Policy Framework
National Action Plan
Name(Year):
● National Circular Economy Strategy (NCES) (2025)
● Marine Strategy Framework Directive (MSFD) Programme of Measures (PoM) (2022)
● Action Plan “Nein zur Wegwerfgesellschaft” (2018)
● Member of the High Ambition Coalition to End Plastic Pollution
Brief Description:
National Circular Economy Strategy (NCES)
The German government has drawn up a National Circular Economy Strategy (NCES). It brings together all of the national goals and measures in the transition to a comprehensive circular economy. Every phase of the cycle has to be considered: product design, materials selection, production, a product lifespan that is as long as possible and finally, reuse or recycling. The NCES aims to make sure waste is avoided in the first place. This can be achieved if products are well designed, long lasting and easy to repair, and if raw materials – from building materials and textiles to industrial metals – are kept in circulation for as long as possible. This is technically feasible and makes good economic sense.
MSFD PoM:
The Marine Strategy Framework Directive (MSFD, 2008/56/EC) aims at achieving or maintaining a Good Environmental Status in European Marine Waters. Descriptor 10 in Annex I demands, that properties and quantities of marine litter do not cause harm the coastal and marine environment. To achieve this goal, a long-term monitoring of litter in the different marine compartments has been set up and 11 measures have been adopted to tackle the relevant sea- and land-based sources.
Action Plan “Nein zur Wegwerfgesellschaft”
The package of measures includes a mix of statutory and voluntary measures to avoid plastic. Plastic alternatives such as drinking tap water instead of using PET bottles are also to be encouraged.
Member of High Ambition Coalition to End Plastic Pollution
The German government is member of the High Ambition Coalition (HAC) and strives together with 65 countries to develop an ambitious an international legally binding instrument to end plastic pollution as called for in UNEA Resolution 5/14. HAC remains committed to the goal of ending plastic pollution by 2040 and emphasizes the need for a treaty that is comprehensive in scope and addresses the full life cycle of plastics – from production and consumption to design and end of life.
Legal Framework
Name(Year):
● Kreislaufwirtschaftsgesetz (KrWG)
● Verpackungsgesetz (VerpackG), (Packaging Act)
● Wasserhaushaltsgesetz (WHG)
● Hohe-See-Einbringungsgesetz (HSEG)
● Einwegkunststofffondsgesetz (EWKFondsG)
● Einwegkunststoffverbotsverordnung (EWKVerbotsV)
● Einwegkunststoffkennzeichnungsverordnung (EWKKennzV)
Brief Description:
- KrWG – i.a. implementation of EU Waste Framework Directive (WFD)
- VerpackG – i.a. implementation of EU Packaging and Packaging Waste Directive (PPWD)
- WHG – i.a. implementation of EU MSFD
- HSEG – i.a. implementation of London Convention (LC)/London Protocol (LP)
- EWKFondsG – i.a. implementation of EU Single-Use-Plastics-Directive (SUPD 2019/904)
- EWKVerbotsV – i.a. implementation of SUPD
- EWKKennzV – i.a. implementation of SUPD
Indicators and/or Targets
■ Plastic Recycling:
Indicators:
Recycling quota for packaging subject to mandatory PRO participation (packaging that typically accumulates as waste at private end consumers) are regulated by the packaging Act, including recycling quota of plastic packaging.
Targets (if any):
Packaging Act requires 63 % (input quota) mechanical recycling of plastic packaging subject to mandatory system participation, in 2023 the target was overfulfilled with a recycling quota of 68.9%.
■ Plastic Use Reduction:
Indicators:
Data for plastic use reduction for certain single-use plastic products is part of regular reporting in accordance with the Single-Use-Plastic-Directive (SUPD) and is regulated by the environmental statistics act.
Targets (if any):
The reduction in consumption can be measured on the basis of the weight of the plastic content of the single-use plastic items placed on the market or on the basis of the number of items. The target is to achieve a measurable quantitative reduction in the consumption of certain single-use plastic products on the territory of the Member State by 2026 compared to 2022.
■ Beach Cleanup:
Indicators:
Data is available from regular official beach litter monitoring and partly from the NGOs and public authorities carrying out clean ups on beaches and in other public spaces.
Targets (if any):
The indicator is defined in terms of median litter abundance per 100 m beach for comparison with the threshold value of less than 20 litter items per 100 m beach.
■ Ghost Fishing Gear Recovery:
Indicators:
Fishing for Litter data is regularly reported to OSPAR covering passively fished waste during fishing operations.
