United States          Office of Water &        SW - 791
Environmental Protection      Waste Management       October 1979
Agency             Washington D.C. 20460
Solid Waste	

Developing A State

Resource Conservation


and  Recovery  Program

-------
DEVELOPING A STATE RESOURCE CONSERVATION
          AND RECOVERY PROGRAM
  This report (SW-791) was written by
            David A. Gavrich
  U.S.  Environmental Protecton Agency
                  1979

-------
     An environmental protection  publication (SW-791)  in the  solid waste
management series.  Editing and technical content of this  report  were the
responsibilities  of  the   State Programs  and  Resource  Recovery  Division
of the Office of Solid Waste.

    Single copies  of   this   publication  are available  from   Solid Waste
Information, U.S. Environmental Protection  Agency,  Cincinnati,  Ohio 45268.

-------
                                  CONTENTS
PURPOSE 	  1

BACKGROUND 	  1

REQUIREMENTS FOR STATE RESOURCE CONSERVATION AND RECOVERY PROGRAMS	  2

ELEMENTS OF A STATE RESOURCE CONSERVATION AND RECOVERY PROGRAM 	  4

A.  DEVELOPMENT OF A LEGISLATIVE BASE 	  4
    (1)  Analysis of Existing Laws 	  4
    (2)  Removal of Legislative Barriers 	  5
         (a)  Laws that restrain contract length 	  5
         (b)  Laws requiring split-bidding 	  5
         (c)  Laws requiring acceptance of the lowest bidder 	  5
         (d)  Statutory ceilings on amounts of pollution control
               revenue bonds 	  6
         (e)  Public utility regulations or policies 	  6
         (f)  Laws restricting the movement of solid waste 	  6
    (3)  Expansion of Legislative Authority 	  7

B.  MARKET ASSESSMENT AND DEVELOPMENT 	  9
    (1)  Assessment of Existing and Potential Markets 	  9
    (2)  Stimulation of Existing Markets 	  9
    (3)  Creation of New Markets 	 11

C.  POLICY DEVELOPMENT AND PROJECT PLANNING 	 13
    (1)  Promulgation of State Resource Recovery Policy 	 13
    (2)  Statewide Resource Recovery Project Planning 	 13
    (3)  Intergovernmental Cooperation 	 14

D.  ASSISTANCE AND EDUCATION 	 16
    (1)  Technical Assistance 	 16
    (2)  Financial Assistance 	 16
    (3)  Public Information 	 17
    (4)  Training and Education 	 18
    (5)  Public Participation 	 18

E.  PROGRAM MANAGEMENT 	 19
    (1)  Statewide Monitoring and Evaluation 	 19
    (2)  Ongoing State Program Analysis 	 19

-------
            DEVELOPING A STATE RESOURCE CONSERVATION

                      AND DEVELOPMENT PROGRAM
PURPOSE

     This publication defines the functions and activities
which the U.S. Environmental Protection Agency suggests be
incorporated into a State Resource Conservation and Recovery
Program.
BACKGROUND

     The Resource Conservation and Recovery Act (RCRA),
Public Law 94-580, mandates that each State develop a
comprehensive solid waste management plan.  The Act further
directs that this plan address all areas of solid waste
management, including resource conservation and recovery.
EPA recognizes the consequent need for practical guidance to
States on what they can and should do to develop resource
conservation and recovery plans and programs.  This document
is designed to meet that need, and to guide States in determining
what their roles should be in resource recovery, and in
choosing activities which best fulfill those roles.

     Since States vary greatly in their characteristics and
in their potential for implementing resource recovery, this
guide has been made as flexible as possible.  For example,
the "Technical Assistance" section does not suggest a
process by which each project in a State should be planned
or designed.  Instead, it stresses the basic need for a
State to make technical assistance and feasibility study
support available to local and regional governments seeking
such assistance.

     Conservation and recovery programs involving source
separation, intermediate processing, mixed-waste processing
technologies, and waste reduction are all discussed in this
document.  The State can decide the extent of its involvement
and the mix that is best suited to its needs.

