What's wrong with recycling the bottle caps and not having them all over the place because they're small and otherwise fall onto the streets, sewers, and trails?? It's really not a problem to have the lid attached to the bottle - works totally fine for me whether it's milk, soda, or apple juice.
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I'm not OP, but to me, the bureaucratic issue is that plastic bottles should be wholesale banned instead of this halfass attempt at regulation or heavily purchase-controlled.
This is a political and economic issue though, there is no support for this.