[Federal Register Volume 60, Number 50 (Wednesday, March 15, 1995)]
[Notices]
[Pages 14182-14191]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-6407]
[[Page 14181]]
_______________________________________________________________________
Part VII
_______________________________________________________________________
Environmental Protection Agency
_______________________________________________________________________
Paper Products Recovered Materials Advisory; Notice
Federal Register / Vol. 60, No. 50 / Wednesday, March 15, 1995 /
Notices
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[[Page 14182]]
ENVIRONMENTAL PROTECTION AGENCY
[SWH-FRL-5172-9]
Paper Products Recovered Materials Advisory Notice
AGENCY: Environmental Protection Agency.
ACTION: Notice of availability.
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SUMMARY: The Environmental Protection Agency today is providing notice
of the availability of a draft Paper Products Recovered Materials
Advisory Notice and ``Draft Paper Products RMAN--Supporting Analyses.''
This action will promote paper recycling by using government
procurement to expand markets for recovered paper. 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 government procurement of these items. In 1988, EPA
designated the category of paper and paper products and recommended
minimum recovered materials content levels for items within this
category that are commonly purchased by government agencies. Today, EPA
is issuing draft revisions to the 1988 recommendations. EPA also
addresses issues raised by paper manufacturers, merchants, and
purchasers as they have been implementing the 1988 recommendations.
DATES: EPA will accept public comments on the recommendations contained
in the draft Paper Products Recovered Materials Advisory Notice until
May 15, 1995. Both written and electronic comments must be submitted on
or before this date.
ADDRESSES: Commenters must send an original and two copies of comments,
referencing docket F-95-PPRN-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-95-PPRN-FFFFF, under separate cover to the Document Control
Officer (5305), U.S. EPA, 401 M Street SW., Washington, DC 20460.
Comments may also be submitted electronically by sending electronic
mail (e-mail) through the Internet System to: RCRA-
Docket@epamail.epa.gov. All electronic comments must be submitted as an
ASCII file avoiding the use of special characters and any form of
encryption. The comments should be identified by docket number F-95-
PPRN-FFFFF. Further information on submitting comments electronically
is provided below in the section entitled ``Electronic Filing of
Comments.''
Public comments and relevant documents are available for viewing in
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: ``Draft Paper Products RMAN--
Supporting Analyses'' is the primary supporting document for the draft
Paper Products Recovered Materials Advisory Notice (RMAN). Both the
Federal Register notice and the supporting document will be available
in electronic format on the Internet System through the EPA Public
Access Server at gopher.epa.gov. For a paper copy of the Federal
Register notice or ``Draft Paper Products RMAN--Supporting Analyses,''
please contact the RCRA Hotline at 800-424-9346, or, in the Washington,
DC metropolitan area, (703) 412-9810. Paper copies also are available
in the RCRA Docket at the address listed in the previous section.
For technical information regarding the recommendations in today's
notice, contact Dana Arnold of the Recycling Section in EPA's Office of
Solid Waste at (703) 308-7279.
ELECTRONIC FILING OF COMMENTS: As part of an interagency
``streamlining'' initiative, EPA is experimenting with electronic
submission of public comments through the Internet, in addition to
accepting comments in traditional written form. This notice is one of
the actions selected by EPA for this experiment. From the experiment,
EPA will learn how electronic commenting works, and any problems that
arise can be addressed before EPA adopts electronic commenting more
broadly in its rulemaking activities.
Electronic comment through the Internet raises some novel issues.
Persons who comment on this document should be aware that this
experimental electronic commenting is administered on a completely
public system. Therefore, any personal information included in comments
and the electronic mail addresses of those who make comments
electronically are automatically available to anyone else who views
these comments.
Similarly, since all electronic comments are available to all
users, commenters should not submit electronically any information
which they believe to be Confidential Business Information (CBI). Such
information should be submitted only in writing as described above
under Addresses.
The official record for this action will be kept in paper form.
Accordingly, EPA will convert all documents received electronically
into printed paper form as they are received and will place the paper
copies in the official record, which will also include all comments
submitted directly in writing. The official record is the paper record
maintained in the RCRA docket (see Addresses above). (Comments
submitted on paper will not be transferred to electronic format. These
comments may be viewed only in the RCRA docket as described above.)
Because the electronic comment process is still experimental, EPA
cannot guarantee that all electronic comments can be accurately
converted to printed paper form. If EPA becomes aware of any problems
with the receipt of the electronic file or with its transfer to paper,
the Agency will attempt to contact the commenter to request that the
comment be resubmitted in electronic or written form.
Some commenters may choose to submit identical comments in both
electronic and written form to ensure accuracy. In these instances, EPA
requests that commenters clearly note in both the electronic and
written submissions that the comments are duplicated in the other
medium. This will assist EPA in processing and filing the comments
during the open comment period.
As with written comments, EPA will not attempt to verify the
identities of electronic commenters or to review the accuracy of
electronic comments. EPA will take such commenters and comments at face
value. Electronic and written comments will be placed in the official
record without any editing or change by EPA except to the extent
changes occur in the process of converting electronic comments to
printed paper form.
If it chooses to respond officially to electronic comments on this
notice, EPA will do so either in a notice in the Federal Register or in
a response to comments document placed in the official record for this
docket. EPA will not respond to commenters electronically, other than
to seek clarification of electronic comments that may be garbled in
transmission or conversion to printed paper form. Any communications
from EPA employees [[Page 14183]] to electronic commenters, other than
those described in this paragraph, either through Internet or otherwise
are not official responses from EPA.
ACCESSING INTERNET:
1. Through Gopher: Go to: gopher.epa.gov
From the main menu, choose ``EPA Offices and Regions''. Next,
choose ``Office of Solid Waste and Emergency Response (OSWER)''. Next,
choose ``Office of Solid Waste''. Then, choose ``Non-Hazardous Waste--
RCRA Subtitle D''. Finally, choose ``Procurement/Paper''.
2. Through FTP: Go to: ftp.epa.gov
Login: anonymous
Password: Your Internet Address
Files are located in directories/pub/gopher. All OSW files are in
directories beginning with ``OSW''.
3. Through MOSAIC: Go to: http://www.epa.gov
Choose the EPA Public Access Gopher. From the main (Gopher) menu,
choose ``EPA Offices and Regions''. Next, choose ``Office of Solid
Waste and Emergency Response (OSWER).'' Next, choose ``Office of Solid
Waste''. Then, choose ``Non-Hazardous Waste--RCRA Subtitle D''.
Finally, choose ``Procurement/Paper''.
4. Through dial-up access:
Dial 919-558-0335. Choose EPA Public Access Gopher. From the main
(Gopher) menu, choose ``EPA Offices and Regions''. Next, choose
``Office of Solid Waste and Emergency Response (OSWER)''. Next, choose
``Office of Solid Waste''. Then, choose ``Non-Hazardous Waste--RCRA
Subtitle D''. Finally, choose ``Procurement/Paper''.