-------
        REQUIREMENTS FOR STATE RESOURCE CONSERVATION AND
                      RECOVERY PROGRAMS

     The Resource Conservation and Recovery Act of 1976
places major responsibility for solid waste management and
planning in the hands of the States.  The Act mandates the
control of hazardous wastes, the closing or upgrading of
open dumps, and the disposal of all solid waste in an
environmentally sound manner.  The States must look to
resource conservation and recovery as a key alternative for
accomplishment of these goals.  Below is an analysis of
those sections of RCRA which mandate such a State effort.

Sec. 4001, describing the objectives of Subtitle D, instructs
the States to "maximize the utilization of valuable resources
and to encourage resource conservation."

Sec. 4002 instructs EPA to:  identify regional planning
units for solid waste management; develop guidelines for
State plans; and specifically address in the guidelines
"types of resource recovery facilities and resource conservation
systems which are appropriate/1  and "available new and
additional markets for recovered material."
Sec. 4003 delineates the minimum requirements of a State
plan to include:  a requirement by the State that all solid
waste be either "utilized for resource recovery" or disposed
of in an environmentally sound manner; a State requirement
that eliminates any prohibitions on local governments "from
entering into long-term  contracts for f-he supply of solid
waste for resource recovery facilities,"1 and provision  for
such resource conservation or recovery and for the disposal
of solid waste in sanitary landfills or any combination of
practices    as may be necessary to use or dispose of such
waste in a manner that is environmentally sound.

Sec. 4004 authorizes the Administrator ^f EPA to issue
landfill criteria which define open dumps and sanitary
landfills.  The  section requires that "each State plan shall
prohibit the establishment of open dumps and contain a
requirement that disposal of all solid waste" be utilized
for resource recovery or disposed of in an environmentally
sound manner.

Sec. 4005 mandates the closing or upgrading of open dumps,
and requires the issuance of a compliance schedule  for any
entity which demonstrates that it has considered other
public and private alternatives for solid waste management
and... is unable to utilize such alternatives.

-------
Sec. 4008 authorizes the total FY 78-79 amount of federal
financial assistance to States for the "development and
implementation of State plans...." The amounts authorized
are limits and do not necessarily correspond to appropriations.
The areas eligible for funding include implementation of
programs to provide solid waste management, resource recovery
and resource conservation services, and hazardous waste
management.  Specific areas of assistance outlined include:
"facility planning and feasibility studies; expert consultation;
surveys and analyses of market needs; marketing of recovered
resources; technology assessments; legal expenses; construction
feasibility studies; source separation projects; and fiscal
or economic investigations or studies."  The Section also
provides for "technical assistance to State and local governments
for purposes of developing and implementing State plans."
The Technical Assistance Panels Program is designed to
"assist the State and local governments with respect to
particular resource recovery and conservation projects under
consideration and to evaluate their effect on the State
plan."

     In summary, resource conservation and recovery must be
a key element of the State solid waste planning process.
States must not only consider resource recovery as a key
alternative for solid waste management, but must also develop
comprehensive, ongoing State Resource Recovery Programs.
This paper is intended to guide the development of such
programs.  The elements that should be built into a State
Resource Recovery Program are described next.

-------
ELEMENTS OF A STATE RESOURCE CONSERVATION AND RECOVERY PROGRAM

     Five elements constitute the core of an effective State
resource conservation and recovery program:  (1)  an adequate
legislative base;  (2) an active market assessment and development
capability; (3)  a policy development and project planning
mechanism; (4) an assistance and education capability; and,
(5) a complete and current data base on resource conservation
and recovery activity within the State.

     EPA recognizes the great diversity among the 56 States
and territories.  Rather than describe precisely that program
which is best for each one of them, this document presents
those elements which should be considered by any State in
developing its own resource conservation and recovery program.
Each element is described and explained in turn below.

