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An Ordinance Amending Chapter 20 (“Public Health”) Of the Oak Park Municipal Code by Adopting Regulations and Fees for Single-Use Bags At Retail Establishments
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Introduction
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This is an Ordinance Amending Chapter 20 (“Public Health”) Of the Oak Park Municipal Code by Adopting Regulations and Fees for Single-Use Bags at Retail Establishments.
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Recommended Action
Adopt the Ordinance.
Prior Board Action
The Board has taken the following prior action(s):
• On March 20, 2026 the Board received a memo from Staff with an analysis of the Environment & Energy Commission’s proposal to increase retail bag fees and implement a ban on plastic bags.
• On March 18, 2026 during a study session on Sustainability Fund revenue, the Board directed staff to propose an increase to the single-use bag fee.
• On August 7, 2017 the Board approved ordinance 17-239, which amended Chapter 20 (“Public Health”), making the Village’s single-use retail bag fee mandatory.
• On April 17, 2017, the Board approved a voluntary two-year pilot program to initiate a bag fee.
• On May 14, 2016, the Board directed Staff to propose an ordinance that regulated retail bags at larger retailers.
• On May 19, 2014, the Village Board requested the EEC review the City of Chicago’s plastic bag policy.
Background
This action relates to or accomplishes the following CROP actions and Board Goals:
CROP PPO1: Adopt an ordinance to remove all non-medical single-use plastics and polystyrene foam products from circulation by 2030 in all restaurants and retail establishments, with the exception of single-use plastic straws, and based on the availability and affordability of alternatives.
CROP PP02: Expand the Retail Single Use Bag ordinance to include all retail establishments. Review the current fee structure.
26/27 Board Goals - Sustainability & Resiliency 2.a: Identify, review, and seek Board direction on revenue options to structurally fund the Climate Ready Actions.
Beginning on January 1, 2018, the Village required retail establishments 5,000 square feet or larger to charge $0.10 for each single-use retail bag provided to customers and remit $0.05 for each bag back to the Village. No data exists for bag usage prior to the carryout single-use bag fee. Between 2018 and 2019, there was a 9% reduction in bag usage. However, in 2021 bag usage increased by 48% from 2019 (2020 data is excluded because of a pause in fee collection related to the global pandemic) and has remained high. In 2025, bag usage as measured by fee revenue was 39% higher than in 2018. Between 2018 and 2025, an estimated 23 million single-use bags were utilized in Oak Park.
The carryout single-use bag fee provides revenue to the Sustainability Fund of approximately $170,000 per year. Because the fee has become a source of revenue and because it is not currently achieving the goals of waste reduction, the EEC and Staff evaluated options to modify the fee in a way that might accomplish both goals. A survey conducted by the EEC in 2025 found that the fee was not the primary driver of the use of reusable bags. This is consistent with the results of retail bag fee policies around the country, which have seen fees become less cost-prohibitive over time.
On March 20, 2026, Village Staff submitted a memo to the Village Board which included the EEC’s recommendations for policy change and Staff’s analysis of that recommendation. Staff have conducted the initial engagement outlined in the memo, and this Ordinance is a result of feedback received. Engagement efforts are outlined in the Community Input section.
Following the EEC’s recommendation, the amendments to Chapter 20 do the following things.
(1) Beginning January 1, 2027, the carryout single-use bag fee will increase by $0.05 annually until reaching $0.25 in 2029. The retailer will continue to retain $0.05 as their administrative burden will not change, and the remainder will be remitted to the Village.
(2) Beginning January 1, 2030, all retail establishments, including small retail establishments defined as smaller than 5,000 square feet, will be banned from providing single-use retail bags made of plastic to their customers.
(3) After January 1, 2030 a $0.25 fee continues to be assessed on paper bags. Paper bags provided must be recyclable paper, made of 40% recycled content, and have handles.
(4) Retail establishments are required to post signage for their customers related to the fee.
Staff evaluated that with these ordinance changes, carryout single-use bag usage could decrease by as much as 75% while retaining the revenue levels seen in 2025. Revenue projections are outlined in the Financial Impact section.
Similar ordinances are in place in neighboring communities.
• The City of Chicago raised their single use bag fee from $0.10 to $0.15 as of January 1, 2026.
• The City of Evanston banned plastic bags in 2023 and charges a $0.10 fee on all other single-use bags.
• The City of Elgin enacted a ban on plastic bags at large retailers and instituted a $0.10 fee on paper bags. The ordinance will go into effect in June 2027.
• The City of Park Ridge banned plastic bags at large retailers, effective January 1, 2027.
Next Steps:
Once the ordinance is approved, Staff will begin communication efforts before the January 1 fee increase. Steps include the following:
• Identify a designer to help create slogans and graphics for outreach.
• Provide “don’t forget your bag” reminders to residents.
• Print reusable bags with the new slogans, which will be available at Village Hall.
• Work with retailers to assist with signage needs.
During 2027, the Village will continue outreach and support for the fee increase by:
• Create “special edition” tote bags supporting other Village initiatives such as Ageism Awareness, Pride Month, Earth Month, and others.
• Identify opportunities to make reusable bags available in areas with access outside of Village Hall hours.
Prior to 2030, work will include:
• Work with small businesses to transition from plastic to paper carryout bags. Identify needs for support and potential Village assistance programs.
Timing Considerations
Staff proposes the fee go into place on January 1, 2027. Approving the ordinance now will allow staff sufficient time to alert impacted retailers and conduct community outreach prior to the fee increase.
