Luxembourg, 17 June 2024
The Council adopted its position (‘general approach’) on the targeted revision of the waste framework directive, with a focus on food and textile waste.
The general approach aims to prevent waste from fast fashion and to facilitate re-use. It also sets ambitious targets to significantly reduce food waste by 2030. Given the food and textile sectors are the first and the fourth most resource-intensive respectively, today’s agreement represents a crucial step towards a more sustainable and circular European economy.
Alain Maron, minister of the Government of the Brussels-Capital Region, responsible for climate change, environment, energy and participatory democracy
Food sector
Less food waste by 2030
The proposed directive sets binding targets on food waste reduction by 2030:
- − 10% in processing and manufacturing
- − 30% per capita in retail, restaurants, food services and households
The general approach agrees with the targets as proposed by the Commission and provides for the possibility to set targets for edible food by 31 December 2027, when the Commission will review the 2030 targets.
Reference year and correction factors
The food reduction targets will be calculated in comparison to the amount generated in 2020, since it was the first year for which data on food waste was collected according to a harmonised method. Member states are allowed to use a reference year prior to 2020, if adequate data collection methods were in place at national level.
The general approach allows member states to also use 2021, 2022 or 2023 as reference years, as the data for 2020 may in some cases not be representative because of the COVID-19 pandemic.
Ministers further agreed that correction factors need to be developed, in order to take into account fluctuations in tourism and production levels in food processing and manufacturing in relation to the reference year.
Textile sector
The current waste framework directive, already in force since 2008, obliges member states to ensure the separate collection of textiles for re-use, preparation for re-use and recycling by 1 January 2025. According to the general approach, by the end of 2028 the Commission will consider setting specific targets for waste prevention, collection, preparing for re-use and recycling of the waste textile sector.
Extended producer responsibility
The proposal for the revision of the waste framework directive provides for harmonised extended producer responsibility (EPR) schemes that would require fashion brands and textile producers to pay fees in order to help fund the textile waste collection and treatment costs. These schemes will be established up to 30 months after the entry into force of this directive and ministers agreed to include microenterprises in their scope.
The level of those fees will be based on the circularity and environmental performance of textile products (known as eco-modulation). As preventing waste is the best option, the general approach sets out that member states can require higher fees for companies following ‘fast fashion’ industrial and commercial practices.
The general approach also contains specific provisions for member states where there is a higher share of textile products assessed as fit for re-use on the market. Those member states can ask commercial re-use operators to pay a (lower) fee when making those products available on their market for the first time.
Social economy entities
The general approach acknowledges the key role of social economy entities (including charities, social enterprises and foundations) in the existing textile collection systems. It allows them to maintain and operate their own separate collection points. According to the Council’s position, member states can exempt them from certain reporting requirements to avoid disproportionate administrative burden.
Next steps
The Council’s general approach reached today allows the rotating presidency to start talks with the European Parliament on the final text, which will take place under the new legislative cycle. The European Parliament adopted its position in March 2024.
Background
Over 58 million tonnes of food waste (i.e. 131 kg per inhabitant) are generated in the EU each year, representing an estimated loss of €132 billion. Moreover, food waste accounts for around 16% of the total greenhouse gas emissions from the EU food system.
The EU also generates 12.6 million tonnes of textile waste per year. Clothing and footwear alone account for 5.2 million tonnes of waste, equivalent to 12 kg of waste per person every year. Currently, only 22% of such waste is collected separately for re-use or recycling, while the rest is often incinerated or landfilled.
On 5 July 2023 the European Commission presented a proposal to revise the waste framework directive, specifically targeting the food and textile sectors. The overall aim of the proposal is to reduce the environmental and climate impacts associated with textile and food waste generation and management.
- General approach on the revision of the waste framework directive
- Reducing food loss and food waste (background information)
- Food waste: prevent, reuse and recycle (infographic)
European Environmental Bureau: Member States advance on textile waste, fall short on food waste
Today, Europe’s Environment Ministers voted on crucial EU laws addressing waste management [1]. The Council’s position raises the bar on holding producers accountable for textile waste, but fails to adequately address Europe’s pressing food waste crisis, warns the European Environmental Bureau (EEB).
Member States voted on the revision of the Waste Framework Directive, which sets the cornerstone for waste management across the EU, focusing on food and textile waste. Following the Commission’s proposal [2] in July 2023 and the Parliament’s position [3] in March 2024, Environment Ministers agreed today on binding reduction targets for food waste, and an Extended Producer Responsibility (EPR) system for textiles.
Textile Waste
Production of textile fibres has doubled since 2000, and today 12.6 million tonnes of textile waste is generated annually in the EU. The setting of EPR schemes for textiles is part of a broader EU sustainability strategy for the sector.
Member States’ vote improves the Commission’s proposal by calling for EPR schemes to go beyond waste management and ensure brands are held financially accountable for the impact of overproduction.
EU governments recognised that fees paid into EPR schemes by brands should be based on the quantity of products placed on the market. With only a third of clothes being disposed of due to wear and tear, the Council has also called for EPR fees to consider the aggressive marketing and commercial practices that lead to overproduction and the premature disposal of clothing.
However, Member States postponed any consideration of textiles waste management targets until 2028, and failed to advocate for a clearer global accountability framework ensuring that EPR fees can effectively support regions heavily impacted by used textile exports from the EU.
Emily Macintosh, Senior Policy Officer for Textiles at the European Environmental Bureau (EEB), welcomed the outcome of the vote:
“We need policies that address overproduction head-on, going beyond waste management and product design tweaks. Ultimately, the problem is that too many products end up as waste shortly after hitting the market, and the fees holding producers accountable must reflect this.”
Food waste
Despite persistent warnings from civil society [4] and clear evidence [5] that more ambitious food waste reduction targets are feasible and beneficial from both an environmental and an economic perspective, Member States have opted for the lowest range of targets proposed by the Commission: a 30% reduction for consumption and a 10% reduction for food processing and manufacturing by 2030, using 2020 as baseline, or an earlier date if appropriate data is available.
However, the Council’s position leaves even more flexibility for Member States regarding the baseline year and introduces further uncertainties through correction factors for fluctuations in production volumes and tourism activities that still need to be defined in delegated acts.
Besides, the issue of food waste at the primary production level remains unaddressed, with further action depending on a study expected no earlier than the end of 2027. Environmental organisations call for a 50% reduction of food loss and waste across the entire supply chain, in line with the commitments made under the 2018 revision of the WFD, as well as under Sustainable Development Goal 12.3.
Fynn Hauschke, Policy Officer on Circular Economy and Waste at the European Environmental Bureau (EEB), said:
“Today our governments missed another chance to tackle food waste from farm to fork. The low ambition level and neglect of losses at primary production undermine the efforts to solve Europe’s food waste crisis. With climate change threatening food production and families struggling to put food on the table, evidence shows halving food waste is not just feasible but essential for reducing emission and saving costs.”
Notes
[3] https://www.europarl.europa.eu/doceo/document/TA-9-2024-0145_EN.pdf
[4] Joint letter to member states on food waste reduction targets (February 2024) ; Joint letter to Belgian presidency on food waste reduction targets (June 2024)
[5] Policy briefing regarding the feasibility of ambitious legally binding EU food waste reduction targets (May 2024)