     A.   DEVELOPMENT OF A LEGISLATIVE BASE

     The development of an adequate legislative base is an
essential part of any State's program.  This development
process has two parts:   (1) removal of existing State laws
which prevent or inhibit resource conservation and recovery;
and, (2) enactment of new laws which promote and simplify
resource conservation and recovery.

     The State can develop its legislative base with respect
to both of these parts through a three-stage process:
First,  an analysis of the relevant existing laws to identify
those which inhibit or prevent the implementation of resource
conservation and recovery, and to identify gaps or omissions.
Second, an effort to remove or amend barriers identified in
the analysis stage.  And, third, the development and introduction
of any new legislation necessary to correct whatever gaps or
omissions have been identified.

     (1)  Analysis of Existing Laws

          An analysis of all relevant State and local laws
     will almost certainly uncover some laws that unnecessarily
     act as barriers  (e.g., the disqualification of recycled
     newsprint in the State procurement process); some
     others that act as barriers with a discernible, but
     debatable, rationale  (e.g., the requirement that localities
     accept the lowest bidder); some laws that indirectly
     promote resource conservation through regulation  (e.g.,
     stringent landfill criteria); and some laws that directly
     encourage and support resource recovery and conservation
     programs.

-------
     The best means of developing a solid legislative
base to support a State resource recovery program is to
minimize or eliminate the barriers and maximize legislation
promoting resource recovery.  The State agency with
lead responsibility for resource recovery should therefore
start by determining which laws act as unnecessary
barriers, as well as determining where there are needs
for legislation directly supporting resource conservation.

     In "gray areas" where there would be trade-offs if
a barrier were removed or a regulation promulgated, the
agency should objectively present the advantages and
disadvantages of both viewpoints to State officials and
legislators.

(2)  Removal of Legislative Barriers

     There is a variety of State laws and institutional
arrangements which can delay or jeopardize the implementation
of resource recovery.  Some examples are listed below:

(a)  Laws that restrict contract length or specifically
prohibit long-term contracts for the supply of waste
are barriers to resource recovery.  The first step in a
State's resource recovery effort is to work toward the
elimination of these barriers, in conformance with
Section 4003(5) of the Resource Conservation and
Recovery Act of 1976.

(b)  Laws requiring split-bidding exist in some States.
These laws require that construction, plumbing, electrical
work, etc., be bid for separately in a project.  As a
consequence, it is impossible for a community to procure
a proprietary technology or hold a single turn-key
contractor responsible for all phases of a project.

(c)  Laws requiring acceptance of the lowest bidder
mandate that procurements be awarded on a cost basis,
without negotiation.  Awarding contracts on a cost
basis alone makes it difficult for a city to compare
other important relative measures, such as a firm's
experience.  Prohibiting negotiation also presumes that
the community is able to write a comprehensive RFP*
which is unmistakable in intent and complete in detail
on the first attempt.  All evidence thus far shows the
opposite to be the case.
       Request for proposals.

-------
(d)  Statutory ceilings on amounts of pollution
control revenue bonds could deter investors.  Where a
community desires to enter into a full-service contract
with industry, the project is likely to be more at-
tractive to bidders if they can take advantage of both
rapid depreciation and the tax-exempt status of pol-
lution control revenue bonds in financing the project.
Unfortunately, some States have limits of $5 million
for projects which can be financed with pollution
control revenue bonds, while resource recovery projects
often cost between $20 and $100 million.  Historically,
such limits were established for other types of projects
to prevent industry from competing excessively with
communities for tax-exempt bond financing.  But where
industry is serving the public good with solid waste
disposal and/or the supply of energy, the benefit may
be greater than whatever harm the competition for funds
will have.  For that reason, consideration should be
given to waiving or altering this ceiling.

(e)  Public utility regulations or policies sometimes
disregard issues of resource conservation.  The energy
by-products from resource recovery systems  (i.e. steam,
electricity, gas, oil, refuse-derived fuel) are often
comparable in both cost and quality to other sources of
energy.  Yet public utilities are unwilling to purchase
such by-products from communities because of a reluctance
to deal with politically oriented entities of local
governments.  At the same time, public utilities constitute
the best potential markets for the by-products of a
community's resource recovery system because of their
large size  (ability to take all the by-products of a
resource recovery system) and their long-term stability
(not as likely to close down or move away as other
industry).

