 41% use reusable coffee cups. The study also highlighted that the main barrier to adopting reusable packaging is the lack of availability where people shop.23 So, we can expect a significant proportion of consumers to adopt reuse systems where they are or become available.
In their recent report,24 GoUnpackaged identified 18 priority categories of product that could easily be converted to refill or reuse systems including food items, personal care, and household chemicals. As plastics already play a significant role in packaging for each of these areas, there exists a golden opportunity for the future.
The report goes on to show that there are seven possible systems available from single use, through various reuse models, up to refill in store, showing the estimated impact compared to single use. The main findings are:
• Three reuse systems (online, third party kerbside, and local authority kerbside) can be delivered at less cost than single-use.
• £136m saving per year in pEPR costs (an average 94% reduction in pEPR per item switched to reuse).
• £314m to £577m (12-22%) savings per year in end-to-end system costs for the three effective reuse systems.
• 95% reduction in CO2e emissions per item switched to reuse.
• 95% reduction in packaging materials and waste per item switched to reuse.
• 13,000 net new jobs.
It goes on to conclude “A product by product ‘cherry picking’ exercise to identify priority categories and SKUs, using retailers’ own data, is required as a next step; with an overlay of citizen preferences and acceptability for certain categories, SKUs and return methodologies.”
GoUnpackaged identified
18 priority categories of product that could easily be converted to refill or reuse systems including food items, personal care, and household chemicals.
21 WRAP – UK Plastic Pact Report November 2023
22 Valpak - PackFlow Refresh 2023: Plastic
23 City to Sea – Attitudes & Behaviours Towards Reuse in the UK (2025)
24 Go Unpackaged – A 30+ Reuse Future for the UK (2025)
Consumer buys pr oduct fr om ret ailer
Tr anspor t to ret ailer
Pack refilled and damaged cont ainer s replaced
Tr anspor t to packer/filler
Systems
There are many reuse systems that have been trialled or are being implemented, including:
Cleaning and removal of damaged cont ainer s
1. Ocado’s Reusable Packaging system - In August 2024, Ocado launched a trial offering everyday products - such as pasta and rice - in reusable packaging. Customers receive products in reusable containers, which are returned for cleaning and refilling, integrating seamlessly with Ocado’s existing delivery service. This effort seeks to minimise single-use plastic waste. The trial has now become the standard offer and Ocado are exploring expansion.25
2. Reposit’s Expansion in the Beauty and Personal Care Sector - Reposit, a reusable packaging scheme, expanded across the UK in 2024, focusing on the beauty and personal care industry. The initiative addresses plastic waste from online shopping by providing returnable packaging options, aligning with consumer demand for sustainable solutions.26
3. Abel & Cole’s Refillable Milk Bottle Scheme - Abel & Cole introduced the UK’s first refillable plastic milk bottle scheme, delivering milk in
Consumer uses pr oduct
Consumer returns empty to store
Collation and tr anspor t to cleaning
reusable bottles that are collected, sanitised and refilled. This initiative reduces single-use plastic and promotes sustainable consumption practices.27
4. Hubbub/Reposit reusable coffee cup for Glasgow – Hubbub teamed up with Reposit to introduce a reusable coffee cup into a series of major retailers, venues and smaller coffee shops all using a standard cup that can be returned to any participating retailer, or to independent collecting points in shopping malls, train or bus stations.28
5. Herman Miller’s Reusable Packaging Initiative (not UK) - Herman Miller, a renowned furniture manufacturer, implemented a reusable packaging system that led to significant benefits. The company saved over $400,000 in packaging materials and freight costs, prevented 100 tons of packaging waste from reaching landfills, and reduced deliveries by more than 200 truckloads through improved cube efficiencies.29
25 The Guardian
26 Packaging News
27 UK Research and Innovation
28 https://hubbub.org.uk/borrow-cup
29 Reusable Packaging Association
6. RePack’s Reusable Packaging for E-commerce (not UK) - RePack, originating from Finland, provides reusable packaging solutions for online retailers. Customers receive products in reusable bags, which can be folded and returned via postal services for reuse. This approach minimises packaging waste in the e-commerce sector and offers a sustainable alternative to traditional shipping materials.30
7. Tesco’s Partnership with Loop - In 2020, Tesco collaborated with Loop to pilot a reusable packaging scheme. Customers could purchase a variety of products in durable, reusable containers, which were collected, cleaned and refilled after use. This initiative aimed to reduce single-use packaging and promote a circular economy.31
The design of reuse systems varies due to many factors but most will need similar steps:
Another aspect that needs to be overcome is the perception of the risk to business profitability of transitioning to reuse systems. As pointed out in a report by Zero Waste Europe and Serious Business,32 “…several brands and industry associations have been hesitant to wholeheartedly embrace reusable packaging, citing doubts over environmental credibility, customer acceptance, needed behavioural change, and the fear of heavy investments and operational costs.” However, it goes on to point out that companies can deliver environmental benefits (many LCA’s show that reuse is better than single use), there are many studies showing consumer awareness and acceptability of reuse systems. There are examples of successful economic models including:
• Reusable containers for take away food (return on the go).
