United States
Environmental Protection
Agency
Office o* Solic '-Vc
Septemoer 193£
EPA S30-SW-88-01
EPA The Solid Waste Dilemma:
An Agenda for Action
Draft Report
of the Municipal Solid Waste Task Force
Office of Solid Waste
United States Environmental Protection Agency
September 1988
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THE SOLID WASTE DILEMMA:
AN AGENDA FOR ACTION
Drah Report of the Municipal Solid Waste Task Force
Office of Solid Waste
U.S. Environmental Protection Agency
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THE SOLID WASTE DILEMMA:
AN AGENDA FOR ACTION
Draft Report of the Municipal Solid Waste Task Force
Office of Solid Waste
U.S. Environmental Protection Agency
September 1988
.3. Emrlroruwntal Protection
jion 9, M+raSy <5PL-i6)
:0 S. Dearfcem Str«»t, »e«» 16VO
.ilcago, IL »06t4
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TABLE OF CONTENTS
Section Page
Executive Summary 1
Introduction 6
Scope of the Problem 12
Integrated Waste Management 17
Hierarchy of Integrated Waste Management 18
Who's Responsible 20 '
Planning ' 21
National Goals 23
Objectives 24
An Agenda for Action 26
I. Increase Available Information 26
II. Increase Planning 37
III. Increase Source Reduction Activities 41
IV. Increase Recycling 49
V. Reduce Risks of Combustion 59
VI. Reduce Risks of Landfills 65
Conclusion 70
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LIST OF TABLES
Table Title
1 Next Steps for EPA to Increase Information 35
2 Next Steps for EPA to Encourage Increased Planning 40
3 Next Steps for EPA to Encourage Increased Source
Reduction Activities 47
4 Next Steps for EPA to Participate in and Encourage
Increased Recycling 57
5 Next Steps for EPA to help Reduce the Risks of
Incineration 64
6 Next Steps for EPA to Help Reduce the Risks of
Landfilling 69
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Americans relentlessly produce more and more solid waste each year; we generate
more per capita than any other nation. For example, an American generates almost one
pound per day more waste than his/her counterpart in West Germany. But, at the same
time that we generate more waste, we are running out of places to dispose of it.
Landfill capacity in some places is almost filled to the saturation point, and muni-
cipalities and private firms face growing public resistance as they attempt to site
new landfills and build new incinerators. Public health and environmental concerns
play a central role In public opposition. Even materials recovery facilities and
recycling centers can be difficult to site, because many tend to associate all waste
management operations with unpleasant smells, noise, and truck traffic. The feckless
voyage of the "garbage barge" last year and the ash barges this year have become
national symbols of America's solid waste dilemma.
Although solid waste management Is primarily a local responsibility, the problem
is national in scope, and we need a national strategy to solve It. In response to the
recent rash of environmental and siting problems, EPA created a Municipal Solid Waste
Task Force in February 1988 and directed it to fashion a strategy for improving the
nation's management of municipal solid waste. The following report, developed in
consultation with a variety of knowledgeable groups and individuals, presents the Task
Force's draft Agenda for Action, which is being released for public comment.
The Agenda for Action offers a number of concrete suggestions for action by not
only EPA, but also government at all levels, industry, and private citizens. This
Agenda cannot be accomplished by the Federal government acting alone. Its accom-
plishment is contingent on a strong partnership between government, industry and the
public. It also underscores the need for a fundamental change In the nation's
approach to producing, packaging and disposing of consumer goods. In the past,
"business as usual" meant an accelerating trend toward disposable products, con-
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venience packaging, and an ''out-of-sight, out-of-mind" attitude toward solid waste
^
As" a nation, we can no longer afford this kind of "business as usual." We must
adopt a new solid waste management ethic that minimizes the amount and toxicity of
waste created by the products we make and purchase, produced during the manufacturing
process, and generated by our day-to-day activities as consumers. That ethic must
also maximize the amount of waste materials that are reused and recycled so that we
minimize our reliance on landfills and incinerators. In short, we need to change the
way we do business. This change will not be easy. We all must work diligently in the
short term in order to make long-term changes. I hope this report will serve as a
centerpiece for this change.
The draft Agenda for Action is being issued to stir debate, to elicit the views
and concerns of all Interested parties, and to work toward consensus on the problems
and solutions for managing municipal solid waste. EPA will hold four public meetings
In September and October, 1988 and will allow a 60-day period from the publication"
date of this document in which the public may submit written comments. A final
document is planned for January, 1989. EPA is committed to working with all parties
to resolve this serious national issue, and encourages government, Industry and the
public to form the partnership which is vital to developing solutions to these
problems. I encourage each of you to review this document with a critical eye. These
are difficult issues which demand the attention of all of us.
--J. Winston Porter
Assistant Administrator
Solid Waste and
Emergency Response
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EXECUTIVE SUMMARY
This report Is about what the government calls municipal solid waste, and almost
everyone else calls garbage. As a nation, we generate about 160 million tons of solid
waste a year. This report is about how we should handle this outflow of refuse - the
cans, the bottles, the leaves and lawn clippings, the paper and plastic packages, the
broken furniture and appliances, the uneaten food and the old tires. This deluge of
garbage Is growing steadily and we must find ways to manage it safely and effectively.
We're running out of space to bury it in existing landfills; one third of the nation's
landfills will be full within the next five years. Yet because of the Nimby syndrome
and concerns over potential threats to human health and the environment, many cities
are unable to find enough acceptable sites for new landfills or new incinerators.
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This report presents the goals and recommendations for action by EPA, state and
local government, industry and private citizens to address the municipal solid waste
management problems that are facing this country. These goals and recommendations are
the result of five months of study by EPA's recently created Municipal Solid Waste
Task Force. The Task Force gathered existing data on municipal waste and problems
regarding its management, solicited input from interested persons and groups, and
developed a number of options to address these problems. This summary data is
contained in a supplemental document titled "Background Document for the Solid Waste
Dilemma: An Agenda for Action."
The types and extent of the problem in managing municipal solid waste vary from
region to region depending on waste type, land use, and demographic characteristics,
but some trends and problems are clearly national In scope. From 1960 to 1988. we
generated more waste every year, both in total tonnage and in pounds per person, and
this trend Is expected to continue. In addition, we are running out of places to put
our waste because old landfills are closing and few new landfills and incinerators are
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able to be sited and built. There are concerns about potential threats to human
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health and the environment from Incinerator emissions and ash, from landfill
emissions, leachate, and litter. High costs are borne by the waste generator and
handler, as many areas of the country resort to shipping waste long distances by truck
and rail to areas with available landfill or incinerator capacity. Recycling,
although a waste management technique popular with the public, Is used currently to
manage only 10 percent of the waste, and Is successful only when participation In
separation and collection Is high and market prices for secondary materials are
favorable. Finally, manufacturers of products have no direct incentive to design
products for effective waste nanagement because they are not usually directly
responsible for the ultimate costs of waste management. Similarly, most consumers do
not have a direct economic Incentive to throw away less, because they are not usually
charged based on the amount they throw away.
*
This report recommends using the hierarchy of "Integrated waste management" to
solve municipal solid waste generation and management problems at the local, regional,
and national levels. This hierarchy favors source reduction (Including reuse) to
first decrease the volume and toxicity and Increase the useful life of products In
order to reduce the volume and toxicity of waste. Recycling (including composting) Is
the preferred waste management option to further reduce potential risks to human
health and the environment, divert waste from diminishing landfill and Incinerator
capacity, and slow the depletion of nonrenewable natural resources. Landfills and
incinerators will be necessary for the foreseeable future to handle some wastes, but
are lower on the hierarchy because of the potential risks to human health and the
environment and long-term management costs. This risk potential can be largely
minimized through proper design and management. Integrated waste management can and
should be Implemented at a local level to the extent practical, and is a useful
conceptual tool for making management decisions. But, It Is not meant to be rigidly
applied when local unique waste and demographic characteristics make source reduction
and recycling Infeaslble
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The integrated waste management hierarchy is the framework for the national goals
presented In this report. This report presents EPA's stated goal of managing 25
percent of the municipal solid waste through source reduction and recycling by 1992.
In addition, we must slow the rate of increasing waste generation which Is projected
for the Year 2000. We also must work to reduce the risks associated with landfills
and Incinerators inasmuch as these management alternatives will be necessary to handle
at least some of the wastes In all communities. By Implementing these goals, we can
solve or reduce many of our municipal waste management problems.
This report outlines EPA's program to address these goals. It also presents a
number of recommendations for State and local governments, Industry, and consumers
that will enable us to meet these goals. Information, assistance, and data must be
made more accessible to everyone by generating catalogs of available materials,
establishing a national clearinghouse, developing a "peer matching" program to allow
i
all levels of government and waste management to exchange expertise, and developing a
national research agenda for collecting rvew information and developing new
technologies.
Planning at all levels of government is recommended in the report. EPA will hold
national and regional planning conferences to facilitate the exchange of Information.
This report contains a list of elements that State and local municipal solid waste
management plans should Include.
Source reduction should be fostered at the manufacturing, governmental, and local
levels. EPA will study options for reducing lead and cadmium In products in order to
reduce the risks of Incinerator ash, landfill leachate, and recycling operations. EPA
will foster workshops for manufacturers and educators to promote the design of pro-
ducts and packaging for effective waste management. EPA will identify economic,
regulatory and possibly legislative incentives for decreasing the volume and toxiclty
of waste. EPA will also take steps to facilitate Federal procurement of products with
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source reduction attributes Industry should conduct waste audits, and determine ways
to decrease the volume and toxlclty of materials used In manufacture.
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Recommendations for recycling include fostering implementation of existing
Federal procurement guidelines (as well as evaluating ones for additional commodi-
ties), and creating an interagency working group to develop pilot and full-scale
projects for separating recyclables in Federal agencies. Markets for secondary
materials and recycled goods must be stimulated and stabilized; thus EPA will conduct
market development studies for different commodities, will examine economic and
regulatory Incentives for using secondary or recycled materials, and will foster the
formation of regional marketing councils for the exchange of market information. A
National Recycling Council will be formed with members from all sectors of waste
management to track recycling issues and problems and to recommend actions. Finally,
EPA will study how to foster recycling lead-acid batteries, including examining the
current incentives and disincentives associated with liability. Indusxry should step
up its efforts In fostering the recycling of plastics. State and local governments
should encourage separation of recyclables, conduct waste exchanges, and provide
incentives for stable markets for recycled goods.
Finally, recommendations for decreasing the risks from landfllling and incinera-
tion include continuing EPA's ongoing efforts for performance standards for new
Incinerators, guidelines for existing ones, air emission standards for landfills, and
revised minimum design and operation criteria for landfills. EPA recommends that ash
management plans be developed as part of any plan for incineration of waste. EPA, in
conjunction with trade associations, will facilitate development of guidance on
training and certification for incinerator and landfill operators. EPA will also
study whether bans are necessary or desirable for certain types of waste. Finally,
EPA will develop a primer on risk assessments for incineration and landfilling to
inform the public on general risk assessment methods and limitations.
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These recommendations present a core program for governmental, Industrial and
citizen action which will help solve our nation's municipal waste management problems
and are being presented for public comments. A final report is expected in January
1989.
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INTRODUCTION
This report is about what the government calls municipal solid waste and almost
everybody else calls garbage. It's about soft drink bottles, cans, disposable
diapers, uneaten food, scraps of wood and metal, worn-out tires and used-up batteries,
paper and plastic packages, boxes, broken furniture and appliances, clippings from our
lawns and shrubs-the varied human refuse of our modern industrial society.