SUPPLEMENTARY INFORMATION:
Preamble Outline
I. Authority
II. Introduction
A. Objectives
B. The Procurement Guidelines Development Process
C. Approach to Recovered Materials Content Recommendations
1. One-part vs. Two-part Content Levels
2. Broad vs. Narrow Definition of ``Postconsumer Materials''
3. Establishment of Minimum Recovered Materials Content Levels
and Ranges
4. EPA's Methodology for Recommending Postconsumer and Recovered
Fiber Content Levels
III. Other Issues Addressed in the Draft Paper Products RMAN
A. Measurement of Recovered Fiber Content
B. Clarifications and Revisions to Definitions
C. Revisions to Item Listings
D. Recyclability
E. Use of EPA's Recommendations
III. Request for Comments
I. Authority
The draft Paper Products Recovered Materials Advisory Notice is
published under 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 6962, and
Executive Order 12873, ``Federal Acquisition, Recycling, and Waste
Prevention'' (58 FR 54911, October 22, 1993).
II. Introduction
Today, the U.S. Environmental Protection Agency (EPA or the Agency)
is publishing a draft Recovered Materials Advisory Notice (RMAN), which
contains recommendations for procuring agencies to use when purchasing
paper and paper products in accordance with section 6002 of the
Resource Conservation and Recovery Act of 1976 (RCRA).
Detailed information supporting EPA's draft recommendations are
found in ``Draft Paper Products RMAN--Supporting Analyses.'' This
document is available electronically and in paper form. See the section
above entitled For Further Information Contact for instructions for
obtaining the supporting analyses document in either format.
A. Objectives
In developing the draft recommendations for paper and paper
products, EPA considered two objectives. As required by RCRA section
6002, EPA's first objective is to recommend content levels that will
maximize the use of postconsumer recovered materials in paper and paper
products. EPA's second objective is to promote paper recycling by
increasing both the usage of postconsumer recovered materials in paper
manufacturing and the availability of competitively-priced paper and
paper products containing postconsumer and other recovered materials.
EPA recognizes that while its recommendations are meant primarily
for the use of government procuring agencies, EPA's guidance is widely
used by private sector purchasers, who represent 95% or more of paper
demand. EPA has found that when its recommendations for postconsumer
recovered materials content are too high, paper and paper products
containing these high percentages are often unavailable to government
agencies and private sector purchasers or are not consistently
available throughout the U.S. Also, while some paper and paper products
containing these high percentages of recovered materials are available,
they often are not price-competitive with other paper and paper
products offered to government agencies and private sector purchasers.
As a result, overall use of postconsumer recovered materials may not be
maximized simply by EPA's recommending high postconsumer content
levels.
Since designating paper and paper products as procurement items in
1988, EPA has found that increasing demand from both public and private
sector purchasers has resulted in greater recycling of postconsumer
recovered materials than simply increasing demand from the public
sector. Therefore, in establishing today's draft content
recommendations, EPA sought to increase the availability to both
government and private purchasers of reasonably-priced paper and paper
products containing postconsumer recovered materials. EPA strongly
believes that this approach will maximize the recycling and use of
postconsumer recovered materials.
Therefore, to meet its twin objectives, EPA is adopting a different
approach than was used in 1988 to recommend content levels for paper
and paper products. As explained in more detail below, EPA is
recommending two-part content levels, consisting of a postconsumer
fiber component and a recovered fiber component. EPA believes that the
two-part recommendations will assure that there is a demand for all
recovered materials, including postconsumer recovered materials, as
well as those generated during paper converting and printing
operations.
Further, EPA is recommending content ranges for each component,
whenever appropriate, to encourage increased purchasing of paper and
paper products containing postconsumer and recovered fiber throughout
the U.S. EPA believes that ranges are appropriate for three reasons.
First, Executive Order 12873 directs EPA to recommend ranges. Second,
while many agencies will continue to purchase paper products centrally
(or from the General Services Administration or the Government Printing
Office), local purchases will increase as a result of recent government
procurement reform, which increases the small purchase threshold and
allows greater local purchasing using credit cards. Currently, the
postconsumer and total recovered fiber content of many paper products
varies, as does product [[Page 14184]] availability, across the U.S.
Procuring agencies can use the ranges as an information source in
establishing standards for local purchases.
Third, although EPA's recommendations are intended for government
purchasing agencies and their contractors, the Agency is aware that
private sector purchasers refer to EPA's recommendations when
purchasing paper products. EPA wants to encourage the continued broad
use of its recommendations to foster greater demand for products
containing postconsumer and recovered fiber, which, in turn, will lead
to increased usage of these materials. However, EPA believes that
private sector purchasers may be able to find paper and paper products
available only at the lower end of the ranges, because the large
quantities of paper that these purchasers need will be manufactured
mainly by mills that use only lower levels of postconsumer and
recovered fiber.
There currently are insufficient quantities of paper and paper
products containing high percentages of postconsumer and recovered
fiber to meet the demand of both public and private sector purchasers.
By recommending ranges, EPA is acknowledging that some purchasers will
be able to buy products that contain high percentages of postconsumer
and recovered fiber, while others will find that products are available
that contain lower percentages of these materials. Others, while not
being able to buy price-competitive products that contain postconsumer
and recovered fiber even at the low end of the ranges, will continue to
seek such products, increasing overall demand for recycled paper
products. EPA anticipates that this increased demand for and purchase
of paper and paper products containing postconsumer and recovered
fiber, even at the low end of the recommended ranges, will spur pulp
and paper mills to make additional capital investments in the equipment
and systems needed to use greater percentages of these fibers and to
produce them at a competitive price.
Therefore, EPA encourages both public and private sector purchasers
to establish their minimum content standards at the highest levels
practicable; if a product is not available at a competitive price and
at a content level at the high end of the range, purchasers should set
their standards at the highest levels available to them that meet their
price and performance objectives, using the recommended range as a
guide. In this way, EPA's recommended ranges will encourage both public
and private sector purchasers to purchase paper products containing the
highest levels of postconsumer and recovered fiber practicable.
Finally, by establishing ranges, EPA is taking into account the
diversity that exists within the paper industry. The recommendations
recognize that, in many grades of paper, larger quantities of paper and
paper products are produced at mills that primarily use wood-based
fiber than at mills that primarily use recovered and postconsumer
fiber. While it is not currently economically feasible for these mills
to substitute high percentages of postconsumer fiber for the wood-based
fiber, it is technically and economically possible for them to use
lower percentages of postconsumer and recovered fiber. EPA believes
that ranges will provide an incentive for all paper mills to maximize
their usage of postconsumer and recovered fiber. This will lead to
greater availability of competitively-priced paper and paper products
for both public and private purchasers. In the long run, this approach
will lead to greater demand for postconsumer and recovered fiber.
