1 

t 

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r 
THE SOLID WASTE DILEMMA: 

AN AGENDA FOR ACTION 

Final Report of the Municipal Solid Waste Task Force 

Office of Solid Waste 

U.S. Environmental Protection Agency 

February 1989 

Printed on Recycled Paper 

Americans produce more and more solid waste each year; we generate more per 

capita than any other nation. But, at the same time that we generate more waste, we 

are running out of places to dispose of it. Landfill capacity in some places is 

almost filled to the saturation point, and solid waste facilities continue to be 

difficult to site because of public resistance, commonly known as the “Not in My 

Backyard” (NIMBY) syndrome. Public resistance is often based on environmental 

concerns, unpleasant smells, noise, and truck traffic. Public resistance is not 

limited to landfills and combustors. Even materials recovery facilities and recycling 

centers can be difficult to site. (The feckless voyage of the “garbage barge” in 

1987 and the ash barges last year have become national symbols of America’s solid 

waste dilemma). 

Although solid waste management is primarily a local responsibility, the problem 

is national in scope, and we need a national strategy to solve it. In response to 

this burgeoning problem, €PA created a Municipal Solid Waste Task Force in February 

1988 and directed it to fashion a strategy for improving the nation’s management of 

municipal solid waste. The following report was developed after extensive public 

input and consultation with a variety of knowledgeable groups and individuals. 

The Agenda for Action offers a number of concrete suggestions for action by not 

only EPA, but also government at all levels, industry, and private citizens. This 

Agenda cannot be accomplished by government acting alone. Its accomplishment is 

contingent on a strong partnership among government, industry and the public. It 

calls for a “systems” approach to managing municipal solid waste; that is, the 

complementary use of source reduction, recycling, combustion and landfills to 
comprehensively manage municipal solid waste. It also underscores the need for a 

fundamental change in the nation’s approach to producing, packaging and disposing of 

consumer goods. In the past, “business as usual’’ meant an accelerating trend toward 

disposable products, convenience packaging, and an “out-of-sight, out-of-mind” 

attitude toward solid waste. As a nation, we can no longer afford this kind of 

“business as usual.” We must adopt a new solid waste management ethic that 

minimizes the amount and toxicity of waste created by the products we make and 

purchase, produced during the manufacturing process, and generated by our day-to-day 

activities as consumers. That ethic must also maximize the amount of waste materials 

that are reused and recycled so that we achieve a fully integrated system for waste 

management. In short, we need to change the way we do business. This change will not 

be easy, but if we work diligently together, we will achieve our goal. I hope this 

report will serve as a centerpiece for this change. 

The Agency is very encouraged by the strong support for the Agenda for Action 

that was expressed by states, localities, public interest groups, the waste management 

industry and the manufacturing industries. This support shows a real commitment to 

implementing the Agenda for Action. Based upon public comments, the Agenda has been 

modified somewhat. The most noteworthy changes are: 

o To meet our 25 percent source reduction/recycling goal by 1992, greater 

emphasis is placed on cornposting . Development of quality guidelines and 

standards or guidelines for operation of compost facilities are also planned. 

o No specific source reduction/recycling goal is established beyond 1992; 

however, the Agency anticipates that the 25 percent level will be exceeded, 

as capital equipment comes on-line for recycling various commodities, 

including paper. 

o The goal for source reduction is articulated more clearly to indicate that we 

should reverse the ever-increasing per capita generation of garbage. 

o More emphasis is placed on a “systems” approach to waste management, 

since meeting a 25 percent recycling and reduction goal still leaves 75 percent of the waste stream to be managed. 

o Household hazardous waste (HHW) issues are noted in more detail and are 

included in the source reduction activities section. 
o The need for better communication by states and localities to enhance siting 

is discussed, and EPA’s communications experts are committed to working on 

this issue. 

Finally, several changes to the schedules have been made, to reflect public 

comments and other factors. 

W --J. Winston Porter 

Assistant Administrator 

Solid Waste and 

Emergency Response 

TABLE OF CONTENTS 

Section 

Executive Summary 

Introduction 

Scope of the Problem 

Integrated Waste Management 

- 

- Who’s Responsible 

- Planning 

Hierarchy of Integrated Waste Management 

National Goals 

- Objectives 

An Agenda for Action 

I. Increase Available Information 

11. Increase Planning 

111. Increase Source Reduction Actlvlties 

IV. Increase Recycling 

V. Reduce Risks of Combustion 

VI. Reduce Risks of Landfills 

Page 

1 

6 

12 

16 

17 

19 

20 

22 

24 

26 

26 

36 

40 

49 

60 

65 

Conclusion 

- iii - 

70 
LIST OF TABLES 

- Table - Title 

1 Next Steps for EPA to Increase Information 

2 Next Steps for EPA to Encourage Increased Planning 

3 Next Steps for EPA to Encourage Increased Source 

Reduction Activities 

4 Next Steps for EPA to Participate in and Encourage 

Increased Recycling 

5 Next Steps for EPA to help Reduce the Risks of 

Incineration 

6 Next Steps for EPA to Help Reduce the Risks of 

Landfilling 

Page 

35 

39 

47 

58 

64 

69 

- iv - 
EXECUTIVE SUMMARY 

This report is about what the government calls municipal solid waste, and almost 

everyone else calls garbage. As a nation, we generated about 160 million tons of 

solid waste last year; by the year 2000, we are projected to generate 190 million 

tons. This report is about how we should handle this outflow of refuse - the cans, 

the bottles, the leaves and lawn clippings, the paper and plastic packages, the broken 

furniture and appliances, the uneaten food and the old tires. This deluge of garbage 

is growing steadily and we must find ways to manage it safely and effectively. Eighty 

percent of garbage is landfilled. But we’re running out of space to bury it in 

existing landfills; more than one third of the nation’s landfills will be full within 

the next few years and many cities are unable to find enough acceptable sites for new 

landfills or new combustors. To eliminate this growing capacity gap, all levels of 

government, the public and industry must forge a new alliance to develop and implement 

integrated systems for solid waste management. 

This report presents the goals and recommendations for action by EPA, state and 

local government, industrv and private citizens to address the municipal solid waste 

management problems that are facing this country. These goals and recommendations are 

the result of the efforts of EPA’s recently created Municipal Solid Waste Task Force. 

The Task Force gathered existing data on municipal waste and problems regarding its 

management, solicited input from interested persons and groups, held public meetings 

and developed a number of options to address these problems. This summary data is 

contained in a supplemental document titled “Background Document for the Solid Waste 

Dilemma: An Agenda for Action.” 

The types and extent of the problem in managing municipal solid waste vary from 

region to region depending on waste type, land use and demographic characteristics, 

but some trends and problems are clearly national in scope. From 1960 to 1988, we 

generated more waste every year, both in total tonnage and in pounds per person, and 

-1- 
this trend is projected to continue. In addition, we are running out of places to put 

our waste because old landfills are closing and few new landfills and combustors are 

able to be sited and built. There are concerns about potential threats to human 

health and the environment from combustor emissions and ash, from landfill emissions, 

leachate, and litter. High costs are borne by the waste generator and handler, as 

many areas of the country resort to shipping waste long distances by truck and rail to 

areas with available landfill or combustor capacity. Recycling, although a waste 

management technique popular with the public, is used currently to manage only 10 

percent of our nation’s waste, and ,is successful only when participation in separation 

and collection is high and market prices for secondary materials are favorable. 

