[Federal Register Volume 59, Number 76 (Wednesday, April 20, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-9418]


[[Page Unknown]]

[Federal Register: April 20, 1994]


ENVIRONMENTAL PROTECTION AGENCY

[SWH-FRL-4875-7]

 

Recovered Materials Advisory Notice

AGENCY: U.S. Environmental Protection Agency.

ACTION: Notice of draft document for review.

-----------------------------------------------------------------------

SUMMARY: The Environmental Protection Agency today is providing notice 
of the issuance of a draft Recovered Materials Advisory Notice. Under 
section 6002 of the Resource Conservation and Recovery Act of 1976, EPA 
designates items that are or can be made with recovered materials and 
provides recommendations for the procurement of these items. EPA 
previously designated five items and combined the designations and 
recommendations in item-specific procurement guidelines. Executive 
Order 12873 directs EPA to change the process for designating items and 
providing recommendations. EPA now is to designate procurement items in 
a Comprehensive Procurement Guideline and to provide recommendations in 
related Recovered Materials Advisory Notices. Elsewhere in today's 
Federal Register, EPA is proposing its first Comprehensive Procurement 
Guideline. It designates the items for which the Recovered Materials 
Advisory Notice provides recommended recovered materials content 
levels. These recommendations are organized within the following 
product categories: vehicular products, construction products, 
transportation products, park and recreation products, landscaping 
products, and non-paper office products.

DATES: EPA will accept public comments on the recommendations contained 
in the draft Recovered Materials Advisory Notice until June 20, 1994.

ADDRESSES: The public must send an original and two copies of comments, 
referencing docket F-94-PRMP-FFFFF to the RCRA Information Center 
(5305), U.S. EPA, 401 M Street SW., Washington, DC 20460. Commenters 
wishing to submit Confidential Business Information (CBI), should 
submit an original and two copies of the CBI, referencing docket F-94-
PRMP-FFFFF, under separate cover to the Document Control Officer 
(5305), Office of Solid Waste, U.S. Environmental Protection Agency, 
401 M Street SW., Washington, DC 20460.
    Public comments and relevant documents are available for viewing at 
the RCRA Information Center (RIC), located in room M2616, at the EPA 
address listed above. The RIC is open from 9 am to 4 pm, Monday through 
Friday, excluding Federal holidays. To review docket materials, the 
public must make an appointment by calling (202) 260-9327. Materials 
may be copied for $0.15 per page.

FOR FURTHER INFORMATION CONTACT: For general information, contact the 
RCRA Hotline, (800) 424-9346, or, in the Washington, DC metropolitan 
area, (703) 412-9810. For technical information regarding the 
recommendations for the following individual items, contact the 
referenced EPA staff: Building insulation, structural fiberboard, 
laminated paperboard, cement and concrete containing GGBF slag, 
hydraulic mulch, and engine coolants--Dana Arnold, (202) 260-8518; 
plastic pipe, geotextiles, carpet, floor tiles and patio blocks, and 
playground surfaces and running tracks, Robin Moran--(202) 260-5066; 
yard trimmings compost--Hope Pillsbury, (202) 260-2797; traffic control 
devices and non-paper office products--Beverly Goldblatt, (202) 260-
7932. For all other technical information, contact Beverly Goldblatt, 
(202) 260-7932, or Dana Arnold, (202) 260-8518.

SUPPLEMENTARY INFORMATION:

Preamble Outline

I. Authority
II. Introduction
III. Recovered Materials Content
    A. Use of Minimum Recovered Materials Content Standards
    B. Methodology For Recommending Recovered Materials Content 
Levels
IV. Affirmative Procurement Programs
    A. General Recommendations
    B. Calculation of Product Content for Purposes of Certification
V. Recommendations for Vehicular Products
    A. Engine Coolants
    1. Preference Program
    2. Background
    3. Specifications
VI. Recommendations for Construction Products
    A. Building Insulation Products
    1. Rock Wool Insulation
    2. Fiberglass Insulation
    3. Polystyrene Rigid Foam
    B. Structural Fiberboard and Laminated Paperboard Products
    1. Preference Program
    2. Background
    3. Specifications
    C. Plastic Pipe and Fittings
    1. Preference Program
    2. Background
    3. Specifications
    D. Geotextiles and Related Products
    1. Preference Program
    2. Background
    3. Specifications
    E. Cement and Concrete Containing Ground Granulated Blast 
Furnace (GGBF) Slag
    1. Preference Program
    2. Background
    3. Specifications
    F. Carpet
    1. Preference Program
    2. Background
    3. Specifications
    G. Floor Tiles and Patio Blocks
    1. Preference Program
    2. Background
    3. Specifications
VII. Recommendations for Transportation Products
    A. Temporary Traffic Control Devices
    1. Preference Program
    2. Background
    3. Specifications
VIII. Recommendations for Park and Recreation Products
    A. Playground Surfaces and Running Tracks
    1. Preference Program
    2. Background
    3. Specifications
IX. Recommendations for Landscaping Products
    A. Hydraulic Mulch Products
    1. Preference Program
    2. Background
    3. Specifications
    B. Yard Trimmings Compost
    1. Preference Program
    2. Background
    3. Specifications
X. Recommendations for Non-Paper Office Products
    A. Office Recycling Containers and Waste Receptacles
    1. Preference Program
    2. Background
    3. Specifications
    B. Plastic Desktop Accessories
    1. Preference Program
    2. Background
    3. Specifications
    C. Remanufactured Toner Cartridges
    1. Preference Program
    2. Background
    3. Specifications
    D. Binders
    1. Preference Program
    2. Background
    3. Specifications
    E. Plastic Trash Bags
    1. Preference Program
    2. Background
    3. Specifications
XI. Recommendations for Miscellaneous Products

I. Authority

    The draft Recovered Materials Advisory Notice is published under 
the authority of sections 2002(a) and 6002 of the Solid Waste Disposal 
Act, as amended by the Resource Conservation and Recovery Act of 1976, 
as amended, 42 U.S.C. 6912(a) and 2962, and Executive Order 12873 (58 
FR 54911, October 20, 1993).

II. Introduction

    Section 6002 of the Resource Conservation and Recovery Act of 1976 
(RCRA) establishes a Federal buy-recycled program. RCRA section 6002(e) 
requires EPA to (1) designate items which are or can be produced with 
recovered materials and (2) prepare guidelines to assist procuring 
agencies in complying with affirmative procurement requirements set 
forth in paragraphs (c), (d), and (i) of section 6002. Once EPA has 
designated items, section 6002 requires that any procuring agency using 
appropriated Federal funds to procure those items must purchase them 
containing the highest percentage of recovered materials practicable.
    EPA previously issued five guidelines for procurement of products 
containing recovered materials: Cement and concrete containing fly ash 
(40 CFR part 249, 48 FR 4230, January 28, 1983), paper and paper 
products (40 CFR part 250, 53 FR 23546, June 22, 1988), re-refined 
lubricating oil (40 CFR part 252, 53 FR 24699, June 30, 1988), retread 
tires (40 CFR part 253, 53 FR 46558, November 17, 1988), and building 
insulation products (40 CFR part 248, 54 FR 7327, February 17, 1989). 
Each of these guidelines contains item designations and procurement 
recommendations for the designated items. Both the item designations 
and the procurement recommendations were then codified in the Code of 
Federal Regulations (CFR).
    In order to expedite the process of issuing procurement guidelines, 
Executive Order 12873 (58 FR 54911, October 22, 1993), which was signed 
by President Clinton on October 20, 1993, directs EPA to change the 
procedure used for designating items and providing procurement 
recommendations. Under the Order, EPA is to issue a regulation, known 
as a Comprehensive Procurement Guideline (CPG), which will contain the 
item designations, and a guidance document, known as a Recovered 
Materials Advisory Notice (RMAN), which will contain EPA's 
recommendations for purchasing the designated items. The Order further 
directs EPA to update the CPG annually and the RMAN periodically, after 
public comment, to reflect changes in market conditions. Under this 
procedure, EPA will continue to codify the item designations in the 
CFR, but not the recommendations. In accordance with the Order, the 
recommendations will be available in the guidance document (i.e., the 
Recovered Materials Advisory Notice).
    EPA is proposing the CPG concurrently in today's Federal Register. 
In the CPG, EPA proposes to consolidate the five existing procurement 
guidelines and the proposed new item designations into one document. 
Similarly, in today's draft RMAN, EPA is establishing a framework for 
consolidating the recommendations made in the five existing procurement 
guidelines and the recommendations for the proposed new procurement 
items into one document. The recommendations are organized into eight 
product categories corresponding to the categories used in the CPG: 
paper and paper products, vehicular products, construction products, 
transportation products, park and recreation products, landscaping 
products, non-paper office products, and miscellaneous products. When 
EPA finalizes the RMAN, the existing recommendations for paper and 
paper products will be found in the first category, the recommendations 
for re-refined lubricating oil and retread tires will be found in the 
vehicular products category, and the recommendations for building 
insulation products and cement and concrete will be found in the 
construction products category.
    Although EPA intends to consolidate the recommendations from the 
five existing procurement guidelines into the RMAN, they are not 
included in today's draft RMAN in order to avoid confusion over the 
scope of recommendations on which EPA is requesting comment. Notice of 
the issuance of the final RMAN will be provided when the CPG is issued 
as a final rule. At that time, the recommendations in EPA's existing 
procurement guidelines will be consolidated into the final RMAN.
    Later this year, EPA intends to issue a draft paper products RMAN 
for public comment. This additional draft RMAN will contain revisions 
to EPA's recommended recovered materials content levels for paper 
products and address a variety of issues that have been raised as 
procuring agencies have implemented affirmative procurement programs 
for paper products containing recovered materials. It also will 
incorporate the minimum content standards for specified uncoated 
printing and writing papers established in section 504 of Executive 
Order 12873. Federal executive agencies should note, however, that, 
beginning December 31, 1994, the standards in section 504 of the Order 
are applicable to their paper purchases whether or not EPA proposes to 
add them to the paper guideline. Federal executive agencies also should 
note that the Order requires them to purchase paper containing 
postconsumer recovered materials or specified recovered materials 
immediately.
    In addition to establishing the new framework, today's draft RMAN 
contains general recommendations for affirmative procurement programs, 
recommended recovered materials content levels for the 21 new items 
proposed for designation in the CPG, an increase in the recommended 
recovered materials content level of rock wool insulation, and a range 
of recommended recovered materials content levels for fiberglass 
insulation. (Both rock wool and fiberglass insulation were designated 
previously in the existing building insulation products procurement 
guideline.)
    Executive Order 12873 requires EPA to update the recommended 
recovered materials content levels periodically to reflect current 
usage of recovered materials in designated items. The Agency will 
establish a process for the public to provide current information about 
the percentages of recovered materials used in designated items. EPA 
intends to issue a Federal Register notice that will describe this 
process and provide information on how the public can participate. 
Today, the Agency is soliciting options for increasing public 
participation in developing the updates of the RMAN.
    Finally, since EPA uses acronyms for organizations and materials 
throughout this preamble, they are listed in Table 1 for the 
convenience of the reader. 

   Table 1.--Acronyms Used in the Recovered Materials Advisory Notice   
------------------------------------------------------------------------
    Acronym                               Term                          
------------------------------------------------------------------------
AASHTO          American Association of State Highway and Transportation
                 Officials.                                             
ASHRAE          American Society for Heating, Refrigeration and Air     
                 Conditioning Engineers.                                
ASTM            American Society for Testing and Materials.             
BOCA            Building Officials Council of America.                  
CABO            Council for American Builders Association.              
CPG             Comprehensive Procurement Guideline.                    
DWV             Drain, waste, and vent.                                 
E.O.            Executive Order 12873.                                  
EPA             Environmental Protection Agency.                        
GGBF            Ground granulated blast furnace (slag).                 
GSA             General Services Administration.                        
HDPE            High density polyethylene.                              
LDPE            Low density polyethylene.                               
PET             Polyethylene terephthalate.                             
PP              Polypropylene.                                          
PVC             Polyvinyl chloride.                                     
RCRA            Resource Conservation and Recovery Act.                 
RMAN            Recovered Materials Advisory Notice.                    
------------------------------------------------------------------------

III. Recovered Materials Content

A. Use of Minimum Recovered Materials Content Standards

    For most designated items, EPA recommends in today's draft RMAN 
that procuring agencies establish minimum recovered materials content 
standards. EPA stated in previous guidelines that the use of minimum 
content standards would satisfy the statutory requirement to procure 
products containing the highest levels of recovered materials 
practicable (see for example, 53 FR 23553, June 22, 1988).
    For some items, the use of minimum content standards is 
inappropriate because the product is remanufactured, reconditioned, or 
rebuilt (e.g., remanufactured toner cartridges). In these instances, 
EPA will recommend that procuring agencies use a substantially 
equivalent alternative to the minimum content standards approach. For 
example, in the case of toner cartridges, EPA recommends that procuring 
agencies establish a two-pronged program consisting of remanufacturing 
their expended toner cartridges and purchasing remanufactured toner 
cartridges when replacement cartridges are needed. Minimum content 
standards are inapplicable because the recovered material is the 
expended cartridge, rather than individual components used to produce a 
new cartridge.
    EPA notes that, under RCRA section 6002(i), it is the procuring 
agencies' responsibility to establish minimum recovered materials 
content standards, while EPA provides recommendations regarding the 
levels of recovered materials in the designated items. To make it clear 
that EPA does not establish minimum content standards for other 
agencies, EPA will no longer refer to its recommendations as recovered 
materials content ``standards,'' as was done in the existing 
procurement guidelines. Instead, EPA will refer to its recommendations 
as recovered materials content ``levels,'' consistent with RCRA section 
6002(e) and Executive Order 12873.
    The Order directs EPA to present, in the RMAN, ``the range of 
recovered materials content levels within which the designated recycled 
items are currently available.'' In meeting this provision, EPA will 
recommend ranges that reflect the best information available to the 
Agency about the use of recovered materials in the manufacture of a 
given item and that encourage manufacturers to use the maximum amount 
of recovered materials without compromising competition or product 
performance and availability. EPA recommends that procuring agencies 
use these ranges, in conjunction with their own research into the 
recovered materials content of items available to them, to establish 
their minimum content standards. In some instances, EPA will recommend 
one level (e.g., 100 percent recovered materials), rather than a range, 
because the item is universally available at that recommended level; 
EPA recommends that procuring agencies establish their minimum content 
standards at that level.

