The Introduction of a Charge on Single-Use Cups in Scotland - Scottish Government Consultation

The Scottish Government is considering the introduction of a 25p charge on single-use drinks cups by the end of 2025 as part of its broader strategy to promote a circular economy. This initiative aims to reduce the environmental impact of disposable cups and encourage the use of reusable alternatives, in a similar vein to the carrier bag charge introduced in 2014.

The proposals are currently under public consultation, inviting feedback from individuals and businesses across Scotland. The consultation can be found here Charging for single-use disposable beverage cups - Scottish Government consultations - Citizen Space and closes on 14th November 2024.

The key proposals are:

a charge of at least 25p should apply to all single-use beverage cups when an individual buys a drink of any kind, including through a loyalty scheme
the charge will apply regardless of cup material, and therefore would include cups made of biodegradable material or bio-based plastics. While it can be argued that these are more sustainable than traditional plastics, they are still single-use and present their own sustainability challenges including a lack of recycling infrastructure and frequency of littering
the charge will not apply when a drink is free, for instance in non-retail settings such as hospitals and care homes
there will be a limited number of exemptions based on purpose or setting, for instance in schools and when a drink is bought from a vending machine
retailers should be able to retain reasonable implementation costs from the charge, in line with the approach taken for the single use carrier bags charge; and
to the extent it is legally deliverable within the competence of the Scottish Parliament, that net proceeds of the charge should be used for environmental or similar purposes.

Background and Rationale

“Only 1.3% of the resources Scotland uses are cycled back into the economy, with over 98% of Scotland’s material use coming from virgin resources.”

— The Circularity Gap Report Scotland, 2022, Circle economy Foundation.

In recent years, the use of single-use disposable beverage cups has surged in Scotland, with approximately 388.7 million cups used in 2021-22 alone. This translates to about 71 cups per person annually, one of the highest rates in Europe. The resulting waste amounts to 5,400 tonnes each year, much of which contributes to litter in urban and natural environments, affecting both terrestrial and marine biodiversity.

The proposed charge is part of the Circular Economy (Scotland) Bill, passed in June, which aims to reduce the consumption of single-use items and promote sustainable practices. This measure aligns with similar initiatives in other European countries, such as the Netherlands and Ireland, which have introduced charges on single-use plastics to curb waste and litter.

The implementation of charges on single-use cups in various countries has shown promising results in reducing their consumption and encouraging the use of reusable alternatives. Here are some key insights from different regions:

1. Germany: Starbucks introduced a 5-cent charge on paper cups in Germany, which led to a significant increase in the use of reusable cups. During a trial in Hamburg and Berlin, the use of reusable cups doubled, with the percentage of orders in reusable cups increasing from about 2.5% to 6%. This suggests that even a small charge can effectively encourage consumers to switch to reusable options.

2. Ireland: The "latte levy" in Ireland, a 15-cent charge on disposable coffee cups, aims to reduce single-use plastic waste. Although the full impact is yet to be determined, similar initiatives have shown significant success. For example, the plastic bag levy in the UK led to a 90% reduction in usage within a month, indicating that consumers are responsive if they are given opportunities.

3. Here in Scotland: Trials conducted by Zero Waste Scotland demonstrated that charging for disposable cups is more effective at reducing their use than offering discounts for reusable ones. In these trials, replacing discounts with charges led to a 50% increase in the proportion of customers using reusable cups.

These examples illustrate that implementing a charge on single-use cups can be an effective strategy to reduce their consumption and promote environmental sustainability. The success of such measures often depends on clear communication and consumer awareness, ensuring that the financial and environmental costs of disposable cups are transparent to consumers.

Impact on Biodiversity

Single-use cups, often lined with plastic, are challenging to recycle and frequently end up in landfills or as litter. They need to be collected separately and sent to a waste recycler that has the technology to remove the plastic liner before the paper element is utilised often as cardboard. The cup littering poses significant threats to wildlife, particularly marine life, as it can lead to ingestion, entrapment and entanglement. The Marine Conservation Society has highlighted the presence of disposable cups on over half of the UK beaches surveyed, underscoring the need to effectively reduce the number of cups discarded.

Current Incentives and Challenges

Many businesses in Scotland already offer discounts to customers who bring their own reusable cups. However, the uptake of these incentives has been limited, as evidenced by the continued high usage of disposable cups [2][4]. While some consumers own reusable cups, remembering to carry them consistently remains a challenge, reducing the effectiveness of such incentives (guilty as charged!).

Potential of Cup Reuse Schemes

Implementing cup reuse schemes could provide a practical solution for both businesses and consumers. These schemes could involve deposit-return systems where consumers pay a small deposit when purchasing a drink in a reusable cup, which is refunded upon return. Such systems not only encourage reuse but also offer businesses a way to engage with environmentally conscious consumers and reduce waste management costs.

Supporting Businesses and Consumers

For small businesses, particularly cafes, the proposed charge could initially seem burdensome. However, it presents an opportunity to differentiate themselves by adopting sustainable practices and attracting eco-conscious customers. The charge could also level the playing field, as all businesses would adhere to the same regulations, potentially leading to a broader cultural shift towards sustainability.

Conclusion

The introduction of a charge on single-use cups in Scotland represents a significant step towards reducing waste and promoting a circular economy. While challenges remain, particularly in changing consumer behaviour, the proposed charge, coupled with effective reuse schemes, has the potential to significantly reduce the environmental impact of disposable cups. Please get involved and respond to the consultation whether you’re a member of the public or a businesses to ensure that the final policy is both effective and fair.

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