Buy-Recycled Series
PAPER PRODUCTS
COMPREHENSIVE
PROCUREMENT
GUIDELINES
PAPER
Buying recycled products.
...conserves natural resources
...saves energy
...reduces solid waste
...reduces air and water pollutants
...reduces greenhouse gases
...creates new jobs
Twenty years ago, very
little recycled-content
printing and writing
paper existed. Now, it is readily
available, along with recycled-
content newsprint, paper towels,
and corrugated packaging—and
at higher quality and more
competitive prices than
ever before. That is
in part due to govern-
ment initiatives since
1988, when the U.S.
Environmental Pro-
tection Agency (EPA)
issued the Procurement
Guideline for Paper and
Paper Products Con-
taining Recovered Ma-
terials. The 1988 paper
guideline's buy-recycled
requirements are now
part of EPA's Compre-
hensive Procurement
Guidelines (CPG).
SEPA
EPA530-F-07-039
www.epa.gov/osw
October 2007
To make it easier to buy
recycled, the EPA period-
ically updates the CPG.
Through the CPG, EPA
designates items that
must contain recycled
materials when pur-
chased with appropriated
federal funds by federal,
state, and local agencies,
or by government contractors.
Among these items, EPA has
designated five types of paper
products made from recovered
materials. EPA's research shows
that the items designated in the
CPG are of high quality, widely
available, and cost-competitive
with virgin products. EPA also
issues nonregulatory companion
guidance—the Recovered Materi-
als Advisory Notice (RMAN)—
that recommends levels of recy-
cled content for these items.
Why Buy Recycled?
Recycling is more than just
dropping off your cans, bottles,
and newspapers at the curb or
at a local collection facility.
Diverting recyclables from the
waste stream is only the first
of three steps in the recycling
process. The second step oc-
curs when companies use these
recyclables to manufacture new
products. The third step comes
when you purchase products
made from recovered materials.
Buying recycled products re-
sults in many environmental
benefits. It supports local re-
cycling programs by creating
markets for the collected mate-
rials that are processed and used
to manufacture new products.
This creates jobs and helps
strengthen the economy; con-
serves natural resources; saves
energy; and reduces solid waste,
air and water pollutants, and
greenhouse gases that contrib-
ute to global warming.
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What Is CPG?
The Resource Conservation and Re-
covery Act requires procuring agen-
cies to buy recycled-content prod-
ucts designated by EPA in the CPG. Issued
in May 1995, the first CPG designated 19
new products and incorporated five previ-
ously designated items (including paper and
paper products) in eight product categories.
Paper Products RMAN I was published in
May 1996. Paper Products RMAN II, which
superceded the previous Paper Products
RMAN, was published in June 1998. The
first CPG update (CPG II) was published in
November 1997. The second CPG update
(CPG III) was published in January 2000,
and the third CPG update (CPG IV) was
published in April 2004. The fourth CPG
update (CPG V), published in September
2007, designated one new item and revised
another designation. No new paper prod-
ucts were designated in any of the updates.
For more information, visit .
Procuring agencies include all federal agen-
cies, and any state or local government
agencies or government contractors that
use appropriated federal funds to purchase
the designated items. If your agency spends
more than $10,000 per year on a product
designated in the CPG, you are required to
purchase it with the highest recycled-con-
tent level practicable. The CPG also ap-
plies to lease contracts covering designated
items. Executive Order (E.O.) 13423 and the
Federal Acquisition Regulation also call for
an increase in the federal government's use
of recycled-content and environmentally
preferable products.
Once any new items are designated in a
published CPG update, an agency has 1 year
to develop an affirmative procurement pro-
gram (or revise an existing one) to include
these new items. By June 22, 1989, agen-
cies were required to develop affirmative
procurement programs to incorporate buy-
recycled requirements for paper and paper
products. Since CPG V designates no new
paper products, agencies are not required
to revise this portion of their affirmative
procurement program.
The CPG acknowledges that specific cir-
cumstances might arise that preclude the
purchase of products made with recovered
materials. Your agency may purchase des-
ignated items that do not contain recov-
ered materials if it determines that: 1) the
price of a given designated item made with
recovered materials is unreasonably high;
2) there is inadequate competition (not
enough sources of supply); 3) unusual and
unreasonable delays would result from ob-
taining the item,- or 4) the recycled-content
item does not meet the agency's reasonable
performance specifications.
PAPER PRODUCTS
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How Do I Purchase Recycled-
Content Paper Products?