B. The Procurement Guidelines Development Process
EPA's procurement guidelines are required by section 6002 of RCRA
and Executive Order 12873. In an April 20, 1994 Federal Register
notice, EPA explained that under Executive Order 12873, the Agency is
required to issue a regulation, known as a Comprehensive Procurement
Guideline (CPG), which will designate items that procuring agencies
should purchase containing recovered materials. Executive Order 12873
also directed EPA to issue guidance documents, known as Recovered
Materials Advisory Notices, which will contain EPA's recommendations
for purchasing the designated items. In the April 20, 1994 Federal
Register, EPA published the first draft RMAN, which established eight
product categories corresponding to the categories used in the CPG. One
of these categories, Part A, was reserved for recommendations for paper
and paper products. See the April 20, 1994 Federal Register (59 FR
18852) and ``Draft Paper Products RMAN--Supporting Analyses'' for more
detail about the requirements of RCRA section 6002 and the guidelines
development process.
In today's notice, EPA is announcing that the draft recommendations
for paper and paper products are available for public review and
comment. EPA's draft recommendations are found in the Appendix at the
end of this Federal Register notice. They are arranged in the RMAN
format established by the April 20, 1994 Federal Register notice. As
noted above, detailed information supporting the draft recommendations
are found in ``Draft Paper Products RMAN--Supporting Analyses.''
C. Approach to Recovered Materials Content Recommendations
1. One-Part vs. Two-Part Content Levels
As defined in RCRA section 6002(h), the term ``recovered
materials'' refers to materials generated after the end of the
papermaking process. Recovered materials can be generated by many
sources, including paper mills, intermediate paper users such as
printers and converters, merchants, retailers, and the intended end
user. Recovered materials are sometimes divided into ``preconsumer
materials,'' which refers to materials that have not passed through
their intended end usage, and ``postconsumer materials,'' which refers
to materials that have passed through their intended end usage. Minimum
content standards can be expressed as a percentage of postconsumer
materials content, a percentage of recovered materials (or total
recovered materials) content, or percentages of both. For example,
today, a common content standard for printing and writing paper is 50%
total recovered materials, including 10% postconsumer materials.
In 1988, EPA recommended postconsumer content levels for newsprint,
tissue products, paperboard, and packaging; and ``waste paper'' content
levels for most printing and writing papers. As defined in the 1988
paper procurement guideline, ``waste paper'' includes postconsumer
materials and certain materials generated after the end of the
papermaking process (see 53 FR 23551, June 22, 1988).
In response to a 1990 EPA request for comment (55 FR 40384, October
3, 1990) and an EPA-sponsored 1993 public forum, a group of commenters
suggested that the Agency recommend two-part content levels consisting
of a ``total recovered materials'' component in addition to a
postconsumer recovered materials component. Within this group, some
commenters favor a postconsumer materials component that is defined
consistently with the postconsumer definition contained in RCRA section
6002(h). Others favor a broader component consisting of postconsumer
materials plus certain preconsumer materials that require deinking or
cleaning, similar to postconsumer materials, prior to use.
[[Page 14185]]
These commenters argue that two-part content levels can achieve two
goals: (1) Assure markets for all recovered materials, regardless of
source and (2) increase demand for postconsumer materials. Because
there is a limited amount of preconsumer recovered materials,
commenters argue that pulp and paper mills will need to use greater
percentages of postconsumer materials in order to meet total recovered
materials requirements in their products. According to one commenter's
estimate, the paper industry recovered and used 87% of available
preconsumer materials (i.e., materials generated by sources other than
the intended end user of a finished product) in 1990.\1\ According to
the American Forest & Paper Association (AF&PA), an industry
association, almost all preconsumer materials are recovered and used
when exports are taken into account.
\1\See the ``Final Report on Recycled Paper Definitions,
Standards, Measurement, Labeling Guidelines, and Buy-Recycled
Initiative,'' Addendum E, Recycling Advisory Council, February 6,
1992. EPA placed a copy of the report in the docket for the Paper
Products RMAN. The report also is available from the National
Recycling Coalition.
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A second group of commenters favored a single, strictly
postconsumer standard. These commenters argue that most preconsumer
material is already recovered, and that the focus for government
procurement should be on postconsumer paper because it is the single
largest component of municipal solid waste. They also believe that only
a strictly postconsumer standard will stimulate markets for materials
collected by municipal recycling programs.
A third group of commenters argue in favor of a single, total
recovered materials standard encompassing both preconsumer and
postconsumer materials. They believe that because most preconsumer
material is already recovered, virtually all additional recovered paper
will necessarily come from postconsumer sources.
EPA believes that the two-part approach is preferable to the
postconsumer-only and total recovered materials-only approaches because
the two-part approach will result in greater usage of postconsumer
materials. A single, postconsumer level fails to acknowledge the
continuing contribution to solid waste management and the investments
made by mills that have been using all recovered materials, regardless
of source, that require deinking, cleaning, or processing prior to use.
Additionally, EPA believes that, because most preconsumer materials are
now being used, total recovered materials content levels will lead to
higher use of postconsumer materials as mills seek sufficient materials
to meet the total recovered materials content levels.
EPA also believes that a broad, single, total recovered materials
content level will not fulfill the statutory requirement that
government agencies procure paper products containing the ``highest
percentage of postconsumer recovered materials practicable.''
2. Broad vs. Narrow Definition of ``Postconsumer Materials''
Several groups recommended that EPA broaden the postconsumer
definition to include certain preconsumer materials that, like
postconsumer materials, require deinking or contaminant removal prior
to use. These groups state that there is no reason, from a papermaking
perspective, to separate these materials. They further state that it is
difficult to distinguish postconsumer and preconsumer materials and
that tracking of postconsumer materials is not feasible and extremely
costly to implement.
It is not the intent of RCRA that pulp and paper mills track every
piece of recovered paper or that mills using recovered materials incur
unnecessary costs. Under RCRA section 6002, procuring agencies are
required to (1) obtain certifications that the product offered to them
meets the minimum content level specified in their specifications or
solicitation documents and (2) purchase paper products containing the
highest levels of postconsumer materials practicable. Procuring
agencies are not required to obtain certifications regarding the exact
amount of postconsumer or recovered fiber used. For example, if an
agency solicits copier paper containing 20% postconsumer fiber, bidders
must certify that the product offered contains this minimum percentage.
The product may occasionally contain higher levels of postconsumer
fiber, but the bidders and the mills supplying them are not required to
conduct a detailed analysis in order to determine the exact percentage
of postconsumer fiber in the product in excess of the 20% minimum.
Some degree of tracking is needed, however, to identify the
postconsumer materials content of paper and paper products offered to
government agencies in order (1) to satisfy the RCRA certification
requirement and (2) to meet the RCRA requirement that paper and paper
products contain the highest levels of postconsumer materials
practicable. Although it is difficult, in some instances, to determine
whether a material is pre- or postconsumer, manufacturers of deinked
market pulp and paper products containing postconsumer materials are
making market claims about the postconsumer content of their products.
Therefore, EPA believes that the level of information in the market is
adequate, and no additional tracking is necessary for mills to certify
that their products meet EPA's draft recommendations.
EPA notes that, while several groups also urged the adoption of a
broader postconsumer definition for use in Executive Order 12873, the
Executive Order contains a postconsumer definition analogous to the
statutory definition. EPA believes that its recommendations should be
consistent with Executive Order 12873.
