Paper Bag Regulations by Market: Recycled Content, Charges and Labelling

Which paper bag regulations apply in each market?

In the US, rules are set state by state and often by city: several states require paper carryout bags to contain minimum post-consumer recycled content, carry printed markings and be charged for. In the UK, the carrier bag charge in England applies only to plastic, while Scotland (10p minimum), Wales (5p minimum) and Northern Ireland (25p levy) also charge for paper. In the EU, paper bags are not targeted by the carrier bag directive but are packaging under the PPWR and national EPR rules.

What does California require for paper bags?

Under California's SB 1053, from 1 January 2026 plastic carryout bags are banned at covered stores, and the recycled paper bags those stores provide must contain at least 50 % post-consumer recycled content from 1 January 2028. The text in force for 2026 and 2027 sets no interim percentage; the earlier 40 % minimum (20 % for small bags) belonged to the definition that applied until 31 December 2025. Stores must charge at least 10 cents per bag, and compliant bags must be accepted in curbside recycling and carry printed markings: the manufacturer's name, the country of manufacture and the percentage of post-consumer content.

What this means for a bag specification:

• Paper: the post-consumer share must be documented, not just "recycled" fibre in general. Plan now for the 50 % step in 2028 if your bag programme runs across that date, as paper sourcing and strength testing take time to change.
• Markings: the statute specifies the information that must be printed on the bag (for example, information on recycled content). Take the exact wording and format from the current statutory text or California's official guidance and keep it in a fixed artwork zone.
• Strength: higher recycled content usually means a higher GSM is needed for the same load; see the paper bag GSM guide.
• Claims: California SB 343 restricts the use of the recycling symbol and "recyclable" claims on products and packaging that do not meet state criteria. Its restrictions were due to apply from 4 October 2026, but on 14 July 2026 a federal court preliminarily enjoined the state from enforcing SB 343 against any business while a constitutional challenge continues, so confirm the current position before printing a recycling symbol on bags for California.

"Covered store" has a defined meaning in the law: larger grocery stores (USD 2 million or more in annual sales), stores of 10,000 sq ft or more with a pharmacy, and convenience stores, food marts and liquor stores holding a Type 20 or 21 alcohol licence. Restaurants are not named in the definition. Any retailer should still check whether it falls within it, and whether its city or county sets stricter terms through a local ordinance.

What do New York and New Jersey require?

New York's Bag Waste Reduction Law (in force since 1 March 2020) bans most plastic carryout bags and allows cities and counties to adopt a 5-cent paper carryout bag fee; the state law itself sets no recycled-content minimum for paper bags, according to the New York State Department of Environmental Conservation. New York's law also exempts, among others, bags used by restaurants and similar food service establishments to carry out or deliver food, and bags for food sliced or prepared to order. New Jersey, since 4 May 2022, bans plastic carryout bags at all stores and food service businesses and paper carryout bags at grocery stores of 2,500 sq ft or more; separately, its Recycled Content Law has required paper carryout bags sold in the state to contain at least 40 % post-consumer recycled content (20 % for bags made to hold 8 lb or less) since 18 January 2024, an obligation on the bag manufacturer.

Both states have detailed definitions (which stores, which bags, which exemptions), so check the New York State Department of Environmental Conservation and New Jersey's official guidance for the current text. For a chain trading in all three states, a single bag specified at 40 % post-consumer now (New Jersey's minimum) and 50 % from 1 January 2028 (California's) will meet both recycled-content requirements, though each state's marking and store-type rules still need checking.

Do other US rules affect paper bags?

Yes. Many other states and cities have their own bag ordinances, several states have packaging EPR laws, and federal guidance governs environmental claims printed on bags. Imported bags are also subject to US customs marking rules.

• Local ordinances: cities and counties in many states set their own bag rules, including recycled-content minimums and charges. A store-by-store check is part of a national rollout.
• Packaging EPR: California (SB 54), Oregon, Colorado, Maine, Minnesota, Maryland and Washington have packaging EPR laws. The producer is typically the brand owner, or the importer or distributor where the brand has no US presence. Whether carryout bags fall within each programme's scope varies, so confirm with the relevant producer responsibility organisation (in most states, Circular Action Alliance).
• Claims: the FTC Green Guides (16 CFR Part 260) govern recycled-content and recyclability claims. An unqualified "recyclable" claim requires recycling facilities to be available to a substantial majority of consumers (60 %); recycled-content percentages must be substantiated.
• Imports: bags imported into the US are subject to country-of-origin marking requirements (19 CFR Part 134). Confirm with your customs broker how marking applies to your bags and their packaging. Duty rates on imports from Türkiye have changed repeatedly since 2025 and must be checked at the time of order on the official US tariff schedule or with a broker.

The broader US framework, including PFAS and food-contact rules, is covered in US foodservice packaging regulations.

Are paper bags charged in the UK?

In England, the 10p minimum carrier bag charge (in place since 21 May 2021) applies only to single-use plastic bags 70 µm thick or thinner, so paper carrier bags are not subject to the statutory charge. Scotland and Wales apply their minimum charges to single-use carrier bags made of other materials, including paper. Retailers can still choose to charge for paper bags in England.

As of October 2026 the minimums are 10p in Scotland (since 1 April 2021) and 5p in Wales (unchanged since 1 October 2011), both covering single-use paper bags. Northern Ireland's levy is 25p (since 1 April 2022) on new carrier bags of any material, single-use or reusable, retailing at £5 or less. Each nation has exemptions (for example bags for unwrapped food, and in Northern Ireland bags for hot takeaway food), so check the current guidance from the Scottish Government, Welsh Government and DAERA/nidirect before setting till prices.