The Paper Products RMAN n recommends
recycled-content levels that you can look
for when purchasing paper products, as
shown in the table on page 4. Use EPA's RMAN
recommendations as a starting point. The rec-
ommendations are based on market research
used to identify recycled-content products that
are commercially available. The RMANs also
provide other purchasing guidance. Please refer
to for more
information on individual products.
Rather than specifying just one level of re-
cycled content, the RMAN recommends ranges
for many paper products, which reflect what
is currently available in the United States.
The recycled content of paper products varies;
therefore, you should contact local paper mills
or merchants to determine product availability.
Try to purchase paper containing the highest
content that is available to you.
When buying paper other than printing and
writing paper, specify that you want paper
"containing X percent recovered fiber, includ-
ing Y percent post-consumer fiber." (For most
printing and writing papers, you can simply say
you are looking for 30 percent post-consumer
content.)
In addition, make sure you measure recovered
and post-consumer fiber content as a percentage
of the weight of all fiber in the paper, not as a
percentage of the total weight of the sheet. (The
total weight also includes the weight of dyes,
fillers, and water used in the manufacturing
process.)
Access EPA's online recycled-content products
database by going to and se-
lecting "Supplier Database." See the last section
of this guide for other helpful resources.
Key Terms
Before buying recycled-content paper products meeting EPA's recommendations, you will need
to understand some important terms.
Post-consumer fiber:
• Is the paper recovered in our homes and offices.
• Does not include newsstand returns and printers' overruns.
Recovered fiber:
• Includes scrap generated at mills after the end of the papermaking process; converting and
printing scrap; newsstand returns and printers' overruns; obsolete inventory of mills, print-
ers, and others; damaged stock; and post-consumer fiber.
• Is not waste. EPA has replaced the term waste paper used in the 1988 guidelines with recov-
ered fiber, to acknowledge that this material is a valuable resource.
• Must be repulped. Paper cannot simply be re-cut or repackaged to count as recovered-content
paper.
• Does not include forest residues such as sawdust and wood chips from forestry operations.
Mill broke:
• Is scrap generated in a mill prior to the completion of the papermaking process.
• EPA recommends that you allow mills to count the recycled-content portion of mill broke.
You should not count the nonrecycled-content portion, however.
PAPER PRODUCTS
PAGE 3
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EPA's Recommended Content Levels for Paper Products
PAPER
PRODUCT
Printing and Writing Papers
Reprographic
Offset
Tablet
Forms Bond
Envelope
Cotton Fiber
Text and Cover
Supercalendered
Machine Finished
Groundwood
Papeteries
Check Safety
Coated
Carbonless
File Folders
Dyed Filing
Products
Index and Card
Stock
Pressboard
Tags and Tickets
Business papers such as bond, electrostatic, copy,
mimeo, duplicator, and reproduction
Used for book publishing, commercial printing,
direct mail, technical documents, and manuals
Office paper such as note pads and notebooks
Bond type paper used for business forms such as
continuous, cash register, sales book, unit sets,
and computer printout, excluding carbonless
Wove
Kraft, white, and colored (including manila)
Kraft, unbleached
Excludes custom envelopes
High-quality papers used for stationery,
invitations, currency, ledgers, maps, and other
specialty items
Premium papers used for cover stock, books,
stationery, and matching envelopes
Groundwood paper used for advertising and mail
order inserts, catalogs, and some magazines
Groundwood paper used in magazines and
catalogs
Used for invitations and greeting cards
Used in the manufacture of commercial and
government checks
Used for annual reports, posters, brochures, and
magazines. Have gloss, dull, or matte finishes
Used for multiple-impact copy forms
Manila or colored
Used for multicolored hanging folders and wallet
files
Used for index cards and postcards
High-strength paperboard used in binders and
report covers
Used for toll and lottery tickets, licences, and
identification and tabulating cards
POST-CONSUMER
RECOVERED
FIBER
30%
30%
30%
30%
30%
10-20%
10%
30%
TOTAL
RECOVERED
FIBER
10%
30%
30%
20%
20%
20%
20%
30%
30%
30%
30%
30%
10-20%
10%
30%
30%
10%
10%
30%
10%
30%
10%
10%
30%
10%
10%
30%
30%
20-50%
50%
50%
20-50%
PAPER PRODUCTS
PAGE 4
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PAPER
PRODUCT
Groundwood paper used in newspaper
Newsprint
Commercial Sanitary Tissue Products
Bathroom Tissue Used in rolls or sheets
Used in rolls or sheets
Used in food service applications
Used for personal care
Used in cleaning and wiping applications
Paper Towels
Paper Napkins
Facial Tissue
General-purpose
Industrial Wipers
POST-CONSUMER
RECOVERED
FIBER
20-85%
20-60%
40-60%
30-60%
10-15%
40%
Padded Mailers
Carrierboard
_ .