As discussed in detail in the supporting analyses document, there
have been significant increases in deinking and processing capacity and
various technology improvements that make it possible to manufacture
virtually all non-food\2\ grades of paper and paperboard using some
percentage of postconsumer fiber. Thus, EPA believes that it is not
necessary to expand the definition of postconsumer materials used in
the 1988 procurement guideline. For these reasons, EPA is using the
statutory definition of ``postconsumer'' in today's draft RMAN.
\2\Manufacturers of food-grade paper and paperboard must be able
to certify that their products meet Food and Drug Administration
requirements that the items contain no hazardous and deleterious
substances that can migrate into the food. While it is technically
possible to produce a food-grade product with recovered and/or
postconsumer fiber, the material must be carefully selected. Limited
availability of suitable material precludes wide-spread use of
recovered or postconsumer fiber in food-grade paper products.
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EPA also notes that the type of postconsumer ``material'' of
concern is fiber. For most products, the fiber is derived from wood,
but it also can be derived from textiles or agricultural products. The
availability of such fiber is limited and has been used primarily by
manufacturers of cotton fiber printing and writing papers, which
represented less than 1% of printing and writing papers capacity in
1993. Recognizing this, EPA will refer to ``postconsumer fiber,''
rather than to ``postconsumer material.'' EPA believes that the
statutory definition is broad enough to encompass postconsumer fiber
derived from textiles and other non-wood sources.
Thus, the two-part content levels recommended in today's draft RMAN
will consist of a ``recovered fiber'' component and a ``postconsumer
fiber'' component. These terms are discussed in section III.B below.
[[Page 14186]]
As part of this approach, EPA will no longer use the term ``waste
paper'' for printing and writing papers. EPA prefers the term
``recovered fiber'' because the name reflects the fact that this
material has value. As discussed in section II.B of this preamble, EPA
is adapting the 1988 definition of ``waste paper'' to define
``recovered fiber.''
3. Establishment of Minimum Recovered Materials Content Levels and
Ranges
a. Content recommendations vs. minimum content standards. RCRA
section 6002 requires procuring agencies to purchase paper and paper
products containing the ``highest percentages of postconsumer recovered
materials practicable.'' EPA stated in the 1988 paper procurement
guideline that the use of minimum content levels would satisfy this
requirement (see 53 FR 23553, June 22, 1988).
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 the specific minimum content standards used by other
agencies, EPA will no longer refer to its recommendations as recovered
materials content ``standards,'' as was done in the 1988 paper
procurement guideline. Instead, EPA will refer to its recommendations
as recovered materials content ``levels,'' consistent with RCRA section
6002(e) and Executive Order 12873.
b. Recommended content ranges. Executive Order 12873 directs EPA to
present ``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 (1) reflect the best
information available to the Agency about the use of postconsumer and
other recovered fiber in the manufacture of a designated item and (2)
encourage manufacturers to use the maximum amount of postconsumer and
recovered fiber without compromising competition or product performance
and availability. EPA recommends that procuring agencies use these
ranges, in conjunction with their own research into the content of
items available to them, to establish their minimum content standards.
In some instances, EPA will recommend one level, rather than a range,
because the item is universally available at that recommended level. In
such cases, EPA recommends that procuring agencies use that level in
establishing their minimum content standards.
4. EPA's Methodology for Recommending Postconsumer and Recovered Fiber
Content Levels
EPA identified and evaluated pertinent data sources and information
regarding the percentages of postconsumer and recovered fiber contained
in paper and paper products. Sources included EPA research, responses
to the 1990 Federal Register request for comment and the 1993 public
forum, procuring agency and industry data, manufacturers' information,
and other published data. Based on this information and the content
levels established in Executive Order 12873, EPA established
recommended levels or ranges of levels for paper and paper products.
As previously discussed, whenever feasible, EPA will recommend
ranges for both recovered fiber and postconsumer fiber content. The
high end of each range will be set at the maximum content currently
used in paper and paper products that are available in sufficient
quantities, and with adequate competition, to meet procuring agency
needs. For many items, this level will be 100% for the recovered fiber
component of the two-part content recommendations. The high end of each
range will direct procuring agencies toward those levels that will meet
the statutory requirement to purchase paper and paper products
containing the highest levels of postconsumer fiber practicable. Thus,
EPA strongly encourages procuring agencies to specify and seek paper
and paper products containing both postconsumer and recovered fiber at
levels at or near the high end of the recommended ranges if price and
performance meet the procuring agencies' objectives.
The low end of each range will be set at levels that can be met by
the simple majority of mills currently producing paper and paper
products containing postconsumer and recovered fiber. These levels
could also be met by other mills if they decide to purchase or produce
pulp made from postconsumer and recovered fiber. For most items, these
levels will be higher than the lowest percentage currently in products,
in order to provide an incentive for paper mills that now primarily use
wood-based fiber or lower levels of postconsumer or recovered fiber to
increase their use of postconsumer and recovered fiber in the
manufacture of their products. For example, if the majority of mills
currently use 20% postconsumer fiber in a writing paper, but a few
mills use 10% postconsumer fiber, EPA would recommend 20% as the low
end of the range.
In all five major paper and paperboard grades, there are groups of
mills that use high levels of postconsumer and recovered fiber and
groups of mills that primarily use wood-based fiber, sometimes in
conjunction with low percentages of postconsumer and/or recovered
fiber. EPA accounted for this diversity in establishing the recommended
ranges. As a result, for some items, there is a broad range for
postconsumer or recovered fiber content. The high end of these ranges
generally reflects the percentages of postconsumer and recovered fiber
used by mills that rely on this type of fiber, while the low end of the
ranges reflects the percentages of postconsumer and recovered fiber
used by mills that rely primarily on wood-based fiber. For many items,
the low end of the recovered fiber range is the same percentage as the
low end of the postconsumer fiber range. In these instances, all of the
recovered fiber used by these mills is postconsumer fiber. This means
that the item can contain either all postconsumer fiber (e.g., X%
recovered fiber, all of which is postconsumer) or blends of recovered
and postconsumer fiber (e.g., 100% recovered fiber, including Y%
postconsumer fiber) and still fall within EPA's recommended range.
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 changes in manufacturing capacity and product content and
the progress made by procuring agencies in purchasing paper and paper
products with the highest percentages of postconsumer and recovered
fiber practicable. EPA will periodically adjust the recommended content
ranges to reflect these changes. As larger quantities of paper become
available that contain higher levels of postconsumer and recovered
fiber, EPA will consider increasing the content levels in its
recommendations.
III. Other Issues Addressed in the Draft Paper Products RMAN
A. Measurement of Recovered Fiber Content
As procuring agencies implemented the 1988 designation of paper and
paper products, EPA received inquiries about measurement of recovered
fiber content. Today, EPA is addressing the two principal inquiries:
(1) Whether postconsumer and recovered fiber content should be measured
as a [[Page 14187]] percentage of fiber weight or total sheet weight
and (2) whether mill broke generated by a papermaking process that uses
postconsumer or recovered fiber can be included in content
calculations. In the draft RMAN, EPA recommends that postconsumer and
recovered fiber content be measured as a percentage of the weight of
the fiber in paper or a paper product. In addition, EPA wishes to
clarify that mill broke generated by a papermaking process that uses
postconsumer or recovered fiber can be included in content
calculations, to the extent that the feedstock contains materials which
would qualify as postconsumer or recovered fiber. These issues are
discussed in detail in chapter VI.A of ``Draft Paper Products RMAN--
Supporting Analyses.''
