Recovered Materials Advisory Notice

SUMMARY: The Environmental Protection Agency today is providing notice

of the issuance of a draft Recovered Materials Advisory Notice. Under

section 6002 of the Resource Conservation and Recovery Act of 1976, EPA

designates items that are or can be made with recovered materials and

provides recommendations for the procurement of these items. EPA

previously designated five items and combined the designations and

recommendations in item-specific procurement guidelines. Executive

Order 12873 directs EPA to change the process for designating items and

providing recommendations. EPA now is to designate procurement items in

a Comprehensive Procurement Guideline and to provide recommendations in

related Recovered Materials Advisory Notices. Elsewhere in today's

Federal Register, EPA is proposing its first Comprehensive Procurement

Guideline. It designates the items for which the Recovered Materials

Advisory Notice provides recommended recovered materials content

levels. These recommendations are organized within the following

product categories: vehicular products, construction products,

transportation products, park and recreation products, landscaping

products, and non-paper office products.

DATES: EPA will accept public comments on the recommendations contained

in the draft Recovered Materials Advisory Notice until June 20, 1994.

ADDRESSES: The public must send an original and two copies of comments,

referencing docket F-94-PRMP-FFFFF to the RCRA Information Center

(5305), U.S. EPA, 401 M Street SW., Washington, DC 20460. Commenters

wishing to submit Confidential Business Information (CBI), should

submit an original and two copies of the CBI, referencing docket F-94-

PRMP-FFFFF, under separate cover to the Document Control Officer

(5305), Office of Solid Waste, U.S. Environmental Protection Agency,

401 M Street SW., Washington, DC 20460.

Public comments and relevant documents are available for viewing at

the RCRA Information Center (RIC), located in room M2616, at the EPA

address listed above. The RIC is open from 9 am to 4 pm, Monday through

Friday, excluding Federal holidays. To review docket materials, the

public must make an appointment by calling (202) 260-9327. Materials

may be copied for $0.15 per page.

FOR FURTHER INFORMATION CONTACT: For general information, contact the

RCRA Hotline, (800) 424-9346, or, in the Washington, DC metropolitan

area, (703) 412-9810. For technical information regarding the

recommendations for the following individual items, contact the

referenced EPA staff: Building insulation, structural fiberboard,

laminated paperboard, cement and concrete containing GGBF slag,

hydraulic mulch, and engine coolants--Dana Arnold, (202) 260-8518;

plastic pipe, geotextiles, carpet, floor tiles and patio blocks, and

playground surfaces and running tracks, Robin Moran--(202) 260-5066;

yard trimmings compost--Hope Pillsbury, (202) 260-2797; traffic control

devices and non-paper office products--Beverly Goldblatt, (202) 260-

7932. For all other technical information, contact Beverly Goldblatt,

(202) 260-7932, or Dana Arnold, (202) 260-8518.

SUPPLEMENTARY INFORMATION:

Preamble Outline

I. Authority

II. Introduction

III. Recovered Materials Content

A. Use of Minimum Recovered Materials Content Standards

B. Methodology For Recommending Recovered Materials Content

Levels

IV. Affirmative Procurement Programs

A. General Recommendations

B. Calculation of Product Content for Purposes of Certification

V. Recommendations for Vehicular Products

A. Engine Coolants

1. Preference Program

2. Background

3. Specifications

VI. Recommendations for Construction Products

A. Building Insulation Products

1. Rock Wool Insulation

2. Fiberglass Insulation

3. Polystyrene Rigid Foam

B. Structural Fiberboard and Laminated Paperboard Products

1. Preference Program

2. Background

3. Specifications

C. Plastic Pipe and Fittings

1. Preference Program

2. Background

3. Specifications

D. Geotextiles and Related Products

1. Preference Program

2. Background

3. Specifications

E. Cement and Concrete Containing Ground Granulated Blast

Furnace (GGBF) Slag

1. Preference Program

2. Background

3. Specifications

F. Carpet

1. Preference Program

2. Background

3. Specifications

G. Floor Tiles and Patio Blocks

1. Preference Program

2. Background

3. Specifications

VII. Recommendations for Transportation Products

A. Temporary Traffic Control Devices

1. Preference Program

2. Background

3. Specifications

VIII. Recommendations for Park and Recreation Products

A. Playground Surfaces and Running Tracks

1. Preference Program

2. Background

3. Specifications

IX. Recommendations for Landscaping Products

A. Hydraulic Mulch Products

1. Preference Program

2. Background

3. Specifications

B. Yard Trimmings Compost

1. Preference Program

2. Background

3. Specifications

X. Recommendations for Non-Paper Office Products

A. Office Recycling Containers and Waste Receptacles

1. Preference Program

2. Background

3. Specifications

B. Plastic Desktop Accessories

1. Preference Program

2. Background

3. Specifications

C. Remanufactured Toner Cartridges

1. Preference Program

2. Background

3. Specifications

D. Binders

1. Preference Program

2. Background

3. Specifications

E. Plastic Trash Bags

1. Preference Program

2. Background

3. Specifications

XI. Recommendations for Miscellaneous Products

I. Authority

The draft Recovered Materials Advisory Notice is published under

the authority of sections 2002(a) and 6002 of the Solid Waste Disposal

Act, as amended by the Resource Conservation and Recovery Act of 1976,

as amended, 42 U.S.C. 6912(a) and 2962, and Executive Order 12873 (58

FR 54911, October 20, 1993).

II. Introduction

Section 6002 of the Resource Conservation and Recovery Act of 1976

(RCRA) establishes a Federal buy-recycled program. RCRA section 6002(e)

requires EPA to (1) designate items which are or can be produced with

recovered materials and (2) prepare guidelines to assist procuring

agencies in complying with affirmative procurement requirements set

forth in paragraphs (c), (d), and (i) of section 6002. Once EPA has

designated items, section 6002 requires that any procuring agency using

appropriated Federal funds to procure those items must purchase them

containing the highest percentage of recovered materials practicable.

EPA previously issued five guidelines for procurement of products

containing recovered materials: Cement and concrete containing fly ash

(40 CFR part 249, 48 FR 4230, January 28, 1983), paper and paper

products (40 CFR part 250, 53 FR 23546, June 22, 1988), re-refined

lubricating oil (40 CFR part 252, 53 FR 24699, June 30, 1988), retread

tires (40 CFR part 253, 53 FR 46558, November 17, 1988), and building

insulation products (40 CFR part 248, 54 FR 7327, February 17, 1989).

Each of these guidelines contains item designations and procurement

recommendations for the designated items. Both the item designations

and the procurement recommendations were then codified in the Code of

Federal Regulations (CFR).

In order to expedite the process of issuing procurement guidelines,

Executive Order 12873 (58 FR 54911, October 22, 1993), which was signed

by President Clinton on October 20, 1993, directs EPA to change the

procedure used for designating items and providing procurement

recommendations. Under the Order, EPA is to issue a regulation, known

as a Comprehensive Procurement Guideline (CPG), which will contain the

item designations, and a guidance document, known as a Recovered

Materials Advisory Notice (RMAN), which will contain EPA's

recommendations for purchasing the designated items. The Order further

directs EPA to update the CPG annually and the RMAN periodically, after

public comment, to reflect changes in market conditions. Under this

procedure, EPA will continue to codify the item designations in the

CFR, but not the recommendations. In accordance with the Order, the

recommendations will be available in the guidance document (i.e., the

Recovered Materials Advisory Notice).

EPA is proposing the CPG concurrently in today's Federal Register.

In the CPG, EPA proposes to consolidate the five existing procurement

guidelines and the proposed new item designations into one document.

Similarly, in today's draft RMAN, EPA is establishing a framework for

consolidating the recommendations made in the five existing procurement

guidelines and the recommendations for the proposed new procurement

items into one document. The recommendations are organized into eight

product categories corresponding to the categories used in the CPG:

paper and paper products, vehicular products, construction products,

transportation products, park and recreation products, landscaping

products, non-paper office products, and miscellaneous products. When

EPA finalizes the RMAN, the existing recommendations for paper and

paper products will be found in the first category, the recommendations

for re-refined lubricating oil and retread tires will be found in the

vehicular products category, and the recommendations for building

insulation products and cement and concrete will be found in the

construction products category.

Although EPA intends to consolidate the recommendations from the

five existing procurement guidelines into the RMAN, they are not

included in today's draft RMAN in order to avoid confusion over the

scope of recommendations on which EPA is requesting comment. Notice of

the issuance of the final RMAN will be provided when the CPG is issued

as a final rule. At that time, the recommendations in EPA's existing

procurement guidelines will be consolidated into the final RMAN.

Later this year, EPA intends to issue a draft paper products RMAN

for public comment. This additional draft RMAN will contain revisions

to EPA's recommended recovered materials content levels for paper

products and address a variety of issues that have been raised as

procuring agencies have implemented affirmative procurement programs

for paper products containing recovered materials. It also will

incorporate the minimum content standards for specified uncoated

printing and writing papers established in section 504 of Executive

Order 12873. Federal executive agencies should note, however, that,

beginning December 31, 1994, the standards in section 504 of the Order

are applicable to their paper purchases whether or not EPA proposes to

add them to the paper guideline. Federal executive agencies also should

note that the Order requires them to purchase paper containing

postconsumer recovered materials or specified recovered materials

immediately.

In addition to establishing the new framework, today's draft RMAN

contains general recommendations for affirmative procurement programs,

recommended recovered materials content levels for the 21 new items

proposed for designation in the CPG, an increase in the recommended

recovered materials content level of rock wool insulation, and a range

of recommended recovered materials content levels for fiberglass

insulation. (Both rock wool and fiberglass insulation were designated

previously in the existing building insulation products procurement

guideline.)

Executive Order 12873 requires EPA to update the recommended

recovered materials content levels periodically to reflect current

usage of recovered materials in designated items. The Agency will

establish a process for the public to provide current information about

the percentages of recovered materials used in designated items. EPA

intends to issue a Federal Register notice that will describe this

process and provide information on how the public can participate.

Today, the Agency is soliciting options for increasing public

participation in developing the updates of the RMAN.

Finally, since EPA uses acronyms for organizations and materials

throughout this preamble, they are listed in Table 1 for the

convenience of the reader.

Table 1.--Acronyms Used in the Recovered Materials Advisory Notice

------------------------------------------------------------------------

Acronym Term

------------------------------------------------------------------------

AASHTO American Association of State Highway and Transportation

Officials.

ASHRAE American Society for Heating, Refrigeration and Air

Conditioning Engineers.

ASTM American Society for Testing and Materials.

BOCA Building Officials Council of America.

CABO Council for American Builders Association.

CPG Comprehensive Procurement Guideline.

DWV Drain, waste, and vent.

E.O. Executive Order 12873.

EPA Environmental Protection Agency.

GGBF Ground granulated blast furnace (slag).

GSA General Services Administration.

HDPE High density polyethylene.

LDPE Low density polyethylene.

PET Polyethylene terephthalate.

PP Polypropylene.

PVC Polyvinyl chloride.

RCRA Resource Conservation and Recovery Act.

RMAN Recovered Materials Advisory Notice.

------------------------------------------------------------------------

III. Recovered Materials Content

A. Use of Minimum Recovered Materials Content Standards

For most designated items, EPA recommends in today's draft RMAN

that procuring agencies establish minimum recovered materials content

standards. EPA stated in previous guidelines that the use of minimum

content standards would satisfy the statutory requirement to procure

products containing the highest levels of recovered materials

practicable (see for example, 53 FR 23553, June 22, 1988).

For some items, the use of minimum content standards is

inappropriate because the product is remanufactured, reconditioned, or

rebuilt (e.g., remanufactured toner cartridges). In these instances,

EPA will recommend that procuring agencies use a substantially

equivalent alternative to the minimum content standards approach. For

example, in the case of toner cartridges, EPA recommends that procuring

agencies establish a two-pronged program consisting of remanufacturing

their expended toner cartridges and purchasing remanufactured toner

cartridges when replacement cartridges are needed. Minimum content

standards are inapplicable because the recovered material is the

expended cartridge, rather than individual components used to produce a

new cartridge.

EPA notes that, under RCRA section 6002(i), it is the procuring

agencies' responsibility to establish minimum recovered materials

content standards, while EPA provides recommendations regarding the

levels of recovered materials in the designated items. To make it clear

that EPA does not establish minimum content standards for other

agencies, EPA will no longer refer to its recommendations as recovered

materials content ``standards,'' as was done in the existing

procurement guidelines. Instead, EPA will refer to its recommendations

as recovered materials content ``levels,'' consistent with RCRA section

6002(e) and Executive Order 12873.

The Order directs EPA to present, in the RMAN, ``the range of

recovered materials content levels within which the designated recycled

items are currently available.'' In meeting this provision, EPA will

recommend ranges that reflect the best information available to the

Agency about the use of recovered materials in the manufacture of a

given item and that encourage manufacturers to use the maximum amount

of recovered materials without compromising competition or product

performance and availability. EPA recommends that procuring agencies

use these ranges, in conjunction with their own research into the

recovered materials content of items available to them, to establish

their minimum content standards. In some instances, EPA will recommend

one level (e.g., 100 percent recovered materials), rather than a range,

because the item is universally available at that recommended level;

EPA recommends that procuring agencies establish their minimum content

standards at that level.

B. Methodology for Recommending Recovered Materials Content Levels

EPA identified and evaluated pertinent data sources and information

regarding the percentages of recovered materials contained in the items

proposed for designation in the CPG. Prior to issuance of Executive

Order 12873, EPA was considering five items for designation--

fiberboard, hydraulic mulch, plastic pipe, geotextiles, and compost.

For these items, EPA reviewed previously-gathered data. For the other

items, EPA reviewed and evaluated information obtained from product

manufacturers. In addition, EPA gathered and evaluated publicly-

available information and information provided by other Federal

agencies. Based on this information, EPA established a range of

recovered materials content levels within which each of the items

proposed for designation is available. In establishing the ranges,

EPA's objective was to ensure the availability of the item, while

challenging manufacturers to increase their use of recovered materials.

EPA believes that a range of content levels is appropriate at this

time for three reasons. First, EPA has only limited information on

recovered materials content levels for the newly-designated items.