All of us generate solid waste every day--a total for the nation of about 160
million tons a year. And the garbage deluge is growing steadily; with our current
garbage practices, It could reach 193 million tons by the Year 2000. More than 40
percent of this solid waste stream consists of the paper and paper products we discard
in our homes, offices and factories.* Yard wastes make-
uery yuwn us another 18 percent of the total. The other major
pick tt up, and nobody '
wants us to put it components are metals, glass, food waste, and plastics
own' (see Figure 1). Symptomatic of what social critics call
our "throwaway society" are the many disposable
products that are manufactured, imported, sold, used and thrown away; for example, we
discard 1.6 billion pens, 2 billion razors and blades, and 16 billion diapers every
year. "Convenience" packaging suited to our high-speed, Increasingly busy life-
styles-TV dinners, fast-food containers, microwavable bags of popcorn, and the
like--make a substantial contribution to the flood of trash.
*ln this report, the term "municipal solid waste" refers primarily to residential
solid waste, with some contribution from commercial, institutional and Industrial
sources. In some areas, nonrestdentlal wastes are managed separately, largely because
industrial and some commercial sources produce relatively uniform wastes in large
quantities, which makes them more suitable for alternative disposal techniques or
recycling. Hazardous wastes, as defined by Federal and State regulation, generally
are managed outside the municipal solid waste stream Exceptions are household
hazardous wastes and hazardous wastes generated In very small quantities, which are
often placed in the municipal solid waste stream bytthe generator
This report does not attempt to grapple with the issue of medical waste This
issue is the subject of a separate EPA Task Force
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Paper and
paperboard - 41.0%
Glass
8.2%
Metals
8.7%
Plastics
6.5%
Misc. inorganic
wastes - 1.6%
Yard wastes
17.9%
Food wastes
7.9%
Rubber, leather, textiles,
wood - 8.1%
FIGURE 1 - GROSS DISCARDS OF MSW MATERIALS, 1986
(Source : Characterization Of Municipal Solid Waste In The
United States, 1960 To 2000; Franklin Assoc, 3/30/88)
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People who manage solid waste say that the First Law of Garbage is: "Everybody
wants us to pick it up, and nobody wants us to put it down." Many Americans want
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their trash to disappear quickly and quietly from their backyards and curbs, never to
be seen or heard from again. And the last thing they want in their neighborhood is a
landfill, incinerator or recycling center-all of which are associated in the public
mind with noxious odors, possibly dangerous pollution, and noisy traffic.
These two social forces--the throwaway mentality on the part of manufacturers and
many consumers and the NIMBY ("not-in-my-backyard") syndrome- -have combined to
create a serious and growing solid waste problem in many American cities. As a
nation, we are generating more garbage all the time, and we don't know what to do with
it. Ineffective or Irresponsible disposal of all this waste has the potential to
degrade the environment and cause risk to public health.
"TheonnudU.S. w , runn|n Qut of s ace to bury ,t ,n exlsting
generation of 1 58 million 3 ~
tons of municipal solid landfills; one-third of the nation's landfills will be
waste would fill a convoy fu|, w,th,n ^ ^ ^ y&( because of the
of 10-ton garbage trucks,
145,000 miles long... NIMBY syndrome and concerns over potential threats to
half way from here human health and the environment, many cities are unable
to the moon.
to find enough acceptable sites for new landfills.
Siting new incinerators can be equally difficult; many people are not convinced that
garbage can be burned without producing dangerous air pollution and residues. The
problem has gotten to the point that some American cities are paying premium prices to
have their trash shipped to other counties, States, and even foreign countries.
In response to this solid waste dilemma, many States, localities, and concerned
citizens have stepped up recycling activities and formed comprehensive waste manage-
ment programs. With their progressive programs, some localities are far ahead of any
Federal program for municipal solid waste, while other communities and States lag far
behind and may not even recognize or anticipate a problem. The private sector, In the
form of tne waste management, secondary materials, and manufacturing Industries, have
also recognized the benefits of recycling and have successfully implemented programs.
The Federal role for municipal waste management has ranged through the years from an
active nonregulatory role prior to 1980, to a less comprehensive, more regulatory role
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since 1980 In the past several years. EPA has proposed revised minimum standards for
designing and operating municipal landfills; issued procurement guidelines for some
recycled goods; Issued a Report to Congress on air emissions from municipal waste
combustors; developed a report on the efficacy of the current nonhazardous waste
regulations: recently initiated several bulletins and brochures to promote used oil
recycling; and conducted a toxicity study on municipal waste combustor ash. EPA also
is developing guidance for proper handling and disposal of combustor ash residuals.
More recently, the Environmental Protection Agency created a Municipal Solid
Waste Task Force In February 1988 to specifically address the problem of Increasing
waste generation and decreasing management capacity. The Task Force was given the
assignment of quickly assessing the size and scope of the solid waste problem,
examining alternatives for solving it, and developing a well-coordinated strategy of
action for Improving the nation's management of municipal solid waste.
In an effort to make the strategy credible and practical, the Task Force
solicited comments from the public and interested groups and organizations. Three
public meetings were held: in Boston on May 9, in Seattle on May 11. and In Dallas on
May 13. The Task Force also identified interested trade associations, environmental
groups, and government organizations and offered drafts of Its analysis for their
review during the strategy development process. These comments from the public
contributed substantially to this Agenda for Action.
This report presents the Task Force's draft national action agenda for public
comment.* There" is no single solution to this complex problem. A myriad of activi-
ties must be Implemented, both In the short and long term, by all of us In order to
solve the current and future problems with municipal solid waste. This report sug-
gests a number of things that government, business, industry and citizens can do to
'Only the Task Force's recommendations are included in this report; the data and
Information supporting the recommendations can be found In a supplemental document
entitled, "Background Document for The Solid Waste Dilemma: An Agenda for Action,
Draft Report of the Municipal Solid Waste Task Force."
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reduce the production of solid waste and better manage the solid waste that is pro-
duced: manufacturing products with consideration for their ultimate management as
wastes; encouraging, producing and buying products that are made from recycled or
recyclable materials; separating bottles, cans and paper
"Each of us contributes , , , ., , , .
f1300 ar>d turning them in for recycling; Improving the safety
pounds a year to the and efficiency of landfills and Incinerators; and
growing mountain wherever practical, choosing source reduction and
of garbage, and each of °
us, if we're wiling, can recycling over landfllllng and Incineration as the
cut back on the amount.'- preferred methods for managing municipal solid waste.
The report reiterates EPA's stated goal* of diverting 25
percent of the nation's municipal solid waste from landfills and Incinerators through
source reduction and recycling by 1992. Much of this goal will be met through
increased recycling, but EPA believes that source reduction to decrease the volume of
waste produced Is vitally important. Some proposals, such as government Incentives to
encourage the production of long-lasting products that can be reused or recycled, will*
be controversial, but the solid waste problem Is serious, and controversy Is not
sufficient reason to ignore workable solutions.
When Congress passed the Resource Conservation and Recovery Act of 1976 (RCRA),
it recognized that State and local governments have primary responsibility for
municipal solid waste management, but it also gave EPA regulatory and assistance
responsibilities in this area. Many of the recommendations in this report were
developed with the recognition that strong national leadership Is essential in finding
solutions to what has become a widespread national problem. National leadership means
not only establishing national goals and policies, but setting a good example by
purchasing recycled or recyclable products and by separating waste to facilitate
recycling or safe disposal.
Each of us contributes an average of 1,300 pounds a year to the growing mountain
of garbage, aH each of us, If we're willing, can cut back on the amount of waste
'This goal was first stated by the Assistant Administrator of the Office of Solid
Waste and Emergency Response, J. Winston Porter, In a speech at the Fourth Annual
Conference on Solid Waste Management and Materials Policy, on January 29, 1988
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requiring disposal. Industry can also work toward reducing the volume and toxicity of
products and packaging that will ultimately require disposal. The report recommends a
number of educational and other programs to inform citizens and Industry about their
responsibilities and opportunities to help stem the tide of solid waste.
It is important for all of US-government, business, and private citlzens--to
acknowledge that our country has a solid waste problem and to begin the difficult but
inescapable task of finding solutions. If we wait, the problem will only get worse.
If this draft report stimulates thought, discussion and action to help Improve the
management of our nation's municipal solid waste, It will have accomplished Its
purpose.
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SCOPE OF THE PROBLEM
When local officials are asked to list the chief problems associated with
municipal solid waste, they usually cite the growing shortage of landfill capacity and
the high cost of managing waste. These two management problems are especially severe
In some American cities, where disposal costs have soared
"In 1960, Americans {Q mQje {han $10Q tQn Qf waste because of , .
generated waste at a rate
of 2.65 pounds per person distance hauling and high landfill and Incinerator
per day; by 1986 that ., ^ i ^ ,$ ,nternat,ona, wanderlngs of
figure had lumped to r * 3
3.58pounds." the barge Mobro 2000, forlornly searching for a last
resting place for garbage from Islip, New York, graphi-
cally illustrated the capacity shortages in populous communities. Some States and
«
localities have responded to this problem by enacting laws requiring mandatory
recycling or discouraging waste generation.
High costs and capacity shortages, however, are only symptoms of a more basic
problem: Most of America's citizens, officials and industry have yet to recognize
their responsibility for the growth In solid waste and for the problems caused by that
growth. In 1960, Americans generated waste at a rate of 2.65 pounds per person per
day; by 1986, that figure had jumped to 3.58 pounds, and the trend is expected to
continue Into the Year 2000.2 Generation of every kind of waste Is up, including
paper, plastic, glass, and metals, as shown in Figure 2. An American generates
approximately one pound per day more waste than his/her counterpart in West Germany,
an equally Industrialized nation.3 Much of the difference can be traced to the high
1 Frank J. Sudol and Alvtn L. Zach, "Recycling in New Jersey the Newark
Experience," Resource Recycling, Volume VII. No 2, May/June, 1988, p 28
2 Characterization of Vu^cipal Solid Waste In the US. l;yoQ-2000 'updated 1988),
Franklin Associates, March 30, 1988.
3 Allen Hershkowitz. Ph D , "Garbage Burning--Lessons from Europe Consensus and
Controversy in Four European States," Inform, 1986, p. 13.
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level of product manufacture and consumption in this country and the need for con-
venience on the part of increasingly busy families. In general. American consumers
have no Incentive to limit their waste generation, because they are not charged for
disposal according to the amount of waste they produce. Nor are there many incentives
for manufacturers to design their products and packaging in a way that takes into
account the effective management of those products when they are eventually discarded.
At the same time more waste is being generated, less processing and disposal
capacity is available to handle It. One-third of the nation's landfills will be full
by 1993, which means that waste that is now disposed of In these facilities will have
to be disposed of elsewhere. Many existing facilities are closing either because they
are filled or because their design and operation do not meet Federal or State
standards for protection of human health and the environment. New facilities must be
built to replace this diminishing capacity but must be environmentally sound, preserve
valuable resources, and not present undue risk to human health. The Incentive to
build new, environmentally sound facilities and adopt better management practices may
not exist in some areas because of the current practice of "waste flight," In which
waste Is shipped by truck or rail across State and county lines to areas with avail-
able capacity. If not done concurrently with long-term planning to solve the capacity
problem for a region, the short-term solution of waste flight only delays the
inevitable management problem in the locality shipping the waste, and hastens
potential problems in the area that receives and disposes of the waste.
