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Manual
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OFFICE PAPER RECOVERY:
An Implementation Manual
U.S. ENVIRONMENTAL PROTECTION AGENCY
1977 U.S. Environmental Protection Agency
Region V, Library
230 South Dearborn Street
Chicago, Illinois 60604
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Printed on recycled paper
This manual was written and designed by SCS Engineers under contract no. 68-01-3596.
An environmental protection publication (SW-571c) in the solid waste management series.
Mention of commercial products does not constitute endorsement by the U.S. Government.
Single copies of this publication are available from Solid Waste Information,
U.S. Environmental Protection Agency, Cincinnati, Ohio 45268
For sale by the Superintendent of Documents, U.S. Government Printing Office Washington, D.C. 20402
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FOREWORD
The Resource Conservation and Recovery Act of 1976 (PL 94-58O), states that:
"The Congress finds with respect to materials that:
1. millions of tons of recoverable material are needlessly buried each year;
2. methods are available to separate usable materials from solid waste; and
3. the recovery and conservation of such materials can reduce the dependence of the
United States on foreign resources and reduce the deficit in its balance of payments."
This recent reaffirmation of Congressional purpose is in keeping with the provisions of the 1965 Solid Waste
Disposal Act as amended by the Resource Recovery Act of 197O, under which the U.S. Environmental Protec-
tion Agency promulgated guidelines mandating the recovery of newsprint, white ledger and corrugated
grades of waste paper from Federal facilities.
The Guidelines for Materials Recovery (4OCFR 246), published in the Federal Register, April 23,1976, outline
procedural requirements and recommendations necessary to accomplish source separation. The following
manual is designed to aid Federal government personnel responsible for implementing and administering
office source separation programs in accordance with the high-grade waste paper recovery requirements of
the guidelines. In addition, it should be useful to State and local governments, as well as private organizations
who desire to implement similar high-grade paper recovery programs. Information on the implementation of
the corrugated and newsprint recovery programs is also available in other EPA publications.
Completion of this manual marks a major turning point in the three-year effort to study the feasibility of high-
grade paper recovery, to promulgate guidelines for its recovery, and to implement those guidelines in the
Federal government. I would like to thank Penelope Hansen, EPA's Program Manager for Source Separation
Programs, and the members of her staff, John Heffelfinger, Marie Louise Holmes, Charles Miller, and Elizabeth
Tennant, for their dedicated effort on this project. In addition, I would like to acknowledge the contribution of
SCS Engineers, author of this document.
SHELDON MEYERS
Deputy Assistant Administrator
for Solid Waste
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CONTENTS
Page
CONSIDERING OFFICE PAPER RECOVERY 1
Quantity 2
Market Value 2
Method of Separation 4
SOURCE SEPARATION PROGRAM, PLANNING,
AND IMPLEMENTATION 8
Designation of a Program Coordinator 8
Establishing Sales Contracts 9
Development and Implementation of the Collection
and Storage Systems 12
Collection Equipment Modifications or Procurement 17
Acquisition of Storage Space and Handling Equipment 19
Storage Handling Equipment 2O
Collection and Storage of Confidential Wastes 21
Conducting the Employee Publicity and Education Campaign 21
Conducting the Sessions 27
Reinforcing the Newly Developed Recycling Habit 33
PROJECTING THE ECONOMICS OF PAPER RECOVERY 36
Generation Rates of Mixed Waste and High-Grade Paper 37
Collection Labor Requirements 37
Collection Equipment 38
Storage Requirements 39
Solid Waste Administrative Costs 41
Costs of Publicity and Educational Material after
Program Implementation 42
Waste Disposal Costs 42
Revenues 43
Net Solid Waste Management Costs 44
Potential Savings 44
Conclusions 44
APPENDIX A MATERIALS RECOVERY GUIDELINES FOR
SOURCE SEPARATION (4OCFR Part 246) 46
APPENDIX B GENERAL SERVICES ADMINISTRATION
SAMPLE BID SPECIFICATION PROVISIONS 48
APPENDIX C WASTE COMPOSITION SAMPLING PROCEDURE 52
APPENDIX D PAPER GRADE DEFINITIONS 53
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CONSIDERING OFFICE PAPER RECOVERY
Recovery of high-grade paper from office build-
ings is one of the fastest growing forms of resource
recovery in the United States today. Hundreds of
office buildings in private industry and a growing
number of federal, state, and local government
offices are converting .from 3O to 7O percent of
their wastepaper into the more profitable and en-
vironmentally beneficial category of "surplus pro-
perty" through the source separation system de-
scribed in this manual.
Source separation is defined as the setting aside
of recyclable waste materials (in this case white,
high-grade wastepaper) at the point of genera-
tion (the desk or work location) by the generator.
When correctly implemented, a system of this type:
Conserves valuable resources by recover-
ing high-grade fiber, much in demand by the
paper industry, and by reducing landfill space
requirements.
Lowers environmental emissions through
the recycling process which produces less air,
water, and land pollution than does virgin
production.
Saves money by returning revenue of S4O to
S8O per ton from the sale of recovered paper
and by decreasing disposal costs.
To establish an economically attractive source
separation system for any material, the following
criteria must be met:
The material to be recovered must be present
in the waste stream in sufficient quantity to
justify its extraction.
The material must have a market value suffi-
cient to cover the costs of extraction and must
be in demand by industry, thereby warranting
long-term purchase contracts.
A proven low-cost method of separation at
the source must be available.
For many office facilities, the recovery system de-
scribed in this manual will meet these criteria.
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QUANTITY
Office building waste streams are composed pri-
marily of various grades of paper. Metals, glass,
and other materials commonly found in the muni-
cipal waste stream are present only in small
amounts.
The amount of waste generated per employee
varies both within and between buildings housing
different types of offices. Major factors affecting
generation rates include type of organization, in-
house paper generating activities such as data
processing, printing, and copying, and other paper
uses. EPA office waste surveys show that bank and
insurance type facilities generate an average of
2.31 Ibs. of waste per employee per day. Ninety-
three percent of this material (2.17 Ibs. per employ-
ee) is paper. General office facilities surveyed
generated an average of 1.55 Ibs. of waste per
employee per day, of which 1.32 Ibs., or 85 percent,
was paper.
MARKET VALUE
Since so large a percentage of the typical office
waste is paper, the criteria of quantity is met. But is
the value of this material high enough to justify ex-
traction?
Paper is sold by grade. The value of each grade
is established by specifications set by user indus-
tries. Examples of individual grades are newsprint,
computer tab cards, white ledger, colored ledger,
COMPOSITION OF OFFICE SOLID WASTE BY BUILDING TYPE*
Material
Paper
Computer Tab Cards
Computer Printout
White Ledger
Subtotal (High Grades)
Colored Ledger
Newspaper
Corrugated
Otherft
Subtotal (Paper)
Non-Paper}:
Total
Generation/Building Type (Ibs/employee/day)
Bank/Insurance Co.
Average
0.39
0.70
0.70
1.79
0.12
0.07
0.05
0.14
2.17
0.14
2.31
%
17
30
30
77
5
3
2
6
93
7
100
General Office
Average
0.05
0.11
0.51
0.67
0.09
0.25
0.14
0.17
1.32
0.23
1.55
%
3
7
33
43
6
16
9
11
85
15
100
* Based on representative solid waste sampling conducted at six buildings studied by EPA;
does not include cafeteria waste.
tGenerally non-recyclable paper: carbon paper, wax coated or impregnated paper products, etc.
tSmall quantities of garbage, metal, plastic, glass, textiles, wood and other materials.
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kraft paper, etc. Paper types can also be com-
bined to make designations such as "mixed ledg-
er" or "mixed paper." (See Appendix D, PAPER
GRADE DEFINITIONS.) The value of the mixed mater-
ial, however, will be close to that of the least valu-
able grade present in the mix.
Scrap paper recycling center.
Prices paid by industry for representative grades
of paper in maior cities in 1976 were as follows:
Grade
Manila tab cards
White ledger paper
Newsprint
Corrugated boxes
Mixed paper
Price Range
(S/ton)'
165-22O
7O-1OO
2O-4O
1O-45
5-2O
Separation of the less valuable paper grades
such as newsprint or corrugated boxes is usually
impractical because of the relatively low quanti-
ties found in most office buildings in addition to the
associated handling costs. Recovering this inci-
dental amount of material will, under most circum-
stances, not be economically attractive.
However, if the white ledger paper generated at
employee desks, print shops, and reproduction
machines, together with computer paper gener-
ated at computer terminals, is recovered, the rev-
*Official Board Markets 52(1-25). Jan 3-Junei9, 1976.
enue will frequently justify recovery. The substantial
and sustained market value of white ledger, which
includes white and computer papers, is seen below.
H istorical market values for white ledger
o
CD
a
in
^
a
~o
200
150
UJ
O
cc
a.
oc
UJ
a.
a.
ui
2 100
50
SORTED WHITE LEDGER
11 /1 1111111 111111 111111
_L
ii 11
> 1970 1971 1972 1973 1974 1975
YEAR
Tab cards, already recovered in computer cen-
ters by many organizations, also have a substantial
market value in a separated form as shown below.
Although they usually represent a smaller percent-
age of an office's waste stream than white ledger,
their high value and concentrated point of gener-
ation in computer centers provide incentive for
continued separate recovery and sale.
Historical market values for manila tab cards
o>
Q.
in
O
2.
UJ
O
DC
Q.
CC
UJ
O.
tn
<
i i i i i I i i i i i liiiiiliiiiiliiiii I i i i i i
1970 1971 1972 1973 1974 1975
YEAR
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EPA data indicate that under present market
conditions, tab cards and high-grade white paper
are the most economically feasible material to re-
cover from office waste streams. Mixed paper
recovery programs may capture a slightly higher
percentage of the waste stream, but the result will
be an overall reduction in revenues with a corres-
ponding adverse effect on program economics.
As white ledger and computer paper constitute 3O
to 8O percent of average office waste, the collec-
tion of this grade will still significantly reduce the
tonnages to be disposed of while returning sub-
stantial revenues to offset the costs of collection.
METHOD OF SEPARATION
Several methods have been used for separating
and collecting recyclable high-grade wastepaper
from office buildings. The optimum system is deter-
mined by the ease with which it can be incorpor-
ated into daily office routines. EPA has evaluated
the various methods in a wide variety of applica-
tions.
The desk-top system, basically a modification of
the central container system, is a relatively new
approach to office paper recovery. It consists of
up to five basic operations from the point of paper
generation at the employee's desk to the point of
delivery to the sales contractor:
Separation of paper and accumulation in
vertically designed desk-top containers.
Depositing accumulated paper in central
containers.
Collection of recovered paper from central
containers.
Storage of the recovered paper.
Delivery to the sales contractor.
Three basic approaches exist: the dual waste-
basket, central container, and desk-top systems.
The dual wastebasket and central container sys-
tems are the more traditional. Under the dual waste-
Central container system
Desk top container system in use.
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basket system, each employee is provided with two
wastebaskets - one for recyclable paper, and one
for all other waste. The building custodial staff col-
lects the contents of each basket independently
or simultaneously.
Under the central container system, separated
recyclable paper is carried by each employee to
a container centrally located in an office com-
plex. All other solid waste is placed in wastebaskets
and is handled separately.
The first two operations are performed by office
employees. The other steps are performed by one
or more of the maintenance or general service
labor groups within the building.
Under this system, each employee places all
high-grade wastepaper in a small vertical contain-
er located on his or her desk. White or natural-
colored high-grade wastepaper products accept-
able under most desk-top recovery programs are.-
Letterhead, stationery, typing paper, and tab-
let sheets, including white tissue copies.
Bond and carbonless computer printouts.
Carbonless and miscellaneous business forms.
Plain bond copy paper (not coated).
Items generally unacceptable are:
Envelopes.
Colored and carbon paper.
Rubber bands, plastics, paper clips.
Newspapers, magazines, and glossy or slick
paper.
Cardboard or chipboard.
Chemically coated paper, gummed labels,
adhesives, tablet bindings.
When the container is filled, the employee de-
posits the accumulated wastepaper in a- central
container conveniently located in the office vicinity.
The central container approach is maintained in
departments where employees are not "desk ori-
ented" and where large quantities of uncontami-
nated paper are generated, such as computer
rooms and print shops. The paper is collected from
the central containers by a member of the main-
tenance staff and transported to a central storage
area. Non-recyclable waste is deposited in waste-
baskets as before.
Central container system in use
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EPA studies have shown the desk-top container
system to be the most effective of these three sys-
tems, in "skimming" a specified grade of recycl-
able paper from the office waste stream. The desk-
top system surpasses the other two systems in em-
ployee participation, the value and percentage of
the waste stream recovered, and in the mainte-
nance of acceptable contamination levels.
There are several reasons for this favorable per-
formance:
Use of the small but accessible, vertically de-
signed container quickly becomes habitual.
Participation rates are high, but no loss in em-
ployee productivity is experienced because
paper can be stored in desk-top containers
for extended periods of time before emptying
is required.
Contaminants such as apple cores and soda
bottles cannot be placed in the container.
Colored paper is easily spotted if it is inadver-
tently placed there.
Collection costs are minimized through the
"volunteer" labor of each employee who per-
SOURCE SEPARATION
BY
OFFICE EMPLOYEES
COLLECTION BY
MAINTENANCE
STAFF
STORAGE BY
MAINTENANCE
STAFF
LOADING
FOR SHIPMENT BY
MAINTENANCE STAFF
OR CONTRACTOR
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forms a major part of the collection function
by transferring the accumulated paper from
his or her desk-top container to the central
collection container.
Due fo its vertical design, this desk-top container
requires considerably less desk space than horizontal
desk-top containers
The remainder of this manual will outline proce-
dures for the implementation and economic eval-
uation of the desk top recovery method. Relevant
data from EPA case studies and reports are used
for developing time requirements and cost esti-
mates. Additional information can be obtained
from the EPA report entitled Optimization of Office
Paper Recovery Systems which formed the basis for
this document. The report, produced for EPA by
SCS Engineers (under contract number 68-O1-3192)
dated May, 1976, is available from the National
Technical Information Service, Springfield, VA.
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SOURCE SEPARATION
PROGRAM PLANNING
AND IMPLEMENTATION
Source separation of high-grade office paper
through desk-top programs is a materials-handling
activity which generates products to sell. This is a
relatively new activity which differs in scope, plan-
ning, and implementation from the usual solid
waste management activities of most office build-
ing organizations.
The five major phases of the planning, imple-
mentation, and operation of an office paper re-
covery program include:
Designation of a program coordinator.
Establishing contracts for the sale of the re-
covered paper.
Development and implementation of the col-
lection and storage system for recovered high-
grade wastepaper.
Performance of the employee publicity and
education program.
Reinforcing the newly developed recycling
habit.
Employe participation and the amount of mater-
ial recovered are a direct function of how effec-
tively these five activities are performed.
DESIGNATION OF A PROGRAM
COORDINATOR
The program coordinator's function is to act as a
liaison among upper management, maintenance
supervisors, building managers, employees, and
sales contractors. Administrative duties and re-
sponsibilities include establishing final sales con-
tract provisions, developing and implementing the
employee publicity and education campaign,
and working with all concerned management, cus-
todial, shipping and receiving personnel in devel-
oping the collection and storage system. Ongoing
activities include tracking the operation of the pro-
gram and providing a prompt response to prob-
lems that may develop with employees.
