Towards Osaka Blue Ocean Vision - G20 Implementation Framework for Actions on Marine Plastic Litter

Spain

Actions and Progress on Marine Plastic Litter
Last Update : 2025/08/06

Policy Framework

National Action Plan

Name（Year）:
● Marine Strategies Program of Measures on Marine Litter (2022-2027).
Included in the Executive summary of the MSFD PoM:
Summary_Progr_ de_medidas (Inglés)_DIGITAL .pdf (miteco.gob.es)

Brief Description:
Spain has developed 5 Marine Strategies (1 per marine subdivision) which contains a specific program of measures to address marine litter. This programs include measures focused on land-base sources, sea-based sources, microplastics, marine litter removal and raise-awareness.

Legal Framework

Name（Year）:
● Law 41/2010, 29th December, on protection of the marine environment

Brief Description:
This Law includes marine litter has one of the descriptors of the environmental status of our marine waters. It includes the obligation to achieve and maintain a good environmental status, which implies an assessment based on robust monitoring programmes and a program of measures each 6 years.

In Preparation

Name:
● ROYAL DECREE ON THE MANAGEMENT OF FISHING GEAR CONTAINING PLASTIC
● ROYAL DECREE ON THE MANAGEMENT OF WASTE FROM SINGLE USE WIPES AND SINGLE USE BALLOONS CONTAINING PLASTIC

Brief Description:
The futures regulations will aim to regulate the extended producer responsibility (EPR) of these products, with the purpose of preventing and minimizing the impacts caused by the waste generated.

In this regard, the legal framework for the management of waste derived from these products will be established, along with priority measures aimed at preventing waste generation and improving its management, with the goal of contributing to the transition toward a circular economy and promoting the development of more sustainable solutions.

Thus, the costs that producers must bear will be determined and the necessary measures for monitoring the fishing gear containing plastic introduced into the market, as well as the collected waste. With regard to fishing gear, a national minimum collection rate for fishing gear waste containing plastic for recycling will be stablished, due to the high recycling potential of the plastic components of fishing gear.

Law 7/2022, on waste and contaminated soils for a circular economy, establishes the scope of extended producer responsibility, defining the obligations to which producers may be subject, through the corresponding regulatory development, both during the design and production phase of their products and in the management of the waste derived from their use, and includes how these obligations should be fulfilled, either individually or through collective systems.

Indicators and/or Targets

■ Beach Cleanup:
Indicators:
Beach litter
Microplastics on beaches
■ Ghost Fishing Gear Recovery:
Indicators:
www.artesperdidos.es
■ Others:
Indicators:
Beach Litter
Microplastics on Beaches
Seafloor Litter
Floating Litter
Microplastics on the Water Surface
Microplastics on Sediments
Citizen Science
Marine Litter in Biota (Ingestion and Entanglement on Marine Turtles)

Technical Standards, Guidelines and Methodologies

Topics:
■ Others

Brief Description:
https://op.europa.eu/en/publication-detail/-/publication/529ef643-173f-11eb-b57e-01aa75ed71a1

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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

Specific Measures:

  1. From 3 July 2024, only single-use plastic products listed in Annex IV, Part C, whose caps and closures remain attached to the container during the intended use phase of that product, may be placed on the market. For these purposes, metal caps and closures with plastic seals shall not be considered to be plastic.

    The above products shall be deemed to comply with the provisions of this paragraph if they are manufactured in accordance with harmonized standards adopted at European Union level for this purpose.
  2. From 1 January 2025, only polyethylene terephthalate bottles (hereinafter "PET bottles"), containing at least 25% recycled plastic, calculated as an average of all PET bottles placed on the market, may be placed on the market.
  3. As from 1 January 2030, only bottles containing at least 30% recycled plastic, calculated as an average of all such bottles placed on the market, may be placed on the market.
  4. The systems set up to comply with the obligations established in the framework of extended producer responsibility for packaging and packaging waste shall establish measures to ensure compliance with these objectives, facilitating the availability of materials of sufficient quality and quantity.

    Among other measures, part of the PET recovered shall be destined to the manufacture of recycled PET, in order to comply with the objectives established in this article and others that could be established in regulatory development for other packaging.
  5. The plastic bottles referred to in paragraphs 2 and 3 may contain information on the percentage of recycled plastic contained therein.
  6. The Commission of coordination in the matter of waste will be able to approach in the bosom of the corresponding work group, the establishment of the necessary measures for the attainment of the objectives foreseen in this article and will value to impel the development of a secondary market of recycled PET in Spain.
  7. Special Tax on Non-Reusable Plastic Packaging: the tax base will be constituted by the amount of non-recycled plastic, expressed in kilograms, contained in the products that are part of the scope of the tax.

