Estonia plans to require reusable packaging at venues by 2028

A bill drafted by Estonia's Ministry of Climate would require all food and entertainment outlets to offer reusable packaging by 2028. The domestic legislation aligns with the European Union's Packaging and Packaging Waste Regulation (PPWR), which comes into effect next month.

While reusable dishes have long been standard in restaurants and cafés in Estonia, cinemas and fast-food outlets still predominantly use disposable packaging for food and drinks consumed on the premises. Critics say this generates large amounts of waste daily, and the bill aims to address that.

Under the bill, customers would still be able to choose disposable packaging for takeaway orders, but businesses must also offer a reusable option that costs no more than the single-use alternative. Dagny Repp, the ministry's head of packaging policy, said durable, washable containers and cups need not be made of porcelain. In the long term, this could help businesses reduce costs, as the same containers are reused, cutting the need to constantly buy new disposable packaging. Waste collection and producer responsibility costs would also fall, Repp said.

Repp noted that washing reusable dishes on site is generally the cheapest option. Businesses would be free to choose their own reusable tableware and washing systems. Customers could receive a deposit refund when returning containers to the business.

Maria Tiidus, head of brand and customer experience at Alexela, which operates filling stations in Estonia, said the company has offered discounted hot drinks in reusable cups since 2020 and introduced additional incentives and cup designs to encourage usage. Currently, 15 percent of customers use reusable cups, with Alexela aiming to raise that to 20 percent. Tiidus said common rules would create a level playing field, encourage investment in reuse systems, and prevent environmentally conscious companies from bearing the costs alone. She added that trials showed a single-company closed system is insufficient; customers need a simple return system.

Apollo Kino CEO Kadri Ärm said the company supports the regulation and is exploring reusable container options, though cost implications remain unclear.

Külli Kraner, CEO of the Estonian Hotel and Restaurant Association, said larger businesses and those with Green Key certification are largely ready for the change, as they have already moved away from disposable small packages. However, smaller businesses still face challenges, including washing and storage capacity, logistics, hygiene requirements, and investment costs for reusable takeaway systems.

The draft law would also restrict per- and polyfluoroalkyl substances (PFAS) in food-contact packaging. Starting August 12, 2026, the EU's PPWR will ban PFAS in food-contact packaging, though existing stocks may still be used.

The state is aiding businesses in switching to reusable packaging through the Environmental Investment Center (KIK). Funding can be used to purchase packaging, oversee its return, and other logistics.

The Ministry of Climate has submitted the bill for consultation rounds, with stakeholders given until August 17 to provide feedback. The bill would need to pass a Riigikogu vote to become law.