Why do some states have deposits on bottles and cans and others don't?

When I lived in Oregon you take your cans and bottles to the grocery store and cash them in for a nickel a piece. A few other states do this but most don’t. In Tennesse there is no deposit and there is bottles and cans all over the roads. In Oregon there is no bottles or cans on the side of the road. The bums will fight over them or even steal empties off your porch. It makes recycling a lot more appealing. You think as big a business as recycling is now more states would do it.