Siting of recycling facilities is also becoming more difficult. Finally, manufacturers of products have no direct incentive to design products Tor effective waste 

management because they are not usually directly responsible for the ultimate costs of 

waste management. Similarly, most consumers do not have a direct economic incentive 

to throw away less, because they are not usually charged based on the amount they 

throw away. 

This report recommends using “integrated waste management” systems to solve 

municipal solid waste generation and management problems at the local, regional, and 

national levels. In this holistic approach, systems are designed so that some or all 

of the four waste management options (source reduction, recycling, combustion and 

landfills) are used as a complement to one another to safely and efficiently manage 

municipal solid waste. The system is “custom designed’’ to meet local environmental, 

economic and institutional needs. A key element of integrated waste management is the 

hierarchy, which favors source reduction (including reuse) to first decrease the 

volume and toxicity and increase the useful life of products in order to reduce the 

volume and toxicity of waste. Recycling (including composting) is the preferred waste 

management option to further reduce potential risks to human health and the environment, divert waste from landfills and combustors, conserve energy, and slow the 

depletion of nonrenewable natural resources. In implementing source reduction and 

recycling, we must avoid shifting risks from one medium to another (e.g., groundwater 

to air) or from one population to another. Landfills and combustors will be necessary 

-2- 
for the foreseeable future to handle a significant portion of wastes, but are lower on 

the hierarchy because of the potential risks to human health and the environment and 

long-term management costs. This risk potential can be largely minimized through 

proper design and management. Integrated waste management can and should be 

implemented at a local level to the extent practical, and is a useful conceptual tool 

for making management decisions. But, it is - not meant to be rigidly applied when 

local unique waste and demographic characteristics make source reduction and recycling 

infeasible. 

The integrated waste management system is the framework for the national goals 

presented in this report. This report presents EPA’s stated goal of managing 25 

percent of our nation’s municipal solid waste through source reduction and recycling 

by 1992. Composting of yard waste will play a key role in attaining this goal. While 

no long-term numerical goals are established beyond 1992, the Agency anticipates that 

the 25 percent level will be exceeded as capital recycling equipment comes on line. 

This will be especially true in the paper industry, where planning today will be 

essential to increasing domestic paper recycling in the mid-1990’s. In addition, we 

must strive to reverse our ever-increasing per capita generation of garbage. We also 

must work to reduce the risks associated with landfills and combustors, inasmuch as 

these management alternatives will be necessary to handle most of the wastes. The 

risks of recycling need to be examined to determine if risk reduction is also needed 

for recycling. By implementing these goals, we can solve or reduce many of our 

municipal waste management problems. 

This report outlines EPA’s program to address these goals. It also presents a 

number of recommendations for state and local governments, industry, and consumers 

that will enable us to meet these goals. Information, assistance, and data must be 

made more accessible to everyone by generating catalogs of available materials, 

establishing a national clearinghouse, developing a “peer matching” program to allow 

all levels of government and waste management to exchange expertise, and developing 

a national research agenda for collecting new information and developing new 

technologies. 

-3- 
Planning at all levels of government is recommended in the report. National and 

regional planning conferences are needed to facilitate the exchange of information. 

This report contains a list of elements that state and local municipal solid wasie 

management plans should include. 

Source reduction should be fostered at the manufacturing, governmental, and local 

levels. EPA will study options for reducing lead and cadmium in products in order to 

reduce the risks of combustor emissions and ash, landfill leachate, and recycling 

operations. EPA will foster workshops for manufacturers and educators to promote the 

design of products and packaging for effective waste management. EPA will identify 

economic, regulatory and possibly legislative incentives for decreasing the volume and 

toxicity of waste. EPA will also take steps to facilitate Federal procurement of 

products with source reduction attributes. Industry should conduct waste audits, and 

determine ways to decrease the volume and toxicity of materials used in manufacture. 

Recommendations for recycling (including composting) call for fostering implementation of existing Federal procurement guidelines (as well as evaluating ones for 

additional commodities), and creating an interagency working group to develop pilot 

and full-scale projects for separating recyclables in Federal agencies. Markets for 

secondary materials and recycled goods must be stimulated and stabilized; thus EPA 

will conduct market development studies for different commodities, will examine 

economic and regulatory incentives for using secondary or recycled materials, and will 

foster the formation of regional marketing councils for the exchange of market 

information. A National Recycling Council will be formed with members from all 

sectors of waste management to track recycling issues and problems and to recommend 

actions. Finally, EPA will study how to foster recycling lead-acid batteries, 

including examining the current incentives and disincentives associated with 

liability. Industry should step up its efforts in fostering the recycling of 

plastics. State and local governments should encourage separation of recyclables, 

conduct waste exchanges, and provide incentives for stable markets for recycled goods. 

' 

-4- 
Finally, recommendations for decreasing the risks from landfilling and combustion 

include continuing EPA’s ongoing efforts to develop air emission standards for new 

combustors and landfills, air emission guidelines requiring state standards for 

existing combustors and landfills, and revised minimum design and operation criteria 

for landfills. EPA recommends that ash management plans be developed as part of any 

plan for combustion of waste. €PA, in conjunction with trade associations, will 

facilitate development of guidance on training and certification for combustor and 

landfill operators. EPA will also study whether bans are necessary or desirable for 

certain types of waste. 

These recommendations present a core program for governmental, industrial and 

citizen action which will help solve our nation’s municipal waste management problems. 

-5- 
INTRODUCTION 

This report is about what the government calls municipal solid waste and almost 

everybody else calls garbage. It’s about bottles, cans, disposable diapers, uneaten 

food, scraps of wood and metal, worn-out tires and used-up batteries, paper and 

plastic packages, boxes, broken furniture and appliances, clippings from our lawns and 

shrubs--the varied human refuse of our modern industrial society. 

All of us generate solid waste every day--a total for the nation of about 160 

million tons a year. And the garbage deluge is growing steadily; with our current 

garbage practices, it could reach 193 million tons by the Year 2000. More than 40 

percent of this solid waste stream consists of the paper and paper products we discard 

in our homes, offices and factories.* Yard wastes make 

“Eve ybody wants us to 

pick it up, and nobody up another 18 percent of the total. The other major 

wants us to put it components are metals, glass, food waste, and plastics 

down.” (see Figure 1). Symptomatic of what social critics call 

our “throwaway society” are the many disposable 

products that are manufactured, imported, sold, used and thrown away; for example, we 

discard 1.6 billion pens, 2 billion razors and blades, and 16 billion diapers every 

year. “Convenience” packaging suited to our high-speed, increasingly busy lifestyles--TV dinners, fast-food containers, microwavable bags of popcorn, and the 

like--make a substantial contribution to the flood of trash. 

*In this report, the term “municipal solid waste” refers primarily to residential solid 

waste, with some contribution from commercial, institutional and Industrial sources. In 

some areas, nonresidential wastes are managed separately, largely because industrial and 

some commercial sources produce relatively uniform wastes in large quantities, which makes 

them more suitable for alternative disposal techniques or recycling. Hazardous wastes, as 

defined by Federal and State regulation, generally are managed outside the municipal solid 

waste stream. Exceptions are household hazardous wastes and hazardous wastes generated in 

very small quantities, which are often placed in the municipal solid waste stream by the 

generator. 

This report does not attempt to grapple with the issue of medical waste. This issue 

is the subject of a separate EPA Task Force. 

