It's part of the package. I think San Fran hands out 5 million a year, BC gives out 15 (probably closer to 20) million needles, Edmonton 2-3 million. They only just started counting how many they had to pick up last year. Even at 7-10%, they're losing track of hundreds of thousands of needles in the area.
https://edmontonjournal.com/news/cri...safe-injection
Last year, the service distributed a record 2.25 million syringes through its needle exchange van and exchange sites throughout the city. The goal, Taylor said, is to “flood the market” with clean needles, reducing the health impacts of intravenous drug use.