(f)  Laws restricting the movement of solid waste also
restrict the ability of resource recovery systems to
take advantage of regional economies of scale.  The
importation of waste from a neighboring city, county,
or even State is often necessary to supply a particular
facility.  States should view solid waste as a valuable
raw material for purposes of resource recovery, and
therefore not inhibit its movements where it is being
used for  those purposes.

-------
     The State agency with lead responsibility for
resource recovery should take steps necessary to
identify barriers such as those discussed here and to
eliminate them where feasible.  These steps include:
reviewing statutes; drafting executive orders and
legislation; and working toward enactment of such
orders and legislation.

     One New England State, for example, has declared
the "removal of institutional obstacles" to resource
recovery as a primary objective of its proposed State
Solid Waste Management Plan.  The outline of its
proposed plan includes specific steps by which the
State will seek the removal of those obstacles.

(3)  Expansion of Legislative Authority

     Resource recovery activity accelerates rapidly in
States where there is political support.  Both legislative
and executive initiatives are vital demonstrations of
that support.  Also, extensive public participation
enhances the political acceptance of these initiatives.
There are several such initiatives that State governments
can take, some politically controversial, others not.
The State agency responsible for resource recovery can
not, of course, bring about all the changes necessary
simply by mandate.  The agency can, however, do all in
its power to work toward the type of expanded legislative
authority necessary to create a sound base on which the
program can be built.

     State policies should promote resource recovery as
a preferred alternative.  The conservation and recovery
of materials and energy is beneficial to all States,
not just a select few.  Resource conservation and
recovery programs help to ease the ever-growing problems
of disposal.  In order to lay a strong foundation for
resource recovery programs in this country, State
legislatures must be willing to make a commitment.

     A policy that declares resource conservation and
recovery as a preferred alternative for solid waste
management can be an effective beginning.  Some States
which have started with such a policy have gone on to
pass specific pieces of legislation which can stimulate
increased resource recovery activity.

-------
     The State should work toward establishing and
publicizing executive and legislative policies which:
establish recycled materials procurement programs;
provide specific appropriations for technical and
financial assistance; mandate that each State agency
report to the legislature on the resource conservation
potential of that agency; and, enact tax incentives to
foster resource recovery.

-------
B.    MARKET ASSESSMENT AND DEVELOPMENT

          The success of resource recovery is almost wholly
     dependent upon economics.   If reliable markets exist
     for the products that can  be derived from resource
     recovery systems, then those systems become viable.
     But few markets are stable over the long term, since
     supply and demand for products is ever-changing.

     (1)  Assessment of Existing and Potential Markets

          The State must assume the responsibility for
     regional and Statewide market studies as part of its
     resource recovery program, and should conduct and
     maintain these market surveys for both secondary materials
     and energy.   Secondary materials covered should include:
     industrial wastes (through waste exchanges), waste oil,
     tires, paper,  glass, and metals.  Periodic reports to
     local and regional governments should include both
     short- and long-term projections for the various markets
     in each of the regions studied.

          As a result of one western State's market study
     efforts, six refuse-to-energy projects are currently
     being planned.  In that case, the State made the
     cities and counties aware  of the existing energy demand
     in their jurisdictions, as well as the potential supply
     available from their own wastes.  The State then
     helped to fund feasibility studies for each of the
     projects.  Without such a  State effort, those resource
     recovery projects might not have materialized.

     (2)  Stimulation of Existing Markets

          Every State government has its own built-in
     markets.  The  amount of paper and construction materials
     used in government operation is considerable.  If
     secondary materials are to be proven as usable, State
     and Federal agencies must  take the lead in demonstrating
     that usefulness.  Section  6002 of the Resource Conservation
     and Recovery Act 1976 requires such action, and EPA
     expects the States to comply with the forthcoming 6002
     guidelines through their own regulatory process.

