Oregon State Senate Bill 582A (2021) - (Amended)

Oregon State Senate Bill 582 (2021) (SB582)
Version 2
Oregon State Senate Bill 582A (2021) (SB582A)
Version 3
Oregon State Senate Bill 582B (2021) (SB582B)


Oregon State Senate Bill 582 was introduced at the beginning of the 2021 Regular Session. This bill details the development of a producer responsibility program for packaging, food serviceware, and printing and writing paper. Under this program, producers are required to implement a producer responsibility plan, either individually or as a producer responsibility organization (PRO). The bill directs the Department of Environmental Quality to establish a statewide collection list for recyclable materials.

All Packaging Types

Packaging is defined as materials used for the containment or protection of products. It includes paper, plastic, glass or metal, or a mixture. Single-use bags are included but not limited to shopping bags. Nondurable materials used in storage, shipping, or moving, such as packing materials, moving boxes, file boxes, and folders are also included. However, specialty packaging items only used in industrial or manufacturing processes are excluded.

Food serviceware includes paper or plastic plates, wraps, cups, bowls, pizza boxes, cutlery, straws, lids, bags, aluminum foil, or clamshells or similar containers that are generally intended for single-use and sold to a retailer or a dine-in food establishment or a take-out food establishment, regardless of whether the item is used to pre-package food for resale, is filled on-site for food ordered by a customer or is resold as is.

Paper Products

Printing and writing paper includes newspapers, magazines, flyers, brochures, booklets, catalogs, telephone directories, and paper used for copying, writing, or other general use.


Exclusions include:

  1. Beverage containers covered under existing bottle legislation.
  2. Bound books.
  3. Napkins, paper towels, or other paper intended to be used for cleaning or the absorption of liquids.

Other exclusions include:
Rigid pallets, specialty packaging items only used in industrial or manufacturing processes, pallet wrap, refillable propane tanks, packaging related to containers for architectural paint, agricultural items, items used by a nursery, packaging for drugs, and wine and spirit containers subject to existing deposit legislation.


For items sold in packaging at a physical retail location in this state: If the item is sold in packaging under the manufacturer’s own brand then the brand is the producer. If it is sold in packaging that lacks brand identification the producer of the packaging is the person that manufactures the packaged item.


If the item is manufactured by a person other than the brand owner, the producer of the packaging is the person that is the licensee of a brand or trademark under which a packaged item is used in a commercial enterprise, sold, offered for sale, or distributed in or into this state, whether or not the trademark is registered in this state.


If there is no brand or licensee, the producer of the packaging is the person that imports the packaged item into the United States for use in a commercial enterprise that sells, offers for sale, or distributes the item in the state.

Small Businesses

A small business qualifies for exclusion if it has a revenue of less than $1 million for the organization’s most recent fiscal year, or sold less than one metric ton of covered products in or into the state in the most recent calendar year.

A small business is also excluded if they are a manufacturer of a beverage sold in a beverage container under the state bottle bill or sold less than five metric tons of covered products, including secondary and tertiary packaging for beverage containers, for use in the state in the most recent calendar year, or lastly, is a business that sells prepared food and is not a producer of food serviceware.


Public bodies are excluded.


Nonprofit organizations are excluded.


Retailers that operate a single retail sales establishment, have no online sales, and are not supplied or operated as part of a franchise or a chain are excluded.

Collective Producer Responsibility

Each producer must register with and be a member of a PRO that administers a producer responsibility program.

Financial and Partial Operational

A PRO must provide for the collection and responsible recycling of covered products identified by the state.

A PRO shall, upon request, fund in advance or reimburse, the eligible expenses of a local government or the local government’s service provider for eligible costs as provided in this section.

Operational Costs

The cost coverage must support the collection and recycling of covered products that are included on the uniform statewide collection list or as necessary to meet the statewide plastic recycling goal.

Education and Outreach

A PRO, in consultation with the Oregon Recycling System Advisory Council, shall develop educational resources and promotional campaigns to promote the uniform statewide collection list.

Litter Prevention

The cost coverage must include litter and marine debris cleanup and prevention programs.

Market Development

The cost coverage must ensure that covered products collected for recycling will be transferred to responsible end markets.

Infrastructure Improvements

The program plan must describe how PRO fees will be distributed to processors to improve infrastructure.


The program must establish material-specific base fee rates for all covered products sold or distributed in or into this state by members of the PRO.


In addition to the base fees, a PRO's membership fee schedule must incentivize producers to continually reduce the environmental and human health impacts of covered products by offering fee adjustments to producers that make or have made changes to the ways in which they produce, use and market covered products.