B. Clarifications and Revisions to Definitions
Today, EPA also addresses definitional issues raised by procuring
agencies, mills and other interested parties since the 1988 paper
procurement guideline was issued. Specifically, EPA has been asked (1)
whether the definition of ``postconsumer'' includes printers' over-
runs, converters' scrap, and/or over-issue publications, (2) which
definition of ``recovered materials'' applies to the content standards
established in Executive Order 12873, and (3) whether a paper product
converted from off-specification paper or obsolete inventory contains
``recovered material.''
EPA discusses these questions in detail in chapter VI.B of ``Draft
Paper Products RMAN--Supporting Analyses.'' EPA's responses to the
inquiries are as follows. (1) The definition of ``postconsumer''
materials in RCRA section 6002(h) does not include printers' over-runs,
converters' scrap, and/or over-issue publications. (2) Procuring
agencies should use the definition of ``recovered fiber'' in today's
draft RMAN when purchasing printing and writing papers in accordance
with the content levels established in Executive Order 12873. (3)
Because off-specification paper and obsolete inventory that contain no
recovered fiber do not meet the statutory definition of ``recovered
materials,'' products made from these materials cannot be sold as
recycled products. Materials must be repulped, not just recovered, in
order to count toward recovered fiber content.
In addition, several commenters suggested that EPA expand the
definition of ``mill broke'' and narrow the definition of ``waste
paper.'' In today's draft RMAN, EPA has expanded the mill broke
definition to include certain materials that are generated after the
completion of the papermaking process, including materials generated in
finishing operations. These materials are commonly re-pulped, sold to
others for pulping, or otherwise used in or converted to paper
products. In addition, in developing the definition of ``recovered
fiber'' from the 1988 ``waste paper'' definition, EPA has made three
significant changes. First, the definition found in section A-7 of the
draft RMAN clarifies that materials must be repulped, not just
recovered, in order to count toward recovered fiber content. Second,
consistent with the revised definition of ``mill broke,'' the
definition of ``recovered fiber'' excludes materials such as obsolete
inventory or off-specification product generated at mills after the end
of the papermaking process. Third, EPA is clarifying that forest
residues do not count toward ``recovered fiber'' content. See chapter
VI.B of ``Draft Paper Products RMAN--Supporting Analyses'' for a
detailed discussion of the draft definitions of ``mill broke'' and
``recovered fiber.''
C. Revisions to Item Listings
The 1988 paper procurement guideline contained 24 recommended
minimum content levels. Today's draft RMAN contains 54 recommended
minimum content levels. In addition to revised content recommendations,
EPA made the following changes:
The printing and writing paper recommendations are no
longer limited to ``high grade bleached'' papers.
The draft RMAN uses new terminology for uncoated printing
and writing papers to better reflect the terminology currently used by
paper merchants and mills.
The draft RMAN incorporates the content levels for
uncoated printing and writing papers established by Executive Order
12873.
The draft RMAN includes separate recommendations for wove
and kraft envelopes, rather than lumping them into one envelope
listing.
The draft RMAN includes recommendations for
supercalendered paper, safety paper, coated printing papers, and
bristols.
The ``doilies'' listing under the tissue products
subcategory has been replaced with a ``tray liners'' listing in a new
Miscellaneous Paper Products subcategory.
The ``Unbleached packaging'' and ``Recycled paperboard''
subcategories have been reorganized into a Paperboard and Packaging
subcategory that contains recommendations for corrugated containers,
solid fiber boxes, folding cartons, industrial paperboard,
miscellaneous paperboard products, carrierboard, and brown papers.
These changes are discussed in detail in ``Draft Paper Products
RMAN--Supporting Analyses.''
D. Recyclability
The underlying purpose of RCRA section 6002 is to use the stimulus
of governmental purchasing to foster markets for recovered materials.
Therefore, EPA encourages materials recovery to conserve valuable
natural resources and to provide alternatives to landfilling and
incineration. In order to achieve both of these objectives, EPA
believes that procuring agencies should consider the impact of their
purchases on their recyclable materials collection programs.
Depending on their fiber or other characteristics, some used paper
products containing recovered materials may have a wider variety of
potential markets and, therefore, may be easier to recycle than others.
Certain characteristics can lower the value of collected used paper or
limit its reuse as a feedstock for new products. Other characteristics
might require adjustments in an agency's recyclables collection
program.
For example, ``white office paper'' is a highly valued recovered
material. Depending on its market, a ``white office paper'' collection
program might exclude other office papers that are colored, coated, or
contain groundwood. Thus, if a procuring agency decided to purchase a
colored paper or a paper containing groundwood for use in office
printers and copiers, the agency should expect that these materials
would affect the office paper collection program if they are mixed with
the white paper. The agency could find that the used paper is
recyclable, but that (1) its value is reduced because it is now ``mixed
paper'' rather than ``white office paper,'' or (2) a separate sort is
required in order to maintain the value of the white office paper.
Alternatively, the agency could find that the mixed paper must be
disposed of because there is no market for it in the geographic area in
which the agency is located.
Yet other characteristics might make a paper product more
recyclable or generate less material because the product is source
reduced. For example, manufacturers may be using less packaging or
reusable packaging, resulting in less waste.
EPA believes that procuring agencies should consider these impacts
prior to purchasing paper products containing recovered materials.
Therefore, in section A-6 of today's draft RMAN, EPA [[Page 14188]] is
recommending that procuring agencies consider the effect of their
procurement actions on their used paper collection programs by
assessing the impact of their decisions on their overall contribution
to the solid waste stream.
E. Use of EPA's Recommendations
EPA encourages state and local agencies and private sector
purchasers to use the recommendations in today's draft RMAN when
purchasing paper and paper products. EPA recommends that purchasers
establish their minimum content standards at the highest percentages
available to them that achieve their price and performance objectives,
even if these standards are above EPA's recommended ranges.
EPA has found that some state agencies have been using the Agency's
1988 content recommendations as a starting point in establishing
product labeling requirements. While EPA's recommendations were not
intended for use as labeling standards, they can be used as an
information source for agencies establishing recycled product labeling
programs.
EPA cautions persons using EPA's recommendations, whether to
establish purchasing specifications or labeling standards, to use them
only for the specific items for which they were intended. It is not
appropriate to analogize from one item in a paper grade (e.g., printing
and writing paper, tissue products, paperboard) to another item that
could also fall within that grade, without first researching the use of
postconsumer and recovered fiber in the other item. The two items could
have different performance requirements necessitating different levels
of postconsumer or recovered fiber. In addition, one item could be made
primarily by mills that use high percentages of postconsumer or
recovered fiber, while the other item could be made primarily by mills
that use low or no percentages of this fiber.