-------
     The experience of several State programs suggests
that, for reasons of political acceptability, a State
recycled procurement program should start with one
commodity; paper is usually the most successful.
State purchasing agents should emphasize the use of
that recycled commodity as much as possible.  Where
product specifications preclude such use, those
specifications should be evaluated and modifications
recommended.  Once the single commodity program is
successful and receives publicity, the State can expand
to other materials.

     A legislative or executive policy should put the
State on record as encouraging the procurement of
recycled materials.  A few States currently have legislation
that gives a cost preference of 5 to 10 percent to
contract bidders proposing to use recycled materials.
Such legislation could contain a "sunset" clause that
would phase out the preference once the recycled commodity
became competitive in price with the virgin product.
One mid-Atlantic State's legislation sets annual quotas
for the State purchase of recycled paper, and provides
for reporting to the legislature on the accomplishment
of those quotas.

     Other public sector entities such as regional and
local governments should also be encouraged to use
recycled materials in order to enlarge the market for
such products.  One western State is currently investi-
gating the possibility of organizing communities into
purchasing collectives whereby source separated material
could be sold, and finished recycled products purchased,
in greater volumes.  This would reduce the cost to
communities, while creating a Statewide market for
secondary materials.  The leverage of such a collective
would of course be considerably greater than that of
the separate members.

     As stated earlier, the creation and stabilization
of markets is a key to success for any resource recovery
endeavor.  "Making the economics work" is pivotal.  A
favorable economic climate will exist only when supply
and demand approach equality.  However, for resource recovery,
the supply has traditionally been greater than the
demand.
                         10

-------
     In the private marketplace, potential purchasers
look upon a new product with skepticism.  It often
requires a sophisticated marketing campaign to introduce
a product and earn the public trust.  For secondary
materials, the State must assume the market campaigning
responsibility.  If the State is to increase demand for
recovered resources, it must convince the private
sector to greatly alter its way of thinking.  Both
private and public procurement offices should be made
aware of the availability and usability of secondary
materials.  One western State, for example, has approached
this problem by organizing and conducting a series of
regional industrial seminars.  Industries, recycling
organizations, and the public have all been invited to
these seminars to hear about the usefulness and market
demand for certain secondary materials.

     To stimulate demand further, the State should
consider tax credits or loan preferences to businesses
utilizing secondary materials, as an incentive to
increase demand.  The State agency responsible for
resource recovery should consider drafting tax legislation
in conjunction with the policy supporting resource
recovery as the preferred alternative for solid waste
management.  One southern State has legislation that
exempts resource recovery equipment purchases from the
State sales tax, an exemption which saved more than
$1,000,000 on a single project.  That is clearly a
significant incentive.  Such an exemption could
be extended to secondary materials purchases such
as paper, tires, oil, and other recycled commodities.

(3)  Creation of New Markets

     Although the Federal government and private
industry will take the lead in researching, developing,
and issuing specification standards on new secondary
materials, there is also a role which the States can
play.  State procurement offices throughout the country
can provide valuable demonstrations of the practical
utility of new secondary materials.  Recycled items
that could be available for State use include:  paper
for copying machines; tires and oil for State motor
vehicles; and recycled asphalt for road construction.
State officials should make a commitment, either through
legislation or executive order, to use at least limited
quantities of these materials and to evaluate their
performance.
                         11

-------
     The State should also consider providing tax
incentives to corporations conducting research into new
uses for secondary materials.  Such tax credits could
have a long-term beneficial effect on the State by
creating jobs in the production of new materials,
saving State procurement money, and conserving raw
material resources.  Legislation or an executive order
would be required to initiate such a program.
                        12

-------
C.   POLICY DEVELOPMENT AND PROJECT PLANNING

          RCRA requires that State solid waste management
     planners consider resource recovery to the maximum
     extent possible.