B. Methodology for Recommending Recovered Materials Content Levels

    EPA identified and evaluated pertinent data sources and information 
regarding the percentages of recovered materials contained in the items 
proposed for designation in the CPG. Prior to issuance of Executive 
Order 12873, EPA was considering five items for designation--
fiberboard, hydraulic mulch, plastic pipe, geotextiles, and compost. 
For these items, EPA reviewed previously-gathered data. For the other 
items, EPA reviewed and evaluated information obtained from product 
manufacturers. In addition, EPA gathered and evaluated publicly-
available information and information provided by other Federal 
agencies. Based on this information, EPA established a range of 
recovered materials content levels within which each of the items 
proposed for designation is available. In establishing the ranges, 
EPA's objective was to ensure the availability of the item, while 
challenging manufacturers to increase their use of recovered materials.
    EPA believes that a range of content levels is appropriate at this 
time for three reasons. First, EPA has only limited information on 
recovered materials content levels for the newly-designated items. 
Second, rather than being purchased centrally, many of these items will 
be purchased locally, meaning that the recovered materials content of 
these items is likely to vary substantially, making it problematic to 
recommend a single content level at this time. Third, the Executive 
Order directs EPA to propose an RMAN that presents ``the range of 
recovered materials content levels within which the designated recycled 
items are currently available.'' By recommending ranges, EPA believes 
that sufficient information will be provided to enable procuring 
agencies to set appropriate procurement specifications when purchasing 
the newly designated items.
    It is EPA's intention to provide procuring agencies with the best 
and most current information available to assist them in fulfilling 
their statutory obligations under RCRA section 6002. To do this, EPA 
will monitor the progress made by procuring agencies in purchasing 
designated items with the highest recovered materials content 
practicable and will adjust the recommended content ranges accordingly. 
EPA anticipates that, over time, the recommended ranges will narrow.
    As discussed above, EPA also is increasing the recommended 
recovered materials content level for rock wool insulation and adding 
recommended recovered materials content levels for fiberglass 
insulation, both of which were designated in the existing building 
insulation guideline. In the existing procurement guidelines, EPA 
recommended a single content level for each designated item. When 
changing these recommendations, in those instances where there is 
sufficient information on current manufacturing practices to determine 
that a single recovered materials content level is appropriate (e.g., 
rock wool insulation), EPA will recommend one. In other instances, EPA 
will recommend a range of recovered materials content levels (e.g., for 
fiberglass insulation).

IV. Affirmative Procurement Programs

A. General Recommendations

    An affirmative procurement program is an agency's strategy for 
maximizing its purchases of an EPA-designated item. RCRA section 
6002(i) requires that an affirmative procurement program consist of a 
minimum of four elements: (1) A preference program; (2) a promotion 
program; (3) procedures for obtaining estimates and certifications of 
recovered materials content and, where appropriate, reasonably 
verifying those estimates and certifications; and (4) procedures for 
monitoring and annually reviewing the effectiveness of the program. In 
addition, Executive Order 12873 requires an agency affirmative 
procurement program to encourage the electronic transfer of documents, 
the two-sided printing of government documents, and the inclusion of 
provisions in contracts, grants, and cooperative agreements that 
require documents to be printed two-sided on recycled paper.
    EPA discussed preference programs in the previous section of the 
preamble, in which EPA generally recommended that procuring agencies 
establish minimum content standards for designated items. This section 
of the preamble discusses promotion and monitoring. Certification is 
discussed in section IV.B.
    In previous guidelines, EPA recommended that specific actions be 
taken by requesting officials, contracting officers, and architects and 
engineers when purchasing designated items. In consulting with 
acquisition policy and requirements officials from several major 
Federal agencies, EPA determined that these item-specific 
recommendations did not provide enough flexibility for procuring 
agencies to determine the appropriate delineation of responsibilities 
for implementing the statutory requirements. Based on this information 
and because of the broad array of products proposed for designation 
today in the CPG, EPA will no longer make specific recommendations for 
individuals within an agency to implement the requirements of RCRA 
section 6002 and Executive Order 12873. Instead, EPA recommends that 
the Environmental Executive within each major procuring agency take the 
lead in developing the agency's affirmative procurement program and in 
implementing the recommendations set forth in this RMAN.
    The basic responsibilities of an Agency Environmental Executive are 
described in sections 302 and 402 of Executive Order 12873. Section 302 
charges each Agency Environmental Executive with coordinating all 
environmental programs in the areas of acquisition, standard and 
specification revision, facilities management, waste prevention, 
recycling, and logistics. Section 402(c) of the Order further requires 
each Agency Environmental Executive to track and report, to the Federal 
Environmental Executive, agency purchases of EPA-designated items. In 
the absence of such an individual, EPA recommends that the head of the 
implementing agency appoint an individual who will be responsible for 
ensuring the agency's compliance with RCRA section 6002 and Executive 
Order 12873.
    Although RCRA section 6002 and the Executive Order require 
procuring agencies to establish affirmative procurement programs for 
each EPA-designated item, EPA recommends that each agency develop one 
comprehensive affirmative procurement program with a structure that 
allows for the integration of new items as they are designated. EPA 
encourages agencies to implement preference programs for non-guideline 
items as well, in order to maximize their purchases of recycled 
products and foster markets for recovered materials.
    RCRA section 6002(i)(2)(B) requires each procuring agency to adopt 
a program to promote its preference to buy EPA-designated items with 
recovered materials content. The promotion component of the affirmative 
procurement program educates staff and notifies an agency's current and 
potential vendors, suppliers, and contractors of the agency's intention 
to buy recycled products.
    In the previous guidelines, EPA targeted its recommendations for 
promoting the affirmative procurement program at the agency's vendors 
and contractors. EPA has determined that the education of an agency's 
employees is also an important part of the promotion program. 
Therefore, EPA believes that an agency's promotion program should 
consist of two components: an internal promotion program and an 
external promotion program.
    There are several methods that procuring agencies can use to 
educate their employees about their affirmative procurement programs. 
These methods include preparing and distributing agency affirmative 
procurement policies, publishing articles in agency newsletters and 
publications, including affirmative procurement program requirements in 
agency staff manuals, and conducting workshops and training sessions to 
educate employees about their responsibilities under agency affirmative 
procurement programs.
    Methods for educating existing contractors and potential bidders of 
an agency's preference to purchase products containing recovered 
materials include publishing articles in appropriate trade 
publications, participating in vendor shows and trade fairs, placing 
statements in solicitations, and discussing an agency's affirmative 
procurement program at bidders' conferences.
    Procuring agencies should monitor their affirmative procurement 
programs to ensure that they are fulfilling their requirements to 
purchase items composed of recovered materials to the maximum extent 
practicable. RCRA section 6002(i)(2)(D) requires the affirmative 
procurement program to include procedures for annually reviewing and 
monitoring the effectiveness of agency affirmative procurement 
programs. Section 402 of Executive Order 12873 requires the 
Environmental Executive of each Executive agency to track and report on 
agency purchases of EPA-designated items. Additionally, RCRA section 
6002(g) requires OFPP to submit a report to Congress every two years on 
actions taken by Federal agencies to implement the affirmative 
procurement requirements of the statute. Also, section 301 of Executive 
Order 12873 requires the Federal Environmental Executive to submit an 
annual report to OMB, at the time of agency budget submission, on 
Federal compliance with the Order. In order to fulfill their 
responsibilities, EPA anticipates that the Federal Environmental 
Executive and OFPP will request information from Federal agencies on 
their affirmative procurement practices. Therefore, it is important for 
agencies to maintain adequate records of procurements that may be 
affected by Executive Order and RCRA requirements.
    In order to comply with the Executive Order, agencies will need to 
track their purchases of products made with recovered materials 
content. This will also allow them to establish benchmarks from which 
progress can be assessed. To maintain adequate records on procurement 
of products containing recovered materials, procuring agencies may 
choose to collect data on the following:
     The percentages of recovered materials content in the 
items procured or offered;
     Comparative price information on competitive procurements;
     The quantity of each item procured over a fiscal year;
     The availability of each item with recovered materials 
content; and
     Performance information related to recovered materials 
content of an item.
    EPA recognizes that a procuring agency may be unable to obtain 
accurate data for all items designated by EPA. However, EPA believes 
that, in many cases, estimated data will suffice in determining the 
effectiveness of the agency's affirmative procurement program.
B. Calculation of Product Content for Purposes of Certification
    RCRA section 6002(i)(2)(C) requires the affirmative procurement 
program to include procedures for estimating, certifying, and, where 
appropriate, reasonably verifying the amount of recovered materials 
content utilized in the performance of a contract. In addition, RCRA 
section 6002(c) requires contracting officers to obtain from vendors a 
certification ``that the percentage of recovered materials to be used 
in the performance of the contract will be at least the amount required 
by applicable specifications or other contractual requirements.'' When 
an item is made on a batch basis, the certification should be for the 
recovered materials content of the batch. However, batch certifications 
are not always possible; in those cases, certification of recovered 
materials use over a specified period of time is appropriate.
    Because each product will be different, in today's draft RMAN, EPA 
recommends that procuring agencies discuss certification with product 
vendors to ascertain the appropriate period for certifying recovered 
materials content. EPA recommends that, whenever feasible, the 
recovered materials content of a product be certified on a batch-by-
batch basis or as an average over a calendar quarter or some other 
appropriate averaging period as determined by the procuring agencies.

V. Recommendations for Vehicular Products

    Part B of the draft RMAN contains EPA's recommendations for 
vehicular products. EPA's existing recommendations for re-refined 
lubricating oil and retread tires will be placed in Sections B-1 and B-
2, respectively, in the final RMAN. Section B-3 contains EPA's 
recommendations for engine coolants.

A. Engine Coolants

1. Preference Program
    In today's draft RMAN, EPA recommends that procuring agencies whose 
vehicles are serviced by a motor pool or vehicle maintenance facility 
establish a program for engine coolant reclamation and reuse, 
consisting of either reclaiming the spent engine coolants on-site for 
use in the agencies' vehicles, or establishing a service contract for 
reclamation of the agencies' spent engine coolant for use in the 
agencies' vehicles.
    EPA has no information about the availability of reclaimed engine 
coolants for procurement as a product, although the Agency is aware 
that some local government agencies purchase reclaimed engine coolants. 
EPA requests information from manufacturers and purchasers about the 
performance, availability, and relative price of reclaimed engine 
coolants. EPA further requests information from public or private 
purchasers of reclaimed engine coolants about specifications used to 
procure this item.
    Procuring agencies should note that engine coolants can contain 
either ethylene glycol or propylene glycol. Because of chemistry 
differences, these two types of engine coolant currently must be 
reclaimed separately. Therefore, in order to implement an engine 
coolant reclamation program, EPA recommends that procuring agencies 
purchase only one type of engine coolant or establish procedures to 
prevent commingling of engine coolants containing ethylene glycol and 
propylene glycol.
    Procuring agencies also should note that, in some instances, spent 
engine coolant can exhibit the toxicity characteristic of hazardous 
waste by failing EPA's Toxicity Characteristic Leaching Procedure 
(TCLP). If a procuring agency determines that its spent engine coolant 
is a hazardous waste, it must manage the engine coolant in accordance 
with applicable Federal or state hazardous waste management 
requirements, including the generator requirements found in 40 CFR Part 
262 and the requirements for recyclable materials found in 40 CFR 
261.6. Because state hazardous waste regulations generally apply in 
lieu of the Federal regulations, procuring agencies should contact 
their state environmental agency (or, if the state is not authorized, 
the appropriate EPA Regional Office) for specific information on 
applicable requirements.
2. Background
    Engine coolants, also know as antifreeze, are a necessary 
automotive chemical. Engine coolants are manufactured from one of two 
chemicals: Ethylene glycol or propylene glycol. Coolant additives are 
then added to inhibit corrosion within the engine.
    Spent engine coolants can be reclaimed by removing contaminants and 
breakdown products of the original ingredients and by replacing 
corrosion inhibitors. Engine coolant reclamation is done in one of two 
ways: filtration or distillation. Reclamation results in both waste 
reduction and materials recovery benefits.
    There is one potential impediment to reclamation of engine 
coolants: the mixing of the two types of engine coolant, ethylene 
glycol and propylene glycol. Propylene glycol-based engine coolant has 
just recently been marketed nationwide for consumer purchase. Engine 
coolant reclaimers will reject spent engine coolant if it contains more 
than 1 percent propylene glycol because it interferes with their 
reclamation of ethylene glycol due to differences in the chemistry of 
the two materials.
    Military installations, the Postal Service, and some Federal 
civilian agencies have motor pools or vehicle maintenance facilities at 
which vehicles are serviced. The Postal Service informed EPA that it 
has established engine coolant reclamation programs at all of its 
vehicle maintenance facilities. Some Naval installations also reclaim 
spent engine coolants or contract for reclamation services. Limited EPA 
research revealed that one naval shipyard has been able to recover 
6,000 gallons of engine coolant annually. The Postal Service does not 
maintain quantitative statistics on its engine coolant reclamation 
program.
    EPA believes that other procuring agencies can successfully 
implement similar programs.
3. Specifications
    The American Society for Testing and Materials' (ASTM) D15 
committee on engine coolants has published standards for reclaimed 
engine coolants. Procuring agencies should refer to ASTM specifications 
D 3306 and D 4985.

VI. Recommendations for Construction Products

    Part C of the draft RMAN contains EPA's recommendations for 
construction products. Recommendations for specific items are in the 
following sections of the draft RMAN:
     Section C-1--building insulation products,
     Section C-2--structural fiberboard and laminated 
paperboard products,
     Section C-3--plastic pipe and fittings,
     Section C-4--geotextiles and related products,
     Section C-5--cement and concrete,
     Section C-6--polyester carpet, and
     Section C-7--floor tiles and patio blocks.