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Policy actions for encouraging plastic alternatives, recycled materials at production stage. Yes

Specific Measures:
■ Use of Recycled Materials
■ Closed-Roop Recycling
Brief Description:
Specific measures: As explained in the previous section.

The ‘Guide of Circular Economy Best Practices’ identifies examples of good practices carried out in Spain, which can be transferable and scalable to other agents.

Circular Strategy and Plan

Law 7/2022 on waste and contaminated soils for a circular economy, setting general targets.

Royal Decree 293/2018 on reducing the consumption of plastic bags, which states that all plastic bags given to consumers must be compostable.

Royal Decree 1055/2022, of December 27, on Packaging and Packaging Waste.

Royal Decree 1093/2024, of October 22, regulating the management of waste from tobacco products with filters and filters marketed for use with tobacco products containing plastic and intended for single use.

Steps taken towards restricting microplastics in products. Yes

Specific Measures:
Targeted Products
■ Cosmetics and Personal Care Products
■ Others
Brief Description:
Law 7/2022 prohibits the introduction into the market of plastic microbeads less than 5 millimeters in size that are intentionally added.

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Reduce single-use plastic (shopping bags, straws etc.) by regulations or voluntary measures (such as ban, levy, others) Yes

■ Regulatory Measures (ex: production ban, Ban on use..etc)
Brief Description:
Law 7/2022 on waste and contaminated soils for a circular economy.
The placing on the market of the following products is prohibited:

  1. Plastic products mentioned in section B of Annex IV.
  2. Any plastic product made of oxo-degradable plastic.
  3. Plastic microspheres of less than 5 millimeters added intentionally.

Targeted Products:
Section B of Annex IV: Single-use plastic products subject to market introduction restrictions:

  1. Cotton swabs, except if they fall within the scope of Royal Decree 1591/2009, of October 16, which regulates medical devices.
  2. Cutlery (forks, knives, spoons, chopsticks).
  3. Plates.
  4. Straws, except if they fall within the scope of Royal Decree 1591/2009 of 16 October.
  5. Drink stirrers.
  6. Sticks intended to hold and be attached to balloons, with the exception of balloons for industrial and professional uses and applications that are not distributed to consumers, including the mechanisms of those sticks.
  7. Food containers referred to in A.2 made of expanded polystyrene.
  8. Beverage containers made of expanded polystyrene, including their lids and caps.
  9. Beverage cups made of expanded polystyrene, including their lids and stoppers.

Royal Decree 293/2018 on reducing the consumption of plastic bags.

Royal Decree 1055/2022, of December 27, on Packaging and Packaging Waste.

Royal Decree 1093/2024, of October 22, regulating the management of waste from tobacco products with filters and filters marketed for use with tobacco products containing plastic and intended for single use.

Targeted Products:
Beverage and food containers, cotton swabs, cutlery, plates, straws, drink stirrers, sticks destined to hold balloons, feminine hygiene products, wet wipes, tobacco products with filter, fishing gear an plastic bags.

Brief Description:
Both laws stablish a calendar to ban, reduce the use, recycle, mark, and raise awareness about these products.

Economic Measures (levy, tax, subsidies…etc.)
Brief Description:
Special Tax on Non-Reusable Plastic Packaging: the tax base will be constituted by the amount of non-recycled plastic, expressed in kilograms, contained in the products that are part of the scope of the tax.
It is mandatory for shops to charge for single use plastic bags.

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Introduce Extended Producer Responsibility (EPR) Yes

Specific Measures:

Targeted Products Domestic plastic packaging; phytosanitary and fertilizer products packaging; packaging for other agricultural products; packaging for drugs and medicines; single use industrial and commercial packaging; out of use tires;
Nature of Responsibility ■ Financial Responsibility
■ Operational Responsibility
■ Collective Producer Responsibility
■ Individual Producer Responsibility
Modality Mandatory EPR
■ Upstream Tax
■ Downstream Subsidy
■ Deposit Refund System(only for packaging)
■ Drop Off Points 		Voluntary EPR
-
Eco-Modulation
(if applicable)
 ■ Fees Modulated Based on Recyclability of Products
Performance Indicators
 DATA AVAILABLE ONLY FOR PACKAGING:
Royal Decree 1055/2022, of December 27, on Packaging and Packaging Waste.
Recycling Targets

