.CLCDA U*^* E^™*®™1*1**1 Washington, DC
Xy CTr\ Protection Agency EPA-SAB-EEC-91-009
REPORT OF THE MUNICIPAL SOLID WASTE
SUBCOMMITTEE OF THE ENVIRONMENTAL
ENGINEERING COMMITTEE
REVIEW OF THE OFFICE OF RESEARCH
AND DEVELOPMENT'S MUNICD7AL
SOLD) WASTE RESEARCH PROGRAM
A SCIENCE ADVISORY BOARD REPORT May 1991
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I Tt%&7 ^ UNITED STATES ENVIRONMENTAL PROTECTION AGENCY
yiBKy WASHINGTON, D.C. 204iO
^tt Bmrt*^
EPA-SAB-HC-91-009
OFFICE OP
THE ADMINISTRATOR
May 16, 1991
Honorable William K. Reilly
Administrator
0.S. Environmental Protection Agency
401 M Street, 8.W.
Washington, D.C. 20460
Dear Mr. Reilly;
The Science Advisory Board (SAB) has completed its research-
in-progress review of the Office of Research and Development's
(ORD) Municipal Solid Waste (MSW) Research Agenda (22 Dec 89
draft), and is pleased to submit its final report.
The SAB is pleased that a national R i D initiative is being
taken with MSW, because it has been at least a decade since there
was such a substantive undertaking. It is gratifying to see the
Agency attacking MSW problems by first drafting m comprehensive
research agenda. This new planning effort will do much to
coordinate future efforts, as well as to build upon on-going
disparate efforts both within and outside the Agency. The SAB
views this program to be very important to the thousands of
operating state.and local MSW programs throughout the country.
Although we expect that the ORD will address all the issues
presented in this report, we particularly direct your attention to
the following suggested priority shifts:
1) Based on national needs, MSW source reduction and landfill
disposal research should be top priorities in the draft Research
Agenda• Definitions, criteria, and measures of progress that will
lead to processes and products that significantly reduce MSW at its
source need to be developed, as do technical, economic and
institutional incentives* Technology of landfill design and
operations, recognizing the potential for the better application
of biochemical reactor research, needs to be modernized.
2) Recycling and strategic planning research should receive
a medium priority relative to other areas. Recycling research
should be coordinated with source reduction research*
3) Thermal destruction research should receive lower research
priority because of the level of work already in progress, the high
level of knowledge developed from hazardous waste combustion
Printed on Recycled Papw
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research, and the anticipation of limited availability of
resources.
4} Exposure to toxicants associated with MSW needs to be
better characterized and the application of risk assessment methods
broadened to include associated welfare and technological risJc*
5) In order to effectively use limited resources, the
Subcommittee recommends the development of guidelines and
contingencies for limiting or deferring project initiatives, should
this prove necessary.
These recommendations, along with more detailed comments on
the entire draft Researcn_Jteenda in our report, are made with the
anticipation that QRD's Municipal Solid Waste Research Program will
be implemented and, in fact, be greatly increased in the near
future,
It is abundantly clear that both current funding and goals
are only sufficient to achieve limited success in the foreseeable
future. Limiting funding and future.resources» both extramural
and in-house, will materially constrain the Agency's ability to
match knowledge with needs.
The SAB appreciates this opportunity to conduct this
scientific review and looks forward to receiving your response to
the scientific advice transmitted herein.
Sincerely,
laymojld c. Loehr, Chairman
Executive Committee
Science Advisory Board
Richard A. Conway, chairman
Environmental Engineering Committee
Science Advisory Board
Francis C. McMichael, Chairman
Municipal Solid Haste subcommittee
Science Advisory Board
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NOTICE
This report has been written as a part of the activities of
the Science Advisory Board, a public advisory group providing
extramural scientific information and advice to the Administrator
and other officials of the Environmental Protection Agency. The
Board is structured to provide a balanced, expert assessment of
scientific matters related to problems facing the Agency. This
report has not been reviewed for approval by the Agency? hence,
the comments of this report do not necessarily represent the views
and policies of the Environmental Protection Agency or of other
Federal agencies. Any mention of trade names or commercial
products does not constitute endorsement or recommendation for use.
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The Municipal Solid Waste Subcommittee (MSWS) of the
Environmental Engineering Committee (EEC) of the EPA Science
Advisory Board (SAB) has prepared a Research-In-Progress report on
the Agency's Municipal Solid Waste (MSW) research program. The
review examined the Agency's strategic planning for integrated
waste management, source reduction, recycling, thermal destruction,
land disposal and special wastes management (combustion residuals,
sewage sludge and medical/infectious wastes).
The Subcommittee suggested priority shifts in the proposed
research areas, recommending that source reduction and disposal in
landfills should be top research priorities, while thermal
destruction and special wastes management should have lower
research priorities. It was further recommended that recycling
research should be coordinated with source reduction research.
Also stressed, was the need for the Agency to serve as a catalyst
in dealing; with MSW issues. Such activities as information
dissemination, sponsoring conferences and workshops, developing
decision tools, providing technology evaluation expertise,
catalyzing market and product development, conducting fate and
effect and treatability studies, developing incentives, providing
grants and loans, and related supportive activities were viewed as
vital to the Agency's mission for MSW research. The SAB views the
MSW research program to be very important to the thousands of
operating state and local MSW programs throughout the country.
Key Words; Municipal solid waste, municipal solid waste research,
municipal solid waste research programs, integrated waste
management.
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MUNICIPAL SOLID WASTE SUBCOMMITTEE
ENVIIONMENTAL ENGINEERING COMMITTEE
of the
SCIENCE ADVISORY BOARD
Chair
Dr. Francis C. McMichael, The BlenJco Professor of Environmental
Engineering, .Department of Civil Engineering and Department of
Engineering and Public Policy, •Carnegie-Mellon University,
Pittsburgh, PA
Vice-Chair
Mr* George Carpenter, Michigan Department of Natural Resources,
'Environmental Response Division, Lansing, Michigan
Marchers and Consultants
Mr. Richard A. Conway, Senior Corporate Fellow, Union Carbide
Corporation, South Charleston, West Virginia
Mr, Allen Cywin, P,E,, Consulting Engineer (US EPA retired)»
Savannah, Georgia
Dr. Richard Denison, Senior Scientist, Environmental Defense Fund,
Washington, D.C.
Dr. Frederick G. Pohland, Professor and Edward R. Weidlein chair
of Environmental Engineering, Department of Civil Engineering,
University of Pittsburgh, Pittsburgh, PA
Dr. waiter M. Shaub, Technical Director, Coalition on Resource
Recovery and the Environment, 0.S. Conference of Mayors,
Washington, D.c.
Dr. Ronald Wyzga, Environmental Division, Electric Power Research
Institute, Palo Alto, California
ScJLejncjSL Advisory Board Staff
Environmental Protection Agency, Science Advisory Board, (A-101),
401 M St., S.W., Washington, D.C. 20460
Dr. K. Jack Kooyoomjian, Designated Federal Official
Mrs. Marcy Jolly, Staff Secretary
Mr. A. Robert Flaak, Assistant Staff Director
Dr. Donald G, Barnes, Director, Science Advisory Board
ill
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Chairman. Executive Qoimiitteep Science Advisory Board
Dr. Raymond C. Loehr, Hussein M. Alharthy Centennial Chair in civil
Engineering, Department of civil Engineering, University of Texas
at Austin
Chairman. Environmental Engineering committee
Mr. Richard A. Conway, Senior Corporate Fellow, Union Carbide
Corporation, South Charleston, West Virginia
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TABLE OF CONTENTS
1. 0 EXECUTIVE SUMMARY......... 1
2 . 0 INTRODUCTION, . ........... ...,,,...... 7
3 . 0 CROSS CUTTING ISSUES FOR MSW RESEARCH. ...... . . . 8
3. l Introduction and Overview. — ,8
3.2 Program Funding, Resources and Priorities ,.9
3.3 Program Analyses......... — ............ ......10
3.4 Agency as Catalyst**..,. ..........12
3.5 Consolidation of Efforts .12
3.6 Optimizing the Research Effort....................13
3.7 Education and Training. 13
3.8 Pollution Prevention and Conservation. .....14
3. § Incentives .*.......*.** 14
3.10 Data Collection and Management.................... 15
3* 11 Core Research.* ..,,*......*«.*..*.*«...»*.»*15
3.12 Risk Assessment — .....16
3,13 Composition of Pollutants. ........16
4.0 DIRECTED COMMENTS ON THE DRAFT RJJS^AJJCHAGENDA 17
4.1 Source Reduction...*...*.....,,..*...... — .......17
4.1.1 Source Reduction Objective 1.................. 18
4.1.2 Source Reduction Objective 2..................is
4.1.3 Source Reduction Objective 3..... — .......*..18
4.1.4 Source Reduction Objective 4.................. 19
4.2 Recycling..... — * 19
4.3 Thermal Destruction and Ash Residues., 21
4.4 Ash Residues. — . — ................23
4,5 Disposal in Landfills ..... — ..,.,,.,,,,... — 24
4.6 Special Wastes Management. .25
APPENDIX A - THE CHARGE fO THE SUBCOMMITTEE. . ., 28
APPENDIX B - ACRON1MS AND GLOSSARY OF TERMS .29
APPENDIX C - BRIEFINGS AND HANDOUTS PRESENTED TO THE SAB'S
MSWS ON JANUAR1 30, Iff 0, 31
APPENDIX D - RESOURCE MATERIAL AND REFERENCES CITED.. ...33
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LIST OF TABLES
TABLE 1 - MSW SUBCOMMITTEE CONSENSUS RANKING OF THE MSW
RESEARCH AREAS 11
TABLE 2 - SUMMARY OF RECOMMENDED CHANGES IN PRIORITIES FOR
SPECIAL WASTES MANAGEMENT RESEARCH TOPICS. 27
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1-0 EXECUTIVE SUMMARY
This report presents the EPA Science Advisory Board's (SAB)
review of the Office of Research and Development's (ORD) research
plan for Municipal Solid Waste (MSW). The SAB's MSW Subcommittee
(MSWS, or the Subcommittee) recognizes that a decade or more has
elapsed since there was a substantive national research and
development (R & D) initiative in support of the thousands of
municipal solid waste programs and systems in the country. This
new planning effort will do much to coordinate future work as well
as to build upon ongoing disparate efforts both within and outside
the Agency. The following statements relate to crosscutting issues
identified by the Subcommittee:
a) Overview - The new goals and objectives should emph.gLsJ.zgi
contemporary and future rese_a_rchi_.need;S_f_cj^ejarJly_ separating new
in i t iat ives from _pa sjb^j^Qinp^ j^hroartfca * - Recognition of the budget
and expertise requirements necessary to conduct the elements of the
research plan should be clearly evident and embedded in the
research strategy.