A. Building Insulation Products

    EPA recommended an affirmative procurement program for building 
insulation products in its 1989 procurement guideline (54 FR 7327, 40 
CFR part 248). Specifically, EPA recommended that procuring agencies 
use recovered materials content standards when purchasing cellulose 
loose-fill and spray-on insulation, perlite composite board, plastic 
rigid foam insulation, phenolic rigid foam insulation, and rock wool 
insulation. For fiberglass insulation, ``cellulosic'' fiberboards, and 
polystyrene rigid foam insulation, EPA recommended that agencies use a 
case-by-case approach to purchasing these items containing recovered 
materials, because either they were not reasonably available or there 
was insufficient competition for EPA to recommend content levels. 
Today, EPA is revising the recommendations to (1) increase the 
recommended content level for rock wool insulation, (2) recommend a 
range of recovered materials content levels for fiberglass insulation, 
and (3) recommend recovered materials content levels for structural 
fiberboard and laminated paperboard used for insulating purposes. This 
section explains the recommendations for fiberglass and rock wool 
insulation, while the fiberboard/paperboard recommendations are 
explained in section V.B below.
    Tables C-1 and C-2 of the draft RMAN contain the recommended 
recovered materials content levels for rock wool and fiberglass 
insulation products and for fiberboard and paperboard, respectively. 
The item designations and definitions for these products are found in 
40 CFR part 247.
1. Rock Wool Insulation
    EPA is increasing the recommended recovered materials content level 
for rock wool insulation products based on a Procurement Guidelines 
Advisory (PGA) issued by EPA in 1990 (September 10, 1990). The PGA 
presented information obtained through research on use of recovered 
materials by the rock wool insulation industry, which indicated that 
EPA's original recommended minimum content level for rock wool (50 
percent recovered materials) was below the current level of recovered 
materials typically being used by rock wool manufacturers. Based on a 
request from rock wool manufacturers and additional research, EPA 
decided to increase the recommended recovered materials content level 
for rock wool insulation to 75 percent recovered materials, thereby 
encouraging an increase in the amount of recovered materials used in 
rock wool procured by government agencies.
2. Fiberglass Insulation
    a. Preference program. In today's draft RMAN, EPA recommends that 
procuring agencies establish minimum recovered cullet content standards 
for fiberglass insulation, based on EPA's recommended range of 20-25 
percent recovered cullet.
    b. Background. At the time the building insulation products 
procurement guideline was issued, EPA could not identify any 
manufacturers that were using recovered materials to make fiberglass 
insulation on a routine basis. EPA was aware of several efforts on the 
part of manufacturers to do so, however. For this reason, EPA 
recommended that procuring agencies conduct market research to 
determine if fiberglass insulation containing recovered materials was 
available and, if so, try to obtain it on a case-by-case basis. EPA 
further recommended that procuring agencies use the case-by-case 
approach until they determined that fiberglass insulation containing 
recovered materials was reasonably available. Procuring agencies could 
then establish minimum content standards for use in purchasing 
fiberglass insulation.
    Since the guideline was issued, several developments have occurred 
that have caused EPA to revisit the feasibility of recommending that 
procuring agencies establish minimum content standards for fiberglass 
insulation. First, collection of postconsumer glass bottles has 
increased, and manufacturers now are using both pre- and postconsumer 
glass cullet to make fiberglass insulation more routinely than when the 
insulation guideline was issued. Second, in 1991, the State of 
California enacted the Fiberglass Recycled Content Act, A.B. 1340, 
mandating that fiberglass manufactured and sold within the State 
contain specified percentages of cullet; manufacturers have been 
producing fiberglass insulation meeting these percentage requirements. 
Third, in 1993, the ASTM published consensus Standard Specification D 
5359, Glass Cullet Recovered from Waste for Use in Manufacture of Glass 
Fiber. This specification is aimed at improving the quality of glass 
cullet supplied to fiberglass insulation manufacturers. It creates 
three grades of glass cullet and specifies the chemical composition, 
color mix ratio, contaminants restrictions, and particle size for each 
grade.
    The California legislation mandates a ``cullet'' content of 10 
percent in 1992, increasing to 20 percent in 1994. ``Cullet'' includes 
both postconsumer bottle glass and any other glass not generated by 
fiberglass manufacturing. The law also requires that the content 
increase to 30 percent in 1995, if it is determined, based on a public 
meeting to be held in 1994, that the higher content level is feasible.
    Fiberglass insulation manufacturers indicated to EPA that, based on 
the availability and cost of recovered cullet meeting their feedstock 
specifications, they can now produce fiberglass insulation containing 
20 percent recovered cullet. They further indicated that, since the 
California law required them to increase cullet usage in fiberglass 
insulation manufactured or sold in the State, they believed that 
supplies of recovered cullet would increase, and they could increase 
cullet content in products available nationwide to 25 percent beginning 
in 1997.
    From our research and the additional information provided by the 
fiberglass manufacturers, EPA concludes that fiberglass insulation 
containing 20 percent recovered glass cullet is now reasonably 
available nationwide. EPA further concludes that fiberglass insulation 
containing postconsumer glass bottle cullet is not reasonably available 
due to inconsistent supplies of postconsumer glass cullet meeting the 
industry's specifications.
    Given the fluctuations in price and availability of cullet meeting 
the fiberglass manufacturers' specifications, however, EPA believes 
that some manufacturers will be able to use 25 percent cullet at some 
of their plants now, while others may not be able to use 25 percent 
cullet even in 1997. For this reason, EPA is recommending a recovered 
materials content range of 20-25 percent cullet. Using this range, 
procuring agencies should establish their minimum content standards for 
fiberglass insulation at the highest level practicable.
    c. Use of postconsumer glass bottle cullet. EPA is aware that there 
are insufficient markets in some parts of the U.S. for postconsumer 
glass bottle cullet collected through municipal solid waste programs 
and that fiberglass insulation is a potential market for this material. 
Fiberglass manufacturers have experienced problems obtaining 
postconsumer glass bottle cullet that meets their feedstock quality 
specifications, however. EPA requests information on the feasibility of 
establishing a postconsumer cullet standard for fiberglass insulation 
to create a market for these materials. In particular, EPA requests 
information about the sources, availability, and cost of postconsumer 
cullet meeting the fiberglass manufacturers' feedstock quality 
specification and, in light of this information, recommendations for 
the minimum postconsumer cullet content levels that are practicable.
    d. Specifications. As previously discussed, in 1993, ASTM issued a 
standard for the composition of cullet used in the manufacture of 
fiberglass insulation. EPA wants to ensure that procuring agencies are 
aware of this standard so that they can promote the availability of 
consistent supplies of recovered cullet meeting the feedstock 
specifications of the fiberglass manufacturers.
3. Polystyrene Rigid Foam
    Polystyrene rigid foam insulation was included in the scope of the 
original building insulation products procurement guideline, but EPA 
did not recommend a recovered materials content level for this item 
because it was commercially unavailable containing recovered materials. 
EPA now is aware of one manufacturer using recovered materials. One 
manufacturer does not constitute adequate competition, however.
    Therefore, EPA requests information on other manufacturers of 
polystyrene rigid foam insulations using recovered materials. EPA is 
interested in learning the type(s) and percentage(s) of recovered 
materials used by each manufacturer.

B. Structural Fiberboard and Laminated Paperboard Products

1. Preference Program
    In today's draft RMAN, EPA recommends that procuring agencies 
establish minimum recovered materials content standards for use in 
purchasing structural fiberboard and laminated paperboard products, 
whether for insulating, structural, or decorative applications. EPA 
recommends that the standards be based on the content levels shown in 
Table C-2 of the draft RMAN.
2. Background
    Structural fiberboard and laminated paperboard products, whether 
used for insulating or for structural applications, are manufactured 
with a variety of recovered materials. In structural fiberboard, the 
recovered materials used include wood wastes, bagasse (sugar cane 
waste), over-issue newspapers and magazines, and postconsumer 
newspaper, corrugated, and mixed paper. In laminated paperboard, 
postconsumer paper is the principal recovered material used, including 
old newspapers and old corrugated containers. In structural fiberboard 
products, the range of recovered paper content is 18 to 100 percent, 
with most manufacturers now using 20 percent postconsumer recovered 
paper. In laminated paperboard products, two of the manufacturers use 
100 percent postconsumer paper, while the third manufacturer uses 
varying percentages of postconsumer recovered paper, depending on 
customers' specifications.
    RCRA section 6002 emphasizes postconsumer content in the case of 
paper. Consistent with the Act and because paper and paperboard are the 
largest components of the municipal waste stream, EPA believes that it 
is important to foster markets for postconsumer recovered paper. EPA 
emphasized postconsumer content for most grades of paper and paperboard 
in the 1988 paper procurement guideline. In today's draft RMAN, EPA 
recommends postconsumer recovered paper content levels for both 
structural fiberboard and laminated paperboard products.
    EPA does not believe, however, that Congress intended for use of 
postconsumer paper to increase in all products at the expense of other 
recovered materials. Doing so would simply substitute one component of 
the waste stream--paper--for other components. Doing so could also 
endanger established markets for the other components. Therefore, we 
believe that it is appropriate when purchasing products, such as 
structural fiberboard, that can contain other recovered materials in 
addition to paper, to encourage continued use of these other recovered 
materials as well. The recovered materials content levels recommended 
today for structural fiberboard products balance usage of both kinds of 
recovered materials and recognize that these products create a market 
for bagasse and wood wastes, as well as for postconsumer paper.
    a. Structural fiberboard products. There are seven manufacturers of 
structural fiberboard. Table 2 shows the current recovered materials 
content of their products. While one manufacturer of structural 
fiberboard products is able to use 100 percent postconsumer recovered 
paper, the other manufacturers are not able to do so. These other 
manufacturers use different processes and equipment that were not 
designed to handle larger percentages of recovered paper. Fiberboard is 
made from a watery pulp which is deposited on a screen, after which 
water is vacuumed off. Because paper holds water, introduction of 
levels of recovered paper greater than 20 percent requires a reduction 
in the speed of the production line in order to dry the board. As a 
result, production costs increase.

Table 2.--Recovered Materials Content of Structural Fiberboard Products 
------------------------------------------------------------------------
                Percentage                                              
 Manufacturer                        Type of recovered materials        
------------------------------------------------------------------------
Company A.....        100   Postconsumer newspapers.                    
Company B.....         60   Recovered wood, postconsumer and over-issue 
                             paper.                                     
                       80   Bagasse.                                    
Company C.....         20   Postconsumer paper.                         
Company D.....          5   Postconsumer newspaper and corrugated.      
Company E.....          0   Experimenting with up to 25 percent         
                             postconsumer/over-issue newspaper.         
Company F.....      10-15   Postconsumer newspaper.                     
Company G.....          0   Experimenting with up to 10 percent         
                             postconsumer newspaper.                    
------------------------------------------------------------------------

    Based on this information, EPA proposes that procuring agencies 
establish a two-part minimum recovered materials content standard for 
use in purchasing structural fiberboard, consisting of a postconsumer 
recovered paper component and a recovered materials component. In 
today's draft RMAN, EPA recommends content levels of 20 percent for the 
postconsumer recovered paper component, and 40-80 percent for the 
recovered materials component. In other words, EPA recommends that 
structural fiberboard products contain a total recovered materials 
content between 60 and 100 percent recovered materials, including 20 
percent postconsumer recovered paper. This standard challenges those 
manufacturers using less than 20 percent postconsumer recovered paper 
to increase their usage of these materials. At the same time, it 
recognizes that several structural fiberboard manufacturers utilize 
high percentages of other recovered materials.
    As shown in Table 2, some manufacturers are now using postconsumer 
recovered paper in combination with over-issue paper (a preconsumer 
material). Under today's recommended recovered materials content level, 
the use of over-issue recovered paper cannot be counted toward the 
postconsumer recovered paper component but would count toward the total 
recovered materials content.
    b. Laminated paperboard products. EPA knows of three manufacturers 
of laminated paperboard products that use recovered materials. Two 
manufacturers use 100 percent postconsumer paper. The third 
manufacturer uses varying amounts of postconsumer paper, depending on 
its customers' specifications. Based on this information, EPA is 
recommending recovered materials content levels for laminated 
paperboard products of 100 percent postconsumer recovered paper.
3. Specifications
    a. Structural fiberboard products. The primary product standard 
used for structural fiberboard products is ASTM C 208, Insulating Board 
(Cellulosic Fiber), Structural and Decorative. Fiberboards made with 
wood, bagasse, and paper can satisfy this standard. However, the 
specification lists wood and ``cane,'' but not paper, as cellulosic 
fibers, and does not include floor underlayment and roof overlay, two 
products which are made by a structural fiberboard manufacturer using 
100 percent postconsumer paper. Therefore, in today's draft RMAN, EPA 
recommends that procuring agencies reference the technical requirements 
of this standard and specify that structural fiberboard products made 
from recovered paper and products such as floor underlayment and roof 
overlay are included.
    Another pertinent specification is the American National Standard 
for Cellulosic Fiberboard (ANSI/AHA A194.1-1985). It neither requires 
use of virgin materials nor precludes use of recovered materials and, 
therefore, is appropriate to use with structural fiberboard products 
containing recovered materials.
    In addition, the American Society of Heating, Refrigeration and Air 
Conditioning Engineers (ASHRAE) provides thermal ratings for 
``vegetable'' fiberboards including ``homogeneous board from repulped 
paper'' used as building board.
    b. Laminated paperboard products. No ASTM or other single 
specification exists that contains requirements for laminated 
paperboard. However, laminated paperboard products are tested using 
some of the standards specified in product and testing specifications 
for structural fiberboard. Additionally, laminated paperboard products 
are tested against major codes, including Federal Housing 
Administration, the Council for American Builders Association (CABO), 
the Building Officials Council of America (BOCA), and the International 
Conference of Building Officials. Reports of both CABO and BOCA provide 
results of tests of laminated paperboard products. ASHRAE also provides 
thermal ratings for laminated paperboard products.
    c. ``R''-values. As with other products made with recovered 
materials, EPA believes that specifications for structural fiberboard 
and laminated paperboard products should focus on performance 
requirements. For insulating products, energy value or ``R'' value, is 
a principal performance standard. EPA was told that ``R'' value 
specifications, if set at inappropriately high levels, can be used to 
preclude products made with recovered materials. In today's draft RMAN, 
EPA recommends that agencies review their specifications and revise 
them as appropriate to obtain the appropriate ``R'' value needed 
without unnecessarily precluding the purchase of products containing 
recovered materials.

C. Plastic Pipe and Fittings

1. Preference Program
    In today's draft RMAN, EPA recommends that procuring agencies 
establish minimum recovered materials content standards for use in 
purchasing plastic pipe and fittings for the following non-pressure 
applications: Drainage; sewer; drain, waste and vent (DWV); and 
conduit. EPA recommends that procuring agencies establish the standards 
within the range of recovered materials content levels shown in Table 
C-3 of the draft RMAN.
2. Background
    Plastic pipe and fittings are currently manufactured with recovered 
PVC and HDPE. The following sections and Table 3 provide information on 
the current availability of pipe and fittings containing recovered 
materials for the non-pressure applications covered by this guideline. 
Each entry on Table 3 reflects data from a manufacturer; however, 
manufacturers names are not listed. It should be noted that some 
manufacturers produce more than one product (e.g., both corrugated and 
smoothwall drainage pipe).

