These FAQs are based on MMSM’s draft Full EPR Transition Plan and related full EPR planning materials. View the draft Transition Plan. or contact MMSM for more information.
Table of Contents
📖Key Definitions
Catchment
A group of nearby communities whose collected recycling is managed through the same post-collection network.
Collection
How recycling is collected from residents (i.e., curbside recycling collection)
Community
A city, town, First Nation, municipality, or provincial park in Manitoba.
Contamination
Items that do not belong in recycling, such as garbage or materials not accepted in the program.
Contamination rate
The percentage of collected recycling, measured by weight, that is made up of items that do not belong in the recycling.
Multi-family dwelling
Buildings with more than 8 residential units (i.e., apartments and condos).
Post-collection
The steps that happen after recycling is collected, such as consolidating, transferring, sorting, processing, and preparing materials to be sent to recycling markets.
Packaging and printed paper (PPP)
Packaging and paper products that are provided to people when they buy, receive, or use products for personal or household purposes. Examples include boxes, cartons, containers, bottles, jars, bags, newspapers, flyers, and other printed paper. These materials are usually made from paper, plastic, metal, glass, or a combination of these materials.
Producer
A business responsible for packaging or printed paper that is supplied to consumers in Manitoba, such as a brand owner, importer, retailer, or distributor.
Recovery rate
The percentage of packaging and printed paper supplied to consumers that is collected through residential recycling.
Residential recycling
The system used to collect packaging and printed paper from residents and prepare those materials for recycling into new products or materials.
Overview: Transition to Full EPR
What is full EPR?
Full extended producer responsibility (EPR) for residential recycling is a policy framework where producers are responsible for the full cost and operation of residential recycling programs.
How will full EPR be implemented?
Under full EPR, MMSM will administer a provincial residential recycling program on behalf of producers and assume full financial and operational responsibility. MMSM has developed a plan to transition from the current shared-cost model to a full EPR model, with input from the provincial government, community governments, residents, and other stakeholders. The Manitoba government is reviewing MMSM’s transition plan to full EPR for residential recycling.
Once approved by the Manitoba government, MMSM will work closely with communities registered in the current program to transition them to the new system. Communities will be able to choose one of two options:
- Program-Led (opt-out):
- MMSM manages collection and contracts service providers
- MMSM is responsible for service delivery and meets MMSM service standards
- Community role is limited to defined local responsibilities (e.g., providing household data)
- Community-Led (opt-in):
- Community delivers collection services as a contractor to MMSM
- Community manages services and meets MMSM service standards
- MMSM provides a financial offer intended to cover residential recycling costs. Communities are responsible for covering any costs beyond that amount
| Responsibility | Community-led (opt-in) | Program-led (opt-out) |
|---|---|---|
| Collection management | Community | MMSM |
| Program funding | MMSM | MMSM |
| Contractor management | Community | MMSM |
| Service delivery | Community | MMSM |
| Post-Collection Management | MMSM | MMSM |
In both options, MMSM funds the system, sets consistent service standards, and manages post collection processing and material marketing. MMSM will work with communities during and after the transition to full EPR.
Transition Timing & Communication
Why is Manitoba planning to transition to full EPR?
Today, communities operate residential recycling programs and MMSM helps pay for part of the cost. Under the proposed full EPR model, MMSM would manage and fully fund residential recycling on behalf of producers. This would reduce the financial and administrative responsibility placed on communities.
The goal is to build a recycling system that is more consistent, easier to understand, and more accountable across Manitoba. The transition is also intended to maintain or improve recycling services for residents, set clearer service standards, improve recycling outcomes over time, and support a more sustainable system.
The transition is also intended to improve environmental outcomes over time by reducing contamination improving recycling performance and supporting a more consistent province-wide approach to how residential materials are collected and managed.
When will communities begin transitioning and what determines the order?
Once the Transition Plan is approved by the province, the transition is expected to take approximately four years: one year for preparation and a three-year implementation period to transition communities registered at the time of transition approval. Communities will transition in phases, not all at once. The timing will depend on catchment design, existing contracts, community readiness, and whether a community chooses a community-led (opt-in) or program-led (opt-out) collection model. MMSM will consider including non-registered communities located near transitioning communities if practical. The sequencing is based on current program participation, community readiness, service area planning, existing services, and the need to maintain reliable recycling service during a complex province-wide transition. MMSM encourages communities that are not currently registered to submit a letter of interest so it can understand their interest, readiness, and service needs.
Can MMSM provide a slide deck that community staff can use to brief their councils?
Yes. Please contact MMSM’s Field Services team to request a council presentation deck. The team is also available to deliver presentations both virtually and in-person to communities.
Financial Impacts, Costs, & Funding
How will the transition impact communities?
One of MMSM’s top priorities is to keep recycling service reliable and make the transition as smooth as possible for residents.
For communities, the biggest change is that MMSM will take on the cost and responsibility for residential recycling. Communities that choose the Community-led approach will continue to manage collection services, with MMSM funding those services under contract.
How are funding offers determined?
Funding offers will be based on individual community factors such a community’s current program, service agreements, cost-monitoring survey data (including operating costs, capital costs, promotion and education, administration, etc.), number of households, frequency of collection, transportation distances, infrastructure requirements, and more.