IV. Request for Comments
EPA requests comment on the content levels, definitions, and
specifications recommendations found in today's draft RMAN. In
addition, EPA requests comment or information on the following issues,
which are discussed in detail in ``Draft Paper Products RMAN--
Supporting Analyses:''
Recommendations for Tissue Products
Do government agencies or their contractors purchase
specialty tissue products?
Is postconsumer or other recovered fiber used in the
manufacture of specialty tissue products and, if so, in what
percentages?
Can manufacturers of consumer paper napkins and consumer
facial tissues that primarily use wood-based fiber produce these items
using a minimum of 30% and 20% postconsumer fiber, respectively? If
not, what levels of postconsumer fiber can be used in these items?
Can manufacturers of consumer paper napkins and consumer
facial tissues use a range of recovered fiber from 30-100% and 20-100%,
respectively?
Are tray liners available containing percentages of
recovered fiber, including postconsumer fiber, other than 100%
recovered fiber, including 75% postconsumer fiber?
Can postconsumer fiber be used in tray liners and meet
Food and Drug Administration (FDA) restrictions on migration of
contaminants into food?
Recommendations for Paperboard and Packaging Products
Is recovered fiber other than postconsumer fiber used in
the manufacture of corrugated containers?
Are corrugated containers rated at 300 psi or greater
available containing more than 30% postconsumer fiber?
Will the recent increased demand for OCC affect the
ability of manufacturers to meet the recommended content levels for
corrugated containers?
Will the imminent availability of additional capacity to
make linerboard containing 100% recovered fiber allow manufacturers to
exceed the high end of the ranges of recommended content levels for
corrugated containers?
Are there differences in the postconsumer fiber content
currently used in coated and uncoated folding cartons?
Should recommendations for coated and uncoated folding
cartons be listed separately because of the differences in their
ability to incorporate postconsumer fiber content?
Will the recent increased demand for OCC affect the
availability of folding cartons containing higher percentages of
postconsumer fiber?
Should EPA recommend different content levels for the
various industrial paperboard products, based on the specific
application(s) for those products?
Should EPA recommend different postconsumer ranges for
coated and uncoated miscellaneous paperboard products, and should there
should be different content recommendations based on the specific
application(s) of the products?
Are percentages of postconsumer fiber greater than 15%
used in padded mailers? What percentages of recovered fiber other than
postconsumer fiber are used in padded mailers?
Are there different performance characteristics of the two
different types of carrierboard (solid unbleached sulfate and recycled
paperboard) that would require listing them separately in the final
RMAN?
Is postconsumer or other recovered fiber used in solid
bleached sulfate paperboard products, in general, and in food grade
items in particular?
Do procuring agencies purchase solid bleached sulfate
paperboard products, either directly or indirectly? If yes, to what
extent?
Should EPA recommend content levels for solid bleached
sulfate paperboard products?
Recommendations for Printing and Writing Papers
Do state agency requirements for the paper used to print
state checks differ from federal or commercial check specifications and
if so, how? What is the availability of safety paper containing
recovered and postconsumer fiber that meets state agency requirements?
What is the performance and availability of greeting card
stock containing higher percentages of postconsumer fiber?
Dated: March 8, 1995.
Elliott P. Laws,
Assistant Administrator, Office of Solid Waste and Emergency Response.
Appendix--Draft Paper Products Recovered Materials Advisory Notice
Contents
Part A--Paper and Paper Products
Section A-1--Printing and Writing Papers
Section A-2--Newsprint
Section A-3--Sanitary Tissue Products
Section A-4--Paperboard and Packaging
Section A-5--Miscellaneous Paper Products
Section A-6--Other Recommendations for Paper and Paper Products
Section A-7--Definitions
Appendix A-1.--Example Calculation of Postconsumer Fiber Content
of a Corrugated Container
Part A--Paper and Paper Products
Section A-1--Printing and Writing Papers
Preference Program: EPA recommends that procuring agencies
establish minimum content standards expressed as a percentage of
recovered fiber, including a percentage of postconsumer fiber. EPA
recommends that procuring agencies base their minimum content
standards for printing and writing papers on the content levels
shown in Tables A-1a, A-1b, and A-1c. Percentages are based on the
fiber weight of the product.
[[Page 14189]]
Table A-1a.--Recommended Recovered Fiber Content Levels for Uncoated
Printing and Writing Papers
------------------------------------------------------------------------
Recovered Postconsumer
Item fiber fiber
(percent) (percent)
------------------------------------------------------------------------
Reprographic Paper (e.g., mimeo and
duplicator paper, high-speed copier paper,
and bond paper*)........................... 20 20
Offset Paper (e.g., offset printing paper*,
book paper*, bond paper*).................. 20 20
Tablet Paper (e.g., office paper such as
note pads, stationery* and other writing*
papers).................................... 20 20
Forms Bond (e.g., forms, computer printout
paper, ledger*)............................ 20 20
Envelope Paper:
Wove.................................... 20 20
Kraft:
White and colored (including manila).. 10-20 10-20
Unbleached............................ 10 10
Cotton Fiber Paper (e.g., cotton fiber
papers, ledger*, stationery* and matching
envelopes, and other writing* papers)...... 50 20
Text & Cover Paper (e.g., cover stock, book
paper*, stationery* and matching envelopes,
and other writing* paper).................. 50 20
Supercalendered............................. 10 10
Check Safety Paper.......................... 10 10
------------------------------------------------------------------------
*These items can be made from a variety of printing and writing papers,
depending on the performance characteristics of the item. Some of the
papers are a commodity-type and some are specialty papers. EPA
recommends that procuring agencies determine the performance
characteristics required of the paper prior to establishing minimum
content standards. For example, bond, ledger, or stationery made from
cotton fiber paper or a text and cover paper have different
characteristics than similar items made from commodity papers.
Table A-1b.--Recommended Recovered Fiber Content Levels for Coated
Printing and Writing Papers
------------------------------------------------------------------------
Recovered Postconsumer
Item fiber fiber
(percent) (percent)
------------------------------------------------------------------------
Coated Printing Paper........................ 10 10
Carbonless................................... 20 20
------------------------------------------------------------------------
Table A-1c.--Recommended Recovered Fiber Content Levels for Bristols
------------------------------------------------------------------------
Recovered Postconsumer
Item fiber fiber
(percent) (percent)
------------------------------------------------------------------------
File Folders (manila and colored)........... 20 20
Dyed Filing Products........................ 20-50 20
Cards (index, postal, and other, including
index sheets).............................. 50 20
Pressboard Report Covers and Binders........ 50 20
Tags and Tickets............................ 20-50 20
------------------------------------------------------------------------
Section A-2--Newsprint
Preference Program: EPA recommends that procuring agencies
establish minimum content standards expressed as a percentage of
recovered fiber, including a percentage of postconsumer fiber. EPA
recommends that procuring agencies base their minimum content standards
for newsprint on the content levels shown in Table A-2. Percentages are
based on the fiber weight of the product.