The employee publicity and education cam-
paign is the most important aspect in the imple-
mentation of programs involving a majority of
employees within a facility. Initially, the major com-
ponent of the campaign is employee education
sessions. It is at this point that program implemen-
tation actually occurs. Employees are expected to
begin recycling paper immediately after they have
attended the sessions. All appropriate publicity
materials and collection equipment must have
been distributed by this time, and the collection
system must be functioning to ensure that the paper
is collected on schedule. As a result, all other im-
plementation activities are generally scheduled
around the target dates of the employe educa-
tion sessions.
The program coordinator should develop an im-
plementation schedule that consists, at a minimum,
of the following key activities:
Issuing invitations for bids and sales contract
award.
Developing target dates for the employee
education sessions and the subsequent pub-
licity campaign.
Determining central container locations.
Setting up the collection system which in-
cludes establishing availability dates for labor
and equipment.
Establishing dates for storage space avail-
ability and initial deliveries to the sales con-
tractor.
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An individual should be assigned, or volunteer to
serve, as a program coordinator. This coordinating
function is essential for the program since it in-
volves the participation of all employees within the
organization. The time required to coordinate the
program will vary depending upon the size of the
organization, the configuration of the building, and
the services that will be provided by either exist-
ing administrative functions or the paper sales con-
tractor. In most cases, one person is assigned to
perform this task. However, in large buildings, or
when one individual does not have sufficient time
to perform the task, more than one person can be
assigned on a part-time or full-time basis.
Planning and organizational talent, coupled with
enthusiasm and an ability to communicate with
others, are qualities to look for in the program co-
ordinator. His/her interest areas should include cost
and waste reduction and environmental control.
Personnel at the administrative level who are eager
to show their abilities are possible choices for co-
ordination work.
The administrative requirements for these activi-
ties are substantial during program implementa-
tion, but tend to decrease and level off once stable
operation is achieved. Case studies indicate the
importance of initial administrative and educa-
tional activities in maximizing employee participa-
tion and minimizing contamination levels. EPA's
experience has suggested that there is a tendency
to under-estimate the administrative time require-
ments associated with the implementation and
operation of paper recovery programs. The import-
ance of allocating a sufficient amount of man-
power for these purposes cannot be over-empha-
sized.
In multi-tenant buildings, one person from each
organization should be designated to assist a cen-
tral program coordinator in scheduling education
sessions and other program implementation acti-
vities. Central program coordinators generally are
selected from the organization with the largest
number of employees housed within the facility.
The following sections provide a basis for setting
up a schedule of target dates for program imple-
mentation activities.
ESTABLISHING SALES
CONTRACTS
The first task of the program coordinator is to fin-
alize sales contract provisions. Initial market studies
to determine material specifications, the services
and equipment sales contractors are able to pro-
vide, and potential revenues, are conducted as
part of the program feasibility study discussed in
the third chapter, Projecting the Economics of Paper
Recovery. Final contract negotiations (which the
program coordinator becomes involved with at this
time) include developing and issuing requests for
bids and awarding contracts.
In federal, state, and some local government
agencies, these tasks may be performed by a ser-
vice branch of the respective level of government
having the responsibility for procuring supplies and
selling excess property. The General Services Ad-
ministration (GSA) for federal civilian agencies and
the Defense Logistics Agency (DLA) are good ex-
amples. The program coordinator, in these cases,
works with the GSA or DLA contracting officer man-
aging the wastepaper sales arrangements. Facili-
ties that are not under the auspices of a separate
contracting branch within government or private
organizations independently will negotiate for sale
of recovered paper.
Contacts made through the initial market study
should be followed by a request for bids from pros-
pective buyers and awarding of formal contracts.
As an example of this procedure, the federal gov-
ernment (GSA) uses a four-step process to estab-
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lish contracts for the sale of recovered paper:
Identification of the amount and location of
wastepaper to be sold
Development and distribution of an invitation
for bids (IFB)
Receipt and evaluation of bids
Award of contract
A sample IFB developed and used by GSA for
marketing high-grade wastepaper is presented in
Appendix B.
Major elements of the IFB include:
Scope and term of the contract.
Description, grade, and location of waste-
paper to be sold.
Estimated generation rates.
Packaging and delivery procedures.
Storage capabilities and minimum shipment
quantities.
Services and equipment to be provided by
the contractor.
Services and equipment to be provided by
the facility.
Pricing mechanism for establishing billing
prices.
Example of computation and evaluation of
bids.
Special sale terms and conditions, e.g., anti-
cipated collection schedules, method of
award, and recycling program requirements
and responsibilities.
Final award of the contract is based on an eval-
uation of all the bids that are received. The ability
of the contractor to meet the requirements of the
IFB and the highest monetary return to the govern-
ment serve as the basis for this evaluation. The con-
tractor's collection program is subject to pre-award
inspection in many situations where the bids are
for the "full-service" type contract discussed below.
The type and term of the paper sales contract is
of primary importance for receiving maximum net
revenues. Sales contracts should guarantee that
paper be purchased for a specified period of time
or term. This is usually possible when wastepaper
generation rates consistently exceed one to two
tons per month at a particular location.
Consistent generation rates coupled with the
capability of storing large quantities of paper will
enable an organization to take advantage of rela-
tiely higher prices paid by large-volume term-con-
tract markets. For example, GSA specifies that
paper be purchased for a minimum of one year;
and for optimally more than one year with a re-
newal option for an additional period of time.
Traditionally, recovered wastepaper has been
sold in bulk form to paper stock dealers either on a
day-to-day negotiated basis, a lot-sale basis, or
under short-term agreements. These dealers usually
provide certain types of central storage containers
and pickup service for separated paper. They, in
turn, process, bale, and ship the paper to mills pro-
ducing paper products.
Longer term "full-service" contracts now being
entered into by GSA and many private organiza-
tions are becoming available from an increasing
number of companies (see Appendix B). These
contracts provide a wide variety of services and
equipment such as desk-top containers, central
collection bins, pallets, and shipping boxes. In addi-
tion, assistance may be offered in program imple-
mentation and management, including employee
education sessions and educational materials.
The cost for providing equipment and services
under this "full service" arrangement is included in
the net price paid for the recovered paper. As a
1O
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result, direct costs incurred by facilities for equip-
ment and services are significantly reduced.
Individual facilities not under the. auspices of a
separate contracting branch within government or
private organization must determine the optimum
contracting arrangement. If the contract is only for
the sale of paper, manpower and equipment start-
up costs and requirements must be included in
cost calculations. The arrangement providing the
greatest long-term net revenue return should be
selected. The responsibilities of the facility and
contractor during the implementation and subse-
quent operation of the program under these two
contracting approaches are shown below.
When finalizing contract provisions, the following
factors affecting program costs and revenues must
be considered:
Market Value. High-grade wastepaper is
usually sold on a weight basis and has a mar-
ket value which is quoted by the various paper
industry trade publications for major cities.
The market value depends upon the grade,
acceptable contamination level, and dis-
tance from the ultimate consumer. The con-
tractor may specify that the recovered paper
has to comply with specifications outlined in
the Paperstock Standards and Practices, PS-
74. This pamphlet, issued by the Paperstock
Institute of America, lists paper grades and
allowable contaminants. The contractor may
request the right to downgrade the value of
the paper or reject the load entirely if con-
tract specifications are not met. Appendix D
provides a listing of grade definitions. White
high-grade paper is classified as #1 sorted
white ledger.
Pricing Mechanism. Three basic methods
exist for establishing prices under term con-
tracts: fixed prices for the term of the contract;
periodic review and adjustment of prices; and
floating prices tied to a paper industry market
index.
Fixed prices are most appropriate for short-
term contracts. Floating price mechanisms
or periodic reviews and adjustment of prices
are used for longer term contracts to protect
both parties in the event of price fluctuations.
These are quoted as a percentage of a paper
industry market index, such as Official Board
Markets, for major cities. Guaranteed mini-
CONTRACTOR/FACILITY PROGRAM ELEMENT RESPONSIBILITY
Contract
Approach
Sale of
Paper
Only
FuH
Service
Program Element
Plan and
Development
System
Facility
Facility/
Contractor
Procure
Materials
and
Equipment
Facility/
Contractor
Publicity
and
Education
Contractor
Implement and
Shakedown
Program
Operate
Program
Facility
Transportation
of Recovered
Paper
Contractor
Contractor
11
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mum floor prices should be included in float-
ing price contracts. This is to protect the gen-
erating facility in the event that the price falls
below its break-even point for program oper-
ation.
Longer-term multi-year contracts are of inter-
est to purchasers who provide full-service re-
cycling programs in which significant imple-
mentation and operating costs must be re-
covered.
Storage and Transportation Requirements.
Transportation of recovered paper from the
facility to markets is almost always provided
by sales contractors and the cost may be in-
cluded in the net price for the paper. Higher
unit prices can usually be negotiated if a facil-
ity is able to guarantee economic shipment
quantities. Facilities with adequate storage
space may want to take advantage of lower
contract shipping charges or higher per ton
prices by contracting for 1 to 5 ton minimum
shipping quantifies.
The way in which the paper is stored and
packaged can also affect its value. Handling
requirements are reduced when the waste-
paper is stored in bulk quantities in large con-
tainers such as roll-off bins or pallet-size boxes.
Some contractors pay a premium for baled
paper, if a low contamination level is guar-
anteed. Others prefer that the paper be stored
in boxes or bins so that they can scan for con-
taminants prior to baling.
Point of Pickup. Contractors may remove
source-separated paper from central con-
tainer locations, central storage areas, or
loading docks. Office building employees
may perform all of these services. Generally,
the further into a building a sales contractor
must go to collect paper, the less the F.O.B.
(freight on board) price will be for the paper
because of increased labor costs.
DEVELOPMENT AND
IMPLEMENTATION OF THE
COLLECTION AND STORAGE
SYSTEMS
From the point of paper generation at the em-
ployee's desk to the point of delivery to the sales
contractor, the desk-top container system consists
of the five basic steps previously outlined (see
page 4). Office employees are entirely respons-
ible for the first two stages of (1) separating the
paper and accumulating it in a desk-top container,
and (2) depositing the accumulated paper in
central containers. The remaining three steps of
collection, storage and delivery to the sales con-
tractor are the responsibility of one or more of the
maintenance or general service labor groups with-
in the building.
Equipment used in these collections are:
Desk top containers;
Central collection containers;
Hand carts, wheeled bins or dolleys for in-
house collection;
Central storage containers or equipment such
as corrugated containers, pallet-sized boxes,
pallets, storage bins, balers, or compactors;
Handling equipment such as pallet jacks and
forklifts, and a loading dock area.
Development and implementation of the collec-
tion system includes:
Procurement and distribution of desk-top
containers;
. Determination of central container locations
and the procurement and distribution of cen-
tral containers;
Designation of program monitors;
Acquisition and routing of collection personnel;
Collection equipment modification or pro-
curement;
Acquisition of storage space and handling
equipment.
Procurement and Distribution of Desk-Top Con-
tainers. Desk-top containers are usually plastic,
solid in color, and designed to hold accumulated
paper vertically.
Containers measuring approximately 4 inches
wide by 6 inches long with two sides 6 inches high
are the most suitable because of their stability and
12
-------
large paper capacity. They also occupy consider-
ably less desk space than horizontally designed
containers. Verticle file holders of this design may
be available from local office supply stores, Full-
service contractors provide this type of desk-top
container including a list of acceptable and non-
acceptable paper grades printed on the side.
Desk-top containers.
Desk-top containers are supplied to each desk
employee, usually during program education ses-
sions. At smaller facilities, containers may be distri-
buted to employees at their desks before, during,
or after education sessions.
Determination of Central Container Locations
and the Procurement and Distribution of Central
Containers. A range of from 15 to 25 general office
employees should be served by one container
centrally located in the work vicinity. Hallway en-
trances into office complexes are excellent sites
for central containers because there is minimum
interference with office activity. Employees can
conveniently deposit separated paper as they
leave the office, and collection crews easily can
spot central containers from the hallways when they
make their rounds. Central containers also should
be placed in computer centers, record rooms, re-
production machine rooms, and other areas with
a high rate of paper generation. Whenever poss-
ible, containers should be placed on top of tables
to maximize their accessibility and visibility.
The ideal size for a central container is approxi-
mately 1-ft. high by 1-ft. wide by l/2-ft. long. This al-
lows for sufficient paper storage capacity (2 to 3
days) in general office complexes without being
too bulky. In addition, a container of this size con-
veniently can be placed on top of or under a table
or desk.
Central container location in a compurer center
Central container placed on the top of a table
Fiber, canvas, or plastic bins, cardboard boxes,
or some type of modified wastebasket are used as
central containers. They should be easily identifi-
able as part of the paper recovery program and
must be acceptable for use in office lobbies and
computer centers. Using containers that are similar
in appearance to wastebaskets should be avoided
because of the obvious potential for employee
confusion.
Many smaller paper recovery programs use old
corrugated boxes in which supplies were shipped.
These serve as temporary paper containers at the
central container locations prior to being sealed
and transported to a central storage area. Under
this system, corrugated boxes become available
for recycling after the paper they contain has been
emptied.
Permanent containers are used in larger pro-
grams to minimize the storage and handling of
used boxes. They should be clearly marked as stor-
age containers for high-grade paper. A list of ac-
13
-------
ceptable and unacceptable paper items should
be posted near each container. In addition to desk-
top containers, "full-service" contractors usually
provide permanent central containers meeting the
above criteria.
All central containers must be distributed before
the commencement of the staff employee educa-
tion sessions but after the distribution of the program
"kick-off memo" (discussed in the publicity and
education section). A memo should accompany
each container explaining this step of the program
implementation. Specific dates should be estab-
lished by the program coordinator for people help-
ing in this activity. The program coordinator, acting
as a liaison between the building maintenance
staff and sales contractor, coordinates and usually
participates in this activity.
Designation of Program Monitors. A person work-
ing in an office where central containers are locat-
ed and who is familiar with the program operation
should be assigned to monitor central containers
for contaminants, and to assist anyone who may
have questions about the acceptability of certain
types of paper. This particularly is important in high-
generation areas such as print shops or computer
centers. In addition, monitors can prepare the box
for pickup if a temporary container system utilizing
old corrugated boxes is used.
Acquisition and Routing of Collection Per-
sonnel. Various approaches are used to transport
the paper deposited by office employees at the
collection point to central storage areas. The most
common approach is to collect separated paper
from central containers, review it quicklv for con-
taminants, and then stack or place it on a delivery
or bin-type hand cart, or in an extra sack or barrel
on a maintenance cart for transport to the storage
area.
Most recovered paper collection operations can
be integrated with existing building maintenance
A permanent central container and recycling system.
14
-------
functions. Depending upon what waste collection
activities exist within the facility, the separated
paper may or may not be transported simultane-
ously with other waste to a central storage area.
However, a formal collection system of some type
must be developed for recovered paper, particu-
larly in buildings housing over 5OO employees. For
example, central collection containers serving 2O
office employees may require servicing two or three
times a week to avoid overfilling. Central contain-
ers located in computer and record centers or
other high-generation areas may have to be ser-
viced daily.
The diversion of recovered paper from the waste
stream will reduce the amount of waste going to
disposal. This will tend to free up some custodial
time which may then be allocated for paper col-
lection. To avoid possible contamination problems,
simultaneous collection should be considered
only if the recovered paper easily can be kept
separate from the trash upon collection.
Smaller buildings housing from 1OO to 5OO em-
ployees usually allocate some form of part-time
labor for collecting recovered paper since paper
generation rates are not high enough to warrant
the addition of full-time collection labor. In most
situations, facilities with over 2.5OO employees will
have to allocate at least eight man-hours per day
or a full-time position to ensure efficient collection
of recovered paper.
Some organizations studied by EPA have utilized
existing personnel to collect recovered paper. The
collection usually is made by supply handling, mail
distribution, maintenance or general services per-
sonnel since the handling requirements of recov-
ered paper are similar to materials such as copy
paper and other boxed, palletized or packaged
supplies.