Why is MMSM’s operating cost projected to increase under full EPR?
Producers currently share the cost of residential recycling with communities. Under full EPR, producers will fully fund and operate residential recycling.
What is the benefit that justifies the cost increase?
The main benefit is that communities will no longer be responsible for paying for residential recycling. MMSM will take on those costs on behalf of producers.
For communities that choose the Program-Led approach, MMSM will also manage the recycling service directly, which can reduce staff time, contract management, reporting, and other administrative work. This may be especially helpful for smaller communities with limited capacity.
The transition is also intended to create a more consistent recycling system across Manitoba, with clearer service standards, better reporting, and more opportunity to improve recycling outcomes over time.
Who will ultimately pay for this increase—producers or consumers?
Producers are responsible for paying the fees that fund the program. MMSM does not charge residents, and businesses cannot add a separate recycling fee at the till. MMSM cannot predict or control how individual businesses manage their operating costs.
How can communities avoid adding costs for taxpayers under the Community-led approach?
Before choosing the Community-led approach, communities should review MMSM’s funding offer, service requirements, and expected costs to confirm they can deliver residential recycling within the funding provided. They should also avoid service changes, capital purchases, or contract commitments that are not covered by the offer. MMSM’s Field Services team is available to discuss options before a decision is made.
Equity, First Nations Participation & Remote Communities
Are First Nations transitioning after municipalities?
No. The plan is to phase in all communities currently registered with MMSM. After the transition, MMSM will work to expand the program to other communities. MMSM began engaging with First Nations in 2021 to register ahead of the transition.
MMSM will continue targeted outreach with First Nations and northern communities, including work with Indigenous Services Canada and Manitoba’s Municipal and Northern Relations department to provide updates, confirm interest, and better understand barriers to participation.
What has MMSM done to engage with First Nations about full EPR?
MMSM began discussions with Chiefs and Councils of First Nations in 2021 while developing the first draft of the transition plan. Three additional First Nations have registered with MMSM’s current program since, and numerous have notified MMSM of their interest in participating under full EPR.
Ongoing outreach and consultations have continued since then, and MMSM is currently working with ISC and MNR on active outreach to confirm or reaffirm interest in full EPR from First Nations that aren’t registered.
Will MMSM include non-road accessible First Nations from the outset?
MMSM will continue its work with the Winter Road Project to fund and coordinate material recovery from remote First Nations during the transition period. First Nations interested in the Winter Road Project can contact MMSM to learn more.
What capital supports exist for remote communities?
MMSM will continue working the Winter Road Project to fund and coordinate the transfer of materials. This doesn’t include capital supports, but MMSM can provide large tote bags for the collection of materials, signage, and educational resources.
How will the plan address scenarios where remote communities require year-round storage for baled materials?
MMSM’s role in the Winter Road Project is supporting the collection and transportation system, including transportation coordination and supplying program materials where applicable. MMSM may consider support for material storage during post-transition program expansion.
In what languages will MMSM’s educational tools and resources be available?
MMSM will work with each community during transition planning to understand local needs and identify appropriate resources, including resources in indigenous languages and other common languages in a community.
Service Delivery, Flexibility, & Local Autonomy
Does the transition consider fee-for-service curbside models (with depot service as the default)?
No. MMSM’s full EPR model is not based on depot service as the default. Residential recycling services will be addressed based on each community’s existing service model and MMSM service standards.
Communities may receive collection services through a community-led (opt-in) or program-led (opt-out) model. Where depot service is part of a community’s recycling program, it will be considered through transition planning and the applicable service agreements.
Can RCTs continue accepting other stewarded materials alongside PPP?
This will depend on the site and the final service arrangements. MMSM’s requirements for RCTs will focus on residential packaging and printed paper.
If a site also collects other stewarded materials, MMSM will work with the service provider and the relevant programs to confirm how those materials will be handled, reported, and paid for.
How will community programs that use both contracted services and public works staff be treated under the community-led (opt-in) and the program led (opt-out) approaches?
MMSM will work with each community to understand its current recycling service model, including any mix of community staff and contracted services. The details will be reviewed during the transition preparation phase. Please contact MMSM’s Field Services team to learn more.
Will communities currently providing their own recycling services continue to be recognized as service providers under the new framework?
Yes. Communities that want to continue managing residential recycling collection may choose the Community-led (opt-in) option. MMSM will provide a funding offer to each community, and communities that accept it will enter a service provider contract with MMSM. Communities can choose to provide services with community staff or hire a collection service provider. Please see the Financial Impacts, Costs, & Funding section for more details on funding.
How will MMSM ensure service flexibility to accommodate the operational realities of rural and remote communities?
MMSM will work with communities to understand local service needs when planning their transition. This includes geography, existing infrastructure, transportation distances, seasonal population changes, current collection arrangements, and more.
Service details will be addressed in the applicable agreements and service standards. The goal is to maintain reliable residential recycling service while allowing for practical local considerations, including rural and remote operating conditions.
In communities that choose the Program-led (opt-out) option, how will MMSM maintain service quality for residents?
