Charging for single-use disposable beverage cups: consultation

Executive summary

The Scottish Government has had a commitment to consult on introducing a charge for single-use beverage cups since our 2019-20 Programme for Government, following recommendations from an independent expert panel. The Circular Economy (Scotland) Bill, passed unanimously by the Scottish Parliament in June 2024, gives Scottish Ministers new powers to require suppliers of single-use items to charge a minimum amount for such items, through the introduction of a new section 87A into the Climate Change (Scotland) Act 2009^[4], with the policy aim of reducing consumption and therefore reducing the environmental harm caused^[2]. The Scottish Government intends that an early use of such powers will be to introduce a minimum charge on single-use disposable beverage cups. This is in line with our draft Circular Economy and Waste Route Map which includes ‘reduce and reuse’ as one of the four strategic aims, with a commitment to introduce a charge on single-use disposable beverage cups by the end of 2025.

The environmental case for change is clear. Reducing waste and reusing materials will be key to our transition to a more circular economy, and a charge on single-use cups will support this priority by encouraging the use of reusable alternatives. They are also a common part of the litter stream. The consumption of single-use cups in Scotland, estimated to have risen from 200 million in 2018 to 388 million (71 single-use cups per person a year) in 2021-22, underlines the urgency of taking this step.

The success of the single use carrier bag charge demonstrated how an environmental charge can be an effective tool to change behaviour and promote responsible consumption.

Consultation proposals

Scottish Ministers’ ambition is to establish a simple yet robust system, consistent with New Deal for Business principles, which promotes much greater cup reuse while keeping administrative burdens to a minimum. While what is presented below is the proposed approach, based on the work of an independent expert panel and informed by advice from an advisory group that includes a wide range of stakeholders, we would welcome your views on the principle of the charge and on the specific proposals.

We propose that:

• 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, to maximise coverage and ensure the charge is easily understood;
• 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;
• that 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.

Following this consultation, we will analyse consultation responses in order to understand the full range of views on our proposed approach to the charge, and impact assessments. We will also undertake any supporting analysis or research where required.

The Scottish Government will then come to a decision on how a charge could be implemented and will continue to work with stakeholders to develop the final policy and implementation plan.