         Table 3.--Recovered Materials Content of Plastic Pipe          
------------------------------------------------------------------------
                                        Postconsumer     Total recovered
Pipe application         Resin            materials         materials   
                                          (percent)         (percent)   
------------------------------------------------------------------------
Corrugated drain.  HDPE.............  20-50...........  55.             
                   HDPE.............  30..............  100.            
                   HDPE.............  Up to 100.......  100.            
                   HDPE.............  20-50...........  40-50.          
                   HDPE.............  100.............  100.            
Smoothwall drain.  HDPE.............  20..............  55.             
                   HDPE.............  85..............  100.            
                   HDPE.............  Up to 100.......  Up to 100.      
                   HDPE.............  Not available...  Not available.  
                   PVC..............  0...............  Up to 100.      
Sewer............  PVC..............  0...............  20-30.          
                   PVC/HDPE.........  0...............  40-100.         
                   HDPE.............  Not available...  Not available.  
                   PVC..............  Up to 100.......  Up to 100.      
Drain, waste and   PVC/HDPE.........  40-100..........  40-100.         
 vent (DWV).                                                            
Conduit..........  PVC..............  Not available...  Not available.  
------------------------------------------------------------------------

    a. Drainage. EPA has identified 10 manufacturers of drainage pipe 
(both corrugated and smoothwall) using total recovered materials 
contents ranging from 40 to 100 percent. Six of the 10 manufacturers 
reportedly use up to 100 percent total recovered HDPE. Eight of the 10 
drainage pipe manufacturers use postconsumer HDPE as well, ranging from 
20 to 100 percent. Thus, the majority of drainage pipe manufacturers 
that use recovered materials are currently using postconsumer resin, 
which indicates to EPA that the technical feasibility of manufacturing 
drainage pipe with up to 100 percent postconsumer materials has been 
adequately demonstrated. Therefore, for drainage pipe and fittings, EPA 
recommends minimum postconsumer recovered materials content levels 
between 40 and 100 percent.
    Based on the information in Table 3, there is no substantial 
difference in the range of recovered materials for corrugated and 
smoothwall pipe. Therefore, EPA recommends that procuring agencies 
establish one recovered materials standard to cover both types of 
drainage pipe.
    EPA believes that manufacturers have demonstrated that it is 
technically feasible to produce drainage pipe made with up to 100 
percent postconsumer HDPE. However, EPA requests comment on whether 
there is an adequate supply of quality postconsumer HDPE feedstock to 
meet the needs of the drainage pipe market.
    b. Sewer. EPA has identified four manufacturers of sewer pipe made 
of recovered materials ranging from 20 to 100 percent. Although two of 
these manufacturers reportedly use HDPE, EPA understands that PVC is 
the dominant resin used in the manufacture of sewer pipe. The American 
Plastics Council reported that only 0.2 percent of postconsumer PVC 
sold in 1992 was recycled, compared with a 5 percent recycling rate for 
postconsumer HDPE. Postconsumer PVC is not as widely available as 
postconsumer HDPE. Therefore, for sewer pipe and fittings, EPA is 
recommending total recovered materials content levels of 40 to 100 
percent, rather than postconsumer recovered materials content levels. 
EPA requests comment on whether there is an adequate supply of quality 
postconsumer PVC to justify recommending postconsumer content levels. 
Further, EPA seeks information on the availability of any standards, 
such as described above in section VI.A.2 for glass cullet, that are 
being used to specify the quality requirements of postconsumer PVC 
feedstock, which would aid in fostering increased markets for this 
material.
    c. DWV. EPA has information on only one manufacturer of DWV pipe, 
who reportedly uses 40 to 100 percent recovered PVC or HDPE. However, 
it is likely that there are other manufacturers of DWV pipe that use 
recovered materials, but do not market their product as such. EPA 
understands from discussions with pipe industry representatives that 
PVC is the dominant resin used in DWV manufacturing. EPA is not 
recommending postconsumer recovered materials content levels for DWV 
pipe at this time, for the reasons cited above for sewer pipe. Rather, 
for DWV pipe and fittings, EPA recommends minimum recovered content 
levels in a range of 40 to 100 percent total recovered materials 
content. EPA seeks information on other manufacturers of DWV pipe made 
from recovered materials, including the percentages of total recovered 
resin and postconsumer resin and the type of resin used.
    d. Conduit. EPA understands that PVC is the dominant resin used in 
the manufacture of conduit. Available information indicates no 
technical reasons why conduit could not contain recovered resin, 
because the manufacturing process and performance requirements are 
similar to those for the other types of pipe covered by the 
Comprehensive Procurement Guideline. Therefore, for conduit, EPA 
recommends recovered materials content levels in the range of 40 to 100 
percent total recovered materials--the same range recommended for the 
other types of pipe. Due to the low availability of postconsumer PVC 
feedstock, EPA is not recommending postconsumer recovered materials 
content levels for conduit at this time.
    EPA has not identified manufacturers of conduit who market their 
product as containing recovered resin, although EPA believes that at 
least one manufacturer is currently using recovered materials. 
Therefore, EPA requests information on the manufacture of conduit 
containing recovered resin and the percentage of recovered materials 
used.

3. Specifications 

    ASTM has approximately 20 standards for non-pressure HDPE and PVC 
pipe. (These standards are listed in the feasibility study for a 
plastic pipe procurement guideline, which has been placed in the docket 
for today's draft RMAN.) The materials specifications of some of these 
standards explicitly require the use of virgin resin; others neither 
allow nor preclude recovered materials content. Manufacturers who use 
recovered resin in their pipe products cannot meet the virgin materials 
requirement of some ASTM standards; however, they can receive 
verification by independent testing labs that their products meet the 
performance requirements contained within those standards. For the past 
few years, many members of ASTM have been interested in allowing the 
use of recovered materials, either by revising existing material 
requirements or developing new standards. However, ASTM's process of 
revising or developing a standard often takes several years. ASTM 
currently has a few projects to develop new standards, or revise 
existing standards, that allow recovered resin in certain non-pressure 
pipe applications.
    In today's draft RMAN, EPA recommends that procuring agencies 
evaluate the ASTM standards which pertain to their pipe applications to 
determine whether those standards preclude the use of recovered resin. 
If the applicable ASTM standard precludes recovered materials, EPA 
encourages procuring agencies to purchase pipe that is certified to 
meet the applicable ASTM performance requirements, in lieu of being 
``ASTM approved''. Procuring agencies also are encouraged to review 
their own construction specifications and revise them to allow for pipe 
meeting the ASTM performance standards and made from recovered 
materials.
    The American Association of State Highway and Transportation 
Officials (AASHTO) Standard M 252-93, ``Corrugated Polyethylene 
Drainage Tubing,'' also precludes the use of recovered resin. EPA 
understands that some members of AASHTO are evaluating whether 
sufficient testing and performance data exist to consider revising this 
standard to allow for pipe made of recovered materials. EPA encourages 
revision of the AASHTO standard if the technical data satisfy the 
concerns about the performance of plastic pipe containing recovered 
resins.

D. Geotextiles and Related Products

1. Preference Program
    In today's draft RMAN, EPA recommends that procuring agencies 
establish recovered materials content standards, based on the recovered 
materials content levels shown in Table C-4 of the draft RMAN, for use 
in purchasing geotextiles. EPA further recommends that procuring 
agencies establish recovered materials content standards for the 
geotextile component of a geocomposite based on the recovered materials 
content levels shown in Table C-4.
2. Background
    Geotextiles are currently manufactured with recovered polyethylene 
terephthalate (PET) and polypropylene (PP). The following sections and 
Table 4 provide information on the current availability of geotextiles 
and related products containing recovered materials. Each entry in 
Table 4 represents data from a manufacturer; however, manufacturers 
names are not listed.

    Table 4.--Recovered Materials Content of Geotextiles and Related    
                                Products                                
------------------------------------------------------------------------
                                                                 Total  
                                                Postconsumer   Recovered
              Product                  Resin      Materials    Materials
                                                  (Percent)    (Percent)
------------------------------------------------------------------------
Geotextiles.........................  PP                20            20
                                      PP             (\1\)           100
                                      PET            (\1\)           100
                                      PET            (\1\)           100
                                      PET            (\1\)           100
Geocomposites.......................  PET               60            60
                                      PET               60            60
Geonets.............................  (\2\)          (\2\)         (\2\)
Geogrids............................  (\2\)          (\2\)         (\2\)
------------------------------------------------------------------------
\1\Not available.                                                       
\2\No available information.                                            

    a. Geotextiles. As shown in Table 4, geotextiles are currently 
produced using recovered PP and PET, including postconsumer recovered 
resin. EPA knows of two additional companies that reportedly use 
recovered plastic to make geotextiles; however, the specific percentage 
of recovered materials content could not be obtained and, therefore, 
was not included in Table 4.
    (i) Polyethylene terephthalate. Three geotextile manufacturers 
produce needlepunched, nonwoven polyester geotextiles from 100 percent 
recovered PET. EPA does not have information on the percentage of 
postconsumer content in these products. However, EPA believes that it 
is technically feasible to manufacture geotextiles with a high percent 
of postconsumer PET, and that there are sufficient supplies of 
postconsumer PET feedstock available for the geotextile market. In 
1992, postconsumer PET had the highest recycling rate of all plastic 
resins, 23.8 percent (460.5 million pounds), according to the American 
Plastics Council. Therefore, for geotextiles made of PET, in today's 
draft RMAN, EPA recommends recovered materials content levels in a 
range of 50 to 100 percent postconsumer materials.
    (ii) Polypropylene. One company produces woven and nonwoven 
geotextiles containing 20 percent postconsumer PP. Another manufacturer 
produces geotextiles from 100 percent recovered PP for use in erosion 
control applications. The American Plastics Council reported that, in 
1992, postconsumer PP was recycled at a rate of 3.0 percent (222.4 
million pounds). EPA believes that there is a sufficient supply of 
postconsumer PP to justify recommending recovered materials content 
levels in a range of 20 to 100 percent postconsumer materials. EPA 
believes that if procuring agencies purchase geotextiles within this 
range, there will be an increase in demand for postconsumer PP, which 
may thereby contribute to an increase in its diversion from the waste 
stream. EPA requests information on whether there are sufficient 
supplies of postconsumer recovered PP of appropriate quality to meet 
the needs of the geotextile industry. EPA also requests information on 
whether there are any quality specifications for postconsumer PP 
feedstock, such as the ASTM specification for glass cullet described in 
section V.A.2 above, which would be useful to plastics processors and 
remanufacturers. In addition, EPA requests comment on whether a 
separate standard should be recommended for woven vs. nonwoven 
geotextiles (either made of PET or PP), due to the higher strength 
properties of woven geotextiles.
    b. Geogrids and geonets. No geogrid or geonet manufacturers are 
known to use recovered plastic to make their products. EPA requests 
comment on whether there are manufacturers of geogrids and geonets 
containing recovered resin.
    c. Geocomposites. Geocomposite products are combinations of other 
types of geosynthetics, for example, geogrid-geomembrane composites, 
geotextile-geomembrane composites, and geotextile-geotextile 
composites. EPA is aware of two geocomposite manufacturers that make 
their products with 60 percent postconsumer PET, and market their 
products for landfill liner and cap applications. EPA understands that 
the geocomposites made by one of these companies consist of a 100 
percent recovered PET geotextile combined with a geomembrane.
    EPA is not recommending separate recovered materials content levels 
for geocomposites; however, EPA recommends that procuring agencies 
establish minimum recovered materials content standards for the 
geotextile layer of geocomposites, based on the recovered materials 
content levels for geotextiles set forth in Table C-4 of the draft 
RMAN.
3. Specifications
    EPA has identified no standards that preclude the use of recovered 
resin in the manufacture of geotextiles, geonets, geogrids or 
geocomposites.
    a. Geotextiles. Standards for the manufacture and use of 
geotextiles are governed primarily by ASTM. ASTM's Committee D-35 on 
Geosynthetics has developed 22 standards, 13 of which apply to 
geotextiles. All but one of these geotextile standards describe 
procedures for testing geotextiles for certain properties, such as 
tensile strength and ultraviolet light resistance. These test methods 
are used mainly to compare different types of geotextiles and for 
acceptance testing. The one ASTM geotextile standard that is not a test 
method provides instructions on how to accept, store, and handle 
geotextiles. None of these standards require that geotextiles be 
manufactured with virgin resin.
    Other groups that oversee the use of geotextiles include the 
AASHTO, State Departments of Transportation, and several Federal 
agencies such as the Federal Highway Administration and EPA. None of 
these groups require that geotextiles be made of virgin resin.
    Because there are no specifications that prohibit the use of 
recovered resins in the manufacture of geotextiles, EPA does not 
foresee that procuring agencies will encounter any problems with 
procuring geotextiles containing recovered materials that meet the 
desired applications.
    b. Geogrids, geonets, and geocomposites. Only one of the 13 ASTM 
geotextile standards also applies to these related products. This 
standard, ASTM D 4716, ``Standard Test Method for Constant Head 
Hydraulic Transmissivity (In-Plane Flow) of Geotextiles and Geotextile 
Related Products,'' describes how to measure the flow of water through 
geotextiles and related products under different circumstances. This 
standard does not preclude the use of recovered plastics in the 
manufacture of geotextiles or related products.

E. Cement and Concrete Containing Ground Granulated Blast Furnace Slag

1. Preference Program
    In today's draft RMAN, EPA recommends that procuring agencies 
revise their procurement programs for cement and concrete or for 
construction projects involving cement and concrete to allow use of 
ground granulated blast furnace (GGBF) slag, as appropriate. EPA 
recommends that procuring agencies specifically include provisions in 
all construction contracts to allow for the use, as optional or 
alternate materials, of cement or concrete which contains GGBF slag, 
where appropriate.
    Due to variations in GGBF slag, cement strength requirements, 
costs, and construction practices for the particular cement or concrete 
application, EPA is not recommending that procuring agencies establish 
a specific minimum content standard for cement or concrete containing 
GGBF slag. However, EPA notes that, according to ASTM Standard 
Specification C 595, Standard Specification for Blended Hydraulic 
Cements, GGBF slag may replace up to 70 percent of the portland cement 
in some concrete mixtures. Most GGBF slag concrete mixtures contain 
between 25 and 50 percent GGBF slag by weight. EPA recommends that 
procuring agencies refer to ASTM C 595 for the GGBF slag content 
appropriate for the intended use of the cement and concrete.
2. Background
    EPA's 1983 procurement guideline for cement and concrete containing 
fly ash contains recommendations for the use of those products. In the 
Comprehensive Procurement Guideline proposed elsewhere in the Federal 
Register today, EPA is proposing to amend the cement and concrete 
designation to add use of GGBF slag. As explained in the proposed CPG, 
EPA considered designating cement and concrete containing GGBF slag in 
the 1983 guideline but did not do so because the product was not 
available nationwide. From information recently provided by GGBF slag 
producers, EPA concludes that GGBF slag is now sufficiently available 
to add it to the cement and concrete guideline.
    EPA proposes to revise the 1983 recommendations to incorporate the 
use of GGBF slag in cement and concrete. Specifically, EPA is revising 
the general procurement provision and the sections on guide 
specifications, contract specifications, materials specifications, and 
performance standards. In the final RMAN, EPA will combine the proposed 
revisions with the existing recommendations for cement and concrete 
containing fly ash.
    There has been some confusion about whether the scope of the 1983 
cement and concrete guideline includes municipal combustor ash, because 
the title of the guideline is ``cement and concrete containing fly 
ash.'' While the text of the 1983 guideline clearly explains that the 
item designation is limited to fly ash generated by coal burning 
utilities, EPA plans to clear up any ambiguity in the final RMAN, by 
referring to the material as coal fly ash.
3. Specifications
    ASTM, AASHTO, and the American Concrete Institute publish consensus 
specifications for cement and concrete, including the use of recovered 
materials such as GGBF slag in these items. EPA lists these 
specifications in the draft RMAN and recommends that procuring agencies 
use these voluntary consensus specifications for cement and concrete 
containing GGBF slag.
    In addition, the States of Maryland, West Virginia, Pennsylvania, 
Virginia, Georgia, South Carolina, and Florida have adopted 
specifications which allow use of GGBF slag in cement and concrete. The 
specifications are available from the state transportation departments 
should procuring agencies wish to adapt them for use in their 
affirmative procurement programs for cement and concrete containing 
GGBF slag.