If an organization must hire additional labor to
handle paper collection, all hiring options should
be investigated. Many government agencies and
private organizations participate in temporary or
full-time hiring programs for local high school or
college students, minority and deprived groups, or
handicapped people.
Central container being emptied into a bin-type hand
cart
Typical maintenance cart suitable for use in a paper
recovery program
15
-------
Such programs should be considered as viable
sources of prospective labor. It is important, how-
ever to maintain as low a personnel turnover rate
as possible, particularly in larger programs where
familiarity with paper collection points is important.
A permanent employee added to the general ser-
vices or maintenance staff may be more appropriate.
Many organizations initiate a swing system in which
a pool of general service employees alternate on a
daily basis to collect the paper. Contracted main-
tenance or general service agreements can also
be renegotiated to include the additional labor re-
quirements of separate paper collection. Regard-
less of who collects the paper, the program must
be closely supervised since collection reliability is
essential for maintaining high participation rates.
Collection personnel must be available to begin
servicing central collection containers as soon as
the program begins. In large buildings, it may be
beneficial to conduct a "dry run" before program
implementation. In so doing, the collection staff is
familiarized with central container locations. Gen-
eration rates at specific central container locations
determine how frequently they must be serviced.
As previously mentioned, central containers serving
2O-25 people in general-purpose offices should be
emptied two to three times a week. Computer and
copy centers, file rooms, and print shops should be
LABOR REQUIREMENTS FOR COLLECTION
OF RECOVERED PAPER
a
LUCE
CC LU
a
o
a. LL
(/> O
Z LU
00
400
350
300
250
200
150
100
50
MAN-HOURS/MONTH = NUMBER OF EMPLOYEES X
0.07 COLLECTION MAN HOURS/EMPLOYEE/MONTH
500 1000 1500 2000 2500 3000 3500 4000 4500 5000
NUMBER OF EMPLOYEES HOUSED WITHIN THE FACILITY
16
-------
serviced daily.
Optimum collection routes can be planned based
on the locations of central containers and eleva-
tors. A month of program operating experience will
help to optimize collection routes and establish the
proper frequency of collections.
COLLECTION EQUIPMENT
MODIFICATIONS OR
PROCUREMENT
Three types of equipment used in office buildings
may be suitable for use in collecting source separ-
ated paper:
Mail and correspondence distribution equip-
ment.
Supply distribution equipment.
Maintenance and waste collection equip-
ment.
Many facilities "piggyback" the paper collection
function onto one of these by using or modifying
existing equipment or by procuring additional
equipment. Pieces of equipment commonly used
in office buildings that should be considered for
use in collecting recovered paper are:
Wheeled canvas bins or barrels.
Mail carts.
Canvas bags.
Hand carts, dollies or gurnees.
A cleaning supply and trash collection cart suitable for
recovered paper collection
Wheeled canvas bin.
17
-------
Collection approach varies depending upon how
the paper is handled, the building size, and the
type of labor used. Source-separated paper, which
is essentially surplus material, is best handled in a
manner similar to supply distribution. The human
expertise and type of equipment used for handling
supplies, such as flat bed carts, pallets, and pallet
jacks, are best suited for the handling of large vol-
umes of recovered paper. Other programs use
canvas sacks or containers previously used to col-
lect trash. Programs that collect and store recov-
ered paper in used corrugated boxes employ
hand dollies for collection.
Most methods for collecting and handling high-
grade wastepaper are similar to other materials-
handling activities within the facility. Many facilities
as a result, already may have mail carts or waste
collection equipment available that can be usec
to collect separated paper. This existing equip
ment often can be modified for paper collectior
by adding separate compartments or shelves
Many organizations, however, are forced to pro
cure additional equipment because suitable ex
isting equipment is lacking, or to develop a nev
paper collection system. Factors such as hallwa'
width, type of floor covering, and freight elevate
size must be taken into account when determininj
the type of equipment to purchase. In additior
hand vehicles should have sufficient capacity t<
minimize off-route trips to central storage areas.
\
Mail cart.
18
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ACQUISITION OF STORAGE
SPACE AND HANDLING
EQUIPMENT
Contractor requirements and available storage
space and equipment are the two primary factors
to consider when developing procedures for stor-
ing recovered paper. Contractors may offer imple-
menting organizations economic incentives by
specifying minimum shipment tonnages, baled
paper, or delivery or packaged paper using facility
personnel and equipment. Facilities must identify
their maximum storage and delivery capabilities
so contracts can be negotiated that take advan-
tage of such incentives. This storage area should
be secure to minimize inadvertent contamination
and to meet local fire regulations.
There are three basic techniques for storing re-
covered paper: palletizing, baling, and bulk stor-
age.
Pallet-size boxes capable of holding up to 1,500 Ibs of
paper
Palletizing. Most buildings without extensive stor-
age facilities palletize recovered paper in used
corrugated boxes or pallet-size boxes. Corrugated
boxes must be uniform in size, completely filled, and
sealed to facilitate banding operations and to pre-
vent the breakage of pallets during transportation.
Pallet-size boxes must be constructed of a heavy
corrugated material or banded to prevent break-
age during handling operations. These boxes
should be covered during paper storage to pre-
vent contamination and reduce fire hazards.
Pallet jacks or forklifts are necessary to move full
pallets of paper since standard 4-ft. x 4-ft. pallets
can weigh between 1.2OO and 1.5OO Ibs. If the
building has no loading facilities or pallet-handling
equipment, the paper must be stored in corrugated
boxes or similar containers that can be individually
loaded onto a truck.
Baling. In a few office buildings with source-
separation programs, the recovered paper is
baled. There are no conclusive results available on
the applicability of baling for source-separated
paper. However, EPA data indicate that it is only
feasible with pit-type or chute-fed balers. Loading
a hand-fed, above grade baler requires an exces-
sive amount of "off route" time. However, high
speed pit-type or chute-fed balers are consider-
ably more expensive than the smaller hand-fed
balers.
The main purpose of baling is to reduce volume
and to facilitate handling of recovered paper with-
out the use of rigid storage containers. Bales can
also be stacked to reduce storage space require-
ments. Recovered high-grade paper, however,
packs uniformly with high density in a loose form in
bulk containers. The loose volume of high-grade
paper is generally reduced very little after baling.
Many contractors prefer that paper not be baled
because of potential contamination problems.
Scanning or checking baled paper for contami-
nants is not economically feasible. A facility would
risk the rejection of an entire bale by the contrac-
tor if an excessive amount of contaminants was
visible at the time of delivery. Unless a building is
already equipped with a high speed baler or can
19
-------
obtain a significant premium for baled paper, bal-
ing may not be economically justifiable due to high
capital and operating costs.
High grade paper being baled.
Bulk Storage. Paper is stored in bulk containers
at buildings where indoor baling or pallet storage
is impractical or where outdoor storage is neces-
sary. One to 3.O cu. yd. bins and roll-off containers
with capacities ranging from 2O to 3O cu. yds. are
among the types of containers used for bulk stor-
age. Bulk containers should provide such adequate
protection from weather and other adverse condi-
tions to prevent contamination and soaking of the
recovered paper. In addition, they must be clearly
identified tor use only as storage space for recov-
ered paper.
STORAGE HANDLING
EQUIPMENT
Equipment for handling stored paper is closely
related to how the paper is packaged. If paper is
stored in large containers such as pallet-size boxes
or bales, for instance, a pallet jack or forklift and a
level storage and loading dock area will be re-
quired for handling and shipping the paper.
30 cubic yard roll-off container
Fork/ifts are used on shipping docks to load palletized
paper.
2O
-------
COLLECTION AND STORAGE
OF CONFIDENTIAL WASTES
Many office facilities generate large amounts of
confidential material that is on high-grade recycl-
able paper but which, due to regulations or poli-
cies, must be incinerated or shredded. Handling
requirements for confidential records and docu-
ments are very similar to collection procedures for
source-separated paper. Shredded high-grade
paper, however, is usually not as marketable as un-
shredded paper, because it is less dense and con-
tamination is difficult to control. Sensitive material
can be source separated and regulations for
handling confidential material may be met if the
collection process is closely monitored and stor-
age is in a secure area.
The building manager and sales contractor must
carefully evaluate the storage and shipping cap-
Sea/ing a corrugated container used for ho/ding recov-
ered paper
abilities of the facility to determine the best method
of handling paper.
The development of the storage system is the
most critical step in developing the internal collec-
tion system for a specific building, since the way in
which paper is stored will determine how it is col-
lected. The program coordinator can play a major
role working with the building manager and sales
contractor in developing this system.
CONDUCTING THE EMPLOYEE
PUBLICITY & EDUCATION
CAMPAIGN
The success of a source-separation program de-
pends upon employee awareness, cooperation,
and concern. None of these is possible without a
vigorous education campaign to explain to the
employees the goals and methods of the program.
Such a campaign should begin well in advance of
the institution of the program, but not so far in ad-
vance that employee enthusiasm diminishes before
the program is implemented.
Major elements involved in motivating em-
ployee participation include:
Drafting and distributing a "kick-off memo"
from the top administrator of each organiza-
tion to all personnel. The memo should express
management's support of the program.
Scheduling the education sessions for man-
agement, program monitors, maintenance
staff, and staff employees.
Distributing education session schedules.
Procuring and/or developing slide shows,
posters and other publicity materials.
Conducting education sessions. This marks the
actual implementation of the program.
21
-------
Management education system
Full-service contractors provide assistance and
materials for scheduling and conducting educa-
tion sessions and the publicity campaign. In most
cases, they provide slide shows and other visual
presentations, as well as technical assistance and
materials for other aspects of the publicity cam-
paign.
In a situation where the organization does not
have a full-service contract, the organization must
procure the necessary publicity materials and per-
form each activity using in-house personnel.
Drafting the Program "Kick-Off" Memo. It is cru-
cial to officially endorse the implementation of the
program by distributing a "kick-off memo" from a
top-level administrator of the office facility. The dis-
tribution of this memo initiates the sequence of acti-
vities discussed below and in the previous chapter.
An example of a recommended memo is dis-
played on page 23. The following key points should
be noted from this sample memo and should be
stressed in memos developed from it.
Implementation of the paper recovery pro-
gram constitutes an official organization effort
to reduce waste.
The program is endorsed by top-level man-
agement;
Significant revenues will flow back to the or-
ganization from paper sales and waste dis-
sal costs will be reduced;
The operation of the program is simple, requir-
ing only a small change in personal habits;
The paper that will be separated and recov-
ered through this program is a high value
material that is easily source separated and
represents a major portion of the waste stream
from this building-,
Everyone is required to attend a short, fifteen-
minute briefing explaining program operation
and what is expected of each employee;
A schedule of the employee education ses-
sions should be attached.
Scheduling the Education Sessions. The initial
employee education sessions are the most crucial
aspect of implementing a paper separation pro-
gram since large numbers of personnel are in-
volved. These sessions must be properly organized
and scheduled in order to be as convenient as pos-
sible for all employees. They should immediately
follow the distribution of the kick-off memo in order
to maintain employee awareness through the pro-
gram implementation phase.
Larger organizations benefit by holding sessions
for different levels of management and personnel
participating with the program. A suggested se-
quence for presenting information is;
Management
Program monitors
Maintenance staff
Employee staff level
22
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UNITED STATES ENVIRONMENTAL PROTECTION AGENCY
WASHINGTON. D C 20460
SUBJECT: PAPER RECYCLING AT WATERSIDE MALL THE ADMINISTRATOR
FROM: Russell E. Train
TO: All EPA Employees
Our Agency will soon initiate at Waterside Mall the first federal paper
recycling program in the Washington, D.C. area. The object of this program
is to recycle all the high-grade white and off-white wastepaper we generate
at Waterside Mall. As you may know, EPA has proposed that all federal
agencies recycle their high-grade wastepaper. We hope our program will serve
as an example for these agencies. As we approach the Agency's fifth anniver-
sary, it is significant that this program presents a rare opportunity for
every individual to contribute personally and tangibly to a collectively
significant environmental improvement effort.
By recycling our high-grade wastepaper, we can recover over half of all
the waste that leaves EPA's buildings. A contract recently signed for sale
of our paper will bring revenues of approximately $50 per ton to the U.S.
Treasury. This is in addition to the facts that recycling conserves energy
and natural resources and protects our land from overburdens of waste.
The recycling program at Waterside Mall will be simple; only small
changes in our daily habits are required. Each employee will have a desk-top
container into which he or she will place white and off-white wastepaper.
When the container is filled, about once a week, the employee will empty the
accumulated paper into a designated box at conveniently located recycling
stations on each floor. These stations will be clearly marked with our USE IT
AGAIN, SAM slogan and will be located at a place which each employee frequents
in the course of his or her normal business day.
A series of slide shows will be given to acquaint each employee with the
program. A schedule of these will be distributed within the next two weeks.
I urge each of you to attend. In addition to the slide shows, the Office of
Solid Waste Management Programs will provide assistance as required.
Within the next week, program coordinators from that office will identify
convenient recycling station locations and answer questions.
The success of this program depends upon everyone's cooperation.
The program ' 'kick-off" memo used at EPA headquarters to introduce the soon to be implemented paper recovery
program.
-------
Some of these levels can be combined into one
session depending upon the size of the organiza-
tion. Sessions for top-level management should be
held prior to distribution of the "kick-off memo" to
all employees. Subordinate employees must be
required by top-level management to attend
scheduled education sessions. Approximately 75
percent of the employees can be expected to
attend these sessions if required by their supervisors
to do so.
Briefing employees who are unable to attend
education sessions should also be considered. Fol-
lowup briefings should be minimized, however, by
making initial sessions as convenient as possible
for employees to attend.
Scheduling large numbers of personnel sessions
can be done in a number of ways depending upon
the availability of large and conveniently-located
auditorium space. Obviously, fewer education ses-
sions are required for facilities where larger, main
auditoriums are used. However, participation levels
will be limited because of the tendency to empty
offices of personnel, particularly if employees are
scheduled to attend by office department.
A more practical approach, particularly when
auditorium space is limited, is to schedule smaller
sessions of approximately 1OO-2OO people using
the first letter of employee surnames. This phased
approach will minimize the tendency to empty any
one office since the audience will be drawn from
throughout the organization. This approach is prac-
tical only if sufficient personnel are available to hold
a large number of sessions and if employee attend-
ance can be scheduled by using organizational
charts or a company phone book listing surnames
alphabetically. In situations where central audi-
torium space is unavailable, slide shows can be
presented floor by floor or by office location.
Schedules should be flexible to allow employees
a choice of two or more sessions to attend. It is
recommended that sessions be scheduled be-
tween the hours of 9:OO and 11:3O am and 2:OO
and 3:3O pm, and not around lunch breaks or the
beginning or end of the day. In addition, sessions
should not be held around holiday or vacation
periods when a large number of employees tend
to take leave.
Distribution of Education Sessions Schedules.
Session schedules can be distributed as part of the
"kick-off memo" package, and may include a map
describing the location of the auditorium where
the sessions will be held. A certain lead time must
be allowed between distribution of the schedule to
employees and the education sessions. This lead
time should be no longer than one or two weeks so
that employees maintain session attendance as a
high priority on their daily schedules.
Procuring or Developing Posters, News Articles,
and Other Publicity Materials. A comprehensive
publicity program must immediately follow both the
distribution of the "kick-off memo" to all employees
and the employee education sessions. Publicity
should stress:
How the program works;
What paper is acceptable and what isn't;
How the company or agency will save through
revenue and decreased disposal costs;
What environmental and conservation bene-
fits are obtained from recycling;
Where the central containers are placed.
