Waste Reduction and Recycling (Strengthening the Container Refund Scheme) Amendment Bill 2026

Introduced: 26/3/2026By: Hon A Powell MPStatus: 2nd reading to be moved

Environment Business & Economy Government & Elections

This summary was generated by AI and has not yet been reviewed by a human.

Plain English Summary

Overview

This bill overhauls the governance and oversight of Queensland's Container Refund Scheme, the bottle and can return program that has operated since 2018. It responds to a parliamentary committee inquiry that found weaknesses in the scheme coordinator's governance, transparency and accountability, and gives the government stronger powers to hold the coordinator to account.

Who it affects

Container refund point operators gain protection from unfair conduct, small beverage manufacturers may receive cost relief, and the beverage industry loses its dominant position on the scheme coordinator's board. Queenslanders who use the scheme should benefit from improved operations and transparency.

Key changes

The board of the scheme coordinator must now have a majority of independent directors (at least 5 of 9), with expertise in waste and recycling, local government, and community enterprise, replacing the previous beverage industry-dominated composition
The Minister gains new powers to issue directions, set expectations, appoint a special manager to monitor the coordinator, or appoint an administrator to take over if the coordinator fails in its duties
The coordinator must now publish a wide range of documents on its website, including corporate plans, quarterly and annual reports, director remuneration, and ministerial directions, making its operations transparent to the public
The coordinator must consider the economic viability of existing container refund point operators before expanding the network, and is prohibited from acting unfairly towards any scheme participant
Container lids can now be collected and recycled through the scheme, and the coordinator's role is expanded to support environmental and community programs and waste infrastructure development

How this affects you

Environment

•Your container refund scheme will be run by a coordinator required to support environmental programs and waste infrastructure, instead of using surpluses to offset beverage industry costsClause 11, s 102AK(2)(i)-(j)The PRO's functions are expanded to include supporting environmental or community programs and the development of infrastructure required to transport and recycle waste in Queensland.
•Container lids can now be collected and recycled through the scheme, reducing plastic waste going to landfillClause 6Amends section 99M to allow eligible container lids to be collected and recycled through the Scheme.
•The scheme coordinator must work to ensure all Queensland communities have access to a container refund point, improving recycling access statewideClause 11, s 102ALThe Organisation must use all reasonable endeavours to establish and maintain a network of container refund points that enables all communities in Queensland to access a place to return empty containers.

Business & Economy

•If you run a container refund point, the scheme coordinator must now consider the economic viability of your business before opening new sites nearbyClause 11, s 102AL(3)In establishing and maintaining the network, including deciding the location of a new container refund point, the Organisation must consider the economic viability of the operators of existing container refund points.
•The scheme coordinator is now prohibited from acting unfairly or unreasonably discriminating against any scheme participant when negotiating or enforcing agreementsClause 11, s 102BIThe Organisation must not act unfairly, or unreasonably discriminate, against or in favour of any person when negotiating, entering into, performing obligations under or enforcing a scheme agreement.
•If you are a small beverage manufacturer, regulations may cap the amount you pay into the scheme, providing financial reliefClause 8A regulation may prescribe a maximum amount or a method of calculating a maximum amount which a small beverage manufacturer must pay.
•Large beverage manufacturers lose their dominant position on the scheme coordinator's board, with independent directors now holding the majorityClause 11, s 102AGThe board must include at least 5 directors independent of the beverage industry, with large beverage manufacturers limited to nominating no more than 2 directors.

Government & Elections

•The Minister gains new powers to issue directions to the scheme coordinator, set performance expectations, and appoint a special manager or administrator if the coordinator fails in its dutiesClause 11, ss 102BM-102BN, 102CGEnables ministerial statements of expectations, directions, and the appointment of special managers or administrators as enforcement tools.
•The scheme coordinator must publish corporate documents, reports and director remuneration on its website, making the scheme's operations open to public scrutinyClause 11, s 102CEThe Organisation must publish a wide range of information on its website, including corporate documents, quarterly and annual reports, and director remuneration.

Bill Journey

Introduced26 Mar 2026View Hansard

First Reading26 Mar 2026View Hansard

▸Committee26 Mar 2026View Hansard

Referred to Health, Environment and Innovation Committee

Health, Environment and Innovation Committeeportfolio

5 members · Chair: Robert Molhoek

Committee Inquiry

Waste Reduction and Recycling (Strengthening the Container Refund Scheme) Amendment Bill 2026(bill)

Committee Findings

Recommended passage

The Health, Environment and Innovation Committee examined the bill, which strengthens governance and ministerial oversight of Queensland's Container Refund Scheme to implement the government's response to the committee's earlier Report No. 14. The committee received 27 submissions, held a public briefing and two public hearings, and recommended the bill be passed. While stakeholders supported the intent to improve transparency and accountability, some raised concerns about the lack of measures to lift container return rates, the absence of an independent complaints body, and the retrospective declaration of the scheme operator as a unit of public administration. The committee made two recommendations and concluded the bill was compatible with human rights and had sufficient regard for individual rights and parliamentary institutions.

Key findings (5)

The bill responds to the government's acceptance of 20 of the 21 recommendations from the committee's earlier inquiry into improving the scheme (Report No. 14).
Stakeholders broadly supported strengthening the scheme's governance, transparency and accountability, but beverage manufacturers argued some provisions undermine the producer responsibility model underpinning the scheme.
Submitters and witnesses called for an independent, external complaints body to handle disputes, particularly from container refund point operators, which the bill does not establish.
Industry representatives raised concerns that the 20,000-container exemption threshold for small beverage manufacturers was not informed by modelling and proposed a tiered or higher threshold.
The committee found the bill complied with fundamental legislative principles and was compatible with human rights, with any limits on the right to take part in public life and the right to privacy being proportionate and justified.

Recommendations (2)

The committee recommends that the Bill be passed.
The committee recommends that new section 102AO proposed in the Bill is amended to clarify that the Product Responsibility Organisation is declared to be, and has always been, a unit of public administration under the Crime and Corruption Act 2001.

Dissenting views: Two statements of reservation were filed. The Queensland Labor Opposition members (Joe Kelly MP and Barbara O'Shea MP) supported the governance and transparency measures but argued the bill is a missed opportunity that fails to implement recommendations aimed at increasing return rates and scheme participation, and raised concerns about ministerial overreach, particularly the power to appoint a special manager. Independent member Sandy Bolton MP supported the report but noted three issues that should have been addressed by recommendations: the absence of a legislated independent complaints body, the unmodelled small-manufacturer exemption threshold, and the lack of firm provisions to expand the network of container refund points to lift recovery rates toward the 85% target.

AI-generated summary — may contain errors

Committee Report15 May 2026

Committee report tabled

Sectors Affected

Waste Management Public Administration Food and Beverage

Classified using AGIFT/ANZSIC Australian government standards

Source Documents

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Waste Reduction and Recycling (Strengthening the Container Refund Scheme) Amendment Bill 2026

Plain English Summary

Overview

Who it affects

Key changes

Bill Journey

Referenced Entities

Legislation

Organisations

Programs & Schemes

Roles & Offices

Sectors Affected

Source Documents