b) gpjcrjent funding is only sufficient to achieve limited
success in the foreseeable future. - Unfortunately, the
realities of limited and available future resources, both from
extramural activity as well as in-house staff and facilities, will
materially inhibit the Agency's ability to match knowledge with
needs, at least well into the foreseeable future.
c) The proposed program elements. ....... overlap. There is a need
to assess interrelationships among programs and projects. - The
program and projects described within the six research areas have
some duplication and should be made joint research efforts.
However, this overlap* is appropriate, as the result of a given
program project can serve more than one research area.
d) The Agency should serve_as_a catalyst. This is a vital
role to be refined ajpd pursued! - The Agency is well suited for
information dissemination, sponsoring conferences, providing
decision tools, providing technology evaluation, catalyzing market
and product development, conducting fate and effect studies,
conducting treatability studies, developing incentives, providing
grants and loans and similar supportive activities as a catalyst
for action at the local and state levels, as well as encouraging
private sector initiatives. This role needs to be refined and
pursued as part of the overall strategic long-range implementation
plan.
e) Consolidation of efforts fa preferred as a means . to
prj?vJ.dj°L national data characterizations. - Consolidation of
studies of regional or local wastes and disposal needs would be
valuable, rather than pursuing nationwide data surveys and broad
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averages or characterizations. Similarly, consolidation of
existing technology evaluations and comparative . studies of
management strategies being developed at the local and state
government levels, universities, other institutions and even other
countries would be a better focus of limited resources.
f) Striking the right balance is necessary to achieve an
effective research agenda^ - The Subcommittee identified several
aspects of the draft Research Agenda where a shift in research
priority may be warranted. Source reduction and MSW disposal in
landfills should be the top research priorities in the Research
Agenda. Recycling should be coordinated with source reduction
research. Recycling and strategic planning should receive medium
research priority. Thermal destruction and special wastes
management should receive lower research priorities due to the work
currently in progress and because of lesser knowledge gaps.
g) Education and trainingis needed at all levels. - Although
there is some recognition of the value of education and training
as a crucial element within research areas, this need should be
evident throughout the document and should be developed clearly and
incisively as an initiative complementing all other components of
the research plan* An innovative education program at all levels
of need, should be developed in harmony with the other elements of
the research plan.
h) Advances in pollution prevention and conservation require
developing measures of progress. - Setter documentation is needed
of the benefits and measures of progress of pollution prevention
in terms of materials and energy conservation, preservation of
ecological resources, reduced MSW generation and reduced pollution
impacts. Research aimed at identification of pollution prevention
measures, and incentives/disincentives to promote their
implementation, is critically needed. Further, it must be targeted
at specific social and economic sectors such as individual
consumers and households, government at all levels, business and
other institutions.
i) Incentives are needjed.. to facilitate goals. - Management
of MSW is an important and growing problem. One way to address
this problen is through programs to reduce the quantity of solid
waste generated and requiring management either through landfills
or, both through source reduction and recycling. Various economic,
technical and institutional incentives can help facilitate these
goals.
The current draft Research Agenda does not include research
on the development and testing of various incentives to achieve
the goals of the MSW research plan, despite the observation that
these approaches may be among the most cost-effective. Included in
this Research Agenda should be an examination of the utility of
economic instruments such as deposits and discharge fees (analogous
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to tipping fees, 'but placed'''upstream in the''"proeess) on certain
products or other incentives to encourage manufacturers to look for
environmentally-friendly designs, production and marketing.
j) Data collection and interpretation requires both
statistical .--t.o.dlja...'...ajQd heuristic reasoning. - The Subcommittee
suggests that the process of information development should entail
an examination of mechanisms to collect, use, and recognize the
value of statistically valid data, as well as heuristic reasoning.
Consideration and use of prior experience and scientific knowledge
that by consensus are considered valid and credible within the
scientific community, are the foundation of heuristic reasoning.
Because the menu of proposed projects cannot be adequately
addressed, given the limited level of funds available to the Agency
for the purpose of carrying out the proposed research program,
heuristic methods may negate the need for detailed statistical
studies in all research areas,
fc) Core researchshould toe devoted to increasing scientific
understanding of the manor probj-e^p and identity of promising
solutions. - Some of the programs and projects seem suitable
candidates for' the new ORD Core Research Program. Project
selection should not be based upon immediate regulatory needs, but
on the extent to which the added science can increase understanding
of the major problems and point to promising solutions. Candidate
projects should be identified.
1) Risk assessment of disposal, options should be broadened
to include associated weLfare risk and technological risk. - The
planned Research Agenda's risk assessments' of disposal options
cover human health and refer to environmental (ecological) risks.
These assessments should be broadened to include associated welfare
and technological risks. A semiguantitative, or perhaps even a
qualitative analysis of all risks associated with the various
reuse/disposal options seems to be appropriate. The uncertainties
associated with the' .various risk estimates need to be
characterized.
a) Continuing improvement in characterization of exposure is
needed for all wastq management options. - There is a need to
characterize the emission and/or effluent at the point at which
people and .the environment are exposed for all of the waste
management options. At present, such characterizations are very
primitive or even lacking for some management options.
n) source reduction should be strengthened in the research
agenda. A malor effort by all levels of aoeietv is needed to
direct and chance public perspectives toward source reduction. -
A major effort at all levels of society, through voluntary, as well
as regulatory means, is required to achieve source reduction goals.
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As previously stated, source reduction should be a top
research priority in the Research Agenda. The most basic physical
science RiD requirement is to get a better understanding of what
the various wastes contain (e.g., urban, suburban, commercial,
manufacturing, etc.) in order to target QRD projects and to
properly characterize suqh waste sources. Characterizations should
be approached in a site-specific manner and should be linked to the
technology involved, avoiding the tendency of engaging in
generalities or national averages. Finding alternatives to
disposal or end uses which are not related to lifetime product use
is critical to both source reduction and recycling efforts.
Product research priorities need to be established based upon
product impact on wastes (both in terms of quantity and hazard),
their susceptibility to redesign or remanufacture, and benefits
derived.
°) Recycling research should be coordinated with source
reduction research* - The objectives of recycling, as outlined,
are appropriate and require no additional comment. An important
role for the Agency is information consolidation and dissemination,
such as through workshops. For instance, volume reduction is the
most immediate and obvious way for local government to reduce waste
amounts. There are many communities already engaged in such
activities, and this information could be communicated via
workshops as proposed in the draft Research Agenda.
Since recycling involves institutional issues relating to
habit changes and economics, development of cost reduction
strategies is critical to the success of recycling. Research is
needed on how to collect, separate and furnish MSW materials to
recyclers at minimum cost. Additionally, improvement in the
ability of communities to establish or improve recycling programs
is needed.
p) Thermal destruction and ash residues research are mature
research areas facing important new issues. - Significant advances
in combustion technology have been achieved in the last decade.
A substantial amount of knowledge about combustion and incineration
has been developed by research for hazardous waste disposal. The
Subcommittee recognizes that there are overlapping combustion
research issues that may be assigned either to the hazardous or to
the non-hazardous combustion research programs. Recognizing these
facts, the high costs of combustion research and development, and
the limited knowledge base for other MSW research areas, the
subcommittee ranks the thermal destruction and ash residues
research program needs with a low relative priority. without
contradiction, the MSWS recognizes that important new research
issues exist for combustion research.
Generally, the topics in presented on this topic in the draft
Research Agenda are appropriate. However, the Subcojamtttee
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believes that revised priorities'-are needed.••>•.Proposed areas of
investigation for thermal treatment and residue management should
address research to better understand the dynamical behavior of
various species of. volatile toxic metals. First priority should
be given to mercury control and monitoring, and identification of
mercury metal speciation in incinerator emissions. The speciation
of chromium also deserves additional attention, as the relative
amounts of trivalent and hexavalent chromium in emissions
dramatically affect the risks posed by chromium emissions.
