When did you become aware that single use plastic bags were a really bad idea? Or rather, when did you act on that and first start taking your own bags to the supermarket? I can’t remember when I made that individual lifestyle change – more than 10 years ago, I think, but less than 15. In fact it may be less, probably the action was strongly influenced by the free sturdy bags offered at the launch of the scan-it-yourself service at my local supermarket.
However long ago we first started doing this, it has become the norm for most people – a study concluded during 2016 shows that on average 9 out of 10 people now regularly take their own bags to the supermarket (Study by researchers at Cardiff University), which explains why it has been estimated that 6 billion fewer plastic bags have been issued in the UK in 2016 compared to 2014.
Campaigns about plastic bag usage started picking up momentum around 2008. The major supermarkets made voluntary commitments to reduce usage, and achieved a 26% reduction in 2008 compared to 2007 (see letsrecycle.com)/. The government launched “Get a bag habit” in 2009 on the back of this. Not, to me, a memorable campaign. Nor an effective one – despite the promising start in 2008, over the next four years, plastic bag usage started to increase again, and by 2011 over 8 billion bags were issued in the UK.
So, clearly time for a new campaign – and “Break the Bag Habit” was launched by a consortium of Surfers Against Sewage, the Campaign to Protect Rural England, the Marine Conservation Society and Keep Britain Tidy. But this time the campaign had a different aim – its target was to persuade the government to introduce a levy on plastic bags. You would have thought this was pushing against an open door – after all, Ireland had introduced a levy as far back as 2002, and usage had dropped dramatically as a result. The 2008 Climate Change Act included a provision allowing the government to introduce a charge, so legislation already existed. Negative voices persisted though – plastic bags were highly visible, but were they really such a significant part of the litter problem? Didn’t it mean that consumers would buy thicker plastic liners for their bins instead of using the thinner carrier bags, thereby increasing the amount of plastic sent to landfill? Or switch to paper bags, less environmentally friendly for single use compared to reusing plastic ones (www.allaboutbags.ca/irelandandlitter.html)?
However, slowly opposition to the levy was overcome – Wales introduced the charge in 2011, Scotland followed in 2014, and England finally adopted the levy in October 2015. Which explains the dramatic drop in usage already referred to. And as the study referred to above shows, it has become the norm for people to take their own bags. The levy itself, at 5p per bag, is not in itself a deterrent, but what it has done is announce that it is not ‘acceptable’ behaviour. Even my CEO, chatting in the lift, announced with pride that he takes his own bags to the supermarket. It has become what people do.
So it’s interesting to reflect what this means about communication campaigns. An initial success, but reversion back to previous behaviours over time, reflecting the need for campaigns to step up in order to maintain momentum. Much more success when the target was getting the government to do something – there was a definite target to hit rather than a slow burning continuous effort to change behaviour. What made the real difference to behaviour was the formal levy – voluntary schemes only got so far, regulation was needed to signpost the necessary change. And the regulation itself was smart – it did not impose a prohibitive penalty, but instead was used to signal that there was a problem and behaviour needed to change. I think this means that communication campaigns therefore need to recognize that to achieve a long term impact, they are only one weapon in the arsenal – if smart, targeted, well designed and well received they can be effective, but for long term change may need to be backed up by other measures.