Other UK rules relevant to paper bags:

• Extended producer responsibility (pEPR): carrier bags supplied to customers are generally within packaging EPR, with special rules for service packaging; check the gov.uk guidance for how your bags are treated. A non-UK manufacturer is not the producer; the UK importer or brand owner typically is. Producer thresholds (turnover above £1 million and more than 25 tonnes of packaging handled) and fee arrangements administered by PackUK apply.
• Plastic Packaging Tax: applies to packaging components where plastic is the heaviest material by weight and contains less than 30 % recycled plastic (£228.82 per tonne from 1 April 2026; manufacturers and importers of 10 tonnes or more a year must register). A paper bag with a thin laminate or plastic rope handle is normally predominantly paper, but heavily plastic-laminated or plastic-handled designs should be checked by weight.
• Claims: environmental claims printed on bags are subject to the CMA Green Claims Code, and the Digital Markets, Competition and Consumers Act 2024 allows direct fines of up to 10 % of global turnover for unfair commercial practices from April 2025.
• Wales: a phase of single-use plastics restrictions covering carrier bags was postponed in February 2026; watch for updates if you also supply plastic bags in Wales.

The full UK picture is in UK packaging regulations for foodservice and retail buyers.

What EU rules apply to paper carrier bags?

The EU's carrier bag rules, introduced by Directive (EU) 2015/720, target lightweight plastic carrier bags (below 50 µm), not paper. Paper carrier bags are, however, packaging under Regulation (EU) 2025/40 (the PPWR), which has applied since 12 August 2026, and they fall within national extended producer responsibility schemes.

What the PPWR means for paper bags:

• Recyclability: from 1 January 2030, packaging must meet recyclability performance grade A, B or C; detailed design-for-recycling criteria are due in 2028. Mono-material paper bags with paper handles are the lower-risk design; plastic laminates, PP rope and metal or plastic eyelets add material that may affect grading once criteria are published.
• Labelling: a harmonised material sorting label is expected to become mandatory from 12 August 2028 or 24 months after the implementing act, whichever is later. The implementing act has not yet been confirmed, so plan an artwork zone for it rather than designing it in now.
• Roles: under the PPWR the "manufacturer" is whoever has packaging designed or manufactured under its own name or trademark, so a brand owner ordering custom printed bags may hold manufacturer obligations, including technical documentation and an EU Declaration of Conformity. How this applies to empty printed packaging is still subject to guidance; confirm your role with your compliance scheme.
• No recycled-content minimum: PPWR recycled-content targets apply to plastic packaging, not paper.
• Compostability: the PPWR requires compostability only for a short list of items (such as tea and coffee bags and fruit stickers, with an option for Member States to require it for very lightweight and lightweight plastic carrier bags); paper carrier bags are expected to be recyclable.

National EPR adds registration duties. In Germany, the VerpackDG has replaced the VerpackG from 12 August 2026, and registration in the LUCID register of the ZSVR remains mandatory and non-delegable before packaging is placed on the market. Austria licenses packaging through collection systems such as ARA, and the Netherlands through Verpact (formerly Afvalfonds Verpakkingen). Details for German and Austrian buyers are in packaging compliance in Germany and Austria, and the regulation itself in the PPWR explained.

Environmental claims are tightened from 27 September 2026 under Directive (EU) 2024/825: generic claims such as "eco-friendly", "green" or "biodegradable" printed on bags are banned unless the trader can demonstrate recognised excellent environmental performance, and sustainability labels must be based on certification schemes. Specific, substantiated statements (for example, a verified recycled-content percentage) remain possible. See recyclable, compostable and biodegradable packaging claims.

What should be printed on a paper carrier bag for compliance?

Print only what each market requires and what you can substantiate, and keep all legal and claims text in a defined artwork zone that can be updated without redesigning the bag. Typical items are a recycled-content statement and state-required markings for US states with bag laws, accurate recycling information, and any certification logo you are entitled to use.

How should a multi-market chain set up a compliant bag programme?

Specify one base bag that meets the strictest requirement you face, then vary only the legal text by market where needed. This keeps the number of SKUs low while avoiding non-compliant stock in any store.

• Set recycled content to the highest applicable requirement (for a US chain with California and New Jersey stores, at least 40 % post-consumer now and 50 % from 1 January 2028).
• Keep a modular artwork: brand design fixed, legal zone swappable by market.
• Collect documentation from the supplier for each batch: paper mill declarations of post-consumer content and material data (weights by material) for EPR reporting.
• Confirm your role (manufacturer, producer, importer, distributor) in each market with the relevant scheme or authority, especially for EU PPWR obligations and UK pEPR.
• Review the rules at least yearly; several dates in this guide (California 2028, EU labelling, recyclability criteria) are scheduled to change.

Material choice and its effect on appearance are covered in brown kraft vs white kraft vs recycled paper for carrier bags. If you are comparing paper against plastic for food orders in a market with plastic bag restrictions, see paper vs plastic takeaway bags; rules for plastic carriers themselves are in plastic carrier bag regulations.

What to tell your supplier about compliance

Tell the manufacturer every destination market and any legal requirement up front, because recycled content and printed markings determine the paper and artwork before anything is quoted.

• Destination countries, states and, for the US, any cities with their own ordinances
• Required post-consumer recycled content and the date it applies from
• Marking text required, or a request for the supplier's standard compliance zone layout
• Claims you intend to print and the evidence you hold
• Documentation needed per shipment (mill declarations, material weights for EPR)
• Your role in each market as you understand it

With that information, the bag specification and documentation can be confirmed at quotation and technical review. The full carrier bag brief is listed on the custom printed paper carrier bags hub, and compliance questions about a specific programme can be raised through the contact page.