puzzles
Made from Kraft paper that is usually brown but
can be bleached white
A type of folding carton designed for multipack
beverage cartons
Used for bags and wrapping paper
5-15%
10-15%
5-20%
TOTAL
RECOVERED
FIBER
20-100%
20-100%
40-100%
30-100%
10-100%
40-100%
Paperboard and Packaging Products
Corrugated
Containers
Solid Fiber Boxes
Folding Cartons
Industrial
Paperboard
Miscellaneous
Used for packaging and shipping a variety of
goods
(<300psi)
(300 psi)
Used for specialized packaging needs such as
dynamite packaging and army ration boxes
Used to package a wide variety of foods,
household products, cosmetics, Pharmaceuticals,
detergent, and hardware
Used to create tubes, cores, cans, and drums
Includes "chipboard" pad backings, book covers,
25-50%
25-30%
40%
40-80%
45-100%
75-100%
25-50%
25-30%
40%
100%
100%
90-100%
5-15%
10-100%
5-40%
Miscellaneous Paper Products
Tray Liners Used to line food service trays. Often contain
minted information
PAPER PRODUCTS
PAGE 5
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Paper Buying Tips
To make it even easier to buy recycled-coiiteiit paper
products, EPA offers the following purchasing tips
for the various paper product categories outlined in
the RMAN. Printing and writing papers comprise
one of the largest categories of paper and paper
products. Examples include stationery, computer
printout paper, note pads, copier paper, and offset
paper. Printing and writing papers can be uncoated
or coated. When buying printing and writing paper,
remember to:
• Work with your printer. Different papers exhibit
differences in performance and printability.
Some printers might first want to test certain
papers with a particular ink. Printers also can
help you select papers based on how they will be
used (i.e., whether they will be folded, die-cut, or
made into self-mailers).
• Work with your graphic designer. Some papers
are better than others for certain design needs.
Make sure both the designer and printer agree
that the paper you choose will meet your expec-
tations.
• Consider the environmental ramifications of
your purchasing decisions. Papers with certain
characteristics, such as deep colors, coatings, or
groundwood content, might not be recyclable in
your existing office paper recycling program or
might require changes to the program. Consider
the effects of your paper purchases before decid-
ing to purchase a specific paper.
Newsprint is a type of groundwood paper generally
used to print newspapers. Recycled-content newsprint
is usually manufactured from fiber recovered from old
newspapers and magazines. The federal government
uses newsprint for printing the Federal Register (FR),
Congressional Record, and other publications.
When purchasing newsprint, consider these helpful
hints:
• Pay attention to newsprint's basis weight. Basis
weight is the weight in pounds of a ream of pa-
per cut to a specified size. Different weights hold
up better in different presses. Recycled-content
newsprint ranging from 25 to 32 pounds gener-
ally performs well. The U.S. Government Print-
ing Office specifies 28 pound recycled-content
newsprint.
• Consider your requirements for the newsprint
you are buying. Recycled-content newsprint
manufacturers are making products that meet
their clients' performance requirements (e.g.,
print-ability, brightness, cleanliness, and opacity).
• Determine whether newsprint is recyclable in
your existing recycling program. Some office
paper recycling programs do not accept ground-
wood papers such as newsprint; find out whether
yours does before you buy newsprint. Sanitary
tissue products include bathroom and facial tis-
sue, paper towels, napkins, and general-purpose
industrial wipers.
When purchasing these products, remember these
tips:
• Avoid misconceptions about softness, absorben-
cy, and strength. Some recycled-content sanitary
tissue products are softer, stronger, and more
absorbent than others. Consider your aesthetic
and functional requirements for tissue products
before purchasing a specific product.
• Remember to review your janitorial supply con-
tracts because commercial tissue products often
are purchased through contractors. Make sure
your supply contracts specify recycled-content,
not virgin, products.
• When changing brands, consider other factors
that could influence your purchasing decision.
When switching from sheet to roll paper towels,
for example, you might incur costs to replace
dispensers or fixtures if such costs are not borne
by the supplier.
Paperboard and packaging is a broad category of
paper products that includes corrugated contain-
ers, folding cartons, book and report covers, mailing
tubes, video cassette boxes, paper bags, and wrap-
ping paper. They can be manufactured with a wide
variety of recovered fibers including old newspapers,
old corrugated containers, mixed papers, and sorted
white office paper. In fact, paperboard mills use
more recovered fiber than any other segment of the
paper industry.
When purchasing recycled-content paperboard and
packaging, consider these tips:
• Remember, you can print on recycled boxes, not
just on virgin, bleached boxes.