F. Carpet

1. Preference Program
    In today's draft RMAN, EPA recommends that, for polyester carpet 
used in low- and medium-wear applications, procuring agencies establish 
minimum content standards at a level of 100 percent postconsumer 
recovered materials, as shown in Table C-6 of the draft RMAN.
    EPA further recommends that Federal procuring agencies use GSA's 
New Item Introductory Schedule when purchasing polyester carpet 
containing recovered materials. EPA also recommends that procuring 
agencies review their specifications and revise them to permit, where 
suitable, the use of polyester carpet containing recovered materials. 
In particular, EPA recommends that agencies currently limiting carpet 
materials to nylon and/or wool consider adding polyester carpet, where 
appropriate, to enable them to procure carpet containing recovered 
materials.
2. Background
    Broadloom carpet, meaning roll goods in 12-foot widths, for wall-
to-wall installation, generally is comprised of face fibers (made of 
nylon, polyester, wool, or polyethylene) inserted into a primary 
backing, which is usually made of polypropylene materials. The majority 
of carpet manufactured in the U.S. is made of nylon carpet fibers, with 
a smaller percentage (about 10 percent) made of polyester.
    In the CPG, the proposed item designation for polyester carpet is 
limited to uses in low- and medium-wear applications. Therefore, the 
recommendations for recovered materials content levels are also limited 
to polyester carpet used in low- and medium-wear applications.
    As discussed in the CPG, although nylon comprises a much larger 
share of the carpet fiber market than polyester, at this time, carpet 
containing recovered materials is being manufactured only from 
recovered PET. In addition, one major manufacturer of nylon and nylon 
carpet fibers has initiated a pilot project to recover nylon from old 
carpet and remanufacture it into new products, including new carpet 
fiber. Because this process is only now being developed, EPA is 
limiting the proposed item designation in the CPG to polyester carpet 
and is not recommending recovered materials content levels for nylon 
carpet in today's draft RMAN.
    The General Services Administration (GSA) lists recovered polyester 
carpet on its current New Item Introductory Schedule (NIIS), which is 
effective until September 30, 1995. EPA has identified two companies 
that manufacture carpet fiber with 100 percent postconsumer PET. One of 
these vendors is currently listed under this GSA contract. An item may 
be listed on the NIIS for up to 3 years; during that time, the item can 
be purchased by Federal agencies while testing is conducted and data 
are gathered to ensure the product's performance. If the item is 
acceptable and demand warrants, it may be placed under a permanent 
method of supply.
3. Specifications
    GSA does not establish specifications for items listed on a New 
Item Introductory Schedule. GSA currently does not have separate 
specifications for polyester carpet made of recovered materials, but 
does require that carpet containing recovered materials meet the same 
technical requirements as carpet made from virgin materials. Examples 
of GSA's specifications for polyester carpet include pile density, pile 
weight, twist, colorfastness, tuft bind, and flammability. The test 
methods required to verify these specifications are consistent with 
those of other organizations (e.g., ASTM).
    Today's draft recommendations for polyester carpet do not apply in 
cases where Federal specifications require the use of carpet made with 
nylon, wool, or other materials. However, if a specification allows 
flexibility in choosing the type of carpet fiber, EPA recommends that 
procuring agencies evaluate whether polyester carpet is appropriate to 
meet their needs, and, if so, to specify polyester carpet containing 
recovered materials.

G. Floor Tiles and Patio Blocks

1. Preference Program
    In today's draft RMAN, EPA recommends that, for floor tiles and 
patio blocks made of rubber or plastic, procuring agencies establish 
minimum recovered materials content standards. EPA recommends that 
procuring agencies establish the standards within the range of 
recovered materials content levels shown in Table C-7 of the draft 
RMAN. EPA's recommendation does not preclude procuring agencies from 
purchasing floor tiles or patio blocks manufactured from another 
material. It simply recommends that procuring agencies, when purchasing 
floor tiles or patio blocks made from rubber or plastic, purchase these 
items made from recovered materials.
2. Background
    Table 5 provides information on the availability of floor tiles and 
patio blocks made of recovered materials. Each entry reflects data from 
a manufacturer; however, manufacturers names are not listed.

  Table 5.--Recovered Materials Content of Floor Tiles and Patio Blocks 
------------------------------------------------------------------------
                                                                 Total  
                                              Post-            recovered
     Product          Material     consumermaterials(percent)  materials
                                                               (percent)
------------------------------------------------------------------------
Floor Tiles.....  Rubber.........              75-95                  95
                  Rubber.........              75-95               75-95
                  Rubber.........                 90                  90
                  Rubber.........                 99                  99
                  Rubber.........                 98                  98
                  PVC............                100                 100
                                                  20                 100
                  PVC............                100                 100
                  PVC............              (\1\)                 100
                  PVC............              (\1\)                 100
                  Mixed plastic..              (\1\)               (\1\)
                  PVC............              (\1\)              90-100
Patio Blocks....  Rubber.........              (\1\)               (\1\)
                  Rubber.........                100                 100
                  Rubber.........                100                 100
                  Composite                       20                 100
                   plastics.                                            
                  Plastic/wood...                 60                 100
                  Rubber/plastic.              80-90               (\2\)
------------------------------------------------------------------------
\1\Not available.                                                       
\2\Up to 90.                                                            

    a. Floor tiles. EPA has identified 10 manufacturers and/or 
distributors of floor tiles containing recovered materials. The 
recovered materials used in these products include rubber derived from 
old tires, and various plastic resins, most commonly PVC (i.e., vinyl). 
Five of the 10 companies make floor tiles with postconsumer tire 
rubber, with recovered materials content levels ranging from 75-99 
percent. The companies add a small amount of virgin rubber, adhesive 
fabric, or coloring agents to their products. All five companies market 
their products nationally for applications such as entrance ways in 
airports and stores, furniture showrooms, skating rinks, and fitness 
centers. For floor tiles made of rubber, EPA recommends minimum 
postconsumer recovered materials content levels between 90 and 100 
percent.
    Five of the 10 companies nationally market floor tiles made from 
recovered plastic, mainly PVC, in a range of 90 to 100 percent total 
recovered materials, with 20 to 100 percent postconsumer resin. A few 
types of floor tile are made of 90 to 100 percent preconsumer PVC from 
swimming pool liners, roof membranes, and automobile dashboard cutouts. 
These interlocking tiles are used in various applications, such as 
fitness centers, bathrooms, and cafeterias. Another type of tile is 
made of 100 percent postconsumer PVC from car doors and fender strips. 
These interlocking tiles are used for heavy-duty applications such as 
entrance vestibules, work areas behind cashier counters, and under 
heavy equipment in fitness centers. Because supplies of postconsumer 
PVC are not widely available, for floor tiles made of recovered 
plastic, EPA recommends total recovered materials content levels 
between 90 and 100 percent.
    b. Patio blocks. EPA has identified 6 manufacturers of patio blocks 
made with recovered materials. The recovered materials used to make 
these products include rubber derived from old tires and blends of 
plastics resins (e.g., HDPE and LDPE), rubber/plastic, and rubber/wood. 
Two manufacturers offer patio blocks containing 100 percent 
postconsumer tire rubber. One manufacturer offers a product made of a 
rubber/plastic blend containing 80-90 percent postconsumer recovered 
materials. Based on this information, for patio blocks containing 
rubber or rubber blends (e.g., rubber/plastic or rubber/wood), EPA 
recommends recovered materials content levels of 90-100 percent 
postconsumer recovered materials.
    Two manufacturers offer patio blocks made with blends of recovered 
plastic materials. One of these manufacturers produces patio blocks 
made with composite plastic (HDPE and LDPE) containing 20 percent 
postconsumer recovered materials and 100 percent total recovered 
materials.
    The other manufacturer offers patio blocks made of a plastic/wood 
blend containing 60 percent postconsumer materials and 100 percent 
total recovered materials. Because some of the resins used to make 
patio blocks are not widely available at this time from postconsumer 
sources (e.g., LDPE), for patio blocks made of plastic or plastic 
blends, EPA recommends total recovered materials content levels in a 
range from 90-100 percent.
3. Specifications
    Floor tiles made of recovered rubber or plastic have been used in a 
variety of applications, including fitness centers, bathrooms, 
cafeterias, entrance vestibules, work areas, and laboratories. These 
uses are consistent with the potential uses by procuring agencies. 
Patio blocks made of recovered materials have been used in the 
construction of garden walkways and trails. EPA is not aware of any 
specifications that prohibit the use of recovered materials in the 
manufacture of floor tiles or patio blocks.
    EPA knows of one specification for rubber floor tiles, ASTM F 1344, 
``Standard Specification for Rubber Floor Tile.'' This specification 
does not preclude the use of recovered materials in the manufacture of 
floor tiles. EPA is not aware of any specifications for patio blocks 
and requests information about them.

VII. Recommendations for Transportation Products

    Part D of the draft RMAN contains EPA's recommendations for 
transportation products. Today, in Section D-1, EPA makes 
recommendations for temporary traffic control devices.

 A. Temporary Traffic Control Devices

1. Preference Program
    In today's draft RMAN, EPA recommends that, based on the recovered 
materials content levels shown in Table D-1, procuring agencies 
establish minimum content standards for traffic cones and Type I and 
Type II traffic barricades.
2. Background
    a. Traffic cones. As shown in Table 6, traffic cones are currently 
manufactured using LDPE, PVC, and crumb rubber from tires. Percentages 
of recovered LDPE and PVC range from 50 to 100 percent, with the 
postconsumer content of these materials ranging up to 15 percent. The 
base of the cones is typically manufactured from 50 to 100 percent 
crumb rubber derived from whole scrap tires or buffings recovered 
during the retreading process. ``Buffings'' are considered to be 
postconsumer recovered materials.
    Based on this information, in today's draft RMAN, EPA recommends 
recovered materials content levels in the range of 50-100 percent total 
recovered materials for traffic cones, consisting of recovered plastic 
resins, rubber from whole scrap tires or derived from the retreading 
process, or blends of the two materials. At this time, due to the fact 
that many of the traffic cones identified by EPA contained relatively 
small percentages of postconsumer recovered plastics, EPA is not 
recommending that procuring agencies establish a postconsumer recovered 
materials content standard. Most manufacturers of these products 
indicated that they were seeking to increase percentages of 
postconsumer recovered content, however. Should procuring agencies 
establish postconsumer recovered materials content standards, the 
supply of traffic cones meeting the standards might not be sufficient. 
EPA is requesting information on the availability of traffic cones 
manufactured with postconsumer recovered materials that meet Federal 
performance specifications.

   Table 6.--Recovered Materials Content in Traffic Cones and Traffic   
                               Barricades                               
------------------------------------------------------------------------
                                        Postconsumer     Total recovered
 Type of product       Material           materials         materials   
                                         (percent)          (percent)   
------------------------------------------------------------------------
                   PVC..............  3-15............  68-92.          
                   PVC..............  6-7.............  50.             
                   PVC..............  0...............  100.            
Traffic cones....  Crumb rubber.....  15-25...........  15-25.          
                   Crumb rubber-base  50-100..........  100.            
                   LDPE-cone........  0...............  50.             
                   HDPE.............  50-100..........  100.            
                   HDPE.............  80-100..........  100.            
                   HDPE.............  99-100..........  100.            
Traffic                                                                 
 barricades.                                                            
    (Types I and   HDPE + LDPE......  90..............  100.            
     II).                                                               
                   HDPE + PET.......  80-100..........  100.            
                   Fiberglass.......  0...............  100.            
                   Wood + Metal.....  Not available...  Not available.  
------------------------------------------------------------------------

    b. Traffic barricades. As shown in Table 6, Type I and II traffic 
barricades are typically made from wood, metal, HDPE, PET, LDPE, 
fiberglass or combinations of these materials. For barricades 
containing recovered plastic, percentages of postconsumer recovered 
plastic range from 50 to 100 percent, with total recovered materials 
content at 100 percent. Four of the five manufacturers use 80-100 
percent postconsumer recovered plastic. EPA was not able to obtain 
information on use of recovered wood or metals and requests this 
information for Type I, Type II or Type III traffic barricades.
    Based on the information in Table 6, for Type I and II traffic 
barricades, EPA recommends a minimum recovered materials content level 
of 100 percent total recovered materials content. In addition, for 
barricades containing recovered plastic resins, EPA recommends 
postconsumer recovered plastic levels in a range from 80-100 percent. 
Numerous manufacturers in the United States make traffic barricades 
capable of meeting or exceeding this content level.
3. Specifications
    Section 635 of ``Standard Specifications for Construction of Roads 
and Bridges on Federal Highway Projects, FP-85'' contains Federal 
specifications for temporary traffic control devices. This section 
includes descriptions of various temporary traffic control devices. EPA 
examined the specifications and found that section 635.02 of these 
specifications does not preclude the use of recovered materials in 
these devices. The Federal specifications reference the requirements 
contained in the MUTCD, which also do not preclude use of recovered 
materials.
    In addition to the Federal specifications, state procuring agencies 
may have additional materials or performance requirements for temporary 
traffic control devices. Several state procuring agencies have 
additional requirements and programs to test or confirm materials 
properties of traffic control devices prior to acceptance of shipment. 
Most currently available traffic barricades containing recovered 
materials are able to meet or exceed specific state requirements. In 
addition, at least five states explicitly specify a preference for 
traffic control devices made from recovered materials.

VIII. Recommendations for Park and Recreation Products

    Part E of the draft RMAN contains EPA's recommendations for park 
and recreation products. Today, in Section E-1, EPA is making 
recommendations for playground surfaces and running tracks.

A. Playground Surfaces and Running Tracks

1. Preference Program
    In today's RMAN, EPA recommends that, based on the recovered 
materials content levels shown in Table E-1, procuring agencies 
establish minimum recovered materials content standards for use in 
purchasing playground surfaces and running tracks made of rubber or 
plastic. EPA's recommendation does not preclude procuring agencies from 
purchasing playground surfaces or running tracks manufactured from 
another material. It simply recommends that procuring agencies, when 
purchasing playground surfaces or running tracks made from rubber or 
plastic, purchase these items made from recovered materials.
2. Background
    Tables 7 and 8 provide information on the availability of 
playground surfaces and running tracks made of recovered materials, 
respectively. Each entry represents data from a manufacturer or 
distributor; however, company names are not listed. 