Slogans, name identifications, and graphics have
played an important rofe in source separation pro-
gram publicity campaigns studied by EPA. The slo-
gan "Use It Again, Sam" developed by EPA for fed-
eral government paper recycling programs easily
identifies all items associated with the recovery sys-
tem. Through the use of appropriate slogans and
graphics, participants in a paper recovery pro-
gram can be continuously reminded of its existence
and what is expected of them.
24
-------
HEADQUARTERS
EPA
gram
U.S. ENVIRONMENTAL PROTECTION AGENCY
SPECIAL
USE IT AGAIN SAM
A Federal Government Pajer Recycling Program
To insure successful implementation of EP^'s USE IT AGAIN SAM proqran, three series of Tieettnris have been
scheduled one series is for all EPA employees, another is for those people who will be chcsen to be proqran
monitors, and one is for Division Directors and Branch Chiefs
D_i_vi 5_ion Directors and Branch
Chiefs^ will meet first
Monday, November 10th
Room 2117
Room 2117
Next,
who will
have beeTT selected by their
appropriate Division Directors
or Branch Chiefs, will meet
Thursday, November 13th
10 QO A M Poom 2117
2 00 P M Room 2117
Friday, November 14th
10 00 A M Room 21)7
2 00 P
Room 2117
The last series of meetinns,
those for all EPA staff, is
actually the beninninq of the
program's operation- at these
meetings, EPA employees will
qet their desk-top containers
If you happen to miss the
Tieetinn you were scheduled
for, olease attend any of the
other meetinqs
Tuesday, November 18th, 3oom 2117
All employees whose last names
begin with the letter
A-D E-H
2 00 P I"
2 30 P "
3 00 P M
Thursday, 'Jovember 20th, "^oorn 2117
Friday, November 21st, 3oom 2117
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-------
Examples of slogans used by other source separ-
ation programs are:
"Tree Saver"
"Somerville Saves"
"Recycle Plus"
Various methods for presenting these issues to
office personnel include:
Posters
News articles and newsletters
Brochures, leaflets, memos, etc.
Posters designating recyclable and non-recycl-
able materials are used to mark central container
locations. These posters must be acceptable for use
in a wide variety of office locations ranging from
lobbies to computer centers. The lists of materials
that are recyclable or non-recyclable must be
clear and convenient for employees to read as
they deposit paper in the central containers.
Employee newsletter articles, brochures, and
various types of memos and notices are also
used in publicity campaigns. These materials con-
vey information within the organization oh prob-
lem areas which develop procedural changes, re-
minders of paper preparation requirenTents and
contaminants, and program performance. Periodic
notices and reminders, using internal newsletters or
other communication documents, should be distri-
buted on a scheduled basis or as required after the
program is implemented to discuss program prob-
lems and accomplishments. Articles submitted to
local newspapers are also helpful in generating
outside citizen support for the organization's re-
cycling activities.
Many publications are available for use in paper recovery program publicity campaigns.
26
-------
The slogan and poster developed by EPA for office
paper recovery programs
The "Use It Again, Sam" poster is available through
the Government Printing Office. Other information
on office paper recycling is available from EPA,
paper industry groups (such as the American Paper
Institute), and various state agencies and private
organizations involved with paper recycling.
CONDUCTING THE SESSIONS
Sessions should be no longer than 15 to 2O min-
utes. Ten minutes should be allocated for a formal
presentation, including a narrated slide presenta-
tion, and 5 to 10 minutes for questions and answers.
The formal presentation should include a concise
description of program operation with pictures of
all equipment and material bins to be used, col-
lection techniques, and specification of accept-
able and non-acceptable paper. In addition, a
display of desk-top containers, central collection
containers, posters, and acceptable and non-
acceptable materials for recycling should be set
up for further clarification.
Many organizations place desk-top containers
on seats prior to education session or distribute
them at the end. A short list of instructions delineat-
ing the type of acceptable paper, the location of
central collection containers, and a phone number
to call for answering questions on program opera-
tion also can be placed in the containers.
Slide shows are the most effective tool for pre-
senting information on program operation to large
audiences. They are essential in implementing pro-
grams in large organizations.
For organizations not under a full service con-
tract, a slide show and narrative, developed by
EPA, will be available from the National Audio Visual
Center, General Services Administration, Washing-
ton, D.C. This show is designed to educate office
employees about the program operation, equip-
ment used for collection and contaminants.
The type of audience determines the emphasis
of each session. For instance, in presentations made
to the maintenance staff, program operation, con-
taminants, location of central containers, and type
of containers being used must be stressed in order
to avoid confusion with the mixed waste system.
This clarifies what equipment and containers are
to be used in the program. It is especially important
that detailed instructions be given to maintenance
staffs who work after business hours and are there-
fore unable to attend the regular education ses-
sions. Many office paper recovery programs have
been frustrated by janitors who mistakenly throw
away carefully saved high-grade wastepaper.
Progam operation techniques, contaminants, and
central collection container locations should be
emphasized to all general staff employees. Pro-
gram performance, environmental impacts, and
economic statistics should be emphasized to
management.
27
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UNITED STATES ENVIRONMENTAL PROTECTION AGENCY
0 WASHINGTON. D C 20460
PRESS RELEASE
EPA Introduces Wastepaper Recovery at its
Washington Headquarters
During the week of November 17, U.S. Environmental Protection Agency
employees at the Washington Headquarters will be introduced to the Agency's
USE IT AGAIN SAM wastepaper recycling program. The program is expected to
recover over one ton per day of high-grade wastepaper for recycling.
To acquaint employees with the program, each employee will attend a
slide show and receive a personal desk-top container to separate and accumu-
late recyclable wastepaper (white ledger, computer print-out, tab cards)
from other waste. When this container is filled, the employee will empty the
accumulated paper into a receptacle at conveniently located recycling stations
throughout the offices. The recovered paper will be collected daily from
these stations and stored temporarily pending weekly pickup by a government
contractor.
In a memorandum to all EPA Headquarters employees to announce the
program, Russell Train said, "It is significant that this program presents
an opportunity for every individual to contribute personally to a collectively
significant environmental improvement effort. We hope our program will serve
as an example for all federal agencies."
The USE IT AGAIN SAM program is simple; only slight changes in the
employees' daily habits are required. The fact that the recovered paper is
a valuable high-grade resource facilitates the search for markets and the
establishment of term contracts for its sale. In addition, the reduction in
the office waste flow and the revenues from the program will result in an
overall savings to the government.
An EPA press release to newspapers immediately before program implementation.
28
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29
-------
ฅ UNI TED STATES ENVIRONMENTAL PROTECTION AGENCY
WASHINGTON, DC 20460
USE IT AGAIN SAM
The following types of paper are recyclable under EPA's USE IT AGAIN
SAM program:
- white or natural-colored paper -
Letterhead, including the white tissue copy once the carbon paper has
been removed.
Bond and carbonless computer print-outs.
Carbonless paper and miscellaneous business forms.
Stationery, typing paper, tablet sheets.
Xerox, IBM, and other bond copies, but not coated (liquid process)
copies.
Tab cards.
Many reports are acceptable once the colored or slick cover and/or glue
binding has been removed.
(The natural-colored paper used in copying rooms is acceptable. It is
100 percent recycled paper. The off-white color is a result of minimum
bleaching, thus helping reduce water pollution and production cost.)
The following items a_re ncvt recyclable under EPA's USE IT AGAIN SAM
program:
Envelopes, both white and manila.
Carbon paper.
Colored paper - this includes the yellow and pink message pads and
the yellow legal pads.
Newspapers and Magazines - this includes the Federal Register.
Coated copy paper.
0 Gummed labels, rubber bands, paper clips - staples are okay.
Adhesives, glue bindings, cellophane.
Slick or glossy paper.
Cardboard or chipboard.
Photographic or blueprint paper.
A memo placed in the desk-top container during implementation of the paper recovery program.
30
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SB,
UNITED STATES ENVIRONMENTAL PROTECTION AGENCY
WASHINGTON. DC 20460
JSF. IT AGAIN SA-f
Proposed Recycling Stations
As a result of a survey of EPA Headquarters, the following locations have
been proposed as recycling stations:
WEST TOWER
Floor Proposed Recycling Stations
2 221, 227
3 313, 323, 329
4 401, 413, 438
5 511, 515, 532, 541
6 601-605, 611-613, 627, 634
7 701, 711-713, 735, 738
8 801, 811-813, 825-827, 835-837
9 905, 911-913, 927, 942
10 1005, 1011-1013, 1035-1037, 1038
11 1110, 1131, 1136
12 1206, 1223
Floor
Basement
1
2
3
4
5
6
7
8
9
10
11
12
It is hoped that these recycling stations wi
convenient location can be found.
EAST TOWER
Proposed Recycling Stations
B15, B26, B49, B55
107, 108, 124-138
201, 207-221 , 206, 230-244
313, 317, 340, 347
400, 417, 445, 449
515, 538, 541
606, 613, 631
713, 735, 740
810, 813, 835, 837, 842
901, 910, 913, 935
1010, 1011, 1037, 1042
1113-1115, 1119, 1133, 1145
1208, 1218, 1219
11 be relocated if a more
Each station is intended to serve approximately twenty people. Thus,
as a rule, no station ought to serve less than ten people or more than thirty-
five people.
In order to facilitate daily pick-up of the wastepaper, the recycling
stations should be next to or near a door leading into the public hallway.
(There will be recycling stations in all the data centers.)
Questions about the program and recycling stations should be addressed
to the program coordinators at 755-9140.
A list of recycling station locations placed in the desk-top container during implementation of the paper recovery
program.
31
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ฅ UNITED STATES ENVIRONMENTAL PROTECTION AGENCY
WASHINGTON, D.C 20460
THE ADMINISTRATOR
MEMORANDUM
SUBJECT: The "Use It Again, Sam" Recycling Program
TO: EPA Headquarters' Staff
HAPPY BIRTHDAY! CONGRATULATIONS, EPA!
November 19, 1976, marked the first anniversary of the "Use It Again, Sam"
Recycling Program, here at Waterside Mall, and we can celebrate it with pride.
In the past year, we have recycled over 285,600 pounds of our high-grade office
wastepaper and have reduced our total waste going to disposal by about 40 per-
cent. The program has earned over $8,000 in revenue.
We would like to thank all of you for your participation in the program.
We hope that you will continue in your efforts to make this program a success.
We each recycle a half-pound of wastepaper per day, so each employee has a
significant impact on the program.
As a reminder, the following items are acceptable under the program:
1. all high-grade white and buff colored ledger paper
2. bond computer print-out
3. computer tab cards
(Note: Staples are acceptable)
Unacceptable items include:
1. carbon and all colored papers (including telephone message forms)
2. newspapers and magazines (e.g., Federal Register)
3. all envelopes, adhesives and manuals with glued bindings
4. slick, glossy or coated (liquid process) paper
5. cardboard or cellophane
6. rubber bands and paper clips
(Note: Self-adhesive correction tape and plastic bindings are
not acceptable and must be removed before the paper can be
recycled.)
Special thanks must be given to the Shipping and Receiving Branch, and
in particular to Mr. Bill Ridgely who currently supervises the program. Also
to be thanked are the staff of Edwards Trucking --Mr. Donald Bruce and
Mr. John Summers, who so conscientiously have collected that paper from the
recycling stations.
If you need a special pick-up or a desk-top container, please contact
Mr. Ridgely at 59032. If you have questions about the program or desire more
information, please contact Liz Tennant of the Office of Solid Waste at 59140.
A memo distributed to EPA headquarters employees marking the first year of the paper recycling program
operation again stressing contaminants and operational procedures
32
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The undesirabilify of contaminants such as col-
ored paper, newspaper, etc., must be heavily
stressed throughout the entire organization, in all
education sessions and written materials. No single
factor can contribute more to the failure of a paper
recovery program than an excessive level of con-
taminants.
The high-grade paper recycling process involves
bleaching and hydropulping the recovered paper
into a slurry. Paper sheets are then formed from this
slurry on a continuous moving screen and subse-
quently drawn through rollers for drying. This pro-
cess requires the use of expensive machinery. It is
very sensitive to any of these contaminants com-
monly found in office waste for the reasons explained/
Equally important to stress is the acceptability of
white or natural-colored paper products. Natural-
colored paper, available from many paper com-
panies, is acceptable in high-grade paper recov-
ery programs. It is 1OO percent recycled paper
and has an off-white color because of minimum
bleaching, thus helping reduce water pollution.
Letterhead, including the white tissue copy.
Bond and carbonless computer print-outs.
Carbonless paper.
Plain bond copy paper that is not coated.
Miscellaneous business forms.
Stationery, typing paper, tablet sheets.
Tab cards.
Many reports have unacceptable covers and
bindings. If the contents are acceptable for re-
cycling, the cover and binding can be removed.
REINFORCING THE NEWLY
DEVELOPED RECYCLING HABIT
Once implemented, office paper recovery pro-
grams require continuous administration on the
part of building management and the program co-
ordinator, and the cooperation of all employees.
A special effort must be made to avoid confusion
by effectively operating the program by occasion-
ally reminding employees about which papers are
acceptable and non-acceptable for recycling.
This is particularly important during the first few
months of program operation. Most organizations
find that employees develop the recycling habit
within one week after program implementation.
However, this habit can be sustained only if:
There is no excess accumulation of paper at
central container locations.
The central container locations are kept neat
and orderly.
Employees are provided with a central phone
number where they can report trouble such
as collection delays and can inquire about
the acceptability of various types ,of paper.
An instantaneous response to all problems
and questions is critical for maintaining em-
ployee participation.
An ongoing publicity campaign providing
feedback to employees on program perform-
ance and general problem areas is per-
formed.
Excess accumulation of paper at some central
container locations may occur initially due to extra
paper which previously was accumulated by em-
ployees and unavoidable collection system start-
up difficulties. Collection delays must be identified
and resolved as quickly as possible. Widespread
employee participation and high rates of paper
recovery are not possible without the prompt de-
velopment of a smooth and efficient collection
system.
33
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The collection system also must be closely super-
vised and monitored after the operation of the pro-
gram has stabilized. It may be necessary to change
the locations of certain central containers or the
frequency of collection at certain locations be-
cause of abnormally high- or low-generation rates.
Program operating experience usually leads to
other modifications for increased operating effi-
ciency. Collection personnel should be encour-
aged to provide recommendations for any modi-
fications to increase program operating efficiency.
The ongoing publicity and education aspects of
the program cannot be over-emphasized. There
must be immediate reinforcement of the changing
habits required for recycling. It must be clear that
the program is permanent and that it will work only
through the cooperation of all participants. This
may include monthly notices of tonnages that have
been recovered, any contamination problems, and
revenues that have been received from the sale of
the paper. A system that is sustained through a
continuing employee education program and a
proper management program will attain a grow-
ing rate of participation, while placing few de-
mands on employees.
Other ongoing administrative activities include
monitoring the recovery rates and scheduling the
pickups. A record-keeping system should be de-
veloped which includes the tabulation of recovery
rates, all program operation costs, and the reve-
nues from the sale of the paper. This data can be
used for drafting reports on the program and can
serve as a basis for ongoing publicity programs
providing feedback to employees.
