Global Plastic Policy Reviews

In 2015, England introduced a mandatory charge for single-use carrier bags. Initially applying to large retailers at 5p per bag, the policy was extended in 2021 to all retailers with the minimum charge raised to 10p. Its aims included reducing plastic bag use, limiting litter, and encouraging reuse. It was introduced as a standalone measure, not linked to a broader plastics or materials strategy.

Reported figures show a sharp decline in the number of single-use bags issued by major retailers, from 7.6 billion in 2014 to around 133 million in 2022/23. On average, consumers now purchase roughly two bags per year, compared to more than 140 before the policy. However, many shoppers have shifted to “bags for life,” which use more plastic and energy in production. These alternatives are often not reused enough to offset their environmental footprint.

Behavioural shifts have varied across income, age, and gender. Some studies suggest higher-income groups are more likely to absorb the cost without changing habits, while lower-income households may experience a disproportionate financial impact. These social dimensions have not been fully addressed.

Revenue from the charge is required to go to ‘good causes’ but is not ringfenced for environmental or plastic-related initiatives. As of 2021, over £150 million had reportedly been donated. However, the system relies heavily on self-reporting by retailers, and transparency around where the money goes is inconsistent. Larger retailers are required to publish this information, but smaller businesses are not subject to the same level of scrutiny.

There is some evidence of a reduction in plastic bag litter in monitored environments. For example, coastal clean-up data has shown fewer bags in recent years. However, this does not capture disposal methods such as illegal dumping or burning.

Public support increased after the policy’s introduction, although it is unclear whether this reflected genuine engagement with its aims. Awareness campaigns may have helped, but long-term behavioural impacts remain uncertain. Some evidence points to increased receptivity to other environmental measures, but causality is difficult to establish.

The policy has reduced distribution of single-use bags and may have influenced certain behaviours. However, its environmental impact is diluted by the increased use of heavier alternatives, and without integration into a broader waste reduction framework, its contribution remains partial.

(Reviewed in July 2025)