Products of incomplete combustion front organics should continue to
be evaluated,
Other important research areas that should be included in the
Agency plans ares
1) Investigation and mitigation of potential occu-
pational exposures,
2} Long-term equipment and process performance
evaluations, and
3} Development of accelerated rate testing methodol-
ogies to predict long-term performance of MSW
thermal destruction processes*
Long-term operational maintenance and emissions behavior
characteristics of incinerators should be investigated in order to
identify and understand the performance of these systems and ensure
their reliability through their life cycle. With respect to both
combustion and Air Pollution control (APC) device performance, the
goal should be to reliably characterize emissions during the entire
life of a facility, accounting for the range of combustion
conditions and variability in performance that can reasonably be
expected to occur.
In view of the number of large incinerators under construction
and planned, as well as intense public interest, funding of
research into long-term emission problems should be continued,
taking full advantage of knowledge and progress in the private
sector.
q) The Agency needs to develop a comprehensive risk
assessment methodology for incinerator ash residues. - The
Subcommittee is in general agreement with the draft Research
Agenda * a proposed research plan for ash residues. The Agency could
establish an advisory panel to coordinate research efforts on
appropriate tests with other groups such as ASTM, Asm, NSF,
industrial groups or with colleges and universities. EPA needs to
develop a comprehensive "cradle-to-grave" risk assessment
methodology for ash residues. Further, the Agency should identify
and implement means to ensure that occupational exposures ,to ash
residues, within incineration/combustion facilities, during
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transport and at ash disposal sites, are adequately mitigated in
all instances.
r) Landfill disposal research deserves too research priority.
- The Subcommittee agrees that land disposal research is a top
priority. This section needs clear integration of the elements of
good science and engineering and their relevance. The Agency's
research should identify the advantages and disadvantages of the
roll of landfills as dynamic microbiologically-mediated processes
in landfill management. Landfill "mining" and methane utilization
should also be addressed together with ultimate use requirements.
s) Special wastes managementshould be integrated with the
separate ^research initiatives. - Special wastes are actually issues
which have been around for some time, but have been treated as a
relatively new initiative because of current public perception.
Combustion residuals, sewage sludge and medical/infectious wastes
research areas should be integrated with the other separata
research initiatives. In this area, as well as in some of the
others, the possibilities of the MIT1 program for development of
innovative technologies should be further explored.
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2.0 INTRODUCTION
In response to considerable public interest, the Agency
published in early 1989 a position document, prepared by the
Municipal Solid Waste Task Force, entitled "The Solid Waste
Dilemma: An Agenda for Action.11 (See Reference 111. NOTE: all
references and resource material cited are listed in Appendix D.)
The office of Research and Development's (QRD's) Office of
Environmental Engineering and Technology Demonstration (OlETD),
acting on the recommended action items in this report, constructed
a research plan (See Reference #10} to address identified needs.
The plan includes topics on source reduction, recycling, thermal
destruction, land disposal and special wastes management
(combustion residuals, sewage sludge and medical/infectious
wastes). The document includes a strategic plan for integrated
waste management, as well as a proposal for a municipal (solid
waste) innovative technology evaluation (MIT!) program.
At the request of OEETD, the SAB was asked to review the
Agency's research strategy for municipal solid waste. The SAB's
MSW Subcommittee (MSWS) recognized this as a significant event,
because a decade or more has elapsed since there was a substantive
national research and development initiative undertaken to examine
problems associated with municipal solid waste program management.
Therefore, it is appropriate that the SAB undertake this MSW
research review.
The Municipal Solid Waste Subcommittee (MSWS) was given the
following charge: Prioritize the six principal research areas,
and answer the following questions: a) Have all the research needs,
regulatory as well as state and municipal, been adequately
identified, or are there other additional issues that ORD should
focus on? is the plan appropriate considering these needs?? and
b) Is there an appropriate balance among the research projects in
the engineering, monitoring, effects, and health risk and risk
assessment disciplines? This SAB research review report is not
organized along the same lines of these questions, since a more
useful way to respond was developed as the review progressed. The
issues as presented in the charge and the Draft Municipal Solid
Waste Research Agenda were reviewed in the SAB's MSW subcommittee
meeting of January 30-31, 1990.
The following Subcommittee findings and recommendations
encompass the OIITD Research Plan, the briefings (oral
presentations and discussions which ensued at the January 30-31,
1990 meeting) and subsequent deliberations of the Subcommittee.
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3.0 CROSSCUTTING ISSUES FOR MSW RESEARCH
The SAB MSWS recognizes that the EPA has a history of
productive research and development (R&D) in municipal solid waste
(MSW), albeit an interruption of MSW R&D coincident with an
increased emphasis on hazardous vaste. It is most appropriate to
recognize that the focus on MSW R&D must be renewed and that the
Agency has started to address the problems by first drafting a
comprehensive Municipal Solid Waste Research Agenda. This new
planning effort will do much to coordinate future work on the many
challenging MSW problems/ as well as to build upon ongoing
disparate efforts both within and outside the Agency.
The central and unifying concept of integrated waste
management should be based on sound science. The application of
this concept for planning the Agency's research program, and for
implementation of MSW regulations, nay resolve environmental
concerns of recent years.
3.1 INTRODUCTION AND OVERVIEW
The EPA Municipal Solid Waste Research Agenda provides an
important forum for presenting the views of the Agency on the need
for rational approaches to solid waste management, and the role
that fundamental and applied research can play in promoting this
goal. The public perception of issues related to solid waste, and
their response to solid waste management efforts and initiatives,
often reflect significant fear and misunderstanding. Media reports
speak of an impending garbage crisis that must be addressed*
However, these same reports often foster a fear of needed
facilities, for example, by promoting the belief that environmental
damage from landfills is inevitable, or that municipal incinerators
always pose a significant health hazard. This public fear is a
major component of the "not in my back yard11 (NIMBY) attitude which
limits the ability to site needed facilities. The EPA Research
Agenda should promote a recognition that solid waste management
is a public responsibility that must be met in a. rational,
technically sound manner. Research results obtained by ORD can
provide the scientific basis for developing such a technically
sound, integrated approach to solid waste management.
The introduction to the draft Research Agenda discusses at
length the serious dimensions of the garbage crises, highlighting
health and environmental risks from landfills and incinerators.
The discussion motivates the need for research to meet these needs,
but does so in a manner that suggests an emergency or "fire
fighting" approach to the problem. While these issues are
important, and should be discussed, more of the emphasis in the
introduction should be shifted toward a discussion of the
historical evolution of the solid waste problem and management
approaches, and the positive role that fundamental and applied
research can play in accelerating this evolution. The introduction
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should stress^.the important .contribution that research will make
toward improving' all phases'; of:"'the solid waste""management system,
ultimately leading to improved technologies and management
approaches that are deserving of public trust and support.
Goals and objectives should emphasize contemporary and future
needs, clearly separating new initiatives from past accomplish-
ments. Moreover, recognition of the budget and expertise necessary
to conduct the elements of the research plan, and that needed
within the user community to receive and apply the results of the
R & D efforts, should be clearly evident and embedded in the
research strategy. Accordingly, if technology development and its
transfer is impeded by personnel or budget needs, then the research
plan should acknowledge this and include the implications in the
overall strategy or approach.
3.2 PROGRAM FUNDING, RESOURCES AND PRIORITIES
CORRENT FUNDING ZS ONLY SUFFICIENT TO ACHIEVE LIMITED
SUCCESS III THE FORESEEABLE FUTURE.
Limited resources will materially inhibit the Agency's ability
to match knowledge with needs well into the foreseeable future.
This expected shortfall of resources should be clearly stated so
that it can be taken into consideration by any reader who expects
a large part of the draft Research Agenda to be fulfilled.
In its review of the MSW 'draft Research Agenda. the
Subcommittee realized that resource limitations, both funding and
the availability of qualified personnel, would prevent the Agency
-from undertaking all areas of research. The draft Research Agenda
identifies the six research areas in order of priority as viewed
by the Agency: 1) strategic planning, 2) source reduction, 3)
recycling, 4) thermal destruction, 5} land disposal, and 6) special
wastes.• The Subcommittee believes that these priorities should be
reordered, but did not wish to place rigid numerical rankings to
the research areas. It suggests a reordering of research
priorities according to a high, medium, or low scale and recommends
the following emphasis: High - source reduction and disposal in
landfills; Medium - strategic planning and recycling; and Low -
thermal destruction and special wastes.
Table 1 compares the research priority ranking of the draft
Research Agenda with that of the subcommittee for the six research
areas. This lasting and ranking was based upon perceived need
(i.e.,, risk-reduction opportunities associated with knojf^edge oap^X
^>y the MSW Subcommittee, and not uaen relafcfo^ quality or
comprehensiveness of existing and planned programs. Clearly the
latter should influence the Agency's decisions as well. For
example, land (landfill) disposal was given high priority? research
needs are great, but the research plan presented to the SAB needs
considerable redirection and development before the Agency
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addresses its priority, on the other hand, thermal destruction of
municipal solid waste was given a lower priority, in contrast to
its central importance to hazardous waste management. However, the
Agency may be reluctant to reduce the efforts currently given to
this mature research area, which is important to hazardous waste
management. Therefore, the Agency is cautioned to temper the
Subcommittee's recommendations based upon the desired end points
to be achieved, balancing existing, planned or overlapping
programs *
There are various reasons for the Subcommittee's research
priorities. Source reduction and landfill disposal are considered
high priority areas which need new impetus and technology-foreing
changes. Strategic planning is reduced in priority because many
decisions are already being made by local solid waste planning
agencies and undeveloped nationwide strategies cannot make or
contribute to the various local needs. Similarly, recycling is an
active area of private R&D and less Federal effort is needed.