The scheduling of paper pickups should be coor-
dinated between the sales contractor and the
SOLID WASTE STUDY
MARKET STUDY
COST FEASIBILITY
STUDY
ADMINISTRATIVE
DETERMINATION
OF ACTION
MMM
^1
mmmmm
mmmmm
PROGRAM PLANNING AND IMPLEMENTATION FLOW CHART
PLANNING
1
KEY DECISIONS
Markets
Facilities
Operation
Schedule
MONTH
^MM
DESIGNATE
PROGRAM
COORDINATOR
CONTRACT NEGOTIATIONS
Formal Advertising IFB
Contract Award
SALES PROCUREMENT
1-1/2 MONTHS
34
-------
facility's receiving and shipping personnel in order
to facilitate the preparation of paper for shipment
and to ensure that the necessary paperwork has
been completed. These activities may include
weighing the trucks, both prior to and subsequent
to loading, and filling out all necessary shipping
documents and weight slips. Weight slips can then
be used for estimating recovery rates and revenues
in order to evaluate program performance.
Another method of increasing revenues and re-
ducing the potential for employee confusion is to
increase the percentage of the waste flow tonnage
that is recyclable. This can be accomplished by
reviewing traditional procurement practices that
may require the use of colored paper or coated
paper that is not recyclable through a high-grade
paper recovery program. Many opportunities exist
for increasing the use of recyclable white or un-
coated paper in these situations. For instance,
when color coding is needed, multi-leaf white
paper forms with a color strip may be available for
this same purpose. This paper would be recyclable
in a high-grade program whereas the previously-
used solid color paper would not be. Recyclable
white or natural-colored paper can substitute for
non-recyclable colored or coated paper used for
many other purposes, such as organization news-
letters and bulletins, with little effect on their ease
of identification.
The flow chart below presents the major imple-
mentation activities that have been discussed in
the previous chapter, the sequence of occurrence,
and estimated time requirements for a representa-
tive building of 1.8OO people.
COLLECTION SYSTEM DEVELOPMENT
Determination of Central
Container Locations
Acquire Available Labor,
Equipment and Storage
Acquire Additional Labor,
Equipment and Storage
DESIGN
1/2 MONTH
^^m
MMM
EMPLOYEE PUBLICITY AND
EDUCATION CAMPAIGN
Drafting and Distribution
of a "Kick Off" Memo
Scheduling and Performing
Education Sessions
ซ Procuring and/or Developing
Posters, News Articles and
Other Publicity Materials
Reinforcing the New Habit
IMPLEMENTATION
1/2 MONTH
PROGRAM IMPLEMENTATION TARGET DATE
Ml
ONGOING ACTIVITIES
Collection System Shake-
Down and Supervision
Sales Contractor
Coordination
Ongoing Publicity
Campaign
Monitor Recovery Rates,
Revenues and Costs
OPERATION
(NOT TO SCALE)
35
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PROJECTING THE ECONOMICS
OF PAPER RECOVERY
This chapter is a guide for organizations which
wish to develop cost estimates to determine the
economic feasibility of implementing a high-grade
paper recovery program. Estimating costs to deter-
mine economic feasibility is most easily performed
using a standardized analysis format that com-
pares present solid waste management expenses
to projected expenses after implementation of a
paper recovery program. EPA has identified basic
cost factors associated with the collection, storage
and disposal of office waste which can be used to
project the economics of implementing a paper
recovery program. These are presented in a sample
analysis format below and are discussed in separ-
ate sections in this chapter. Each section presents
information necessary to complete the analysis
and to calculate potential solid waste manage-
ment savings after implementing a paper recovery
program.
You will note that the form is divided into three col-
umns. Each cost factor will be analyzed both prior
to and after implementation of a paper recovery
program as discussed below.
Solid Waste Management Costs Prior to Paper
Recovery Program Implementation. When pos-
sible, it is best to use the office's expense records
to determine present solid waste management
costs prior to implementation of a paper recovery
program (first column). In many organizations,
much of this information is available, but it may be
in an unsuitable form or be otherwise inadequate
for completing this analysis. EPA has developed the
solid waste cost data presented in this chapter to
facilitate the completion of this analysis in situations
when the necessary information is not readily avail-
able. These data are averages for every 1OO em-
ployees housed within EPA case study sites. Any
organization can use this data by simply multiply-
ing the relevant figures in each section by every
1OO employees housed within their facility.
Solid Waste Management Costs
Factors
1. Waste Generation
(ton/mo.)
2. Costs ($/mo.)
collection labor
collection equipment
storage
administration
disposal
3. Savings
revenue
4. Net solid waste management
costs
5. Potential savings
Prior to paper
recovery program
implementation
Fully
allocated after paper
recovery program
implementation
Actual after paper
recovery program
implementation
36
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Solid Waste Management Costs After Paper
Recovery Program Implementation. Two ap-
proaches are used to estimate solid waste man-
agement costs after implementation of a paper
recovery program. This is necessary since the many
methods used to implement programs may result
in wide variations in actual costs from building to
building.
Fully Allocated Costs:
Fully allocated costs after implementation of
a paper recovery program are projected
costs based on the theoretical requirements
for labor, equipment and space (second col-
umn). For example, EPA data indicates that,
on the average, seven man-hours per 1OO
employees per month are required to collect
recovered paper. At a labor rate of $5 per
hour, collection costs would be $35 per month
for 1OO employees. Under the fully allocated
column, the projected labor costs for two
separate organizations housing an equal
number of employees would be identical, as
the theoretical man-hour requirements for
eacWIOO employees are the same.
Actual Costs:
Actual costs are estimates of actual budget-
ary changes that may be expected based on
average costs actually incurred at EPA case
study locations (third column). EPA found that
in many situations, the costs of handling recov-
ered paper were absorbed by or internalized
within the existing solid waste management
budget. An example of this would be an or-
ganization that implemented a paper recov-
ery program and experienced no change in
mixed waste handling costs or incremental
costs for collection of recovered paper.
To demonstrate how to complete this four-column
form, a sample analysis is performed for the Jeffer-
son Building, a fictitious, representative office build-
ing of 1.8OO employees that could be located
anywhere in the United States. Waste generation
rates are determined first, followed by costs, reve-
nues and where applicable, savings for solid waste
management activities both prior to and after im-
plementation of a paper recovery program.
Data presented in each section of this chapter is
based on the case studies in the EPA report entitled
Optimization of Office Paper Recovery Systems.1
1SCS Engineers, Optimization of Office Paper Recov-
ery Systems U.S. Environmental Protection Agency.
May, 1976. Distributed by National Technical Infor-
mation Service, Springfield, VA.
GENERATION RATES OF MIXED
WASTE AND HIGH-GRADE PAPER
Historical tonnages of waste disposed of from an
office building can be determined by reviewing
any existing solid waste disposal records or obtain-
ing information directly from the waste hauler ser-
vicing the building. In the absence of this data, an
organization may wish to carry out a quantity and
composition study (Appendix C) or may use the
average generation factors discussed below.
General purpose office facilities surveyed by EPA
generated an average of 1.5 Ibs. of mixed waste
per employee per day (see page 2). *
Similarly, the desk-top paper recovery programs
implemented at these facilities recovered from 6O
to 7O percent of the high-grade paper in the waste
stream, or an average of O.5 Ibs. per employee per
day. Thus the Jefferson Building would generate
2.7OO Ibs. of mixed waste daily (1.5 Ibs. per em-
ployee per day times 1.8OO employees) and
would recover 9OO Ibs. per working day or 9.9 tons
per month of high-grade paper (O.5 Ibs. per em-
ployee per working day times 1.8OO employees).
COLLECTION LABOR
REQUIREMENTS
Mixed Waste. The average time required for the
collection of mixed waste prior to and after the im-
plementation of source separation programs at
EPA case study sites is summarized below in terms
of the total amount of custodial time spent per 1OO
employees per month.
Average Mixed Waste
Collection Time
Prior to source
separation
After source
separation
Custodian (hrs./lOO
employees/mo.)
44
39
These data indicate that the handling require-
ments for mixed waste are reduced by 12.5 per-
cent, or 5 hours per 1OO employees per month,
after the implementation of a paper recovery pro-
gram. This is the result of fewer trips made to central
waste collection or storage areas by custodians
due to the diversion of a significant portion of the
*Bank and insurance type facilities generate signifi-
cantly larger amounts of waste, averaging 2 3 Ibs.
per employee per day.
37
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waste stream for recycling. In many facilities, mixed
wastebaskets may not need daily servicing, espe-
cially after a large amount of high-grade waste-
paper is diverted from the mixed waste stream.
When combined with a well-run source separation
program, an efficient waste-handling system can
use this freed labor time to collect the recovered
paper.
In some situations, however, full advantage can-
not be taken of reduced waste handling require-
ments. For example, if employees are permitted to
eat in their offices, the presence of food wastes may
require the daily servicing of wastebaskets. In other
situations, custodians may make only one trip per
shift to a central storage area, particularly if they
have other maintenance duties in a specific area
of the building. After a paper recovery program has
been implemented, they will continue to make
single trip, simply handling less waste.
Recovered Paper. Like mixed waste, source
separated paper must be collected on a regularly
scheduled basis. According to EPA studies, the time
required for the collection of separated paper
ranges from 6 to 8 hours per 1OO employees per
month, regardless of building size. The average
time requirement for all case study sites was 7 hours
per 1OO employees per month.
In many programs, the time requirement for the
collection of recovered paper was met using exist-
ing labor resources at no increase in cost. These
programs took advantage of either slack time
available within the facility's maintenance staff or
of custodial time by the reduced handling require-
ments for mixed waste.
Estimating Collection Requirements. The time
required to collect mixed waste and the recovered
high-grade wastepaper in the Jefferson Building
can be determined as follows:
Mixed waste before paper recovery: 44 hrs./
1OO employees/month x 1.8OO employees =
792 custodial hrs./month.
Mixed waste after paper recovery: 39 hrs./lOO
employees/month x 1,8OO employees = 7O2
custodial hrs./month.
Recovered high-grade waste paper: 7 hrs./
1OO employees/month x 1.8OO employees =
126 custodial hrs./month.
Total collection time after implementation of a
high-grade paper recovery program: 7O2 hrs./
month (mixed waste) + 126 hrs./month (recovered
paper) = 828 hrs./month.
Calculating Collection Costs. If a rate of $5 per
hour is assumed, monthly collection costs prior to
and after implementation of the paper recovery
program at the Jefferson Building can be com-
puted as follows:
Before paper recovery (first column):
Mixed waste: 792 custodial hours/month x $5/
hour = $3,96O/month.
Fully allocated after paper recovery (second
column):
Mixed waste: 7O2 custodial hours/month x $5/
hour = $3,51O/month.
Recovered paper: 126 custodial hours/month
x $5/hour = $63O/month.
Total fully allocated collection costs for mixed
waste and recovered paper (second column):
$3,51O + S63O = $4,14O/month.
Total actual collection costs for mixed waste
and recovered paper (third column):
If there will be no incremental change in total
solid waste collection costs (for mixed waste
and recovered paper) after implementation
of the paper recovery program, no effect on
collection activities can be accounted for in
estimating costs. Total monthly costs will re-
main at $3,96O per month.
Storage
Fully allo-
Before cated costs Actual costs
paper after paper after paper
recovery recovery recovery
Collection Labor
ฎS5/hr
-mixed waste S3.96O
- recovered paper
Total Collection S3.96O
Labor
$3,510
630
54,140
S3.96O
S3.96O
COLLECTION EQUIPMENT
Mixed Waste. A wide variety of equipment is used
to collect mixed waste in office buildings. This
equipment includes items such as wastebaskets,
barrels and gurnees, dollier, racks and hand-carts.
To estimate monthly or yearly costs for equipment
of this type, original costs are typically amortized
on a straight-line basis for a period of five years (6O
months) or longer, depending upon the antici-
pated useful life of the equipment.
Total original equipment costs averaged S6OO
per TOO employees at buildings studied by EPA.
38
-------
Based on 5-year amortization, monthly costs for
mixed waste handling equipment such as waste-
baskets, custodial carts, plastic bags, etc., aver-
aged $1O per 1OO employees per month. Thus, the
Jefferson Building would incur monthly equipment
costs of $18O prior to source separation (S1O/1OO
employees/month x 1.8OO employees = $18O/
month).
Recovered Paper. Equipment costs for imple-
menting a source separation program vary, de-
pending upon the collection technique, sales con-
tract type, (see page 9) and the degree to which
paper collection equipment requirements are met
using existing resources. One desk-top container is
required for each desk employee and one central
container is needed for every 2O to 25 employees.
Modifications of existing equipment or the pur-
chase of an additional handcart may be neces-
sary for collection of recovered paper. If all equip-
ment is purchased at the time of implementation in
the Jefferson Buiding the fully allocated cost would
be calculated as follows, based on a five year
straight-line amortization:
Desk top containers (1 per employee):
1.8OO containers x $1/container -r 6O months
= $3O/month.
Central collection containers (1 per 2O em-
ployees):
9O containers x $2/container -s- 6O months =
$3/month.
Handcart (1 for the building):
1 truck x $1 SO/truck -t- 6O months = $3/month.
Thus, total monthly equipment costs for the paper
recovery program would be $36 per month. Since
the desk-top containers, central containers, and
handcart are in fact additions to the Jefferson
Building's existing collection equipment inventory,
the fully allocated and actual costs are identical.
The equipment costs for mixed waste remain the
same.
Under a full service contract, desk-top containers
and central containers may be provided by the
sales contractor at no direct charge to the organ-
ization implementing the program. However, the
Jefferson Building would probably still need to pur-
chase an additional handcart for collection of re-
covered paper. Thus, under a full service contract,
the incremental cost at the Jefferson Building would
be only $3 per month for the purchase of the hand-
cart. In this case, the actual cost of collection
equipment would only increase to $183 per month
($18O + $3/month).
Fully alto- Incremental
Prior to cated costs after
paper after paper paper
Administration recovery recovery recovery
Collection Equipment
- mixed waste SO.1O/
employee/
month
- recovered paper:
desk-top con-
Si 8O
employee
central collection
containers @
1/2O employees
hand truck @ I/
1.8OO employees
Total Collection
Equipment
S18O
S18O
3O
3
3
$216
S18O
3O
3
S216
STORAGE REQUIREMENTS
Containers for Mixed Waste. Common methods
for accumulating general office wastes are loose
storage in trash rooms, storage in bulk or roll-off
containers, and densified storage in stationary
compactors. In most situations, storage equipment
(such as bulk containers and compactors) are pro-
vided by the waste hauling contractors as part of
their disposal service.
Office buildings can estimate expenses for the
storage containers they own by amortizing the ori-
ginal costs over an estimated life span. Most office
buildings, however, have no direct storage equip-
ment costs for mixed waste.
Storage Containers for Recovered Paper. Re-
covered paper is most often stored in pallet-size
boxes, canvas bags, or bulk containers. These are
provided by the paper purchaser in most cases.
Balers, however, are generally owned by the office
building unless special contract arrangements are
made. Unless paper generation rates are high
enough, baling may not be economically feasible
because of the associated capital and operating
costs (see page 19).
Handling Equipment. If recovered paper is pack-
aged in a palletized or baled form, a forklift or pallet
jack must be available for handling it and loading
it onto the contractor's trucks. In most cases, a por-
tion of the capital cost and operating expenses of
an existing piece of handling equipment are allo-
cated for handling packaged paper. Based on EPA
case studies, the fully allocated cost of a forklift
used to handle recovered paper is estimated to
be $3O per month for the Jefferson Building.
39
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Storage Space. The actual square footage ut
space needed to store both mixed waste and re-
covered paper varied considerably among fccili-
ties studied by EPA. This is due fo differences in col-
lection frequency and storage technique, which
range from non-compacting multiple containers
of 1.5 cu. yd. to large 4O cu. yd, stationary '.orn-
pactors.
