Carrier bag charges: retailers' responsibilities
Find out when you must charge at least 5p for plastic carrier bags, bags you're not required to charge for and the records you must keep and submit.
You must charge at least 5p for single-use carrier bags in England if you’re a large retailer. If you don’t you could be fined.
If you’re a large retailer you must charge at least 5p for single-use carrier bags. If you’re a small or medium-sized business you can charge and follow the scheme voluntarily - you don’t have to report or keep records for carrier bag use.
You must charge if you:
- sell goods in England
- deliver goods to England
As a retailer:
- the charge is for non-reusable bags (single-use bags)
- you must charge for bags used for collections and deliveries
- you don’t need to charge an extra 5p if you’re already charging 5p or more for bags
Bags you charge for
You must charge at least 5p a bag (including VAT) for carrier bags that are all of the following:
- unused - it’s new and hasn’t already been used for sold goods to be taken away or delivered
- plastic and 70 microns thick or less
- it has handles, an opening and isn’t sealed
Monitor self checkouts
You must do all you can to make sure that you charge for bags at self checkouts. For example, the checkouts ask shoppers how many bags they used and charges for them.
Charging for deliveries and click-and-collect bags
You must charge for plastic bags used for deliveries and online sales, including click-and-collect (and similar) collections.
The number of bags used isn’t always known until delivery takes place. This means you can charge for an average number of bags for multi-bag deliveries, as long as 5p or more is charged per bag overall.
You can also offer bagless delivery as an option - this will cut down on waste.
Bags you’re not required to to charge for
Some bags are exempt - you don’t have to charge for these, but can if you want to.
You don’t have to charge if the bag only contains certain items, but if you add other items then you must charge.
For example, you’re not required to charge for a bag containing an unwrapped blade and unwrapped loose seeds. But if you add a box of cornflakes then you would have to charge.
Returnable bags and bags for life
You’re not required to apply the 5p charge for:
- woven plastic bags
- multiple reuse bags (bags for life), when replaced, if originally sold for 5p or more
You can still charge for these bags but you don’t need to record sales and proceeds as you do with single-use carrier bags.
A returnable multiple reuse bag must be all of the following:
- sold for 5p or more
- suitable for reuse
- replaced free of charge if returned to you when worn out
Food and plants
You’re not required to charge for plastic bags that are for:
- uncooked fish and fish products
- uncooked meat, poultry and their products
- unwrapped food for animal or human consumption - such as chips, or food in containers that aren’t secure enough to prevent leakage during handling
- unwrapped loose seeds
- bulbs, corms or rhizomes (roots, stems and shoots, such as ginger).
- goods contaminated by soil (like potatoes or plants)
You’re not required to charge for bags:
- for unwrapped blades, including axes, knives, and knife and razor blades
- for prescription medicine
- used for a service, but there is no sale of goods, for example dry cleaning
Live fish and aquatic creatures
You’re not required to charge for bags holding live fish or other aquatic creatures.
Packaging, transport and promotions
You’re not required to charge for bags:
- for goods in transport, such as at an airport or on a train, plane or ship
- considered as sealed packaging for mail order and click-and-collect orders
- used to give away free promotional material
When you must charge
You must charge if you employ 250 or more full-time equivalent employees (in total and not just in retail roles) in a year.
You’re not required to charge if you have less than 250 full-time equivalent employees, although you can do so voluntarily.
You work out how many full-time equivalent employees you have at the start of each reporting year.
The reporting year runs from 7 April each year to 6 April in the following year.
(The first reporting period - for the first 6 months of the scheme - ran from 5 October 2015 to 6 April 2016.)
Work out your number of employees
On the first day of the reporting year calculate how many full-time equivalent employees you have:
- Work out how many hours a full-time employee would work in a year (for example 40 hours by 52 weeks is 2,080).
- Multiply this by the amount of full-time workers there for the full year (for example 200 workers by 2,080 is 416,000).
- Work out part-time and seasonal workers’ hours by multiplying their weekly hours by the weeks worked (for example 100 workers by 20 hours by 10 weeks, added to 100 workers by 40 hours by 25 weeks is 20,00 plus 100,000, giving 120,000).
- Add the full-time and part-time or seasonal workers’ hours together (for example 416,000 plus 120,000 is 536,000).
- Divide this by the amount of hours a full-time employee would work in a year (for example 536,000 divided by 2,080 is 257.7).
If this number is 250 or more then you must charge for bags.