Efforts to site new landfills, incinerators and recycling centers, however, are
met with mountlrtg opposition. This opposition may stem from concerns about
environmental or health risks from contaminated ground and surface waters and soil.
toxic ash from municipal waste combustion, and air emissions; from resistance to such
nuisance factors as noise, smells, and truck traffic; and from anxiety over property
values. Because feu- governments have established effective dispute resolution
mechanisms, "siting impasses" result when local politicians are unwilling or unable
to override the objections of their constituents. These siting disputes Illustrate
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the fact^that few of us are eager to assume responsibility for either our neighbors'
wastes or our own.
Although recycling and reuse of waste materials are publicly acceptable methods
for managing municipal solid waste, the existing waste management infrastructure often
discourages effective recycling efforts. For example, a national policy supporting
the use of a waste management "hierarchy" has been in effect since 1976.4 Under the
hierarchy, source reduction and recycling are the preferred options for managing solid
waste. Incineration and landfllling are to be used only when the preferred options
are unavailable or insufficient. Overwhelmed by the burgeoning amounts of waste that
must be removed from the curb every day, most waste managers are unable to plan or
implement the hierarchy at the local level. As a result, 80 percent of the nation's
waste Is landfllled; only 10 percent is recycled and 10 percent Incinerated. This
reliance on landfilling may stem from a desire for a single, "quick-fix" solution^
more recently, many public officials seem to be turning to mass-burn Incinerators as
\
the "silver-bullet" answer to their waste management problems. The temptation to
build a facility that can Incinerate 2,000 tons of garbage a day may be difficult for
a hard-pressed waste manager to resist.
Why aren't many States and localities implementing the waste management
hierarchy? One reason is that local officials may consider recycling programs too
costly. This happens when officials do not compare recycling costs with the true
cost of handling the same waste in a landfill and Incinerator, Including the expense
of monitoring, closure, and possible remediation of environmental hazards. (In
addition, the true" costs of landfllling and incineration may not be known.) Public
works officials also may not consider recycling a reliable way to handle municipal
solid waste because success in recycling depends heavily on markets for secondary
materials as well as public participation levels, both of which can fluctuate widely.
4
Effective Hazardous Waste Management (Non-Radioactive); Position Statement, Federal
Register, Volume 41, No 161, August 18, 1976'
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This brief description of the scope of the problem Is by no means comprehensive
It is meant to establish the basis for setting goals and actions for a national
strategy. Chapters 2 and 3 of the Background Document provide a more thorough
description of the problems involved in managing municipal waste.
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INTEGRATED WASTE MANAGEMENT
The term "Integrated waste management" refers to the complementary use of a
variety of waste management practices to safely and effectively handle the municipal
solid waste stream with the least adverse impact on human health and the environment.
An Integrated waste management system will contain some or all of the following
components:
o Source reduction (including reuse of products)
o "Recycling of materials (Including composting)
o Incineration (with or without energy recovery)
o Landfilling.
*
In Integrated waste management, all the elements work together to form a complete
system for proper management of municipal waste. Waste stream constituents are
matched to the management practices that are best suited to those particular consti-
tuents, in order to reduce toxics, reduce quantity, and safely extract any useful
energy or material from the waste prior to final disposal.
Every community can "custom-design" its integrated waste management system to
emphasize certain management practices, consistent with the community's demography and
waste stream characteristics. For example, a community like Las Vegas, Nevada, where
landfill tipping fees as low as $6 per ton reflect the ready availability of land5,
may choose to continue to rely on landfilling as its primary waste management practice
after evaluating the feasibility of source reduction and recycling. Conversely, a
C. L. Pettit, "The 1987 Tip Fee Survey - Last Year's Rise was the Biggest Ever,"
Waste Age, Vol 19, No 3, March 1988, p. 77
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town such as East Lyme. Connecticut, where disposal costs exceed $100 per ton, finds
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recycling an essential way to handle a major part of the waste stream.
In an Integrated waste management system, each
component is designed so It complements, rather than
competes with, the other components in the system. For
example, the negative impact of diverting some com-
bustibles from an incinerator for recycling Is avoided if
the incinerator is designed to handle a volume of waste
with a certain Btu value after allowing for the effect of recycling on total waste
volume and Btu values.
Every community can
'' custom-design'' its
integrated waste
management system to
suit its needs.
Hierarchy of Integrated Waste Management
To most effectively reduce our waste management problems at the national level,
States, municipalities, and the waste management industry should use the hierarchy
described below for evaluating the components of Integrated waste management against
the community's needs. Of course, strict adherence to a rigid hierarchy Is inappro-
priate for every community. Manhattan, Nevada will very likely choose a different mix
"Transcript of the Public Meeting on Municipal Solid Waste," Boston, Massachusetts,
May 9, 1988, RCRA Docket -F-88-MTFN-FFFFF, EPA, Office of Solid Waste, 401 M Street
S W , Washington D C 20460
- 18 -
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of options than Manhattan, New York. But the integrated waste management hierarchy is
a, useful conceptual tool for both communities to use In setting goals and planning for
their particular mix of waste management alternatives.
The hierarchy begins with source reduction and reuse to reduce both the toxic
constituents in products and the generation of large quantities of waste. Source
reduction, as defined in this report, may occur through the design and manufacture of
products and packaging with minimum toxic content, minimum volume of material, and/or
a longer useful life. Source reduction may also be practiced at the corporate or
household level through selective buying habits and reuse of products and materials.
Effective source reduction slows the depletion of environmental resources, prolongs
the life of available waste management capacity and can make Incineration and land-
filling of wastes safer In the short and long term by removing toxic constituents.
Source reduction Is not used by local waste handlers for managing the waste that Is
picked up every day; rather, It is a technique for preventing waste from having to be*
managed at all. However, local government can encourage as well as practice source
reduction.
The second rung In the hierarchy is recycling of materials, including composting
of food and yard waste. Recycling is near the top of the hierarchy because it
prevents potentially useful materials from being burned or buried, thereby preserving
waste disposal capacity. Recycling is a technology that can prevent depletion of
valuable landfill space, save energy and natural resources, provide useful products
from discarded material, and even make a profit (especially when the avoided costs of
incineration or landfilllng are taken into account). Thus, public officials and waste
handlers should give serious consideration to the practicality of recycling programs
in their communities.
Although lower than source reduction and recycling in the hierarchy of desirable
waste management options, incineration is useful in reducing the bulk (although not
i
all) of municipal waste and can provide the added benefit of energy production.
Although incineration Is not risk-free, a state-of-the-art Incinerator that is well
- 19 -
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operated should not present a significant risk to human health and the environment
When recycling Is part of a community's or a waste handler's chosen integrated waste
management system, incineration can complement recycling by reducing the bulk of the
nonrecyclable, nonreusable waste. Using source reduction, reuse and recycling to
manage wastes that do not lend themselves to incineration can mitigate problems
associated with Incineration, such as potentially harmful stack emissions or opera-
tional problems caused by heterogeneous waste mixtures. Residual ash Is another
problem associated with incinerators because of the sometimes high metals content and
the need to manage It properly.
Landfllling also Is lower In the hierarchy than source reduction, reuse and
recycling, but Is essential to handle wastes such as nonrecyclable waste and the
noncombustlbles such as demolition waste and construction debris. In addition,
landfills can provide the benefit of energy production through recovery of methane
gas. Landfills designated for handling incinerator ash residuals are essential and*
in the absence of alternative ash management'plans, must be planned and designed In
conjunction with the incinerator. Landfills should also be used for materials that
cannot practicably be managed In any other way. A well-constructed, properly operated
landfill should not present a significant health risk. As previously mentioned, some
communities and waste handlers, based on land availability and population charac-
teristics that make recycling impractical, may choose landfllling as their principal
method of managing municipal waste. For the foreseeable future, landfills will be
necessary to handle some wastes, so steps must be taken to make landfllling as safe as
possible.
Who's Responsible?
We all are. Everyone has a role in making integrated waste management work.
Industry has a responsibility to consider source reduction, reuse and recyclablllty in
designing products and packaging, and to use secondary materials in their manufacture.
Citizens have a responsibility to learn about the products and packaging they buy and
the waste they create. What is in the product? What is recyclable? What Is
- 20 -
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potentially harmful? How long will the product last? How much does It cost to
,-*
dispose of It? Every individual and corporate citizen should assume responsibility
for waste disposal and adopt a "pay-as-you-throw" attitude--a recognition of the
true costs of disposing of the wastes we generate.
Who's Responsible? Waste management companies, Including processors
WE ALL . anc| nanc|iers of secondary materials, have a responsi-
Eueryone has a role in
making integrated waste billty for planning and implementing Integrated waste
management work. management for their communities. They should work In
partnership with State and local public officials to
plan and implement integrated waste management and to educate the public. This
partnership can be an effective mechanism for managing municipal solid waste.
All levels of government, especially State, Tribal and local, are ultimately
responsible for managing waste and planning the mix of management options that will'
most effectively handle the waste stream. The Federal government should participate
In municipal solid waste management by establishing national goals and leadership,
developing education programs, providing technical assistance, and Issuing regula-
tions. The Federal government also has a role in establishing a framework for State,
Tribal and local planning, setting minimum standards for facilities, and encouraging
the manufacturing industry to design products and packaging for effective waste
management, as well as to utilize secondary materials in manufacturing. Finally, all
levels of government should set a good example by purchasing recycled or recyclable
products and products that have been subject to source reduction whenever possible,
and handling their own wastes In a way that facilitates recycling and reuse.
Planning
Planning is a vital component in achieving a national goal of Integrated waste
management. Siting, designing, and building a landfill or combustion facility can
take many years. Similarly, collection and recycling programs may take several years
to develop to full scale. This delay Is especially difficult for communities
- 21 -
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experiencing an immediate waste handling capacity shortage, but It also may affect
communities that face possible capacity problems in the future. Thus, States, Indian
Tribes and local communities should actively plan short- and long-term waste programs
based on current and projected characteristics of their waste streams.
Evaluating and Implementing, where feasible, the integrated waste management
hierarchy at the local level helps solve the problems associated with waste
management. Minimizing toxicity and volume through source reduction, reuse and
recycling directly addresses the problem of capacity shortage and potential risks from
toxic constituents.
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NATIONAL GOALS
The problems associated with municipal solid waste management, Including cost and
capacity, are felt most directly and can best be handled at the local level through
implementation of integrated waste management practices. These problems, however, are
also regional and national in scope. The widening gap between available capacity and
levels of waste generation demands national solutions and a long-term commitment by
all. We can no longer rely on landfills to handle 80 percent of the nation's waste.
The United States must find a safe and permanent way to eliminate the gap between
waste generation and available capacity In landfills, Incinerators, and In secondary
materials markets.
--'---" -~" ~ ~ - r~ i
How can this goal be accomplished? We must take short-term actions now in order
to solve the problems of today and tomorrow. Above all, we must Increase source
reduction and recycling activities while making aj|
The United States must management options reliable and safe. EPA believes that.
find a safe and permanent to the extent practical, source reduction and then
way to eliminate the gap . , . , . ,
. . , * recycling are the preferred opt ons for c oslnq the gap
between waste generation z a *- «- 2 2_J1
and available capacity in and reducing the amount and toxlclty of waste that must
landfills, incinerators, , , ,,, , , ^ , _ , , ,
' . be landfllled or incinerated. To foster Implementation
ana in secondary r
matenals markets. of this preference for source reduction and recycling,
EPA set a national goal in January 1988 of 25 percent
source reduction and recycling (up from the current 10 percent) by 1992. Although
recycling will play the major role in this goal, source reduction Is an important
component. In addition, EPA's long-term goal for source reduction is to slow sub-
stantially the projected rate of increased waste generation by the Year 2000. Source
reduction and recycling help prevent many of the problems associated with municipal
solid waste, including the pressing need to site new landfills and incinerators to
handle the large volumes of waste being generated. Preventing generation of wastes
- 23 -
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and diverting waste components from landfills and incinerators into reuse, recycling
or" composting helps to alleviate siting problems and potential risks to human health
and the environment attributable to improper management. Thus, planning and imple-
menting these activities now yields benefits In managing wastes in the years to come.