                          Table 7.--Recovered Materials Content of Playground Surfaces                          
----------------------------------------------------------------------------------------------------------------
                                                               Postconsumer material         Total recovered    
          Product                       Material                     (percent)             materials (percent)  
----------------------------------------------------------------------------------------------------------------
                              Rubber/asphalt..............  60 (tires)/40 (asphalt)....                      100
                              Rubber......................  100........................                      100
                              Rubber......................  100........................                      100
                              Rubber......................  90.........................                       90
                              Rubber......................  50.........................                       50
                              Rubber......................  100........................                      100
Playground surfaces.........  Rubber......................  100........................                      100
                              Rubber......................  100........................                      100
                              Rubber/compost..............  100........................                      100
                              Rubber/PVC..................  80 (rubber)/20 (PVC).......                      100
                              PVC.........................  100........................                      100
                              Rubber......................  100........................                      100
                              Rubber......................  100........................                      100
                              Rubber......................  90.........................                       90
                              Rubber......................  90.........................                       90
                              Rubber......................  90.........................                       90
                              Rubber......................  100........................                      100
                              Rubber......................  100........................                      100
                              Rubber......................  100........................                      100
                              Rubber......................  100........................                      100
                              Rubber......................  100........................                     100 
----------------------------------------------------------------------------------------------------------------


                            Table 8.--Recovered Materials Content of Running Tracks                             
----------------------------------------------------------------------------------------------------------------
                                                               Postconsumer material         Total recovered    
          Product                       Material                     (percent)             materials (percent)  
----------------------------------------------------------------------------------------------------------------
                              Rubber......................  77.........................                       77
                              Rubber......................  100........................                      100
Running tracks..............  Rubber......................  100 (90-95 for colored                           100
                                                             products).                                         
                              Rubber......................  100........................                     100 
----------------------------------------------------------------------------------------------------------------

    a. Playground surfaces. EPA has identified 20 manufacturers/
distributors of playground surfaces made with recovered materials. 
These companies offer products made of postconsumer rubber derived from 
old tires, with a range of 50 to 100 percent postconsumer rubber. Three 
of these companies use other recovered materials as well, including 
blends of rubber/asphalt, rubber/compost, and rubber/PVC. One of these 
companies also makes playground surfaces of 100 percent postconsumer 
PVC. Fourteen of the 20 companies offer playground surfaces made with 
100 percent postconsumer materials. All but one of the 20 companies 
offers this product with 90 percent or greater postconsumer materials. 
Therefore, for playground surfaces made of rubber or plastic, EPA 
recommends recovered materials content levels in a range of 90-100 
percent postconsumer materials.
    b. Running tracks. Some of the companies that make playground 
surfaces also make running tracks of postconsumer rubber from tires. 
EPA obtained information from four of these companies, each of which 
offers running tracks containing 77-100 percent postconsumer rubber. 
Three of the four companies offer running tracks containing 100 percent 
postconsumer recovered rubber. One of these companies also offers a 
colored running track that contains 90-95 percent postconsumer 
recovered rubber. Those companies that do not use 100 percent 
postconsumer recovered materials use either a layer of virgin resin to 
provide added spike resistance, or use 5 to 10 percent preconsumer 
rubber for coloring. One of these companies constructed the 1984 
Olympic running tracks with recovered materials, and has constructed 
running tracks for universities, schools, and state governments. Based 
on this information, for running tracks made of rubber or plastic, EPA 
recommends recovered materials content levels in a range from 90-100 
percent postconsumer recovered materials.
3. Specifications
    GSA does not have specifications for playground surfaces or running 
tracks; however, Federal agency installations of these products must 
comply with applicable State or local construction codes, as well as 
standards set by the Consumer Product Safety Commission and the 
Americans With Disabilities Act. The Consumer Product Safety Commission 
requires that playground surfaces meet certain performance standards to 
reduce head injuries, including ASTM F 1292 pertaining to impact 
attenuation standards. Playground surfacing and running tracks must 
also comply with the Americans With Disabilities Act which provides 
that mobility-impaired persons cannot be prohibited from access to 
public places.
    Running tracks are not listed in GSA's Federal Supply Schedule, but 
playground surfaces are listed [Group 78, Part 1, Schedule C; Class 
7830; Special Item Number (SIN) 192-37e, ``Playground Equipment, Safety 
Surfacing, and Replacement Parts'']. At least one contractor under this 
SIN offers playground surfaces made with recovered rubber.

IX. Recommendations for Landscaping Products

    Part F of the draft RMAN contains EPA's recommendations for 
landscaping products. Today, in sections F-1 and F-2, respectively, EPA 
makes recommendations for hydraulic mulch products and for yard 
trimmings compost.

A. Hydraulic Mulch Products

1. Preference Program
    In today's draft RMAN, EPA recommends that, based on the recovered 
materials content levels shown in Table F-1, procuring agencies 
establish minimum content standards for hydraulic mulch products. For 
paper-based hydraulic mulch, EPA recommends a level of 100 percent 
postconsumer paper. For wood-based hydraulic mulch and hydraulic mulch 
containing both recovered wood and paper, EPA recommends a level of 100 
percent recovered materials. The recovered materials content should be 
based on the dry weight of the fiber, exclusive of any dyes, wetting 
agents, seeds, fertilizer, or other non-cellulose additives.
2. Background
    The majority of manufacturers about which EPA has information are 
using recovered materials at a content level of 100 percent. Depending 
on the manufacturer, the recovered materials used are postconsumer and 
over-issue paper, recovered wood, or a combination of recovered paper 
and wood.
    Paper-based hydraulic mulch is produced using recovered paper as a 
feedstock. Postconsumer newspapers are the primary recovered paper 
used, but some manufacturers are mixing in over-issue newspapers and/or 
magazines, and postconsumer corrugated containers, office paper, and 
telephone books.
    Paper-based hydraulic mulch is manufactured primarily by cellulose 
insulation manufacturers. EPA is aware of 37 manufacturers that produce 
both cellulose insulation and hydraulic mulch. Recovered paper content 
ranges between 80 and 100 percent, with the majority of these 
manufacturers using 100 percent postconsumer paper.
    Wood-based hydraulic mulch generally is manufactured with 100 
percent wood fibers, which are separated from wood scraps, wood chips, 
and bark. At least one manufacturer of wood-based hydraulic mulch 
produces a blended product containing 50 percent recovered paper. 
Another manufacturer produces wood-based hydraulic mulch products 
containing 100 percent postconsumer recovered wood and blends of 
postconsumer recovered wood and paper.
3. Specifications
    Manufacturers of both paper-based and wood-based hydraulic mulch 
products claim superior performance compared to the other product. It 
is EPA's understanding that the International Erosion Control 
Association is developing performance standards for hydraulic mulch to 
resolve the dispute over performance. The standards will be based on 
the amount of vegetation produced, not on physical specifications of 
the product. As of January 1994, these standards were still under 
development.
    Limited research conducted for EPA revealed that at least the 
States of California, Illinois, Michigan, Pennsylvania, Texas, 
Virginia, and Washington allow the use of paper-based hydraulic mulch. 
EPA requests information on other state or consensus specifications for 
hydraulic mulch products containing recovered materials.

B. Yard Trimmings Compost

1. Preference Program
    In today's draft RMAN, EPA recommends that procuring agencies 
purchase or use compost made from yard trimmings, leaves, and/or grass 
clippings for use in such applications as landscaping, seeding of grass 
or other plants on roadsides and embankments, under trees and shrubs, 
and in erosion control and soil reclamation.
    EPA further recommends that those procuring agencies that have an 
adequate volume of yard trimmings, leaves, and/or grass clippings, as 
well as sufficient space for composting, should implement a composting 
system to produce a mature, high-quality compost from these materials 
for use in landscaping and other applications.
2. Background
    Composting is a biological process of stabilizing organic matter 
under controlled conditions into a product that is rich in humus and 
provides organic matter and nutrients to the soil. Compost serves as an 
alternative method of managing those organics that would otherwise be 
landfilled. Yard trimmings are the least controversial feedstock for 
compost. When grass clippings are included with leaves and other yard 
trimmings, the resulting compost can serve as a suitable nitrogen 
source with an optimal carbon/nitrogen ratio for most applications.
    Compost can be used in agriculture, horticulture, silviculture 
(growing of trees), and in landscaping. It is used as a soil 
conditioner, soil amendment, lawn top dressing, potting soil mixture, 
rooting medium, and mulch for shrubs and trees, and for improvement of 
golf and other sports turf. It also can be used in erosion control and 
in land reclamation and revegetation of roadsides after road 
construction. As a result, compost should have wide applicability to 
procuring agencies for landscaping, gardening, seeding, and other 
applications.
    Because of the high volume of yard trimmings currently discarded 
each year, there is no shortage of raw materials that would preclude 
composting facilities from supplying large volumes of yard trimmings 
compost. A significant portion of the yard trimmings is being 
composted, and the percentage is increasing. At the end of 1992, there 
were nearly 3,000 composting facilities in the U.S. Thus, the quantity 
of compost available from local sources is expected to increase in the 
near future.
    The State of Maine has developed quality standards for compost 
products used by various state agencies or purchased with state funds. 
The quality standards have been set for six types of compost products, 
ranging from topsoil (three classes), to wetland substrate, to mulch 
(two classes). For each of these types of compost product, standards 
for maturity, odor, texture, nutrients, pH, salt content, organic 
content, pathogen reduction, heavy metals, foreign matter, moisture 
content and density have been established. EPA has placed a copy of 
this regulation, ``Chapter 560 Standards for Compost Products'', in the 
docket for the draft RMAN.
3. Specifications
    Procuring agencies should ensure that there is no language in their 
specifications for fertilizers and soil amendments that would preclude 
or discourage the use of compost. For instance, if specifications 
address the use of straw or hay in roadside revegetation projects, 
procuring agencies should assess whether compost could be substituted 
for straw or hay or used in combination with them.
    The Composting Council is helping to define and develop industry-
wide standards for composts. The standards will include a Standard 
Operating Guide for composting facilities, which is currently available 
in draft form from The Composting Council, as well as standards for 
suitability of different types of composts for different markets, 
depending on the content of the compost.

X. Recommendations for Non-Paper Office Products

    Part G of the draft RMAN contains EPA's recommendations for non-
paper office products. Today, EPA is making recommendations for office 
recycling containers and office waste receptacles (Section G-1), 
plastic desktop accessories (Section G-2), remanufactured toner 
cartridges (Section G-3), binders (Section G-4), and trash bags 
(Section G-5).

A. Office Recycling Containers and Office Waste Receptacles

1. Preference Program
    In today's draft RMAN, EPA recommends that, based on the recovered 
materials content levels shown in Table G-1, procuring agencies 
establish minimum content standards for plastic office recycling 
containers and office waste receptacles. EPA also recommends that when 
purchasing office recycling containers and waste receptacles made from 
paper or steel, procuring agencies purchase these items containing 
recovered paper, as specified in EPA's guideline for paper and paper 
products (40 CFR part 250), and recovered steel, respectively. EPA 
currently does not have information on the types and levels of and 
recovered materials levels contained in steel containers and 
receptacles and is interested in obtaining this information.
    EPA's recommendation for office recycling containers and office 
waste receptacles containing recovered materials does not preclude 
procuring agencies from purchasing containers or receptacles 
manufactured using another material, such as wood. It simply recommends 
that procuring agencies, when purchasing office recycling containers or 
office waste receptacles manufactured from plastic or paper, should 
seek such containers made with recovered materials as recommended in 
Table G-1. When purchasing these containers made with steel, procuring 
agencies should seek the highest level of postconsumer recovered 
materials practicable.
2. Background
    EPA knows of at least four manufacturers that produce office 
recycling containers and office waste receptacles made with recovered 
materials in the range of 20-100 percent postconsumer recovered 
plastic, by weight. Containers are available through GSA's Federal 
Supply Schedule 72 VII B, ``Recycling Collection Containers and 
Specialty Waste Receptacles.''
    GSA also has fiberboard recycling containers available through its 
Special Order Program. In addition, EPA's paper procurement guideline 
(40 CFR part 250) contains recommended postconsumer recovered materials 
content levels for recycling containers made from fiberboard or other 
papers. (As previously discussed, EPA's recommendations for paper 
products will be found in Part A in the final RMAN.)
3. Specifications
    According to the information available to EPA, there are no 
national or Federal specifications that preclude the use of recovered 
materials content in the manufacture of office recycling containers or 
waste receptacles. In lieu of referencing national or Federal 
specifications, EPA recommends that procuring agencies incorporate 
recovered materials content requirements into solicitation or contract 
documents when purchasing these products.

B. Plastic Desktop Accessories

1. Preference Program
    In today's draft RMAN, EPA recommends that, based on the recovered 
materials content levels should in Table G-2, procuring agencies 
establish minimum content standards for plastic desktop accessories.
    EPA's recommendation does not preclude procuring agencies from 
purchasing a desktop accessory manufactured from another material, such 
as, paper, wood, or steel. It simply recommends that procuring 
agencies, when purchasing plastic desktop accessories, purchase these 
accessories made from recovered materials.
2. Background
    EPA knows of at least three manufacturers that produce plastic 
desktop accessories with recovered materials content in the range of 
25-80 percent postconsumer recovered plastic, by weight. In addition, 
several office products distributors carry these accessories as part of 
their product lines. GSA makes these products available through its 
Federal Supply Schedule.
    Currently, EPA has information on plastic desktop accessories made 
from postconsumer recovered polystyrene only. EPA requests information 
on whether desk accessories are being made from other recovered plastic 
materials and the recovered materials content levels of those items.
3. Specifications
    According to the information available to EPA, there are no 
national or Federal specifications that preclude the use of recovered 
materials in the manufacture of plastic desktop accessories. In lieu of 
referencing national or Federal specifications, procuring agencies 
usually incorporate recovered materials content requirements into their 
solicitation or contract documents when purchasing these products.

C. Remanufactured Toner Cartridges

1. Preference Program
    In today's draft RMAN, EPA recommends that, in lieu of minimum 
content standards, procuring agencies establish procedures for 
purchasing remanufactured toner cartridges using the substantially 
equivalent alternative option, as set forth in RCRA section 6002(i)(3). 
EPA recommends that procuring agencies adopt one or both of the 
following approaches: (1) Procure toner cartridge remanufacturing 
services or (2) procure remanufactured toner cartridges as products. 
EPA further recommends that procuring agencies establish policies that 
give priority to remanufacturing the agencies' expended toner 
cartridges. In other words, under these policies, procuring agencies 
will first procure toner cartridge remanufacturing services for any 
accumulated expended cartridges. When such services are unavailable or 
not practicable, then procuring agencies should obtain remanufactured 
toner cartridges from vendors of these items.
2. Background
    As discussed in section III above, minimum content standards are 
not appropriate for remanufactured items because a core part of the 
item is reused in the new product, rather than ground up and fed into a 
manufacturing process. This is true in the case of toner cartridge 
remanufacturing. Therefore, although certain components of a toner 
cartridge may contain recovered materials, it is inappropriate for EPA 
to recommend that procuring agencies establish minimum content 
standards for remanufactured toner cartridges.
    Toner cartridge remanufacturing services are available and 
increasing in usage. Over the past few years, the number of vendors 
that offer toner cartridge remanufacturing services has increased 
substantially. As of January 1994, GSA maintained a New Item 
Introductory Schedule (NIIS) for toner cartridges. In addition, GSA has 
four vendors that provide remanufactured toner cartridges to its stock 
program.
3. Specifications
    GSA has set forth procedures by which remanufacturers providing 
remanufactured toner cartridges to its stock program are to 
disassemble, clean, refill, and reassemble expended cartridges.