Recycled Content

A producer responsibility organization’s membership fee schedule must incentivize the post-consumer content of the material (if the use of post-consumer content in the covered product is not prohibited by federal law).

Life Cycle Emissions

A producer responsibility organization’s membership fee schedule must incentivize life cycle environmental impacts, as demonstrated by an evaluation (LCA).


A producer responsibility organization’s membership fee schedule must incentivize the product-to-package ratio.

Material Specific Targets

The bill sets the following statewide recycling rate goals for plastic:

  1. At least 25% by 2028 and until 2039.
  2. At least 50% by 2040 and until 2049.
  3. At least 70% by 2050 and each subsequent year, unless modified by the State.
Adjustable Targets

On or after January 1, 2038, the statewide plastic recycling goal may be adjusted after consideration of environmental, technical and economic conditions. An adjustment may not change the goal to less than 35% or more than 70%.

Maximizes Use of Existing Infrastructure

The program must maximize the use of existing infrastructure.

Convenience Standards

A producer responsibility organization shall work with local governments, collection service providers, and other affected parties to provide recycling service to multifamily properties that do not receive recycling service or that do not meet standards for adequate recycling service.

Infrastructure Improvements

The program plan must describe how PRO fees will be distributed to processors to improve infrastructure.

Deadline to Submit Plan

PROs must submit their first program plan to the state by March 31, 2024.

Plan Review and Approval

The state shall approve, approve with conditions or reject a plan submitted, or an amendment to a plan, no later than 120 days after the date on which the department receives the plan or plan amendment from the PRO.

Enforcement and Monitoring

The state has the power to enter and inspect, at any reasonable time, any public or private property, premises or place for the purpose of investigating either an actual or suspected violation of this bill. A PRO must retain records for no less than 5 years and must make them available to the department.

Reporting Requirements

No later than July 1 of each year, a PRO must submit an annual report on the development, implementation and operation of the producer responsibility program to the state for approval.

Community Outreach

Educational resources and campaigns must be culturally responsive to diverse audiences across the state, including people who speak languages other than English and people with disabilities. The resources must be printed or produced in languages other than English and accessed easily and at no cost to local governments and users of the recycling system.

Socially Just Management

The state, local governments, and the Oregon Recycling System Advisory Council, shall conduct a study of equity in Oregon’s recycling system to determine conditions and make recommendations, including goals to achieve continuous improvement. The department shall provide public involvement opportunities for underserved communities during the study.

End-of-Life Instructions

The program plan requires PRO-developed resources and materials to include how to properly prepare materials for recycling, education on the importance of not placing contaminants in commingled recycling collection, and container signs or decals.

Litter Prevention Campaigns

No later than July 1, 2028, a PRO shall establish and implement a program to clean up and prevent litter and marine debris. A PRO’s litter prevention program shall provide grants or direct payments to eligible entities to carry out litter and marine debris prevention, cleanup, and research.

Program Awareness

The program plan must include a communications program for responding to questions involving the uniform statewide collection list, recycling services, and outreach to local governments to ensure information is accurate and consistent across the state.

Required Consultation During Plan Development

The Oregon Recycling System Advisory Council (ORSAC) will advise the state and PRO(s) on issues related to the implementation of the legislation like review producer responsibility program plans, plan amendments and program reports, make recommendations to state and the PRO(s) related to the establishment and maintenance of the list of specifically identified materials.

Stakeholder Advisory Committee

This bill establishes a stakeholder group called The Oregon Recycling System Advisory Council (ORSAC). The council consists of 17 members appointed by the Governor.

Defines "Recycling"

Mechanical recycling means a form of recycling that does not change the basic molecular structure of the material being recycled.


The Environmental Quality Commission shall adopt and periodically revise a contamination management fee to be paid by PRO(s) to commingled recycling processing facilities to compensate the facilities for the costs of removing and disposing of covered products that are contaminants.

Material Exemption

A producer may demonstrate to the department that a material is exempt from the requirements for a covered product if the material is collected through a recycling collection service not provided under the opportunity to recycle, does not undergo separation from other materials at a commingled recycling processing facility, and is recycled at a responsible end market. If only a portion of the material sold in or into this state by a producer meets the criteria, the portion that meets the criteria is exempt and the portion that does not meet the criteria is a covered product.

Processor Commodity Risk Fee

The Environmental Quality Commission shall adopt and periodically revise a processor commodity risk fee to be paid by PRO(s) to commingled recycling processing facilities to ensure that producers share in the costs of fully processing commingled recyclables that are covered products and to allow local governments to reduce the financial impacts on ratepayers. The processor commodity risk fee shall be based on the eligible processing costs of facilities less the average commodity value of recyclable materials processed by facilities.