Franchises and symbol groups
If your store is part of a franchise or symbol group (an independent retailer that shares a brand-name shop and products) you only count employees in your business.
You don’t count the franchise or symbol group as a whole.
For example if you’re part of a symbol group and you own:
- 10 stores in a symbol group and have more than 250 employees in total - you must charge
- 2 stores with 15 employees - you don’t have to charge
Records you must keep and submit
You must keep a reporting year’s records for 3 years from 31 May in the following reporting year. For example, you must keep the records for 5 October 2015 to 6 April 2016 until 31 May 2019. You can be fined if you don’t.
You must record for the whole reporting year:
- the number of single-use carrier bags you supplied
- the gross and net proceeds of the charge
- any VAT in the gross proceeds
- what you did with the proceeds from the charge
- any reasonable costs and how they break down
You must submit your records on the dedicated reporting website on or before 31 May following the end of the reporting year. For example, for the period 7 April 2016 to 6 April 2017 you must record your details on the website by 31 May 2017. You can be fined if you don’t submit your records on time.
The reporting period for the year 7 April 2016 to 6 April 2017 has now closed.
This information will be published as Open Government Data under the Open Government License.
Email Defra at PlasticBagCharge@defra.gsi.gov.uk if you need more information about submitting records.
Reasonable costs include new costs you incurred by following the law on charging. This might include:
- the cost of changing till systems
- training staff
- communicating the policy to staff and customers
- getting expert advice
- administering donations to good causes
You can’t include existing costs, such as the cost of the bags.
Replying to public enquiries
Members of the public can ask you for copies of your carrier bag records. You must give them copies within 28 days.
Dealing with the proceeds
Once you’ve deducted reasonable costs, it’s expected that you’ll donate all proceeds to good causes, particularly environmental causes.
You can see how Carrier Bag Charges Wales:
- benefits good causes
- reduces carrier bag waste
Your local authority inspects you to check you are following the law. Inspectors can:
- visit your shop or store
- make test purchases
- speak to staff
- demand records
Inspectors don’t have to give you warning but can carry these out as ‘secret shopper’ exercises. If they find a problem they can:
- issue a non-compliance notice stating what you must do to fix the problem
- impose a fixed penalty
- impose a variable penalty
- order you to publicise (such as adverts in local papers or posters in your store) that you’ve broken the law, what your penalty was and how you’re now complying
Inspectors can order you to cover the cost of the investigation if you break the law.
Trading across different regions
If you trade across different regions of the UK, you can apply for a Primary Authority agreement. You can then choose to deal with just one local authority rather than the authorities in each area you trade in.
How much you can be fined
Your local authority must publish details of fine levels, and when it will impose them, on its website.
You can’t receive a variable fine if you’ve already received a fixed fine for the same problem, unless you’ve received a non-compliance notice for the problem.
|Not charging for bags appropriately||£200|
|Not keeping records||£100|
|Not supplying records||£100|
|Not charging for bags appropriately||£5,000|
|Not keeping records||£5,000|
|Not supplying records||£5,000|
|Giving false or misleading information to, or otherwise obstructing or failing to assist the local authority||£20,000|
Paying fines on time
- reduced by 50% if you pay within 28 days
- increased by 50% if you fail to pay within 56 days
Appeals and objections
You can object within 28 days of you receiving a fine, the fine or letter will tell you how to do so.
You can appeal a penalty if you feel your fine was wrong, unreasonable or based on an error. You can also appeal if you feel that your non-monetary requirement is unreasonable, or if the variable amount penalty is too high.
You can also get artwork explaining the charges to use in your shop or store.
Published: 23 March 2015
Updated: 21 July 2017
- Added text under 'Submitting records' heading to explain that the reporting period has closed for the year 7 April 2016 to 6 April 2017.
- Added link to register on reporting website. Updated reporting date example period to 2016/17.
- Added link to new Carrier Bags Charge Reporting Portal.
- Updated reporting guidance on using the dedicated reporting website.
- Update on reporting dates and sending your details. If you send your name and email before 31 March 2016 you'll be sent a link on 7 April 2016 to the reporting website. After 31 March you should still send your details to Defra (by 23 May 2016 at the latest) but you may have to wait to receive the link.
- Updated text to improve clarity.
- We updated the guidance on reusable bags. Although the regulations state size and thickness, Defra has told inspectors to treat bags as reusable if they meet the other requirements.
- We've corrected a date in the "sending records to Defra" section - in the example quoted, the deadline for reporting would be 31 May 2016.
- First published.