Targets (if any):
To increase the total number of vessels participating in FFL schemes in the OSPAR maritime area by 100% in 2021, compared to the baseline situation in 2017.
■ Others:
Indicators:
Plastic particles in the stomachs of Northern Fulmars
Targets (if any):
OSPAR long-term target that fewer than 10% of fulmars should have no more than 0.1g of plastic in their stomachs.
Technical Standards, Guidelines and Methodologies
Topics: ■ Production / Manufacturing
Brief Description:
Minimum standard for determining the recyclability of packaging subject to mandatory PRO participation pursuant to section 21 (3) VerpackG, annually updated standard published by Central Agency Packaging Register (Zentrale Stelle Verpackungsregister – ZSVR), in agreement with the German Environment Agency (Umweltbundesamt – UBA).
Monitoring of marine litter:
- Monitoring handbook of the current German Bund/Länder monitoring programs (BLMP)
- Guidance on Monitoring of Marine Litter in European Seas (MSFD TG ML, JRC Scientific and Policy Reports)
Measures
| Measures across Value Chain | |||||||||||||||||||||
| Actions for encouraging sustainable / circular product design (example: improved durability, reparability, recyclability, reduction of material use per product…etc.) | Yes | ||||||||||||||||||||
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Specific Measures: |
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| Policy actions for encouraging plastic alternatives, recycled materials at production stage. | Yes | ||||||||||||||||||||
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Specific Measures:
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| Steps taken towards restricting microplastics in products. | No | ||||||||||||||||||||
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Brief Description: |
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| Reduce single-use plastic (shopping bags, straws etc.) by regulations or voluntary measures (such as ban, levy, others) | Yes | ||||||||||||||||||||
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■ Regulatory Measures (ex: production ban, Ban on use..etc) Different bans and regulations according to the EU Single use Plastics Directive EU 2019/904 (SUPD). An obligation to offer reusable packaging alternatives for single-use plastic food packaging for take-away food and single-use beverage cups since 2023. An extension of the compulsory deposit to almost all single-use plastic beverage bottles and all beverage cans since 2022
■ Economic Measures (levy, tax, subsidies…etc.) |
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| Introduce Extended Producer Responsibility (EPR) | Yes | ||||||||||||||||||||
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Specific Measures:
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| Improve waste management and recycling system | Yes | ||||||||||||||||||||
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Specific Measures: |
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| Promoting plastic waste re-use, recycling and recovery opportunities | Yes | ||||||||||||||||||||
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Specific Measures: |
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| Install capturing trap/filter on drainage/river | - | ||||||||||||||||||||
| Conduct clean-up activities in rivers/ wetlands/ beaches/ coasts/ coral reefs/ sea floor, involving local communities involving local communities | Yes | ||||||||||||||||||||
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Specific Measures:
Clean-up activities organized by municipalities, NGOs, authorities and other initiatives are taking place on beaches, on riverbanks and also inland. Furthermore, many communities are taking part on the International Coastal Cleanup Day happening each year in autumn. Many of these activities can be found in the database of activities of the members of the national Round Table on Marine Litter (https://www.muell-im-meer.de/de/aktivitaeten). |
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| Issue-specific Measures | |||||||||||||||||||||
| <1> Abandoned, Lost and Discarded Fishing Gear (ALDFG) | |||||||||||||||||||||
| Taken/to be taken National Level Action and/or Community Level Action on Clean sea initiatives including ghost net retrieval, ocean-bound plastics etc. | Yes | ||||||||||||||||||||
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Specific Measures:
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| Taken actions for preventing abandoned, lost and discarded fishing gear (ALDFG) being generated. | Yes | ||||||||||||||||||||
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Specific Measures:
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| Created/creating collection/recycling mechanism for ALDFG | Yes | ||||||||||||||||||||
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Specific Measures:
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| <2> Port Waste Reception For waste management in ports, please provide details regarding their solid waste management practices/facilities including: |
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| Whether there is an applicable legal framework | Yes | ||||||||||||||||||||
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Brief Description: |
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| The institution(s) responsible for (or playing a central role in, if voluntary action) managing the waste from ships? (example: port management authority, fishers' association...etc.) | Yes | ||||||||||||||||||||
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The responsible institutions are port authorities, operators of port reception facilities, waste management companies, masters of seagoing vessels as well as fishermen by themselves ect. |
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| Whether ports possess waste reception facilities/systems to handle solid waste from ships, the volume of waste collected and the percentage of ports with waste reception facilities? | Yes | ||||||||||||||||||||