As a result of this diversity, it wos not possible to
develop meaningful storage space estimates from
the case studies, it is recommended, therefore, that
individual organizations either measure or esti-
mate the amount of space presently used for stor
age of their mixed waste. This may involve measur -
ing the space required for a stationary compactor
or multiplying the number of smaii bulk containers
used by the container base) area. Estimates of the
amount of storage space required at the jeffr-'son
Building are based on storage techniques and cci-
lection frequencies felt to be representative for a
Duilding of its size
Mixed waste before paper recovery. High-rise
office buildings similar to the Jefferson Duilding
commonly use a stationary compactor with a vol-
ume of 3O cu. yds. requiring approximately 16O
sq ft. of space. At a cost of SO.3O per sq. fr. per
month, the cost of storage space fo> mixed waste
would be $48 per month at the Jefferson Building
(16O sq. ft. x $O.3O/sq. ft./mo.).
Infixed waste after paper recovery: '.^nerally,
Tii*ed waste storage space is not reduced after
paper recovery at buildings using .stutiono-y com-
pactors. However, the collection frequency or num-
ber of "pulls" per week may be reduced due to
decreased waste tonnages. This may result in dis-
posal cost reductions which are discussed in more
detail in the subsequent section on disposal costs
Office buildings using a multiple container mixed
waste storage system may be able to reduce the
number of containers and consequently storage
space requirements. One office complex studied
by EPA was able to reduce the number of mixed
waste containers (in this case 1.5 cu. yd. coi itainers)
from 22 to 16 after implementation of a paper re-
cover/ program. At the Jefferson Building however,
mixed waste storage space will not be reduced
after paper recovery program implementation due
to the use of a stationary compactor system
Recovered paper: The contact through which
the paper is sold will usually contain certain pro-
visions which determine the amount of storage
space needed. For example, many contracts re-
quire the accumulation of specified minimum ton-
noges before pickup The chart below indicates
square footage requirements at one and five ton
minimum accumulations for various storage alter-
natives.
Method of Storage
Tons
1
5
Pallets
4O sq.ft.
14O sq.ft.
Bales
2O sq.ft.
7O sq.ft.
Bulk
Containers
4O sq.ft.
16O sq.ft.
Other sales contract:; stipulate specific collection
frequencies or pickup days regardless of paper
generation rates. For instance, collection might be
required once a week c" every other Tuesday. Un-
der this type of provision, trie space requirements
wi!i depend on the amount of paper that is gener-
ated between the pickup days.
!' the amount of paper produced between pick-
up days is known (see page 14), space require-
ments fo: typical storage methods can be calcu-
lated using the dote presented below.
Pallets
Methods of Storage
Bulk
Sales Containers
SUe
Capacity
Approx sp-.
requirem :>
per unit
2.5 cu.yd. 6' x 3' x 3' 4 cu.yd.
l.SOOIbs. SOOIbs. 2.OOO Ibs.
2O sq.ft. 2O sq.ft. 3O sq.ft.
Recovered paper storage costs can be com-
puted for the Jefferson Building under both contract
provisions mentioned above. For example, under
a sales contract requiring 5 ton (1O.OOO Ibs.) min-
imum, pickups, up to 'I4O square feet of storage
space will be required prior to shipment if pallets
are used for storage (lO.OOO Ibs. * 1.5OO Ibs./
pallet x 2O sq. ft./pallet). Recovered paper storage
costs will be $42 per month (14O sq. ft. x $O.3O/sq.
ft./mo.).
However, if the sales contract requires pickup
once a week, only 6O sq. ft. of storage space will
be required using the pallet system. This figure is
based on an assumed weekly paper recovery rote
a* the Jefferson Building of 4.5OO Ibs. (9OO Ibs./
day x 5 days/wk.) which will require storage of three
pailefs before pickup (4,5OO Ibs./wk. * 1.5OO Ibs./
pallet). Storage costs in this situation will be $18 per
month (6O sq. ft. x SO JO/sq, ft./mo.).
4O
-------
Using the first example of a sales contract requir-
ing 5 ton minimum pickups, fully allocated costs for
the storage of both mixed waste and recovered
paper at the Jefferson Building would be S12O per
month (S48/mo. (mixed waste) + $42/mo. (recov-
ered paper)). Actual costs will remain the same if
no additional storage space and handling equip-
ment is purchased due to implementation of the
paper recovery program.
Storage
Fully allo-
Before cated costs Actual costs
paper after paper after paper
recovery recovery recovery
-containers (provided by contractors)
-equipment $ 3O
-space
mixed wasteฎ $48
16O sq.ft.
recovered paper
@14O sq.ft.
$48
$42
$48
$48
$120
$48
SOLID WASTE
ADMINISTRATIVE COSTS
The cost of administering office waste handling
systems is usually considered to be a general over-
head expense which is expressed as a percentage
of the costs of equipment, storage space, and
operating labor. Ten percent of the sum of these
three costs is the figure most commonly assumed
for estimating general overhead. For example, in
the Jefferson Building general overhead before
paper recovery would be $419 per month:
(S3,96O/mo. (labor) + $18O/mo. (equipment) +
$48/mo. (storage space)) x 1O% (overhead
rate) = $419/mo.
Due to the increase in labor, equipment and stor-
age space requirements after paper recovery, the
general overhead will increase to $488 per month
on a fully allocated basis, and $422 per month on
an actual cost basis:
Fully allocated: ($4,14O/mo. (labor) + $216/mo.
(equipment) + $12O/mo. (building space)) x
lO% = $448/mo.
Actual costs: ($3,96O/mo. (labor) + $216/mo.
(equipment) + $48/mo. (building space)) x
lO% = $442/mo.
All too often, the administrative requirements for
any type of solid waste handling program receive
low priority resulting in marginal system operations.
It is particularly important that this does not happen
with the paper recovery program. Additional over-
head expenses are estimated for the paper recov-
ery program in order to emphasize that supple-
mental administrative time must be spent on the
program to ensure its satisfactory operation. In
addition, the publicity and educational materials
which must be procured are considered to be an
overhead expense.
EPA studies indicate that successfully imple-
mented programs have required up to one man-
month per 5OO office employees for an initial per-
iod of approximately two months, and 5 percent of
one person's time thereafter for various on-going
administrative responsibilities. Great variations exist
in these requirements. For example, one person
working full time for one month may implement a
program in a large building of l.OOO to 2.OOO
workers. Full service contractors may provide up to
eight man-hours per 1OO employees administra-
tive assistance during program implementation;
this will tend to reduce in-house time requirements
depending upon how the program is implemented.
Although there was large variation between pro-
grams, EPA data indicate that, on the average, 1O
hours per 1OO employees are required for the im-
plementation phase of the paper recovery pro-
gram and 16 minutes per 1OO employees there-
after. * These averages are based on time require-
ments for buildings ranging in size from 5OO to
3.OOO employees. Time per 1OO employees re-
quired to manage the programs is comparable
for all buildings, regardless of size.
The amount of time required to implement and
manage the paper recovery program at the Jeffer-
son Building would be estimated as follows:
Implementation: 1.8OO employees x 1O hrs./
1OO employees = ISO hrs.
On-going implementation: l,8od employees
x 16 minutes/TOO employees/mo. = 5 hrs./mo.
Management costs after program implemen-
tation.- assuming a rate of $8/hr., the fully allo-
cated costs of on-going program administra-
tion would be $4O/mo. (5 hrs./mo. x $8/hr.).
*The figure includes initial employee publicity and edu-
cation as we/I as general administration time require-
ments.
41
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In most cases, the additional time required for
administration of the program can be absorbed by
the existing staff. Under these circumstances, no
impact would be made on the current operating
budget and no additional costs would be incurred.
COSTS OF PUBLICITY AND
EDUCATIONAL MATERIAL AFTER
PROGRAM IMPLEMENTATION
In EPA studies the fully allocated (and actual)
costs for publicity and educational material (post-
ers, notices, etc.) averaged $7 per 1OO employees
for program implementation and $1 per 1OO em-
ployes per month thereafter. Under a full service
contract, most of this material is provided and no
incremental costs for publicity would be incurred.
However, if the Jefferson Building is not selling its
paper under a full service contract, the on-going
cost of publicity and educational materials is esti-
mated to be $18 per month (S1/1OO employees/
mo. x 1.8OO employees).
Fully allo- Incremental
Prior to cated costs costs after
paper after paper paper
Administration
- general overhead
@ 1O% of labor,
equipment and
storage
- source separation
ฎ S8/hr.
- publicity and edu-
cation materials
Total Administration
recovery
$419
S419
recovery
S448
4O
18
S5O6
recovery
$422
18
S44O
WASTE DISPOSAL COSTS
Hauling and disposal is the final step in the mixed
waste handling process. Most facilities contract
with private hauling firms or receive municipal col-
lection service. In any case, this final process in-
volves the transportation of mixed wastes to local
disposal sites at regular intervals.
The cost of these hauling and disposal services
varies according to the number and size of storage
containers serviced, the frequency of pickups, and
local factors such as distance to the disposal site
and tipping fees.
In general, waste disposal charges are deter-
mined in one of the following ways:
A contracted weekly, monthly, or yearly flat fee
A fee for each "pull" of the waste storage con-
tainer or containers plus a fee for renting the
containers themselves.
A fee for each ton hauled.
The first two approaches are by far the most com-
mon in large office buildings. The 3O cu. yd. con-
tainer at the Jefferson Building for instance might
be "pulled" three times a week for a fee of S1OO
per pull plus S5O per month for rental of the com-
pactor; or a flat fee of Sl.OOO per month could be
charged regardless of the number of containers
pulled.
Actual disposal cost data should be used to com-
plete this analysis when available in a complete
and suitable form. However, for developing month-
ly disposal cost estimates before and after imple-
mentation of a paper recovery program, an aver-
age cost per ton based on EPA case studies repre-
senting all three approaches will be used. This will
greatly facilitate completing this analysis, because
a significant amount of effort may be required by
some organizations to develop meaningful cost
data from disposal contracts that greatly vary from
case to case.
Before Paper Recovery. In buildlings studied by
EPA, the hauling and disposal costs averaged be-
tween $25 to $3O per ton for general office build-
ings. These costs included the provision of contain-
ers or stationary compactors for waste storage.
Assuming that waste is being generated at a rate
of 1.55 Ibs. per employee per day and there is a
hauling and disposal charge of S27.5O per ton of
waste, the facility housing 1,8OO employees would
incur a monthly disposal cost of $844.
After Paper Recovery. The quantities of waste
diverted through the desk-top container source
separation program in office buildings range from
1O to 8O percent of the mixed waste streams on a
weight basis. The amount of paper diverted de-
pends upon the amount of high-grade paper pre-
sent in the waste stream and the percentage of
this amount actually recovered or "captured." As
discussed on page 2, bank and insurance facili-
ties generate considerably higher percentages of
high-grade wastepaper than general office build-
ings which partially explains the wide range of di-
version rates. Capture rates also vary depending
42
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upon how well the program is implemented and
operated.
There should be a thorough investigation of pos-
sible reductions in disposal costs that may be ef-
fected through the diversion of a significant per-
centage of the waste stream for recycling. For
example, an estimated 9OO Ibs. of wastepaper will
be diverted from disposal each working day at the
Jefferson Building. The municipality or the private
hauler providing the collection service should be
contacted and a reduction in hauling fees should
be negotiated to reflect the decreased quantity of
waste being handled. This may be done by reduc-
ing the number of containers in a multi-container
system or reducing the number of "pulls" if a single
large stationary compactor is used.
In the Jefferson Building for instance, the number
of container pulls might be reduced from three to
two times per week, thereby reducing monthly dis-
posal costs by S5OO. The EPA case study site that
reduced the number of 1.5 cu. yd. containers from
22 to 16 after implementation of a paper recovery
program reduced its disposal cost by S2OO per
month. In other cases, flat monthly rates can be re-
duced.
The average monthly disposal cost may not be
reduced in direct proportion to the reduction of the
waste stream tonnage flow. For instance, facilities
which dispose of bulky items such as wood pallets
and corrugated boxes may not significantly reduce
the volume of their waste if it is not compacted. As
a result, the storage and collection frequency re-
quirements would remain virtually the same, even
though the hauling weight would be reduced. In
addition, disposal cost reductions may be pre-
cluded by:
Existing contractual agreements with the
hauler and/or pricing mechanisms limiting the
negotiation of cost reductions based upon
flow reductions.
Complicated leasing arrangements which
prevent the negotiation of cost reductions in
rented buildings where the lessor has the re-
sponsibility for disposal contracts.
Assuming a recovery rate of O.5 Ibs. of paper per
employee per day (a waste diversion rate of 32 per-
cent) the reduction in average monthly waste dis-
posal costs for the Jefferson Building may be deter-
mined as follows:
Under a fully allocated approach taking maxi-
mum advantage of the waste flow diversion,
monthly costs would be reduced to $574 per
month since costs are reduced by $27O
($844/mo. x 32%):
$844/mo. - $27O/mo. = $574/mo.
However, in facilities studied by EPA, the disposal
cost was reduced, on the average, by half the per-
centage that the waste stream was reduced. For
example, if the weight of the waste stream was re-
duced by 4O percent after program implementa-
tion, a 2O percent reduction in disposal cost re-
sulted. This 2 to 1 ratio indicates an inability to fully
reflect the economic advantages of waste reduc-
tion for reasons cited above.
Taking this into consideration, the actual re-
duction in disposal costs will be $135 per mo.
for the Jefferson Building ($844/mo. x 16% dis-
posal cost reduction). The actual cost after the
paper recovery program is implemented is
$7O9 per month or $135 less than before pro-
gram implementation:
$844/mo. - $135/mo. = $7O9/mo.
Disposal
Fully allo-
Disposal costs cated costs Actual costs
prior to paper after paper after paper
recovery recovery recovery
-mixed wasteฎ
S27.5O/ton
$844
S574
S7O9
REVENUES
The most important factor in guaranteeing the
economic success of an office wastepaper recycl-
ing program is the amount of revenue that is de-
rived from sale of the recovered paper. This reve-
nue must offset any costs incurred by the program
for additional collection labor, equipment, and stor-
age space. The amount of money generated de-
pends upon many factors: the quqntity of paper
that is recovered, the level of contamination, trans-
portation costs, and the general state of the sec-
ondary paper market at the time of contract ne-
gotiation.
Any organization considering an office waste-
paper recycling program should conduct a market
43
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survey to determine the potential revenue. In many
cases, the local markets may be assessed by mak-
ing a few phone calls to local wastepaper dealers,
industry associations, or manufacturers utilizing
high-grade wastepaper (such as producers of off-
set printing, tissue, and copy papers). Large organi-
zations may have special departments or agencies
which handle contracting arrangements for waste-
paper sales, such as the General Services Admin-
istration in the federal government. These groups
should be contacted regarding price structure and
the provisions of existing contracts. As stated on
pagelO, a contract should stipulate a minimum
price and should cover a specified period of time.
Assuming a price of $6O per ton for recovered
paper, monthly revenues at the Jefferson Building
which recovers O.5 Ibs. per employee per day (9.9
tons per month) of white ledger would be $594.
(9.9 tons per month x $6O per ton). The revenue
produced by the paper recovery program is equal
under both the fully allocated and actual cost
accounting approaches.
Savings
Fully allo-
Priorto cated after Actual costs
paper paper after paper
recovery recovery recovery
-revenue
recovered paper
@ S6O/ton
S594
S594
NET SOLID WASTE
MANAGEMENT COSTS
Net solid waste management costs prior to paper
recovery are computed by adding the subtotaled
costs for collectiort labor, collection equipment,
storage, administration, and disposal. Net costs
after paper recovery program implementation are
computed by subtracting monthly paper sales
revenue from the total solid waste management
costs under both the fully allocated and actual
costs columns. The difference in the computed net
solid waste management costs under the fully allo-
cated and actual costs columns ($4,962 vs. $4,779)
is due to the Jefferson Building's ability to provide
collection labor, storage space and equipment,
and administrative time for program operation
without actual budget change. The Jefferson Build-
ing's ability to significantly reduce disposal costs
also resulted in a net solid waste management
cost reduction.