-6- 
Paper and 

paperboard - 41.0% 

6.5% 

Misc. inorganic 

wastes - 1.6% 

Yard wastes 

1 7.9% 

Food wastes ? 7.9% 

Rubber, leather, textiles, 

wood - 8.1% 

FIGURE 1 GROSS DISCARDS, BY WEIGHT, OF MSW MATERIALS, 1986 

(Source: Characterization of Municipal Solid Waste 

in the United States, 1960 to 2000; Franklin 

Associates, 3/30/88) 

-7 
People who manage solid waste say that the First Law of Garbage is: “Everybody 

wants us to pick it up, and nobody wants us to put it down.” Many Americans want 

their trash to disappear quickly and quietly from their backyards and curbs, never to 

be seen or heard from again. And the - last thing they want in their neighborhood is a 

landfill, combustor or recycling center--all of which are associated in the public 

mind with noxious odors, possibly dangerous pollution, and noisy traffic. 

These two social forces--the throwaway mentality on the part of manufacturers and 

many consumers and the NIMBY syndrome--have combined to create a serious and growing 

solid waste problem in many American cities. As a nation, we are generating more 

garbage ail the time, and we don’t know what to do with it. Ineffective or irresponsible disposal of all this waste has the potential to degrade the environment and 

cause risk to public health. We’re running out of space 

to bury it in existing landfills; more than one-third of “The annual US. 

generation of 158 million 

tons of municipal solid the nation’s landfills will be full within the next two 

waste would fill a conuoy 

of IO-ton garbage trucks, to three years. Yet because of the NIMBY syndrome and 

145,000 miles long . . . concerns over potential threats to human health and the 

over half way from here 

to the moon. ” 

environment, many cities are unable to find enough 

acceptable sites for new landfills. Siting new 

combustors can be equally difficult; many people are concerned as to whether garbage 

can be burned without producing dangerous air pollution and residues. The problem has 

gotten to the point that some American cities are paying premium prices to have their 

trash shipped to other counties, states, and even foreign countries. 

In response to this solid waste dilemma, many states, localities, and concerned 

citizens have stepped up recycling activities and formed comprehensive waste management programs, With their progressive programs, some localities are far ahead of any 

Federal program for municipal solid waste, while other communities and states lag far 

behind and may not even recognize or anticipate a problem. The private sector, in the 

form of the waste management, secondary materials, and manufacturing industries, have 

also recognized the benefits of recycling and have successfully implemented programs. 

The Federal role for municipal waste management has ranged through the years from an 

active nonregulatory role prior to 1980, to a less comprehensive, more regulatory role 

-8- 
since 1980. In the past several years, EPA has proposed revised minimum standards for 

designing and operating municipal landfills; issued procurement guidelines for some 

recycled goods; issued a Report to Congress on air emisslons from municipal waste 

combustors; published an Advance Notice of Proposed Rulemaking for regulating air 

emissions from new and existing combustors; issued combustor guidance to new source 

permitting authorities; developed a report on the efficacy of the current nonhazardous 

waste regulations; recently initiated several bulletins and brochures to promote used 

oil recycling; and conducted a toxicity study on municipal waste combustor ash. EPA 

also is developing guidance for proper handling and disposal of combustor ash 

residuals. 

More recently, the Environmental Protection Agency created a Municipal Solid 

Waste Task Force in February 1988 to specifically address the problem of increasing 

waste generation and decreasing management capacity. The Task Force was given the 

assignment of quickly assessing the size and scope of the solid waste problem, 

examining alternatives for solving it, and developing a well-coordinated strategy of 

action for improving the nation’s management of municipal solid waste. 

In an effort to make the strategy credible and practical, the Task Force 

solicited comments from the public and interested groups and organizations. Seven 

public meetings were held in May, September and October in Boston, Dallas, Seattle, 

St. Paul (Minnesota), Washington (D.C.), Los Angeles and Atlanta. A 60-day public 

comment period on the draft strategy was also provided. The Task Force also identified interested trade associations, environmental groups, and government organizations 

and offered drafts of its analysis for their review during the development of the 

draft strategy. These comments from the public contributed substantially to this 

Agenda for Action. 

-9- 
This report presents the Task Force’s national action agenda.* There is no 

single solution to this complex problem. A myriad of activities must be implemented, 

both in the short and long term, by all of us in order to solve the current and future 

problems with municipal solid waste. This report suggests a number of things that 

government, business, industry and citizens can do to reduce the production of solid 

waste and better manage the solid waste that is produced: manufacturing products with 

consideration for their ultimate management as wastes; encouraging, producing and 

buying products that are 

“Each of us contributes 

an average of 1,300 

pounds a year to the 

growing mountain 

of garbage, and each of 

us, if we’re willing, can 

cut back on the amount. ” 

complements the others to 

made from recycled or recyclable materials; separating 

bottles, cans and paper and turning them in for recycling; improving the safety and efficiency of landfills 

and combustors; and wherever practical, choosing source 

reduction and recycling over landfilling and combustlon 

as the preferred methods for managing municipal solid 

waste. A mix of these options must be molded into an 

integrated waste management system where each component 

safely and efficiently manage the waste. Local environmental, economic and institutional needs will, of course, play an important role in 

determining the mix at the local level. While this report acknowledges that the bulk 

of waste will be managed through combustion and landfills, it emphasizes a significant 

shift to source reduction and recycling. The report reiterates EPA’s stated goal* * of 

diverting 25 percent of the nation’s municipal solid waste from landfills and 

combustors through source reduction and recycling by 1992. Much of this goal will be 

met through increased recycling with a special emphasis on composting of yard waste. 

But EPA believes that implementing source reduction, by not increasing our present per 

capita generation of municipal solid waste, is vitally important. In the longer term, 

“Only the Task Force’s recommendations are included in this report; the data and 

information supporting the recommendations can be found in a supplemental document 

entitled, “Background Document for The Solid Waste Dilemma: An Agenda for Action, Draft 

Report of the Municipal Solid Waste Task Force.” (EPA #530-SW-88-054A) and “The Solid 

Waste Dilemma: An Agenda for Action, Appendices A-B-C” (EPA 530-SW-88-054B). 

*“This goal was first stated by the Assistant Administrator of the Office of Solid Waste 

and Emergency Response, J. Winston Porter, in a speech at the Fourth Annual Conference on 

Solid Waste Management and Materials Policy, on January 29, 1988. 

- 10 - 
the Agency anticipates that the 25 percent goal will be exceeded as capital recycling 

equipment comes on line. This will be especially true in the paper industry, where 

planning today will be essential to increasing our domestic paper recycling capacity 

in the mid-1990’s. Another crucial long-term goal is to reduce the per capita 

generation of municipal solid waste. Some proposals, such as government incentives to 

encourage the production of long-lasting products that can be reused or recycled, will 

be controversial; but the solid waste problem is serlous, and controversy is not 

sufficient reason to ignore workable solutions. 

When Congress passed the Resource Conservation and Recovery Act of 1976 

(RCRA), it recognized that state and local governments have primary responsibility 

for municipal solid waste management, but it also gave EPA regulatory and assistance 

responsibilities in this area. Many of the recommendations in this report were 

developed with the recognition that strong national leadership is essential in finding 

solutions to what has become a widespread national problem. National leadership means 

not only establishing national goals and policies, but setting a good example by 

purchasing recycled or recyclable products and by separating waste to facilitate 

recycling or safe disposal. 