Special wastes are considered low priority because most
solutions depend on various codisposal or codestruction options
which have been fairly well developed and have a reasonably high
potential for success when these technologies are applied.
ESTABLISHMENT OP PRIORITIES IS ESSEHTIXL
The Subcommittee considers that the menu of proposed projects
cannot be adequately addressed, given the limited levels of funding
available to the Agency. Consequently, the Subcommittee suggests
that projects must have clear priorities in order of importance to
the Agency. The Agency's perspectives on these priorities should
be shared with and reviewed by the technical and scientific
community intended to implement the draft Research Agenda.
Further, guidelines and contingencies for limiting or deferring
project initiatives should be developed, should this prove
necessary,
3.3 PROGRAM ANALYSES
TBS PROPOSED PROGRAM ELEMENTS OVERLAP. THERE IS A NEED TO
ASSESS INTERRELATIONSHIPS AMONG PROGRAMS AMD PROJECTS.
The program and projects described within the six
research areas have some overlap. Some of this overlap is
appropriate, since a given program or project can serve more
than one research area. An analysis of the relationship of
new programs or projects to current efforts also would be
helpful, e.g., the relationship between the project on "Expert
Systems for Municipal Solid Waste Management Decisions" to the
hard-copy decision-making guides now under revision. In a
broader sense, these factors may be better shown if a program
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Table 1 - MSW Subcommittee Consensus Banking
of MEW Research Needs*
A Draft
Research Area
- strategic planning
for Integrated
waste Management
- Source Reduction
- Recycling
- Thermal Destruction
Hierarchy
Heeds priorities
Medium
High
Medium
Low
- Disposal in Landfills 5
High
Rationale for
HfflfS Priorities
Methodologies are well along
in their development and local
and state agencies are already
using these techniques.
Likely to have greatest impact
over the long tern. Limited
existing knowledge.
Many new issues. Discovering new
problems. Limited existing
knowledge.
Mature research area. Technical
knowledge base is large, including
concomitant research for hazardous
waste. However, there are new issues for
air emission characterization and
control. Heed to better understand
metal speciation in incinerator
emissions, as well as products of
incomplete combustion. Ash disposal
problems.
Modern landfill designs require
higher technologies. Ultimate sink
for combustion and other residuals.
Limited research effort in last decade.
- Special Haste
Low
Redundant with other research areas.
Incorporate with other programs.
*KQX£: This relative ranking of priorities is based upon perceived needs, not upon the relative
quality or comprehensiveness of existing and planned programs. The agency is cautioned
to temper the above recommendations based upon the desired end points to be achieved, balancing
existing and planned programs. (Refer to appropriate text for further comment and reasons for
application of these rankings to new and existing programs.)
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analysis based on a matrix approach is initiated which links
program elements and their relative priorities,
3,4 AGENCY AS CATALYST
THE AGENCY SHOULD SERVE AS * CATALYST FOR CHANGE.
Generators look for savings in disposal cost or profit in
product or waste marketing. To the extent that the Agency can act
as a catalyst to enable the generator and waste manager to develop
beneficial solutions, it needs to prioritize its research program
and identify its role in the process.
The Agency should serve as a catalyst. This is a vital role
which should be refined and pursued. For instance, the Agency is
well suited for and has the capacity for information dissemination,
sponsoring conferences, providing decision tools, providing
technology evaluation expertise, catalyzing market and product
development, conducting environmental fate and effects studies,
conducting treatability studies, developing incentives, and
providing grants and loan support and similar supportive activities
as a catalyst for action at the local and state levels, as well as
encouraging private sector initiatives. This role needs to be
refined and pursued as part of the overall strategic long-range
implementation plan. The Agency also needs to be involved in
developing information and technology-foreing efforts such as the
study of socioeconomic patterns, existing consumer attitudes and
how these can be impacted, advantages and disadvantages of
landfills designed as bioreactors or dynamic operating systems, and
alternatives such as large-scale in-vessel composting and treatment
technology of concentrated wastes and recycling operation wastes.
Unless there is an overriding criterion related to protection
of the environment and human health, the Agency should not be
involved in specific product development (other than incentives
or grant support) and should not reinvent ongoing programs.
Numerous programs to label products based on their environmental
attributes and recycling guides are developing in the U.S. and
abroad. Thtt Agency should study these resource programs, assess
their strengths and weaknesses, determine what might be learned
from them and make information about them available, with an aim
toward determining if a government-based program is appropriate in
the U.S.
3.5 CONSOLIDATION OF EFFORTS
CONSOLIDATION OP WASTE CHARACTERIZATION EFFORTS IS PREPERJtEO
AS A MEANS TO PROVIDE A NATIONAL DATA BASE-
Basic waste characterization studies are ongoing or have been
completed by states, local governments, and industry. These studies
are being conducted at the level of detail needed e.g., specific
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data for local decision making. Nationwide data and broad averages
or characterizations are not needed, but consolidation of on-going
studies by regions or regional management would be valuable.
Similarly, consolidation of existing technology evaluations and
comparative studies of management strategies being developed at the
local government levels, universities, and by other countries
(e.g., in Canada and Europe) could ensure prudent use of limited
resources. This recommendation also applies to endorsement or
expansion of existing programs, such as an identification of
environmentally friendly products and certification, rather than
developing redundant, effort diluting, or competing initiatives.
3.6 OPTIMISING THE RESEARCH EFFORT
STRIKING THE RIGHT BALANCE IS NECESSARY TO ACHIEVE AN
EFFECTIVE RESEARCH AGENDA,
One of the Subcommittee's charges (see Appendix A) was to
evaluate the extent to which the Research Agenda provides an
appropriate' balance, among the six major .research' areas and the
various disciplines (engineering, monitoring effects, risk
assessment) that are brought to 'bear on each major • area, as
reflected in the enumeration and prioritization of specific
proj ects.
Recognizing the constraints imposed by limited resources and
competing demands that EPA research programs face in responding to
near-term regulatory needs, while attempting to maintain their core
research activities, the Subcommittee identified several aspects
of the .draft Research Agenda where a shift in balance may be
warranted, (see Section 3.2 and Table 1).
3.7 EDUCATION AND TRAINING
EDUCATION AMD TRAINING 18 NEEDED AT ALL LEVELS.
The proper translation and effective dissemination of research
results are important. The Agency's personnel resources are
insufficient to accomplish the proposed agenda. This will create
an impediment to implementation of the proposed research and its
timely application. Although there is some recognition of this
crucial element within project areas, this need should be evident
throughout the document and developed clearly and incisively as an
initiative complementing all other components of the research plan.
An innovative education program, at all levels of need, should
be developed in consort with the other elements of the research
plan. This program should address education and training needs of
personnel in local and state government as well as in the private
sector. The resources needed to implement an educational program
such as grants, fellowships, internships or other support
mechanisms should be developed.
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3.8 POLLUTION PREVENTION AND CONSERVATION
POLLUTIOH PREVENTION AMD CONSERVATION REQUIRE MEASURES
07 PROGRESS.
The draft Research Agenda reflects the Agency's commitment to
pollution prevention as a means of addressing a broad array of
environmental concerns. Implementing pollution prevention, which
manifests itself most directly in the research areas of source
reduction and recycling, requires research in and integration of
a combination of technological, economic, and social science
disciplines.
Better documentation of the benefits and methods of measuring
the effects of pollution prevention in terms of materials and
energy conservation, preservation of ecological resources, as well
as reduced MSW generation and pollution impacts is needed.
Heuristic approaches to the examination of the qualitative and
quantitative benefits would be a useful activity.
Research on identification of pollution prevention measures
and incentives/disincentives to their implementation is needed*
Further, it could be targeted at specific social and economic
sectors such as individual consumers and households, government at
all levels, business and industry, and other institutions.
3,9 INCENTIVES
INCENTIVES ARB HEEDED TO FACILITATE GOALS.
One way to address the problem of MSW management is with
programs to reduce the quantity of waste generated through source
reduction and by recycling to reduce quantities of waste sent to
landfills or incinerators. Various incentives (economic,
technical, and institutional) can facilitate these goals. In
addition, various incentives could be applied to help solve
environmental problems associated with technical approaches. For
example, if batteries are a principal source of mercury in thermal
destruction emissions from incinerators, economic or other
incentives could be employed to find a substitute for mercury in
batteries, to reduce the quantity of batteries in solid waste or
to facilitate the recovery of batteries from solid waste before
they are incinerated.
The current draft Research Agenda does not include research
on the development and testing of various incentives to achieve the
goals of the MSW research plan (See Reference flO, Appendix D,
pages 1-21 to 23), despite the fact that these approaches may be
among the most cost-effective. Included in this draft Research
Agenda, should be mechanisms to develop environmentally friendly
regulatory policies which examine the use of economic instruments,
such as deposits and discharge fees on certain products, or other
14
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such incentives. The goal is to have manufacturers incorporate
these policies into design, production, and marketing strategies.
