
Europe is entering a stage in which the circular economy must move beyond a collection of individual experiments. The most important question today is: how do we move from successful pilots to solutions that work permanently, conveniently, and at scale?
From single-use to a system
Experience from the Change(K)now! project shows that reusable systems can operate successfully in institutional catering, at public events, and in takeaway food services. This means that the question “Can this work?” has largely been replaced by a much more difficult one: “What must be done to make it work everywhere, consistently, and at the right scale?”
Many initiatives implemented so far have been local and temporary. Pilots demonstrated the feasibility of solutions, but they often relied on temporary funding, unusually committed participants, and favourable local conditions. As a result, they did not automatically translate into permanent structural change. This is what creates the “pilot-to-system gap.”
Awareness alone is not enough
One of the most practical conclusions of the Policy Brief is the need to move away from placing excessive emphasis on consumer education. Information campaigns help build understanding and acceptance, but they cannot compensate for a poorly designed system.
If the nearest return point is far away, deposit rules are complicated, or users do not know where they can return a container, even a high level of environmental awareness may fail to translate into action. Participation in a system is determined to a large extent by convenience, accessibility, simplicity, clear rules, and compatibility with everyday habits.
Policy should therefore focus less on constantly persuading people and more on creating conditions in which the circular option becomes the simplest and most natural choice.
Infrastructure – the backbone of reuse
A reusable system does not end with the container itself. It requires an entire circulation loop: use, return, washing, redistribution, and reuse. For this cycle to function efficiently, return points, logistics, washing facilities, operational standards and — in larger systems — identification and tracking tools are required.
The density and visibility of return infrastructure are particularly important. When containers can be returned easily and in many locations, participation and the number of reuse cycles increase. When returning requires extra effort, the efficiency of the entire system falls.
In the long term, this means reuse infrastructure should be treated as part of normal urban infrastructure — much like public transport or waste management.
Interoperability instead of more isolated systems
Scale will also not emerge if every city, restaurant, or operator creates an entirely separate system. Users should not have to wonder whether a particular container can only be returned to the place where they obtained it.
The more compatible and interoperable a system is, the easier it becomes to use. Common standards are needed for issues such as packaging formats, deposit logic, container identification, and data structures. At the same time, markets should avoid becoming dependent on a single operator. An open system should allow multiple providers to work together.
Local authorities as architects of change
Cities and municipalities are among the most important target groups for these recommendations. This does not mean that a local authority should operate the entire system itself. Its role is more strategic: it can establish requirements, integrate reuse criteria into public procurement, develop infrastructure, coordinate stakeholders, create stable demand, and monitor performance.
Public procurement can play an especially important role. Schools, hospitals, and other public institutions purchase large volumes of food services. Incorporating circularity criteria into tenders can therefore shape the market and create predictable demand for suppliers.
Public events as laboratories for change
Large municipal events offer several advantages: a limited space, clearly defined rules, large numbers of users, and high public visibility.
Project experience indicates that making reusable packaging mandatory — when supported by suitable infrastructure, communication, and enforcement — can quickly turn reuse into the standard rather than the exception. This is why one of the priority recommendations is to introduce mandatory reusable packaging at public events above a defined size threshold.
There will be no scale without partnerships
Neither local government, business, nor consumers can deliver this transition alone. Reusable systems operate at the intersection of public responsibility and private service provision.
Local authorities can create the conditions and rules. Operators contribute technology and operational expertise. Food-service businesses integrate the system into day-to-day customer service. Logistics providers make container circulation possible, while users ultimately determine actual return rates.
Public-private partnerships are therefore not an optional addition to the system — they are one of its fundamental mechanisms.
Ten actions that can accelerate the transition
Change(K)now! identifies ten priority directions for policymakers. Together, they form a practical roadmap from political declaration to systemic implementation:
- Introduce reusable-packaging requirements at large public events.
- Include reuse criteria in public procurement.
- Develop dense and visible return infrastructure.
- Ensure interoperability and compatibility between systems.
- Introduce economic instruments that discourage single-use packaging, where legally possible.
- Provide greater legal clarity on hygiene, liability, and system operation.
- Structure public-private partnerships.
- Use procurement and regulation as tools for market creation.
- Design systems around user convenience and default circular choices.
- Monitor performance, define effectiveness criteria, and measure real environmental benefits.
From niche solution to the new normal
The coming years will determine whether reuse remains an environmentally friendly alternative for especially committed users or becomes a normal part of how European cities operate.
Change(K)now! makes one point very clearly: this transition is possible. The technologies already exist. Pilots have demonstrated feasibility. Operational experience is available. The next step is to connect these elements into a system that is convenient enough for consumers, predictable enough for businesses, scalable enough for cities, and environmentally effective.
Because the future of the circular economy is not thousands of additional pilots. The future lies in solutions that stop being pilots because they simply become the new normal.
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