Second, rather than being purchased centrally, many of these items will

be purchased locally, meaning that the recovered materials content of

these items is likely to vary substantially, making it problematic to

recommend a single content level at this time. Third, the Executive

Order directs EPA to propose an RMAN that presents ``the range of

recovered materials content levels within which the designated recycled

items are currently available.'' By recommending ranges, EPA believes

that sufficient information will be provided to enable procuring

agencies to set appropriate procurement specifications when purchasing

the newly designated items.

It is EPA's intention to provide procuring agencies with the best

and most current information available to assist them in fulfilling

their statutory obligations under RCRA section 6002. To do this, EPA

will monitor the progress made by procuring agencies in purchasing

designated items with the highest recovered materials content

practicable and will adjust the recommended content ranges accordingly.

EPA anticipates that, over time, the recommended ranges will narrow.

As discussed above, EPA also is increasing the recommended

recovered materials content level for rock wool insulation and adding

recommended recovered materials content levels for fiberglass

insulation, both of which were designated in the existing building

insulation guideline. In the existing procurement guidelines, EPA

recommended a single content level for each designated item. When

changing these recommendations, in those instances where there is

sufficient information on current manufacturing practices to determine

that a single recovered materials content level is appropriate (e.g.,

rock wool insulation), EPA will recommend one. In other instances, EPA

will recommend a range of recovered materials content levels (e.g., for

fiberglass insulation).

IV. Affirmative Procurement Programs

A. General Recommendations

An affirmative procurement program is an agency's strategy for

maximizing its purchases of an EPA-designated item. RCRA section

6002(i) requires that an affirmative procurement program consist of a

minimum of four elements: (1) A preference program; (2) a promotion

program; (3) procedures for obtaining estimates and certifications of

recovered materials content and, where appropriate, reasonably

verifying those estimates and certifications; and (4) procedures for

monitoring and annually reviewing the effectiveness of the program. In

addition, Executive Order 12873 requires an agency affirmative

procurement program to encourage the electronic transfer of documents,

the two-sided printing of government documents, and the inclusion of

provisions in contracts, grants, and cooperative agreements that

require documents to be printed two-sided on recycled paper.

EPA discussed preference programs in the previous section of the

preamble, in which EPA generally recommended that procuring agencies

establish minimum content standards for designated items. This section

of the preamble discusses promotion and monitoring. Certification is

discussed in section IV.B.

In previous guidelines, EPA recommended that specific actions be

taken by requesting officials, contracting officers, and architects and

engineers when purchasing designated items. In consulting with

acquisition policy and requirements officials from several major

Federal agencies, EPA determined that these item-specific

recommendations did not provide enough flexibility for procuring

agencies to determine the appropriate delineation of responsibilities

for implementing the statutory requirements. Based on this information

and because of the broad array of products proposed for designation

today in the CPG, EPA will no longer make specific recommendations for

individuals within an agency to implement the requirements of RCRA

section 6002 and Executive Order 12873. Instead, EPA recommends that

the Environmental Executive within each major procuring agency take the

lead in developing the agency's affirmative procurement program and in

implementing the recommendations set forth in this RMAN.

The basic responsibilities of an Agency Environmental Executive are

described in sections 302 and 402 of Executive Order 12873. Section 302

charges each Agency Environmental Executive with coordinating all

environmental programs in the areas of acquisition, standard and

specification revision, facilities management, waste prevention,

recycling, and logistics. Section 402(c) of the Order further requires

each Agency Environmental Executive to track and report, to the Federal

Environmental Executive, agency purchases of EPA-designated items. In

the absence of such an individual, EPA recommends that the head of the

implementing agency appoint an individual who will be responsible for

ensuring the agency's compliance with RCRA section 6002 and Executive

Order 12873.

Although RCRA section 6002 and the Executive Order require

procuring agencies to establish affirmative procurement programs for

each EPA-designated item, EPA recommends that each agency develop one

comprehensive affirmative procurement program with a structure that

allows for the integration of new items as they are designated. EPA

encourages agencies to implement preference programs for non-guideline

items as well, in order to maximize their purchases of recycled

products and foster markets for recovered materials.

RCRA section 6002(i)(2)(B) requires each procuring agency to adopt

a program to promote its preference to buy EPA-designated items with

recovered materials content. The promotion component of the affirmative

procurement program educates staff and notifies an agency's current and

potential vendors, suppliers, and contractors of the agency's intention

to buy recycled products.

In the previous guidelines, EPA targeted its recommendations for

promoting the affirmative procurement program at the agency's vendors

and contractors. EPA has determined that the education of an agency's

employees is also an important part of the promotion program.

Therefore, EPA believes that an agency's promotion program should

consist of two components: an internal promotion program and an

external promotion program.

There are several methods that procuring agencies can use to

educate their employees about their affirmative procurement programs.

These methods include preparing and distributing agency affirmative

procurement policies, publishing articles in agency newsletters and

publications, including affirmative procurement program requirements in

agency staff manuals, and conducting workshops and training sessions to

educate employees about their responsibilities under agency affirmative

procurement programs.

Methods for educating existing contractors and potential bidders of

an agency's preference to purchase products containing recovered

materials include publishing articles in appropriate trade

publications, participating in vendor shows and trade fairs, placing

statements in solicitations, and discussing an agency's affirmative

procurement program at bidders' conferences.

Procuring agencies should monitor their affirmative procurement

programs to ensure that they are fulfilling their requirements to

purchase items composed of recovered materials to the maximum extent

practicable. RCRA section 6002(i)(2)(D) requires the affirmative

procurement program to include procedures for annually reviewing and

monitoring the effectiveness of agency affirmative procurement

programs. Section 402 of Executive Order 12873 requires the

Environmental Executive of each Executive agency to track and report on

agency purchases of EPA-designated items. Additionally, RCRA section

6002(g) requires OFPP to submit a report to Congress every two years on

actions taken by Federal agencies to implement the affirmative

procurement requirements of the statute. Also, section 301 of Executive

Order 12873 requires the Federal Environmental Executive to submit an

annual report to OMB, at the time of agency budget submission, on

Federal compliance with the Order. In order to fulfill their

responsibilities, EPA anticipates that the Federal Environmental

Executive and OFPP will request information from Federal agencies on

their affirmative procurement practices. Therefore, it is important for

agencies to maintain adequate records of procurements that may be

affected by Executive Order and RCRA requirements.

In order to comply with the Executive Order, agencies will need to

track their purchases of products made with recovered materials

content. This will also allow them to establish benchmarks from which

progress can be assessed. To maintain adequate records on procurement

of products containing recovered materials, procuring agencies may

choose to collect data on the following:

The percentages of recovered materials content in the

items procured or offered;

Comparative price information on competitive procurements;

The quantity of each item procured over a fiscal year;

The availability of each item with recovered materials

content; and

Performance information related to recovered materials

content of an item.

EPA recognizes that a procuring agency may be unable to obtain

accurate data for all items designated by EPA. However, EPA believes

that, in many cases, estimated data will suffice in determining the

effectiveness of the agency's affirmative procurement program.

B. Calculation of Product Content for Purposes of Certification

RCRA section 6002(i)(2)(C) requires the affirmative procurement

program to include procedures for estimating, certifying, and, where

appropriate, reasonably verifying the amount of recovered materials

content utilized in the performance of a contract. In addition, RCRA

section 6002(c) requires contracting officers to obtain from vendors a

certification ``that the percentage of recovered materials to be used

in the performance of the contract will be at least the amount required

by applicable specifications or other contractual requirements.'' When

an item is made on a batch basis, the certification should be for the

recovered materials content of the batch. However, batch certifications

are not always possible; in those cases, certification of recovered

materials use over a specified period of time is appropriate.

Because each product will be different, in today's draft RMAN, EPA

recommends that procuring agencies discuss certification with product

vendors to ascertain the appropriate period for certifying recovered

materials content. EPA recommends that, whenever feasible, the

recovered materials content of a product be certified on a batch-by-

batch basis or as an average over a calendar quarter or some other

appropriate averaging period as determined by the procuring agencies.

V. Recommendations for Vehicular Products

Part B of the draft RMAN contains EPA's recommendations for

vehicular products. EPA's existing recommendations for re-refined

lubricating oil and retread tires will be placed in Sections B-1 and B-

2, respectively, in the final RMAN. Section B-3 contains EPA's

recommendations for engine coolants.

A. Engine Coolants

1. Preference Program

In today's draft RMAN, EPA recommends that procuring agencies whose

vehicles are serviced by a motor pool or vehicle maintenance facility

establish a program for engine coolant reclamation and reuse,

consisting of either reclaiming the spent engine coolants on-site for

use in the agencies' vehicles, or establishing a service contract for

reclamation of the agencies' spent engine coolant for use in the

agencies' vehicles.

EPA has no information about the availability of reclaimed engine

coolants for procurement as a product, although the Agency is aware

that some local government agencies purchase reclaimed engine coolants.

EPA requests information from manufacturers and purchasers about the

performance, availability, and relative price of reclaimed engine

coolants. EPA further requests information from public or private

purchasers of reclaimed engine coolants about specifications used to

procure this item.

Procuring agencies should note that engine coolants can contain

either ethylene glycol or propylene glycol. Because of chemistry

differences, these two types of engine coolant currently must be

reclaimed separately. Therefore, in order to implement an engine

coolant reclamation program, EPA recommends that procuring agencies

purchase only one type of engine coolant or establish procedures to

prevent commingling of engine coolants containing ethylene glycol and

propylene glycol.

Procuring agencies also should note that, in some instances, spent

engine coolant can exhibit the toxicity characteristic of hazardous

waste by failing EPA's Toxicity Characteristic Leaching Procedure

(TCLP). If a procuring agency determines that its spent engine coolant

is a hazardous waste, it must manage the engine coolant in accordance

with applicable Federal or state hazardous waste management

requirements, including the generator requirements found in 40 CFR Part

262 and the requirements for recyclable materials found in 40 CFR

261.6. Because state hazardous waste regulations generally apply in

lieu of the Federal regulations, procuring agencies should contact

their state environmental agency (or, if the state is not authorized,

the appropriate EPA Regional Office) for specific information on

applicable requirements.

2. Background

Engine coolants, also know as antifreeze, are a necessary

automotive chemical. Engine coolants are manufactured from one of two

chemicals: Ethylene glycol or propylene glycol. Coolant additives are

then added to inhibit corrosion within the engine.

Spent engine coolants can be reclaimed by removing contaminants and

breakdown products of the original ingredients and by replacing

corrosion inhibitors. Engine coolant reclamation is done in one of two

ways: filtration or distillation. Reclamation results in both waste

reduction and materials recovery benefits.

There is one potential impediment to reclamation of engine

coolants: the mixing of the two types of engine coolant, ethylene

glycol and propylene glycol. Propylene glycol-based engine coolant has

just recently been marketed nationwide for consumer purchase. Engine

coolant reclaimers will reject spent engine coolant if it contains more

than 1 percent propylene glycol because it interferes with their

reclamation of ethylene glycol due to differences in the chemistry of

the two materials.

Military installations, the Postal Service, and some Federal

civilian agencies have motor pools or vehicle maintenance facilities at

which vehicles are serviced. The Postal Service informed EPA that it

has established engine coolant reclamation programs at all of its

vehicle maintenance facilities. Some Naval installations also reclaim

spent engine coolants or contract for reclamation services. Limited EPA

research revealed that one naval shipyard has been able to recover

6,000 gallons of engine coolant annually. The Postal Service does not

maintain quantitative statistics on its engine coolant reclamation

program.

EPA believes that other procuring agencies can successfully

implement similar programs.

3. Specifications

The American Society for Testing and Materials' (ASTM) D15

committee on engine coolants has published standards for reclaimed

engine coolants. Procuring agencies should refer to ASTM specifications

D 3306 and D 4985.

VI. Recommendations for Construction Products

Part C of the draft RMAN contains EPA's recommendations for

construction products. Recommendations for specific items are in the

following sections of the draft RMAN:

Section C-1--building insulation products,

Section C-2--structural fiberboard and laminated

paperboard products,

Section C-3--plastic pipe and fittings,

Section C-4--geotextiles and related products,

Section C-5--cement and concrete,

Section C-6--polyester carpet, and

Section C-7--floor tiles and patio blocks.

A. Building Insulation Products

EPA recommended an affirmative procurement program for building

insulation products in its 1989 procurement guideline (54 FR 7327, 40

CFR part 248). Specifically, EPA recommended that procuring agencies

use recovered materials content standards when purchasing cellulose

loose-fill and spray-on insulation, perlite composite board, plastic

rigid foam insulation, phenolic rigid foam insulation, and rock wool

insulation. For fiberglass insulation, ``cellulosic'' fiberboards, and

polystyrene rigid foam insulation, EPA recommended that agencies use a

case-by-case approach to purchasing these items containing recovered

materials, because either they were not reasonably available or there

was insufficient competition for EPA to recommend content levels.

Today, EPA is revising the recommendations to (1) increase the

recommended content level for rock wool insulation, (2) recommend a

range of recovered materials content levels for fiberglass insulation,

and (3) recommend recovered materials content levels for structural

fiberboard and laminated paperboard used for insulating purposes. This

section explains the recommendations for fiberglass and rock wool

insulation, while the fiberboard/paperboard recommendations are

explained in section V.B below.

Tables C-1 and C-2 of the draft RMAN contain the recommended

recovered materials content levels for rock wool and fiberglass

insulation products and for fiberboard and paperboard, respectively.

The item designations and definitions for these products are found in

40 CFR part 247.

1. Rock Wool Insulation

EPA is increasing the recommended recovered materials content level

for rock wool insulation products based on a Procurement Guidelines

Advisory (PGA) issued by EPA in 1990 (September 10, 1990). The PGA

presented information obtained through research on use of recovered

materials by the rock wool insulation industry, which indicated that

EPA's original recommended minimum content level for rock wool (50

percent recovered materials) was below the current level of recovered

materials typically being used by rock wool manufacturers. Based on a

request from rock wool manufacturers and additional research, EPA

decided to increase the recommended recovered materials content level

for rock wool insulation to 75 percent recovered materials, thereby

encouraging an increase in the amount of recovered materials used in

rock wool procured by government agencies.

