FlexCollect results show blueprint for flexible plastic packaging collections

The UK's largest flexible plastic packaging (FPP) collection trial has established a blueprint for nationwide kerbside collections, showing that dedicated collection bags can successfully integrate the material into all types of kerbside recycling collection.

The three-and-a-half-year FlexCollect project, involving ten pilot local authorities and over 160,000 households, collected more than 400 tonnes of FPP – equivalent to over 50 million bread bags – ahead of mandatory collections from April 2027.

The project demonstrated public appetite to engage with services collecting non-rigid plastics, with participation rates averaging 60 per cent across pilot authorities and 89 per cent satisfaction among surveyed households.

The trials demonstrated that FPP collections can be integrated into all existing collection systems without significant disruption to local authorities or operators. Projections for rollout across England based on demographic modelling suggest collections would capture over 150,000 tonnes if introduced in 2027, rising to over 200,000 tonnes by 2030 and almost 300,000 tonnes by 2040.

The findings also identified significant challenges around domestic recycling capacity and market stability. The FlexCollect report notes that ‘post-consumer film grades are generally considered a low value product and will typically demand a gate fee’.

Current UK facilities can process only 25,000 to 50,000 tonnes annually against projected demand, while gate fees varied from £80 to over £1,000 per tonne during the trial period, highlighting the lack of both market value and stability for FPP that could be a deterrent for further investment in infrastructure.

Collection methods and participation rates

Nine of the ten pilot authorities successfully incorporated FPP collections using dedicated "survival bags" placed inside or alongside existing recycling containers. FlexCollect found that this approach works across all vehicle types without requiring additional crew or shorter collection rounds. A tenth pilot, Warwick District Council, was specifically added to test loose collection methods where residents placed FPP directly in recycling bins alongside other materials.

Participation rates averaged 60 per cent overall, rising to 64 per cent where weekly collections were offered. The data revealed significant behavioural differences based on service frequency and type. Weekly collections achieved 86 grams per household per week compared to 46 grams equivalent for fortnightly services, while source-segregated collections outperformed co-mingled systems, capturing 78 grams a week versus 44 grams per household.

The weekly versus fortnightly comparison reflects storage burden on households. The volume of flexible packaging means fortnightly collections create more storage pressure, resulting in more being placed in the residual bin.

The project tested multiple collection approaches. South Gloucestershire ran an "own bag" trial where residents provided their own bags rather than receiving dedicated ones. This showed lower participation rates and logistical challenges at materials recycling facilities (MRFs), with residents often using unsuitable bags or failing to tie them securely, risking contamination of other recycling streams.

For co-mingled and twin-stream collections using compaction, 40-micron bags are recommended to withstand mechanical sorting processes. Source-segregated collections may use thinner 18-20 micron bags for cost savings.

Warwick's loose collection trial, conducted in partnership with Sherbourne Recycling, tested fully commingled processing. The Sherborne MRF uses advanced sorting technology including 2D and 3D separation, weight-based separation, artificial intelligence, and robotics to handle loose FPP mixed with paper, card, metals, and glass. Sorting efficiency achieved 37-68 per cent depending on calculation method.

The Warwick trial achieved 89 per cent purity in sorted FPP bales, with main contaminants being fibre grades due to their similar 2D shape. Significantly, the facility maintained paper stream quality with only 0.74 per cent film contamination. However, this contrasts with bagged collection sorting efficiencies exceeding 90-95 per cent, highlighting the trade-offs between convenience and processing complexity, and not accounting for the costs involved in account for the sorting equipment to achieve results on a par with Sherborne.

Service economics and infrastructure requirements

The project modelled annual service costs at £6.56 per household, which would translate to approximately £188 million across the UK's 28.7 million households - though potentially this could be higher given the trials did not test costs in more rural areas.

The modelled costs break down as £3.14 per household for collection in year one (reducing to £1.96 in year two), £0.81 for sorting operations, £0.06 for MRF modifications, and £2.55 for end market gate fees. This translates to £1,671 per tonne across an estimated 215 billion units of FPP placed on the UK market annually.

FlexCollect states that MRF operators can accommodate bagged collection with minimal infrastructure changes, requiring primarily a dedicated operative to pick bags from sorting lines during operational hours. However, small modifications for bagged collection such as additional bays, conveyors or extraction systems range from £10,000 to £150,000, while processing loose FPP in fully co-mingled streams requires investments of several hundred thousand to several million pounds.

Reprocessing trials demonstrated ‘high recovery rates’ exceeding 80 per cent through mechanical recycling processes. Jayplas reports processing 266.53 tonnes, producing coloured PE and PP pellets for flexible film and rigid products. Meplas processed 58.85 tonnes into washed, shredded flake for manufacturing including car parts, while Plastecowood used 23.58 tonnes as 100 per cent feedstock for plastic lumber products.

Chemical recycling trials confirmed FPP's suitability for producing recycled oil-based products, though no commercial-scale facility was available during the trial period. However, given that 62 per cent of flexibles collected aremono-material PE or PP, mechanical recycling is likely to be the more economically viable option.

The report notes that mechanical and chemical recycling facilities are in development or planned, which combined with potential spare European capacity could address the domestic shortfall.

Policy framework and market challenges

From 2026/27, pEPR fees will be modulated based on recyclability assessments, with non-recyclable flexible packaging facing 20 per cent higher fees in 2026, rising to 60 per cent in 2027 and 100 per cent by 2028. An additional £768,000 was allocated specifically for flexible plastic collection trials in pilot areas for 2025-26, with producers now required to report flexible and rigid plastics separately.

The report identifies the Packaging Recovery Note (PRN) system as requiring reform to remove export incentives that disadvantage domestic recyclers. Packaging Export Recovery Notes (PERNs) can be claimed on material before full processing, providing economic advantages over UK facilities that claim PRNs only after complete reprocessing and contamination removal.

A stable, modulated PRN system specifically targeting FPP funding is recommended, alongside mandatory verification schemes to combat fraudulent recycled content claims in imported packaging. The Plastic Packaging Tax, which applies to packaging with less than 30 per cent recycled content, is undermined by inaccurate claims that create unfair competition for legitimate UK recyclers.

From 2028, the UK Emissions Trading Scheme will include waste incineration facilities, increasing FPP disposal costs as the material comprises 5-10 per cent of residual waste by weight. This creates additional economic incentive for collection and recycling as an alternative to carbon-taxed disposal.

The project recommends a phased approach starting with bagged collection models for immediate rollout from 2027. This makes the most of proven cost-effectiveness and anticipated material quality to encourage market confidence and supply chain certainty. Phase two would involve transition to advanced sorting infrastructure as market conditions mature and investment capital becomes available.

Newcastle City Council confirmed its commitment following trial success: "Newcastle have taken the decision to continue to use survival bags for the next DMR contract, which commences in October 2025 and will see all 140,000 households in the city receiving the service from 2027."