Financial Impact
In 2025, revenue from the Retail Bag Fee was $175,809.80, representing over 3.5 million single-use bags for which the fee was assessed. Staff evaluated that when the fee reaches $0.25, bag usage could decrease by as much as 75% and retain 2025 revenue levels.
Assuming that single-use bag usage will decrease by 30% in the first year of the increased fee and then an additional 10% reduction in use per year after that until 2030, staff project the following revenue:
2027 - $250,000 (an increase of $74,190 from 2025)
2028 - $316,457 (an increase of $140,648 from 2025)
2029 - $351,619 (an increase of $175,810 from 2025)
2030 - $281,296 (an increase of $105,487 from 2025)
2027 revenue account GL# 2310.41027.101.445459.0000
Operations Impact
Staff from the Office of Sustainability and Resiliency have spent approximately 40 hours conducting research, community engagement activities and other work related to preparing this policy update. Once approved, OSR staff will spend approximately 8-20 hours a month on outreach, engagement, and education related to this policy change in the first year and then 4 hours a month thereafter.
DEI Impact
The ordinance updates retain the exemption from the fee for individuals utilizing government food assistance programs.
Banning plastic bags may increase costs for small businesses who will need to switch to paper bags. Staff will work with businesses ahead of the 2030 plastic bag ban to identify opportunities to support them during the transition.
An increase in bag fee may provide an additional burden to low-income residents and low-income individuals who rely on Oak Park retailers, as well as individuals who may rely on food delivery services. Not all of these individuals may qualify for government food assistance programs, which exempt them from this policy. Staff will continue to seek opportunities to support these individuals.
Community Input
Significant community input was utilized during the drafting of this policy.
General Public:
In 2025, the EEC created a survey to understand Oak Park resident and visitor concerns and opinions about the retail bag fee. Flyers with the survey information were delivered to retailers in the Village by EEC members for display for their customers. The Village also promoted the survey through Engage Oak Park and normal Village channels. The survey received 241 responses.
Village Staff attended A Day in Our Village on June 7, 2026 and Green Night Out on July 23, 2026. During that event, staff had an opinion poll asking “Do you support a plastic bag ban in Oak Park?”. Participants voted by placing a sticker to indicate either yes or no. There was overwhelming support for a ban. Between the two events, staff received 235 yes votes and 20 no votes. One of the primary reasons Staff heard from the “no” voters was that they reuse the plastic retail bags for other purposes such as pet waste and waste basket liners.
Businesses:
In May 2026, OSR staff visited each of the 17 retailers currently remitting the retail bag fee to the Village. Staff spoke with the manager on duty to describe the proposed ordinance change and provide an invitation to attend office hours with staff to discuss details and concerns. Office hours were held on May 26 (in person, Maze Library) and on May 28 (virtual). None of the 17 retailers chose to attend the office hours. The invitation also included a survey. Three retailers completed the survey. Primary comments related to logistics in fee collection and assistance communicating the fee to customers.
On June 17, 2026 OSR Staff met with the Business Association Council. The main concerns raised were related to the ban and how it might impact destination retailers and the potential impact on small businesses due to the increased cost of paper bags.
Commission Outreach:
In addition to the EEC, Staff consulted with four Village Commissions.
Community Relations Commission - May 20, 2026
CRC recommended requiring paper bags to have handles to increase the ease of carrying the bags.
Disability Access Commission - June 24, 2026
DAC did not have any accessibility concerns related to the ordinance.
Aging in Communities Commission- July 8, 2026
ACC identified a fee for grocery delivery services as a potential challenge for people who do not have the ability to go to a store. ACC also recommended using the reusable bags given away by the Village to promote other topics, such as Ageism Awareness.
Farmer’s Market Commission
The EEC and the FMC have been in ongoing discussions related to strategies to move away from the use of plastic bags at the Farmer’s Market.
Staff Recommendation
Adopt the ordinance.
Advantages:
• Achieve Board Goals and CROP goals related to plastic waste reduction.
• Maintain and increase revenue for the Sustainability Fund, which will be used to support waste reduction and emission reduction programs.
Disadvantages:
• Increased cost to the customers who use single-use bags.
• Potential loss of revenue to retailers if the policy results in lost business.
Alternatives
Alternative 1:
The Board can reject the ordinance.
Advantages:
• No additional cost will be assessed on customers who use single-use bags.
• Retail stores will not be required to make any changes to their fee collection.
Disadvantages:
• The Village will not be achieving CROP goals related to reducing plastic waste.
• The Village will not be increasing revenue for the Sustainability Fund.
Alternative 2:
The Board can reject the ordinance, direct staff to conduct outreach on single-use bag reduction.
Advantages:
• No additional cost to customers who use single-use retail bags.
• No need for retailers to change their fee collection.
• May result in a reduction in the use of single-use retail bags.
Disadvantages:
• This action may decrease revenue to the Sustainability Fund.
• This action will require staff time and financial resources for promotion without any increased revenue to support the outreach.
Anticipated Future Actions
The Village Board may be asked to evaluate and approve assistance programs for small businesses related to the plastic bag ban.
Prepared By: Lindsey Roland Nieratka, Chief Sustainability Officer
Reviewed By: Jack Malec, Assistant to the Village Manager
Approved By: Kevin J. Jackson, Village Manager
Attachment(s):
1. Ordinance
2. Survey Response Summary
3. Memo to the Village Board
4. Presentation