2. Fiberglass Insulation

a. Preference program. In today's draft RMAN, EPA recommends that

procuring agencies establish minimum recovered cullet content standards

for fiberglass insulation, based on EPA's recommended range of 20-25

percent recovered cullet.

b. Background. At the time the building insulation products

procurement guideline was issued, EPA could not identify any

manufacturers that were using recovered materials to make fiberglass

insulation on a routine basis. EPA was aware of several efforts on the

part of manufacturers to do so, however. For this reason, EPA

recommended that procuring agencies conduct market research to

determine if fiberglass insulation containing recovered materials was

available and, if so, try to obtain it on a case-by-case basis. EPA

further recommended that procuring agencies use the case-by-case

approach until they determined that fiberglass insulation containing

recovered materials was reasonably available. Procuring agencies could

then establish minimum content standards for use in purchasing

fiberglass insulation.

Since the guideline was issued, several developments have occurred

that have caused EPA to revisit the feasibility of recommending that

procuring agencies establish minimum content standards for fiberglass

insulation. First, collection of postconsumer glass bottles has

increased, and manufacturers now are using both pre- and postconsumer

glass cullet to make fiberglass insulation more routinely than when the

insulation guideline was issued. Second, in 1991, the State of

California enacted the Fiberglass Recycled Content Act, A.B. 1340,

mandating that fiberglass manufactured and sold within the State

contain specified percentages of cullet; manufacturers have been

producing fiberglass insulation meeting these percentage requirements.

Third, in 1993, the ASTM published consensus Standard Specification D

5359, Glass Cullet Recovered from Waste for Use in Manufacture of Glass

Fiber. This specification is aimed at improving the quality of glass

cullet supplied to fiberglass insulation manufacturers. It creates

three grades of glass cullet and specifies the chemical composition,

color mix ratio, contaminants restrictions, and particle size for each

grade.

The California legislation mandates a ``cullet'' content of 10

percent in 1992, increasing to 20 percent in 1994. ``Cullet'' includes

both postconsumer bottle glass and any other glass not generated by

fiberglass manufacturing. The law also requires that the content

increase to 30 percent in 1995, if it is determined, based on a public

meeting to be held in 1994, that the higher content level is feasible.

Fiberglass insulation manufacturers indicated to EPA that, based on

the availability and cost of recovered cullet meeting their feedstock

specifications, they can now produce fiberglass insulation containing

20 percent recovered cullet. They further indicated that, since the

California law required them to increase cullet usage in fiberglass

insulation manufactured or sold in the State, they believed that

supplies of recovered cullet would increase, and they could increase

cullet content in products available nationwide to 25 percent beginning

in 1997.

From our research and the additional information provided by the

fiberglass manufacturers, EPA concludes that fiberglass insulation

containing 20 percent recovered glass cullet is now reasonably

available nationwide. EPA further concludes that fiberglass insulation

containing postconsumer glass bottle cullet is not reasonably available

due to inconsistent supplies of postconsumer glass cullet meeting the

industry's specifications.

Given the fluctuations in price and availability of cullet meeting

the fiberglass manufacturers' specifications, however, EPA believes

that some manufacturers will be able to use 25 percent cullet at some

of their plants now, while others may not be able to use 25 percent

cullet even in 1997. For this reason, EPA is recommending a recovered

materials content range of 20-25 percent cullet. Using this range,

procuring agencies should establish their minimum content standards for

fiberglass insulation at the highest level practicable.

c. Use of postconsumer glass bottle cullet. EPA is aware that there

are insufficient markets in some parts of the U.S. for postconsumer

glass bottle cullet collected through municipal solid waste programs

and that fiberglass insulation is a potential market for this material.

Fiberglass manufacturers have experienced problems obtaining

postconsumer glass bottle cullet that meets their feedstock quality

specifications, however. EPA requests information on the feasibility of

establishing a postconsumer cullet standard for fiberglass insulation

to create a market for these materials. In particular, EPA requests

information about the sources, availability, and cost of postconsumer

cullet meeting the fiberglass manufacturers' feedstock quality

specification and, in light of this information, recommendations for

the minimum postconsumer cullet content levels that are practicable.

d. Specifications. As previously discussed, in 1993, ASTM issued a

standard for the composition of cullet used in the manufacture of

fiberglass insulation. EPA wants to ensure that procuring agencies are

aware of this standard so that they can promote the availability of

consistent supplies of recovered cullet meeting the feedstock

specifications of the fiberglass manufacturers.

3. Polystyrene Rigid Foam

Polystyrene rigid foam insulation was included in the scope of the

original building insulation products procurement guideline, but EPA

did not recommend a recovered materials content level for this item

because it was commercially unavailable containing recovered materials.

EPA now is aware of one manufacturer using recovered materials. One

manufacturer does not constitute adequate competition, however.

Therefore, EPA requests information on other manufacturers of

polystyrene rigid foam insulations using recovered materials. EPA is

interested in learning the type(s) and percentage(s) of recovered

materials used by each manufacturer.

B. Structural Fiberboard and Laminated Paperboard Products

1. Preference Program

In today's draft RMAN, EPA recommends that procuring agencies

establish minimum recovered materials content standards for use in

purchasing structural fiberboard and laminated paperboard products,

whether for insulating, structural, or decorative applications. EPA

recommends that the standards be based on the content levels shown in

Table C-2 of the draft RMAN.

2. Background

Structural fiberboard and laminated paperboard products, whether

used for insulating or for structural applications, are manufactured

with a variety of recovered materials. In structural fiberboard, the

recovered materials used include wood wastes, bagasse (sugar cane

waste), over-issue newspapers and magazines, and postconsumer

newspaper, corrugated, and mixed paper. In laminated paperboard,

postconsumer paper is the principal recovered material used, including

old newspapers and old corrugated containers. In structural fiberboard

products, the range of recovered paper content is 18 to 100 percent,

with most manufacturers now using 20 percent postconsumer recovered

paper. In laminated paperboard products, two of the manufacturers use

100 percent postconsumer paper, while the third manufacturer uses

varying percentages of postconsumer recovered paper, depending on

customers' specifications.

RCRA section 6002 emphasizes postconsumer content in the case of

paper. Consistent with the Act and because paper and paperboard are the

largest components of the municipal waste stream, EPA believes that it

is important to foster markets for postconsumer recovered paper. EPA

emphasized postconsumer content for most grades of paper and paperboard

in the 1988 paper procurement guideline. In today's draft RMAN, EPA

recommends postconsumer recovered paper content levels for both

structural fiberboard and laminated paperboard products.

EPA does not believe, however, that Congress intended for use of

postconsumer paper to increase in all products at the expense of other

recovered materials. Doing so would simply substitute one component of

the waste stream--paper--for other components. Doing so could also

endanger established markets for the other components. Therefore, we

believe that it is appropriate when purchasing products, such as

structural fiberboard, that can contain other recovered materials in

addition to paper, to encourage continued use of these other recovered

materials as well. The recovered materials content levels recommended

today for structural fiberboard products balance usage of both kinds of

recovered materials and recognize that these products create a market

for bagasse and wood wastes, as well as for postconsumer paper.

a. Structural fiberboard products. There are seven manufacturers of

structural fiberboard. Table 2 shows the current recovered materials

content of their products. While one manufacturer of structural

fiberboard products is able to use 100 percent postconsumer recovered

paper, the other manufacturers are not able to do so. These other

manufacturers use different processes and equipment that were not

designed to handle larger percentages of recovered paper. Fiberboard is

made from a watery pulp which is deposited on a screen, after which

water is vacuumed off. Because paper holds water, introduction of

levels of recovered paper greater than 20 percent requires a reduction

in the speed of the production line in order to dry the board. As a

result, production costs increase.

Table 2.--Recovered Materials Content of Structural Fiberboard Products

------------------------------------------------------------------------

Percentage

Manufacturer Type of recovered materials

------------------------------------------------------------------------

Company A..... 100 Postconsumer newspapers.

Company B..... 60 Recovered wood, postconsumer and over-issue

paper.

80 Bagasse.

Company C..... 20 Postconsumer paper.

Company D..... 5 Postconsumer newspaper and corrugated.

Company E..... 0 Experimenting with up to 25 percent

postconsumer/over-issue newspaper.

Company F..... 10-15 Postconsumer newspaper.

Company G..... 0 Experimenting with up to 10 percent

postconsumer newspaper.

------------------------------------------------------------------------

Based on this information, EPA proposes that procuring agencies

establish a two-part minimum recovered materials content standard for

use in purchasing structural fiberboard, consisting of a postconsumer

recovered paper component and a recovered materials component. In

today's draft RMAN, EPA recommends content levels of 20 percent for the

postconsumer recovered paper component, and 40-80 percent for the

recovered materials component. In other words, EPA recommends that

structural fiberboard products contain a total recovered materials

content between 60 and 100 percent recovered materials, including 20

percent postconsumer recovered paper. This standard challenges those

manufacturers using less than 20 percent postconsumer recovered paper

to increase their usage of these materials. At the same time, it

recognizes that several structural fiberboard manufacturers utilize

high percentages of other recovered materials.

As shown in Table 2, some manufacturers are now using postconsumer

recovered paper in combination with over-issue paper (a preconsumer

material). Under today's recommended recovered materials content level,

the use of over-issue recovered paper cannot be counted toward the

postconsumer recovered paper component but would count toward the total

recovered materials content.

b. Laminated paperboard products. EPA knows of three manufacturers

of laminated paperboard products that use recovered materials. Two

manufacturers use 100 percent postconsumer paper. The third

manufacturer uses varying amounts of postconsumer paper, depending on

its customers' specifications. Based on this information, EPA is

recommending recovered materials content levels for laminated

paperboard products of 100 percent postconsumer recovered paper.

3. Specifications

a. Structural fiberboard products. The primary product standard

used for structural fiberboard products is ASTM C 208, Insulating Board

(Cellulosic Fiber), Structural and Decorative. Fiberboards made with

wood, bagasse, and paper can satisfy this standard. However, the

specification lists wood and ``cane,'' but not paper, as cellulosic

fibers, and does not include floor underlayment and roof overlay, two

products which are made by a structural fiberboard manufacturer using

100 percent postconsumer paper. Therefore, in today's draft RMAN, EPA

recommends that procuring agencies reference the technical requirements

of this standard and specify that structural fiberboard products made

from recovered paper and products such as floor underlayment and roof

overlay are included.

Another pertinent specification is the American National Standard

for Cellulosic Fiberboard (ANSI/AHA A194.1-1985). It neither requires

use of virgin materials nor precludes use of recovered materials and,

therefore, is appropriate to use with structural fiberboard products

containing recovered materials.

In addition, the American Society of Heating, Refrigeration and Air

Conditioning Engineers (ASHRAE) provides thermal ratings for

``vegetable'' fiberboards including ``homogeneous board from repulped

paper'' used as building board.

b. Laminated paperboard products. No ASTM or other single

specification exists that contains requirements for laminated

paperboard. However, laminated paperboard products are tested using

some of the standards specified in product and testing specifications

for structural fiberboard. Additionally, laminated paperboard products

are tested against major codes, including Federal Housing

Administration, the Council for American Builders Association (CABO),

the Building Officials Council of America (BOCA), and the International

Conference of Building Officials. Reports of both CABO and BOCA provide

results of tests of laminated paperboard products. ASHRAE also provides

thermal ratings for laminated paperboard products.

c. ``R''-values. As with other products made with recovered

materials, EPA believes that specifications for structural fiberboard

and laminated paperboard products should focus on performance

requirements. For insulating products, energy value or ``R'' value, is

a principal performance standard. EPA was told that ``R'' value

specifications, if set at inappropriately high levels, can be used to

preclude products made with recovered materials. In today's draft RMAN,

EPA recommends that agencies review their specifications and revise

them as appropriate to obtain the appropriate ``R'' value needed

without unnecessarily precluding the purchase of products containing

recovered materials.

C. Plastic Pipe and Fittings

1. Preference Program

In today's draft RMAN, EPA recommends that procuring agencies

establish minimum recovered materials content standards for use in

purchasing plastic pipe and fittings for the following non-pressure

applications: Drainage; sewer; drain, waste and vent (DWV); and

conduit. EPA recommends that procuring agencies establish the standards

within the range of recovered materials content levels shown in Table

C-3 of the draft RMAN.

2. Background

Plastic pipe and fittings are currently manufactured with recovered

PVC and HDPE. The following sections and Table 3 provide information on

the current availability of pipe and fittings containing recovered

materials for the non-pressure applications covered by this guideline.

Each entry on Table 3 reflects data from a manufacturer; however,

manufacturers names are not listed. It should be noted that some

manufacturers produce more than one product (e.g., both corrugated and

smoothwall drainage pipe).

Table 3.--Recovered Materials Content of Plastic Pipe

------------------------------------------------------------------------

Postconsumer Total recovered

Pipe application Resin materials materials

(percent) (percent)

------------------------------------------------------------------------

Corrugated drain. HDPE............. 20-50........... 55.

HDPE............. 30.............. 100.

HDPE............. Up to 100....... 100.

HDPE............. 20-50........... 40-50.

HDPE............. 100............. 100.

Smoothwall drain. HDPE............. 20.............. 55.

HDPE............. 85.............. 100.

HDPE............. Up to 100....... Up to 100.

HDPE............. Not available... Not available.

PVC.............. 0............... Up to 100.

Sewer............ PVC.............. 0............... 20-30.

PVC/HDPE......... 0............... 40-100.

HDPE............. Not available... Not available.

PVC.............. Up to 100....... Up to 100.

Drain, waste and PVC/HDPE......... 40-100.......... 40-100.

vent (DWV).

Conduit.......... PVC.............. Not available... Not available.

------------------------------------------------------------------------

a. Drainage. EPA has identified 10 manufacturers of drainage pipe

(both corrugated and smoothwall) using total recovered materials

contents ranging from 40 to 100 percent. Six of the 10 manufacturers

reportedly use up to 100 percent total recovered HDPE. Eight of the 10

drainage pipe manufacturers use postconsumer HDPE as well, ranging from

20 to 100 percent. Thus, the majority of drainage pipe manufacturers

that use recovered materials are currently using postconsumer resin,

which indicates to EPA that the technical feasibility of manufacturing

drainage pipe with up to 100 percent postconsumer materials has been

adequately demonstrated. Therefore, for drainage pipe and fittings, EPA

recommends minimum postconsumer recovered materials content levels

between 40 and 100 percent.

