How local policies can accelerate the shift to a reuse economy – the case of Tallinn City

The transition to reusable food packaging and tableware is in its early stages, yet the European
Union increasingly recognizes its potential as a key strategy to reduce plastic waste. While national policies and legislation play a critical role in accelerating the adoption of reuse systems in food provision, policy development in this area is still at an early stage, with varying levels of commitment and implementation across member states. Despite regulatory advancements concerning single-use plastics and packaging at the EU level, national governments often hesitate to introduce ambitious legislation and targets that support reuse.

This study examines the case of Tallinn, Estonia, which pioneered local-level regulatory interventions by
banning single-use tableware and mandating the exclusive use of reusable alternatives at public events.
Despite initial implementation challenges, the regulation facilitated a broader shift toward reusable packaging and tableware, fostering adaptation among key stakeholders, including food businesses and consumers. The phased approach to implementation contributed to the creation of a demand-driven market for reusable tableware services, ultimately supporting the development of necessary infrastructure and business models.

The successful enforcement of this policy enhanced public acceptance of reuse systems and gave the national government the confidence to introduce similar legislation at the national level. As a result, Estonia became the first EU member state to mandate, as of 1 January 2024, the exclusive use of reusable containers and cutlery at public events. Thus, the case of Tallinn highlights the potential of local authorities to drive sustainability transitions through targeted regulations and cross-sectoral cooperation. By setting ambitious goals and fostering a culture of reuse, cities can play a pivotal role in accelerating the transition to a reuse economy and advancing zerowaste objectives. As more cities adopt circular economy principles, Tallinn’s experience offers valuable insights into overcoming implementation challenges and achieving long-term circularity goals.