Because the volume of end-of-life (EOL) solar photovoltaic (PV) modules is projected to grow rapidly, state and federal policymakers are considering policies to increase the recycling of PV modules (i.e., solar panels). The authors analyze the major rationales for government intervention to increase PV module recycling and whether a mandate to recycle EOL PV modules can be justified on environmental, national security, or economic grounds.

Evaluating the Case for Solar Panel Recycling Mandates in the United States

Scott Behmer, Jo Caulkins, Andrew Star, Kelly Klima, Tom LaTourrette, Robin Wang

ResearchPublished Aug 25, 2026

The rapid adoption of clean energy products, such as solar photovoltaic (PV) modules (i.e., solar panels), has led to significant concerns about their end-of-life (EOL) management. In this report, the authors analyze the major rationales for government intervention to increase PV module recycling. Specifically, they assess whether a common policy intervention—a mandate to recycle EOL PV modules—can be justified on environmental, national security, or economic grounds. Recycling mandates are the primary policy of interest because they have been commonly used globally, and unlike more-incremental policy changes, mandates have a large impact on recycling rates.

While this research primarily focuses on solar PV recycling in the United States, it draws on evidence from other countries to inform the analysis. The authors provide an overview of the existing economic and policy landscape around the EOL management of solar PV modules. They then evaluate the major environmental, national security, and economic rationales given for a PV recycling mandate. Their analysis produces estimates of life-cycle greenhouse gas (GHG) emission reductions, non-GHG environmental benefits, and the maximum annual volumes of recovered critical minerals.

Drawing from these analytical findings, they offer a list of policy recommendations to federal and state policymakers involved in the passage or design of PV recycling policy in the United States, including legislators, their staff, and officials at executive branch agencies with relevant jurisdiction, such as the U.S. Environmental Protection Agency and state environmental agencies.

Key Takeaways

  • Available evidence suggests that solar PV waste does not present a major environmental problem in the United States.
  • As of June 2026, recycling PV modules in the United States is more expensive, on average, than landfilling them.
  • By increasing the lifetime cost of solar power, a PV recycling mandate could cause a small reduction in solar adoption, which could lead to environmental damage in the form of increased GHG emissions.
  • Modern PV recycling can recover many critical minerals, including aluminum, copper, tellurium, and metallurgical-grade silicon, which could reduce U.S. supply chain vulnerabilities for those materials.
  • Stockpiling critical minerals could provide similar supply chain security benefits as a PV recycling mandate at a lower cost.
  • Data on the PV recycling market are limited. Improved data collection on recycling prices and other quantities could significantly reduce uncertainty about the impacts of PV recycling policies.

Recommendations

  • Policymakers should consider alternatives to a PV recycling mandate, such as a PV recycling subsidy.
  • If a PV recycling mandate is pursued, policymakers should prioritize minimizing the administrative compliance costs associated with the policy.
  • Policymakers focused on critical mineral supply chain vulnerabilities should consider stockpiling as an alternative policy.
  • Policymakers that are concerned about PV waste management should consider funding improved data collection on the PV recycling market.

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Behmer, Scott, Jo Caulkins, Andrew Star, Kelly Klima, Tom LaTourrette, and Robin Wang, Evaluating the Case for Solar Panel Recycling Mandates in the United States. Santa Monica, CA: RAND Corporation, 2026. https://www.rand.org/pubs/research_reports/RRA5025-1.html.
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