Global plastic governance approaches and policy pathways for strengthening South Africa's circular plastics economy

Abstract

Plastic pollution has intensified into a major global environmental crisis, with single-use plastics (SUPs) and microplastics accumulating across terrestrial, freshwater, and marine systems. Although many countries have adopted bans, levies, and Extended Producer Responsibility (EPR) schemes, their effectiveness varies widely due to differences in governance capacity, enforcement, and socio-economic context. South Africa faces escalating plastic waste generation, weak municipal implementation, and limited regulation of microplastics, despite possessing a comprehensive legislative framework under the National Environmental Management: Waste Act and the National Waste Management Strategy. Addressing this gap between policy ambition and practical outcomes requires a clearer understanding of the policy instruments that have succeeded elsewhere. This article undertakes a comparative analysis of two contrasting but globally successful models, Rwanda and Germany, situated within a broader global benchmarking of plastic policy instruments to extract policy lessons relevant to South Africa. Rwanda demonstrates how strict bans, civic mobilisation through Umuganda, and strong enforcement can drive behavioural change in low-income contexts. Germany, by contrast, exemplifies an advanced circular economy model built on deposit-return schemes (DRS), eco-modulated EPR fees, and extensive recycling infrastructure. Drawing on secondary literature, legal instruments, and international benchmarks, the article identifies key principles applicable to South Africa: aligning regulatory bans with public education, ring-fencing EPR and levy revenues, strengthening municipal capacity, and formally integrating informal waste pickers into the value chain. The analysis concludes that while no single model is universally transferable, Rwanda and Germany offer foundational insights for designing just and circular plastic governance frameworks tailored to South Africa's socio-economic and institutional realities.