Based on the information in Table 3, there is no substantial

difference in the range of recovered materials for corrugated and

smoothwall pipe. Therefore, EPA recommends that procuring agencies

establish one recovered materials standard to cover both types of

drainage pipe.

EPA believes that manufacturers have demonstrated that it is

technically feasible to produce drainage pipe made with up to 100

percent postconsumer HDPE. However, EPA requests comment on whether

there is an adequate supply of quality postconsumer HDPE feedstock to

meet the needs of the drainage pipe market.

b. Sewer. EPA has identified four manufacturers of sewer pipe made

of recovered materials ranging from 20 to 100 percent. Although two of

these manufacturers reportedly use HDPE, EPA understands that PVC is

the dominant resin used in the manufacture of sewer pipe. The American

Plastics Council reported that only 0.2 percent of postconsumer PVC

sold in 1992 was recycled, compared with a 5 percent recycling rate for

postconsumer HDPE. Postconsumer PVC is not as widely available as

postconsumer HDPE. Therefore, for sewer pipe and fittings, EPA is

recommending total recovered materials content levels of 40 to 100

percent, rather than postconsumer recovered materials content levels.

EPA requests comment on whether there is an adequate supply of quality

postconsumer PVC to justify recommending postconsumer content levels.

Further, EPA seeks information on the availability of any standards,

such as described above in section VI.A.2 for glass cullet, that are

being used to specify the quality requirements of postconsumer PVC

feedstock, which would aid in fostering increased markets for this

material.

c. DWV. EPA has information on only one manufacturer of DWV pipe,

who reportedly uses 40 to 100 percent recovered PVC or HDPE. However,

it is likely that there are other manufacturers of DWV pipe that use

recovered materials, but do not market their product as such. EPA

understands from discussions with pipe industry representatives that

PVC is the dominant resin used in DWV manufacturing. EPA is not

recommending postconsumer recovered materials content levels for DWV

pipe at this time, for the reasons cited above for sewer pipe. Rather,

for DWV pipe and fittings, EPA recommends minimum recovered content

levels in a range of 40 to 100 percent total recovered materials

content. EPA seeks information on other manufacturers of DWV pipe made

from recovered materials, including the percentages of total recovered

resin and postconsumer resin and the type of resin used.

d. Conduit. EPA understands that PVC is the dominant resin used in

the manufacture of conduit. Available information indicates no

technical reasons why conduit could not contain recovered resin,

because the manufacturing process and performance requirements are

similar to those for the other types of pipe covered by the

Comprehensive Procurement Guideline. Therefore, for conduit, EPA

recommends recovered materials content levels in the range of 40 to 100

percent total recovered materials--the same range recommended for the

other types of pipe. Due to the low availability of postconsumer PVC

feedstock, EPA is not recommending postconsumer recovered materials

content levels for conduit at this time.

EPA has not identified manufacturers of conduit who market their

product as containing recovered resin, although EPA believes that at

least one manufacturer is currently using recovered materials.

Therefore, EPA requests information on the manufacture of conduit

containing recovered resin and the percentage of recovered materials

used.

3. Specifications

ASTM has approximately 20 standards for non-pressure HDPE and PVC

pipe. (These standards are listed in the feasibility study for a

plastic pipe procurement guideline, which has been placed in the docket

for today's draft RMAN.) The materials specifications of some of these

standards explicitly require the use of virgin resin; others neither

allow nor preclude recovered materials content. Manufacturers who use

recovered resin in their pipe products cannot meet the virgin materials

requirement of some ASTM standards; however, they can receive

verification by independent testing labs that their products meet the

performance requirements contained within those standards. For the past

few years, many members of ASTM have been interested in allowing the

use of recovered materials, either by revising existing material

requirements or developing new standards. However, ASTM's process of

revising or developing a standard often takes several years. ASTM

currently has a few projects to develop new standards, or revise

existing standards, that allow recovered resin in certain non-pressure

pipe applications.

In today's draft RMAN, EPA recommends that procuring agencies

evaluate the ASTM standards which pertain to their pipe applications to

determine whether those standards preclude the use of recovered resin.

If the applicable ASTM standard precludes recovered materials, EPA

encourages procuring agencies to purchase pipe that is certified to

meet the applicable ASTM performance requirements, in lieu of being

``ASTM approved''. Procuring agencies also are encouraged to review

their own construction specifications and revise them to allow for pipe

meeting the ASTM performance standards and made from recovered

materials.

The American Association of State Highway and Transportation

Officials (AASHTO) Standard M 252-93, ``Corrugated Polyethylene

Drainage Tubing,'' also precludes the use of recovered resin. EPA

understands that some members of AASHTO are evaluating whether

sufficient testing and performance data exist to consider revising this

standard to allow for pipe made of recovered materials. EPA encourages

revision of the AASHTO standard if the technical data satisfy the

concerns about the performance of plastic pipe containing recovered

resins.

D. Geotextiles and Related Products

1. Preference Program

In today's draft RMAN, EPA recommends that procuring agencies

establish recovered materials content standards, based on the recovered

materials content levels shown in Table C-4 of the draft RMAN, for use

in purchasing geotextiles. EPA further recommends that procuring

agencies establish recovered materials content standards for the

geotextile component of a geocomposite based on the recovered materials

content levels shown in Table C-4.

2. Background

Geotextiles are currently manufactured with recovered polyethylene

terephthalate (PET) and polypropylene (PP). The following sections and

Table 4 provide information on the current availability of geotextiles

and related products containing recovered materials. Each entry in

Table 4 represents data from a manufacturer; however, manufacturers

names are not listed.

Table 4.--Recovered Materials Content of Geotextiles and Related

Products

------------------------------------------------------------------------

Total

Postconsumer Recovered

Product Resin Materials Materials

(Percent) (Percent)

------------------------------------------------------------------------

Geotextiles......................... PP 20 20

PP (\1\) 100

PET (\1\) 100

PET (\1\) 100

PET (\1\) 100

Geocomposites....................... PET 60 60

PET 60 60

Geonets............................. (\2\) (\2\) (\2\)

Geogrids............................ (\2\) (\2\) (\2\)

------------------------------------------------------------------------

\1\Not available.

\2\No available information.

a. Geotextiles. As shown in Table 4, geotextiles are currently

produced using recovered PP and PET, including postconsumer recovered

resin. EPA knows of two additional companies that reportedly use

recovered plastic to make geotextiles; however, the specific percentage

of recovered materials content could not be obtained and, therefore,

was not included in Table 4.

(i) Polyethylene terephthalate. Three geotextile manufacturers

produce needlepunched, nonwoven polyester geotextiles from 100 percent

recovered PET. EPA does not have information on the percentage of

postconsumer content in these products. However, EPA believes that it

is technically feasible to manufacture geotextiles with a high percent

of postconsumer PET, and that there are sufficient supplies of

postconsumer PET feedstock available for the geotextile market. In

1992, postconsumer PET had the highest recycling rate of all plastic

resins, 23.8 percent (460.5 million pounds), according to the American

Plastics Council. Therefore, for geotextiles made of PET, in today's

draft RMAN, EPA recommends recovered materials content levels in a

range of 50 to 100 percent postconsumer materials.

(ii) Polypropylene. One company produces woven and nonwoven

geotextiles containing 20 percent postconsumer PP. Another manufacturer

produces geotextiles from 100 percent recovered PP for use in erosion

control applications. The American Plastics Council reported that, in

1992, postconsumer PP was recycled at a rate of 3.0 percent (222.4

million pounds). EPA believes that there is a sufficient supply of

postconsumer PP to justify recommending recovered materials content

levels in a range of 20 to 100 percent postconsumer materials. EPA

believes that if procuring agencies purchase geotextiles within this

range, there will be an increase in demand for postconsumer PP, which

may thereby contribute to an increase in its diversion from the waste

stream. EPA requests information on whether there are sufficient

supplies of postconsumer recovered PP of appropriate quality to meet

the needs of the geotextile industry. EPA also requests information on

whether there are any quality specifications for postconsumer PP

feedstock, such as the ASTM specification for glass cullet described in

section V.A.2 above, which would be useful to plastics processors and

remanufacturers. In addition, EPA requests comment on whether a

separate standard should be recommended for woven vs. nonwoven

geotextiles (either made of PET or PP), due to the higher strength

properties of woven geotextiles.

b. Geogrids and geonets. No geogrid or geonet manufacturers are

known to use recovered plastic to make their products. EPA requests

comment on whether there are manufacturers of geogrids and geonets

containing recovered resin.

c. Geocomposites. Geocomposite products are combinations of other

types of geosynthetics, for example, geogrid-geomembrane composites,

geotextile-geomembrane composites, and geotextile-geotextile

composites. EPA is aware of two geocomposite manufacturers that make

their products with 60 percent postconsumer PET, and market their

products for landfill liner and cap applications. EPA understands that

the geocomposites made by one of these companies consist of a 100

percent recovered PET geotextile combined with a geomembrane.

EPA is not recommending separate recovered materials content levels

for geocomposites; however, EPA recommends that procuring agencies

establish minimum recovered materials content standards for the

geotextile layer of geocomposites, based on the recovered materials

content levels for geotextiles set forth in Table C-4 of the draft

RMAN.

3. Specifications

EPA has identified no standards that preclude the use of recovered

resin in the manufacture of geotextiles, geonets, geogrids or

geocomposites.

a. Geotextiles. Standards for the manufacture and use of

geotextiles are governed primarily by ASTM. ASTM's Committee D-35 on

Geosynthetics has developed 22 standards, 13 of which apply to

geotextiles. All but one of these geotextile standards describe

procedures for testing geotextiles for certain properties, such as

tensile strength and ultraviolet light resistance. These test methods

are used mainly to compare different types of geotextiles and for

acceptance testing. The one ASTM geotextile standard that is not a test

method provides instructions on how to accept, store, and handle

geotextiles. None of these standards require that geotextiles be

manufactured with virgin resin.

Other groups that oversee the use of geotextiles include the

AASHTO, State Departments of Transportation, and several Federal

agencies such as the Federal Highway Administration and EPA. None of

these groups require that geotextiles be made of virgin resin.

Because there are no specifications that prohibit the use of

recovered resins in the manufacture of geotextiles, EPA does not

foresee that procuring agencies will encounter any problems with

procuring geotextiles containing recovered materials that meet the

desired applications.

b. Geogrids, geonets, and geocomposites. Only one of the 13 ASTM

geotextile standards also applies to these related products. This

standard, ASTM D 4716, ``Standard Test Method for Constant Head

Hydraulic Transmissivity (In-Plane Flow) of Geotextiles and Geotextile

Related Products,'' describes how to measure the flow of water through

geotextiles and related products under different circumstances. This

standard does not preclude the use of recovered plastics in the

manufacture of geotextiles or related products.

E. Cement and Concrete Containing Ground Granulated Blast Furnace Slag

1. Preference Program

In today's draft RMAN, EPA recommends that procuring agencies

revise their procurement programs for cement and concrete or for

construction projects involving cement and concrete to allow use of

ground granulated blast furnace (GGBF) slag, as appropriate. EPA

recommends that procuring agencies specifically include provisions in

all construction contracts to allow for the use, as optional or

alternate materials, of cement or concrete which contains GGBF slag,

where appropriate.

Due to variations in GGBF slag, cement strength requirements,

costs, and construction practices for the particular cement or concrete

application, EPA is not recommending that procuring agencies establish

a specific minimum content standard for cement or concrete containing

GGBF slag. However, EPA notes that, according to ASTM Standard

Specification C 595, Standard Specification for Blended Hydraulic

Cements, GGBF slag may replace up to 70 percent of the portland cement

in some concrete mixtures. Most GGBF slag concrete mixtures contain

between 25 and 50 percent GGBF slag by weight. EPA recommends that

procuring agencies refer to ASTM C 595 for the GGBF slag content

appropriate for the intended use of the cement and concrete.

2. Background

EPA's 1983 procurement guideline for cement and concrete containing

fly ash contains recommendations for the use of those products. In the

Comprehensive Procurement Guideline proposed elsewhere in the Federal

Register today, EPA is proposing to amend the cement and concrete

designation to add use of GGBF slag. As explained in the proposed CPG,

EPA considered designating cement and concrete containing GGBF slag in

the 1983 guideline but did not do so because the product was not

available nationwide. From information recently provided by GGBF slag

producers, EPA concludes that GGBF slag is now sufficiently available

to add it to the cement and concrete guideline.

EPA proposes to revise the 1983 recommendations to incorporate the

use of GGBF slag in cement and concrete. Specifically, EPA is revising

the general procurement provision and the sections on guide

specifications, contract specifications, materials specifications, and

performance standards. In the final RMAN, EPA will combine the proposed

revisions with the existing recommendations for cement and concrete

containing fly ash.

There has been some confusion about whether the scope of the 1983

cement and concrete guideline includes municipal combustor ash, because

the title of the guideline is ``cement and concrete containing fly

ash.'' While the text of the 1983 guideline clearly explains that the

item designation is limited to fly ash generated by coal burning

utilities, EPA plans to clear up any ambiguity in the final RMAN, by

referring to the material as coal fly ash.

3. Specifications

ASTM, AASHTO, and the American Concrete Institute publish consensus

specifications for cement and concrete, including the use of recovered

materials such as GGBF slag in these items. EPA lists these

specifications in the draft RMAN and recommends that procuring agencies

use these voluntary consensus specifications for cement and concrete

containing GGBF slag.

In addition, the States of Maryland, West Virginia, Pennsylvania,

Virginia, Georgia, South Carolina, and Florida have adopted

specifications which allow use of GGBF slag in cement and concrete. The

specifications are available from the state transportation departments

should procuring agencies wish to adapt them for use in their

affirmative procurement programs for cement and concrete containing

GGBF slag.

F. Carpet

1. Preference Program

In today's draft RMAN, EPA recommends that, for polyester carpet

used in low- and medium-wear applications, procuring agencies establish

minimum content standards at a level of 100 percent postconsumer

recovered materials, as shown in Table C-6 of the draft RMAN.

EPA further recommends that Federal procuring agencies use GSA's

New Item Introductory Schedule when purchasing polyester carpet

containing recovered materials. EPA also recommends that procuring

agencies review their specifications and revise them to permit, where

suitable, the use of polyester carpet containing recovered materials.