D. Binders

1. Preference Program
    In today's draft RMAN, EPA recommends that, based on the recovered 
materials content levels shown in Table G-4, procuring agencies 
establish minimum content standards for the plastic covering used in 
plastic-covered binders. The chipboard or paperboard component of a 
plastic-covered binder or a binder covered with another material, such 
as cloth, is covered under EPA's procurement guideline for paper and 
paper products (40 CFR part 250). EPA also recommends that, for 
chipboard binders, procuring agencies establish minimum content 
standards consistent with EPA's recommended recovered materials content 
levels for paperboard (40 CFR part 250).
    EPA's recommendation for plastic-covered and chipboard binders does 
not preclude procuring agencies from purchasing a binder covered with 
or manufactured using another material, such as cloth. It simply 
recommends that procuring agencies, when purchasing chipboard or 
plastic-covered binders, purchase these binders containing recovered 
materials.
2. Background
    EPA is aware of at least three manufacturers that produce plastic-
covered binders with recovered plastic content in the covering, and two 
manufacturers that produce chipboard binders with recovered paper 
content. The manufacturers of the plastic-covered binders use recovered 
plastic in a range of 50-60 percent recovered plastic, by weight. At 
least one of the manufacturers of plastic-covered binders with 
recovered plastic content sells its binders through GSA's New Item 
Introductory Schedule.
    Several states have also issued solicitations for plastic-covered 
and chipboard binders containing recovered materials.
    In the paper guideline (40 CFR part 250), EPA recommends 
postconsumer recovered materials content levels for paperboard, which 
would include chipboard. (As previously discussed, EPA's 
recommendations for paper products will be found in Part A in the final 
RMAN.)
3. Specifications
    GSA's specification for binders, A-A-2549A, ``Binder, Loose-Leaf 
(Ring),'' covers four types of binders, including cloth bound, flexible 
cover; cloth bound, stiff cover; plastic bound, flexible cover; and 
plastic bound, stiff cover. In the specification, GSA requires its 
binders to contain ``a minimum of 100% waste paper, including a minimum 
of 30% postconsumer recovered materials.'' There are no requirements in 
this specification that preclude the use of recovered materials in the 
plastic covering of plastic-covered binders. However, one manufacturer 
stated that one test method cited in the specification, the Cold Crack 
test, may prohibit the use of recovered plastic in the covering for 
plastic-covered binders. EPA is requesting information on the ability 
of vendors to meet this specification when using recovered plastics.
    According to the information available to EPA, there are no 
national or Federal specifications that preclude the use of recovered 
paper in the manufacture of chipboard binders.

E. Plastic Trash Bags

1. Preference Program
    In today's draft RMAN, EPA recommends that, based on the recovered 
materials content levels shown in Table G-4, procuring agencies 
establish minimum content standards for plastic trash bags. EPA's 
recommendation does not preclude procuring agencies from purchasing 
trash bags manufactured using another material, such as paper. It 
merely recommends that a procuring agency, when purchasing plastic 
trash bags, purchase these items made from recovered materials.
2. Background
    EPA knows of at least five manufacturers that produce trash bags 
with postconsumer recovered materials content ranging from 30-100 
percent. The National Association of State Purchasing Officials' 
Recycled Product Database, which provides detailed information on state 
purchases of products containing recovered materials, lists 88 
different contracts for plastic ``liners'' with recovered materials 
content. In addition, trash bags with recovered materials content are 
available from the GSA ``Supply Catalog.''
    Currently, EPA has information only about trash bags made from 
postconsumer recovered plastic. EPA is interested in obtaining 
information on trash bags made from other recovered materials and the 
recovered materials content levels of those products.
3. Specifications
    GSA's Commercial Item Description (CID) for general purpose plastic 
bags, A-A-2299B, covers plastic trash bags. This CID is based on 
performance requirements. According to the information available to 
EPA, CID A-A-2299B does not preclude the use of recovered materials 
content in the manufacture of plastic trash bags.
    In addition, several states, including Michigan, Nebraska, 
Minnesota, Delaware, and Wisconsin, have their own specifications for 
plastic trash bags containing recovered materials.

XI. Recommendations for Miscellaneous Products

    Part H of the RMAN will contain recommendations for designated 
items that do not fall within the other product categories. EPA is 
reserving this section of the RMAN for future recommendations. Because 
EPA is not proposing to designate any items in the miscellaneous 
products category in the Comprehensive Procurement Guideline today, EPA 
is not making any recommendations in this category of the draft RMAN 
today.

    Dated: April 13, 1994.
Carol M. Browner,
Administrator.
    For the reasons set out in the preamble, EPA recommends the 
following procurement practices and recovered materials content levels 
for procuring agencies to use when purchasing designated items pursuant 
to section 6002 of the Resource Conservation and Recovery Act of 1976.

Draft Recovered Materials Advisory Notice

Contents

I. General Recommendations for Affirmative Procurement Programs

II. Specific Recommendations for Procurement of Designated Items

Part A--Paper and Paper Products

    [Reserved]

Part B--Vehicular Products

    Section B-1--Lubricating Oil.
    [Reserved]
    Section B-2--Retread Tires.
    [Reserved]
    Section B-3--Engine Coolants.

Part C--Construction Products

    Section C-1--Building Insulation.
    Section C-2--Structural Fiberboard and Laminated Paperboard.
    Section C-3--Plastic Pipe and Fittings.
    Section C-4--Geotextiles and Related Products.
    Section C-5--Cement and Concrete.
    Section C-6--Polyester Carpet.
    Section C-7--Floor Tiles and Patio Blocks.

Part D--Transportation Products

    Section D-1--Temporary Traffic Control Devices.

Part E--Park and Recreation Products

    Section E-1--Playground Surfaces and Running Tracks.

Part F--Landscaping Products

    Section F-1--Hydraulic Mulch.
    Section F-2--Yard Trimmings Compost.

Part G--Non-Paper Office Products

    Section G-1--Office Recycling Containers and Waste Receptacles.
    Section G-2--Plastic Desktop Accessories.
    Section G-3--Remanufactured Toner Cartridges.
    Section G-4--Binders.
    Section G-5--Plastic Trash Bags.

Part H--Miscellaneous Products

I. General Recommendations for Affirmative Procurement Programs

    EPA recommends that the Environmental Executive within each major 
procuring agency take the lead in developing the agency's affirmative 
procurement program and in implementing the recommendations set forth 
in this RMAN. The basic responsibilities of an Agency Environmental 
Executive are described in sections 302 and 402 of Executive Order 
12873. In the absence of such an individual, EPA recommends that the 
head of the implementing agency appoint an individual who will be 
responsible for ensuring the agency's compliance with RCRA section 6002 
and Executive Order 12873.
    Affirmative Procurement Program: Although RCRA section 6002 and the 
Executive Order require procuring agencies to establish affirmative 
procurement programs for each EPA-designated item, EPA recommends that 
each agency develop one comprehensive affirmative procurement program 
with a structure that allows for the integration of new items as they 
are designated. EPA encourages agencies to implement preference 
programs for non-guideline items as well, in order to maximize their 
purchases of recycled products and foster markets for recovered 
materials.
    Preference Program: For most items, EPA recommends that procuring 
agencies establish minimum content standards based on EPA's recovered 
materials content level recommendations and the procuring agencies' own 
research. For other items, the use of minimum content standards is 
inappropriate, and procuring agencies should establish an alternative 
program, as recommended by EPA.
    Promotion Program: EPA recommends that procuring agencies include 
both internal and external promotion in their affirmative procurement 
programs.
    There are several methods that procuring agencies can use to 
educate their employees about their affirmative procurement programs. 
These methods include preparing and distributing agency affirmative 
procurement policies, publishing articles in agency newsletters and 
publications, including affirmative procurement program requirements in 
agency staff manuals, and conducting workshops and training sessions to 
educate employees about their responsibilities under agency affirmative 
procurement programs.
    Methods for educating existing contractors and potential bidders of 
an agency's preference to purchase products containing recovered 
materials include publishing articles in appropriate trade 
publications, participating in vendor shows and trade fairs, placing 
statements in solicitations, and discussing an agency's affirmative 
procurement program at bidders' conferences.
    Monitoring: EPA recommends that procuring agencies monitor their 
affirmative procurement programs, in accordance with RCRA section 
6002(i)(2)(D) and Executive Order 12873, to ensure that they are 
fulfilling their requirements to purchase items composed of recovered 
materials to the maximum extent practicable. EPA anticipates that the 
Federal Environmental Executive and the Office of Federal Procurement 
Policy will request information from Federal agencies on their 
affirmative procurement practices. Therefore, EPA recommends that 
Federal procuring agencies maintain adequate records of procurements 
that may be affected by the Executive Order and RCRA requirements.
    EPA recommends that procuring agencies track their purchases of 
products made with recovered materials content to establish benchmarks 
from which progress can be assessed. To maintain adequate records on 
procurement of products containing recovered materials, EPA recommends 
that procuring agencies choose to collect data on the following:
     The percentages of recovered materials content in the 
items procured or offered;
     Comparative price information on competitive procurements;
     The quantity of each item procured over a fiscal year;
     The availability of each item with recovered materials 
content; and
     Performance information related to recovered materials 
content of an item.
    Certification: Because each product will be different, EPA 
recommends that procuring agencies discuss certification with product 
vendors to ascertain the appropriate period for certifying recovered 
materials content. EPA recommends that, whenever feasible, the 
recovered materials content of a product be certified on a batch-by-
batch basis or as an average over a calendar quarter or some other 
appropriate averaging period as determined by the procuring agencies.

II. Specific Recommendations for Procurement of Designated Items

Part A--Paper and Paper Products
    [Reserved]
Part B--Vehicular Products
Section B-1--Lubricating Oil.
    [Reserved]
Section B-2--Retread Tires.
    [Reserved]
Section B-3--Engine Coolants.

    Preference Program: EPA recommends that procuring agencies whose 
vehicles are serviced by a motor pool or vehicle maintenance facility 
establish a program for engine coolant reclamation and reuse, 
consisting either of reclaiming the engine coolant on-site for use in 
the agencies' vehicles, or establishing service contracts for engine 
coolant reclamation for use in the agencies' vehicles.
    Procuring agencies should note that engine coolant can contain 
either ethylene glycol or propylene glycol. Currently, these two types 
of engine coolant must be reclaimed separately. Therefore, in order to 
implement an engine coolant reclamation program, EPA recommends that 
procuring agencies purchase only one type of engine coolant or 
establish procedures to prevent commingling of engine coolants 
containing ethylene glycol and propylene glycol.
    Procuring agencies also should note that, in some instances, spent 
engine coolant can exhibit the toxicity characteristic of hazardous 
waste by failing EPA's Toxicity Characteristic Leaching Procedure 
(TCLP). If a procuring agency determines that its spent engine coolant 
is a hazardous waste, it must manage the engine coolant in accordance 
with applicable Federal or state hazardous waste management 
requirements, including the generator requirements found in 40 CFR part 
262 and the requirements for recyclable materials found in 40 CFR 261.6 
(or the state equivalents). Because state hazardous waste regulations 
generally apply in lieu of the Federal regulations, procuring agencies 
should contact their state environmental agency (or, if the state is 
not authorized, the appropriate EPA Regional Office) for specific 
information regarding the applicable requirements.

Part C--Construction Products

    Note: Refer to Part F--Landscaping Products for additional items 
that can be used in construction.

Section C-1--Building Insulation.
    Preference Program: EPA recommends that, based on the recovered 
materials content levels shown in Table C-1, procuring agencies 
establish minimum content standards for use in purchasing rock wool and 
fiberglass insulation products. 

Table C-1.--Recommended Recovered Materials Content Levels for Rock Wool
                       and Fiberglass Insulation                        
------------------------------------------------------------------------
                                      Recovered materials (materials and
        Insulation material                      percentage)            
------------------------------------------------------------------------
Rock wool..........................  Slag.                              
                                     75                                 
Fiberglass.........................  Glass cullet.                      
                                     20-25                              
------------------------------------------------------------------------
Note: The recommended recovered materials content levels are based on   
  the weight (not volume) of materials in the insulating core only.     

    Specifications: EPA recommends that procuring agencies reference 
ASTM standard specification D 5359, ``Glass Cullet Recovered from Waste 
for Use in Manufacture of Glass Fiber,'' in Invitations for Bid and 
Requests for Proposal.
Section C-2--Structural Fiberboard and Laminated Paperboard.
    Preference Program: EPA recommends that, based on the recovered 
materials content levels shown in Table C-2, procuring agencies 
establish minimum content standards for use in purchasing structural 
fiberboard or laminated paperboard products for use in either 
insulating or structural applications. 

     Table C-2.--Recommended Recovered Materials Content Levels for     
             Structural Fiberboard and Laminated Paperboard             
------------------------------------------------------------------------
                                                                Total   
                                               Postconsumer   recovered 
                   Product                       recovered    materials 
                                                   paper       content  
                                                 (percent)    (percent) 
------------------------------------------------------------------------
Structural fiberboards.......................            20       60-100
Laminated paperboards........................           100         100 
------------------------------------------------------------------------
Note: The recovered materials content levels are based on the weight    
  (not volume) of materials in the insulating core only.                

    Specifications: EPA recommends that procuring agencies use ASTM 
Standard Specification C 208 and ANSI/AHA specification A194.1. EPA 
further recommends that, when purchasing structural fiberboard 
products, procuring agencies: (1) Reference the technical requirements 
of ASTM C 208, ``Insulating Board (Cellulosic Fiber), Structural and 
Decorative,'' (2) permit structural fiberboard products made from 
postconsumer and over-issue paper, and (3) permit products such as 
floor underlayment and roof overlay containing recovered paper.
    EPA further recommends that procuring agencies review their 
specifications for insulating products and revise them as necessary to 
obtain the appropriate ``R''-value without unnecessarily precluding the 
purchase of products containing recovered materials.

Section C-3--Plastic Pipe and Fittings.

    Preference Program: EPA recommends that, based on the recovered 
materials content levels shown in Table C-3, procuring agencies 
establish minimum content standards for use in purchasing non-pressure 
plastic pipe and fittings for drainage; sewer; drain, waste, and vent 
(DWV); and conduit applications. 

 Table C-3.--Recommended Recovered Materials Content Levels for Plastic 
                           Pipe and Fittings                            
------------------------------------------------------------------------
                                                           Postconsumer 
 Non-pressure application (includes pipe     Recovered       recovered  
             and fittings)                   materials       materials  
                                             (percent)      (percent)   
------------------------------------------------------------------------
Drainage................................  ..............          40-100
Sewer...................................          40-100  ..............
Drain, Waste and Vent (DWV).............          40-100  ..............
Conduit.................................          40-100  ..............
------------------------------------------------------------------------

    Specifications: EPA recommends that procuring agencies evaluate the 
applicable ASTM standards and specifications which pertain to pipe 
applications to determine whether those standards and specifications 
prohibit the use of recovered resins. If so, EPA encourages procuring 
agencies to purchase pipe that is certified to meet the applicable ASTM 
performance requirements, in lieu of pipe that is ``ASTM approved.''
    EPA recommends that procuring agencies review their own 
construction specifications and revise them as appropriate to reference 
only the technical provisions of the applicable ASTM standards so as 
not to preclude pipe containing recovered materials.
Section C-4--Geotextiles and Related Products.
    Preference Program: EPA recommends that, based on the recovered 
materials content levels shown in Table C-4, procuring agencies 
establish minimum content standards for use in purchasing geotextiles. 

     Table C-4.--Recommended Recovered Materials Content Levels for     
                    Geotextiles and Related Products                    
------------------------------------------------------------------------
                                                           Postconsumer 
                                                             recovered  
                  Product                        Resin       materials  
                                                             (percent)  
------------------------------------------------------------------------
Geotextiles.................................  PP                  20-100
                                              PET                50-100 
------------------------------------------------------------------------
Note: The geotextile layer of a geocomposite should comply with the     
  applicable standard set forth in this table.                          

Section C-5--Cement and Concrete.