Each of us contributes an average of 1,300 pounds a year to the growing mountain 

of garbage, and each of us, if we’re willing, can, at least, stop increasing the 

amount of waste requiring disposal. In the longer term, we can reduce our per capita 

generation of waste. Industry can also work toward reducing the volume and toxicity 

of products and packaging that will ultimately require disposal. The report recommends a number of educational and other programs to inform citizens and industry about 

their responsibilities and opportunities to help stem the tide of solid waste. 

It is Important for all of us--government, business, and prlvate citizens-to 

acknowledge that our country has a solid waste problem and to begin the dlfflcult but 

inescapable task of finding solutions. If we wait, the problem will only get worse. 

If this report stimulates thought, discussion and action to help improve the 

management of our nation’s municipal solid waste, it will have accomplished its 

purpose. 

- 11 - 
SCOPE OF THE PROBLEM 

When local officials are asked to list the chief problems associated with 

municipal solid waste, they usually cite the growing shortage of landfill capacity and 

the high cost of managing waste. These two management problems are especially severe 

in some American cities, where disposal costs have soared 

“ln 1960, Americans 

generated waste at a rate 

to more than $100 per ton of waste because of longof 2.65 pounds per person 

per day; by 1986, thut 

figure had jumped to 

3.58 pounds. ” barge” , 

garbage 

the capacity shortages in populous 

distance 

fees. 1 

hauling and high landfill and combustor “tip” 

The international wanderings of the “garbage 

forlornly searching for a last resting place for 

from Islip, New York, graphically illustrated 

communities. Some states and localities have 

responded to this problem by enacting laws requiring mandatory recycling or discouraging waste generation. 

Hlgh costs and capacity shortages, however, are only symptoms of a more basic 

problem: Most of America’s citizens, officials and industry have yet to recognize 

their responsibility for the growth in solid waste and for the problems caused by that 

growth. In 1960, Americans generated waste at a rate of 2.65 pounds per person per 

day; by 1986, that figure had jumped to 3.58 pounds, and the trend is projected to 

continue into the Year 2000.2 Generation of every kind of waste is up, including 

paper, plastic, glass, and metals, as shown in Figure 2. An American generates 

approximately one pound per day more waste than his/her counterpart in West Germany, 

an equally industrialized nation. Much of the difference can be traced to the high 3 

1 Frank J. Sudol and Alvin L. Zach, “Recycling in New Jersey: the Newark Experience,” 

Resource Recycling, Volume VII, No. 2, May/June, 1988, p. 28. 

Characterization of Municipal Solid Waste in the U.S. 1960-2000 (updated 19881, Franklin 2 

Associates, March 30, 1988. 

3 Allen Hershkowitz, Ph.D., “Garbage Burning--Lessons from Europe: Consensus and 

Controversy in Four European States,” Inform, 1986, p. 13. 

- 12 - 
tr 

w 

I 

70 

6 0- 

50- 

4 0- 

3 0- 

2 0- 

10- 

PAPER AND 

PAPERBOARD 

GLASS METALS P LAST1 CS 

RUBBER, 

LEATHER, 

WOOD, 

TEXTILES 

GROSS DISCARDS OF MATERll 

Kx)D 

WASTE 

2000 

YARD 

WASTE 

I MIX. 

INORGANICS 

LS IN MSW" 

*Ref: Characterization Of Municipal Solid Waste In The 

United States, 1960 To 2000; Franklin Assoc, 3/30/88 

(before material or energy recovery) 

FIGURE 2 

I 

1 I 
level of product manufacture and consumption in this country and the need for convenience on the part of increasingly busy families. In general, American consumers 

have no incentive to limit their waste generation, because they are not charged for 

disposal according to the amount of waste they produce. Nor are there many incentives 

for manufacturers to design their products and packaging in a way that takes into 

account the effective management of those products when they are eventually discarded. 

At the same time more waste is being generated, less processing and disposal 

capacity is available to handle it. One-third of the nation’s landfills will be full 

by 1991, which means that waste that is now disposed of in these facilities will have 

to be disposed of elsewhere. Many existing facilities are closing either because they 

n.. are filled or because their design and operation do not meet Federal or state 

standards for protection of human health and the environment. New facilities must be 

built to replace this diminishing capacity but must be environmentally sound, preserve 

valuable resources, and not present undue risk to human health. The incentive to 

build new, environmentally sound facilities and adopt better management practices may 

not exist in some areas because of the current practice of “waste flight,” in which 

waste is shipped by truck or rail across state and county lines to areas with available capaclty. If not done concurrently with long-term planning to solve the capacity 

problem for a region, the short-term solution of waste flight only delays the 

inevitable management problem in the locality shipping the waste, and hastens 

potential problems in the area that receives and disposes of the waste. 

’ 

Efforts to site new landfills, combustors and recycling centers, however, are ,met 

with mounting opposition. This opposition may stem from concerns about environmental 

or health risks from contaminated ground and surface waters and soil, toxic ash from 

municipal waste combustion, and air emissions; from resistance to such nuisance 

factors as noise, smells, and truck traffic; and from anxiety over property values. 

Because few governments have established effective dispute resolution mechanisms, 

“slting Impasses” result when local politicians are unwilllng or unable to override 

the obJections of their constituents. These siting disputes illustrate the fact that 

- 14 - 
few of us are eager to assume responsibility for either our neighbors’ wastes or our 

own. 

Although recycling and reuse of waste materials are publicly acceptable methods 

for managing municipal solid waste, the existing waste management infrastructure often 

discourages effective recycling efforts. For example, a national policy supporting 

the use of a waste management “hierarchy” has been in effect since 1976.4 Under the 

hierarchy, souree reduction and recycling are the preferred options for managing solid 

waste. Combustion and landfilling are to be used only when the preferred options are 

unavailable or insufficient. Overwhelmed by the burgeoning amounts of waste that must 

be removed from the curb every day, many waste managers are unable to plan or 

implement the hierarchy at the local level. As a result, 80 percent of the nation’s 

waste is landfilled; only 10 percent is recycled and 10 percent combusted. This 

reliance on landfilling may stem from a desire for a single, “quick-fix” solution; 

more recently, many public officials seem to be turning to mass-burn combustors as the 

“silver-bullet’ ’ answer to their waste management problems. The temptation to build 

a facility that can combust 2,000 tons of garbage a day may be difficult for a 

hard-pressed waste manager to resist. 

Why aren’t many states and localities implementing the waste management hierarchy? One reason is that local officials may consider recycling programs too costly. 

They also may not consider recycling a reliable way to handle municipal solid waste 

because success in recycling depends heavily on markets for secondary materials as 

well as public participation levels, both of which can fluctuate widely. And, 

information on the true costs of each waste management option mey not be available. 

This brief description of the scope of the problem is by no means comprehensive. 

It is meant to establish the basis for setting goals and actions for a national 

strategy. Chapters 2 and 3 of the Background Document provide a more thorough 

description of the problems involved in managing municipal solid waste. 

4 Effective Hazardous Waste Management (Non-Radioactive) ; Position Statement, Federal 

Register, Volume 41, No. 161, August 18, 1976. 

- 15 - 
INTEGRATED WASTE MANAGEMENT 

The term “integrated waste management” refers to the complementary use of a 

variety of waste management practices to safely and effectively handle the municipal 

solid waste stream with the least adverse impact on human health and the environment. 