• Transport packaging (B2B).
• Beverage containers (return on the go).
In each of these, plastics takes a major role in proving the potential of the system.
The BPF Recycling Roadmap
The BPF’s Recycling Roadmap (second edition) 2023 outlines ambitious targets for enhancing plastic reuse and recycling in the UK. The roadmap sets a goal of achieving a 70% reuse and recycling rate by 2035. This includes an additional 23% of total plastic waste being mechanically recycled within the UK and an extra 6% being chemically recycled. By then, 15% less plastic could be sent to energy recovery facilities, and plastic packaging could be redesigned to be reused to save 13% of the UK’s total plastic waste.
To reach these objectives, the BPF emphasises the need for increased investment in recycling infrastructure, optimisation of existing systems and supportive legislation. The roadmap also highlights the importance of improving communication and collection systems to facilitate higher rates of reuse and recycling.
The BPF acknowledges that achieving these targets will require collaborative efforts from industry stakeholders, government bodies and consumers to create a more sustainable and circular approach to plastic use in the UK.
30 Rethink Plastic
31 Planet Reuse
32 The economics of reuse systems – A study into what makes a financially viable reusable packaging system. – Zero Waste Europe and Serious Business – 2023.
What does industry need to do?
Implementing reuse systems in packaging presents several challenges across economic, logistical, behavioural and regulatory aspects. To succeed in introducing reuse systems industry will need to address at least some (if not all) of the challenges it faces.
1. Infrastructure and Logistics: Setting up efficient collection points, reverse logistics and cleaning facilities. Reusable packaging requires collection, cleaning and redistribution, which can increase transport emissions if not optimised. A lack of uniform packaging designs makes it harder to scale reuse models across different retailers and brands.
2. Economic Viability: Investment in reusable packaging, washing infrastructure and new logistics systems needs to be sought. Single-use packaging remains cheaper in many cases, so reuse needs to find ways of competing until economies of scale make them viable. Companies may need to shift from selling products with disposable packaging to leasing or deposit-based models, requiring new financial strategies.
3. Consumer Behaviour & Convenience:
Consumers must be willing to return packaging, which requires behavioural change and incentives or the development of business systems that require less effort (i.e. collection at kerbside). Reuse systems often require extra steps, such as returning containers, which may deter customers so companies need to introduce incentives. Consumers will also need clear communication on the benefits of reuse and how the systems work. DRS may have a role to play here but a plethora of different systems will only cause more confusion. There is also the concern that if reuse achieves scale return to store is cumbersome so consideration may also be required to enable these to be collected through kerbside collection.
4. Hygiene & Safety Regulations: Companies need to ensure reusable packaging meets strict food safety and hygiene standards. Some consumers worry about whether reused containers are properly sanitised so communications are vital to allay public concerns.
5. Policy & Regulatory Barriers: Governments are still developing regulations for reuse, leading to uncertainty for businesses. Many countries have well-established recycling systems that may compete with reuse initiatives rather than complement them. Industry cannot rely on the UK government to kick start reuse with the current crop of environmental legislation so will need to make its own decisions.
6. Scalability & Industry Collaboration: Retailers and manufacturers must work together to create a cohesive reuse system and push policymakers to deliver the legislative reforms needed to achieve economic viability and scalability.
Potential Solutions
• Deposit Return Schemes (DRS): Encouraging reuse through small refundable deposits on packaging.
• Standardisation of Packaging: Creating industrywide reusable packaging designs to improve efficiency.
• Incentives for Consumers & Businesses: Government subsidies or tax breaks for reusable packaging adoption.