Research should also seek institutional incentives, such as
the inclusion of life cycle costing provisions in procurement
procedures. Research could also be encouraged to identify those
areas in which human behavior modification would lead to reduced
or more environmentally acceptable solid wastes. Household,
business and industry, government, and institutional practices
should all be targets of such an incentive.
3.10 DATA COLLECTION AND MANAGEMENT
DATA COLLECTION, IHTERPRETATIOH AND THEIR UTILIZATION REQUIRE
CONSIDERATION Of BOTH STATISTICAL VALIDITY AMD HEURISTIC
REASONING.
The Agency considers it an important objective that
regulations should be developed from credible and reliable
technical information, one means to ensure that this objective can
be realized is for technical information to be based upon
statistically valid data. However, in view of the extensive menu
of proposed research projects and limited financial resources, th«
HSW Subcommittee does not perceive that, taken as a whole, the
realization of this objective can be ensured*
Therefore, the Subcommittee suggests that the process of
information development should entail not only an evaluation based
on statistically valid data, but should also include heuristic
reasoning, that is, mental rules of thumb which have been
established from a consideration of prior experience and knowledge
of a scientific nature which, by consensus, are considered valid
and credible within the scientific community. Substitution of
"rule of thumb" analyses for technical and scientific studies is
not being proposed.
It is not necessary to gather new data to answer every
question. One may frequently be able to use prior scientific
knowledge and reasoning. In developing this expanded base of
information upon which regulatory initiatives are founded, it is
considered important to harmonize opinions by first clearly
agreeing upon a consensus regarding the meaning (semantics) of
available information. Absent such agreement, conclusions used to
validate and defend regulations may remain unclear.
3.11 CORE RESEARCH
CORE RESEARCH SHOULD BE DEVOTED TO INCREASING SCIENTIFIC
UNDERSTANDING OF THE MAJOR PROBLEMS AND IDENTITY OF PROMISING
SOLUTIONS.
Some of the programs and projects seem suitable candidates for
15
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the ORD Core Research Program as a new effort by the Agency to
develop the resources and technology needed to address today's
environmental problems. Project selection should be made not by
immediate regulatory needs, but rather by the extent to which the
added science can increase understanding of major problems and
point to promising solutions. Candidate core research projects
should be identified,
3,12 RISK ASSESSMENT
RISK ASSESSHENT OF DISPOSAL OPTIONS SHOULD BE BROADENED TO
INCLUDE CONSIDERATION OF ASSOCIATED WELFARE AND TECHNOLOGICAL
RISKS.
Currently, planned risk assessments of disposal options
address human health and environmental (ecological) risks.
However, they should be broadened to include associated welfare
risk and perhaps technological risk. Welfare risks include
property devaluation, physical and mental discomfort, loss of a
resource such as groundwater and liability. Technological risks
include the probability and consequences of failure by various
modes. Some indication of the uncertainty associated with the
various estimates should be given, and the basis for the
uncertainty estimate should be indicated.
3.13 COMPOSITION OF POLLUTANTS
CHARACTERIZATION OF EMISSIONS AND COMPOSITION OF POLLUTANTS
IN RELATION TO POINTS OF K1PO8URE FROM MS* ACTIVITIES IS
NEEDED FOR ALL WASTE MANAGEMENT OPTIONS.
There is a need for continuing improvement in characterizing
emissions and/or effluents at the points at which people and the
environment are exposed for all of the waste management options.
At present, such characterizations are primitive or lacking for
some management options, without this information, it is difficult
to assess the potential risks/effects associated with the technical
options or to determine the need for these technologies.
It is important that expertise be sought when identifying
substances in liquid effluents and gaseous emissions from MSW
activities which represent significant potential human health and
environmental risks. Monitoring of regulated chemicals may not be
sufficient and may result in failure to detect the presence of some
substances which can significantly contribute to risk. it is
realized that effluents are complex mixtures which cannot be
completely characterized and which will vary not only with
management options, but also with location and over time. Given
this complexity, analyses based on partial characterization of
effluents are limited, and the Agency should consider ways to help
understand and overcome the limitations of current character-
16
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izations, including the extent and degree to which models are used
to estimate environmental levels,
Attention to various levels of measurement should be provided.
In terms of the consequences.related to public perception, and in
the absence of compelling risk-oriented evidence, one may question
the need to strive for or promote measurements at or below current
analytical limits. (See References #13, 14, 19 i 21, Appendix D).
4.0 DIRECTED COMMENTS ON THE DRAFT RESEARCH AGENDA
The following comments refer to the six research areas in the
draft Research Agenda. Reordering of priorities for research
'programs is suggested within each of the six areas.
4.1 SOURCE REDUCTION
SOURCE REDUCTION SHOULD BE A TOP RESEARCH PRIORITY IN THE
RESEARCH AGENDA.
Research priorities should include the development of social
science materials for an educational outreach program to begin to
change manufacturing and consumer habits and government procurement
policies at all levels, within the context of setting priorities,
Objective 2 of the "Strategic Planning Section of the draft Research
Agenda (Reference #10, Appendix D, page 2-6) probably should be
the first priority, as it relates to education of the public and
waste management planners*
As it relates to the six overall research areas, source
reduction should be a top priority in the draft Research Agenda.
A basic physical science R&D requirement, however, is to understand
what is in various types of wastes (e.g. urban, suburban,
commercial, manufacturing, etc.). This involves the development
of better waste characterization techniques. Characterization
studies should be approached in a site-specific manner and should
be linked to, the technology involved, avoiding the tendency of
engaging in generalities or national averages*•
The Subcommittee recognizes that the industry itself is, and
should be, engaged in the development of waste composition data.
There is a large amount of data in existence at the state and local
levels and numerous household, commercial, existing landfill, and
industrial waste studies are being conducted. Existing data need
consolidation and evaluation to be useful for management decisions,
The Agency can play an important role in the development,
interpretation, and dissemination of the data. It is important
that the data reflect state-of-the-art techniques and
understanding.
Product priorities need to be established based upon their
contribution to the waste stream (both in waste quantity and
17
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hazard), their susceptibility to redesign or remanufacture, and the
benefit derived, be it in reduction of hazard or quantity. Once
such product priorities are established, then the broad objectives
of the draft ResearchAgenda can become more viable. This should
include the development of economic incentive options for promising
source reduction and/or recycling techniques. Market factors are
important here. If it is cheaper to produce/dispose of a waste
than it is to repair, redesign or recycle, these may be impediments
to materials conservation.
The Subcommittee believes that source reduction research is
high priority because it is likely to have the greatest impact for
MSW management over the long term. Because this is a new approach
to the reduction of MSW, the Subcommittee advises that the Agency
should use care in clearly defining source reduction, in setting
goals and criteria, and establishing measures of performance for
this work.
4.1.1 Source Reduction Objective l - To establish models for
assessing environmentally preferable products, (page
2-14)*
Establishing standardized definitions, criteria for judging
and methods and models for conducting cost-benefit analyses to
develop preferable products would provide useful tools especially
if industry groups can be cooperatively involved in this
work—again focusing on the larger solid waste contributors.
4.1.2 Source Reduction Objective 2 - To identify and
evaluate the pollution generation characteristics of
both existing and new products and of changing-use
patterns, (page 2-14)*
There is a large body of information on major industrial
processes, (including material balances), both as developed by EPA
(effluent guidelines and previous ORD studies in the 1970's) and
by individual industries. The compilation of these data, as they
affect the solid wastes, would be an opportunity to identify
wasteful and/or waste saving practices.
4.1.3 Source Reduction Objective 3 - To develop a
methodology for measuring the impact and benefits of
source reduction, (page 2-15)*
The impact and benefits of management or technology changes
can be realized at the plant level and are constrained by such
factors as competitiveness between plants, between companies and
between countries. ORD may be able to enhance voluntary or
regulatory changes by developing general procedures, for management
and society, which may be used in establishing the impacts and
costs for change.
18
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4.1.4 Source Reduction Objective 4 - To identify
opportunities for source reduction and to conduct
source reduction opportunity assessments for a
variety of waste streams, (page 2-15)*
As noted elsewhere in this document, the Subcommittee believes
that identification of opportunities for source reduction and the
conduct of source reduction opportunity assessments for a variety
of waste streams should be a first priority for liD in order to
best focus on the resources that will be applied to meet the other
three objectives of Source Reduction. This objective should be
expanded to include source reduction in packaging.
In specific, research projects, the area to "Conduct Plastic
Degradability Studies To Determine The Effects That Plastics Have
On The Environment" should be expanded to include recycling.
The research area "Conduct Field Studies To Identify
Opportunities For Source Reduction" should place greater emphasis
on supporting research to find substitutes or alternatives to the
toxic components identified and traced., to their source,
4.2 RECYCLING
THE RECYCLING RESEARCH PROGRAM SHOULD BE COORDINATED WITH
THE SOURCE REDUCTION RESEARCH PROGRAM.
In specific research areas, assessment of data on health and
environmental risks of various recycling operations is
insufficient, -where, major toxic components are identified,
research on treatment alternatives should be conducted when
recycling or recovery options are not possible or likely.
The most immediate and obvious way for a local government to
reduce the volume of wastes that either have to be buried or burned
is through a recycling program. However, a recycling program
without proper market development is counterproductive.
Many communities are already engaged in recycling activities
and, therefore, lessons to be learned through the workshops
proposed in the draft Research Agenda could be beneficial with
respect to technology transfer to all who are responsible for MSW.