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Brief Description: |
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| The handling procedures for each distinct waste stream once onshore. | Yes | ||||||||||||||||||||
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Brief Description: |
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| Partnership and Innovation | |||||||||||||||||||||
| Boost multi-stakeholder involvement and awareness-raising | Yes | ||||||||||||||||||||
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Specific Measures: |
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| Encourage/ Incentivize action by private sector companies to reduce/ sustainably manage their plastic waste. | Yes | ||||||||||||||||||||
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Specific Measures: |
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| Encourage public awareness on MPL issues through formal education system and/or curriculum for | Yes | ||||||||||||||||||||
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Specific Measures: |
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| Promote innovative solutions through Research & Development (e.g., subsidy program, investment fund etc.) | Yes | ||||||||||||||||||||
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Specific Measures: “Plasticpirates” is a citizen science project to collect data of plastic waste and raise awareness throughout Europe for its impact in rivers and, since 2024, along coastlines. |
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| Monitoring, Data Management, Understanding Flow of Plastics/MPL | |||||||||||||||||||||
| Conduct Life Cycle Assessment (LCA) of plastic products. What are the challenges if LCA is not conducted? | Yes | ||||||||||||||||||||
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Scope: ■ International Investigation of the environmental impact of packaging made from biodegradable plastics (UBA-Texte 52/2012) Evaluation of the environmental impact of take-away beverage cups and possible measures to reduce the consumption (UBA-Texte 29/2019)
Review of the effectiveness of article 21 VerpackG (Packaging Act) and development of proposals for further legal developments |
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| Conduct Material Flow Analysis (MFA) on plastics. What are the challenges if MFA is not conducted? | Yes | ||||||||||||||||||||
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Scope: ■ National
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| Conduct monitoring / estimation / scientific research on leakage of plastics/microplastics to the natural environment and/or flow of ocean surface. What are the challenges if these actions are not conducted? |
Yes | ||||||||||||||||||||
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Specific Measures: Brief Description: Challenges (if applicable): |
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| International Collaboration | |||||||||||||||||||||
| Participate in international cooperation through international organizations, multi-national groups, etc. | Yes | ||||||||||||||||||||
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Specific Measures: |
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| Support target region by your international cooperation initiatives/projects: | Yes | ||||||||||||||||||||
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Target Regions: Specific Measures: |
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Challenges
■ Recycling System Improvement
Specific Challenges:
While the plastic recycling quota of the packaging act boosted plastic recycling, however the demand side for recycled material did not develop in the same way. Therefor minimum recycled content requirements, as foreseen by the EU-Packaging and Packaging Waste Regulation, need to complement recycling quota.
■ Data Collection Related to Marine Plastic Litter
Specific Challenges:
A remaining challenge remains D10C2 of the MSFD on micro litter in the different marine compartments since monitoring and assessment approaches create results, which are hard to compare. However, joint approaches with the involvement of DE are currently been developed in the EU Technical Group on Marine Litter and OSPAR and HELCOM. OSPAR currently agreed on a new common indicator on micro litter in sediments.
■ Lack of Financial Incentives for Waste Treatment in General
Specific Challenges:
Extended producer responsibility (EPR) obligations and recycling quota are appropriate incentives for waste treatment. However, we face the challenge that mixed residual waste ends up in separated waste streams. This is because end consumers do not have to pay for those streams due to the EPR system ( like light weight packaging) while there is a fee on mixed municipal waste). This deteriorated the quality of the separately collected waste.
Best Practices
■ National Level ■ Local/Community Level ■ International Initiative
Description:
The “Blue Angel” – the German national ecolabel – developed criteria for:
- Artificial turf that does not emit microplastic. This is mainly an offering to local communities with regard to sustainable public procurement.
- Reusable systems to-go for food and beverages, in order to reduce the number of disposable cups and to strengthen environmentally friendly reusable cup systems. The criteria include requirements for the cups themselves as well as for the suppliers.
The Global Action Partnership for EPR by GIZ, UNEP, OECD, WWF, and hosted by the PREVENT Waste Alliance offers a EPR Helpdesk for tailored technical support for requesting parties.
Contact Details
Name: Dr. Axel Borchmann
Position: Head of Unit
Division: Water management, Water and Soil Conservation, Marine Conservation
Organization: Federal Ministry of the Environment, Climate Action, Nature Protection and Nuclear safety
Email: axel.borchmann@bmukn.bund.de