POTENTIAL SAVINGS
Potential savings after paper recovery program
implementation are computed by subtracting the
net solid waste management costs under the* fully
allocated cost ($4,962) and actual cost ($4,779)
columns from the net solid waste management
cost prior to paper recovery program implemen-
tation column ($5,451). Potential savings at the Jef-
ferson Building are $489 per month under the fully
allocated cost approach and $672 under the
actual cost approach.
Fully allocated: $5,451 - $4,962 = $489
Actual: $5,451-$4,779 = $672
CONCLUSIONS
Implementation of a high-grade paper recovery
program that will result in savings comparable to
the Jefferson Building can be accomplished through
proper administration on the part of the imple-
menting organization and through the cooperation
of all employees. The case studies serving as the
basis for the development of data for this cost
analysis did this by:
Designating a capable Program Coordinator.
Establishing an appropriate lon'g-term mar-
keting arrangement (i.e., a contract).
Developing and implementing a reliable col-
lection system.
Conducting an effective employee publicity
and education campaign.
Source separation and recycling of high-grade
paper helps to conserve a resource with significant
economic and environmental value. At the same
time, it effectively reduces solid waste quantities
generated by office buildings which, in turn, re-
duces building management costs. High-grade
paper recovery programs can achieve high levels
of participation and reduce building management
costs significantly by systematically following the
implementation and administrative procedures
described in this manual.
44
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SAMPLE SOLID WASTE MANAGEMENT COST ANALYSIS FORMAT ($/MONTH)
1,800 EMPLOYEES GENERAL OFFICE BUILDING
Contributing Factors
Prior to paper
recovery program
implementation
Fully allocated costs
after paper recovery
program implementation
Actual costs after
paper recovery
program implementation
COSTS
Collection Labor
mixed waste @ S5/hr
recovered paper @ S5/hr
Subtotal Collection Labor
Collection Equipment
mixed waste @ $10/100
employees/month
recovered paper:
desk-top containers
ฎ 1/employee
central collection
containers @ 1/20
employees
hand truck @ 1/building
Subtotal Collection Equipment
$3,960
$3,960
180
$ 180
$3,510
630
$4,140
180
30
3
3_
$ 216
$3,960
$3,960
180
30
3
3_
$ 216
Storage
containers
equipment
space
mixed waste @ 160
sq ft x $0.30/sq ft/
month
recovered paper @ 140
sq ft x $0.30/sq ft/
month
Subtotal Storage
Administration
general overhead @
10% of labor, equipment
and storage
source separation
administration @ 15
min/100 employees/month
x $8/hour
publicity and education
materials @ $1/100
employees/month
Subtotal Administration
$ 48
$ 48
$ 419
$ 419
$ 30
48
42
$ 120
$ 448
40
18
$ 506
$ 48
$ 48
$ 422
18
$ 440
Disposal
mixed waste @ $27.50/ton
Total Solid Waste Management
Costs
SAVINGS
Revenue
recovered paper @ $60/
ton x 9.9 tons/month
Net Solid Waste Management
Costs
POTENTIAL SAVINGS
$ per month
$ 844
$5.451
$5.451
$ 574
$5,556
$ 594
$4,962
$ 489
$ 709
$5,373
$ 594
$4,779
$ 672
45
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APPENDIX A
MATERIALS RECOVERY GUIDELINES FOR
SOURCE SEPARATION (4OCFR Part 246)
Subpart BRequirements and
Recommended Procedures
ง 246.200 High-grade paper recovery.
ง 246.200-1 Requirement...
High-grade paper generated by office
facilities of over 100 office workers shall
be separated at the source of genera-
tion, separately collected, and sold for the
purpose of recycling.
ง 246.200-2 Recommended procedures:
High-grade paper recovery from
smaller office*.
The recovery of high-grade paper gen-
erated by office facilities of less than 100
office workers should be investigated in
conformance with the following recom-
mended procedures and implemented
where feasible.
ง246.200-3 Recommended procedure*:
Market study.
An investigation of markets should be
made by the organization responsible for
the sale of recyclable materials in each
Federal agency and should Include at a
minimum:
(a) Identifying potential purchasers
of the recovered paper through standard
market research techniques;
(b) Directaly contracting buyers, and
determining the buyers' quality specifi-
cations, the exact types of paper to be re-
cycled, potential transportation agree-
ments and any minimum quantity cri-
teria; and
(c) Determining the price that the
buyer will pay for the recovered paper
and the wllllngess of the buyer to sign
a contract for purchase of the paper at a
guaranteed minimum price.
ง 246.2004 Recommended procedures:
Levels of separation.
A two-level separation Is recommended
for most facilities This separation should
consist of (a) high-grade wastepaper
and (b) all other waste. Facilities that
produce large enough quantities of waste
computer paper and cards to make their
sepaiauon into a separate category cost
effective may choose to implement three
levels of separation1 (1) computer
papers, (2) other high-grade papers, <3>
all other wastes.
ง 246.2005 Recommended procedures:
Method? of separation and collection.
(a) Systems designed to recover high
grades of office paper at the source of
generation. 1 e , the desk, are the desk-
top system, the tuo-wastebasket system,
and the office centralized container sys-
tem.
(b) With the desk-top system, recycla-
ble paper is placed by the generator in
a container on his desk, while other waste
is placed m a wastebasket With the two-
wastebasket system, recyclable paper is
placed by the generator in one desk-side
wastebasket, and all other waste is placed
in another. In the centralized container
system, large containers for the collec-
tion of recyclables are placed in cen-
tralized locations within the office areas
of the building. Nonrecyclable waste Is
placed in desk-side wastebaskets
(c> The recommended system is the
desk-top system because it Is designed to
maximize recovery of high value materi-
al in an economically feasible manner.
While the two-wastebasket system and
centralized container system have been
implemented with success in isolated in-
stances, data indicate that, on the whole,
these systems have experienced high lev-
els of contamination, low levels of par-
ticipation, and low revenues. The desk-
top system has been designed to mini-
mize these problems.
-------
An investigation of maikets should be
made for each material by the organiza-
tion responsible for sale of recyclable
materials in each agency and should in-
clude at a minimum
(a) Identifying potential purchasers
of the recovered material through stand-
ard market research techniques
Directly contacting buyers and
determining the buyers' quality specifica-
tions, potential transportation agree-
ments and any mini.njm quantity
criteria
(c) Deteimlning the piices that the
buyer will pay for the recoveied mateiial
and the willingness of the buyer to sign
a contract for the purchase of the mate-
rial at guaranteed minimum puces.
ง 246.2015 Recommended proceriure*:
Methods of separation and collection.
Following separation within the home,
any of the following methods of collec-
tion may be used:
(a) Materials may be placed at the
curbside by the resident and may be
collected from each household using
LOMiat'j tiuclrs 01 compai tmentalized
vehicle^
(b) Fin multi-family dwelmgs, sepa-
rated materials may be placed in bulk
containers located outside of the build-
ing end collected by trucks dispatched to
collect recyclables
(c) Collection stations m.iy be set up at
convenient location1 tj v.hich residents
brinT rec5Clables These stations should
piovidc sepal ate tu'k containers for each
it;m to be recycled The size and type of
container will depend on the volume and
type of material collected, the method of
trans citation to be used in hauling the
materials to maikct and the frequency
of temoval.
ง216.201-6 Rrciimmendid pt.xedurc-:
Trail-jMirl.ition to market.
Transportation to market mav be sup-
plied by the facilily or the community
gene, atm-,' the waste, by a private
hauler, 01 by the purchaser
ง 2 (6.201-7 Ri - niniiK ndcd pro. cdurc- .
Co-i;in,ii..i-.
After potential markets have been lo-
cated (but prior to initiation of formal
bidding procedures', preliminary deter-
minations of various separation methods,
storage and transportation costs have
been marip, and e~timatcd tonnages of
both leeoveiable mateiials and residual
solid waste have been established, an
analysis should be conducted which com-
pares the costs of the present waste col-
l^ction pnd disposal .svstem with the pro-
rcscd segregated systems At a minimum
this study should include all capital,
operating anl oveihead costs and take
into account credits for icvcnue from
purer sales and savings from diverting
locycled materials from disposal Poten-
tial costs to upgrade collection and dis-
posal practices to comply with EPA's
Guide-lines foi the Storage and Collection
of Residential. Commercial and Institu-
tional Solid Wastes (40 CPR Part 243>
and Thermal Processing and Land Dis-
posal Guidelines (40 CFB Parts 240 and
241) should be included In the analysis.
In formulating a separate collection sys-
tem and evaluating its costs, every
cffoit should be made to use idle equip-
ment and underutilized collection man-
power to reduce separate collection costs.
This cost analysis should enable the
facility to determine the most cost effec-
tive method if implementing the require-
ments of this part
ง246201-8 Recommended procedure*:
Contract8.
Formal bids should be requested for
purchase of the recovered materials,
such bids being solicited in conformance
with bidding piocedures established for
the responsible jurisdiction Contracts
rial will be accepted for one year or more
should include the buyer's quality speci-
fications, quantity and transportation
agreements, a guarantee that the mate-
ancl a guaranteed minimum purchase
UliCC
ง216.201-9 Recommended proซdurc-:
Public information and education.
A well organized and well executed
public information and education pro-
giam explim>ng the justification, goals.
methods and level of separation should
be conducted to infoim and motivate
householdeis and to secure their coop-
eration in separating their waste This
public information and education pro-
gram should precede the progiam and
continue on a regular basis for its du-
lation
ง 216.202 Corrugated container rcco>-
cry.
ง216.202-1 Requirement.
Any commercial establishment gener-
ating 10 or more tons of waste corrugat-
ed containers per month shall pepaiately
collect and sell this materif 1 for the r-ui -
pose of recycling
ง 246.202-2 Rccomm. ndcd procedure-:
Corrugated cont.liner recover* from
smaller commercial f jcililic*.
Th3 recovery of corrusated cortamcrs
from commercial facilities generating
less than 10 tor.s per month should be
investigated in conformance with the
following recomme -ded procedures and
implemented where feasible
ง246.2023 Recommended procedure-:
Market study.
An lnvertignticn of markets should be
mpde by the organization responsible for
sale of recyclable material in each Fed-
eral agency and should include at a
mmimum
'a) Identifying potential purchasers
of the recovered corrugated thiough
standard market research techniques
(b> Directly contacting buyers and de-
termining the buyers' quality specifica-
tions potential transportation agiee-
ments and any minimum quantiti cn-
tci la.
and Thermal Processing and Land
Disposal Guidelines (40 CFB Parts 240
and 241) should be included in the
analysis. This cost analysis shoujd en-
able the facility to determine the most
cost effective method of implementing
ihe^e guidelines.
ฃ 2 16.202 7 Recommended procedure-:
K-lahli-limenl of purchase eontraet.
Foimal bids should be requested foi
puicha.se of the recovered materials,
such bids being solicited in conformance
with bidding procedures established for
the responsible agency Contracts should
include the buyer's quality specifications,
transportation agreements, a guarantee
that the mateiial will be accepted for
one year or more and a guaranteed mini-
mum purchase price.
ง216.203 Rcoalualiou.
ง216.203-1 Requirement.
Agencies in which facilities make the
determination not to comply with these
guidelines must conduct the required
analysis and report in accordance with
ง246100 (el or (f). as appropriate,
yearly.
FEOCPAL RESISTED. VOl 41, NO 80
FRIDAY, APRIL 23, 1976
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APPENDIX B
General Services Administration
Sample Bid Specification Provisions
Technical provisions of the GSA bid specification for the sale of office wastepaper generated
through source separation programs are presented in this appendix. General provisions not relating
specifically to source separation program requirements are excluded from this sample. Regional
GSA sales offices should be contacted for information on the complete set of provisions included
in the Bid specifications.
SCOPE OF CONTRACT
This invitation is for bidders who wish to submit bids for the purchase of accumulations of surplus
personal property consisting of high-grade wastepaper which is generated in the daily operation
of QDvernment facilities and source separated through a recycling program provided by the bidder
as specified herein, from the (buildings' names, addresses, and approximate number of employees)
during the period (or date of award, whichever is later) through . Award under
this invitation does not grant the successful bidder exclusive rights to all wastepaper products
generated in any award location. Nothing herein shall be construed as requiring the disposal here-
under of new and additional grades of wastepaper developed during the period of this contract. Es-
timated tonnage of the offered wastepaper is based on the best available information to the Govern-
ment at the time of this invitation. The Government does not guarantee these estimates and payment
must be made on the actual tonnage delivered.
SPECIAL SALE TERMS AND CONDITIONS
1. RECYCLING PROGRAM
Bidders are responsible for developing and implementing a complete program for the recovery of
source separated high-grade wastepaper generated in the daily operation of Government facilities
included in this invitation.
Contractor Responsibilities
Under this program, the contractor agrees to provide:
a. A written plan to include a description of the procedures for ana tht uecnnical assistance
to be provided in establishing and maintaining a desk-top source separation system in accordance
with the requirements of this invitation. Such procedures and assistance shall include an
employee publicity and educational program consisting of training sessions utilizing visual aids,
written materials, and other educational devices. Such training sessions shall be scheduled for
presentation to participating Government personnel, as soon as feasible after date of award and
no later than thirty (30) days after the beginning date of the contract period, subject to the
approval and coordination of the Government. Wastepaper will not be collected prior to the
training sessions and delivery and distribution of the desk-top collection receptacles and the
collection and storage containers described below.
b. Desk-top collection receptacles for each employee. The receptacles shall be fabricated from
plastic of a quality suitable for the intended use. The receptacles shall be designed with a base
and two upright sides. The two ends and the top shall be open to permit paper to be placed between
the uprights. The receptacles may be one, piece formed as,above or may be formed by using two
interlocking sections. The paper receptacles shall be sufficiently stable to permit one unwrapped
ream of bond paper to be placed in the receptacle without tipping over. Maximum outer dimensions
shall be 8-1/4" x 4-1/4" x 7'l/2" (length, width, height). The interior capacity of the receptacle
shall be not less than 2-1/4 inches. The color of the receptacle shall be either black, beige
or white. The receptacles shall have no sharp edges or projections which might cause injury or
might scratch or mar desk-top surfaces. A brief description of acceptable white paper and unaccep-
table items shall be clearly indicated on each receptacle (see note under (e)).
c. Central collection containers for every twenty (20) employees. The containers shall be fabri-
cated from corrugated fiberboard, single wall variety, of a quality suitable for the intended use.
The containers shall be of a top-loading box design and solid in color. Top flaps are not required,
however, if the containers provided have top flaps, they will be folded inward to provide an open
top. Maximum outer dimensions shall be 18" x 12" x 12" (length, width, height). Minimum outer
dimensions shall be 16" x 10" x 10". The containers shall have no projections which might cause
injury and shall be clearly labeled for use only in the recycling program for the accumulation o^
high-grade wastepaper (see note under (e)).
d. Storage containers for use in the designated storage area for storage prior to removal by the
contractor. Containers may consist of pallet size boxes, 4' x 4' x 5' (and pallets), fiberboard
cartons, canvas hampers, or any other container which meets the approval of the Contracting
Officer (see note under (e)).
48
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e. In the event that manila tabulating cards are included as a subitem under this contract (see
Bid Page(s), pgs. ), separate central collection containers (e.g., hampers or boxes located
in a computer room) and separate storage containers will be required for the accumulation of such
tab cards source separated at data processing or similar facilities.