• Be aware that you can use recycled boxes in food
applications and still meet U.S. Food and Drug
Administration requirements.
PAPER PRODUCTS
PAGE 6
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How Can I Get More Information?
T
his resource guide and the following resourc-
es on buying recycled-coiiteiit products can
be accessed on the Internet.
Information Available
From EPA
The CPG: . This site de-
scribes EPA's effort to facilitate the procurement
of products containing recovered materials,
including information on CPG and RMANs, and
an online database of manufacturers and suppli-
ers of designated items.
EPA CPG Program: . EPA's EPP program encour-
ages and assists federal agencies in purchasing
environmentally preferable products and ser-
vices. The site explains EPA's proposed guiding
principles for including environmental perfor-
mance in purchasing decision-making, and posts
case studies of successful pilot projects in both
the public and private sectors.
Jobs Through Recycling: .
EPA's Jobs Through Recycling program stimulates
economic growth and recycling market develop-
ment by assisting businesses and supporting a
network of state and regional recycling contacts.
This Web site provides information on financing
and technical assistance for recycling businesses,
as well as other market development tools.
Municipal Solid Waste: . Waste-
Wise is a free, voluntary EPA program through
which organizations eliminate costly municipal
solid waste, benefitting their bottom line and the
environment. The program provides hands-on
assistance to members to help them purchase or
manufacture recycled-content products, prevent
waste, and recycle solid waste materials.
Federal Register (FR): and . Notices promulgating
CPG I (60 FR 21370) and RMAN I (60 FR 21386),
May 1, 1995, and Paper Products RMAN I (60 FR
26986), May 29, 1996. FR notices promulgating
CPG II (62 FR 60961) and RMAN II (62 FR
60975), November 13, 1997, and Paper Products
RMAN n (63 FR 31214), June 8, 1998. FR notices
promulgating CPG HI (65 FR 3070) and RMAN
IE (65 FR 3082), January 19, 2000. FR notices
promulgating CPG IV (69 FR 24028) and RMAN
IV (69 FR 24039), April 30, 2004. FR notices
promulgating CPG V (72 FR 52475) and RMAN V
(72 FR 52561), September 14, 2007.
Other Government
Sources
U.S. General Services Administration (GSA)
Environmental Products Overview: . GSA offers a variety of
environmental products and services to its fed-
eral customers to assist them in their efforts to
comply with procurement responsibilities out-
lined in federal environmental laws and regula-
tions. This overview contains information about
environmentally oriented products and services
in the Federal Supply Service Supply System. To
access GSA Advantage!, GSA's Internet-based
ordering system, and order any GSA product, visit
.
PAPER PRODUCTS
PAGE 7
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Environmental Products Guide: . This
guide features more than 1,500 paper and pa-
per products containing recovered materials.
Office of the Federal Environmental Executive
(OFEE): . OFEE's mission is to
advocate, coordinate, and assist environmental
efforts of the federal community in waste preven-
tion, recycling, affirmative procurement of CPG
items, and the acquisition of recycled and envi-
ronmentally preferable products and services.
Greening the Government: A Guide to Imple-
menting E.O. 13101: . This guide provides detailed
information on the requirements of E.O.
13101, which established a process for amend-
ing the CPG and issuing RMANs. E.O. 13101
preceded E.O. 13423 and established many
requirements and definitions that are still in
effect. Updated in February 2001, the E.O. is
available from OFEE at .
Executive Order 13423: Strengthening
Federal Environmental, Energy, and Trans-
portation Management: . Published in January
2007, this Order replaced E.O. 13101 and
requires federal agencies to purchase green
products and services, including recycled-
content products, energy- and water-efficient
products, biobased products, and environ-
mentally preferable products and services.
Although E.O. 13423 revoked E.O. 13101,
EPA continues to follow certain procedures
of E.O. 13101 since they are consistent with
the requirements of RCRA 6002 (e).
Federal Green Purchasing Program: .
This directory lists more than 5,000 manufactur-
ers and distributors of recycled-content products.
California Recycled-Content Product Database:
. This site contains
information on reasons for buying recycled-con-
tent products, and how to procure them, and pro-
vides access to a database with information on
products, as well as manufacturers, distributors,
reprocessors, mills, and converters across the
country who procure or produce these products.
Additional Sources
Buy Recycled Business Alliance: . The Alliance includes over 3,200
companies and organizations committed to
increasing the use of recycled-content products
and materials in their day-to-day operations. The
Alliance offers educational materials, a quarterly
newsletter, and product-specific guides. Public
purchasing entities can join for free.
PAPER PRODUCTS
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