Even the most effective source reduction and recycling efforts, however, cannot
handle the total waste stream. Thus. EPA believes that all waste management practices
should be made safer. We will need landfills and Incinerators into the foreseeable
future to process and dispose of some portion of the waste stream. Improving the
safety of these disposal alternatives, as well as materials recovery and recycling
facilities, can help protect human health and the environment and can only help gain
public acceptance of all such facilities.
Objectives
t
The Task Force has identified six objectives for a national agenda for action to
solve the municipal solid waste dilemma. By fulfilling these objectives, we help
overcome many of the problems associated with municipal solid waste management.
including siting problems, increased waste generation rates, concerns over human
health and the environment, and, perhaps, some of the high costs of waste management.
In addition, by carrying out these objectlves-especlally by Increasing source
reduction, recycling, and effective plannlng-government, industries, waste managers
and citizens will have helped fulfill the concept of Integrated waste management and
will learn to look beyond the "single solution" to waste problems. The objectives
are:
1. Increase the waste planning and management information (both
technical and educational) available to States, local communities.
waste handlers, citizens, and industry, and increase data
collection for research and development.
2. Inert ;se effective planning by waste handlers, local communities,
and States.
- 24 -
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3 Increase source reduction activities by the manufacturing industry,
" government and citizens.
4. Increase recycling by government and by individual and corporate
citizens.
5. Improve the safety of municipal solid waste combustion in order
to protect human health and the environment.
6. Increase the safety of landfills in order to protect human
health and the environment.
The following Agenda for Action Is structured within the framework of these six
objectives. Each objective is briefly described, and roles for government (Federal,
State, Tribe and local), Industry and citizens are summarized. A table of next steps
follows each objective, for easy reference by the reader.
The Task Force received many suggestions on potential actions, and studied a1
number of different options. The following,action Items are culled from the larger
array of options, and constitute a minimum program for meeting the above-stated goals.
Many of these actions received broad-based support from peer reviewers and/or were
suggested by many different interested and concerned parties during the public comment
period. Elements that were noted by commenters as being especially important are a
national clearinghouse for information dissemination, Federal procurement guidelines
for recycled goods, market development studies for recycling, design and operation
standards for landfills, and air emission and operator certification standards for
incinerators.
- 25 -
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AN AGENDA FOR ACTION
To most effectively reach the goal outlined above, the Task Force's recommended
actions focus on reducing large-volume contributors to the waste stream. For example,
paper and yard wastes are targeted for special action because they contribute nearly
60 percent of the waste stream. While EPA has targeted paper and yard wastes for
special consideration, the Agency realizes the importance of addressing other wastes
to reduce toxicity, and to pursue opportunities for recycling. In addition,
"orphan" wastes such as tires and batteries are highlighted because they are not now
managed in any cohesive way, and can present environmental and health problems and
management headaches.
1. OBJECTIVE: INCREASE AVAILABLE INFORMATION
i
Technical assistance, education, and research and development are Important ways
to encourage informed participation In achieving waste management goals. These goals
may be the national goals, as described above, or they may be the basis for State,
Tribal or local integrated waste management programs. Educational materials increase
awareness of good waste management "ethics" while technical assistance ensures that
all types of waste handlers (individuals, government, Industry) have all the infor-
mation that they need to manage safely and effectively. Data collection and research
and development expand the boundaries of our knowledge, giving us new Information, new
technologies and new solutions.
Through participation in every level of effective waste management, citizens and
the manufacturing industry must take responsibility for the waste they generate. The
way to enhance participation is through development and efficient delivery of edu-
cational and technical guidance for all audiences. This section describes development
of technical and educational guidance; data collection and research and development
programs, and delivery systems such as a national clearinghouse and a "peer
- 26 -
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matching2^ program that matches experts in waste management to communities In need of
help.
Develop Materials on General Topics and Specific Technical Areas
-Technical Guidance Documents-
Guidance and materials on the technical aspects of source reduction, combustion,
recycling, landfllllng, composting, and collection are Important for Increasing the
quality of waste management by everyone. These materials
Educational rmrteriafe de ^ ..how.tQ.. for the consumeri the government,
provide a way to change
"business as usual" in and the waste handler to effectively reduce waste
our society ygtvng generation, and prevent management and environmental
people the necessary
background information to problems.
determine "good" and
"bad" waste management.
The technical materials should address at least
»
these areas:
o What factors decision makers should consider in choosing among waste
management options.
o How each community can compare the risks of each management alternative.
o How to determine the true costs of waste management, and how to calculate
the management costs avoided through choosing one waste management
alternative over another.
o How citizens and businesses can implement source reduction through their
consumption habits (e.g.,ways to reduce paper consumption through
double-side copying).
o How to set up a community recycling program.
o How homeowners can effectively backyard compost their yard wastes, and can
use backyard or commercial compost in landscaping, building, or gardening.
o How to create incentives for' and overcome barriers to successful source
reduction and recycling programs.
- 27 -
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o What to look for in designing and operating combustion facilities, Including
waste-to-energy methods, and landfills.
_*
o How to market secondary materials and energy generated by waste-to-energy
plants and methane from landfills.
o How to market compost, and ensure quality compost products.
o What terms like "recycled" and "recyclable" mean (what the minimum
amount of secondary materials is for a product to be called "recycled").
o How to insure that goods labeled as "recycled" or "recyclable" are
genuine.
o How to collect and process tires, Including a processing method for making
refuse-derived fuel from tires and guidance on marketing this fuel;
management of tires in landfills, management of tire piles; and recycling of
tires.
o How to handle lead-acid batteries, including guidance on proper design and
operation of collection and processing facilities and metal-recovery
operations.
o How to manage and reduce household hazardous waste, including paints,
cleaners, solvents, used oil, etc.
o How biomedlcal wastes should be handled and treated.
o Whether labeling such as "recycled," "recyclable," and "designed for
safe disposal in an Incinerator or landfill" Is effective and feasible.
(Such labeling is believed by many to be useful in raising public con-
sciousness. But, concerns over Issues such as the need for Federal over-
sight, defining these terms, and "truth In advertising" problems must be
studied.)
Work on some of these materials Is already underway by EPA, State and local
governments, the waste handling Industry, trade associations and public Interest
groups. This list of materials Is a sample of what could and should be done, but It
is by no means exhaustive. EPA will evaluate what is available and what is needed for
technical materials.
- 28 -
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-Educatioryl Materials-
Educational materials provide a way to change "business as usual" in our
society by giving people the necessary background information to determine "good"
and "bad" waste management. The target audience for these materials is varied,
including waste generators (households, businesses, and Industry), waste planners, and
waste managers. It Is as Imperative to Inculcate the ethics of integrated waste
management Into the public works official as it Is the homeowner.
Many excellent educational materials have already been developed by some States,
localities, public Interest groups, and trade associations. A comprehensive educa-
tional program should, at a minimum, address the following areas and audiences:
o Pamphlets and brochures for the general public, describing the components
and concepts of Integrated waste management, the risks and costs associated
with various management options, and questions that citizens jhould ask*
about the wastes they generate and waste management In their communities.
Brochures should also emphasize Questions citizens should ask themselves
about the waste they generate and should encourage citizens to conduct waste
audits on their household wastes.
o Curricula for school children and teenagers that not only explain different
waste management methods and Issues, but also incorporate municipal waste
issues into a variety of subject areas (e.g., arithmetic problems) In order
to raise general consciousness. Such educational materials could also
include coloring books, videos, and field trips.
o Materials and forums to Inform the design and manufacturing Industries of
the importance of source reduction and the design of products and packaging
with an eye toward the eventual safe disposal or recycling of the waste.
o Materials to encourage participation In recycling. Collection and separa-
tion methods for paper and plastics, by both households and businesses,
would be stressed. Other materials could Include pamphlets explaining the
cost savings associated with recycling process and scrap wastes in industry.
Materials could also include bumper stickers, posters, and billboards.
o Informational pamphlets explaining the true costs of waste management.
These would be used by waste handlers, local governments and citizens for
making more informed decisions.
- 29 -
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EPA will collect existing materials and foster development materials necessary to
fill the gaps in general educational materials.
Data Collection and Research and Development
Adequate and accurate data are vital underpinnings to any municipal solid waste
program. We cannot evaluate the progress in meeting national or local goals without
data. Adequate data allows us to make Informed decisions and prevent undue risks from
waste management. Important data gaps that must be filled in include characterization
of the waste stream and waste management practices. A comprehensive research and
development program is necessary to continue upgrading the quality of waste management
practices. Industry and all levels of government must forge a partnership for con-
ducting research and development in all areas of municipal waste management. Industry
especially can assume a leadership role in the areas of source reduction and recycling
*
technologies by finding substitutes for toxic materials in products, reducing the
volume of material in products, and Increasing recycling practices and technologies.
-Characterize the Waste Stream and Waste Management Practices-
The Federal and State governments should gather summary data generated by the
public and private sectors on waste characteristics and management practices. This
data should be used to trace national trends and facilitate short- and long-term
planning. All levels of government should institute databases for tracking volumes
and types of wastes in order to facilitate planning at the State and local level.
This characterization should study individual constituents In the municipal solid
waste stream to determine progress In source reduction and recycling and targets for
significant volume and risk reduction.
Research and Development-
Research and development is needed in technical areas related to combustion (ash
and air emissions), landfllling, recycling technologies, designing for effective waste
- 30 -
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management (e.g., reducing toxics, increasing recyclabllity and durability), source
reduction, and risk assessment.
EPA has planned for and Is currently conducting some research and development,
primarily in the areas of incineration and landfilling to support the development of
regulations and guidance. EPA is developing a separate agenda for research and
development necessary to augment what Is currently underway, and will solicit comments
and Ideas from outside parties in a conference In January 1989.
EPA should coordinate Its initiative closely with those of private industry. In
cooperation with industry, EPA will generate a Joint Industry-EPA research agenda
providing for coordinated studies in various areas such as the assessment of emerging
commercial technologies, Impacts of household hazardous waste and very small quantity
generator wastes on landfill leachate and combustor residuals, and Identification of
substitute materials for toxics in products.
t
Establish Systems to Disseminate Information and Assistance
Some States, trade Although many excellent educational and technical
associations, and public mortals, expertise, and data exist, systems for sharing
interest groups have
taken the initiative to these materials, data and expertise are sadly lacking.
forrn State or regional $ome g ^^ assoclat,o and b,,c ,nterest
libraries or
telephone "hotlines" on groups have taken the initiative to form State or
a variety of waste regional "libraries" or telephone "hotlines" on a
management subjects.
variety of waste management subjects. However, a
systematic, nationwide information-sharing mechanism for all waste management subjects
and audiences does not currently exist. This lack of a nationwide system results in
relatively few people accessing the technical and informational materials that they
need. Another result Is duplication of effort by organizations developing materials
that, unknown to them, already exist.
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National Clearinghouse-
~*
A national clearinghouse will provide the mechanism for citizens, government and
other organizations to request and receive materials on any subject related to
municipal waste. The clearinghouse could act only as a distribution center for
materials, or it could develop these materials, if adequately staffed and funded.