• Improved Logistics & Cleaning Technologies: Using AI and automation to optimise reuse systems or smart packaging (RFID, QR Codes, invisible watermarking) to help track reusable packaging, improve efficiencies and increase return rates which is vital for a reuse system to reach its full potential.
9. What could be achieved by 2030
Influencing factors
To estimate the reuse market in 2030, we need to look at the factors we know about that are likely to have an influence on the industry. It is obvious that some of these will be positive and some negative and each may have a micro or macro effect.
Packaging and Packaging Waste Regulations (PPWR) in the EU – although not directly affecting the UK (except Northern Ireland where it will come into force because of the Windsor Framework), many companies operate across the border so the influence on UK operations is certain to occur. If reuse systems are successful in the EU they are likely to find their way into the UK. Targets have been set for:
• Transport packaging (40% by Jan 1st 2030), grouped packaging (10% by Jan 1st 2030).
• Alcoholic and non-alcoholic beverages not including milk and dairy, wines and spirits (10% by Jan 1st 2030).
• Reusable packaging for HORECA (10% by 2030). Although this is only targeted at a limited number of items, and some of those are not consumer facing, it does establish a principle of mandatory targets to encourage reuse.
Packaging Extended Producer Responsibility (pEPR) – the only provision is that reusable packaging will incur pEPR fees for first use (not for each time it passes around a system). This will provide some encouragement but further changes to the legislation are unlikely to occur before 2030. The French EPR system allocates a percentage of its income to funding reuse which could also be an option in the UK.
Deposit Return Schemes (DRS) – although the system in England, Scotland, and Northern Ireland will not include reuse, the Welsh Government are likely to introduce it as an element of their system (probably initially for glass containers). This is likely to be introduced in 2027 but may be delayed.
Several of the experimental, small scale reuse trials have proven to be successful and are now moving to a phase where they are being rolled out
over a larger area (returnable coffee cup schemes in Glasgow and Cardiff, home delivery systems for milk and groceries, etc.). It is likely these will continue to expand and other systems will be added as these prove increasingly successful. These systems seem to be successful at a local level (coffee cups in one city, milk delivery in a town etc.), so the question of local versus national will occur if scaled.
It can already be seen that there is a desire from some quarters of the public to become “more sustainable” and reuse is an often called for as a step towards this. As awareness grows that single use systems are not sustainable and reuse systems can be part of a circular economy, contributing towards net-zero, the benefits will become obvious. Reuse and refill systems are likely to become more popular, as brand owners are already assessing the benefits of reuse for their product lines. Brands may also see reuse as an opportunity to promote brand loyalty and see the economic benefits that systems can deliver.
The drive towards reuse has brought a flurry of innovation and a “home” for some innovations that have been around for a while without achieving mass adoption. This does not only include technologies such as new materials, electronic tagging and standardisation of packaging types, but can also include new business models such as sharing of resources (reverse logistics), localisation (washing centres), and sharing of containers.
There are many Non-Governmental Organisations (NGOs), academic institutions and influencers all pushing for reuse models to replace existing single use systems which are seen as wasteful and not “environmentally friendly”. There is a body of research emerging from universities and other sources clearly showing that reuse can reduce carbon emissions and consumption of finite raw materials. As the public become more aware of the benefits there will inevitably be a push towards reuse systems in the future.
Actions
Industry
Industry must accept that reuse is really going to happen. Pressure from consumers, NGOs and legislators are all driving the clamour for reusable packaging and reductions in single use options. Companies need to develop longer-term plans to cope with transitions to new packaging systems, create systems (with help from across the value chain), and determine which reuse or refill model fits their particular product. These systems must be cost effective, ecologically beneficial, and accessible for consumers.
Consumers
Embracing change is difficult, especially where single use has been deeply ingrained for so long, so consumers will need to change their habits to ensure that reuse becomes mainstream. Access, ease, and education are key to achieving this. Return or reuse rates (depending on the chosen system) are the key to making systems effective so returning reusable packaging must become second nature.
Government
If they are serious about creating a net-zero economy, legislation is only one tool that governments need to employ. Current laws do not encourage reuse systems to any extent so existing laws (e.g. pEPR, DRS etc.) need to be revised to encourage their creation. Tax incentives and grants could also be used to encourage reuse systems. Government needs to take on the responsibility for consumer education, highlighting the contribution to net-zero, and the environmental benefits.
