Theory Meets Reality: Packaging EPR Goes Live July 1

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.



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A new report on glass recycling in the Northeast shows that while a few front-running states have unlocked high recovery rates, there is plenty of room for the rest of the region to grow. To replicate the top achievements and scale up, the region must invest heavily in collection systems, processing infrastructure, and end-market development, according to the Northeast Recycling Council (NERC) study. A new report on glass recycling in the Northeast shows that while a few front-running states have unlocked high recovery rates, there is plenty of room for the rest of the region to grow. To replicate the top achievements and scale up, the region must invest heavily in collection systems, processing infrastructure, and end-market development, according to the Northeast Recycling Council (NERC) study. Read on to discover which states are leading the pack, where they excel, which regions are lagging, and what key industry and government insiders say about this evolving landscape. Some key findings: Vermont and Connecticut recycled the most glass containers relative to total waste generated. Connecticut led the region in per capita glass collection. New York State collected the greatest total tonnage of glass containers for recycling. Five Northeast states operate deposit return systems that include glass beverage containers. All Northeast states offer residential curbside and/or drop-off recycling programs. Vermont and Connecticut's standout glass container recovery rates are about 79.9% and 77.0%, respectively, with a common denominator being that they both operate deposit return systems (DRS) for these containers. They join a larger group whose recycling success is largely attributed to DRS programs. The Glass Packaging Institute reports that these states recover up to triple the glass captured in commingled streams, yielding more clean cullet for new containers than can be used. New York ranks as the top glass recycler with over 281,000 tons annually, followed by New Jersey at about 197,000 tons. With a population of nearly 8.6 million, New York City is the state’s largest municipality by far and plays a heavy-lifting role in driving up those statewide recovery numbers. Joshua Goodman, deputy commissioner, NYC Department of Sanitation (DSNY), says the key to healthy citywide participation has been keeping recycling simple and universal. “We pick up from every residence in the city – high-rise, low-rise, and single-family homes – and no one has to guess whether a particular piece of glass is recyclable – we take it all,” Goodman says. Building on residential success, DSNY is exploring targeting glass from construction waste next, a key strategy outlined in the draft 2026 Solid Waste Management Plan. While every Northeast state offers curbside and/or drop-off glass collection, their systems vary widely. 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The organization is focusing on multiple areas with ambitions to strengthen the system. “Right now, we're working on developing resources and tools to support actors across the value chain in removing inefficient redundancies in collection and processing, developing a cleaner stream of recycled glass for long-term economic benefits, and identifying existing or emerging end markets for specific supply streams,” Schulz-Fontes says. New England holds the greatest promise for growth. Between municipal collections and bottle bills, the region generates massive volumes of recyclable glass. “We have made great strides in alternative end markets such as glass pozzolan [a sustainable replacement for cement in concrete]. “But what’s missing is dedicated processing facilities that clean and sort glass to achieve the necessary quality for new bottles. Historically, New England had these facilities. But, today, curbside glass often must be hauled hundreds of miles out of state just to reach a beneficiation plant,” Schulz-Fontes says, adding that re-establishing New England’s processing capacity will be a key lever to scaling glass recycling, regionwide. The idea is to eliminate long-distance transport costs, slash emissions, and keep the full lifecycle of bottle recycling local. Housatonic Resources Recovery Authority (HRRA) is working to take its Connecticut-based corner of New England further. The HRRA runs a regional glass-separation recycling program across 14 municipalities, serving roughly 265,000 residents. Since the initiative's 2019 launch, the authority has collected and sent over 2,000 tons of source-separated glass on for processing. Jennifer A. Heaton-Jones, executive director, Housatonic Resources Recovery Authority, points to another program plus. The operation has improved the quality of the whole mixed recycling stream by reducing glass contamination in paper, cardboard, and other recyclables. This helps increase the value of recyclable commodities and supports a more efficient recycling system overall, she says. Leadership credits the program's success largely to transparency and resident education. “We focused on helping residents understand what happens to glass when it is placed in a mixed recycling bin and why separating it creates better environmental and economic outcomes. “Once they learned that much of the glass collected through mixed recycling was not being recycled back into new bottles and jars due to contamination issues, they were very willing to change their behavior,” Heaton-Jones observes. 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But closing the loop will require a dual approach: building robust, updated infrastructure and aggressively driving the long-term market demand to sustain it. Read on Waste360.