  1. In 2025, a minimum of 65% by weight of all packaging waste will be recycled.
  2. In 2025, the following minimum recycling targets by weight for the specific materials indicated below contained in packaging waste will be achieved:
    1. 50% of plastic.
    2. 25% of wood.
    3. 70% of ferrous metals.
    4. 50% of aluminum.
    5. 70% of glass.
    6. 75% of paper and cardboard.
  3. In 2030, a minimum of 70% by weight of all packaging waste will be recycled.
  4. In 2030, the following minimum recycling targets by weight for the specific materials indicated below contained in packaging waste will be achieved:
    1. 55% of plastic.
    2. 30% of wood.
    3. 80% of ferrous metals.
    4. 60% of aluminum.
    5. 75% of glass.
    6. 85% of paper and cardboard.

Separate Collection Targets
The following minimum separate collection targets by weight for household packaging waste by material must be achieved:

  1. Plastic: 55% in 2025, 65% in 2030, and 75% in 2035.
Brief Description
 Member States shall ensure that extended producer responsibility schemes are established for fishing gear containing plastic placed on the market of the Member State, in accordance with Articles 8 and 8a of Directive 2008/98/EC.

Member States that have marine waters as defined in point 1 of Article 3 of Directive 2008/56/EC shall set a national minimum annual collection rate of waste fishing gear containing plastic for recycling which will be set up through the EPR in preparation.

Member States shall monitor fishing gear containing plastic placed on the market of the Member State as well as waste fishing gear containing plastic collected and shall report to the Commission in accordance with Article 13(1) of this Directive with a view to the establishment of binding quantitative Union collection targets.

With regard to the extended producer responsibility schemes established pursuant to paragraph 8 of this Article, Member States shall ensure that the producers of fishing gear containing plastic cover the costs of the separate collection of waste fishing gear containing plastic that has been delivered to adequate port reception facilities in accordance with Directive (EU) 2019/883 or to other equivalent collection systems that fall outside the scope of that Directive and the costs of its subsequent transport and treatment. The producers shall also cover the costs of the awareness raising measures referred to in Article 10 regarding fishing gear containing plastic.

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Improve waste management and recycling system Yes

Specific Measures:
Law 7/2022 on waste and contaminated soils for a circular economy.

Development of extended producer responsibility for several items: bags, packaging, filters, and in the future for wipes, balloons, and fishing gear.

Royal Decree 646/2020 on landfill disposal of waste.

Royal Decree 553/2020 on waste shipment within Spain.

Law 5/2013 on integrated pollution prevention and control (incineration)

Brief Description:
Each of these laws establishes measures to ensure environmentally sound waste management at each step of the waste hierarchy
Promoting plastic waste re-use, recycling and recovery opportunities Yes

Specific Measures:
The Law 7/2022 establishes the following preventive measures

  • To reduce the generation of waste, particularly waste that is unsuitable for preparation for reuse or for recycling.
  • To identify the products that constitute the main sources of dispersed waste, especially in the natural and marine environment, using existing agreed methodologies in Spain, and adopt appropriate measures to prevent and reduce dispersed waste from these products. When these measures involve market restrictions, the measures shall be proportionate and non-discriminatory and shall be regulated by royal decree, after hearing the Coordination Commission on waste and informing the European Commission.
  • To curb the generation of waste dispersed in the marine environment as a contribution to the United Nations sustainable development objective of preventing and considerably reducing marine pollution of all kinds. To this end, as from the entry into force of this regulation, the Town Councils may regulate the limitations on the intentional release of balloons and smoking on beaches, which may be sanctioned in the Municipal Ordinances in accordance with the system of infractions and penalties of this law.

For beverage bottles: minimum recycled content: as explained previously.

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Install capturing trap/filter on drainage/river Yes
Specific Measures:
Some River Basin Authorities place capture grids for floating debris on river mouths near the ocean
Conduct clean-up activities in rivers/ wetlands/ beaches/ coasts/ coral reefs/ sea floor, involving local communities involving local communities Yes
Specific Measures:

Financing of clean-up activities (rivers, beaches, floating litter and shallow seabeds) and encourage participation in organised clean-up campaigns (linked to a harmonised citizen science data collection).