Materials for distribution by the clearinghouse would Include those educational and
technical guidances and results of research and development mentioned earlier under
this Objective, bibliographies of available literature in different subject areas, and
materials developed by the Federal government, States, municipalities, public interest
groups, trade associations, and industry.
EPA, in partnership with another entity such as a university, public Interest
group, or trade association, will partially fund the clearinghouse, at the outset, but
the clearinghouse should become nearly self-sustaining, and thus more likely to
continue. EPA could fund the clearinghouse through a variety of mechanisms Including
t
seed money to a university, a public interest group, governmental associations or
other nonprofit organizations. EPA's Office of Research and Development, or the
Agency's RCRA Hotline could also be Instrumental in running a clearinghouse. EPA is
looking at funding from existing resources.
-'' Peer Matching'' Program-
As part of the clearinghouse concept, a "peer matching" program would match the
expertise available in local communities, trade groups, States, Indian Tribes, EPA
regional offices, or universities to waste managers In other communities in need of
assistance. Such a program would effectively use existing resources to better manage
municipal solid waste. For example, a community wishing to design and implement a
curbslde collection program for recyclable materials could use the peer matching
program to tap into the expertise of a community with a similar program. The program
would function as a "database" of people and experience to match the needs of
communities seeking assistance.
- 32 -
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-Other Information-sharing Mechanisms-
***
In addition to the large-scale programs outlined above, many mechanisms for
delivering Information on waste management may be useful at the national, regional
State, Tribal and local level. These smaller systems focus on particular audiences, a
certain subject area, or a certain message, and include the following:
o Accessing existing organizations and their networks of constituents, such as
Keep America Beautiful, the Governmental Refuse Collection and Disposal
Association, National Association of Counties, National League of Cities,
and many more
o Magazine and newspaper articles, radio and television shows and adver-
tisements to raise awareness of waste management and responsibilities
o Itemized tax bills, quarterly reports, or "garbage bills" to educate the
waste generator on costs of waste management
o Public meetings and hearings on waste management Issues
o Labeling of products by industry as to^roper disposal methods.
Summary of Participants in Increasing Available Information
Technical and educational materials and data collection methods should be
developed by EPA, States, Tribes, municipalities, public interest organizations, all
industry (waste management, design and manufacturing, secondary materials) and trade
associations. All parties have expertise In a range of
Some local governments
have imposed waste waste manasement areas and should contribute to
management "user developing needed materials. EPA will tap Into existing
charges," levied on , , ,
households and businesses materlals- where possible and develop materials through
based on the amount of in-house expertise and/or grants to other organ!- tions
garbage generated.... , _
"pay as you throw " universities. For example, in developing a model
methodology to calculate both the true costs of waste
management methods and the costs avoided by choosing one method over another, EPA can
take advantage of methodologies already developed by various groups, and compile them
into a general mode! wlt<- an accompanying sensitivity analysis to indicate the most
- 33 -
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Important components of the cost equations. EPA will formulate a research and
development agenda, using Input from outside parties.
For information-sharing mechanisms, as mentioned previously, EPA will plan and
provide seed money for the national clearinghouse and peer matching program in order
to assure national distribution and accessibility. State, Tribal and local govern-
ments, being closer to the generator of waste, are often in the best position to
target messages and audiences for educational materials. Incorporating public
education programs into the State, Tribal and local planning process, especially
materials and forums related to siting any new municipal solid waste management
facility, allows for consistent and comprehensive programs. State, Tribal and local
governments should also Incorporate materials related to solid waste Issues and
management into the public and private school curricula, and pass on to the waste
generators the cost of waste management in the community. Some local governments have
*~
imposed waste management "user charges" on households and businesses based on the
amount of garbage generated. These "pay as you throw" policies can show the
citizens, In very concrete terms, the cost of their garbage production. EPA needs to
do more research on the effect of user charges on illegal dumping and littering.
Finally, if people in the community are concerned about emissions or nuisance factors
from nearby facilities, local officials should keep them apprised of monitoring
results or other actions through regular bulletins, the newspaper, or other media.
- 34 -
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TABLE 1.
~*
NEXT STEPS FOR EPA TO INCREASE INFORMATION
Develop Educational Materials
Survey of available materials NOVEMBER 1988
Catalog/bibliography of available materials
Design/approve program to fill gaps MARCH 1989
Evaluate available methodologies and gaps
for true cost accounting and cost avoidance JANUARY 1989
Issue model cost methodology AUGUST 1989
Develop Technical Materials
Develop model management plan for tires JANUARY 1990
«
Other technical assistance: evaluate what
Is available and what Is needed ..." MAY 1989
Develop guidance on collecting, handling
and recycling lead-acid batteries JANUARY 1989
Publish decision-makers guide for local waste managers .... JUNE 1989
Collect Data and Establish Research and Development Agenda
Waste stream characteristics and waste
management database established JANUARY 1990
Research conference to coordinate EPA
research and development with other efforts FEBRUARY 1989
Establish a Clearinghouse
Evaluate needs for a clearinghouse and possible roles .... OCTOBER 1988
Clearinghouse operational DECEMBER 1989
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TABLE 1. (Continued)
NEXT STEPS FOR EPA TO INCREASE INFORMATION
Establish a Peer Matching Program
Review present and pre ous
peer matching programs SEPTEMBER 1988
Program operational JULY 1989
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II. OBJECTIVE: INCREASE PLANNING
Planning by any level of government and the waste management Industry is vital
for managing all municipal solid waste in a safe and effective way. Planning ensures
that future capacity needs are taken Into account when establishing programs.
Planning also ensures that orphan wastes such as tires and lead-acid batteries are
handled comprehensively, rather than with the current piecemeal approach.
Develop State and Local Strategies for Integrated Waste Management
-State Strategies-
State strategies for managing municipal solid waste are Important in addresslngi
the current problems faced by communities within the State, and In forecasting and
preventing future problems. State strategies force
State strategies force governments to look beyond the single solution to today's
governments to look
beyond the singular problem to a comprehensive waste management plan that
sou on of ays ^ ^eac| Q^ Qr respond to future problems. Indian
problem to a
comprehensive waste Tribes, which manage i.ielr municipal solid waste
managemen pan... independently from the States, must also generate
comprehensive strategies for managing solid waste.
States and Tribes should plan for overall Integrated solid waste management.
This planning coujd be done by collecting and evaluating local plans, setting
statewide goals for waste handling, and developing policies or legislative Initiatives
that help the State attain these goals. Indian Tribes could generate plans for
individual reservations by seeking assistance from Tribal associations, States, or the
Federal government. In planning, States and Tribes should work ulth waste management
and secondary materials industries to access existing networks for collection and
marketing of waste and recyclable materials.
- 37 -
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State and Tribal integrated waste management strategies should contain at least
the follgwing components.
o Goals for source reduction and recycling of materials
o Materials and markets that will be targets for source reduction and
recycling
o Market development plans for secondary materials, Including intermediate
markets (brokers, scrap dealers and processors), final markets (manu-
facturers), and use of existing networks of secondary materials dealers
o Composting plans, Including collection, processing (backyard, commercial)
and marketing methods of yard waste.
o Short and long-term capacity assurance
o Calculations for properly sizing combustion facilities, after accounting for
waste diverted through recycling
«
o Land-use planning for siting new facilities
\
o Dispute resolution methods to prevent stalemates in siting any type of waste
management facility
o Plans for collecting and managing "orphan" wastes such as tires and
lead-acid batteries
o Education and technical assistance programs, including education on true-
cost accounting and cost avoidance, and risk assessment methodologies
o Methods for communicating to the public the results and methods of assessing
risks of waste management alternatives
o Methods for ensuring public participation In decision making and planning
o Enforcement programs for design and operation of waste handling facilities
o Examination of State government procurement policies to promote recycling
and source reduction, and separation of recyclable goods
o Investigation of regional solutions on a multistate basis, as well as an
Intrastate basis
o Plan for segregating, treating, transporting and disposing of medical waste
- 38 -
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State planning conferences and regional workshops to provide a forum for States
to share their expertise, programs, and problems would encourage States to plan
Some conferences will be sponsored by EPA. In addition, EPA regional offices would
review strategies voluntarily submitted by States and Tribes and offer technical
assistance upon request. Review of State strategies would help EPA develop technical
guidances and areas for peer matching.
-Local Pfenning-
Planning should be done at the local level as well, by:
o Characterizing the waste stream
o Setting municipal goals for recycling and source reduction
o Evaluating local markets
K
o Identifying incentives and disincentives for local Integrated waste
management
o Planning for "orphan" wastes
o Implementing true-cost accounting.
Plans should indicate the roles of the public and the private sector in
implementing waste handling and other programs.
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TABLE 2.
t
NEXT STEPS FOR EPA TO ENCOURAGE INCREASED PLANNING
Develop State Strategies
Design a national conference or series of regional
workshops for States and Tribal association SEPTEMBER 1988
Target date for conference JULY 1989
Target date for regional workshops NOVEMBER 1989
States submit draft State strategies to EPA to help
in designing EPA's Technical Assistance Program JANUARY 1990
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III. OBJECTIVE: INCREASE SOURCE REDUCTION ACTIVITIES
Source reduction, that Is, minimizing toxics and volume in products and extending
their useful life, is a key component for meeting national and local goals. Removal
of toxics enhances the safety of recycling, landfilllng, and Incineration. Lead and
cadmium are examples of known toxicants, present in variable quantities in many common
products. Both lead and cadmium have been found In high concentrations in municipal
waste combustor ash and leachate from municipal solid waste landfills/ Volume
reduction helps to eke out remaining capacity, thereby easing the "crisis" situation
and allowing time for long-term planning. Although there
are many players In source reduction, the design and
By slowing the rate at
which products are manufacturing Industry can provide a leadership role In
discarded, waste handling instigating change and Increasing souice reductiorf
and disposal capacity can
be extended. activities. In addition, the Federal government can
provide consistency through regulation or other national
initiatives. Important source reduction activities include minimizing toxics,
minimizing volume, Increasing procurement of source-reduced goods and Investigating
ongoing source reduction activities.
Minimize Toxic Constituents and Materials in Municipal Solid Waste
Minimizing the amount of toxic constituents that enter the municipal solid waste
stream is Important in making every waste handling and management alternative safer.
As discussed previously, minimizing toxic materials, such as lead and cadmium, can
reduce metals in Incinerator ash residues, decrease the pollution potential of
landfill leachate and incinerator stack emissions, and Increase the safety of
recycling waste materials. Risk assessments are necessary, however, to determine if
reducing risks at the disposal point in a product's llfecycle causes Increased risks
from the product at other points in its lifecycle, for example, during manufacture.
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Products should not contain lead and cadmium when less toxic materials can be
feasibly "substituted. Lead and cadmium, although not the only toxic elements or
compounds found in municipal waste, are good first candidates for examining the
feasibility of substitution because high concentrations of both metals are found in
incinerator ash. Considerations for substitution include: the extent to which the
metal is at a level or in a form that could lead to significant release upon disposal,
technical feasibility, Impact on product performance or cost, and financial burden to
industry and the consumer. Industry should evaluate whether lead and cadmium can be
feasibly replaced, while EPA will study the sources of lead and cadmium and determine
regulatory and nonregulatory options.
Constituents other than lead and cadmium should be studied for their potential to
release when disposed. These constituents could Include those that have been found In
municipal solid waste landfill leachate or air emissions, or Incinerator stack
*
emissions and may Include other metals and Inorganic compounds, and organlcs.
