Writing the Rules: 8 Lessons for Designing DRS Legislation That Works

By Martín Valese

As interest in Deposit Return Systems (DRS) continues to grow across the Global South, one question is becoming increasingly important: what makes a DRS law successful?

That was the focus of our latest Global DRS Platform webinar, Writing the Rules: How to pass a DRS law that works for all stakeholders, which brought together global policy expert Clarissa Morawski (Reloop), Uruguayan environmental policymaker Alejandro Nario, and DRS implementation specialist Rauno Raal.

Although the speakers approached the topic from different perspectives, ranging from global trends and policy design to real-world implementation, several common themes emerged throughout the discussion.

Here are eight key lessons from the webinar.

1. There is no such thing as a copy-paste DRS

Perhaps the strongest point of agreement among all speakers was that successful DRS legislation must be adapted to local realities.

While countries can learn a great deal from existing systems, legislation cannot simply be imported from another jurisdiction. Retail structures, waste management systems, institutional capacity, consumer behaviour and recycling ecosystems differ significantly between countries.

As Alejandro Nario explained through the experience of Uruguay, international examples were useful references, but the final legal architecture had to be built around Uruguay’s own reality.

2. Good legislation needs concrete tools, not only good intentions

A recurring lesson from Uruguay’s experience was the importance of moving beyond broad principles and creating legislation with practical implementation tools.

Clear responsibilities, measurable targets, enforcement mechanisms, traceability requirements and defined timelines all played an important role in transforming policy ambitions into operational reality.

Strong legislation creates the conditions for implementation. Weak legislation often leaves too much open to interpretation, and that frequently leads to years of implementation delay.

3. Ambitious targets drive better outcomes

Both Clarissa Morawski and Alejandro Nario highlighted the importance of setting ambitious recovery targets.

According to Morawski, meaningful targets must be accompanied by meaningful penalties, ensuring that the cost of non-compliance is always higher than the cost of compliance.

Nario shared a similar perspective from Uruguay, arguing that high recovery targets create the conditions necessary for efficient collection systems and help justify stronger policy instruments such as deposit return systems.

4. Simplicity is a strength

While DRS legislation must be robust, speakers repeatedly warned against unnecessary complexity.

Rauno Raal shared examples where overly detailed legislative frameworks created delays and implementation challenges. In his view, legislation should define the rules of the game while allowing enough flexibility for system operators to make practical operational decisions.

The objective is not to regulate every detail, but to create a framework that enables effective implementation.

5. Roles and responsibilities must be clearly defined

A successful DRS requires multiple actors working together, but collaboration only works when responsibilities are clear.

Throughout the webinar, speakers highlighted the importance of clearly defining the role of producers, retailers, governments, consumers and system operators.

According to Raal, uncertainty about responsibilities often creates confusion, delays and unnecessary disputes during implementation.

Clear rules create accountability and help stakeholders focus on solutions rather than interpretation.

6. Inclusion and efficiency must be balanced

One of the most interesting discussions focused on how DRS legislation can integrate informal collection systems and waste workers while maintaining operational efficiency.

Uruguay’s experience demonstrated that inclusion may sometimes involve additional costs compared to fully automated systems. However, speakers agreed that these costs should be evaluated within a broader social and environmental context.

Rather than treating inclusion and efficiency as opposing objectives, legislation should seek practical ways to achieve both.

7. Passing the law is only the beginning

Another important lesson was that legislation alone does not guarantee success.

Implementation requires continued leadership, institutional coordination and stakeholder engagement long after the law has been approved.

Nario described how coordination between different ministries and government institutions helped Uruguay overcome practical implementation barriers and maintain momentum throughout the process.

Similarly, Raal argued that governments should remain active partners during implementation rather than limiting their role to regulation and enforcement.

8. Successful DRS legislation is ultimately about building trust

Behind discussions about deposits, targets, logistics and technology lies a more fundamental objective: trust.

Trust between governments and producers. Trust between retailers and consumers. Trust that the system will be fair, transparent and capable of delivering results.

Throughout the webinar, speakers repeatedly returned to the importance of creating legal frameworks that provide clarity, certainty and confidence for all actors involved.

Because in the end, successful DRS legislation is not only about collecting containers. It is about creating the conditions for long-term collaboration and shared responsibility.

Looking ahead

As more countries explore Deposit Return Systems, particularly across the Global South, the discussion around legislation is becoming increasingly important.

The experiences shared during this webinar demonstrated that there is no single legislative formula for success. However, there are common principles: clear responsibilities, ambitious targets, practical implementation tools, stakeholder engagement and strong institutional support.

Successful DRS laws are not copied. They are built around local realities, shaped through collaboration, and designed with implementation in mind.

You can also stay connected with the Global Deposit and Return Platform for upcoming webinars already announced:
Next on 17th June about DRS legislation.