European packaging organisations are urging the EU to introduce a new optional legal framework designed to make it easier for companies to operate across borders.

The proposal, known as the “28th legal regime,” is being promoted as a way to reduce administrative hurdles and help businesses adapt to fast-changing packaging and recycling rules in the bloc.

What the 28th legal regime would change

The proposed regime would give companies the choice to follow one unified EU system instead of navigating the different laws of 27 member states. Packaging groups say this could simplify tasks such as environmental reporting, compliance checks and product registrations, which often vary widely from country to country.

Industry associations are calling for the regime to be open to all businesses, not just start-ups or high-tech firms.

They argue that packaging manufacturers, recyclers and logistics operators — many of which trade across several EU markets — would benefit from a single set of procedures. They are also asking for a digital one-stop portal so companies only submit compliance information once.

Connection to new packaging rules in Europe

The push comes shortly after the EU’s Packaging and Packaging Waste Regulation (PPWR) took effect.

The PPWR introduces new requirements aimed at supporting a circular economy, including recyclability standards, recycled-content targets and limits on certain single-use packaging.

For firms working across multiple countries, these new rules bring extra pressure to manage different administrative systems.

Industry groups say a unified legal regime could help ensure businesses apply the same standards everywhere, reducing confusion and lowering the cost of meeting sustainability rules.

Industry concerns and next steps

Packaging associations warn that if the new legal system is restricted to only “innovative companies,” it would leave much of the sector facing ongoing legal fragmentation. They argue that broad access is essential to support investment in recycling, reuse and other circular-economy initiatives across the region.

The 28th legal regime is still at the proposal stage, and EU countries must agree on how it would work in practice. Some areas — including tax, labour law and national regulatory safeguards — may take time to negotiate.

Even so, packaging groups say rapid progress is needed to prevent further complexity as new EU environmental rules roll out.

For now, the debate signals growing pressure from manufacturers, recyclers and supply-chain operators for simpler, more consistent EU-wide packaging rules as the sector navigates major regulatory change.