MMSM will ensure that reliable and consistent service standards are met and work with the community during transition planning to understand current collection schedules, service levels, and local needs. Under the Program-led model, MMSM will contract a collection service provider. That provider must meet the defined service standards, including requirements for reliable collection and handling service issues such as missed pickups or overflowing bins. Service quality will be managed through MMSM’s contracts, reporting requirements, and ongoing oversight.
Will Program-led (opt-out) communities retain curbside cart services?
Yes. MMSM will work with each community during transition planning to understand existing collection services, including curbside cart service.
Under the Program-led (opt-out) model, MMSM will contract directly for collection services and will aim to maintain reliable residential recycling service with no disruption to residents. Final service details will be confirmed through transition planning and the applicable service standards.
Will MMSM consider the needs of communities that provide seasonal curbside composting services when designing the transition?
MMSM’s role is limited to residential recycling for packaging and printed paper. The transition to full EPR will not affect other services, such as composting or garbage collection.
Will multi-family dwellings still receive recycling service?
All multi-family dwellings serviced by communities at the time of transition will be included under full EPR.
Will MMSM involve communities in planning promotions and educational resources to support local needs?
Yes. Education and awareness are key parts of an effective recycling program. MMSM will work closely with communities to support clear, relevant local communication throughout the transition.
Infrastructure, Logistics & System Efficiency
Will MMSM allow cross province hauling where it improves efficiency?
This has not been determined. MMSM will design the post-collection system to move and process materials in a way that reduces unnecessary transportation, handling, costs, energy use, and emissions while maintaining reliable recycling services.
Will MMSM cover long-haul transport costs where required?
Yes. MMSM will procure and pay for post-collection services under the full EPR system. This includes designing a system for consolidation, transfer, processing, and sale of materials. Specific transportation arrangements, including long-haul requirements, will be addressed through post-collection procurement and contract design.
Will MMSM consider capital support for infrastructure upgrades or depot improvements to meet service standards?
MMSM will not fund capital costs for infrastructure upgrades or depot improvements. Communities considering the Community-led approach should review the service requirements, expected costs, and MMSM’s financial offer before making a decision. Any upgrades or improvements needed to deliver the service would need to fit within the community’s budget and the funding provided under the financial offer. MMSM’s Field Services team is available to discuss service requirements and options with communities as they review their decision.
Will MMSM evaluate current MRFs as future RCTs and consider transitional or compensatory measures for underutilized local equipment?
MMSM will evaluate potential receiving, consolidation, and transfer facility providers through its procurement process. This will include reviewing facility capacity, location, operational capability, and ability to meet reporting requirements.
MMSM will also seek to minimize disruption to municipal capital assets where possible. Any impacts related to local equipment or infrastructure would need to be discussed with MMSM as part of transition planning. Please contact MMSM’s Field Services to learn more.
Program Standards & Transparency
How will the 5% contamination standard be implemented?
The 5% contamination rate is a long-term target, not an immediate requirement. MMSM recognizes that current contamination rates are higher and that improvement will take time, education, and ongoing effort.
The standard will apply to both Community-led and Program-led services. Where contamination is high, MMSM will work with the community or contractor to identify problem materials and develop a contamination reduction plan. If results do not improve over time, MMSM may require additional steps. Financial deductions would only be considered as a last resort after repeated efforts have not shown progress and would be applied at MMSM’s discretion.
Will transparent program performance data be available?
Yes, MMSM will continue to report program performance annually. Under full EPR, MMSM will have access to more information about program performance and material outcomes. Reports will include tonnes collected, tonnes directed to recycling markets, recovery rates, contamination rates, households serviced, access to collection services, cost-per-tonne and cost-per-household information, and more.
How will waste and recycling audits distinguish residential from commercial material?
Put simply, MMSM will conduct audits on strictly residential routes and routes that include both residential and commercial collection. MMSM will then compare audit results to estimate how much commercial material enters the residential stream and work with communities to determine how costs related to the collection and processing of commercial material should be allocated. MMSM has not finalized the exact methodology.
How are service standards defined?
MMSM will establish standardized service requirements through the Master Service Agreement (MSA) and Statements of Work (SOWs). Service standards will include expected pickup frequencies and service levels to ensure consistent and reliable collection service.
How does MMSM define and differentiate material recovery facilities (MRFs) vs. receiving, consolidation and transfer facilities (RCTs)?
A Receiving, Consolidation and Transfer facility (RCT) is a transfer point. It receives recycling collected from homes, multi-family buildings and depots, records the weight of the material by source, and consolidates it for shipment to an MRF.
A Material Recovery Facility (MRF) is a sorting facility. It sorts, bales, and stores recyclable materials so they can be sold to recyclers or processors.
In simple terms, an RCT prepares material for transport to an MRF, while an MRF prepares material for sale to recycling markets.
Will MMSM honour existing contracts during the transition period?
MMSM will seek to minimize disruption to existing contracts with third parties. MMSM will consider assuming existing contracts during transition, if reasonable. Communities considering new service contracts or renewals are encouraged to include assignability and termination clauses. Please contact Field Services prior to renewing or changing contracts.