     (1)  Promulgation of State Resource Policy
          Mere "consideration" is not enough.  Resource
     conservation and recovery must be clearly and strongly
     supported by the State through legislation or executive
     order as the preferred alternative for solid waste
     management.   States should not underestimate the impact
     of a simple statement of support for resource conservation
     and recovery where the Governor and legislature make or
     endorse the statement.  Without such support,resource
     recovery is unlikely to have the long-term sustenance
     vital to its success.

     (2)  Statewide Resource Recovery Project Planning
          Those planning resource recovery projects must
     make the securing of markets their first concern.  But
     once those markets have been identified and commitments
     obtained, and the level of demand for recovered materials
     and/or energy has been determined, an adequate supply
     of solid waste must be secured.  In conjunction with
     its market assessments, the State should estimate the
     amount of waste needed to meet the projected demand for
     recovered resources.   The State should obtain from all
     local and regional governments the necessary data on
     waste generation, as well as estimates of the amount
     likely to be diverted from current disposal facilities
     due to the implementation of Section 4004 (RCRA)  landfill
     criteria and/or the exhaustion of alternative landfills.

          The State lead agency should encourage resource
     recovery activities through the State solid waste
     planning process wherever both the supply and the
     markets exist.  Possible steps could include notifying
     the region or community of the market potential;  describing
     the process by which the community could conduct a more
     detailed study; and, giving the area technical and/or
     financial assistance throughout the planning process.
     One southern State enacted legislation requiring that
     areas of the State with greatest resource recovery
     potential be identified and designated as such.  These
                              13

-------
areas (in this case counties)  were then required to
develop comprehensive resource recovery plans.   Upon
approval of its plan, the county will become eligible
for State assistance in implementing resource recovery.

     The State should promote the regionalization of
facilities and waste supplies in areas where economies
of scale could be realized.   This effort should be
carried out in conformance with the regional identification
process set forth in EPA's Guidelines for State Solid
Waste Management Plans (40 CFR 256.10 - .11).  A
report, possibly in conjunction with the State market
projections, should be issued to local and regional
governments delineating areas of the State where the
potential supply of waste could meet the projected
demand for recovered resources.  The report should also
include a suggested regionalization scheme for individual
areas lacking adequate waste supplies, as well as a
listing of those areas of the State where it would be
economically inefficient to implement particular types
of resource recovery systems at the current time.  This
could readily be done by mapping areas with high,
medium, and low potential for various resource recovery
activities.

     Any Statewide resource recovery project planning
must also be coordinated with other environmental
programs.  The areawide water planning program under
Section 208 of the Clean Water Act, the wastewater
treatment plant construction program under Section 201
of the same Act, air quality planning programs, and
other solid waste programs should all be kept "in the
loop" of information and decision-making.

(3)  Intergovernmental Cooperation

     Many State and Federal agencies are involved in
various phases of resource recovery planning.  Some of
these agencies include:  State and Federal Departments
of Commerce, Energy, Procurement, Water Quality, Air
Resources, and Transportation, as well as Solid Waste.
One mid-Atlantic State has compiled a handbook for
permitting a typical refuse-to-energy facility; thirty
agencies and over sixty permits are involved in the
process.  This makes it essential that all interested
agencies be at least informed of activity from the
earliest stages of planning.
                         14

-------
     For planned facilities where the supply of waste
will come from a neighboring  State, or the finished
product will be destined there, the process should
include that State from the beginning.  The lead resource
recovery agency should determine at the outset which
other States will be influenced, and include the appropriate
agencies in those States in the strategy development
and planning process.

-------
D.   ASSISTANCE AND EDUCATION

          Once counties and municipalities are aware of the
     resource recovery potential, they are likely to seek
     assistance on how they should proceed.

     (1)  Technical Assistance

          The State should be prepared to provide at least
     part of the technical assistance needed to areas having
     the potential to successfully implement source separation,
     intermediate processing, or high technology mixed-waste
     programs.  The State should develop staff expertise to
     advise interested communities on the steps they must
     take to develop the appropriate resource recovery
     system.  Communities will need advice and support
     especially during the critical feasibility study phase;
     therefore, expertise in the areas of financing, technology,
     procurement, and contracts is essential.  (EPA is
     currently developing resource recovery training programs
     geared toward State technical assistance to locals.)