In particular, EPA recommends that agencies currently limiting carpet

materials to nylon and/or wool consider adding polyester carpet, where

appropriate, to enable them to procure carpet containing recovered

materials.

2. Background

Broadloom carpet, meaning roll goods in 12-foot widths, for wall-

to-wall installation, generally is comprised of face fibers (made of

nylon, polyester, wool, or polyethylene) inserted into a primary

backing, which is usually made of polypropylene materials. The majority

of carpet manufactured in the U.S. is made of nylon carpet fibers, with

a smaller percentage (about 10 percent) made of polyester.

In the CPG, the proposed item designation for polyester carpet is

limited to uses in low- and medium-wear applications. Therefore, the

recommendations for recovered materials content levels are also limited

to polyester carpet used in low- and medium-wear applications.

As discussed in the CPG, although nylon comprises a much larger

share of the carpet fiber market than polyester, at this time, carpet

containing recovered materials is being manufactured only from

recovered PET. In addition, one major manufacturer of nylon and nylon

carpet fibers has initiated a pilot project to recover nylon from old

carpet and remanufacture it into new products, including new carpet

fiber. Because this process is only now being developed, EPA is

limiting the proposed item designation in the CPG to polyester carpet

and is not recommending recovered materials content levels for nylon

carpet in today's draft RMAN.

The General Services Administration (GSA) lists recovered polyester

carpet on its current New Item Introductory Schedule (NIIS), which is

effective until September 30, 1995. EPA has identified two companies

that manufacture carpet fiber with 100 percent postconsumer PET. One of

these vendors is currently listed under this GSA contract. An item may

be listed on the NIIS for up to 3 years; during that time, the item can

be purchased by Federal agencies while testing is conducted and data

are gathered to ensure the product's performance. If the item is

acceptable and demand warrants, it may be placed under a permanent

method of supply.

3. Specifications

GSA does not establish specifications for items listed on a New

Item Introductory Schedule. GSA currently does not have separate

specifications for polyester carpet made of recovered materials, but

does require that carpet containing recovered materials meet the same

technical requirements as carpet made from virgin materials. Examples

of GSA's specifications for polyester carpet include pile density, pile

weight, twist, colorfastness, tuft bind, and flammability. The test

methods required to verify these specifications are consistent with

those of other organizations (e.g., ASTM).

Today's draft recommendations for polyester carpet do not apply in

cases where Federal specifications require the use of carpet made with

nylon, wool, or other materials. However, if a specification allows

flexibility in choosing the type of carpet fiber, EPA recommends that

procuring agencies evaluate whether polyester carpet is appropriate to

meet their needs, and, if so, to specify polyester carpet containing

recovered materials.

G. Floor Tiles and Patio Blocks

1. Preference Program

In today's draft RMAN, EPA recommends that, for floor tiles and

patio blocks made of rubber or plastic, procuring agencies establish

minimum recovered materials content standards. EPA recommends that

procuring agencies establish the standards within the range of

recovered materials content levels shown in Table C-7 of the draft

RMAN. EPA's recommendation does not preclude procuring agencies from

purchasing floor tiles or patio blocks manufactured from another

material. It simply recommends that procuring agencies, when purchasing

floor tiles or patio blocks made from rubber or plastic, purchase these

items made from recovered materials.

2. Background

Table 5 provides information on the availability of floor tiles and

patio blocks made of recovered materials. Each entry reflects data from

a manufacturer; however, manufacturers names are not listed.

Table 5.--Recovered Materials Content of Floor Tiles and Patio Blocks

------------------------------------------------------------------------

Total

Post- recovered

Product Material consumermaterials(percent) materials

(percent)

------------------------------------------------------------------------

Floor Tiles..... Rubber......... 75-95 95

Rubber......... 75-95 75-95

Rubber......... 90 90

Rubber......... 99 99

Rubber......... 98 98

PVC............ 100 100

20 100

PVC............ 100 100

PVC............ (\1\) 100

PVC............ (\1\) 100

Mixed plastic.. (\1\) (\1\)

PVC............ (\1\) 90-100

Patio Blocks.... Rubber......... (\1\) (\1\)

Rubber......... 100 100

Rubber......... 100 100

Composite 20 100

plastics.

Plastic/wood... 60 100

Rubber/plastic. 80-90 (\2\)

------------------------------------------------------------------------

\1\Not available.

\2\Up to 90.

a. Floor tiles. EPA has identified 10 manufacturers and/or

distributors of floor tiles containing recovered materials. The

recovered materials used in these products include rubber derived from

old tires, and various plastic resins, most commonly PVC (i.e., vinyl).

Five of the 10 companies make floor tiles with postconsumer tire

rubber, with recovered materials content levels ranging from 75-99

percent. The companies add a small amount of virgin rubber, adhesive

fabric, or coloring agents to their products. All five companies market

their products nationally for applications such as entrance ways in

airports and stores, furniture showrooms, skating rinks, and fitness

centers. For floor tiles made of rubber, EPA recommends minimum

postconsumer recovered materials content levels between 90 and 100

percent.

Five of the 10 companies nationally market floor tiles made from

recovered plastic, mainly PVC, in a range of 90 to 100 percent total

recovered materials, with 20 to 100 percent postconsumer resin. A few

types of floor tile are made of 90 to 100 percent preconsumer PVC from

swimming pool liners, roof membranes, and automobile dashboard cutouts.

These interlocking tiles are used in various applications, such as

fitness centers, bathrooms, and cafeterias. Another type of tile is

made of 100 percent postconsumer PVC from car doors and fender strips.

These interlocking tiles are used for heavy-duty applications such as

entrance vestibules, work areas behind cashier counters, and under

heavy equipment in fitness centers. Because supplies of postconsumer

PVC are not widely available, for floor tiles made of recovered

plastic, EPA recommends total recovered materials content levels

between 90 and 100 percent.

b. Patio blocks. EPA has identified 6 manufacturers of patio blocks

made with recovered materials. The recovered materials used to make

these products include rubber derived from old tires and blends of

plastics resins (e.g., HDPE and LDPE), rubber/plastic, and rubber/wood.

Two manufacturers offer patio blocks containing 100 percent

postconsumer tire rubber. One manufacturer offers a product made of a

rubber/plastic blend containing 80-90 percent postconsumer recovered

materials. Based on this information, for patio blocks containing

rubber or rubber blends (e.g., rubber/plastic or rubber/wood), EPA

recommends recovered materials content levels of 90-100 percent

postconsumer recovered materials.

Two manufacturers offer patio blocks made with blends of recovered

plastic materials. One of these manufacturers produces patio blocks

made with composite plastic (HDPE and LDPE) containing 20 percent

postconsumer recovered materials and 100 percent total recovered

materials.

The other manufacturer offers patio blocks made of a plastic/wood

blend containing 60 percent postconsumer materials and 100 percent

total recovered materials. Because some of the resins used to make

patio blocks are not widely available at this time from postconsumer

sources (e.g., LDPE), for patio blocks made of plastic or plastic

blends, EPA recommends total recovered materials content levels in a

range from 90-100 percent.

3. Specifications

Floor tiles made of recovered rubber or plastic have been used in a

variety of applications, including fitness centers, bathrooms,

cafeterias, entrance vestibules, work areas, and laboratories. These

uses are consistent with the potential uses by procuring agencies.

Patio blocks made of recovered materials have been used in the

construction of garden walkways and trails. EPA is not aware of any

specifications that prohibit the use of recovered materials in the

manufacture of floor tiles or patio blocks.

EPA knows of one specification for rubber floor tiles, ASTM F 1344,

``Standard Specification for Rubber Floor Tile.'' This specification

does not preclude the use of recovered materials in the manufacture of

floor tiles. EPA is not aware of any specifications for patio blocks

and requests information about them.

VII. Recommendations for Transportation Products

Part D of the draft RMAN contains EPA's recommendations for

transportation products. Today, in Section D-1, EPA makes

recommendations for temporary traffic control devices.

A. Temporary Traffic Control Devices

1. Preference Program

In today's draft RMAN, EPA recommends that, based on the recovered

materials content levels shown in Table D-1, procuring agencies

establish minimum content standards for traffic cones and Type I and

Type II traffic barricades.

2. Background

a. Traffic cones. As shown in Table 6, traffic cones are currently

manufactured using LDPE, PVC, and crumb rubber from tires. Percentages

of recovered LDPE and PVC range from 50 to 100 percent, with the

postconsumer content of these materials ranging up to 15 percent. The

base of the cones is typically manufactured from 50 to 100 percent

crumb rubber derived from whole scrap tires or buffings recovered

during the retreading process. ``Buffings'' are considered to be

postconsumer recovered materials.

Based on this information, in today's draft RMAN, EPA recommends

recovered materials content levels in the range of 50-100 percent total

recovered materials for traffic cones, consisting of recovered plastic

resins, rubber from whole scrap tires or derived from the retreading

process, or blends of the two materials. At this time, due to the fact

that many of the traffic cones identified by EPA contained relatively

small percentages of postconsumer recovered plastics, EPA is not

recommending that procuring agencies establish a postconsumer recovered

materials content standard. Most manufacturers of these products

indicated that they were seeking to increase percentages of

postconsumer recovered content, however. Should procuring agencies

establish postconsumer recovered materials content standards, the

supply of traffic cones meeting the standards might not be sufficient.

EPA is requesting information on the availability of traffic cones

manufactured with postconsumer recovered materials that meet Federal

performance specifications.

Table 6.--Recovered Materials Content in Traffic Cones and Traffic

Barricades

------------------------------------------------------------------------

Postconsumer Total recovered

Type of product Material materials materials

(percent) (percent)

------------------------------------------------------------------------

PVC.............. 3-15............ 68-92.

PVC.............. 6-7............. 50.

PVC.............. 0............... 100.

Traffic cones.... Crumb rubber..... 15-25........... 15-25.

Crumb rubber-base 50-100.......... 100.

LDPE-cone........ 0............... 50.

HDPE............. 50-100.......... 100.

HDPE............. 80-100.......... 100.

HDPE............. 99-100.......... 100.

Traffic

barricades.

(Types I and HDPE + LDPE...... 90.............. 100.

II).

HDPE + PET....... 80-100.......... 100.

Fiberglass....... 0............... 100.

Wood + Metal..... Not available... Not available.

------------------------------------------------------------------------

b. Traffic barricades. As shown in Table 6, Type I and II traffic

barricades are typically made from wood, metal, HDPE, PET, LDPE,

fiberglass or combinations of these materials. For barricades

containing recovered plastic, percentages of postconsumer recovered

plastic range from 50 to 100 percent, with total recovered materials

content at 100 percent. Four of the five manufacturers use 80-100

percent postconsumer recovered plastic. EPA was not able to obtain

information on use of recovered wood or metals and requests this

information for Type I, Type II or Type III traffic barricades.

Based on the information in Table 6, for Type I and II traffic

barricades, EPA recommends a minimum recovered materials content level

of 100 percent total recovered materials content. In addition, for

barricades containing recovered plastic resins, EPA recommends

postconsumer recovered plastic levels in a range from 80-100 percent.

Numerous manufacturers in the United States make traffic barricades

capable of meeting or exceeding this content level.

3. Specifications

Section 635 of ``Standard Specifications for Construction of Roads

and Bridges on Federal Highway Projects, FP-85'' contains Federal

specifications for temporary traffic control devices. This section

includes descriptions of various temporary traffic control devices. EPA

examined the specifications and found that section 635.02 of these

specifications does not preclude the use of recovered materials in

these devices. The Federal specifications reference the requirements

contained in the MUTCD, which also do not preclude use of recovered

materials.

In addition to the Federal specifications, state procuring agencies

may have additional materials or performance requirements for temporary

traffic control devices. Several state procuring agencies have

additional requirements and programs to test or confirm materials

properties of traffic control devices prior to acceptance of shipment.

Most currently available traffic barricades containing recovered

materials are able to meet or exceed specific state requirements. In

addition, at least five states explicitly specify a preference for

traffic control devices made from recovered materials.

VIII. Recommendations for Park and Recreation Products

Part E of the draft RMAN contains EPA's recommendations for park

and recreation products. Today, in Section E-1, EPA is making

recommendations for playground surfaces and running tracks.

A. Playground Surfaces and Running Tracks

1. Preference Program

In today's RMAN, EPA recommends that, based on the recovered

materials content levels shown in Table E-1, procuring agencies

establish minimum recovered materials content standards for use in

purchasing playground surfaces and running tracks made of rubber or

plastic. EPA's recommendation does not preclude procuring agencies from

purchasing playground surfaces or running tracks manufactured from

another material. It simply recommends that procuring agencies, when

purchasing playground surfaces or running tracks made from rubber or

plastic, purchase these items made from recovered materials.

2. Background

Tables 7 and 8 provide information on the availability of

playground surfaces and running tracks made of recovered materials,

respectively. Each entry represents data from a manufacturer or

distributor; however, company names are not listed.

Table 7.--Recovered Materials Content of Playground Surfaces

----------------------------------------------------------------------------------------------------------------

Postconsumer material Total recovered

Product Material (percent) materials (percent)

----------------------------------------------------------------------------------------------------------------

Rubber/asphalt.............. 60 (tires)/40 (asphalt).... 100

Rubber...................... 100........................ 100

Rubber...................... 100........................ 100

Rubber...................... 90......................... 90

Rubber...................... 50......................... 50

Rubber...................... 100........................ 100

Playground surfaces......... Rubber...................... 100........................ 100

Rubber...................... 100........................ 100

Rubber/compost.............. 100........................ 100

Rubber/PVC.................. 80 (rubber)/20 (PVC)....... 100

PVC......................... 100........................ 100

Rubber...................... 100........................ 100

Rubber...................... 100........................ 100

Rubber...................... 90......................... 90

Rubber...................... 90......................... 90

Rubber...................... 90......................... 90

Rubber...................... 100........................ 100

Rubber...................... 100........................ 100

Rubber...................... 100........................ 100

Rubber...................... 100........................ 100

Rubber...................... 100........................ 100

----------------------------------------------------------------------------------------------------------------

Table 8.--Recovered Materials Content of Running Tracks

----------------------------------------------------------------------------------------------------------------

Postconsumer material Total recovered

Product Material (percent) materials (percent)

----------------------------------------------------------------------------------------------------------------

Rubber...................... 77......................... 77

Rubber...................... 100........................ 100

Running tracks.............. Rubber...................... 100 (90-95 for colored 100

products).

