Paper recycling initiatives aim to address regulatory barriers, waste management practices

According to German equipment maker Stadler Anlagenbau GmbH, the demand for sustainable solutions to packaging has never been higher, particularly in the food industry, where the company says consumers are increasingly drawn to products that promise environmental responsibility.

This trend has sparked a significant shift towards paper-based packaging, driven by both market forces and regulatory imperatives, Stadler says, citing research that says the global paper packaging market is expected to reach $97.6 billion in Europe and $75.6 billion in North America this year and is projected to grow at compound annual growth rates of 4.8 percent and 3.9 percent, respectively, by 2030.

The food industry is at the forefront of this shift, with liquid cartons becoming one of the fastest-growing packaging types, fueled by consumer preference and sustainability goals," Stadler says. "However, the promise of paper packaging is not without its challenges, particularly in the realm of recycling."

Despite the rapid adoption of paper solutions, a considerable amount of paper, especially from mixed material streams, remains unrecycled, according to Stadler. The company cites a study revealing that in Germany, disposed lightweight packaging alone holds the potential to supply around 100,000 tons of "high-quality paper" annually, a resource it says remains "largely untapped due to several persistent challenges."

The EnEWA project, a collaborative effort involving Stadler, academic institutions and other industry leaders, has made significant strides in demonstrating the technical feasibility of recycling paper from mixed materials.

The EnEWA project was started in December 2021 and concluded in November 2024.

Members involved in the project—Universität Siegen, RWTH Aachen University, Leipa Group, Propakma, Tomra and Stadler—were tasked with developing a solution for recovering and recycling paper from the lightweight packaging, residual waste and commercial waste streams. The objectives were to increase recycling rates in paper production and reduce primary energy requirements and CO₂ emissions, as well as achieve an overall recovered paper return rate of 90 percent, including both separate paper collection and special collection systems.

The project also examined what can be done to create the conditions for maximizing the amount of paper returned to the recycling loop, which included discussions with German and European Union regulatory authorities with recommendations for updating waste management guidelines to improve the waste streams feeding the sorting process; communication campaigns aimed at raising awareness among consumers about the correct separation of their household waste; and collaboration with producers packaging design for recycling.

"Yet, the path to unlocking this potential is obstructed by regulatory constraints that must be addressed,” Stadler says.

The rising challenge of paper-based packaging

According to Stadler, the food industry is witnessing a remarkable shift towards paper packaging, driven by both environmental concerns and consumer demand.

"Companies are heavily investing in sustainable paper solutions,” the company says, citing innovations such as Pulpex’s paper bottles made from sustainably sourced wood pulp or Mondi’s paper-based pouch for liquids.

"Despite these advancements, recycling paper, particularly from composite packaging, remains a complex issue,” Stadler says.

Composite packaging, often used in food products, combines multiple layers of materials like paper, plastic and aluminum. These layers often are difficult to separate, making the recycling process energy-intensive and prone to contamination, Stadler says, noting some new composite packages can be confusing for consumers, as they may appear to be entirely made of paper but contain layers of other materials.

"While technological advancements have shown promise, the regulatory environment poses significant hurdles,” the company says.

The regulatory hurdle

Though approaches vary, Stadler says the regulatory landscape is designed to ensure the safety and quality of recycled materials used in food-contact applications.

EU regulations are prescriptive, the company notes, requiring detailed testing, documentation and often premarket authorization, “reflecting a precautionary approach to ensure consumer safety.”

Germany's BfR Recommendation XXXVI on paper and board for food contact, although officially a guideline, imposes criteria to minimize contamination risks, effectively restricting the use of recycled paper from mixed material streams for food-contact applications, influencing industry practices and contractual agreements.

The recommendation expands the number of sizing agents, retention agents, preservatives by including sodium benzoate, wet-strength agents by including polyvinyl alcohol, surface-refining agents and coating agents. It also strengthens the limit values of DEHP, DBP and DIBP phthalates for the use of recycled fibers as raw materials for paper production.

Regulations in other EU countries, such as Italy and Spain, are less prescriptive but still demand a high level of scrutiny on the sources of recycled fibers, Stadler says, posing challenges for using paper from mixed material streams in food packaging, “reflecting a broader European commitment to maintaining safety in recycled materials.”

Scandinavian nations comply with EU regulations while adding national guidelines to address specific regional concerns, which Stadler says ensures “high consumer safety.”

North American regulations however, focus more on general safety and good manufacturing practices, allowing more flexibility but placing greater responsibility on manufacturers to ensure compliance, according to Stadler.

"The EnEWA project has shown that with the right technological adjustments, such as improved sorting and sanitization processes, high-quality paper can be recycled from mixed waste streams,” Stadler product engineer Annika Ludes says. “However, to fully realize this potential, changes in the regulatory landscape are essential. Amendments to guidelines like the BfR Recommendation XXXVI could pave the way for more sustainable use of recycled paper in the food industry.”

The EnEWA project's contributions

Stadler says the EnEWA project has provided “compelling evidence” that recycling paper from mixed materials is technically feasible, noting the project demonstrated that, through innovative sorting technologies and adapted processes with dry-mechanical sorting, wet processing and sanitization, secondary fibers could be obtained and used in paper production without significant contamination issues.

Special sorting technologies, like near-infrared (NIR) sensors, were optimized to identify and separate composites. Additionally, Stadler says processes like hot dispersion under overpressure proved successful in reducing microbiological contamination.

The EnEWA project also has engaged with regulatory authorities, advocating for updates to waste management guidelines and amendments to what it deems “restrictive regulations.” It has developed recommendations towards a more flexible regulatory approach, Stadler says, especially for applications outside the food sector or for dry food packaging, backed by scientific data from worst-case scenario experiments.

The project also has held workshops involving representatives from stakeholders, including the packaging industry, sorting facility operators and paper recyclers.

The future of paper recycling

While the EnEWA project concluded in November 2024, Stadler says its “legacy” continues.

The company, now an associated partner in the SPaRe project, is working to further enhance the energy efficiency of paper recycling. The initiative aims to optimize the utilization of residual materials in paper production, which Stadler says potentially could save 1 TWh of energy annually—equivalent to 1.6 percent of the annual energy consumption of the paper industry—and reduce greenhouse gas emissions by approximately 350,000 tons of CO₂ equivalents per year.

"The EnEWA project has put the spotlight on the untapped potential of paper recycling, showing that the technology exists to recycle significant amounts of paper from mixed waste,” Stadler says. “However, unlocking this potential requires a concerted effort to overcome regulatory barriers and improve waste management practices.

"By addressing these challenges, we can turn what is currently a lost resource into a cornerstone of sustainable packaging, driving the industry towards a more circular and environmentally friendly future.”