However, in order to develop a market for recycled materials, large
quantities of these materials must be separated and accumulated.
Accumulation of large quantities of materials for recycle without
links to viable markets will result' in a disposal problem.
There are problems with marketability of wastes such as paper,
Zn some instances, localities (governments and school systems) that
NOTE: Asterisked items (*) refer to Reference 110, Appendix D
with an appropriate page citation,
19
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are attempting to encourage recycling are not routinely purchasing
the recycled materials. This is an institutional problem,
involving costs and habit changes. Recycling opportunities should
be developed near the recycling center in order to maximize its
market and cost efficiencies. EPA and ORD educational materials
might be developed in order to examine the problems and possible
solutions.
The recycling research area should be coordinated with the
source reduction research area. Specifically, coordination of
recycling strategies with other strategies such as product redesign
are important, because product changes may affect their recycling
potential* For example, development of degradable plastics (bio
or photo) directly interferes with plastic recycling because
inadvertent incorporation of degradable plastics could endanger the
recycled product, increased pressure would thus be placed on waste
separation efforts which have already been identified as expensive
and hazardous to workers.
In the proposed project, entitled "Workshop on Wastestream
Components" (which is not research as it is typically defined by
the SAB), the Agency can expect to have an impact. This is an
important role for the Agency, especially since the Agency is just
beginning some of its proposed areas of research. Information
consolidation and dissemination is important, and the Agency is
ideally situated to contribute in this area, one area where the
workshops could be expanded into research is to provide financial
support for municipalities to identify the larger components of
their wastes and target them for recycling or other waste
management strategies. The program suggested for yard wastes (See
Reference #10, Appendix D, page 2-22) has similar needs for
information transfer.
The Agency should extend its perception of the composting
alternative, by fostering consideration of a regionalized concept
including integration with existing management options. Landfill
area, for example, could be dedicated to continuous composing
(aerobic or anaerobic), with recovery and beneficial use of the
compost at the landfill or elsewhere, including the rehabilitation
and recovery of marginal lands.
wast* separation studies (See Reference 110, Appendix D, page
2-22) and tfe* development of innovative technologies should build
on past and present experiences not only in the U.S., but
elsewhere. Development of cost reduction strategies can be
critical to the success of innovative recycling method* which may
reduce health risks to workers and should receive major research
attention. Reduction in the number of pickups per week, the
consequences of volume-based disposal rates, as well as
identification of waste type for improved segregation needs more
investigation. In addition, research is needed on better
techniques for segregation and pick-up at households and commercial
20
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establishments, supported by the development of community awareness
education materials. The proposals associated with assessing
health and environmental risks are good ideas, but if significant
risks are found, then research should be continued to solve the
problems.
With respect to the proposal to compare recycled products with
those made from virgin materials, there is a question as to how one
would go about selecting the products to be compared.
The suggestion to assist communities with respect to
alternative recycling options is appropriate. Separation methods
at the household and small group level need research. For example,
high-rise apartments and commercial enterprises have different
problems than a single-floor building. Any improvement in the
ability of communities to establish or improve recycling programs
can have large beneficial results.
4.3 THERMAL DESTRUCTION AND ASH RESIDUES
THERMAL DESTRUCTION AND ASH RESIDUES RESEARCH ARE MATURE
RESEARCH AREAS FACING IMPORTANT NEW ISSUES.
significant advances in combustion technology have been
achieved in the last decade. A substantial amount of knowledge
about combustion and incineration has been developed by research
for hazardous waste management. Recognizing these facts, the
high costs of combustion research and development, and the
limited knowledge base for' other MSW research areas, the
Subcommittee ranks the thermal destruction and ash residues
research program needs with a lower relative priority.
Nonetheless, the MSWS recognizes that important new research
issues exist -for combustion research*
Generally, the topics in this section are-appropriate.
However, the Subcommittee believes that revised priorities are
needed. Proposed areas of investigation for thermal treatment
and residue management should address volatile toxic metals;
first priority should be given to mercury control and monitoring,
and identification of mercury metal speclation in incinerator
emissions. .The speciati^n of chromium also deserves special
attention, as the relative amounts of trivalent and hexavalent
chromium in emissions dramatically affect the risks posed by
chromium emissions. Products of incomplete combustion from
organics should continue to be evaluated. (See Reference 119,
Appendix D).
Noticeably absent, but nevertheless important, research areas
that should be included in the Agency plans, are:
*
a) coordination of EPA's efforts on investigation and
mitigation of potential occupational exposures with
21
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other agencies such as NIOSH and OSHA,
b) long-term performance evaluations of equipment and
processes; and,
c) development of accelerated rate testing methodologies to
predict long-term performance of thermal destruction
processes and coordination with other testing activities
such as ASTM and the National institute for standards and
Technology (HIST)*,
Although the topics covered in this section are appropriate,
the Subcommittee believes that some reordering with respect to
priority is needed. High priority should be given to identifying
and developing effective methods for monitoring and capture of
metals, such as mercury and cadmium in MSW, in order to service
development of strategies for its removal and containment,
As an example, recent testing at several state-of-the-art MSW
incinerators has revealed low or even zero mercury capture
efficiency, despite the fact that they employed pollution control
technology and operating conditions intended to achieve efficient
capture. These findings, coupled with the fact that MSW
incinerators represent a major localized point source of mercury
emissions to the environment, argue for the importance of this
topic to thermal destruction research in the draft Research Agenda.
Further examination of the mechanisms of metal speciation in
incinerator emissions should also be a high-priority research
area. This should include research on a better understanding of
the dynamical behavior of various species, as influenced by
combustion and other operating conditions. There is some question
whether or not the requirements to carry out this objective go
beyond the current capability of the Agency. The speciation of
chromium in particular deserves additional attention, as the
relative amounts of trivalent and hexavalent chromium in emissions
dramatically affect the risks posed by chromium emissions.
Proper operation and maintenance of MSW incineration are
necessary. Long-term operational, maintenance and emissions
behavior characteristics of incinerators should be investigated in
order to identify and understand these systems and ensure their
reliability through their life cycle. The Subcommittee considers
this to be a high-priority area of research. With a view toward
mitigating any undesirable performance, investigations should
include efforts to further characterize emissions during excursions
from optimal combustion conditions, such as those which can
typically occur during start-up and shut-down, as well as upset
conditions.
*HOTE: Formerly known as the National Bureau of Standards.
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Similarly, data are needed concerning the long-term
performance of air pollution control (APC) equipment, and the
development of better methods for continuously monitoring such
performance. With respect to both combustion and APC performance,
reliable estimates are needed for the effects on emissions of
facility or equipment "aging* and variability in the frequency and
quality of equipment maintenance. The goal should be to have a
reliable understanding of probable emissions during the entire life
of a facility, accounting for the rang* of combustion conditions
and variability in performance that can reasonably be expected to
occur.
With regard to the necessity to mitigate any potential worker
exposures, "properly designed, operated, and maintained1* must mean
inclusively that emissions, such as from fugitive dusts from an
incinerator facility, shall be held to levels that are not of
regulatory concern. It appears that means are available to ensure
that unacceptable exposures do not occur. The subcommittee
believes that research to understand and characterize the present
risks from worker exposure Is very important, and that such
research should identify means to ensure that current and future
worker exposures will be mitigated. For instance, within the
present universe of incinerators, there is some concern that
unacceptable on-site occupational exposures of workers to adverse
conditions may have occurred, such as fumes at the tipping dock and
fugitive emissions of ash residues.
4.4 ASH RESIDUES
THE AGENCY MEEDS TO DEVELOP * COMPREHENSIVE RISK
ASSESSMENT METHODOLOGY FOR ASH RESIDUES.
The Subcommittee is in general agreement with the draft
Research Agenda's proposed research areas and their relative
priority for ash residues. As discussed above with respect to air
emissions,' speciation of -metals in incinerator ash deserves greater
attention, given the importance of such information in predicting
the potential for long-term releases of metals from the ash under
various environmental conditions. It is anticipated that the
development of reliable accelerated rate tests for characterizing
such releases' can enhance the predictive capabilities of ash
characterization methods. The Subcommittee recognizes that it is
well known that the development of accelerated rate tests is an
area of investigation that is difficult to pursue among most areas
of materials science, not just with regard to incinerator ash
residues, 'Given that accelerated rate tests are difficult to
develop, the Agency could establish an advisory panel to coordinate
research efforts with other groups, such as with the ASTM, ASME,
NSF, industry or with colleges and universities.
Two additional areas deserve attention in the draft Research
Agenda. First, EPA needs to develop a comprehensive risk
23
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assessment methodology for ash residues. while the Agency has
proposed such a methodology for incinerator air emissions (see
references #19 and f2Q, Appendix D), it has yet to complete its
development or to extend it to ash residues. Such a methodology
should account for the multiple pathways of exposure that may arise
during all stages of ash management, and for the full range of
health effects associated with ash-borne pollutants. Ash
management should recognize different ash types, for example fly
ash, bottom ash, and the mixture of both ashes.
Second, the Subcommittee takes the view that through a program
of research, the Agency must identify and implement means to ensure
that occupational exposures to ash residues, both within
incineration facilities and at ash disposal sites, are adequately
mitigated in all instances, in addition, as there is strong
interest to identify and implement means to reutilize some ash
residues, the Agency should conduct research, and coordinate work
with the coal, and other industry groups and EPRI, to establish
criteria to ensure that unacceptable occupational or general
population exposures will not occur in instances in which ash
residues are reutilized. Any unexplored areas of concern must be
addressed, such as criteria to protect masonry workers and road
construction crews.