Table A-2.--Recommended Recovered Fiber Content Levels for Newsprint
------------------------------------------------------------------------
Recovered Postconsumer
Item fiber fiber
(percent) (percent)
------------------------------------------------------------------------
Newsprint.................................... 40-100 40-85
------------------------------------------------------------------------
Section A-3--Tissue Products
Preference Program: EPA recommends that procuring agencies
establish minimum content standards expressed as a percentage of
recovered fiber, including a percentage of postconsumer fiber. EPA
recommends that procuring agencies base their minimum content standards
for tissue products on the content levels shown in Table A-3.
Percentages are based on the fiber weight of the product.
[[Page 14190]]
Table A-3.--Recommended Recovered Fiber Content Levels for Tissue
Products
------------------------------------------------------------------------
Recovered Postconsumer
Item fiber fiber
(percent) (percent)
------------------------------------------------------------------------
Bathroom tissue:
Commercial/industrial................... 100 25-60
Consumer................................ 20-100 20-60
Paper towels:
Commercial/industrial................... 100 40-60
Consumer................................ 20-100 20-60
Paper napkins:
Commercial/industrial................... 100 30-60
Facial tissue:
Commercial/industrial................... 100 30
Industrial wipers........................... 40-100 40
------------------------------------------------------------------------
Section A-4--Paperboard and Packaging Products
Preference Program: EPA recommends that procuring agencies
establish minimum content standards expressed as a percentage of
recovered fiber, including a percentage of postconsumer fiber. EPA
recommends that procuring agencies base their minimum content standards
for paperboard and packaging products on the content levels shown in
Table A-4. Percentages are based on the fiber weight of the product.
Table A-4.--Recommended Recovered Fiber Content Levels for Paperboard
and Packaging Products
------------------------------------------------------------------------
Recovered Postconsumer
Item fiber fiber
(percent) (percent)
------------------------------------------------------------------------
Corrugated containers:*
(<300 psi)..............................="" 40-50="" 40-50="" (300="" psi)...............................="" 30="" 30="" solid="" fiber="" boxes...........................="" 40="" 40="" folding="" cartons**...........................="" 100="" 40-80="" industrial="" paperboard="" (e.g.,="" tubes,="" cores,="" drums,="" and="" cans)...........................="" 100="" 45-100="" miscellaneous="" (e.g.,="" pad="" backs,="" covered="" binders,="" book="" covers,="" mailing="" tubes,="" protective="" packaging)......................="" 90-100="" 75-100="" padded="" mailers..............................="" 5-15="" 5-15="" carrierboard................................="" 25-100="" 15="" brown="" papers="" (e.g.,="" wrapping="" paper="" and="" bags)="" 5-40="" 5-20="" ------------------------------------------------------------------------="" *the="" recovered="" fiber="" and="" postconsumer="" fiber="" content="" is="" calculated="" from="" the="" content="" of="" each="" component="" relative="" to="" the="" weight="" each="" contributes="" to="" the="" total="" weight="" of="" the="" box.="" see="" appendix="" i="" for="" an="" example.="" **the="" recommended="" content="" ranges="" are="" not="" applicable="" to="" all="" types="" of="" paperboard="" used="" in="" folding="" cartons.="" cartons="" made="" from="" solid="" bleached="" sulfate="" or="" solid="" unbleached="" sulfate="" contain="" no="" or="" small="" percentages="" of="" postconsumer="" fiber,="" depending="" on="" the="" paperboard="" source.="" section="" a-5--miscellaneous="" paper="" products="" preference="" program:="" epa="" recommends="" that="" procuring="" agencies="" establish="" minimum="" content="" standards="" expressed="" as="" a="" percentage="" of="" recovered="" fiber,="" including="" a="" percentage="" of="" postconsumer="" fiber.="" epa="" recommends="" that="" procuring="" agencies="" base="" their="" minimum="" content="" standards="" for="" the="" listed="" paper="" products="" on="" the="" content="" levels="" shown="" in="" table="" a-5.="" percentages="" are="" based="" on="" the="" fiber="" weight="" of="" the="" product.="" table="" a-5.--recommended="" recovered="" fiber="" content="" levels="" for="" miscellaneous="" paper="" products="" ------------------------------------------------------------------------="" recovered="" postconsumer="" item="" fiber="" fiber="" (percent)="" (percent)="" ------------------------------------------------------------------------="" tray="" liners..................................="" 100="" 75="" ------------------------------------------------------------------------="" section="" a-6--other="" recommendations="" for="" paper="" and="" paper="" products="" measurement:="" epa="" recommends="" that="" procuring="" agencies="" express="" their="" minimum="" content="" standards="" as="" a="" percentage="" of="" the="" fiber="" weight="" of="" the="" paper="" or="" paper="" product.="" epa="" further="" recommends="" that="" procuring="" agencies="" specify="" that="" mill="" broke="" cannot="" be="" counted="" toward="" postconsumer="" or="" recovered="" fiber="" content,="" except="" that="" procuring="" agencies="" should="" permit="" mills="" to="" count="" mill="" broke="" generated="" in="" a="" papermaking="" process="" using="" postconsumer="" and/or="" recovered="" fiber="" as="" feedstock="" toward="" ``postconsumer="" fiber''="" or="" ``recovered="" fiber''="" content,="" to="" the="" extent="" that="" the="" feedstock="" contained="" these="" materials.="" in="" other="" words,="" if="" a="" mill="" uses="" less="" than="" 100%="" postconsumer="" or="" recovered="" fiber,="" only="" a="" proportional="" amount="" of="" broke="" can="" be="" counted="" towards="" postconsumer="" or="" recovered="" fiber="" content.="" specifications:="" epa="" recommends="" that="" procuring="" agencies="" review="" specifications="" provisions="" pertaining="" to="" performance="" and="" aesthetics="" and="" revise="" provisions="" that="" can="" impede="" use="" of="" postconsumer="" and="" recovered="" fiber,="" unless="" such="" provisions="" are="" related="" to="" reasonable="" performance="" standards.="" agencies="" should="" determine="" whether="" performance="" provisions="" are="" [[page="" 14191]]="" unnecessarily="" stringent="" for="" a="" particular="" end="" use.="" agencies="" also="" should="" revise="" aesthetics="" provisions--such="" as="" brightness,="" dirt="" count,="" or="" shade="" matching--if="" appropriate,="" consistent="" with="" the="" agencies'="" performance="" requirements,="" in="" order="" to="" allow="" for="" a="" higher="" use="" of="" postconsumer="" and="" recovered="" fiber.