Where substitution of less toxic materials would be burdensome, products should
be tested for their release and/or exposure when disposed of or recycled. Labeling
those products that have been tested for disposal characteristics would be useful in
explaining to the consumer and the waste handler how those products are best handled,
recycled, or disposed.
Minimize the Volume of Municipal Solid Waste Discards
-Manufacture of Products-
Minimizing the volume of municipal solid waste discards will help slow or reverse
the trend of increasing waste generation, thereby changing "business as usual" In
our society's garbage habits. Where practical, products, containers, and packaging
should be made with less material. Thus, in developing products, manufacturers should
consider the amount of waste generated In the disposal of their products and
»
packaging, and should look for ways to reduce those wastes.
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By^slowing the rate at which products are discarded, waste handling and disposal
capacity can be extended. Slowing the rate of generation of discards can be done by
using products with longer useful lives, or that are reusable, repairable or can be
remanufactured. For example, if the average consumer throws away only 16 tires in
his/her lifetime instead of 32, then the amount of tires In the landfill, incinerator,
or tire pile is decreased by a factor of two. With approximately 220 million tires
being discarded every year and 2 to 3 billion tires already stockpiled in potentially
harmful monstrous heaps, this reduction in waste generation could have a tremendous
impact. In designing products, manufacturers should consider whether the products,
containers, and packages have longer lives, are reusable, or can be composted, in
order to reduce the amount of waste that is generated.
States have shown Interest in economic incentives, including taxes, tax credits,
and charges, and regulatory approaches to promote source reduction activities such as
minimizing toxicity and volume of municrpal solid waste. Although economic incentives
and regulatory approaches may be useful In th'e future, EPA Is not recommending their
adoption at this time. Rather, EPA believes that these potentially useful tools
require further assessment. For example, the Agency will assess the efficiency of
State and local charges and taxes in reducing both the volume and toxicity of the
waste. These charges, either fixed or variable, can be assessed at any transaction
point from the manufacture of raw virgin materials through final disposal. There are
a number of factors influencing the efficacy of a charge program that EPA will
examine, including the ability of industry and the public to respond to the fees, the
ease of assessing and collecting the charges, and the extent to which such charges
change behavior. - The study also will examine the use of economic Incentives to
promote source reduction.
To spur corporate involvement, a corporate recognition program Is planned for
companies and industries that have succeeded in reducing the volume and/or toxicity of
materials used In their products. In addition, meetings between the chief executive
t
officers of corporations and EPA senior officials will be conducted In order to
educate corporate policy makers to source reduction, recycling and other waste
management issues.
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Organizing "Design for Effective Waste Management" workshops with design and
packaging engineers, manufacturers, retailers, wholesalers and distributors and EPA
can help build consideration of the waste management characteristics of their product
into the corporate design and manufacturing process. Many factors are considered in
design and manufacturing products; the Agency simply wants the waste management
characteristics to be a part of that consideration whenever practical. Some of these
workshops would target professors of industrial design, to promote the use of safe and
effective waste management characteristics in the engineering design curricula.
-Waste Audits-
Businesses should conduct source reduction audits to find ways in which
operations could be altered to generate less or to reuse wastes, Including any
nonhazardous solid process wastes that are entering the municipal solid waste stream.
For example, audits could suggest ways to reduce or reuse office and computer paper,.
to compost yard wastes generated by landscaping and construction companies, and reuse
or recycle any process trimmings (e.g., leather, rubber, plastic, paper, wood) that
are handled in the municipal solid waste stream.
-Backyard Composting-
Backyard composting can be a significant source reduction technique by reducing
the amount of waste that must be collected and managed. (Compostable waste that must
be managed by a waste handler or recycler In a central composting facility can be
considered a form of recycling, whereas backyard composting can be considered reuse of
a material and therefore a type of source reduction activity. The distinction Is
rather arbitrary, and thus is only for the purpose of discussion.) Public educa-
tional materials, school presentations, and workshops can encourage backyard com-
posting of food and yard wastes by the homeowner. In addition, banning yard waste
from landfills and Incinerators may provide a local Incentive for composting.
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Increase Procurement of Products and Packages with Source Reduction
Attributes
By purchasing products that have source reduction attributes (less toxic
materials, less volume of material per unit product, longer useful life), corporations
and government can provide a leadership role for source reduction. Procurement helps
to stimulate awareness of markets for these goods, which may provide incentives to
Industry to Increase manufacture of these products and to phase out products that do
not meet these specifications for source reduction.
Investigate Potential and Ongoing Source Reduction Policies
and Activities
Because source reduction is a relatively new and difficult handling practice for
municipal solid waste," source reduction policies must be fully evaluated to determine
the efficacy and Impacts. For example, a study could be done of the actual reduction
t
of waste in a household when purchasing habits are altered In favor of products
designed for source reduction. Or, a pilot source reduction audit program for busi-
nesses could measure the results of source reduction efforts on the waste generated.
Other areas of interest Include:
The use of photodegradable (degraded by sunlight) and biodegradable products
and their impact on the environment and their success in alleviating solid
waste and litter problems
A database of source reduction related activities, including educational and
legislative initiatives occurring In the United States and abroad (also
examining the reasons these activities were undertaken and their degree of
success)
The effectiveness of programs that use fees to create Incentives for
households and businesses to reduce the quantity of waste they produce
(Including the effects on illegal dumping).
'Some progress has been made in "waste minimization" or "source reduction" of
Industrial process waste 'hcth hazardous and nonhazardous waste). Source reduction
for municipal solid waste presents different issues and problems and few activities
have been undertaken
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Summary of Participants in Increasing Source Reduction Activities
,-*
*
Obviously the most important participants in increasing source reduction
activities are'the manufacturing and design Industries. They can assume a corporate
leadership role in the United States to produce products that have less toxicity,
generate less waste, have longer useful life spans, are reusable, repairable, or have
other qualities that enhance waste management. In addition, trade associations should
hold conferences and workshops for member companies focusing on design for effective
waste management.
Federal action to require removal of known toxic constituents from products may
be necessary. In addition. Federal action may be necessary to ensure that manu-
facturers test these products and materials for their potential to release toxic
constituents when landfilled, combusted, or recycled. EPA will evaluate the use of
%
the Toxic Substances Control Act (TSCA), as well as investigate broader legislative
mandates for authority for these requirements.
EPA will work with the Department of Commerce and other agencies to Investigate
methods for stimulating industry to produce products with source reduction attributes.
For example, a corporate recognition program which would spotlight manufacturers,
businesses, and industries which engage in source reduction activities (e.g.,
minimizing waste volume and toxics generated) will be examined. In addition, EPA will
conduct studies on current State and community incentive policies on degradable
plastics and other waste materials. (A study on biodegradable plastics has begun
already, along with information developed for a report by the General Accounting
Office and EPA's Report to Congress on Plastics).
Industry, all government (Federal, State, and local) and the public should
purchase products that minimize waste, are less toxic, last longer, or can be repaired
or remanufactured. In the Federal government, EPA will be exploring, with the General
Services Administration and other Federal Agencies, appropriate mechanisms to
accomplish this goal.
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TABLE 3.
NEXT STEPS FOR EPA TO ENCOURAGE INCREASED
SOURCE REDUCTION ACTIVITIES
Minimize Toxic Constituents and Materials in Waste
Determine which products, if any, are
sources of lead and cadmium SEPTEMBER 1988
Determine any suitable substitutes for lead and cadmium . . . MARCH 1989
Evaluate regulatory and nonreguiatory options
for lead and cadmium SEPTEMBER 1989
Investigate other toxic constituents in products MARCH 1989
Evaluate need for Federal testing guidelines SEPTEMBER 1989
Minimize the Amount of Waste Generated
i
Study on economic incentives DECEMBER 1989
Corporate recognition program DECEMBER 1989
EPA official meet with chief executive officers NOVEMBER 1988
Design for effective waste management workshops DECEMBER 1989
Hold conference with Industrial design educators DECEMBER 1989
Increase Procurement of Products With Source Reduction Attributes
Form Federal Task Group to study procurement
(same group as for procurement of recycled products) .... NOVEMBER 1988
Study of possible changes in procurement policies SEPTEMBER 1989
Study Ongoing or Potential Source Reduction Policies
Degradable Plastic Study by General Accounting Office .... SEPTEMBER 1989
Design database for tracking source reduction policies .... MARCH 1989
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TABLE 3. (Continued)
NEXT STEPS FOR EPA TO ENCOURAGE INCREASED
SOURCE REDUCTION ACTIVITIES
EPA Report to Congress on Plastics JUNE 1989
Implement database on source reduction policies DECEMBER 1989
Conduct user fee study NOVEMBER 1989
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IV. OBJECTIVE: INCREASE RECYCLING
Recycling waste materials diverts potentially large volumes of wastes from
landfills and incinerators. Thus, recycling Is absolutely vital to achieving local
and national goals. Recycling is also important because
it stops unnecessary depletion of valuable natural
One of the many
impediments to more resources. Finally, recycling Is an excellent educa-
recyclingistheuride tjona, toQ, tQ ra,se awareness ,n lndivldua|s of a||
fluctuation of market
availability for many types of waste management, because everyone must become
secondary materials. conscious of what they do and do not discard. In order
to increase recycling, markets must be available, more
recyclables need to be separated, collected and marketed, a National Recycling Council
should be formed, Incentives and disincentives for safe recycling should be examined,
and waste exchanges should be promoted.
Stimulate Markets for Secondary Materials
One of the major impediments to more recycling is the wide fluctuation of market
availability for many secondary materials. We need to stabilize both markets and
supply so that they complement one another. Because recycling is often driven by
demand, we need to stimulate the demand for these secondary materials to help avoid
gluts in the marketplace and to coax change In our current industrial infrastructure.
A variety of actions may result In market growth. These include the promotion of the
procurement of recycled goods; market development studies for numerous commodities;
nonprofit regional market Information councils; procurement guidelines for recycled
products; better separation and collection of plastics and lead-acid batteries; a
National Recycling Council; studying liability disincentives and incentives; and waste
exchanges.
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-Establish Incentives-
States, including economic development agencies, have shown interest in tax
credits and loans for industries using or processing secondary materials, or
purchasing recycled goods as incentives for Increasing these practices, thereby
stimulating and stabilizing markets. Incentives must be targeted carefully to have a
real impact. State and local Incentives could include tax credits (Including property
taxes) and other fees In order to encourage existing Industries to use secondary
materials in the manufacture of products, or to lure secondary materials Industries to
communities that lack markets for their collected recyclables. Similar tax Incentives
could be used for industries and businesses that purchase recycled goods, as these
companies are promoting stable final markets. Other Incentives include low-Interest
loans for construction or expansion of secondary materials Industries, and for busi-
nesses that purchase recycled goods. These economic Incentives may be Instrumental In
changing individual and corporate behavior and will be Included In the study on.
economic incentives noted earlier In the section on source reduction.
t
Each level of government should seek to identify and delineate economic
disincentives to processing or purchasing secondary materials. Although many
comprehensive analyses were done in the 1970's, tax laws and the economy have changed
in the intervening years, creating a need to update our information.
Freight rates and other transportation Issues are often cited as significant
disincentives to procuring secondary materials. Given that transportation laws and
policies have changed since the 1970's (when extensive studies were done), EPA will
work with the Interstate Commerce Commission and the Department of Transportation to
investigate whether transportation Issues significantly affect the marketing of
secondary materials, and whether changes to these policies are necessary to remove
disincentives to creating stable markets.
A market development study would be valuable in determining the regional,
national, and International growth potential for the secondary (waste) paper market.
