NERC Releases Final Update on Increased Capacity to Use Recycled Paper

March 13, 2024

The Northeast Recycling Council's (NERC) has published the final update to its Recycled Paper Capacity Increases in North America report. This update reflects continuing progress to use more recycled paper in North America. Twenty-three of the 25 projects in the report are now completed. One will open this spring and another in 2026. Download the most recent report.


This update includes projects at 25 mills, of which 23 have been completed. The 23 completed projects include five new mills. When NERC first published this list in November 2018, it included new capacity at 17 mills, of which three projects were completed. 


The list of additional recycled paper capacity includes new paper mills, expansion of existing capacity at packaging mills, and conversions of printed paper machines at existing mills to produce packaging paper (e.g. from newsprint to packaging). The list also includes several mills that are producing recycled fiber pulp for export and one mill designed to use food contaminated paper from commercial sources. 


The majority of new capacity increases in this list are for mills producing linerboard and corrugated medium. They will use old corrugated containers (OCC), often called “cardboard boxes”, as their feedstock. They are unlikely to use mixed paper, whether derived from residential or commercial recycling programs, unless their stock preparation system allows for its use. However, up to half of these mills plan to use mixed paper, although it is likely to be a minor input. Several mills plan to consume significant amounts of residential mixed paper (RMP) which is collected at curbsides throughout the country. Because the price for mixed paper tracks that of OCC, increased capacity and market value for OCC normally increases the price paid for RMP.


These 25 projects have the potential to use more than 8 million tons of OCC and RMP. However, less efficient, more costly capacity is often closed when new capacity comes on-line. This is already happening. While we do not know yet what the total new capacity will be, we know this expansion in using recycled paper is unprecedented.


NERC has been reporting on national investment in paper recycling infrastructure since November 2018. The report has been updated five times.



For further information, contact Megan Fontes, NERC Executive Director, or Chaz Miller, Chair of the NERC-NEWMOA Regional Recycling Markets Committee, megan@nerc.org or chazmiller9@gmail.com.

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August 29, 2025
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By Recycled Materials Association July 29, 2025
The Northeast Recycling Council (NERC) has opened the 2025 Emerging Professionals (EP) Program . Now, in its third year, the program provides professionals who are new to the field of recycling, sustainability, and environmental stewardship with discounted access to NERC’s Conference and Foundations Course, sponsored by their employer organization. EPs gain valuable connections with seasoned industry professionals and peers while engaging in discussions on current trends, challenges, and innovations shaping the industry. This program is designed for those with three or fewer years of experience. “This year, EPs also receive a discount to our Foundations of Sustainable Materials Management course (a live, instructor-led training) developed to provide the key building blocks for understanding the industry,” said Mariane Medeiros, Senior Project Manager at NERC. “It’s a great way to close the loop: gaining both a strong technical foundation and real-world connections in one experience.” Read and Learn More.
By Chaz Miller June 30, 2025
Recycling coordinators know that some people and locations are stubbornly indifferent to recycling. COVID has ruptured civic values and behavior. Creating a recycling culture is harder than ever. Producers know how to sell their products. Now they need to learn how to sell recycling. On July 1, Oregon’s packaging and paper extended producer responsibility (EPR) program begins operating. This will be a first in our country. “Producers”, instead of local governments or private citizens, will be paying to recycle packages and paper products. Colorado’s program begins operating early in 2026. For years we have heard the theory of how packaging EPR will work. At last, we will get results. Five other states also have laws. Their programs should all be operating by 2030. None of the state laws have identical requirements. The Circular Action Alliance, the “producer responsibility organization” responsible for managing the program in most of those states, knows it has a lot on its plate. EPR laws are not new to the U.S. Thirty-two states already have laws that cover a wide variety of products such as electronics, paint, mattresses, batteries, etc. Those laws are relatively simple. Most cover one product. The producer group is a small number of companies. Goals and programs are focused and narrow. They are a mixed bag of success and failure. Packaging EPR is far more complex. The number of covered products is way higher. Thousands of companies are paying for these programs. Goals are challenging. Some are impossible to meet. In addition, local governments treat recycling as a normal service. Their residents will still call them if their recyclables aren’t picked up. It probably hasn’t helped that advocates tout EPR as the solution for recycling’s problems. We are told we will have more collection and better processing with higher recycling rates. Markets will improve and even stabilize. Some of this will happen, but not all. Collection and processing should go smoothly in Oregon. The state has high expectations for recycling. I have no doubt recycling will increase. Collection programs will blanket the state, giving more households the opportunity to recycle. I’m not sure, though, how much of an increase we will see. Recycling coordinators know that some people and locations are stubbornly indifferent to recycling. COVID has ruptured civic values and behavior. Creating a recycling culture is harder than ever. Producers know how to sell their products. Now they need to learn how to sell recycling. Another challenge is the “responsible end market” requirements. You’ve probably seen pictures of overseas dumps created by unscrupulous or just naïve plastics “recyclers”. In response, Oregon and the other states are requiring sellers and end markets to prove they are “responsible”. They must provide information about who and where they are, how they operate, how much was actually recycled, and more. Recycling end markets pushed back. Paper and metals recyclers argue they shouldn’t be covered. They don’t cause those problems. As for plastics, the general manager of one of America’s largest plastics recycling companies said his company now spends time and money gathering data and filling out forms to prove they’re “responsible”. His virgin resin competitors don’t have to. Ironically, we now import more plastics for recycling than we export. Maybe those countries should impose similar requirements on their plastics recyclers. Colorado faces unique problems. The mountain state is large. Its population is concentrated on the I-25 corridor running north and south through Denver with low population density elsewhere. Recycling collection and processing is limited as are end markets. To make matters worse, slightly more than half of its households use “subscription” services for waste and recycling collection. Those services are funded by the households, not by taxpayers. EPR doesn’t have this experience in other countries. Colorado gets to blaze this trail. The second state to go live poses substantive challenges for producers. The good news for both states? Local governments that pay for recycling collection and processing will see most of those costs go away. Consumers are unlikely to see prices rise, for now. National companies will simply spread their costs among all 50 states. Local and regional producers, unfortunately, don’t have that advantage. As for improved markets, remember that recyclables are and always will be commodities subject to the ups and downs of the economy. I don’t see substantive changes in recycling markets unless the producer group’s members try to manipulate markets to their own advantage. 2025 saw new laws and changes to existing laws. Maryland and Washington became the sixth and seventh packaging EPR states. At the same time, California is rewriting its regulations and Maine significantly revised its law. Some of these changes narrowed EPR’s scope to the dismay of advocates. I’m a member of Maryland’s EPR Advisory Council. We’ve been meeting for a year, discussing the Needs Assessment and now our new law. We have our own unique set of challenges. We also have a big advantage. We can learn from Oregon’s and Colorado’s experiences. Tune in next year to learn how we are progressing. Read on Waste360.