10. What could be achieved by 2035
Influencing factors
The effects of the influencing factors in increasing reuse in 2030 can also be seen in 2035. There will inevitably be a move towards including reuse in legislation, trials will have led to established systems, innovation in products and business models will continue, and the push towards sustainability will inevitably contribute to increased implementation of reuse systems.
The PPWR will be pushing towards higher targets for reuse including transport at 70% by 2040, grouped packaging at 25% by 2040, and beverages at 40% by 2040. Although the targets for HORECA are not due to increase, it is likely that the improved systems that companies will need to establish will lead to an increasing usage of reuse and refill in these and other areas.
Currently UK legislation provides little encouragement for reuse however this will be required, but will have to change over the next ten years. Pressure from NGOs, academics and industry are already pushing government in this direction and we foresee new provisions coming into UK law, especially if those in the EU are proven to succeed. DRS and pEPR are likely to evolve to include more provision for reuse (especially if the Welsh DRS system proves successful).
As consumers get used to reuse systems, if they are convenient and do not cost more, they will increase in popularity and consumer will change to accept these as the norm. It is going to take time to alter over sixty years of consumer behaviours hence over the next 110-years changes in legislation, familiarity, education, and availability will make this happen.
Innovation will help drive these changes and industry will need to adapt and implement new business models and ways of working. Design of packaging will alter to meet the requirements of reuse systems. Early reusable packaging examples were based on repurposed or adapted single-use packaging, but we have already seen reusable packaging formats that have been developed specifically for reuse. Over time these formats will be further developed and refined to integrate perfectly within reuse systems.
As the effects of climate change become more apparent, the drive towards net zero and circularity will become increasingly urgent. Pressure organisations will continue to push for reuse as part of the answer to reducing our dependence on resource hungry systems such as single use packaging.
Actions
Industry
Industry’s continued engagement in reuse systems will depend on three things, legislation, pressure and profitability. If the legislation is right, external pressures continue, and the systems developed prove a return for investment, then industry will expand its offering of products in reusable packaging.
Government
Legislators will need to look beyond existing legislation to encourage wider adoption of reuse systems. Mandatory targets, financial incentives (rather than just punishing noncompliance), and closer cooperation with industry can all help.
Consumers
When reuse becomes second nature then systems will be successful.
11. Conclusions
There is an opportunity for plastics to play an important role in these systems due to its physical properties, ability to be moulded into different functional shapes and forms, ease of hygienic cleaning, robustness through the distribution chain, and relatively low associated emissions. Several of the successful trial systems already use plastic packaging so its credentials as a material of choice have already been established. “…while reusable packaging has been around for several decades for a few iconic products and in niche applications, mainstreaming reuse and refill models is recognised as one of the toughest challenges to crack. There are barriers across the supply chain, including price and optimisation in the retail environment, consumer buy-in, logistics, hygiene and cleaning, and tracking.”33
There are many examples of new reuse initiatives and innovations, but mainstream adoption is slow and many trial projects have failed to scale into broader schemes. Changing the mindset of consumers, manufacturers and government is the key to creating the opportunities that reuse systems can offer. We can see from the number of trials that there are successful fledgling systems developing so the opportunity to scale these is evident.
Actions for the plastics packaging industry:
Step/Action 1.
Utilise lobbying opportunities with government (internally or via trade federation) to create a legislative framework that is supportive of, and encourages reuse.
Step/Action 2.
Talk to upstream and downstream supply chain about their reuse strategy to see where opportunities/alignments are already there. Unlike single-use, reuse requires collective action, not just collaboration.
Step/Action 3.
Share and champion examples of reuse from within the industry (internally and externally via media streams) to demonstrate support of the role that plastics can play as part of a reuse future.
Step/Action 4.
Seek out opportunities to join consortia associated with your industry looking at reuse.
There is a very positive future for reusable plastic packaging, but it will require collaboration from the full value chain to realise its true potential.
Acknowledgements
The BPF would like to thank Mitsui & Co Europe, especially Linda Rowlands and Filip DeBens, for hosting the kick off meeting for this project at their offices in Central London, also the 40 participants who took time out of their busy schedules to contribute their knowledge and expertise to develop the basis of this report. Additionally we would like to thank Jamie Riley of Robinsons, Wayne Barron of the PackHub, Adrian Wyle and other reviewers for your comments on the draft and excellent suggestions for additional materials. Also my colleagues at the BPF for their support and inputs.