Note: Additional desk-top collection receptacles, central collection containers, storage con-
tainers, storage containers, and any necessary equipment (e.g., pallets) shall be provided at the
contractor's expense within five (5) working days of notification by the Government in the event
of theft, breakage, loss, or the addition of new employees. The contractor will be responsible,
subject to the approval of and coordination with the Government, for delivery and distribution of
the receptacles, containers, and any necessary equipment at the start of the program and as required
during the term of the contract, and for removal of same at the termination of this contract. All
receptacles, collection containers, storage containers, and other necessary equipment remain the
contractor's property.
f. Necessary labor and equipment, which may include banding and/or palletizing, to prepare waste-
paper for removal from the designated storage area to the contractor's truck.
g. Necessary labor and equipment to remove wastepaper from the designated storage area and to load
wastepaper into the contractor's truck at the loading dock.
Government Responsibilities
Under this program, the Government agencies occupying and/or operating the facilities covered by
this contract agree to provide:
a. A program coordinator for each facility, and time and location for the training of all partici-
pating employees subject to the approval of the program coordinator.
b. A designated storage area(s) in each facility, in the vicinity of the loading dock(s), for the
storage of the accumulated source separated wastepaper prior to pickups by the contractor.
c. Labor and equipment associated with moving wastepaper within the building and delivery of
the wastepaper (including manila tabulating cards, if included as a subitem under this contract,
source separated to the extent feasible at data processing and similar facilities and not mixed
with desk-top collected white ledger) to the designated storage area.
2. REMOVAL OF PROPERTY
If this contract covers more than one grade (subitem) of wastepaper, the contractor is required to
remove and weigh each grade of wastepaper separately. It is recognized that benefits for the
contractor depend on the quantities to be picked up. Government facilities participating in this
sale are required to have available for pickup at least a truckload of one grade of wastepaper
based on their best estimate, before calling contractor for removal, but the contractor is not
required to remove the wastepaper upon call as specified herein if the amount of wastepaper does
not equal at least 80% of a truckload quantity. However, the contractor has the option of pick-
ing up smaller quantities of wastepaper with the consent of the Government.
3. PRE-AUARD INSPECTION
To be considered for award, bidder must be regularly engaged in the wastepaper removal or paper
recycling business, or if newly entering the field, he must furnish evidence that all necessary
prior arrangements (written commitments) for supplies, equipment, and personnel have been made.
The bidder's facilities, equipment, recycling program, receptacles and containers, and financial
responsibility, including those of contemplated subcontractors, will be subject to pre-award
inspection. If requested by the Contracting Officer, bidders will submit, within two (2) weeks
after the date of such request, a copy of the bidder's written plan and publicity and educational
materials described in paragraph (a) of the clause entitled "Recycling Program," two samples of
the receptacles and containers described in paragraphs (b) and (c) of that clause, and a descrip-
tion of the container(s), any necessary equipment, and the method of removal from the storage areas
referred to in paragraphs (d), (c), (f), and (g) of that clause, in order to assist the Contracting
Officer in determining the bidder's responsibility. A bidder may be rejected as nonresponsible
if it is determined that the bidder fails to meet the minimum standards for responsible prospective
contractors contained in 41 CFR 1-1.1203.
4. METHOD OF AUARD
The contract will be awarded to that responsible bidder whose bid conforming to the invitation will
be most advantageous to the Government, price and other factors considered. Award will be made by
service area, at the highest return to the Government, on the basis of the best single dollar
figure bid per ton, either as a reduction from or addition to the full average market price, as
determined under the clause entitled "Method of Establishing Monthly Billing Prices." In order
49
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to be considered for an award, the bidder must insert a plus ( + ) dollar figure (e.g., +$5.00),
and those desiring to bid below full average market price will enter a minus (-) dollar figure
(e.g., -$10.50). If the word "net" is entered as the bid, it will be interpreted as "0." In
the absence of either a numerical figure, or the word "net," or "0," the bid will be deemed a "No
Bid" for that service area. A written award mailed (or otherwise furnished) to the successful
bidder within the time for acceptance provided in the invitation shall be deemed to result in a
bidding contract without any further action by either party.
5. METHOD OF ESTABLISHING MONTHLY BILLING PRICES
Monthly billing prices shall be established by using the average of the highest prices quoted for
White Ledger for the (Area) Market, and, if included as a subitem in this contract, for Manila Tab
Cards for the (Area) Market in those issues of the "Official Board Market,"* (published by the
Board Products Publishing Company, 228 LaSalle Street, Chicago, Illinois) dated within the month in
which the paper was removed. The prices which the successful bidder will pay the Government per
ton for each subitem (grade) of wastepaper removed during a calendar month shall be determined by
adding or subtracting the (plus, minus, or "0") dollar figure bid per ton, entered in the appro-
priate space on the Bid Page(s), (pg(s) ) to or from (as appropriate) the average price
stated above for White Ledger (and, if applicable, for Manila Tab Cards), as illustrated in the
example below. IN NO EVENT SHALL THE MINIMJM PRICE TO BE PAID TO THE GOVERNMENT FOR WASTEPAPER
DISPOSED OF UNDER THIS CONTRACT BE LESS THAN $30 PER TON.
*If for any reason the publication, "Official Board Market," becomes unavailable, a source of
information acceptable to the Contracting Officer and the contractor shall be used as a basis for
determining the prices to be paid for wastepaper purchased and removed under this contract.
EXAMPLE OF METHOD USED TO COMPUTE MONTHLY BILLING PRICE
If the dollar figure quoted was minus (-) $10.50 from the full average market price, the price
paid to the Government for White Ledger paper removed during a hypothetical month of October would
be computed as follows (if Manila Tab Cards are included as a subitem under this contract, separate
computations would be made to determine the price to be paid for that grade of paper):
Issue published October 7 $ 95.00 per ton
Issue published October 14 $ 95.00 per ton
Issue published October 21 $ 95.00 per ton
Issue published October 28 $100.00 per ton
$385.00 - 4 (number of issues of the publication during
the month) = $96.25 average price.
$96.25 minus $10.50 equals $85.75 (Price to be paid to the Government).
Note: Dollar figures are rounded to nearest cent.
BID PAGE
.BIDDING, SEE "METHOD OF AWARD" CLAUSE . . .
The tonnage of wastepaper stated below for each category of wastepaper represents the Government's
best estimate of the per month amount to be generated. The Government does not guarantee the
estimates and payment must be made on the actual tonnage delivered.
Service Area: .
Location of Property: (Buildings' names, addresses, custodian Bid Quotation
telephone No. Government scales available at .) (+ or - dollar figure
per ton, or "net" or "0")
1. High-Grade Wastepaper as follows: $
a. White Ledger, as defined under the clause entitled (indicate) (indicate dollar
"Special Definitions," source separated using desk-top figure per ton,
collection receptacles, and stored in accordance with the terms or "net" or "0")
and conditions of this contract, estimated to total ton(s)
monthly.
A single bid must be made for all high-grade wastepaper in the form of a dollar figure (plus,
minus, or "net" or "0") in accordance with the clause entitled "Method of Award." This dollar
figure will be applied to the full average market price for each subitem in accordance with the
clause entitled "Method of Establishing Monthly Billing Prices."
If the bidder has any questions or need for clarification regarding any part of this invitation,
the bidder must contact General Services Administration, Region b_, Federal Supply Service,
Personal Property Division, etc., Telephone No. , prior to the time set for bid
opening.
5O
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6. SPECIAL DEFINITIONS
(1) White Ledger, as used herein, consists of all white sheets and shavings of untreated ledger
bond, writing papers, and other hard papers'which have similar fiber content, and must be free of
solid color printing. This grade may contain sulphite peper containing a trace of groundwood.
For purposes of this bid, it also may include manila tabulating cards and computer printout which
are not separated at data processing and similar facilities. Outthrows are not to exceed 2.0% of
the boxed weight less skid weight. Prohibitive materials are not permitted.
(2) Tabulating Cards, Manila, as used herein, consist of printed manila-colored cards, predominantly
sulphite or sulphate, which have been manufactured for use in tabulating machines. This grade
may contain manila-colored tabulating cards with tinted margins but may not contain beater or
calendar-dyed cards in excess of 1/2 of 1%. Outthrows are not to exceed 2.0% of the bosed weight
less skid weight. Prohibitive materials are not permitted.
(3) Outthrows, as used herein, consist of all papers that are so manufactured or treated or are in
such a form as to be unsuitable for consumption as the grade specified.
(4) Prohibitive Materials, as used herein, consist of any materials which by their presence in an
accumulation of wastepaper, in excess of the amount allowed, will make the accumulation unusable
as the grade specified; and any materials that fnany be damaging to equipment.
(5) Ton(s) and tonnage, as used herein, refer to net short tons of wastepaper.
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APPENDIX C
WASTE COMPOSITION
SAMPLING PROCEDURE
1. Separate a representative mixed waste sample
of about 5O Ibs. from a collection cart or stor-
age bin placing it in a container of known vol-
ume and weight.
2. Weigh the sample and estimate the volume
(cubic feet or yards). Example:
Estimated volume of the sample = 2.5 cu.ft.
(O.O9 cu.yd.).
Gross sample weight 35.6 Ibs.
- container weight 1.0 Ibs.
Net sample weight 34.6 Ibs.
3. Compute density (lbs./cu. yd.) by dividing net
sample weight (Ibs.) by estimated sample vol-
ume (cu. yds.):
34.6 Ibs. + O.O9 cu. yds. = 384 lbs./cu. yd.
4. Divide the sample into components listed in the
following waste generation and composition
tally sheet, placing each material in a corru-
gated box or other container whose empty
weight has been recorded.
Weigh each box separately and subtract the
container weight to obtain the net material
weight.
Compute the percentage of total weight rep-
resented by each material.
These four steps should be repeated several
times in order to develop valid density and com-
position averages.
Total
Sample Weight 34.6 Ibs.
Paper
White ledger
Colored ledger
Computer tab cards
Computer printout
Newsprint
Corrugated
Books
Cardboard files
Other
Garbage
Metals and Glass
Textiles, Plastics,
and Wood
Special
TOTAL
Ib.
13.9
1.1
O.2
3.6
4.3
1.9
O.6
O.8
3.O
1.1
1.7
O.4
1.3
34.6
%
4O.2
3.3
0.7
1O.6
12.5
5.6
2.O
2.5
8.9
3.3
5.1
1.6
3.8
1OO.1
5. Once the average density and composition are
known, various conclusions can be drawn.
a. Multiplying the density by the cu. yd. disposed
of each month yields an estimate of total
monthly solid waste generation.
b. Using composition percentages, the total gen-
eration can be broken down into individual
material groups to give an indication of the
quantities of high-grade paper in the waste-
stream.
Compactor
Capacity
40 cu yd
Number Emptied
per Month
4
% Full
When Emptied
100%
cu yds/
Month
160
384 Ibs/cu yd x 160 cu yd/month = 61,400 Ibs/month or 30.7 tons/month.
Type of High-
Grade Paper
White ledger
Tab cards
Computer
printout
Total Waste % of Paper in the
Generation x Wastestream -
30.7 tons/mo x
30.7 tons/mo x
30.7 tons/mo x
40.2%
0.7%
10.6%
Generation
= of Paper
= 12.3 tons/mo
= 430 Ibs/mo
= 3.2 tons/mo
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APPENDIX D
PAPER GRADE DEFINITIONS * f
White Ledger
No. 1 sorted white ledger consists of printed or un-
printed sheets, shavings, and cuttings of white sul-
phite or sulphate ledger, bond, writing, and other
papers which have a similar fibre and filler content.
This grade must be free of treated, coated, padded,
or heavily printed stock.
Prohibitive materials t - None permitted.
Total outthrows * * - May not exceed 2%.
All white paper with black ink is typically high-
grade white ledger. There are two kinds of paper
that qualify as white ledger:
Sulphites - lightweight office papers (bond,
Xerox paper, onion skin).
Sulphates - heavy white or colored papers
used most commonly in mailing (envelopes,
business cards, report covers).
Most office papers are sulphites, although there
are a few low grade office papers which are con-
sidered in the news or a mixed category because
of the ground wood content. These are contami-
nants in high grade stock.
Other forms of white ledger are the blue and
green striped computer printouts and non-glossy
pages of books and magazines.
Colored Ledger
No. 1 sorted colored ledger consists of printed or
unprinted sheets, shavings, and cuttings of colored
or white sulphite or sulphate ledger, bond, writing,
and other papers which have a similar fibre and
filler content. This grade must be free of treated,
coated, padded, or heavily printed stock.
Prohibitive materials - None permitted.
Total outthrows - May not exceed 2%.
Sorted Brown Kraft. Consists of baled clean sort-
ed brown kraft papers free from twisted or woven
stock, sewed edges, and heavy printing.
Prohibitive materials - None permitted.
Total outthrows - May not exceed 2%.
"Pioneer Paper Stock Division of Container Corpora-
tion of America
tPaper Stock Standards and Practices, Circular PS-74,
Paper Stock Institute of America, January 1, 1974
^Prohibitive materials a) Any materials which by their
presence in a packing of paper stock, in excess of
the amount allowed, will make the packing unus-
able as the grade specified b) Any materials that
may be damaging to equipment
* "Outthrows Outthrows shall be understood to be all
papers that are so manufactured or treated or are
in such form as to be unsuitable for consumption
as the grade specified
Contaminants
Anything other than the material tolerances spe-
cified in each grade is considered a contaminant.
Most paper buyers reject contaminated loads or
lower the purchase price to a mixed grade to com-
pensate for the extra separation entailed.
Envelopes with windows not made of cellophane
are contaminants. Metal in the form of staples and/
or paper clips is allowable in minor amounts (a ton
of envelopes with paper clips on each is consid-
ered a contaminated load).
Domestic markets will accept mixed white and
colored computer paper; foreign markets cannot.
Magazines are high in clay content and are con-
sidered low grade. Books with bindings are glue
intensive and are contaminants - although without
binding, most books (not including glossy) are high-
grade white.
Any paper that is a sulphate or a sulphite paper
that is other than white is considered colored ledger.
Generally, any paper that is white (sulphate or sul-
phite) with other than black ink is also considered
colored ledger. Natural kraft envelopes are speci-
fied in a separate category but may be mixed with
colored ledger in small amounts. Blueprints are ac-
cepted as colored ledger if less than 2O percent of
the whole amount being marketed. Computer print-
outs with colors other than blue and green stripes
are considered colored ledger. Similar to the white
ledger grade, ground wood content is considered
a contaminant in colored ledger.
Tab Cards
Colored tabulating cards consist of printed col-
ored or manila cards predominantly sulphite or sul-
phate which have been manufactured for use in
tabulating machines. Unbleached draft cards are
not acceptable.
Prohibitive materials - None permitted.
Total outthrows - May not exceed 1%.
Manila tabulating cards consist of printed manila-
colored cards, predominantly sulphite or sulphate,
which have been manufactured for use in tabulat-
ing machines. This grade may contain manila-col-
ored tabulating cards with tinted margins.
Prohibitive materials - None permitted.
Total outthrows - May not exceed 1%.
Manila folders are included in these categories.
Other Wastepaper Categories
No. 1 News. Consists of baled newspapers con-
taining less than 5% of other wastepapers.
Prohibitive materials - May not exceed Vi of 1%.
Total outthrows - May not exceed 2%.
Corrugated. Consists of baled corrugated con-
tainers having liners of either jute or kraft.
Prohibitive materials - may not exceed 1%.
Total outthrows - May not exceed 5%.
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