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These studies, done at the State, regional, or Federal level, should evaluate ways to
expand paper markets on a level concomitant with increased collection and separation
of waste paper. EPA will conduct such a study, as well as similar studies on compost
and lead-acid batteries. Market development studies for other secondary materials
would Identify ways to stimulate markets for these commodities. All market
development studies should solicit input from the existing local and national
secondary materials markets.
-Create Regional Market Cound/s-
Development of nonprofit regional market information councils can enhance
communication among States and between localities so as to Improve marketing and
Information-sharing regarding secondary materials and compost. To be effective, these
councils must build on the existing markets and networks In their region. Such
organizations can match markets with sellers and provide Information on the amount and
type of processing necessary, the long-term availability of the market, and the
volumes that the market will bear. In addition, regional market councils can study
regional market development and institute policies to enhance or stabilize markets.
Membership in such an organization should include representatives from the waste
management, manufacturing, and secondary materials industries, States, and public
interest groups.
-More Procurement of Recycled Goods-
Procurement of recycled goods Is an Important way to stimulate final markets for
recycled products.. Organizations that purchase large amounts of products, such as
governments, corporations and Industry, can be especially helpful in stimulating
markets. Purchases of recycled goods by consumers provide a clear signal to the
manufacturing Industry to produce and advertise recycled products.
Governments and corporations should issue procurement guidelines for recycled
goods. Candidate products include numerous papers (office, computer, newsprint,
corrugated, tissue), glass, plastic, compost, aluminum, steel, oil, tires, batteries,
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etc. For example, the Federal government will study whether procurement guidelines
»^
should be issued for materials in addition to the ones currently being issued for
» -
paper, re-refined oils, tires, and insulation materials. One example would be used
automotive parts, or remanufactured engines or electronics. All levels of government
could procure compost for use along roads and in landscaping public lands. EPA and
GSA will form a working group with other Federal agencies to develop education and
Implementation programs for existing, planned, and potential guidelines In Federal
agencies.
Compost from processed food and yard waste, municipal waste, and co-composted
municipal solid waste and sewage sludge is often difficult to market due to the
fluctuating quality of the compost and variable metals content. Quality standards for
compost products will provide national consistency and will assure the potential
compost buyer that the product will perform safely and adequately. Such standards
could include different "grades" of compost suitable for different purposes or that
perform differently.
Better Separation and Collection of Materials
To reach a goal of Increased recycling, more materials need to be separated,
collected, processed, marketed and manufactured into new products. We have discussed
ways to stimulate the two final steps (marketing, manufacture) of recycling, but we
also need to stimulate the first three steps.
-Local Programs-
Collection, separation, and processing are essentially local issues, and as such,
will not be discussed In detail in this report. In general, the more convenient
collection Is for the waste generator and for the waste handler, the higher the
participation rate and amount of materials collected.
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Marty communities and States have devised successful mandatory or voluntary
collection and separation programs. Again, the issue of mandatory versus voluntary
programs Is a local or State issue, depending on the community's or State's needs
Other local aspects of collection include the design of an education program and
choosing among curbside pickup, drop-off centers, and materials recovery facilities.
Local recycling coordinators can contribute significantly to the success of recycling
programs. Training of these coordinators in education, collection, processing and
marketing is therefore very important. EPA will generate guidance on training of
recycling coordinators.
Special Recydables-
Two commodities currently are difficult to collect and/or process, but may be
beneficial to recycle-plastlcs and lead-acid batteries.
K
Plastics are promising materials for Increased recovery and recycling; however,
collection and separation of different types of plastic are difficult, and hamper
current recycling efforts. The voluntary coding of plastic types undertaken by the
plastics Industry Is a helpful first step. Until plastic collection Is substantially
improved, recycling of plastics will continue to lag. Industry should step up Its
study of the problems and options for collection of plastics for recycling.
Lead-acid batteries are a problem to collect, process and dispose of. Although
many are recycled, a significant number are not. Many battery recyclers are closing
their doors, and many retailers and auto shops will not accept used batteries from the
consumer. We must avoid potential risk to human health and the environment from the
lead and acid in these uncollected (and possibly mismanaged) batteries. Regulatory
and nonregulatory options for recovery of lead-acid batteries, Including a mandatory
"buy-back" by manufacturers will be investigated to find practical ways to collect
them for safe recycling
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Establish a National Recycling Council
-*
A national advisory council on recycling policies should be formed, comprised
of representatives from the secondary materials and waste management industries,
public interest groups, States and regional marketing cooperatives. This council
would stay abreast of technical, regulatory, and legislative policies and initiatives
that can enhance or hamper recycling efforts. The advisory council would also measure
national progress In attaining goals of increased recycling. In addition, a national
council can explore International markets for secondary materials and study world
trends. This council should obtain funding through its membership.
Examine Incentives and Disincentives For Safe Recycling
Industry has argued that potential liability under Superfund may inhibit the
secondary materials and recycling Industries from recycling materials such as lead-
acid batteries, household hazardous waste, used oil, autos, and white goods (refrig-
erators, etc.). These secondary materials and recycling facilities may be liable
because of the potentially toxic byproducts of processing, including lead and cadmium,
and polychlorinated biphenyls (PCB's).
Potential liability may provide a disincentive for persons to operate a recycling
facility, but also provides an important incentive for persons to properly manage
their wastes. EPA should review the incentives and disincentives affecting these
Industries and determine ways to Increase incentives for persons to operate such
facilities while ensuring that they properly manage their secondary materials and
wastes.
Industrial and Commercial Waste Exchanges
High volume homogeneous industrial or commercial wastes should be reused and
recycled to the highest degree possible. As noted previously, these nonhazardous
solid wastes can often end up as municipal solid waste, taking up valuable landfill
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capacity -or disturbing operations at a combustion facility. Waste exchanges are an
important way to relay these wastes from the point of generation to the market In
addition, these waste exchanges can often save companies significant costs in
disposal. Many regional waste exchanges exist already. Communities and industries
should access these existing networks or form new exchanges for their areas.
Summary of Participants in Increasing Recycling
-Participants for Stimulating Markets-
Economic Incentives and disincentives should be reviewed by all levels of
government and Industry. EPA will update previous studies on economic factors,
including transportation disincentives to recycling and potential economic incentives
for industries processing or using secondary materials and for industries that
purchase recycled goods.
i
Market studies for secondary materials should be done by Industry and all levels
of government. EPA will focus initially on paper, compost, and lead-acid batteries.
Industry should convert manufacturing processes to utilize secondary materials to
a much greater extent, in order to stimulate secondary materials markets.
Everyone should purchase recycled goods. A Federal working group, made up of
representatives from EPA, the General Services Administration, the Department of
Defense, and other Federal agencies, will be organized to encourage Federal agencies
to procure recycled goods and compost (e.g., National Park Service), and study how
procurement of these goods may affect operations within the agencies. EPA has Issued
procurement guidelines for some commodities, including paper and tires, and is
developing guidelines for others. The working group will also formulate ways for
agencies to enforce procurement guidelines, to ensure that proper purchasing is
occurring.
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-Participants in More Separation and Collection-
Mi levels of government should consider the merits of mandatory separation and
collection of recyclables. An interagency working group will be convened to study the
feasibility of a comprehensive separation and collection program for Federal Agen-
cies. A model program to educate employees and encourage participation In paper
recycling Is under development by EPA.
Recycling In communities should be publicized by local governments and the waste
management industry through the news media, schools, workshops, etc. The secondary
materials Industries should publicize their availability and existing network to the
public and local government and should examine ways to expand their role In community
recycling.
Industry working with government should continue to Investigate ways to collect
more plastics, while the Federal Government will Investigate systems for collecting
batteries. EPA will study how batteries are currently handled, evaluate the optimal
waste management methods for these used batteries (Including the multimedia Impacts of
these alternative), and evaluate the regulatory and nonregulatory options for
promoting better management of batteries (e.g., mandatory "buyback"). Use of the
Toxic Substances Control Act will be investigated.
-Participants in Waste Exchanges-
States and industry should distribute Information on existing waste exchanges
through regional marketing councils and should assist local governments and Industries
in matching waste donors with recipients.
Municipalities and the waste management industry should characterize their waste
streams and meet xuth the industries that contribute their solid wastes to the
municipal solid waste stream. Local governments and waste handlers should develop
waste exchanges and work with the Industries at hand to find markets or uses for this
waste.
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TABLE 4.
NEXT STEPS FOR EPA TO PARTICIPATE IN AND
ENCOURAGE INCREASED RECYCLING
Stimulate Markets for Secondary Materials
Study on existing economic and transportation disincentives
to recycling MAY 1989
Study on potential recycling Incentives
to encourage recycling DECEMBER 1989
Market development study for paper JULY 1989
Market development study for compost JUNE 1989
Market development study for used lead-acid batteries .... JUNE 1989
Form Federal Task Group for Implementing procurement NOVEMBER 1988
Recommendations from Federal Task Group on procurement . . . OCTOBER 1989
Final tire procurement guidelines NOVEMBER 1988
Final Insulation materials procurement guidelines .... FEBRUARY 1989
Final compost procurement guidelines SEPTEMBER 1989
Study on procurement of other materials FEBRUARY 1989
Increase Separation, Collection and Recycling of Waste
Model training program for recycling coordinators . ... NOVEMBER 1989
Study on regulatory, non-regulatory options
for batteries JULY 1989
Form Interagency workgroup on recycling and separation
in Federal agencies SEPTEMBER 1988
Model education program for Federal agencies JUNE 1989
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TABLE 4. (Continued)
NEXT STEPS FOR EPA TO PARTICIPATE IN AND
ENCOURAGE INCREASED RECYCLING
National Recycling Council
Facilitate the formation of the National Council JANUARY 1989
Study Incentives and Disincentive of Liability
Case studies on first commodity MARCH 1989
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V. OBJECTIVE: REDUCE RISKS OF COMBUSTION
Incineration of waste can be a viable waste management alternative for many
communities. To increase the viability of this option, it Is Important to ensure that
Incinerators are designed, operated, and controlled to
minimize risks to human health and the environment from
Incineration of waste can
be a viable waste both air emissions and ash. Options for improving the
management alternative if ^ ^ incineration include upgrading incinerator
it a designed, operated, ' r3 3
and controlled to performance standards, increasing education and technical
minimize risfcs to human ,. . ,,. , . . , , , ,,
... . . assistance, establishing operator training and certifl-
neaitn ana the
environment. cation programs, and evaluating potential bans on
incineration of some types of waste.
Upgrade Incinerator Performance Standards and Ash Management
Air Emissions-
The establishment of appropriate performance standards for Incinerators serves
several purposes, including protection of human health and the environment,
consistency and efficiency In the design and operation of incinerators, and Increased
public confidence in the safety of Incinerators. Standards for paniculate matter
control from Incinerators were initially established in the 1970's. Since then,
pollution control technologies applicable to Incinerators have Improved significantly.
Considering these technological Improvements and other Information compiled
during the EPA's comprehensive study of municipal waste incineration, EPA Issued an
Advanced Notice of Proposed Rulemaking (ANPR) announcing Intentions to revise
standards for incinerators. EPA plans to issue both performance standards for new
sources and guidelines for States ,to use in considering additional control
requirements for existing sources. These regulatory requirements for new and existing
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incinerators should ensure that the public health and environment are protected
through the application of the best system of control technologies available
considering cost, energy requirements, and other environmental considerations.
The current schedule calls for the new source standards and existing source
guidelines to be proposed in November 1989 and promulgated in December 1990. In the
interim, EPA has already taken steps to ensure that new sources install the best
available control technologies. In June 1987, EPA issued guidance to new source
review permitting authorities that established the presumption that best available
control technologies for incinerators Include dry scrubbers, efficient particulate
control equipment, and good combustion practices. A recent survey of affected sources
demonstrated one hundred percent compliance with the June 1987 guidance.