="" epa="" recommends="" that="" procuring="" agencies="" document="" determinations="" that="" paper="" products="" containing="" postconsumer="" and="" recovered="" fiber="" will="" not="" meet="" the="" agencies'="" reasonable="" performance="" standards.="" any="" determination="" should="" be="" based="" on="" technical="" performance="" information="" related="" to="" a="" specific="" item,="" not="" a="" grade="" of="" paper="" or="" type="" of="" product.="" epa="" recommends="" that="" procuring="" agencies="" watch="" for="" changes="" in="" the="" use="" of="" postconsumer="" and="" recovered="" fiber="" in="" paper="" and="" paper="" products.="" when="" a="" paper="" or="" a="" paper="" product="" containing="" postconsumer="" and="" recovered="" fiber="" is="" produced="" in="" types="" and="" grades="" not="" previously="" available,="" at="" a="" competitive="" price,="" procuring="" agencies="" should="" either="" revise="" specifications="" to="" allow="" the="" use="" of="" such="" type="" or="" grade,="" or="" develop="" new="" specifications="" for="" such="" type="" or="" grade,="" consistent="" with="" the="" agencies'="" performance="" requirements.="" recyclability:="" epa="" recommends="" that="" procuring="" agencies="" consider="" the="" effect="" of="" a="" procurement="" of="" a="" paper="" product="" containing="" recovered="" and="" postconsumer="" fiber="" on="" their="" paper="" collection="" programs="" by="" assessing="" the="" impact="" of="" their="" decision="" on="" their="" overall="" contribution="" to="" the="" solid="" waste="" stream.="" section="" a-7--definitions="" for="" purposes="" of="" the="" recommendations="" contained="" in="" this="" part,="" terms="" shall="" have="" the="" following="" meanings:="" ``postconsumer="" fiber''="" means:="" (1)="" paper,="" paperboard,="" and="" fibrous="" wastes="" from="" retail="" stores,="" office="" buildings,="" homes,="" and="" so="" forth,="" after="" they="" have="" passed="" through="" their="" end-usage="" as="" a="" consumer="" item,="" including:="" used="" corrugated="" boxes;="" old="" newspapers;="" old="" magazines;="" mixed="" waste="" paper;="" tabulating="" cards;="" and="" used="" cordage;="" and="" (2)="" all="" paper,="" paperboard,="" and="" fibrous="" wastes="" that="" enter="" and="" are="" collected="" from="" municipal="" solid="" waste.="" postconsumer="" fiber="" does="" not="" include="" fiber="" derived="" from="" printers'="" over-runs,="" converters'="" scrap,="" and="" over-issue="" publications.="" ``recovered="" fiber''="" ``recovered="" fiber''="" means="" the="" following="" materials:="" (1)="" postconsumer="" fiber="" such="" as:="" (a)="" paper,="" paperboard,="" and="" fibrous="" wastes="" from="" retail="" stores,="" office="" buildings,="" homes,="" and="" so="" forth,="" after="" they="" have="" passed="" through="" their="" end-usage="" as="" a="" consumer="" item,="" including:="" used="" corrugated="" boxes;="" old="" newspapers;="" old="" magazines;="" mixed="" waste="" paper;="" tabulating="" cards;="" and="" used="" cordage;="" and="" (b)="" all="" paper,="" paperboard,="" and="" fibrous="" wastes="" that="" enter="" and="" are="" collected="" from="" municipal="" solid="" waste.="" (2)="" fiber="" derived="" from="" printing="" and="" converting="" operations,="" excluding="" any="" paper="" generated="" in="" a="" paper="" mill="" prior="" to="" the="" completion="" of="" the="" paper="" manufacturing="" process.="" ``recovered="" fiber''="" includes="" repulped="" fiber="" from="" dry="" paper="" scrap="" generated="" after="" the="" paper="" machine="" reel="" has="" been="" rewound="" and/or="" cut="" into="" smaller="" rolls="" or="" rough="" sheets,="" including="" but="" not="" limited="" to:="" (a)="" envelope="" cuttings,="" finishing="" trim,="" bindery="" trimmings,="" and="" other="" paper="" and="" paperboard="" resulting="" from="" printing,="" cutting,="" forming,="" and="" other="" converting="" operations;="" and="" bag,="" box,="" and="" carton="" manufacturing="" wastes;="" and="" (b)="" repulped="" finished="" paper="" and="" paperboard="" from="" obsolete="" inventories="" of="" paper="" merchants,="" wholesalers,="" dealers,="" printers,="" converters,="" or="" consumers.="" ``mill="" broke''="" means="" any="" paper="" or="" paperboard="" scrap="" generated="" in="" a="" mill="" prior="" to="" completion="" of="" the="" papermaking="" process="" and/or="" specific="" materials="" generated="" during="" finishing="" operations="" that="" occur="" after="" the="" end="" of="" the="" papermaking="" process.="" it="" includes="" the="" following="" materials,="" whether="" generated="" prior="" to="" or="" after="" the="" completion="" of="" the="" papermaking="" process:="" paper="" machine="" trim,="" offgrade="" or="" off-specification="" rolls="" (also="" referred="" to="" as="" rejected,="" unused="" stock),="" culls,="" stub="" rolls,="" side="" rolls,="" end="" rolls,="" and="" obsolete="" inventories="" of="" paper="" and="" paperboard.="" although="" mill="" broke="" is="" occasionally="" sold="" from="" one="" mill="" to="" another,="" such="" a="" sale="" does="" not="" alter="" its="" classification="" or="" exclusion="" from="" the="" definition="" of="" ``recovered="" fiber.''="" appendix="" a-1.--example="" calculation="" of="" postconsumer="" fiber="" content="" of="" a="" corrugated="" container="" c-flute="" has="" a="" take-up="" factor="" of="" approximately="" 1.44,="" which="" means="" that="" for="" each="" one="" foot="" of="" combined="" corrugated="" board="" there="" is="" 1.44="" feet="" of="" fluted="" medium.="" this="" factor="" is="" used="" to="" calculate="" the="" weight="" of="" paperboard="" in="" a="" given="" area="" of="" combined="" corrugated="" board,="" from="" which="" the="" basis="" weight="" of="" the="" board="" is="" derived.="" each="" linerboard="" contributes="" 35%="" of="" the="" basis="" weight="" (42/121.4).="" the="" medium="" contributes="" 30%="" of="" the="" total="" basis="" weight="" (37.4/121.4).="" ------------------------------------------------------------------------="" board="" basis="" weight="" (lbs/msf)="" ------------------------------------------------------------------------="" linerboard="" #1.........................................="" 42="" x="" 1.00="42.0" medium................................................="" 26="" x="" 1.44="37.4" linerboard="" #2.........................................="" 42="" x="" 1.00="42.0" -----------------="" combined="" board="" weight.................................="" 121.4="" lbs/msf="" ------------------------------------------------------------------------="" if="" the="" linerboard="" used="" has="" 20%="" postconsumer="" fiber="" and="" the="" medium="" has="" 80%="" postconsumer="" fiber,="" the="" resulting="" total="" postconsumer="" fiber="" content="" of="" the="" containerboard="" is="" as="" follows:="" linerboard:="" .35="" x="" .20=".07" x="" 2=".14" (or="" 14%)="" medium:="" .30="" x="" .80=".24" (or="" 24%)="" total="" postconsumer="" fiber:="" .14+.24=".38" (or="" 38%)="" [fr="" doc.="" 95-6407="" filed="" 3-14-95;="" 8:45="" am]="" billing="" code="" 6560-50-p="">