An integrated waste management system will contain some or all of the following 

components: 

o 

o 

o 

o Landfilling. 

Source reduction (including reuse of products) 

Recycling of materials (including composting) 

Waste combustion (with energy recovery) 

In integrated waste management, all the elements work together to form a complete 

system for proper management of municipal waste. Waste stream constituents are 

matched to the management practices that are best suited to those particular constituents, in order to reduce toxics, reduce quantity, and safely extract any useful 

energy or material from the waste prior to final disposal. 

Every community can “custom-design’ ’ its integrated waste management system to 

emphasize certain management practices, consistent with the community’s demography and 

waste stream characteristics. For example, a community like Las Vegas, Nevada, where 

landfill tipping fees as low as $6 per ton reflect the ready availability of land5, 

may choose to continue to rely on landfilling as its primary waste management practice 

after evaluating the feasibility of source reduction and recycling. Conversely, a 

5 C. L. Pettit, “The 1987 Tip Fee Survey - Last Year’s Rise was the Biggest Ever,” 

Waste Age, Vol. 19, No. 3, March 1988, p. 77. 

- 16 - 
town such as East tyme, Connecticut, where disposal costs exceed $100 per ton, finds 

.recycling an essential way io handle a major part of the waste stream. 6 

Euey community can 

In an integrated waste management system, each 

component is designed so it complements, rather than 

“custom&sign” izs competes with, tile other components in the system. For 

integrated waste 

management system to example, combustors should be designed to handle a volume 

suit its needs. of waste with a certain Btu value after allowing for the 

effect of recycling on total waste volume and Btu 

values. Failure to do this can lead to a situatlon where materials which would 

otherwise be recycled are not because they are needed as fuel for the combustor. 

Hierarchy of Integrated Waste Management 

To most effectively reduce our waste management problems at the national level, 

states, municipalities, and the waste management industry should use the hierarchy 

described below for evaluating the components of integrated waste management against 

the community’s needs. Of course, strict adherence to a rigid hierarchy is inappropriate for every community. Manhattan, Nevada will very likely choose a different mix 

6“Ttanscript of tlie Public Meeting on Mrinicipal Solid Waste,“ Bostr,ll. Massachrisetts, 

May 3, 1088. li(:IiA Docket “F-88-MlFN-FFFF’F, EI’A, Office of Solid M’,~;te, 401 M Street 

S.W., Wilsliinqtoii D.C. 20460 

- 17 - 
of options than Manhattan, New York. But the integrated waste management hierarchy is 

a useful conceptual tool for both communities to use in setting goals and planning for 

their particular mix of waste management alternatives. 

The hierarchy begins with source reduction and-reuse to reduce both the toxic 

constituents in products and the generation of large quantities of waste. Source 

reduction, as defined in this report, may occur through the design and manufacture of 

products and packaging with minimum toxic content, minimum volume of material, and/or 

a longer useful life, Source reduction may also be practiced at the corporate or 

household level through selective buying habits and reuse of products and materials. 

Effective source -reduction slows the depletion of environmental resources, prolongs 

the life of available waste management capacity and can make combustion and landfilling of wastes safer in the short and long term by removing toxic constituents. 

Source reduction is not used by local waste handlers for managing the waste that is 

picked up every day; rather, it cuts back on the amount and the toxicity of the waste 

which is handled. However, local government can encourage as well as practice source 

reduction. 

The second rung in the hierarchy is recycling of materials, including composting 

of food and yard waste. Recycling is near the top of the hierarchy because it prevents potentially useful materials from being combusted or landfilled, thereby 

preserving waste disposal capacity. Recycling is a technology that can prevent 

depletion of valuable landfill space, save energy and natural resources, provide 

useful products from discarded materials, and even make a profit (especially when the 

avoided costs of combustion or landfilling are taken into account). Thus, public 

officials and waste handlers should give serious consideration to the practicality of 

recycling and composting programs in their communities. 

Although lower than source reduction and recycling in the hierarchy of desirable 

waste management options, waste combustion is useful in reducing the bulk (although 

not all) of municipal waste and can provide the added benefit of energy production. 

Although combustion is not risk-free, a state-of-the-art combustor that is well 

- 18 - 
operated should not present a significant risk to human health and the environment. 

When recycling is part of a community’s or a waste handler’s chosen integrated waste 

-management system, combustion can complement recycling by reducing the bulk of the 

nonrecyclable, nonreusable waste. Likewise, combustion can be made more efficient by 

source reduction and removal of recyclables which are less conducive to combustion or 

which could lead to potentially harmful stack emissions or operational problems caused 

by heterogeneous waste mixtures. Residual ash is another problem associated with 

combustors because of the sometimes high metals content and the need to manage it 

properly. 

Landfilling also is lower in the hierarchy than source qeductlon, reuse and 

recycling, but is essential to handle wastes such as nonrecyclable waste and the 

noncombustibles such as demolition waste and construction debris. In addition, 

landfills can provide the benefit of energy production through recovery of methane 

gas. Landfills designated for handling combustion ash residuals are essential and, in 

the absence of alternative ash management plans, must be planned and designed in 

conjunction with the combustor. Landfills should also be used for materials that 

cannot practicably be managed in any other way. A well-constructed, properly operated 

landfill should not present a significant health risk. As previously mentioned, some 

communities and waste handlers, based on land availability and population characteristics that make recycling impractical, may choose landfilling as their principal 

method of managing municipal waste. For the foreseeable future, landfills will be 

necessary to handle a significant portion of wastes, so steps must be taken to make 

landfilling as safe as possible. 

Who’s Responsible? 

We all are. Everyone has a role in making integrated waste management work. 

Industry has a responsibility to consider source reduction, reuse and recyclability in 

designing products and packaging, and to use secondary materials in their manufacture. 

Citizens have a responsibility to learn about the products and packaging they buy and 

the waste they create. What is in the product? What is recyclable? What is 

- 19 - 
potentially harmful? How much does it cost to 

dispose of it? Every individual and corporate citizen should assume responsibility 

for waste disposal and adopt a “pay-as-you-throw” attitude--a recognition of the 

true costs of disposing of the wastes we generate. 

How long will the product last? 

Waste management companies, including processors 

handlers of secondary materials, have a responsifor planning and implementing integrated waste 

Who’s Responsible? 

WE ALL ARE. 

Everyone has a role in 

making integrated waste bility 

and 

magement work. management for their communities. They should work in 

partnership with state and local public officials to 

plan and implement integrated waste management and to educate the public. This 

partnership can be an effective mechanism for managing municipal solid waste. 

All levels of government, especially state, tribal and local, are ultimately 

responsible for managing waste and planning the mix of management options that will 

most effectively handle the waste stream. The Federal government should participate 

in municipal solid waste management by establishing national goals and leadership, 

developing education programs, providing technical assistance, and issuing regulations. The Federal government also has a role in establishing a framework for state, 

Tribal and local planning, setting minimum standards for facilities, and encouraging 

the manufacturing industry to design products and packaging for effective waste 

management, as well as to utilize secondary materials in manufacturing. Finally, all 

levels of government should set a good example by purchasing recycled or recyclable 

products and products that have been subject to source reduction whenever possible, 

and handling their own wastes in a way that facilitates recycling and reuse. 