4,5 DISPOSAL IN LANDFILLS
LANDFILL DISPOSAL RESEARCH DESERVES TOP PRIORITY.
The fundamental difficulty with this section of the draft
Research Agenda is that it appears to have been prepared from an
assortment of ideas, perceptions and favored projects rather than
a coordinated inspection of conditions, needs and proposed
solutions based upon state-of-the-art understanding and its
implementation and future refinements. It. is a somewhat
traditional discourse which lacks clear integration of the elements
of good science and engineering and their relevance.
The section on land disposal referencing landfills should be
rewritten, eliminating the elements of casual commentary, and
providing clear and more comprehensive descriptions of the
perceived problems and proposed solutions. (The section on Thermal
Destruction could be used as an appropriate guide.) The text is
often vague, misleading, may be taken out of context, does not
reflect cognizance of ongoing activities, and usually cannot stand
alone without questioning its meaning and significance. This then
has led to some proposed projects which, again, lack a cohesive
description of problems, research plans, purpose and expected
utility. Inconsistencies tend to make scientific and technical
credibility suspect, yet the priority of land (landfill) disposal
issues is as great as, if not greater than, all other elements of
the overall ORD draft Research Agenda. Therefore, they deserve a
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corresponding focus, development and integration with the other
research initiatives, '
In rewriting this section, the Agency should focus on an
examination of the advantages and disadvantages of landfills as
dynamic microbially-mediated processes which can be managed to
diminish them as generator sources of potential adverse health and
environmental impacts. At present, this is absent in the draft
Research,/ Agenda. Further, the research protocol overemphasizes
mechanical issues associated with containment systems, design,
"mining1*, closure and overall construction techniques. The section
emerges as an •assortment of statements without a convincing
synthesis of problem-oriented research and its justification.
Despite these shortcomings, the Subcommittee agrees that landfill
research is a top priority, since landfills will continue to be the
principal disposal 'te.chn4.cfue for many more years*
It should be noted that the public percfBrtlo** that future
landfills can .bje._eJL4-minated by other initiatives in MSB,management
is unrealistic. Basic research in landfill design is weak or
missing. Research,is needed in technology-forcing or developing
areas rather than additional review of past practices. Moreover,
codisposal of municipal sewage sludge in landfills with MSW is
widely practiced today. Its merits and limitations should be more
clearly identified, (This is also a topic addressed in Special
wastes Management.)
The new Clean Air Act draws attention to the characterization
of hazardous air pollutants (HAPs) and suggests that these
emissions from landfills be investigated.
4.6 SPECIAL WASTES MANAGEMENT
SPECIAL WASTES MANAGEMENT SHOULD BE INTEGRATED WITH THE
SEPARATE RESEARCH INITIATIVES.
The section on special wastes management, including
combustion residuals, sewage sludge and medical/infectious wastes
is recognized in the ORD draft Research Agenda as a relatively
new initiative which has received some priority treatment because
of current public perception. Yet the issue is a relatively old
one, and the section has been written to acknowledge this fact as
well as its relevance to other waste management procedures, such
as landfills and thermal combustion. In this sense, it is well
organized, but should be integrated with the separate research
initiatives. For example, since most of the identified special
wastes are incinerated, it may be productive to link these
research needs to other incineration initiatives.
An appealing aspect of the special waste management section
is the incorporation of scientific principles into the research
strategy, thereby reinforcing its technical merit. The already
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in-place medical/infectious waste management initiative is
appropriate and could benefit by a closer coordination with
developments in other areas of the draft Regeajcch J|genda_j In
this area, and in some oC the others, the possibilities of the
MITE program for development of innovative technologies should be
further explored. The discussion of the problems and
opportunities regarding sewage sludge management sets the stage
very well for the following research programs. The programs
themselves are focused on knowledge gaps and show innovation.
Land application information gaps for sewage sludge, such as
plant uptake of certain metals, and possibly certain organics,
and pathogen die-off (high priority), should be considered.
Table 2 summarizes the subcommittee's shift of priorities
from a technological viewpoint for the special waste management
research topics. The Subcommittee acknowledges that regulatory
and policy needs may dictate otherwise*
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Table 2 - Summary of Recommended Changes in Priorities
for Special Wastes Management Research Topics
Rationale for HSWS
Research Topic
Co-incineration and
co-disposal in landfills
Sludge as soil
conditioner
- Risk Assessment
- Co-composting with MSH
- Co-treatment and
co-disposal with HSH
Analysis of organic
emissions fro*
incineration
Continuous Monitoring
of incineration process
Thermophilic
anaerobic digestion
Conversion to liquid
fuel
Vertical reactor wet
oxidation for sludge
Sludge thickening and
dewater ing
Recoagendationa
Increase priority
Increase priority
Increase priority
Accept EPA priority
Accept EPA priority
Reduce priority
Reduce priority
Reduce priority
Reduce priority
Keep low priority
Keep low priority
Uncertainties about environmental impacts
need to tie resolved; significant and
promising disposal options,
An apparently acceptable disposal option;
may be beneficial to recovery of Marginal
Lands.
Broaden to include ecological, welfare,
and technological risks? evaluate qualita-
tively? do not limit to quantitative
assessment of health risks.
Agree with rationale given in praft.
Agree with rationale given in Draft.
Consider as topic for ORD's core
research program.
Methods are under development
for hazardous waste Incineration.
Technology is under development for
hazardous waste incineration.
Information available from full-scale
operations in Europe.
Process likely to lead to processing,
handling, and Marketing problems due
to expected toitlclty of liquid fuel
products. (Published information available
from US DOI studies.}
Agree with rationale given In
Technology developed and is being refined.
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APPENDIX A - THE CHARGE TO THE SUBCOMMITTEE
When considering a consolidated, multidiaciplinary Municipal
Solid Waste Research Program, what should the priorities among
the six principal research areas be?
Have all research needs, regulatory, as well as state and
municipal, been adequately identified, or are there other
additional issues that ORD should focus on? Is the plan
appropriate considering these needs?
Is there an appropriate balance among the research projects in
the engineering, monitoring, effects, and health risk and risk
assessment disciplines?
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APPENDIX B - ACRONYMS AND GLOSSARY OF TERMS
AEERL AIR AMD ENERGY ENGINEERING RESEARCH LABORATORY,
RTF, US EPA
APC AIR POLLUTION CONTROL
ASME AMERICAN SOCIETY OF MECHANICAL ENGINEERS
ASTM —•-—— AMERICAN SOCIETY OP TESTING MATERIALS
„ ENVIRONMENTAL CRITERIA AND ASSESSMENT OFFICE,
US EPA, ORD
— ENVIRONMENTAL ENGINEERING COMMITTEE of the US EPA,
SCIENCE ADVISORY BOARD
EPA —-—— U.S. ENVIRONMENTAL PROTECTION AGENCY (also US EPA,
and the AGENCY)
EPRI ——— ELECTRIC POWER RESEARCH INSTITUTE
FDA FOoD AND DRUG ADMINISTRATION
HAps HAZARDOUS AIR POLLUTANTS
HQ „ HEADQUARTERS OFFICE OF EPA IN WASHINGTON, D.C.
LCA -—-••»-— LIFE CYCLE ASSESSMENT
MITE MUNICIPAL (SOLID WAST!) INNOVATIVE TECHNOLOGY
EVALUATION PROGRAM
MSW -—-—— MUNICIPAL SOLID WASTE
MSWS —— MUNICIPAL SOLID WASTE SUBCOMMITTEE (also referred
to as the SUBCOMMITTEE)
MWC MUNICIPAL WASTE COMBUSTION
NSF — NATIONAL SCIENCE FOUNDATION
NICAD NICKEL-CADMIUM BATTERIES
NIOSH ——— NATIONAL INSTITUTE FOR OCCUPATIONAL SAFETY AND
HEALTH
NIMBY — NOT IN MY BACK YARD
NIST — NATIONAL INSTITUTE FOR STANDARDS AND TECHNOLOGY
(Formerly known as the National Bureau of Standards)
OAQPS —- OFFICE OF AIR QUALITY PLANNING AND STANDARDS, US EPA
OEETD ——— OFFICE OF ENVIRONMENTAL ENGINEERING AND TECHNOLOGY
DEMONSTRATION OF THE OFFICE OF RESEARCH AND
DEVELOPMENT, US EPA
ORD OFFICE OF RESEARCH AND DEVELOPMENT OF THE US EPA
OSHA — OCCUPATIONAL SAFETY AND HEALTH ADMINISTRATION
OSW »- OFFICE OF SOLID WASTE OF THE US SPA
OSWER OFFICE OF SOLID WASTE AND EMERG1NCY RESPONSE
OF THE US EPA
OTA OFFICE OF TECHNOLOGY ASSESSMEliT OF THE US CONGRESS
PIC — PRODUCTS OF INCOMPLETE COMBUSTION
POTW PUBLICLY-OWNED WASTEWATSR TREATMENT WORKS
RESEARCH
AGENDA "• US EPA, ORD, OEETD, Municipal Solid waste Research
Agenda. Draft, Deceufcer 22, If89 (also referred to
as draft Research Agenda and EPA draft report.)
