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Title page 1
Contents 4
Members 3
List of recommendations 9
Abbreviations and Terminology 14
Chair's Foreword 17
Chapter 1. Introduction and background issues 19
Referral 19
Conduct of the inquiry 19
Report Structure 20
Acknowledgements 21
Waste in Australia 21
Plastics and packaging 23
Waste prevention 24
Recycling and Waste Reduction Act 26
Review of the RAWR Act 27
Jurisdictional responsibilities 28
Role of state and territory governments 29
Role of local governments 29
International obligations 29
Parliamentary and other inquiries 32
Senate inquiry into waste and recycling (2018) 34
Senate inquiry into the Recycling and Waste Reduction Bill 2020 and related bills (2020) 36
Senate inquiry into the Product Stewardship Amendment (Packaging and Plastics) Bill (2021) 37
House of Representatives report on plastic pollution in oceans and waterways (2024) 38
'Waste' vs 'resource' 39
The need for better data 41
Current sources of data 41
Issues with existing data 43
Calls for improved data 44
Chapter 2. Current waste management and recycling practices in Australia 47
National waste policies and action plans 47
Progress against the 2019 Action Plan targets 48
Stakeholder views on the 2019 Action Plan 50
2024 Action Plan 52
Regulatory fragmentation 53
Australian Government efforts to support regulatory harmonisation 56
Calls for a national framework 58
Fragmentation in practice: kerbside collection 60
Calls for action 64
Chapter 3. Transitioning to a circular economy 66
Transitioning to a circular economy 66
International agreements 68
Australia's approach to the circular economy 69
Circular Economy Ministerial Advisory Group 70
Australia's Circular Economy Framework 78
Productivity Commission circular economy inquiry 80
Support for a circular economy 83
Challenges to achieving circularity 85
International examples of the circular economy 87
The importance of financial incentives 89
Landfill levies 90
UK Plastic Packaging Tax 92
Chapter 4. Product stewardship schemes 95
Product stewardship schemes 95
Voluntary vs mandatory product stewardship 98
The limits of voluntary schemes 98
Calls for government regulation 100
Extended producer responsibility schemes 105
Support for mandatory extended producer responsibility schemes 106
NSW product stewardship law reform 108
Minister's product stewardship priority list 110
Specific product stewardship schemes 112
Mandatory Product Stewardship for Oil Scheme 112
Tyres 113
Clothing 115
Battery stewardship 116
State-based battery stewardship 117
NSW regulation 119
The need for national leadership 120
Unprocessed scrap metal 123
Chapter 5. The need for stronger packaging reform 126
Packaging framework 127
Australian Packaging Covenant 128
Historical packaging covenants 129
2025 National Packaging Targets 131
APCO's 2030 Strategic Plan 132
Packaging reform 134
Latest packaging reform developments 134
New packaging regulatory scheme 136
Australian recycling and labelling standards 137
ReMade in Australia 138
The need for mandatory packaging regulations 139
Packaging design regulation 140
Mandating recycled content 143
Utilising government procurement rules 146
A traceability framework 149
National Framework for Recycled Content Traceability 149
The need for mandatory traceability 150
Calls to follow international examples 151
Chapter 6. Problematic waste streams 155
Australian Plastics Flows and Fates Study 155
Recycled content of plastic products 156
The unique issues with plastics 156
Environmental and human health impacts 157
National Roadmap: Harmonising action on problematic and unnecessary plastics 159
Solving Plastic Waste Cooperative Research Centre 160
The National Plastics Recycling Scheme for soft plastics 161
Soft Plastics Taskforce 162
Single-use plastics 163
Approaches to certain types of plastics 164
State-based plastic bans 164
Bioplastics 165
Waste-to-energy 166
Contaminants 168
Food and organics 170
Chapter 7. Waste export regulations and the Recycling Modernisation Fund 172
Exporting waste 172
Waste export regulations 173
The inclusion of paper and cardboard 175
Application processing times 176
Export licensing fees 177
Export licence variations 178
Consideration of an export levy 179
Disallowance of fee regulations 180
Issues raised with waste export regulations 181
Onerous licensing and exemption processes 184
Environmental impact of export regulations 185
The need for export regulations 186
Reclassification of materials 188
Import conditions 189
Recycling Modernisation Fund 191
Criticisms of the RMF 193
Improve transparency in RMF outcomes 194
Chapter 8. Committee views and recommendations 196
An industry still in crisis 196
Implementation of the circular economy 197
Productivity Commission inquiry 198
National harmonisation and regulation 199
Mandatory product stewardship schemes 201
Packaging 202
Stewardship of batteries 204
Extended producer responsibility schemes 206
Plastics packaging 206
Global plastics pollution treaty 206
Soft plastics 207
Climate and waste 208
Publication of and access to data 209
Recycling Modernisation Fund 210
Kerbside recycling 211
Export regulations 212
Imports 213
RAWR Act review 214
Utilising government procurement power 214
Coalition Senators' Dissenting Report 216
Labor Senators' Dissenting Report 220
Appendix 1. Submissions and additional information 223
Appendix 2. Public hearings and witnesses 227
Tables 49
Table 2.1. Progress towards 2019 National Waste Policy Action Plan targets (as of April 2024) 49
Table 6.1. Summary of the 2025 National Packaging Targets and progress to 2022-23 132
Table 7.1. Average time (in weeks) for export licence applications 176
Table 7.2. Fee Schedule-from 1 July 2024 to 20 November 2024 178
Table 7.3. Co-funding breakdown of RMF projects by state and territory 192
Table 7.4. Annual volumes expected to be processed by RMF projects 192
Figures 22
Figure 1.1. Waste generation and management by waste category, Australia, 2022-23 22
Figure 1.2. The waste hierarchy framework, with examples of waste prevention actions 25
Figure 2.1. Jurisdictional differences between regulatory approaches 61
Figure 3.1. A circular economy 67
Figure 3.2. Supporting recommendations-CEMAG final report 76
Figure 3.3. Australia's Circular Economy Framework at a glance 79
Figure 3.4. Six priority areas explored in the Productivity Commission's interim report 81
Figure 5.1/Figure 5.2. Australasian Recycling Label system 138
Figure 5.2/Figure 5.3. Schedule for the Australian Government Environmentally Sustainable Procurement Policy (categories and thresholds) 147
Boxes 87
Box 3.1. EU Ecodesign for Sustainable Products Regulation 87
Box 4.1. Container deposit schemes 101
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