When the EU Packaging and Packaging Waste Directive was adopted in 1994 (94/62), its aims were outlined as preventing or reducing the impact of packaging and packaging waste on the environment, and ensuring the proper functioning of the internal market. Ten years on, the European Commission is evaluating the Directive with a view to setting out the future direction of packaging policy. A number of studies have been commissioned to feed into this evaluation, covering implementation of the Directive, assessing options to strengthen prevention and reuse and an analysis of the single market aspects. Whilst these are important, it was felt the role that packaging plays in a broader context also warrants attention. Without a clear understanding of the different drivers for the production and use of packaging, it will not be possible to take policy to the next stage. This study seeks to fill that knowledge gap.

Packaging can be seen in two ways. Firstly, packaging prevents waste. Packaging is not a product in itself: it is a means of delivering a product to a customer in good condition and is designed to ensure that the product passes through the supply chain without being damaged.  Secondly, however, packaging becomes waste at the end of its useful life. Despite the prevention objectives of the Directive, the amount of packaging waste continues to increase. Over the period 1997 to 2001 the amount of packaging waste generated increased by 7 percent across the EU as a whole. The EEA1 estimates that this trend is set to continue, and the amount of packaging waste could increase by 18 percent from 65 million tonnes in 2000 to 77 million tonnes in 2008. Much of this increase is due to demographic and lifestyle changes and is therefore outside of the influence of the packaging chain. However, businesses can help compensate by continuing to design lighter weight packaging and by offering consumers a wider range of pack sizes so that wastage of goods and food is also reduced.