NGO

Following the money behind packaging regulation dilution

Policy Campaigns Director·Environmental Campaign Organisation
Project:Plastic Packaging Reform — Tracking Industry Rollback

The Challenge

Extended Producer Responsibility for packaging was supposed to make unrecyclable materials expensive enough to disappear from shelves. Instead, a multi-year lobbying campaign has softened the fee differentials, delayed the implementation timeline, and inserted industry-friendly exemptions. The campaign team knows the rollback is happening but needs to track exactly which actors are responsible, which ministers are listening, and where the political pressure points are — so they can push back before the next round of secondary legislation locks it in.

The Conversation

Plastic Packaging Reform — Tracking Industry Rollback — Chat
We know the producer fees have been softened since the original consultation. I need to understand specifically where the changes happened and who drove them.
PR
The most significant change was in the modulated fee structure — the differential between recyclable and hard-to-recycle packaging was compressed in the 2024 fee schedule revision. Originally the modulation was designed so that non-recyclable formats (black plastic trays, multilayer sachets) would face fees 3–4x higher than genuinely recyclable alternatives. The 2024 revision brought that ratio down to around 1.5–2x, which doesn't create sufficient financial incentive to switch formats. The British Plastics Federation's technical submissions were directly cited by DEFRA in their consultation response as the basis for the adjustment — they successfully argued the original differential was 'disproportionate' and would cause market disruption. The Food and Drink Federation reinforced this through a separate cost modelling exercise that DEFRA also referenced.
So if DEFRA cited those submissions, that means there was a consultation. Did environmental groups respond? What happened?
PR
Yes — WRAP, the Ellen MacArthur Foundation, and a coalition of recycling operators all submitted responses arguing the original differentials were justified and the industry cost estimates were inflated. DEFRA's response acknowledged their submissions but described the final decision as balancing 'environmental ambition with business viability'. The political context matters here: the consultation closed in late 2023 during a period of high energy costs and supply chain pressure, which made ministers receptive to cost burden arguments. The environmental submissions made the scientific case well but underweighted the economic counter-argument. That's the gap your next round of engagement needs to fill — WRAP's data on the revenue impact of weaker modulation is actually quite strong but wasn't prominently framed in cost-per-tonne terms that Treasury officials respond to.

Deep Dive Output

high confidence

Overview

Extended Producer Responsibility for packaging has been materially weakened since its original design. The producer fee structure, commencement timelines, and exemption thresholds have all been revised in ways that reduce financial incentive to eliminate hard-to-recycle formats. DEFRA has consistently framed these changes as technical adjustments, but the cumulative effect is a scheme that generates compliance revenue without driving significant packaging innovation. The political window to reverse this narrows with each round of secondary legislation — the 2025 fee schedule review is the next significant intervention point. Environmental groups have had more success in media coverage than in formal consultation influence, suggesting a strategy shift toward pre-consultation engagement with civil servants and Select Committee members is warranted.

Relevant Legislation

Environment Act 2021 — EPR provisions

In force · Royal Assent

Producer Responsibility Obligations (Packaging) Regulations 2024

In force · Secondary legislation

Packaging Waste (Data Reporting) Regulations 2023

In force · Secondary legislation

2025 Modulated Fee Schedule Review

Consultation expected Q3 2025 · DEFRA

Key Stakeholders

British Plastics Federation

Plastics industry trade body

Most technically sophisticated industry lobbyist; DEFRA submissions directly cited in regulatory decisions

Mary Creagh

Minister for Nature

Publicly committed to circular economy outcomes but has accepted industry-backed fee revisions; key target for pre-consultation engagement

WRAP

Waste and Resources Action Programme

Natural ally; has strongest independent data on recycling economics but needs support translating it into Treasury-readable cost arguments

Environment, Food and Rural Affairs Select Committee

Parliamentary scrutiny committee

Has run EPR evidence sessions; sympathetic to environmental arguments; useful channel to flag modulation dilution

Media Framing

Guardian and Observer coverage sympathetic to environmental position but focused on headline drama rather than regulatory detail. Trade press (Packaging News, ENDS Report) provides accurate technical coverage but reaches industry audience only. Government press releases lead with EPR ambition without covering fee revisions. The most effective recent coverage was investigative — comparing DEFRA's stated objectives with the actual fee schedule. That format should be your media pitch template.

Entity Graph

British Plastics Federation

Industry lobby

Mary Creagh

Minister for Nature

WRAP

Environmental body

EFRA Select Committee

Parliamentary committee

What They Track

2025 EPR modulated fee consultationBPF DEFRA submissionsWRAP recycling economics publicationsEFRA committee EPR evidence sessionsDEFRA secondary legislation pipeline

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