Rubber...................... 100........................ 100

----------------------------------------------------------------------------------------------------------------

a. Playground surfaces. EPA has identified 20 manufacturers/

distributors of playground surfaces made with recovered materials.

These companies offer products made of postconsumer rubber derived from

old tires, with a range of 50 to 100 percent postconsumer rubber. Three

of these companies use other recovered materials as well, including

blends of rubber/asphalt, rubber/compost, and rubber/PVC. One of these

companies also makes playground surfaces of 100 percent postconsumer

PVC. Fourteen of the 20 companies offer playground surfaces made with

100 percent postconsumer materials. All but one of the 20 companies

offers this product with 90 percent or greater postconsumer materials.

Therefore, for playground surfaces made of rubber or plastic, EPA

recommends recovered materials content levels in a range of 90-100

percent postconsumer materials.

b. Running tracks. Some of the companies that make playground

surfaces also make running tracks of postconsumer rubber from tires.

EPA obtained information from four of these companies, each of which

offers running tracks containing 77-100 percent postconsumer rubber.

Three of the four companies offer running tracks containing 100 percent

postconsumer recovered rubber. One of these companies also offers a

colored running track that contains 90-95 percent postconsumer

recovered rubber. Those companies that do not use 100 percent

postconsumer recovered materials use either a layer of virgin resin to

provide added spike resistance, or use 5 to 10 percent preconsumer

rubber for coloring. One of these companies constructed the 1984

Olympic running tracks with recovered materials, and has constructed

running tracks for universities, schools, and state governments. Based

on this information, for running tracks made of rubber or plastic, EPA

recommends recovered materials content levels in a range from 90-100

percent postconsumer recovered materials.

3. Specifications

GSA does not have specifications for playground surfaces or running

tracks; however, Federal agency installations of these products must

comply with applicable State or local construction codes, as well as

standards set by the Consumer Product Safety Commission and the

Americans With Disabilities Act. The Consumer Product Safety Commission

requires that playground surfaces meet certain performance standards to

reduce head injuries, including ASTM F 1292 pertaining to impact

attenuation standards. Playground surfacing and running tracks must

also comply with the Americans With Disabilities Act which provides

that mobility-impaired persons cannot be prohibited from access to

public places.

Running tracks are not listed in GSA's Federal Supply Schedule, but

playground surfaces are listed [Group 78, Part 1, Schedule C; Class

7830; Special Item Number (SIN) 192-37e, ``Playground Equipment, Safety

Surfacing, and Replacement Parts'']. At least one contractor under this

SIN offers playground surfaces made with recovered rubber.

IX. Recommendations for Landscaping Products

Part F of the draft RMAN contains EPA's recommendations for

landscaping products. Today, in sections F-1 and F-2, respectively, EPA

makes recommendations for hydraulic mulch products and for yard

trimmings compost.

A. Hydraulic Mulch Products

1. Preference Program

In today's draft RMAN, EPA recommends that, based on the recovered

materials content levels shown in Table F-1, procuring agencies

establish minimum content standards for hydraulic mulch products. For

paper-based hydraulic mulch, EPA recommends a level of 100 percent

postconsumer paper. For wood-based hydraulic mulch and hydraulic mulch

containing both recovered wood and paper, EPA recommends a level of 100

percent recovered materials. The recovered materials content should be

based on the dry weight of the fiber, exclusive of any dyes, wetting

agents, seeds, fertilizer, or other non-cellulose additives.

2. Background

The majority of manufacturers about which EPA has information are

using recovered materials at a content level of 100 percent. Depending

on the manufacturer, the recovered materials used are postconsumer and

over-issue paper, recovered wood, or a combination of recovered paper

and wood.

Paper-based hydraulic mulch is produced using recovered paper as a

feedstock. Postconsumer newspapers are the primary recovered paper

used, but some manufacturers are mixing in over-issue newspapers and/or

magazines, and postconsumer corrugated containers, office paper, and

telephone books.

Paper-based hydraulic mulch is manufactured primarily by cellulose

insulation manufacturers. EPA is aware of 37 manufacturers that produce

both cellulose insulation and hydraulic mulch. Recovered paper content

ranges between 80 and 100 percent, with the majority of these

manufacturers using 100 percent postconsumer paper.

Wood-based hydraulic mulch generally is manufactured with 100

percent wood fibers, which are separated from wood scraps, wood chips,

and bark. At least one manufacturer of wood-based hydraulic mulch

produces a blended product containing 50 percent recovered paper.

Another manufacturer produces wood-based hydraulic mulch products

containing 100 percent postconsumer recovered wood and blends of

postconsumer recovered wood and paper.

3. Specifications

Manufacturers of both paper-based and wood-based hydraulic mulch

products claim superior performance compared to the other product. It

is EPA's understanding that the International Erosion Control

Association is developing performance standards for hydraulic mulch to

resolve the dispute over performance. The standards will be based on

the amount of vegetation produced, not on physical specifications of

the product. As of January 1994, these standards were still under

development.

Limited research conducted for EPA revealed that at least the

States of California, Illinois, Michigan, Pennsylvania, Texas,

Virginia, and Washington allow the use of paper-based hydraulic mulch.

EPA requests information on other state or consensus specifications for

hydraulic mulch products containing recovered materials.

B. Yard Trimmings Compost

1. Preference Program

In today's draft RMAN, EPA recommends that procuring agencies

purchase or use compost made from yard trimmings, leaves, and/or grass

clippings for use in such applications as landscaping, seeding of grass

or other plants on roadsides and embankments, under trees and shrubs,

and in erosion control and soil reclamation.

EPA further recommends that those procuring agencies that have an

adequate volume of yard trimmings, leaves, and/or grass clippings, as

well as sufficient space for composting, should implement a composting

system to produce a mature, high-quality compost from these materials

for use in landscaping and other applications.

2. Background

Composting is a biological process of stabilizing organic matter

under controlled conditions into a product that is rich in humus and

provides organic matter and nutrients to the soil. Compost serves as an

alternative method of managing those organics that would otherwise be

landfilled. Yard trimmings are the least controversial feedstock for

compost. When grass clippings are included with leaves and other yard

trimmings, the resulting compost can serve as a suitable nitrogen

source with an optimal carbon/nitrogen ratio for most applications.

Compost can be used in agriculture, horticulture, silviculture

(growing of trees), and in landscaping. It is used as a soil

conditioner, soil amendment, lawn top dressing, potting soil mixture,

rooting medium, and mulch for shrubs and trees, and for improvement of

golf and other sports turf. It also can be used in erosion control and

in land reclamation and revegetation of roadsides after road

construction. As a result, compost should have wide applicability to

procuring agencies for landscaping, gardening, seeding, and other

applications.

Because of the high volume of yard trimmings currently discarded

each year, there is no shortage of raw materials that would preclude

composting facilities from supplying large volumes of yard trimmings

compost. A significant portion of the yard trimmings is being

composted, and the percentage is increasing. At the end of 1992, there

were nearly 3,000 composting facilities in the U.S. Thus, the quantity

of compost available from local sources is expected to increase in the

near future.

The State of Maine has developed quality standards for compost

products used by various state agencies or purchased with state funds.

The quality standards have been set for six types of compost products,

ranging from topsoil (three classes), to wetland substrate, to mulch

(two classes). For each of these types of compost product, standards

for maturity, odor, texture, nutrients, pH, salt content, organic

content, pathogen reduction, heavy metals, foreign matter, moisture

content and density have been established. EPA has placed a copy of

this regulation, ``Chapter 560 Standards for Compost Products'', in the

docket for the draft RMAN.

3. Specifications

Procuring agencies should ensure that there is no language in their

specifications for fertilizers and soil amendments that would preclude

or discourage the use of compost. For instance, if specifications

address the use of straw or hay in roadside revegetation projects,

procuring agencies should assess whether compost could be substituted

for straw or hay or used in combination with them.

The Composting Council is helping to define and develop industry-

wide standards for composts. The standards will include a Standard

Operating Guide for composting facilities, which is currently available

in draft form from The Composting Council, as well as standards for

suitability of different types of composts for different markets,

depending on the content of the compost.

X. Recommendations for Non-Paper Office Products

Part G of the draft RMAN contains EPA's recommendations for non-

paper office products. Today, EPA is making recommendations for office

recycling containers and office waste receptacles (Section G-1),

plastic desktop accessories (Section G-2), remanufactured toner

cartridges (Section G-3), binders (Section G-4), and trash bags

(Section G-5).

A. Office Recycling Containers and Office Waste Receptacles

1. Preference Program

In today's draft RMAN, EPA recommends that, based on the recovered

materials content levels shown in Table G-1, procuring agencies

establish minimum content standards for plastic office recycling

containers and office waste receptacles. EPA also recommends that when

purchasing office recycling containers and waste receptacles made from

paper or steel, procuring agencies purchase these items containing

recovered paper, as specified in EPA's guideline for paper and paper

products (40 CFR part 250), and recovered steel, respectively. EPA

currently does not have information on the types and levels of and

recovered materials levels contained in steel containers and

receptacles and is interested in obtaining this information.

EPA's recommendation for office recycling containers and office

waste receptacles containing recovered materials does not preclude

procuring agencies from purchasing containers or receptacles

manufactured using another material, such as wood. It simply recommends

that procuring agencies, when purchasing office recycling containers or

office waste receptacles manufactured from plastic or paper, should

seek such containers made with recovered materials as recommended in

Table G-1. When purchasing these containers made with steel, procuring

agencies should seek the highest level of postconsumer recovered

materials practicable.

2. Background

EPA knows of at least four manufacturers that produce office

recycling containers and office waste receptacles made with recovered

materials in the range of 20-100 percent postconsumer recovered

plastic, by weight. Containers are available through GSA's Federal

Supply Schedule 72 VII B, ``Recycling Collection Containers and

Specialty Waste Receptacles.''

GSA also has fiberboard recycling containers available through its

Special Order Program. In addition, EPA's paper procurement guideline

(40 CFR part 250) contains recommended postconsumer recovered materials

content levels for recycling containers made from fiberboard or other

papers. (As previously discussed, EPA's recommendations for paper

products will be found in Part A in the final RMAN.)

3. Specifications

According to the information available to EPA, there are no

national or Federal specifications that preclude the use of recovered

materials content in the manufacture of office recycling containers or

waste receptacles. In lieu of referencing national or Federal

specifications, EPA recommends that procuring agencies incorporate

recovered materials content requirements into solicitation or contract

documents when purchasing these products.

B. Plastic Desktop Accessories

1. Preference Program

In today's draft RMAN, EPA recommends that, based on the recovered

materials content levels should in Table G-2, procuring agencies

establish minimum content standards for plastic desktop accessories.

EPA's recommendation does not preclude procuring agencies from

purchasing a desktop accessory manufactured from another material, such

as, paper, wood, or steel. It simply recommends that procuring

agencies, when purchasing plastic desktop accessories, purchase these

accessories made from recovered materials.

2. Background

EPA knows of at least three manufacturers that produce plastic

desktop accessories with recovered materials content in the range of

25-80 percent postconsumer recovered plastic, by weight. In addition,

several office products distributors carry these accessories as part of

their product lines. GSA makes these products available through its

Federal Supply Schedule.

Currently, EPA has information on plastic desktop accessories made

from postconsumer recovered polystyrene only. EPA requests information

on whether desk accessories are being made from other recovered plastic

materials and the recovered materials content levels of those items.

3. Specifications

According to the information available to EPA, there are no

national or Federal specifications that preclude the use of recovered

materials in the manufacture of plastic desktop accessories. In lieu of

referencing national or Federal specifications, procuring agencies

usually incorporate recovered materials content requirements into their

solicitation or contract documents when purchasing these products.

C. Remanufactured Toner Cartridges

1. Preference Program

In today's draft RMAN, EPA recommends that, in lieu of minimum

content standards, procuring agencies establish procedures for

purchasing remanufactured toner cartridges using the substantially

equivalent alternative option, as set forth in RCRA section 6002(i)(3).

EPA recommends that procuring agencies adopt one or both of the

following approaches: (1) Procure toner cartridge remanufacturing

services or (2) procure remanufactured toner cartridges as products.

EPA further recommends that procuring agencies establish policies that

give priority to remanufacturing the agencies' expended toner

cartridges. In other words, under these policies, procuring agencies

will first procure toner cartridge remanufacturing services for any

accumulated expended cartridges. When such services are unavailable or

not practicable, then procuring agencies should obtain remanufactured

toner cartridges from vendors of these items.

2. Background

As discussed in section III above, minimum content standards are

not appropriate for remanufactured items because a core part of the

item is reused in the new product, rather than ground up and fed into a

manufacturing process. This is true in the case of toner cartridge

remanufacturing. Therefore, although certain components of a toner

cartridge may contain recovered materials, it is inappropriate for EPA

to recommend that procuring agencies establish minimum content

standards for remanufactured toner cartridges.

Toner cartridge remanufacturing services are available and

increasing in usage. Over the past few years, the number of vendors

that offer toner cartridge remanufacturing services has increased

substantially. As of January 1994, GSA maintained a New Item

Introductory Schedule (NIIS) for toner cartridges. In addition, GSA has

four vendors that provide remanufactured toner cartridges to its stock

program.

3. Specifications

GSA has set forth procedures by which remanufacturers providing

remanufactured toner cartridges to its stock program are to

disassemble, clean, refill, and reassemble expended cartridges.

D. Binders

1. Preference Program

In today's draft RMAN, EPA recommends that, based on the recovered

materials content levels shown in Table G-4, procuring agencies

establish minimum content standards for the plastic covering used in

plastic-covered binders. The chipboard or paperboard component of a

plastic-covered binder or a binder covered with another material, such

as cloth, is covered under EPA's procurement guideline for paper and

paper products (40 CFR part 250). EPA also recommends that, for

chipboard binders, procuring agencies establish minimum content

standards consistent with EPA's recommended recovered materials content

levels for paperboard (40 CFR part 250).

EPA's recommendation for plastic-covered and chipboard binders does

not preclude procuring agencies from purchasing a binder covered with

or manufactured using another material, such as cloth. It simply

recommends that procuring agencies, when purchasing chipboard or

plastic-covered binders, purchase these binders containing recovered

materials.