Planning . ~ 

Planning is a vital component in achieving a national goal of integrated waste ~~~ 

management. Siting, designing, and building a landfill or combustion facility can 

take many years. Similarly, collection and recycling programs may take several years 

to develop to full scale. This delay is especially difficult for communities 

__ 

- 20 - 
experiencing an immediate waste handling capacity shortage, but it also may affect 

communities that face possible capacity problems in the future. Thus, states, Indian 

Tribes and local communities should actively plan short- and long-term waste programs 

based on current and projected characteristics of their waste streams. 

Evaluating and implementing, where feasible, the integrated waste management 

hierarchy at the local level helps solve the problems associated with waste 

management. Minimizing toxicity and volume through source reduction, reuse and 

recycling directly addresses the problem of capacity shortage and potential risks from 

toxic constituents. 

- 21 - 
NATIONAL GOALS 

The problems associated with municipal solid waste management, including cost 

and capacity, are felt most directly and can best be handled at the local level 

through implementation of integrated waste management practices. These problems, 

however, are also regional and national in scope. The widening gap between available 

capacity and levels of waste generation demands national solutions and a long-term 

commitment by all. We can no longer rely on landfills to handle 80 percent of the 

nation’s waste. The United States must find a safe and permanent way to eliminate the 

gap between waste generation and available capacity in landfills, combustors, and 

in secondary materials markets. 

How can this goal be accomplished? We must take short-term actions now in order 

to solve the problems of today and tomorrow. Above all, we must increase source 

reduction and recycling activities while making - all 

management options reliable and safe. EPA believes that, The United States must 

find a safe and permanent to the extent practical, source -- reduction and then 

way to eliminate the gap 

between waste generation recycling are the preferred options for closing the gap 

and mailable capacity in and reducing the amount and toxicity of waste that must 

landfills, combustors, 

and in secondary be landfilled or combusted. To foster implementation of 

materials markets. this preference for source reduction and recycling, €PA 

set a national goal in January 1988 of 25 percent source 

reduction and recycling (up from the current 10 percent) by 1992. Although recycling 

(with special emphasis on composting of yard waste) will play the major role in 

achieving this goal, source reduction is an important component. While no long term 

numerical goal has been established, we anticipate that the 25 percent level will be 

surpassed as capital recycling equipment comes on-line. This will be especially true 

in the paper industry, where planning today will be essential to increasing domestic 

paper recycling in the mid-1990’s. Our nation must stop the increase in our per 

- 22 - 
per capita generation rate. And, in the long run, we must also strive to reduce it. 

Source reduction and recycling help prevent many of the problems associated with 

municipal solid waste, including the pressing need to sile new landfills and 

combustors to handle the large volumes of waste being generated. Preventing 

generation of wastes and diverting waste components from landfills and combustors into 

reuse, ..recycling. OF camposting helps to alleviate-siting problems and potential risks 

to human health and the environment attributable to improper management. Thus, 

planning and implementing these activities now yields benefits in managing wastes in 

the years to come. Reaching the 25 percent source reduction and recycling goal will 

mean that the remainder will be handled by combustion and landfills. On-line and 

already permitted, combustors are projected to handle about 20 percent of the waste 

stream. The remainder (about 55 percent) is projected for landfills. 

- 23 - 
Even the most effective source reduction and recycling efforts, however, cannot 

handle the total waste stream. Thus, EPA believes that all waste management practices 

should be made safer. We will need landfills and combustors into the foreseeable 

future to process and dispose of a significant portion of the waste stream. Improving 

the safety of these disposal alternatives, as well as materials recovery and recycling 

facilifies, can help protect human health and the environment and can only help gain 

public acceptance of all such facilities. 

Objectives 

The Task Force has identified six objectives for a national agenda for action to 

solve the municipal solid waste dilemma. By fulfilling these objectives, we help 

overcome many of the problems associated with municipal solid waste management, 

including siting problems, increased waste generation rates, concerns over human 

health and the environment, and, perhaps, some of the high costs of waste management. 

In addition, by carrying out these objectives--especially by increasing source 

reduction, recycling, and effective planning--government , industries, waste managers 

and citizens will have helped fulfill the concept of integrated waste management and 

will learn to look beyond the “single solution” to waste problems. The objectives 

are : 

1. 

2. 

3. 

4. 

5. 

Increase the waste planning and management information (both 

technical and educational) available to states, local communities, 

waste handlers, citizens, and industry, and increase data 

collection for research and development. 

increase effective planning by waste handlers, local communities, 

and states. 

Increase source reduction activities by the manufacturing industry, 

government and citizens. 

increase recycling by government and by individual and corporate 

citizens. 

Reduce risks from municipal solid waste combustion in order to 

protect human health and the environment. 

- 24 - 
6. Reduce risks from landfills in order to protect human health and 

the environment. 

The following Agenda for Action is structured within the framework of these six 

objectives. Each objective is briefly described, and roles for government (Federal, 

state, tribe and local), industry and citizens are summarized. A table of next steps 

follows each objective, for easy reference by the reader. 

The Task Force received many suggestions on potential actions, and studied a 

number of different options. The following action items are culled from the larger 

array of options, and constitute a minimum program for meeting the above-stated goals. 

Most of these actions received broad-based support from public commentors. Elements 

that were noted by commentors as being especially important are a national clearinghouse for information dissemination, Federal procurement guidelines for recycled 

goods, market development studies ~ for recycling, design and operation standards for 

landfills, and alr emission and operator certification standards for combustors. 

- 25 - 
AN AGENDA FOR ACTION 

To most effectively reach the goal outlined above, the Task Force’s recommended 

actions focus on reducing large-volume contributors to the waste stream. For example, 

paper and yard wastes are targeted for special action because they contribute nearly 

60 percent of the waste stream. While EPA has targeted paper and yard wastes for 

special consideration, ihe Agency realizes the importance of addressing other wastes 

to reduce toxicity, and to pursue opportunities for recycling. In addition, 

“orphan” wastes such as tires and batteries are highlighted because they are not now 

managed in any cohesive way, and can present environmental and health problems and 

management headaches. 

1. OBJECTIVE: INCREASE AVAILABLE INFORMATION 

Technical assistance, education, and research and development are important ways 

to encourage informed participation in achieving waste management goals. These goals 

may be the national goals, as described above, or they may be the basis for state, 

tribal or local integrated waste management programs. Educational materials increase 

awareness of good waste management “ethics” while technical assistance ensures that 

all types of waste handlers (individuals, government, industry) have all the information that they need to manage wastes safely and effectively. Data collection and 

research and development expand the boundaries of our knowledge, giving us new 

information, new technologies and new solutions. 

Through participation in every level of effective waste management, citizens and 

the manufacturing industry must take responsibility for the waste they generate. The 

way to enhance participation is through development and efficient delivery of educational and technical guidance for all audiences. This section describes development 

of technical and educational guidance, data collection and research and development 

programs, and delivery systems such as a national clearinghouse and a “peer 

- 26 - 
matching” program that matches experts in waste management to communities in need of 

help. 

Develop Materials on General Topics and Specific Technical Areas 

-Technical Guidance DocumentsGuidance and materials on the technical aspects of source reduction, combustion, 

recycling, landfilling, composting, and collection are important for increasing the 

quallty of waste management by everyone. These materials 

provide the “how-to” for the consumer, industry, the Educational materials 

prouide a way to change 

“business as usual” in government, and the waste handler to effectively reduce 

our society by gluing waste generation, and prevent management and environ- people the necessa y 

background information to mental problems. 

determine ‘‘good” and 

“bad” waste management. 