          Several States already have developed some capability
     in resource recovery technical assistance.  One mid-
     Atlantic State sends a task force with expertise in the
     areas of project development (source separation/
     marketing, and technology) to interested communities.
     The task force advises on the optimum resource recovery
     system for the individual community, and on how to go
     about implementing such a system.  Once the community
     has chosen a consultant for the project, the State task
     force reviews and comments on facility plans, financing
     schemes, and any other relevant aspects of the project.

     (2)  Financial Assistance

          Some communities will need a financial push into
     the resource recovery business.  Feasibility studies
     and front-end planning can be costly ventures, and city
     councils are often reluctant to pay for such speculative
     endeavors.  A State planning grant program would provide
     one means of ensuring that areas with resource recovery
     promise receive front-end assistance.  The grants could
     be set up on a matching basis to cover feasibility
     studies, design studies, and marketing surveys for the
     type of resource recovery system that the community
     will need.  One mid-Atlantic State currently has a bill
     before its legislature providing for $4.4 million in
     50-percent matching funds for such front-end planning.
                              16

-------
The State has found that the most difficult hurdle in
implementing resource recovery is the initial step into
planning.  After receiving an encouraging feasibility
study, a community will often "carry the ball" from
there.  Receipt of an unfavorable feasibility, on the
other hand, can save a community the money, time, and
disappointment of building what would have been an
unsuccessful facility.  The possibility that such a
study will be the end of a proposed project is both the
reason why State financial assistance for the study may
be necessary, and the reason why the study is so important
in the first place.

     Another form of State aid to local resource
recovery efforts is through a construction grant or
loan program.  Since decision-makers are understandably
cautious when faced with the high capital costs of
resource recovery projects, such assistance would be
eagerly welcomed in most cases.  One western State
currently has a grant/loan program for implementing
regional and local solid waste management plans.  The
State will award 30% in grants and 70% in low interest
loans toward implementation and construction of resource
recovery facilities.  The State resource recovery
agency administers the grants and loans, gives technical
advice and support, and closely scrutinizes the progress
of projects.

     The State could also provide indirect financial
assistance to businesses and communities involved in
resource recovery efforts through such initiatives as
tax incentives.  As mentioned earlier, one southern
State has legislation that exempts resource recovery
equipment purchases from the State sales tax.  Such an
exemption could be extended to secondary materials
purchases such as paper, tires, and other recycled
commodities.  This would be an economic inducement to
both the production and consumption of recyclables.

     For each of the financial assistance devices
above, the State resource recovery agency will need to
draft legislation and to take the necessary steps to
bring such action to the attention of the legislature.
Additionally, States must consider whether they want to
use the State buying or debt power to fund resource
recovery.

(3)  Public Information

     There are steps which the State can take beyond
technical assistance and feasibility study support to
assure that localities and other interested parties
receive as much assistance as necessary in deciding

                         17

-------
what form of resource recovery and conservation fits
their needs.  The State should establish a program to
develop and disseminate information to localities,
interest groups, schools, and private citizens.  Several
States already provide this service.  Some have libraries
of Federal, State, and local resource recovery publications
which are sent out upon request.  Others have established
"recycling hotlines" which citizens can call to locate
the nearest recycling center or waste oil drop-off.

     EPA's- Office of Solid Waste and the EPA Regional
Offices stand ready to help any State set up its own
public information program.

(4)  Training and Education

     Another service that the State can provide localities
in planning for projects is an education and training
function.  Training of local officials and staff about
to embark upon a resource recovery effort is essential.
Seminars and "peer-matching"  (bringing in other local
officials experienced in resource recovery)  are two
tools which the State can use in that effort.  Still
another tool is audio-visual material.  One western
State, for example, has developed a resource recovery/waste
reduction package using slides and cassette tapes.  The
package is currently being tested in two school districts
in the hope it will prove useful for distribution to
schools statewide.