Implementation of a fishing for litter national plan. The measure includes preparatory actions such as a technical document to ensure consistency of methodologies and data collection, a national database, and demonstration pilot actions as part of LIFE INTEMARES European project. Funds are available in the framework of European Maritime and Fisheries Fund Spanish Operative Programme.

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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

Specific Measures:
General Criteria for the Management of Abandoned, Lost, or Discarded Fishing Gear (ALDFG): Lost Fishing Gear - General criteria (miteco.gob.es)

The LIFE IP INTEMARES project has provisionally tested the criteria at the following Natura 2000 Network sites:

  • South Atlantic marine subdivision: surroundings of La Breña and Marshes of Barbate and Cape Trafalgar: ALDFG incidental finding during a recreational dive.
  • Strait-Alborán marine subdivision: surroundings of Seco de los Olivos, Bay of Almería and Cape Entinas-Sabinar: ALDFG finding during a boat crossing.
  • Levantine-Balearic marine subdivision: Escarpe de Mazarrón underwater valleys environment: ALDFG removal organized by recreational divers.
  • Canarian marine subdivision: Eastern and southern Lanzarote-Fuerteventura marine area: cleaning of the seabed with the participation of recreational divers.
  • North Atlantic marine subdivision: Rías Baixas of Galicia marine area: Action for removal of ALDFG conducted by professional organizations.

All these demonstrative actions can be consulted at:
https://www.artesperdidos.es/recursos

It is recommended to record the finding and its typology, location, species affected, etc. in the database
https://www.artesperdidos.es/

Taken actions for preventing abandoned, lost and discarded fishing gear (ALDFG) being generated. Yes

Currently working on the implementation of Extended Producer Responsibility (EPR) for fishing gear containing plastic, in line with the requirements of the Single-Use Plastics Directive.
Created/creating collection/recycling mechanism for ALDFG No
＜2＞ Port Waste Reception
For waste management in ports, please provide details regarding their solid waste management practices/facilities including:
Whether there is an applicable legal framework Yes

Brief Description:
Royal Decree 128/2022, of February 15, on port facilities for the reception of ship waste.
This royal decree aims to protect the marine environment from the negative effects of waste discharges made by ships using Spanish ports, while ensuring the smooth operation of maritime traffic, improving the availability and use of suitable receiving port facilities, and the disposal of waste to such facilities.

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

Brief Description:
Port management authority

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

Brief Description:
Ports possess waste reception facilities to handle solid waste from ships

Volume of Waste Collected:

  ANNEX I ANNEX V
m3 m3
2003 179.735 97.325
2004 208.479 140.211
2005 186.036 147.881
2006 232.748 151.403
2007 239.671 162.776
2008 269.290 183.216
2009 257.977 147.922
2010 276.140 193.845
2011 362.904 240.430
2012 348.192 248.424
2013 354.577 247.045
2014 442.941 255.402
2015 385.722 308.315
2016 371.730 234.744
2017 417.919 337.774
2018 434.613 359.286
2019 445.102 373.010
2020 348.844 215.925
2021 344.468 221.505
2022 362.056 324.415

Percentage of Ports with Waste Reception Facilities:
100% (Data for ports of general interest dependent on the central government)

The handling procedures for each distinct waste stream once onshore. Yes

Brief Description:
Each port has handling procedures adapted to the traffic and waste volumes. Treatment techniques are according to Directive UE 2019/883 and the associated Royal Decree 128/2022, of February 15, on port facilities for the reception of ship waste and include recovery and disposal operations, including preparation prior to recovery or disposal of waste (MARPOL I, II, IV, V and VI) and passively fished waste.

Processes for specific waste streams are published on the respective website of each of the 28 port authorities.

Partnership and Innovation
Boost multi-stakeholder involvement and awareness-raising Yes

Specific Measures:

  1. Preparation of awareness/communication materials
  2. Establishment of a technical group on marine litter (national hub) and stimulation of national discussion in the form of periodic roundtables with stakeholder participation.
  3. Creation of "Guardians of the Beach" program, aimed at associations, environmental organizations, fishermen, fishing associations and other groups and a network of "guardians" organizations to ensure environmental preservation of rivers and beaches and awareness to this problem at local, regional and national levels.