2. Background

EPA is aware of at least three manufacturers that produce plastic-

covered binders with recovered plastic content in the covering, and two

manufacturers that produce chipboard binders with recovered paper

content. The manufacturers of the plastic-covered binders use recovered

plastic in a range of 50-60 percent recovered plastic, by weight. At

least one of the manufacturers of plastic-covered binders with

recovered plastic content sells its binders through GSA's New Item

Introductory Schedule.

Several states have also issued solicitations for plastic-covered

and chipboard binders containing recovered materials.

In the paper guideline (40 CFR part 250), EPA recommends

postconsumer recovered materials content levels for paperboard, which

would include chipboard. (As previously discussed, EPA's

recommendations for paper products will be found in Part A in the final

RMAN.)

3. Specifications

GSA's specification for binders, A-A-2549A, ``Binder, Loose-Leaf

(Ring),'' covers four types of binders, including cloth bound, flexible

cover; cloth bound, stiff cover; plastic bound, flexible cover; and

plastic bound, stiff cover. In the specification, GSA requires its

binders to contain ``a minimum of 100% waste paper, including a minimum

of 30% postconsumer recovered materials.'' There are no requirements in

this specification that preclude the use of recovered materials in the

plastic covering of plastic-covered binders. However, one manufacturer

stated that one test method cited in the specification, the Cold Crack

test, may prohibit the use of recovered plastic in the covering for

plastic-covered binders. EPA is requesting information on the ability

of vendors to meet this specification when using recovered plastics.

According to the information available to EPA, there are no

national or Federal specifications that preclude the use of recovered

paper in the manufacture of chipboard binders.

E. Plastic Trash Bags

1. Preference Program

In today's draft RMAN, EPA recommends that, based on the recovered

materials content levels shown in Table G-4, procuring agencies

establish minimum content standards for plastic trash bags. EPA's

recommendation does not preclude procuring agencies from purchasing

trash bags manufactured using another material, such as paper. It

merely recommends that a procuring agency, when purchasing plastic

trash bags, purchase these items made from recovered materials.

2. Background

EPA knows of at least five manufacturers that produce trash bags

with postconsumer recovered materials content ranging from 30-100

percent. The National Association of State Purchasing Officials'

Recycled Product Database, which provides detailed information on state

purchases of products containing recovered materials, lists 88

different contracts for plastic ``liners'' with recovered materials

content. In addition, trash bags with recovered materials content are

available from the GSA ``Supply Catalog.''

Currently, EPA has information only about trash bags made from

postconsumer recovered plastic. EPA is interested in obtaining

information on trash bags made from other recovered materials and the

recovered materials content levels of those products.

3. Specifications

GSA's Commercial Item Description (CID) for general purpose plastic

bags, A-A-2299B, covers plastic trash bags. This CID is based on

performance requirements. According to the information available to

EPA, CID A-A-2299B does not preclude the use of recovered materials

content in the manufacture of plastic trash bags.

In addition, several states, including Michigan, Nebraska,

Minnesota, Delaware, and Wisconsin, have their own specifications for

plastic trash bags containing recovered materials.

XI. Recommendations for Miscellaneous Products

Part H of the RMAN will contain recommendations for designated

items that do not fall within the other product categories. EPA is

reserving this section of the RMAN for future recommendations. Because

EPA is not proposing to designate any items in the miscellaneous

products category in the Comprehensive Procurement Guideline today, EPA

is not making any recommendations in this category of the draft RMAN

today.

Dated: April 13, 1994.

Carol M. Browner,

Administrator.

For the reasons set out in the preamble, EPA recommends the

following procurement practices and recovered materials content levels

for procuring agencies to use when purchasing designated items pursuant

to section 6002 of the Resource Conservation and Recovery Act of 1976.

Draft Recovered Materials Advisory Notice

Contents

I. General Recommendations for Affirmative Procurement Programs

II. Specific Recommendations for Procurement of Designated Items

Part A--Paper and Paper Products

[Reserved]

Part B--Vehicular Products

Section B-1--Lubricating Oil.

[Reserved]

Section B-2--Retread Tires.

[Reserved]

Section B-3--Engine Coolants.

Part C--Construction Products

Section C-1--Building Insulation.

Section C-2--Structural Fiberboard and Laminated Paperboard.

Section C-3--Plastic Pipe and Fittings.

Section C-4--Geotextiles and Related Products.

Section C-5--Cement and Concrete.

Section C-6--Polyester Carpet.

Section C-7--Floor Tiles and Patio Blocks.

Part D--Transportation Products

Section D-1--Temporary Traffic Control Devices.

Part E--Park and Recreation Products

Section E-1--Playground Surfaces and Running Tracks.

Part F--Landscaping Products

Section F-1--Hydraulic Mulch.

Section F-2--Yard Trimmings Compost.

Part G--Non-Paper Office Products

Section G-1--Office Recycling Containers and Waste Receptacles.

Section G-2--Plastic Desktop Accessories.

Section G-3--Remanufactured Toner Cartridges.

Section G-4--Binders.

Section G-5--Plastic Trash Bags.

Part H--Miscellaneous Products

I. General Recommendations for Affirmative Procurement Programs

EPA recommends that the Environmental Executive within each major

procuring agency take the lead in developing the agency's affirmative

procurement program and in implementing the recommendations set forth

in this RMAN. The basic responsibilities of an Agency Environmental

Executive are described in sections 302 and 402 of Executive Order

12873. In the absence of such an individual, EPA recommends that the

head of the implementing agency appoint an individual who will be

responsible for ensuring the agency's compliance with RCRA section 6002

and Executive Order 12873.

Affirmative Procurement Program: Although RCRA section 6002 and the

Executive Order require procuring agencies to establish affirmative

procurement programs for each EPA-designated item, EPA recommends that

each agency develop one comprehensive affirmative procurement program

with a structure that allows for the integration of new items as they

are designated. EPA encourages agencies to implement preference

programs for non-guideline items as well, in order to maximize their

purchases of recycled products and foster markets for recovered

materials.

Preference Program: For most items, EPA recommends that procuring

agencies establish minimum content standards based on EPA's recovered

materials content level recommendations and the procuring agencies' own

research. For other items, the use of minimum content standards is

inappropriate, and procuring agencies should establish an alternative

program, as recommended by EPA.

Promotion Program: EPA recommends that procuring agencies include

both internal and external promotion in their affirmative procurement

programs.

There are several methods that procuring agencies can use to

educate their employees about their affirmative procurement programs.

These methods include preparing and distributing agency affirmative

procurement policies, publishing articles in agency newsletters and

publications, including affirmative procurement program requirements in

agency staff manuals, and conducting workshops and training sessions to

educate employees about their responsibilities under agency affirmative

procurement programs.

Methods for educating existing contractors and potential bidders of

an agency's preference to purchase products containing recovered

materials include publishing articles in appropriate trade

publications, participating in vendor shows and trade fairs, placing

statements in solicitations, and discussing an agency's affirmative

procurement program at bidders' conferences.

Monitoring: EPA recommends that procuring agencies monitor their

affirmative procurement programs, in accordance with RCRA section

6002(i)(2)(D) and Executive Order 12873, to ensure that they are

fulfilling their requirements to purchase items composed of recovered

materials to the maximum extent practicable. EPA anticipates that the

Federal Environmental Executive and the Office of Federal Procurement

Policy will request information from Federal agencies on their

affirmative procurement practices. Therefore, EPA recommends that

Federal procuring agencies maintain adequate records of procurements

that may be affected by the Executive Order and RCRA requirements.

EPA recommends that procuring agencies track their purchases of

products made with recovered materials content to establish benchmarks

from which progress can be assessed. To maintain adequate records on

procurement of products containing recovered materials, EPA recommends

that procuring agencies choose to collect data on the following:

The percentages of recovered materials content in the

items procured or offered;

Comparative price information on competitive procurements;

The quantity of each item procured over a fiscal year;

The availability of each item with recovered materials

content; and

Performance information related to recovered materials

content of an item.

Certification: Because each product will be different, EPA

recommends that procuring agencies discuss certification with product

vendors to ascertain the appropriate period for certifying recovered

materials content. EPA recommends that, whenever feasible, the

recovered materials content of a product be certified on a batch-by-

batch basis or as an average over a calendar quarter or some other

appropriate averaging period as determined by the procuring agencies.

II. Specific Recommendations for Procurement of Designated Items

Part A--Paper and Paper Products

[Reserved]

Part B--Vehicular Products

Section B-1--Lubricating Oil.

[Reserved]

Section B-2--Retread Tires.

[Reserved]

Section B-3--Engine Coolants.

Preference Program: EPA recommends that procuring agencies whose

vehicles are serviced by a motor pool or vehicle maintenance facility

establish a program for engine coolant reclamation and reuse,

consisting either of reclaiming the engine coolant on-site for use in

the agencies' vehicles, or establishing service contracts for engine

coolant reclamation for use in the agencies' vehicles.

Procuring agencies should note that engine coolant can contain

either ethylene glycol or propylene glycol. Currently, these two types

of engine coolant must be reclaimed separately. Therefore, in order to

implement an engine coolant reclamation program, EPA recommends that

procuring agencies purchase only one type of engine coolant or

establish procedures to prevent commingling of engine coolants

containing ethylene glycol and propylene glycol.

Procuring agencies also should note that, in some instances, spent

engine coolant can exhibit the toxicity characteristic of hazardous

waste by failing EPA's Toxicity Characteristic Leaching Procedure

(TCLP). If a procuring agency determines that its spent engine coolant

is a hazardous waste, it must manage the engine coolant in accordance

with applicable Federal or state hazardous waste management

requirements, including the generator requirements found in 40 CFR part

262 and the requirements for recyclable materials found in 40 CFR 261.6

(or the state equivalents). Because state hazardous waste regulations

generally apply in lieu of the Federal regulations, procuring agencies

should contact their state environmental agency (or, if the state is

not authorized, the appropriate EPA Regional Office) for specific

information regarding the applicable requirements.

Part C--Construction Products

Note: Refer to Part F--Landscaping Products for additional items

that can be used in construction.

Section C-1--Building Insulation.

Preference Program: EPA recommends that, based on the recovered

materials content levels shown in Table C-1, procuring agencies

establish minimum content standards for use in purchasing rock wool and

fiberglass insulation products.

Table C-1.--Recommended Recovered Materials Content Levels for Rock Wool

and Fiberglass Insulation

------------------------------------------------------------------------

Recovered materials (materials and

Insulation material percentage)

------------------------------------------------------------------------

Rock wool.......................... Slag.

75

Fiberglass......................... Glass cullet.

20-25

------------------------------------------------------------------------

Note: The recommended recovered materials content levels are based on

the weight (not volume) of materials in the insulating core only.

Specifications: EPA recommends that procuring agencies reference

ASTM standard specification D 5359, ``Glass Cullet Recovered from Waste

for Use in Manufacture of Glass Fiber,'' in Invitations for Bid and

Requests for Proposal.

Section C-2--Structural Fiberboard and Laminated Paperboard.

Preference Program: EPA recommends that, based on the recovered

materials content levels shown in Table C-2, procuring agencies

establish minimum content standards for use in purchasing structural

fiberboard or laminated paperboard products for use in either

insulating or structural applications.

Table C-2.--Recommended Recovered Materials Content Levels for

Structural Fiberboard and Laminated Paperboard

------------------------------------------------------------------------

Total

Postconsumer recovered

Product recovered materials

paper content

(percent) (percent)

------------------------------------------------------------------------

Structural fiberboards....................... 20 60-100

Laminated paperboards........................ 100 100

------------------------------------------------------------------------

Note: The recovered materials content levels are based on the weight

(not volume) of materials in the insulating core only.

Specifications: EPA recommends that procuring agencies use ASTM

Standard Specification C 208 and ANSI/AHA specification A194.1. EPA

further recommends that, when purchasing structural fiberboard

products, procuring agencies: (1) Reference the technical requirements

of ASTM C 208, ``Insulating Board (Cellulosic Fiber), Structural and

Decorative,'' (2) permit structural fiberboard products made from

postconsumer and over-issue paper, and (3) permit products such as

floor underlayment and roof overlay containing recovered paper.

EPA further recommends that procuring agencies review their

specifications for insulating products and revise them as necessary to

obtain the appropriate ``R''-value without unnecessarily precluding the

purchase of products containing recovered materials.

Section C-3--Plastic Pipe and Fittings.

Preference Program: EPA recommends that, based on the recovered

materials content levels shown in Table C-3, procuring agencies

establish minimum content standards for use in purchasing non-pressure

plastic pipe and fittings for drainage; sewer; drain, waste, and vent

(DWV); and conduit applications.

Table C-3.--Recommended Recovered Materials Content Levels for Plastic

Pipe and Fittings

------------------------------------------------------------------------

Postconsumer

Non-pressure application (includes pipe Recovered recovered

and fittings) materials materials

(percent) (percent)

------------------------------------------------------------------------

Drainage................................ .............. 40-100

Sewer................................... 40-100 ..............

Drain, Waste and Vent (DWV)............. 40-100 ..............

Conduit................................. 40-100 ..............

------------------------------------------------------------------------

Specifications: EPA recommends that procuring agencies evaluate the

applicable ASTM standards and specifications which pertain to pipe

applications to determine whether those standards and specifications

prohibit the use of recovered resins. If so, EPA encourages procuring

agencies to purchase pipe that is certified to meet the applicable ASTM

performance requirements, in lieu of pipe that is ``ASTM approved.''

EPA recommends that procuring agencies review their own

construction specifications and revise them as appropriate to reference

only the technical provisions of the applicable ASTM standards so as

not to preclude pipe containing recovered materials.

Section C-4--Geotextiles and Related Products.

Preference Program: EPA recommends that, based on the recovered

materials content levels shown in Table C-4, procuring agencies

establish minimum content standards for use in purchasing geotextiles.

Table C-4.--Recommended Recovered Materials Content Levels for

Geotextiles and Related Products

------------------------------------------------------------------------

Postconsumer

recovered

Product Resin materials

(percent)

------------------------------------------------------------------------

Geotextiles................................. PP 20-100

PET 50-100

------------------------------------------------------------------------

Note: The geotextile layer of a geocomposite should comply with the

applicable standard set forth in this table.