     EPA will be embarking on a program to orient State
personnel on all aspects of resource recovery.  This
same type of training program could be passed on to
local officials.  Citizens and students could receive a
more general level of education through public seminars
and resource recovery forums.

(5)  Public Participation

     Citizens have the right to share in program
decisions.  Public servants who implement Federal
environmental statutes have the responsibility to seek
out and be responsive to the concerns of the public in
their decisions.  It is essential that the public be
involved from the very beginning if the State resource
recovery program is to be  successful.  A special effort
should be made to ensure that public interest groups
and citizens representing  themselves  (whose resources
and access to decisions may be limited) have every
opportunity to participate.  These measures will not
only ensure equitable representation for all citizens,
but will also enhance the  likelihood of success for the
State resource recovery program.

                         18

-------
E.   PROGRAM MANAGEMENT

          The State should continue its involvement with
     resource recovery projects long after planning is
     complete, and should maintain information on all resource
     recovery activities and systems being planned, constructed,
     and operated within the State.

     (1)  Statewide Monitoring and Evaluation

          The State should monitor the operation of projects
     and evaluate the performance of various technologies
     being used within the State.  This information will be
     invaluable to newly interested communities.  This kind
     of monitoring will of course also contribute to the
     growing nationwide network of data on resource recovery
     activity in the United States.

     (2)  Ongoing State Program Analysis

          In addition to monitoring individual projects, the
     State should periodically evaluate its own program
     effectiveness.  This analysis should examine whether
     the State program is meeting RCRA's requirements for
     resource recovery and conservation, and whether the
     State is meeting its own goals.  The development of an
     efficient State resource recovery program must be an
     ongoing, iterative process.  Several States have built
     small, but very efficient organizations to deal with
     all matters related to resource recovery.  One southern
     State has established a Resource Recovery Council, but
     with a "sunset" clause.  The Council, after developing
     a resource recovery program through existing State and
     county agencies, will disband.  This can be an effective
     and politically palatable approach where citizens and
     legislatures are reluctant to establish new programs
     and offices in State Government.

          With concern over government spending increasing,
     States must develop new, creative, and more cost-effective
     ways of accomplishing their goals.  In order for resource
     recovery activity to continue to increase throughout
     the United States, every State program must be designed
     with economic and political feasibility at the forefront.
     This document has attempted to present some ways in
     which States can accomplish this.


                                                     uc 1819
                                                     SW-791

                              19
                                               ,U.S. GOVERNMENT PRINTING OFFICE: 1979—103-907/0571

-------
                          EPA REGIONS
U.S. EPA, Region 1
Solid Waste Program
John F. Kennedy Bldg.
Boston, MA 02203
617-223-5775

U.S. EPA, Region 2
Solid Waste Section
26 Federal Plaza
New York, NY 10007
212-264-0503

U.S. EPA, Region 3
Solid Waste Program
6th and Walnut Sts.
Philadelphia, PA 19106
215-597-9377

U.S. EPA, Region 4
Solid Waste Program
345 Courtland St., N.E.
Altanta, GA 30308
404-881-3016
U.S. EPA, Region 5
Solid Waste Program
230 South Dearborn St.
Chicago, IL 60604
312-353-2197

U.S. EPA, Region 6
Solid Waste Section
1201 Elm St.
Dallas, TX 75270
214-767-2734

U.S. EPA, Region 7
Solid Waste Section
1735 Baltimore Ave.
Kansas City, MO 64108
816-374-3307
U.S. EPA, Region 8
Solid Waste Section
1860 Lincoln St.
Denver, CO 80295
303-837-2221

U.S. EPA, Region 9
Solid Waste Program
215 Fremont St.
San Francisco, CA 94105
415-556-4606

U.S. EPA, Region 10
Solid Waste Program
1200 6th Ave.
Seattle, WA 98101
206-442-1260

-------

-------