Q&A: Shoshana Micon of the AF&PA on what EPR implementation means for paper producers

Shoshana Micon, manager of recycling and packaging sustainability at the American Forest & Paper Association (AF&PA), helps member companies navigate and simplify recycling policy. Most of her work centers on extended producer responsibility (EPR), along with projects focused on designing for recyclability. In this conversation, Huban Kasimi of Davis Index explores how Micon approaches translating complex legal frameworks into workable guidance, and what shapes her policy mindset.

Huban Kasimi: What is the outlook for EPR in 2026? Will we see more policy changes this year?

Shoshana Micon: I think this is going to be the year that the rubber hits the road. People are starting to feel the impact of these programs. Invoices are out, obligated producers are seeing what they have to pay and the realities of what that means, and they're now understanding how the fees are impacting them. What that means exactly, I can't say, but I think we're going to be seeing a lot of activity at the implementation level.

HK: How difficult or easy is it for you to explain regulations such as EPR to AF&PA members?

SM: It is a full-time job. There are seven states that have passed EPR now in the United States. Some areas of the law are harmonized across states, but more often than not, things are not harmonized.

Our members have to know different definitions, requirements, and reporting for each state. My role is to help people navigate what's going on and where states are in the process — whether it's rulemaking, reporting, or data management. 

HK: Is there enough awareness about paper recycling in the U.S.?

SM: One advantage of being at AF&PA is that we represent a material and an industry that already has an incredibly long-standing, successful track record in recycling. But there can always be more awareness around the high recyclability of paper in the U.S. Through my work on EPR implementation, I am helping to increase the visibility and awareness of that critical work. 

HK: When we talk about education versus awareness, do you see any gaps that need to be filled?

SM: Education and awareness can be challenging. How do we get paper from the consumer's hand into the bin? As an industry, we've dedicated ourselves to solving those problems.

We're really lucky that most people see paper and recognize, "Of course, this can go in the recycling bin." But there are always challenges we come up against, and there's always work to be done to make sure we can collect as much material as possible.

HK: If there was one aspect about the paper recycling industry that you'd want to change, what would that be?

SM: I wish that the average person valued the recycling system more. So much work and resources go into recovering these materials. We recognize some people believe that recycling is fake and their materials won't get recovered. We read about low percentages as an across-the-board recycling rate, and it's simply not true. 

But I am so grateful that I get to bust those myths. We've dedicated much time and resources to creating a robust paper recycling system, and paper recycling is successful because of it. 

HK: Which industrial framework would you like to see implemented or revised to promote paper recycling?

SM: There are a lot of positive things that are happening around paper recycling today that I'm excited about. For instance, we work to educate people about pizza box recycling. And we are seeing more and more local municipalities explicitly accept pizza boxes for recycling. 

There are developments in the paper cups segment as well. The list of cities that accept them continues to grow. Earlier this year, Massachusetts announced that they accept paper cups for recycling across the state, which is a huge win. 

I also get to work on updating our design guidance for recyclability, which serves as a tool for designers, policymakers, and jurisdictions to understand what paper mills can process for recycling.

HK: What are some of the major industry issues that the AF&PA is facing?

SM: One of the major industry issues is to strengthen our market-based systems for recovered paper. That really ties in heavily to the work I'm doing with EPR implementation. 

HK: Many people believe that the cost of recycling versus the cost of landfilling also depends on proximity, the amount of land that's available, and the distance between a recycling plant and residential areas. Would that be a factor? Is it difficult for you to change people's perception on this?

SM: It is very difficult to change people's perceptions. To me, it comes down to a lack of understanding that recycling is a business, and each link in that chain is a business. The bottom line is our mills want to get their hands on as much material as possible to turn paper into new products.

HK: We've seen seven states adopt it in the U.S., but there's also news about nine states adopting it. Do you think that's going to happen this year?

SM: The affordability of EPR programs is really being called into question as people realize just how much these fees might drive up the price of consumer goods. It's giving a lot of pause to the future uptake of the regulation across other states.

HK: Do technology affordability and development timelines impact the implementation of EPR in the paper recycling industry? 

SM: As an industry, we are extremely dedicated to recycling — we have put resources and investments into paper recycling for decades. It's really amazing to see and be a part of this group of people that have dedicated themselves to the circularity of paper.

There's always more to recover, always more to do. Even though paper recycling is robust, our members are constantly thinking about how they can be even better.

HK: What are your thoughts on the debate between acceptability and recyclability? Could you give more detail about what you mean by acceptability? 

SM: This is kind of a chicken-and-egg situation. Acceptance is a combination of community acceptance, MRF acceptance, and end market acceptance, which drives whether an item is recycled or not. And there can be a disconnect between what the community, MRF, and mill accept. 

At AF&PA, we work hard to educate about the paper products our mills accept for recycling. For example, there are lots of questions about paper cup recyclability. There are more facilities that are recycling paper cups now. We have a great industry partner, the Paper Cup Alliance, which is dedicated to finding mills that will sign declarations that they do accept paper cups for recycling. It's a challenge, but we believe in paper cup recyclability. 

HK: What do you think would be the best way to optimize or get the best possible recycling rate in the U.S.? 

SM: Each of our members makes different products, they accept different materials, and they each know their needs and what they need to increase their own recovery at their mills. It's my job to support them by helping implement policies that allow them to continue to recover as much material as possible.

The teams that I'm working with, we all want the same thing — to continue to improve on the success of paper recycling. I find that most positive advances come from leveraging shared goals rather than getting bogged down by our differences.

HK: If you had a piece of advice for all the women in the recycling industry, what would it be?

SM: I feel really lucky to work with amazing women in the recycling industry. I would recommend that you find your advocates and support other women that you come across in the industry. I really think we can rise to the top together, and we shouldn't see each other as competition in whatever space that we're in.

It's exciting to be at this intersection of sustainability and recycling, and to be in rooms with so many powerful women who want to affect change for the better. Just getting to be part of those conversations is a joy and an honour.

HK: What are some of the biggest challenges that you face along the way?

SM: The recycling field is traditionally a male-dominated space. I have made a tremendous effort to build my credibility in the work that I'm doing, which is at the intersection of recycling and sustainability. But I have had to learn to see perceived weaknesses as strengths.

We live in a society that often considers kindness and collaboration weaknesses or soft skills, but through my experiences, I have found them to be critical for professionals to adopt. They are the backbone of impactful, meaningful work: understanding where someone else is coming from and creating solutions that work for everyone, not just one group.

For example, it takes every single person in the supply and value chains to get a paper cup from the consumer's hands into the pulper. There's so much that needs to happen during that process; the more communication and collaboration, the better.

HK: Does your role get easier?

SM: It is difficult for EPR to regulate all commodities — we each have our own nuances and complexities, while EPR holds all materials to the same standards. Each industry brings special and unique considerations to the table for what works for them in terms of recyclability. It's a constant challenge, but hopefully one that we are doing well.

I would say the deeper I go in this role, the more complex it becomes. While it doesn't necessarily get easier, I keep learning and making progress for AF&PA members every day.