RSD RESEARCH AND DEVELOPMENT
RREL RISK REDUCTION ENGINEERING LABORATORY, US EPA, ORD
RTp -. ,— RESEARCH TRIANGLE PARK, US EPA, ORD, NORTH CAROLINA
LABORATORY
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SAB — SCIENCE ADVISORY BOARD OP THE US EPA
WMDDRD —— WASTE MINIMI1ATION, DESTRUCTION AND DISPOSAL
RESEARCH DIVISION, US EPA, ORD LABORATORY
30
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APPENDIX C: BRIEFINGS AMD HANDOUTS
PRESENTED TO THE SAB'S MSWS ON
JANUARY 30, 1990
1) Active Tasks for Municipal Solid Waste Research
(DQ19/L/45/77), January 30, 1§90 - A presentation by
Robert Landreth, US EPA, Cincinnati, Ohio
2) Advisory Committee (A Briefing on Medical Waste) - A
presentation by Dr. Richard Nalesnik, EPA HQ, QEETD
3) C.C. Lee, George L. Huffman and Richard P. Nalesnik,
Summary of Current Medical Waste Management Knowledge, US
EPA, QRD, QEETD, RREL, WMDDRD, Thermal Destruction
Branch, Thermal Processes Section, Cincinnati, Ohio
45263 - A presentation by Dr. Richard Nalesnik, SPA HQ,
OESTD
4} Council of Governments (COG), state Infections Waste
Regulatory Programs, 1988 - A presentation by Dr. Richard
Nalesnik, EPA HQ, OEETD
5) EPA's Medical Waste Program - A presentation by Or. Richard
Nalesnik, EPA HQ, OEETD
6) Issues in Medical Waste Management, Background Paper,
Congress of the united states, Office of Technology
Assessment, Washington, D.C. 20510-8025, Excerpts and
presentation by Dr. Richard Nalesnik,- EPA HQ, OEETD
?) Medical and infectious Waste Management Research,
Hazardous Waste and Superfund Research Committee, FY 1991
Initiative - A presentation by Dr. Richard Nalesnik, EPA
HQ, OEETD
8} Municipal and Medical Waste Program Activities, Office
of Air Quality Planning and standards (OAQPS), Science
Advisory Board Review of Municipal waste Program,
Washington, D.C., January 30-31, 19tO - A presentation by
James Kilgroe, US EPA, RPT for OAQPSt MWC Emission Limits
9} MSW Research Agenda Health Effects Research Program -
A Presentation by H. Robert Dyer, EPA, RPT
10) Municipal Solid Waste Risk Assessment, Program History -
A presentation by Randy Bruins, ECAQ, Cincinnati, Ohio
11) Municipal Solid Waste Research, Recycling, FY90 - A
presentation by Jim Bridges, EPA Cincinnati, Ohio
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12) Municipal Solid Waste Research Agenda, ORD - A presentation
by Steve Lingle
13) MWC Emission Limits
14) Municipal Waste Combustion Program (Thermal Destruction),
Science Advisory Board Review of Municipal Wast* Program,
Washington, D.C., January 30-31, 1990 - a presentation by
James D. Kilgroe, Air and Energy Engineering Research
Laboratory (AEERL)
15) Office of Air Quality Planning and standards,
Municipal and Medical waste Program Activities
16) Office of Solid Waste, Municipal Solid Waste Program
17) office of Solid Waste, Municipal Solid Waste Program,
January 30-31, 1990, Comments for the SA1 - A presentation
by Steve Levy, osw
18) ORD Municipal Solid Waste Research Agenda, Municipal
Waste Combustion Residues, January 30-31, 1990 -
A presentation by Carlton Wiles, EPA, Cincinnati, OH
19) Science Advisory Board Review, ORD Municipal Solid Waste
Research Agenda, Integrated Waste Management, January 30-31,
1990 - A presentation by Carlton Wiles, RREL, Cincinnati,
OH
20) Science Advisory Board Review, ORD Municipal Solid Waste
Research Agenda, Municipal Solid Waste, January 30-31, 1990
- A presentation by Robert Landreth, US EPA/cincinnati,
21) Science Advisory Board Review, ORD Municipal Solid Waste
Research Agenda, Municipal Solid Waste, January 30-31, 1990
22) Sewage Sludge Research FY90 - A presentation by carl
Brunner, US EPA, Cincinnati
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APPENDIX D - RESOURCE MATERIAL AND REFERENCES CITED
1) Briefings and Handouts to the SAB (See Appendix c)
2) Fries, 'George P. and 'Dennis J. Paustenbach, "Evaluation
of Potential Transmission of 2,3,7-8-Tetrachloro-
Dibenzo-p-Dioxin-Contaminated Incinerator Emissions to
Humans Via Foods, ^ournal of Toxicology and Envlrpnmenfcal
Health. Vol 29, pages 1-43, 1990.
3) Levin, Arlene, David B. Fratt, Alfred Leonard, Randall J.F.
Bruins and Larry Fradkin, "Comparative Analysis of Health
Risk Assessments for Municipal Waste Combustors" (A paper
prepared under 08 EPA Contract No, 68-02-4396 and sub-
mitted for publication in the Journal of the Air and Waste
Management Association.)
4) Luken, Tom (Congressman from Ohio - 1st District), News
Releases entitled The Next "War Between the States1* The
Garbage Wars of the 1990's Unless We Pass "The Hazardous
and Solid Waste Management and Materials Reclamation Act
of 1989," (7 pages), October 3, 1989.
5) Office of Research and Development, Municipal Solid Waste
Research Agenda, A Presentation to the Science Advisory
Board, October 25, 1989.
6) OTA Report Brief, "Facing Americas' Trashs What Next for
Municipal Solid Waste, October 1989 (2 pages)* [Note:
Copies of the full OTA Report above, are available from
the Superintendent of Documents, U.S. Government Printing
Office, Washington, D.C., 20402-932S, (202) 783-3238, the
GPO stock number is 052-003-01168-9j the price is $16.00].
7) US EPA, Administrator's Response to the Science Advisory
Board Review of the Land Disposal Research Program,
November 25, 1987.
S) US EPA, Hazardous Waste Engineering Research Laboratory,
Cincinnati, Ohio, Waste Minimization Opportunity
Assffjment Manual. EPA/625/7-88/003, July 1988.
9) US EPA, Municipal Solid Waste Task Force, Office of Solid
Waste, A Presentation for Lee M. Thomas, Administrator of
the US EPA entitled Municipal Solid Waste; Agenda for
Action. .July 12, 1988.
10) US EPA, Office of Research and Development, Office of
Environmental Engineering and Technology Demonstration,
Municipal Solid Waste Research Agenda. Draft, Dec. 22, 1989.
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11) us IPA, Office of Solid Waste and Emergency Response, Th.e
of th« Municipal Solid Waste Task Force (EPA/530-SW-S9-Q19),
February 1989.
12) US EPA, office of Solid Waste and Emergency Response,
Characterization of Municipal Solid Waste in the United
States; 1990 Update, Final Report prepared by Franklin
Associates for the US EPA (EPA/530-SW-9Q-042).
13) US EPA, Science Advisory Board, Report of the Environmental
Effects, Transport and Fate Committee, Review of the
MunicipalWas^ ^ifrustion Research Plan. Final Report (SAB-
EETiFC-88-023), April 1988.
14) US EPA, Science Advisory Board, Report of the Environmental
Effects, Transport and Fate Committee, Evaluation of
Scj-entif^c Issues Related to Municipal Waste Comfr^yfclpnr
Final Report (SAB-EET&FC-88-25), April 1988.
15) US EPA, Science Advisory Board, Report of the Environmental
Engineering Committee, Review of the Office of Researchand
Development's Land Disposal Research Progrqa. Final Report
(SABHEEC-88-QQ3), October 1987,
16) US IPA, Science Advisory Board, Report of the Environmental
Engineering Committee, Review of the Office ofResearch and
Development'a Waste |f|.niaizatie^ Strategy, Final Report
(SAB-S1C-88-Q04), October 1987,
17) US EPA, Science Advisory Board, Report of the Environmental
Engineering Committee, Pollution Prevention Subcommittee,
Review of itpne Office of Research and Development Draft
Pollution Prevention Researchplant Reporfcto Congress,
Final Report (EPA-SAB-EEC-89-037), September 1989,
page 3 and 10-11.
18) US EPA, Science Advisory Board, Report of the Environmental
Engineering Committee, Risk Reduction Subcommittee, Review
of the Off^ce of Research and Development Draft Risk
ReductJ9n Core Research Program. Draft Report (EPA-SAB-
EEC-90-XXX), Jun* 1990.
19) us EPA, Science Advisory Board, Report of the Products of
Incomplete Combustion Subcommittee of the Science Advisory
Board, Review of OSW Proposed Controls for Hazardous Waste
Incineration Products of Incomplete Combustion, Final Report
(EPA-SAB-EC-004), January If90.
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20) US EPA, Science Advisory Board, Report of the Environmental
Engineering Committee of the Municipal Waste combustion Ash
Subcommittee of the Science Advisory Board, gjvj^a^.of the
ORD Municipal Wa^te ??fflkustion Ash Solidificajtl.p1n/S.tat>il-
izatjon Research Program. Final Report (EPA-SAB-EEC-90-QlQ),
March 1990.
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