\ 

The technical materials should address at least 

these areas: 

What factors decision makers should consider in choosing among waste 

management options. 

How each community can compare the risks of each management alternative in 

order to assist In siting decisions. 

How state and local governments can communicate risks for municipal solid 

waste management alternatives to the public. 

How’ to determine the true costs of waste management, and how to calculate 

the management costs avoided through choosing one waste management 

alternative over another. 

How citizens and businesses can implement source reduction through their 

consumption habits (e.g., ways to reduce paper consumption through 

double-side copying). 

How to set up a community recycling program, 

How homeowners can effectively backyard compost 

use backyard or commercial compost in landscaping, 

their yard wastes, and can 

building, or gardening. 

- 27 - 
0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

How to create incentives for and overcome b.arriers to successful source 

reduction and recycling programs. 

What to look for in designing and operating combustion facilities, including 

waste-to-energy methods, and landfills. 

How to market secondary materials and energy generated by waste-to-energy 

plants and methane from landfills. 

How to market compost, and ensure quality compost products. 

What terms like “recycled” and “recyclable” mean (whai the minimum 

amount of secondary materials is for a product to be called “recycled”). 

How to insure that goods labeled as “recycled” or “recyclable” are 

genuine. 

How to collect and process tires, including a processing method for making 

refuse-derived fuel from tires and guidance on marketing this fuel, 

management of tires in landfills, management of tire piles, and recycling of 

tires. 

How to handle lead-acid batteries, including guidance on proper design and 

operation of collection and processing facilities and metal-recovery 

operations. 

How to manage and reduce household hazardous waste, including paints, 

cleaners, solvents, used oil, etc. 

How biomedical wastes should be handled and treated. 

Whether labeling such as “recycled,” “recyclable,” and “designed for 

safe disposal in an combustor or landfill” is effective and feasible. 

(Such labeling is believed by many to be useful in raising public consciousness. But, concerns over issues such as the need for Federal oversight, defining these terms, and “truth in advertising” problems must be 

studied. ) 

Work on some of these materials is already underway by EPA, state and local 

governments, the waste handling industry, trade associations and public interest 

groups. For example, EPA is working on communication tools for state and local 

governments to use in siting facilities. This list of materials is a sample of what 

could and should be done, but it is by no means exhaustive. EPA will evaluate what is 

available and what is needed for technical materials. 

~ 

- 28 - 
-Educational MaterialsEducational materials provide a way to change “business as usual” in our 

society by giving people the necessary background information to determine “good” 

and “bad” waste management. The target audience for these materials is varied, 

including waste, generators (households, +businesses, !and industry), waste planners, and 

waste managers. It is as imperative to inculcate the ethics of integrated waste 

management into the public works official as it is the homeowner. 

Many excellent educational materials have already been developed by some states, 

localities, public interest groups, and trade associations. A comprehensive educational program should, at a minimum, address the following areas and audiences: 

Pamphlets and brochures for the general public, describing the components 

and concepts of integrated waste management, the risks and costs associated 

with various management options, and questions that citlzens should ask 

about the wastes they generate and waste management in their communities. 

Brochures should also emphasize questions citizens should ask themselves 

about the waste they generate and should encourage citizens to conduct waste 

audits on their household wastes. 

Curricula for school children and teenagers that not only explain different 

waste management methods and issues, but also incorporate municlpal waste 

issues into a variety of subject areas (e.g., arithmetic problems) in order 

to raise general consciousness. Such educational materials could also 

include coloring books, videos, and field trips. 

Materials and forums to inform the design and manufacturing industries of 

the importance of source reduction and the design of products and packaging 

with an eye toward the eventual safe disposal or recycling of the waste. 

Materials to encourage participation in recycling. Collection and separation methods for glass, metals, paper and plastics, by both households and 

businesses, would be stressed. Other materials could include pamphlets 

explaining the cost savings associated with recycling process and scrap 

wastes in industry. Materials could also include bumper stickers, posters, 

and billboards. 

Informational pamphlets explaining the true costs of waste management. 

These would be used by waste handlers, local governments and citizens for 

making more informed decisions. 

- 29 - 
& 

€PA will collect existing materials and foster development materials necessary to 

fill the gaps in general educational materials. 

Data Collection and Research and Development 

Adequate and accurate data are vital underpinnings to any municipal solld waste 

program. We cannot evaluate the progress in meeting national or local goals without 

data. Adequate data allows us to make informed decisions and prevent undue risks from 

waste management. Important data gaps that must be filled in include characterization 

of the waste stream and waste management practices. A comprehensive research and 

development program is necessary to continue upgrading the quality of waste management 

practices. Industry and all levels of government must forge a partnership for conducting research and development in all areas of municipal waste management. Industry 

especially can assume a leadership role in the areas of source reduction and recycling 

technologies by finding substitutes for toxic materials in products, reducing the 

volume of material in products, and increasing recycling practices and technologies. 

Characterize the Waste Stream and Waste Management PracticesThe Federal and state governments should gather summary data generated by the 

public and private sectors on waste characteristics and management practices. This 

data should be used to trace national trends and facilitate short- and long-term 

planning. All levels of government should institute databases for tracking volumes 

and types of wastes in order to facilitate planning at the state and local level. 

This characterization should study individual constituents in the municipal solid 

waste stream to determine progress in source reduction and recycling and targets for 

significant volume and risk reduction. 

-Research and DeoelopmentResearch and development is needed in technical areas related to combustion (ash 

and air emissions), landfilling, recycling technologies, designing for effective waste 

- 30 - 
management (e.g., reducing toxics, increasing recyclability and durability) and source 

reduction, More work is also necessary to further characterize the risks associated 

with various waste management options. This includes characterizing this effects on 

global climate. 

EPA is developing a national agenda for research and development necessary to 

augment what is currently underway. EPA will coordinate its initiative closely with 

those of private industry, states and academia. In cooperation with these groups, EPA 

will generate a national research agenda providing for coordinated studies in various 

areas such as the assessment of emerging commercial technologies, appropriate 

municipal waste combustor operating conditions and air emissions control technology, 

appropriate management of combustor residuals, improved landfill design and operation, 

improved siting and monitoring methods, improved recycling techniques, and 

identification of substitute materials for toxics in products. In addition, €PA will 

continue to involve other parties in its research efforts. 

Establish Systems to Disseminate Information and Assistance 

Some states, trade Although many excellent educational and technical 

associations, and public 

interest groups have materials, expertise, and data exist, systems for sharing -- 

taken the initiative to these materials, data and expertise are sadly lacking. 

form state or regional 

“libraries” or 

Some states, trade associations, and public interest 

telephone “hotlines” on groups have taken the initiative to form state or 

a variety of waste 

management subjects. regional “libraries” or telephone “hotlines” on a 

variety of waste management subjects. However, a 

systematic, nationwide information-sharing mechanism for all waste management subjects 

and audiences does not currently exist. This lack of a nationwide system results in 

relatively few people accessing the technical and informational materials that they 

need. Another result is duplication of effort by organizations developing materials 

that, unknown to them, already exist. . 

- 31 - 
-National CleatinghouseA national clearinghouse will provide the mechanism for citizens, government and 

other organizations to request and receive materials on any subject related to 

municipal waste. The clearinghouse will act as a distribution center for materials, 

and may develop some of these .materials. Materials for distribution by the clearinghouse would include those educational and technical guidances and results of research 

and development mentioned earlier under this Objective, bibliographies of available 

literature in different subject areas, and materials developed by the Federal government, states, municlpalities, public interest groups, trade associations, and 

industry. 