Additionally, some horizontal measures in the Marine Strategies may include marine litter as a subject among other marine aspects:

  1. Awareness programs for beach tourists, nautical tourism companies, as well as fishermen and civil society in general, including schools.
Encourage/ Incentivize action by private sector companies to reduce/ sustainably manage their plastic waste. No
Encourage public awareness on MPL issues through formal education system and/or curriculum for Yes

Specific Measures:

  • Training programs for fishermen, observers on board, stranding networks personnel, and training for Public Administration managers.
  • Development and implementation of a curriculum related to the respect and protection of cetaceans, marine turtles and seabirds as well as marine litter in the ship’s masters official courses (yacht and fishing).

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Promote innovative solutions through Research & Development (e.g., subsidy program, investment fund etc.) Yes

Specific Measures:
Call for the awarding of grants, on a competitive basis, for the promotion of the circular economy in the plastics sector. This call for grants is part of the Recovery, Transformation and Resilience Plan, as well as the PERTE of Circular Economy.

The purpose of this call for proposals is the awarding of grants, on a competitive basis, for the execution of projects that contribute in a competitive concurrence, for the execution of projects that contribute substantially to the substantially to improve the sustainability and circularity of industrial and business processes in the plastics and business processes, improving the competitiveness and innovation of the industrial fabric within a circular economy in the framework of a circular economy, in accordance with the provisions of Order TED/167/2024, of 20 February, which approves the regulatory bases for the granting of subsidies, on a the regulatory bases for the granting of subsidies, on a competitive basis, of the Fundación Biodiversity Foundation, F.S.P., for the promotion of the circular economy in the textile, fashion and plastic fashion and plastics sectors within the framework of the Recovery, Transformation and Resilience Plan.

https://fundacion-biodiversidad.es/convocatorias_del_pr/convocatoria-de-concesion-de-subvenciones-para-el-impulso-de-la-economia-circular-en-el-sector-del-plastico/

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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? No
 
Conduct Material Flow Analysis (MFA) on plastics. What are the challenges if MFA is not conducted? No
 
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

Specific Measures:
■ Established a Monitoring/Reporting Program/Mechanism
■ Regularly Conduct Monitoring/Estimation/Scientific Research

Scope: ■ National ■ Macro Plastics ■ Microplastics （<5㎜） ■ Ocean ■ others: rivers, soils, air etc.

Brief Description:
Marine Litter Monitoring Strategy is described in:
Summary_(Monitoring_Prog)_DIGITAL.pdf (miteco.gob.es)

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International Collaboration
Participate in international cooperation through international organizations, multi-national groups, etc. Yes

Specific Measures:
GGGI, regional Seas Conventions (OSPAR, UNEP-MAP), INC on LBI on plastic pollution, EU (TG-ML)
Support target region by your international cooperation initiatives/projects: South, Central and Southeast Asia No

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Challenges

■ Recycling System Improvement

Specific Challenges:
The plastics sector in Spain is of great importance, as evidenced by the turnover of the plastics manufacturing subsector in primary forms, which has risen to of the plastics manufacturing subsector in primary forms, which accounts for slightly more than 17% of the total chemical industry slightly above 17% of the total chemical industry. In a circular economy, where priority should be given to the use of secondary raw materials, the penetration of these materials is not consolidating at a steady pace and is limited by a fragmented market, which is not immune to the behavior of the prices of raw materials.

Added to this are the costs of collection, treatment and management of plastics, the low availability of recycled plastic polymers and the lack of available technologies for the valorization of certain polymers, additives or multilayer products. In addition, the small size of most companies hinders innovation, the ability to adapt production to new circular models, as well as professionalization of management.

It is therefore necessary to encourage the transformation of the sector towards a sustainable model with special emphasis on reducing waste generation and increasing recycling rates.

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Best Practices

■ National Level

Description:

  1. Monitoring (macrolitter and microplastics) on beaches, floating litter, seabed litter, and also biota (target species differ in each marine region: in Spanish water: marine turtles + other options such as fish or mussels in study). Also citizen science protocol may be of interest.
  2. Implementation of a non-special fee cost recovery system for waste collection from vessels in national ports (implemented since 2011).
  3. Fishing for litter initiatives. These are being harmonised into a national umbrella (technical guidelines + national database). There are relevant individual initiatives (some of them private) with good coverage in terms of number of ports and experience, that could be shared.
  4. ALDFG. Technical guidelines and a national database for inventory and assessment of ALDFG have been developed.

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Contact Details

Name: Mr. Daniel Roures Rego
Position: Head of Unit
Division: Underdirectorate General for International Relations
Organization: Ministry for the Ecological Transition and the Demographic Challenge
Email: droures@miteco.es; bzn-sgri@miteco.es

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