    Preference Program: EPA recommends that procuring agencies revise 
their procurement programs for cement and concrete or for construction 
projects involving cement and concrete to allow use of ground 
granulated blast furnace (GGBF) slag, as appropriate. EPA recommends 
that procuring agencies specifically include provisions in all 
construction contracts to allow for the use, as optional or alternate 
materials, of cement or concrete which contains GGBF slag, where 
appropriate.
    Due to variations in GGBF slag, cement strength requirements, 
costs, and construction practices, EPA is not recommending recovered 
materials content levels for cement or concrete containing GGBF slag. 
However, EPA is providing the following information about recovered 
materials content.
     According to ASTM C 595, GGBF slag may replace up to 70 
percent of the portland cement in some concrete mixtures. Most GGBF 
slag concrete mixtures contain between 25 and 50 percent GGBF slag by 
weight. EPA recommends that procuring agencies refer to ASTM C 595 for 
the GGBF slag content appropriate for the intended use of the cement 
and concrete.
    Specifications: The following recommendations address guide 
specifications, materials specifications, contract specifications, and 
performance standards.
     Guide specifications. EPA recommends that procuring 
agencies assure that their guide specifications do not unfairly 
discriminate against the use of GGBF slag in cement and concrete. EPA 
further recommends that procuring agencies revise their guide 
specifications to require that contract specifications for individual 
construction projects or products allow for the use of GGBF slag, 
unless the use of these materials is technically inappropriate for a 
particular construction application.
     Materials specifications. EPA recommends that procuring 
agencies use the existing voluntary consensus specifications referenced 
in Table C-5 for cement and concrete containing GGBF slag.

     Table C-5.--Recommended Specifications for Cement and Concrete     
                     Containing Recovered Materials                     
------------------------------------------------------------------------
       Cement specifications               Concrete specifications      
------------------------------------------------------------------------
ASTM C 595, Standard Specification   ASTM C 989, Ground Granulated Blast-
 for Blended Hydraulic Cements.       Furnace Slag for Use in Concrete  
                                      Mortars.                          
AASHTO M 240, Blended Hydraulic      AASHTO M 302, Ground Granulated    
 Cements.                             Blast Furnace Slag for Use in     
                                      Concrete and Mortars.             
                                     American Concrete Institute        
                                      Standard Practice ACI 226.R1,     
                                      Ground Granulated Blast-Furnace   
                                      Slag as a Cementitious Constituent
                                      in Concrete.                      
------------------------------------------------------------------------

     State specifications. The States of Maryland, West 
Virginia, Pennsylvania, Virginia, Georgia, South Carolina, and Florida 
have adopted specifications which allow use of GGBF slag. If needed, 
procuring agencies can obtain these specifications from the respective 
state transportation departments and adapt them for use in their 
programs, as appropriate.
     Contract specifications. EPA recommends that procuring 
agencies which prepare or review ``contract'' specifications for 
individual construction projects revise those specifications to allow 
the use of cement and concrete containing GGBF slag as optional or 
alternate materials for the project, where appropriate.
     Performance standards. EPA recommends that procuring 
agencies review and, if necessary, revise performance standards 
relating to cement or concrete construction projects to insure that 
they do not arbitrarily restrict the use of GGBF slag, either 
intentionally or inadvertently, unless the restriction is justified on 
a job-by-job basis: (1) To meet reasonable performance requirements for 
the cement or concrete or (2) because the use of GGBF slag would be 
inappropriate for technical reasons. EPA recommends that this 
justification be documented based on specific technical performance 
information. Legitimate documentation of technical infeasibility for 
GGBF slag can be for certain classes of applications, rather than on a 
job-by-job basis. Agencies should reference such documentation in 
individual contract specifications, to avoid extensive repetition of 
previously documented points. However, procuring agencies should be 
prepared to submit such documentation to scrutiny by interested 
persons, and should have a review process available in the event of 
disagreements.

Section C-6--Polyester Carpet.

    Preference Program: EPA recommends that, based on the recovered 
materials content levels shown in Table C-6, procuring agencies 
establish minimum content standards for use in purchasing polyester 
carpet for low and medium wear applications. 

Table C-6.--Recommended Recovered Materials Content Levels for Polyester
                                 Carpet                                 
------------------------------------------------------------------------
                                                            Postconsumer
                   Product                         Resin      materials 
                                                              (percent) 
------------------------------------------------------------------------
Polyester carpet fiber........................  PET                  100
------------------------------------------------------------------------

    Specifications:  EPA recommends that Federal procuring agencies use 
GSA's New Item Introductory Schedule when purchasing polyester carpet 
containing recovered materials. EPA also recommends that procuring 
agencies review their specifications and revise them to permit, where 
suitable, the use of polyester carpet containing recovered materials. 
In particular, EPA recommends that agencies currently limiting carpet 
materials to nylon and/or wool consider adding polyester carpet, where 
appropriate, to enable them to procure carpet containing recovered 
materials.

Section C-7--Floor Tiles and Patio Blocks.

    Preference Program:  EPA recommends that, based on the recovered 
materials content levels shown in Table C-7, procuring agencies 
establish minimum content standards for use in purchasing floor tiles 
and patio blocks made with rubber or plastic. 

 Table C-7.--Recommended Recovered Materials Levels for Floor Tiles and 
                              Patio Blocks                              
------------------------------------------------------------------------
                                        Postconsumer     Total recovered
     Product            Material          materials         materials   
                                          (percent)        (percent)    
------------------------------------------------------------------------
Patio blocks.....  Rubber or rubber             90-100  ................
                    blends.                                             
                   Plastic or         ................            90-100
                    plastic blends.                                     
Floor tiles......  Rubber...........            90-100  ................
                   Plastic..........  ................           90-100 
------------------------------------------------------------------------
ANote: The recommended recovered materials content levels are based on  
  the dry weight of the raw materials, exclusive of any additives such  
  as adhesives, binders, or coloring agents. EPA's recommendation does  
  not preclude procuring agencies from purchasing floor tiles or patio  
  blocks manufactured from another material. It simply recommends that  
  procuring agencies, when purchasing floor tiles or patio blocks made  
  from rubber or plastic, purchase these items made from recovered      
  materials.                                                            

Part D--Transportation Products
Section D-1--Temporary Traffic Control Devices.

    Preference Program: EPA recommends that, based on the recovered 
materials content levels shown in Table D-1, procuring agencies 
establish minimum content standards for use in traffic cones and 
traffic barricades. 

      Table D-1.--Recommended Recovered Materials Content Levels for Traffic Cones and Traffic Barricades       
----------------------------------------------------------------------------------------------------------------
                                                                                                        Total   
                                                                                       Postconsumer   recovered 
                      Product                                    Material                materials    materials 
                                                                                        (percent)     (percent) 
----------------------------------------------------------------------------------------------------------------
 Traffic Cones.....................................  PVC, LDPE, Crumb Rubber           ............       50-100
Traffic Barricades.................................  HDPE, LDPE, PET                         80-100          100
(Type I & II only).................................  Fiberglass                        ............         100 
----------------------------------------------------------------------------------------------------------------
Note: The recommended recovered materials content levels are based on the dry weight of the raw materials,      
  exclusive of any additives such as adhesives, binders, or coloring agents.                                    

Part E--Park and Recreation Products
Section E-1--Playground Surfaces and Running Tracks.

    Preference Program: EPA recommends that, based on the recovered 
materials content levels shown in Table E-1, procuring agencies 
establish minimum content standards for use in purchasing playground 
surfaces and running tracks made of rubber or plastic.

     Table E-1.--Recommended Recovered Materials Content Levels for     
                 Playground Surfaces and Running Tracks                 
------------------------------------------------------------------------
                                                            Postconsumer
                                                              recovered 
             Product                       Material           materials 
                                                              (percent) 
------------------------------------------------------------------------
Playground surfaces..............  Rubber or plastic              90-100
Running tracks...................  Rubber or plastic             90-100 
------------------------------------------------------------------------
Note: EPA's recommendation does not preclude procuring agencies from    
  purchasing playground surfaces or running tracks manufactured from    
  another material. It simply recommends that procuring agencies, when  
  purchasing playground surfaces or running tracks made from rubber or  
  plastic, purchase these items made from recovered materials.          

Part F--Landscaping Products
Section F-1--Hydraulic Mulch.

    Preference Program: EPA recommends that, based on the recovered 
materials content levels shown in Table F-1, procuring agencies 
establish minimum content standards for paper-based and wood-based 
hydraulic mulch products.

Table F-1.--Recommended Recovered Materials Content Levels for Hydraulic
                             Mulch Products                             
------------------------------------------------------------------------
                                      Recovered materials (materials and
      Hydraulic mulch products                    percent)              
------------------------------------------------------------------------
Paper-Based Hydraulic Mulch........  Postconsumer recovered paper.      
                                     100                                
Wood-Based Hydraulic Mulch.........  Recovered wood and/or paper.       
                                     100                                
------------------------------------------------------------------------
Note: The recommended recovered materials content levels are based on   
  the dry weight of the fiber, exclusive of any dyes, wetting agents,   
  seeds, fertilizer, or other non-cellulose additives.                  

Section F-2--Yard Trimmings Compost.

    Preference Program: EPA recommends that procuring agencies purchase 
or use compost made from yard trimmings, leaves, and/or grass clippings 
in such applications as landscaping, seeding of grass or other plants 
on roadsides and embankments, as nutritious mulch under trees and 
shrubs, and in erosion control and soil reclamation.
    EPA further recommends that those procuring agencies that have an 
adequate volume of yard trimmings, leaves, and/or grass clippings, as 
well as sufficient space for composting, should implement a composting 
system to produce a mature, high-quality compost from these materials 
for use in landscaping and other applications.
    Specifications: EPA recommends that procuring agencies ensure that 
there is no language in their specifications for fertilizers and soil 
amendments that would preclude or discourage the use of compost. For 
instance, if specifications address the use of straw or hay in roadside 
revegetation projects, procuring agencies should assess whether compost 
could substitute for straw or hay or be used in combination with them.
    The State of Maine has developed quality standards for compost 
products that would be used by its agencies or purchased with state 
funds. The quality standards have been set for six types of compost 
products, ranging from topsoil (three classes), to wetland substrate, 
to mulch (two classes). For each of these types of compost product, 
standards for maturity, odor, texture, nutrients, pH, salt content, 
organic content, pathogen reduction, heavy metals, foreign matter, 
moisture content, and density have been established. EPA recommends 
that procuring agencies obtain and adapt this or another suitable 
specification for their use in purchasing compost products.
Part G--Non-Paper Office Products
Section G-1--Office Recycling Containers and Office Waste Receptacles.

    Preference Program: EPA recommends that, based on the recovered 
materials content levels shown in Table G-1, procuring agencies 
establish minimum content standards for use in purchasing office 
recycling containers and office waste receptacles.

  Table G-1.--Recommended Recovered Materials Content Levels for Office 
            Recycling Containers and Office Waste Receptacles           
------------------------------------------------------------------------
                                       Postconsumer recovered materials 
              Product                      (materials and percent)      
------------------------------------------------------------------------
Office Recycling Containers and      Plastic.                           
 Office Waste Receptacles.                                              
                                     20-100.                            
                                     Paper.                             
                                     Refer to Paperboard Recommendations
                                      in 40 CFR Part 250.               
                                     Steel.                             
                                     Highest Amount Practicable.        
------------------------------------------------------------------------
Note: EPA's recommendation for office recycling containers and office   
  waste receptacles containing recovered plastic does not preclude      
  procuring agencies from purchasing containers or receptacles          
  manufactured using another material, such as wood. It simply          
  recommends that procuring agencies, when purchasing office recycling  
  containers or office waste receptacles manufactured from plastic or   
  paper, seek such containers made with recovered materials. When       
  purchasing these containers made with steel, procuring agencies should
  seek the highest level of postconsumer recovered materials            
  practicable.                                                          

Section G-2--Plastic Desktop Accessories
    Preference Program: EPA recommends that, based on the recovered 
materials content levels shown in Table G-2, procuring agencies 
establish minimum content standards for use in purchasing plastic 
desktop accessories.

 Table G-2.--Recommended Recovered Materials Content Levels for Plastic 
                          Desktop Accessories                           
------------------------------------------------------------------------
                                       Postconsumer recovered materials 
              Product                      (material and percent)       
------------------------------------------------------------------------
Plastic Desktop Accessories........  Polystyrene.                       
                                     25-80                              
------------------------------------------------------------------------
Note: EPA's recommendation does not preclude procuring agencies from    
  purchasing a desktop accessory manufactured from another material,    
  such as paper, wood, or steel. It simply recommends that, when        
  purchasing plastic desktop accessories, procuring agencies purchase   
  these items made from recovered materials.                            

Section G-3--Remanufactured Toner Cartridges.

    Preference Program: EPA recommends that procuring agencies 
establish procedures and policies that give priority to remanufacturing 
the agencies' expended toner cartridges. EPA recommends that, under 
such policies and procedures, procuring agencies procure 
remanufacturing services for expended cartridges and, when such 
services are unavailable or not practicable, obtain remanufactured 
toner cartridges from product vendors.

Section G-4--Binders.

    Preference Program: EPA recommends that, based on the recovered 
materials content levels shown in Table G-3, procuring agencies 
establish minimum content standards for use in purchasing binders.

 Table G-3.--Recommended Recovered Materials Content Levels for Binders 
------------------------------------------------------------------------
                                      Recovered materials (materials and
              Product                              percent)             
------------------------------------------------------------------------
Plastic-Covered Binders (Plastic     Plastic                            
 Covering).                                                             
                                     50-60                              
Chipboard Binders..................  Paper                              
                                     Refer to 40 CFR Part 250.          
------------------------------------------------------------------------
Note: The chipboard or paperboard component of a plastic-covered binder 
  or a binder covered with another material, such as cloth, is covered  
  under EPA's procurement guideline for paper and paper products (40 CFR
  Part 250). EPA's recommendation for plastic-covered and chipboard     
  binders does not preclude procuring agencies from purchasing a binder 
  covered with or manufactured using another material, such as cloth. It
  simply recommends that procuring agencies, when purchasing chipboard  
  or plastic-covered binders, purchase these binders containing         
  recovered materials.                                                  

    Specifications: GSA's specification for binders, A-A-2549A, covers 
four types of binders, including cloth bound, flexible cover; cloth 
bound, stiff cover; plastic bound, flexible cover; and plastic bound, 
stiff cover. In the specification, GSA requires its binders to contain 
``a minimum of 100% waste paper, including a minimum of 30% 
postconsumer recovered materials.''

Section G-5--Plastic Trash Bags.

    Preference Program: EPA recommends that, based on the content 
levels shown in Table G-4, procuring agencies establish minimum content 
standards for use in purchasing plastic trash bags.

 Table G-4.--Recommended Recovered Materials Content Levels for Plastic 
                               Trash Bags                               
------------------------------------------------------------------------
                                       Postconsumer recovered materials 
              Product                       (material and percent)      
------------------------------------------------------------------------
Plastic Trash Bags.................  Plastic.                           
                                     30-100                             
------------------------------------------------------------------------
Note: EPA's recommendation does not preclude procuring agencies from    
  purchasing a trash bag manufactured using another material, such as   
  paper. It merely recommends that procuring agencies, when purchasing  
  plastic trash bags, purchase these items made from recovered          
  materials.                                                            

Part H--Miscellaneous Products
    [Reserved]
[FR Doc. 94-9418 Filed 4-19-94; 8:45 am]
BILLING CODE 6560-50-P