Section C-5--Cement and Concrete.

Preference Program: EPA recommends that procuring agencies revise

their procurement programs for cement and concrete or for construction

projects involving cement and concrete to allow use of ground

granulated blast furnace (GGBF) slag, as appropriate. EPA recommends

that procuring agencies specifically include provisions in all

construction contracts to allow for the use, as optional or alternate

materials, of cement or concrete which contains GGBF slag, where

appropriate.

Due to variations in GGBF slag, cement strength requirements,

costs, and construction practices, EPA is not recommending recovered

materials content levels for cement or concrete containing GGBF slag.

However, EPA is providing the following information about recovered

materials content.

According to ASTM C 595, GGBF slag may replace up to 70

percent of the portland cement in some concrete mixtures. Most GGBF

slag concrete mixtures contain between 25 and 50 percent GGBF slag by

weight. EPA recommends that procuring agencies refer to ASTM C 595 for

the GGBF slag content appropriate for the intended use of the cement

and concrete.

Specifications: The following recommendations address guide

specifications, materials specifications, contract specifications, and

performance standards.

Guide specifications. EPA recommends that procuring

agencies assure that their guide specifications do not unfairly

discriminate against the use of GGBF slag in cement and concrete. EPA

further recommends that procuring agencies revise their guide

specifications to require that contract specifications for individual

construction projects or products allow for the use of GGBF slag,

unless the use of these materials is technically inappropriate for a

particular construction application.

Materials specifications. EPA recommends that procuring

agencies use the existing voluntary consensus specifications referenced

in Table C-5 for cement and concrete containing GGBF slag.

Table C-5.--Recommended Specifications for Cement and Concrete

Containing Recovered Materials

------------------------------------------------------------------------

Cement specifications Concrete specifications

------------------------------------------------------------------------

ASTM C 595, Standard Specification ASTM C 989, Ground Granulated Blast-

for Blended Hydraulic Cements. Furnace Slag for Use in Concrete

Mortars.

AASHTO M 240, Blended Hydraulic AASHTO M 302, Ground Granulated

Cements. Blast Furnace Slag for Use in

Concrete and Mortars.

American Concrete Institute

Standard Practice ACI 226.R1,

Ground Granulated Blast-Furnace

Slag as a Cementitious Constituent

in Concrete.

------------------------------------------------------------------------

State specifications. The States of Maryland, West

Virginia, Pennsylvania, Virginia, Georgia, South Carolina, and Florida

have adopted specifications which allow use of GGBF slag. If needed,

procuring agencies can obtain these specifications from the respective

state transportation departments and adapt them for use in their

programs, as appropriate.

Contract specifications. EPA recommends that procuring

agencies which prepare or review ``contract'' specifications for

individual construction projects revise those specifications to allow

the use of cement and concrete containing GGBF slag as optional or

alternate materials for the project, where appropriate.

Performance standards. EPA recommends that procuring

agencies review and, if necessary, revise performance standards

relating to cement or concrete construction projects to insure that

they do not arbitrarily restrict the use of GGBF slag, either

intentionally or inadvertently, unless the restriction is justified on

a job-by-job basis: (1) To meet reasonable performance requirements for

the cement or concrete or (2) because the use of GGBF slag would be

inappropriate for technical reasons. EPA recommends that this

justification be documented based on specific technical performance

information. Legitimate documentation of technical infeasibility for

GGBF slag can be for certain classes of applications, rather than on a

job-by-job basis. Agencies should reference such documentation in

individual contract specifications, to avoid extensive repetition of

previously documented points. However, procuring agencies should be

prepared to submit such documentation to scrutiny by interested

persons, and should have a review process available in the event of

disagreements.

Section C-6--Polyester Carpet.

Preference Program: EPA recommends that, based on the recovered

materials content levels shown in Table C-6, procuring agencies

establish minimum content standards for use in purchasing polyester

carpet for low and medium wear applications.

Table C-6.--Recommended Recovered Materials Content Levels for Polyester

Carpet

------------------------------------------------------------------------

Postconsumer

Product Resin materials

(percent)

------------------------------------------------------------------------

Polyester carpet fiber........................ PET 100

------------------------------------------------------------------------

Specifications: EPA recommends that Federal procuring agencies use

GSA's New Item Introductory Schedule when purchasing polyester carpet

containing recovered materials. EPA also recommends that procuring

agencies review their specifications and revise them to permit, where

suitable, the use of polyester carpet containing recovered materials.

In particular, EPA recommends that agencies currently limiting carpet

materials to nylon and/or wool consider adding polyester carpet, where

appropriate, to enable them to procure carpet containing recovered

materials.

Section C-7--Floor Tiles and Patio Blocks.

Preference Program: EPA recommends that, based on the recovered

materials content levels shown in Table C-7, procuring agencies

establish minimum content standards for use in purchasing floor tiles

and patio blocks made with rubber or plastic.

Table C-7.--Recommended Recovered Materials Levels for Floor Tiles and

Patio Blocks

------------------------------------------------------------------------

Postconsumer Total recovered

Product Material materials materials

(percent) (percent)

------------------------------------------------------------------------

Patio blocks..... Rubber or rubber 90-100 ................

blends.

Plastic or ................ 90-100

plastic blends.

Floor tiles...... Rubber........... 90-100 ................

Plastic.......... ................ 90-100

------------------------------------------------------------------------

ANote: The recommended recovered materials content levels are based on

the dry weight of the raw materials, exclusive of any additives such

as adhesives, binders, or coloring agents. EPA's recommendation does

not preclude procuring agencies from purchasing floor tiles or patio

blocks manufactured from another material. It simply recommends that

procuring agencies, when purchasing floor tiles or patio blocks made

from rubber or plastic, purchase these items made from recovered

materials.

Part D--Transportation Products

Section D-1--Temporary Traffic Control Devices.

Preference Program: EPA recommends that, based on the recovered

materials content levels shown in Table D-1, procuring agencies

establish minimum content standards for use in traffic cones and

traffic barricades.

Table D-1.--Recommended Recovered Materials Content Levels for Traffic Cones and Traffic Barricades

----------------------------------------------------------------------------------------------------------------

Total

Postconsumer recovered

Product Material materials materials

(percent) (percent)

----------------------------------------------------------------------------------------------------------------

Traffic Cones..................................... PVC, LDPE, Crumb Rubber ............ 50-100

Traffic Barricades................................. HDPE, LDPE, PET 80-100 100

(Type I & II only)................................. Fiberglass ............ 100

----------------------------------------------------------------------------------------------------------------

Note: The recommended recovered materials content levels are based on the dry weight of the raw materials,

exclusive of any additives such as adhesives, binders, or coloring agents.

Part E--Park and Recreation Products

Section E-1--Playground Surfaces and Running Tracks.

Preference Program: EPA recommends that, based on the recovered

materials content levels shown in Table E-1, procuring agencies

establish minimum content standards for use in purchasing playground

surfaces and running tracks made of rubber or plastic.

Table E-1.--Recommended Recovered Materials Content Levels for

Playground Surfaces and Running Tracks

------------------------------------------------------------------------

Postconsumer

recovered

Product Material materials

(percent)

------------------------------------------------------------------------

Playground surfaces.............. Rubber or plastic 90-100

Running tracks................... Rubber or plastic 90-100

------------------------------------------------------------------------

Note: EPA's recommendation does not preclude procuring agencies from

purchasing playground surfaces or running tracks manufactured from

another material. It simply recommends that procuring agencies, when

purchasing playground surfaces or running tracks made from rubber or

plastic, purchase these items made from recovered materials.

Part F--Landscaping Products

Section F-1--Hydraulic Mulch.

Preference Program: EPA recommends that, based on the recovered

materials content levels shown in Table F-1, procuring agencies

establish minimum content standards for paper-based and wood-based

hydraulic mulch products.

Table F-1.--Recommended Recovered Materials Content Levels for Hydraulic

Mulch Products

------------------------------------------------------------------------

Recovered materials (materials and

Hydraulic mulch products percent)

------------------------------------------------------------------------

Paper-Based Hydraulic Mulch........ Postconsumer recovered paper.

100

Wood-Based Hydraulic Mulch......... Recovered wood and/or paper.

100

------------------------------------------------------------------------

Note: The recommended recovered materials content levels are based on

the dry weight of the fiber, exclusive of any dyes, wetting agents,

seeds, fertilizer, or other non-cellulose additives.

Section F-2--Yard Trimmings Compost.

Preference Program: EPA recommends that procuring agencies purchase

or use compost made from yard trimmings, leaves, and/or grass clippings

in such applications as landscaping, seeding of grass or other plants

on roadsides and embankments, as nutritious mulch under trees and

shrubs, and in erosion control and soil reclamation.

EPA further recommends that those procuring agencies that have an

adequate volume of yard trimmings, leaves, and/or grass clippings, as

well as sufficient space for composting, should implement a composting

system to produce a mature, high-quality compost from these materials

for use in landscaping and other applications.

Specifications: EPA recommends that procuring agencies ensure that

there is no language in their specifications for fertilizers and soil

amendments that would preclude or discourage the use of compost. For

instance, if specifications address the use of straw or hay in roadside

revegetation projects, procuring agencies should assess whether compost

could substitute for straw or hay or be used in combination with them.

The State of Maine has developed quality standards for compost

products that would be used by its agencies or purchased with state

funds. The quality standards have been set for six types of compost

products, ranging from topsoil (three classes), to wetland substrate,

to mulch (two classes). For each of these types of compost product,

standards for maturity, odor, texture, nutrients, pH, salt content,

organic content, pathogen reduction, heavy metals, foreign matter,

moisture content, and density have been established. EPA recommends

that procuring agencies obtain and adapt this or another suitable

specification for their use in purchasing compost products.

Part G--Non-Paper Office Products

Section G-1--Office Recycling Containers and Office Waste Receptacles.

Preference Program: EPA recommends that, based on the recovered

materials content levels shown in Table G-1, procuring agencies

establish minimum content standards for use in purchasing office

recycling containers and office waste receptacles.

Table G-1.--Recommended Recovered Materials Content Levels for Office

Recycling Containers and Office Waste Receptacles

------------------------------------------------------------------------

Postconsumer recovered materials

Product (materials and percent)

------------------------------------------------------------------------

Office Recycling Containers and Plastic.

Office Waste Receptacles.

20-100.

Paper.

Refer to Paperboard Recommendations

in 40 CFR Part 250.

Steel.

Highest Amount Practicable.

------------------------------------------------------------------------

Note: EPA's recommendation for office recycling containers and office

waste receptacles containing recovered plastic does not preclude

procuring agencies from purchasing containers or receptacles

manufactured using another material, such as wood. It simply

recommends that procuring agencies, when purchasing office recycling

containers or office waste receptacles manufactured from plastic or

paper, seek such containers made with recovered materials. When

purchasing these containers made with steel, procuring agencies should

seek the highest level of postconsumer recovered materials

practicable.

Section G-2--Plastic Desktop Accessories

Preference Program: EPA recommends that, based on the recovered

materials content levels shown in Table G-2, procuring agencies

establish minimum content standards for use in purchasing plastic

desktop accessories.

Table G-2.--Recommended Recovered Materials Content Levels for Plastic

Desktop Accessories

------------------------------------------------------------------------

Postconsumer recovered materials

Product (material and percent)

------------------------------------------------------------------------

Plastic Desktop Accessories........ Polystyrene.

25-80

------------------------------------------------------------------------

Note: EPA's recommendation does not preclude procuring agencies from

purchasing a desktop accessory manufactured from another material,

such as paper, wood, or steel. It simply recommends that, when

purchasing plastic desktop accessories, procuring agencies purchase

these items made from recovered materials.

Section G-3--Remanufactured Toner Cartridges.

Preference Program: EPA recommends that procuring agencies

establish procedures and policies that give priority to remanufacturing

the agencies' expended toner cartridges. EPA recommends that, under

such policies and procedures, procuring agencies procure

remanufacturing services for expended cartridges and, when such

services are unavailable or not practicable, obtain remanufactured

toner cartridges from product vendors.

Section G-4--Binders.

Preference Program: EPA recommends that, based on the recovered

materials content levels shown in Table G-3, procuring agencies

establish minimum content standards for use in purchasing binders.

Table G-3.--Recommended Recovered Materials Content Levels for Binders

------------------------------------------------------------------------

Recovered materials (materials and

Product percent)

------------------------------------------------------------------------

Plastic-Covered Binders (Plastic Plastic

Covering).

50-60

Chipboard Binders.................. Paper

Refer to 40 CFR Part 250.

------------------------------------------------------------------------

Note: The chipboard or paperboard component of a plastic-covered binder

or a binder covered with another material, such as cloth, is covered

under EPA's procurement guideline for paper and paper products (40 CFR

Part 250). EPA's recommendation for plastic-covered and chipboard

binders does not preclude procuring agencies from purchasing a binder

covered with or manufactured using another material, such as cloth. It

simply recommends that procuring agencies, when purchasing chipboard

or plastic-covered binders, purchase these binders containing

recovered materials.

Specifications: GSA's specification for binders, A-A-2549A, covers

four types of binders, including cloth bound, flexible cover; cloth

bound, stiff cover; plastic bound, flexible cover; and plastic bound,

stiff cover. In the specification, GSA requires its binders to contain

``a minimum of 100% waste paper, including a minimum of 30%

postconsumer recovered materials.''

Section G-5--Plastic Trash Bags.

Preference Program: EPA recommends that, based on the content

levels shown in Table G-4, procuring agencies establish minimum content

standards for use in purchasing plastic trash bags.

Table G-4.--Recommended Recovered Materials Content Levels for Plastic

Trash Bags

------------------------------------------------------------------------

Postconsumer recovered materials

Product (material and percent)

------------------------------------------------------------------------

Plastic Trash Bags................. Plastic.

30-100

------------------------------------------------------------------------

Note: EPA's recommendation does not preclude procuring agencies from

purchasing a trash bag manufactured using another material, such as

paper. It merely recommends that procuring agencies, when purchasing

plastic trash bags, purchase these items made from recovered

materials.

Part H--Miscellaneous Products

[Reserved]

[FR Doc. 94-9418 Filed 4-19-94; 8:45 am]

BILLING CODE 6560-50-P