Ash Management-
K
No incinerator should be built without a plan for management of the residual ash.
Such plans might include dedicated landfill cells with special pollution controls,
stabilization, or contracts for recycling the ash for use in roadbeds or as soil
amendments (if tests Indicate that the ash would be safe for amending soil). Local
government should require a plan for safe and effective ash management when
contracting for a combustion facility.
Education and Technical Assistance
Education and technical assistance regarding the combustion of municipal solid
waste are important in Increasing the safety and effectiveness of incineration.
Citizens who are more educated about the design and operation of incinerators can
better assist In the planning for local waste management, and may be more willing to
site properly designed and operated incinerators. Operators of combustion facilities
as well as local government can use technical assistance offered by the Federal
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government and industry in order to ensure safe and effective incineration of the
waste.
All levels of government (local, State, Tribal, and Federal) need to educate
their citizens about the risks and benefits of municipal solid waste Incineration, In
addition to the other issues mentioned previously in this report. Local governments
need to Involve citizens in the decision-making process. Citizens want to know about
the risks that they may be assuming in siting a facility in their neighborhood. A
useful primer would be one that describes the strengths and weaknesses of risk
assessment, how a generic risk assessment of an Incinerator would be conducted, and
the local factors that affect the risk level (such a primer also would be applicable
to landfills).
Operator Certification
K
Operator training and certification programs can help ensure safe and effective
operation of the incinerator and pollution control equipment. Issues that need to be
resolved concerning training and certification include: which level of government
should establish training and certification requirements, which specific incinerator
plant personnel should be trained and/or certified, how frequently certification
should be renewed, and others.
Some States have already Initiated training and certification programs. EPA has
maintained close contact both with these States and with the American Society of
Mechanical Engineers (ASME) during ASME's ongoing efforts to develop a model incin-
erator training and certification program. Although States and/or local governments
are best suited to actually administer such programs, EPA will be considering the
value of establishing model operator training and certification standards during the
development of the regulatory program for new and existing incinerators.
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Banning Particular Wastes from Incinerators
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Existing data indicate that certain waste materials contribute relatively
significant amounts of hazardous constituents to emissions and ash (especially toxic
organics and heavy metals). However, data are currently inadequate to determine
precisely the effect on air emissions and ash of eliminating specific materials from
the waste stream prior to incineration. EPA has Initiated studies of certain waste
materials to allow for the evaluation of potential bans on specific waste stream
constituents. EPA studies are initially focused on potential sources of lead and
cadmium. The studies should also determine the effects on incinerator efficiency (Btu
values) if certain wastes are banned, and whether such bans can be adequately
enforced.
Despite the current paucity of data, individual governments at the State and
*
local level may wish to consider banning specific waste materials from existing or
planned incinerators for various reasons. For example, a municipality struggling to
initiate an effective yard waste composting program may find that banning yard wastes
from Incineration may increase composting rates. Such yard waste bans may also
improve combustion of the rest of the waste stream by reducing moisture content and
ensuring more consistent Btu values through the seasons. Local governments con-
sidering bans of certain wastes from incinerators should ensure that sufficient
capacity Is available to handle the banned waste, and that the management option for
the banned waste does not pose significant risk to human health and the environment.
incinerator Permits
Some States and communities have a policy of issuing Incinerator permits only
when the incinerator was planned as part of an overall evaluation of integrated waste
mar. gement, including recycling. Thus, waste managers and planners would have to at
least consider the practicality of establishing a recycling and/or composting program.
Such practices can help to prevent reflance on "single solutions" and promote the
concepts and practices of integrated waste management. Other communities should
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consider such action in order to leverage consideration of recycling programs and
ensure proper planning.
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TABLE 5.
NEXT STEPS FOR EPA TO HELP REDUCE THE RISKS OF COMBUSTION
Upgrade Incinerator Performance Standards and Ash Management
Proposed air emission standards NOVEMBER 1989
Final air emission standards DECEMBER 1990
Increase Education and Technical Assistance
Development of a primer on risk assessments NOVEMBER 1989
Operator Certification
Resolve issues JUNE 1989
Decide whether to develop a model
operator certification program . . . . ' NOVEMBER 1989
Bans on Materials from Incinerators
Report on lead and cadmium materials completed SEPTEMBER 1988
Collect data on other materials DECEMBER 1989
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VI. OBJECTIVE: REDUCE RISKS OF LANDFILLS
Municipal solid waste landfills are used to dispose of the majority of our
nation's municipal solid waste, and will continue to be essential In the future.
Although Increased source reduction and recycling will reduce the volumes of waste
going to landfills, and may make some waste more benign, we must Increase the safety
of landfills to ensure protection of human health and the environment, as well as
public support when new ones must be sited. Operator certification, minimum design
and operation standards, education and technical assistance, and studies on potential
bans of some wastes from landfills all contribute to reaching the goal of Increased
safety and reduced volumes of waste needing landfllling.
Operator Certification
\
Properly designed and operated landfills require knowledgeable operators In order
to ensure efficient and safe compaction of waste without damage to liners, leachate
collection systems, or other design features. In
, "jl^**1 *° *? addition, the monitoring required at municipal landfills
landfills are used to
dispose of the majority requires an experienced operator. Certification of
of our nation's municipal . , , .. . , ,
operators can help ensure that experienced operators run
continue to be essential the facilities and equipment. Increasing the safety and
e re' effectiveness of landfill operations through certifica-
tion can help prevent problems endangering human health
and the environment, can Increase public confidence, and can extend precious landfill
capacity.
Any certification of landfill operators should occur through State programs or
through programs developed by trade and Industry associations. EPA Is planning to
provide guidance on certification to States that want to develop and Implement a
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certification program These programs could work similarly to the programs for
incinerator operator certification.
Increase Design and Operation Standards and Guidance
Minimum standards for the design and operation of landfills are critical for
ensuring protection of human health and the environment over both the short and long
term. Properly designed and operated landfills should provide safe disposal of waste,
but do not efficiently reduce the bulk or toxiclty of the waste. Thus, waste disposed
In landfills degrades very slowly and safe design and operation throughout the life of
the landfill Is crucial.
Minimum standards for design and operation of landfills exist at both the Federal
and State level. Revised minimum standards for design, operation, and location of
landfills, Including monitoring, closure and corrective action requirements are
already underway at EPA In response to requirements under the Hazardous and Solid
Waste Amendments of 1984. These standards will help to prevent future problems with
releases of toxic constituents to ground and surface waters. Remedial action for
existing and/or closed landfills that are posing potential threats to human health and
the environment Is also important. States must adopt and enforce these standards In
order to ensure safe and effective operation of landfills. Many States have already
developed stringent standards for operation and design of landfills.
EPA has also been developing air emission standards for new and existing
landfills under the Clean Air Act to control emissions of volatile organic compounds
that create an odor nuisance as well as a potential hazard to human health and the
environment.
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Education and Technical Assistance
-*
Education and technical assistance by all levels of government and industry can
decrease the risks posed by landfllling, upgrade design and operation, and increase
public confidence in the management practice.
There is ongoing debate about the landfill characteristics which are best for
managing municipal solid waste. This debate is concerned with whether a landfill
should be "dry" (to prevent any leaching of hazardous constituents) or "wet" (to
promote degradation at a higher rate). EPA will sponsor a technical conference of
experts and engineers to further discuss this question, and any research necessary In
the area.
As mentioned earlier in the section on incineration, education about risk
assessments is Important for everyone to know the benefits and limitations of risk'
assessments done on landfills. The primer of risk assessment which was described
earlier will Include a discussion on landfills.
Bans on Certain Wastes from Landfills
-------
evaluated to ensure that this alternate management practice has sufficient current or
future capacity and poses fewer risks than landfilllng. For example, States and
municipalities should ensure that composting facilities have adequate capacity to
handle a large Influx of yard waste which may have been banned from the landfill, or
that new composting facilities will be built.
-------
«. »
Education and Technical Assistance
~*
Education and technical assistance by all levels of government and industry can
decrease the risks posed by landfllllng, upgrade design and operation, and increase
public confidence in the management practice.
There is ongoing debate about the landfill characteristics which are best for
managing municipal solid waste. This debate is concerned with whether a landfill
should be "dry" (to prevent any leaching of hazardous constituents) or "wet" (to
promote degradation at a higher rate). EPA will sponsor a technical conference of
experts and engineers to further discuss this question, and any research necessary In
the area.
As mentioned earlier in the section on incineration, education about risk
assessments Is Important for everyone to know the benefits and limitations of risk*
assessments done on landfills. The primer of risk assessment which was described
earlier will Include a discussion on landfills.
Bans on Certain Wastes from Landfills
It may be desirable to ban certain wastes from landfills In order to Increase the
safety and effective management of the the landfill and leachate collection system.
Some wastes may be "bad actors" by contributing hazardous constituents to landfill
leachate, producing explosive levels of methane gas, toxic air emissions, or
differential settlement due to uneven compaction.
What wastes, if any, should be banned from landfills should be studied by the
Federal government, States and municipalities. Such an evaluation would be similar to
the one on incinerators and could Include materials like oil, household hazardous
waste, batteries, tires, and yard waste. States and EPA should also study the effect
on methane gas production of banning yard wastes from landfills. For any proposed
bans, the management practice that would take the place of landfilling should be
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evaluated to ensure that this alternate management practice has sufficient current or
future capacity and poses fewer risks than landfilllng. For example, States and
municipalities should ensure that composting facilities have adequate capacity to
handle a large Influx of yard waste which may have been banned from the landfill, or
that new composting facilities will be built.
U.S. Environmental Protection Agency
I'ft-tfLon 15, LlWary (5PL-16)
230 S. learttrft Stree%, Hoo« 16?0
Chicago, 11* M* '*
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TABLE 6
NEXT STEPS FOR EPA TO HELP REDUCE THE RISKS OF LANDFILLING
Operator certification
Resolve issues related to certification DECEMBER 1988
Guidance on certification available JUNE 1989
Design and operation standards
Propose revised minimum criteria for landfills AUGUST 1988
issue final criteria DECEMBER 1989
Air emission standards proposed NOVEMBER 1988
Final air emission standards DECEMBER 1990
K
Education and Technical Assistance
Primer on risk assessment (same effort as for
incinerators) NOVEMBER 1989
Bans on Materials from landfilling
Identify materials to be studied DECEMBER 1988
Finlsn data collection DECEMBER 1989
Issue a report on findings MAY 1990
. ; ,,, -" .. . .' n't . - ».' "''
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CONCLUSION
Our nation has choices as to how we are going to deal with our ever-growin
garbage problem. We can continue to create more and more garbage, or we can cut bad
We can continue to bury most of our waste, or we can find feasible ways to recycl
more of it. We can design products and packaging without considering disposal or w,
can design for source reduction and recycling. We can wait for local crises to oca
or we can plan now to avoid them. In short, we can Ignore the Issue and hope it go<
away, which It will not, or we can act now to deal with It. But whether we like It <
not, our garbage is no longer "out of sight and out of mind."
The Agenda for Action establishes a "game plan" for addressing our garbac
problem which underscores the need for an effective Integrated waste managemei
approach, including source reduction, recycling, Incineration, and landfllllng. It
not a panacea, but the Agency believes that its Implementation will go a long way
safely eliminating the gap between the generation of garbage and our capacity i
handle it, as well as provide for waste management that protects both human health ar
the environment.
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