Bury Council has warned that introducing charges for garden waste collections could undermine its recycling performance and potentially reduce Extended Producer Responsibility (EPR) funding, with the financial impact possibly exceeding the income generated by the proposed subscription scheme.
The authority is considering an annual charge of approximately £50 per brown bin from 2028 as part of its draft 2027/28 budget policies. However, a draft budget document out for consultation has identified the potential loss of recycling tonnage and EPR income as a key risk associated with the proposal.
The report states: “Lower participation in the garden waste service could reduce recycling tonnages and therefore impact future EPR funding. The extent of this impact is currently unknown and could potentially exceed the income generated from the subscription scheme.”
EPR funding
Bury received £1.89m in packaging EPR funding for 2025/26, according to Defra’s published local authority payment figures.
The council’s concern is that residents who do not subscribe to the proposed service may dispose of garden waste through alternative routes, including placing it in residual waste bins, reducing its overall recycling rate. Bury recorded a 52.2% recycling rate in 2024/25.
However, the relationship between garden waste collections and packaging EPR payments is not straightforward. The scheme is specifically designed to fund the efficient costs of managing household packaging waste, rather than all household waste.
Under the Local Authority Packaging Cost and Performance Model payments cover the costs associated with eligible packaging materials, including paper and card, plastic, glass, steel, aluminium and wood, across dry recycling and residual waste streams.
Food and garden waste collections are excluded from the packaging EPR payment calculation. This means that a reduction in garden waste tonnage does not directly translate into an equivalent reduction in packaging EPR funding.
Nevertheless, Bury has identified a potential financial risk if the proposal affects its wider waste management arrangements, recycling performance or costs associated with eligible packaging waste.
Neighbouring councils
Bury’s report points to the experience of neighbouring Greater Manchester authorities Stockport and Trafford, which have introduced charges for garden waste collections.
It states that evidence from the two councils shows that charging has led to reductions in kerbside garden waste collections, despite both authorities providing weekly food waste collections.
Stockport recorded a 16.62% reduction in garden waste tonnage following the introduction of charges, while Trafford saw a 10.24% decrease.
The report adds: “This will also impact on the EPR income they receive.”
Stockport received £2.84m in EPR funding for 2025/26, while Trafford received £2.12m.
Risks identified in the budget report
The draft proposals outline several further risks associated with the proposed subscription service.
On the possibility of lower-than-expected income, the report says the council will undertake “comprehensive resident engagement and communications”, benchmark charges against neighbouring authorities and introduce a simple sign-up process.
It also identifies a potential increase in Greater Manchester Combined Authority levy costs, with the council saying tonnages will be reviewed regularly to assess the net impact of the scheme.
The report warns of possible increased fly-tipping or inappropriate disposal of garden waste, alongside a reduction in progress towards statutory recycling targets.
It states that the introduction of a charge could affect the council’s ability to meet future national and local targets, including the requirement under Simpler Recycling reforms and associated environmental objectives to achieve a recycling rate of 60% by 2034.
The council plans to promote home composting and Household Waste Recycling Centres as alternative disposal routes, alongside monitoring enforcement activity.
The report also identifies a potential increase in customer enquiries and complaints, as well as risks associated with ICT and payment systems not being delivered in time for implementation.
Budget consultation
Bury Council is consulting on its draft 2027/28 budget as it faces a forecast funding gap of £20.333m.
The council has identified £10.747m of new savings proposals for 2027/28, with a further £9.586m still to be addressed if the proposals are delivered in full.
The garden waste subscription proposal is one of several measures being considered to generate income and help protect essential services.
Consultation
The consultation runs from 19 October to 30 November 2026. No final decision has been made on whether the garden waste charge will be introduced.
The council will review consultation responses alongside financial and service evidence before the final budget is agreed in February 2027.
Residents can respond through the council’s budget consultation.