EPA, in partnership with another entity such as a university, public interest 

group, or trade association, will partially fund the clearinghouse, at the outset, but 

the clearinghouse should become nearly self-sustaining. EPA could fund the 

clearinghouse through a variety of mechanisms including seed money to a university, a 

public interest group, governmental associations or other nonprofit organizations. 

EPA’s Office of Research and Development, or the Agency’s RCRA Hotline could also be 

instrumental in running a clearinghouse. EPA is looking at funding from existing 

resources. 

- ‘ ‘Peer Matching’ ’ Program - 

As part of the clearinghouse concept, a “peer matching” program would match the 

expertise available in local communities, trade groups, states, Indian Tribes, €PA 

regional offices, or universities to waste managers in other communities in need of 

assistance. Such a program would effectively use existing resources to better manage 

municipal solid waste. For example, a community wishing to design and implement a 

curbside collection program for recyclable materials could use the peer matching 

program to tap into the expertise of a community with a similar program. The program 

would function as a “database” of people and experience to match the needs of 

communities seeking assistance. 

- 32 - 
-Other Information-sharing MechanismsIn addition to the large-scale programs outlined above, many mechanisms for 

delivering information on waste management may be useful at the national, regional, 

state, tribal and local level. These smaller systems focus on particular audiences, a 

~ 

certain subject area, or a certain message, and include ,the following: 

Accessing existing organizations and their networks of constituents, such as 

Keep America Beautiful, the Governmental Refuse Collection and Disposal 

Association , National Association of Counties, National League of Cities, 

and many more 

Magazine and newspaper articles, radio and television shows and advertisements to raise awareness of waste management and responsibilities 

Itemized tax bills, quarterly reports, or “garbage bills” to educate the 

waste generator on costs of waste management 

Public meetings and hearings on waste managefnent issues 

Labeling of products by industry as to proper disposal methods. 

EPA has worked with the Environmental Defense Fund to generate a national 

advertisement campaign on recycling. 

Summary of Participants in Increasing Available Information 

Technical and educational materials and data collection methods should be 

developed by EPA, states, Tribes, municipalities, public interest organizations, all 

industry (waste management, design and manufacturing, secondary materials) and trade 

associations. All parties have expertise in a range of waste management areas and 

should contribute to developing needed materials. EPA will tap into existing 

materials, where possible and develop materials through in-house expertise and/or 

grants to other organizations and universities. For example, in developing a model 

methodology to calculate both the true costs of waste management methods and the costs 

avoided by choosing one method over another, EPA can take advantage of methodologies 

already developed by various groups, and compile them into a general model with an 

- 33 - 
accompanying sensitivity analysis to indicate the most important components of the 

cost equations. EPA will formulate a research and development agenda, using input 

from outside parties. 

For information-sharing mechanisms, as mentioned previously, EPA will plan and 

provide seed money for the national clearinghouse and peer matching program in order 

to assure national distribution and accessibility. State, tribal and local governments, being closer to the generator of waste, are often in the best position to 

target messages and audiences for educational materials. Incorporating public 

education programs into the state, trlbal and local planning process, especially 

materials and forums related to siting any new municipal 

Some local governments 

have imposed waste solid waste management facility, allows for consisient 

management “user and comprehensive programs. State, tribal and local 

charges,” levied on 

households and businesses governments should also incorporate materials related to 

based on the amount of solid waste issues and management into the public and 

garbage generated.. . . “pay as you throw.” private school curricula, and pass on to the waste 

generators the cost of waste management in the community. 

Some local governments have imposed waste management ‘‘user charges” on households 

and businesses based on the amount of garbage generated. These “pay as you throw” 

policies can show the citizens, in very concrete terms, the cost of their garbage 

production. EPA needs to do more research on the effect of user charges on illegal 

dumping and littering. Finally, if people in the community are concerned about 

emissions or nuisance factors from nearby facilities, local officials should keep them 

apprised of monitoring results or other actions through regular bulletins, the 

newspaper, or other media. 

- 34 - 
TABLE 1. 

NEXT STEPS FOR EPA TO INCREASE INFORMATION 

Develop Educational Materials 

Begin compiling available materials ............. NOVEMBER 1988 

Identify educational materials needed ............ JULY 

Catalog/bibliographyof available materials ......... MAY 1989 

1989 

Review cost methodologies for true cost accounting ...... AUGUST 1989 

Develop Technical Materials 

Review and summarize state tire management programs ..... JANUARY 1990 

Begin compiling available materials ............ NOVEMBER 1988 

Identify technical materials needed ............ JULY 1989 

Publish decision-makers guide for local waste managers .... SEPTEMBER 1989 

Collect Data and Establish Research and Development Agenda 

National research conference ................. FEBRUARY 1989 

Establish a Clearinghouse 

Establish functions for a clearinghouse .......... JANUARY 1989 

Clearinghouse operational .................. DECEMBER 1989 

Establish a Peer Matching Program 

Program operational ..................... JULY 1989 

- 35 - 
11. OBJECTIVE: INCREASE PLANNING ~ 

Planning by any level of government and the waste management industry is vital for 

managing all municipal solid waste in a safe and effective way. Planning ensures that 

future capacity needs are taken into account when establishing programs. Planning also 

ensures that orphan wastes such as tires and lead-acid batteries are handled 

comprehensively, rather than with the current piecemeal approach. 

Develop State and Local Strategies for Integrated Waste Management 

-State StrategiesState strategies for managing municipal solid waste are important in addressing 

the current problems faced by communities within the state, and in forecasting and 

preventing future problems. State strategies force 

State strategies force 

gouemments to look governments to look beyond the single solution to today’s 

beyond the singular problem to a comprehensive waste management plan that 

solution of today’s 

problem to o 

comprehensive waste 

management plan . . . 

will head off or respond to future problems. Indian 

Tribes, which manage their municipal solid waste 

independently from the states, must also generate 

comprehensive strategies for managing solid waste. 

States and tribes should plan for overall integrated solid waste management. 

This planning should be done by collecting and evaluating local plans, setting 

statewide goals for waste handling, and developing policies or legislative initiatives 

that help the state attain these goals. Indian Tribes should generate plans for 

individual reservations by seeking assistance from Tribal associations, states, or the 

Federal government. In planning, states and tribes should work with waste management 

and secondary materials industries to access existing networks for collection and 

marketing of waste and recyclable materials. 

- 36 - 
State and tribal integrated waste management strategies should contain at least 

the following components: 

o Goals for source reduction and recycling of materials 

Q Matterhls and markets that will be targets for source reduction and 

recycling 

o Market development plans for secondary materials, including intermediate 

markets (brokers, scrap dealers and processors), final markets (manufacturers), and use of existing networks of secondary materials dealers 

o Composting plans, including collection, processing (backyard, municipal and 

commercial) and marketing methods of yard waste. 

o Short and long-term capacity assurance 

o Calculations for properly sizing combustion facilities, after accounting for 

waste diverted through recycling 

o Land-use planning for siting new facilities 

o Dispute resolution methods tu prevent stalemates in siting any type of waste 

management facility 

o Plans for collecting and managing “orphan” wastes such as tires and 

lead-acid batteries 

o Education and technical assistance programs, including education on truecost accounting and cost avoidance, and risk assessment methodologies 

o Methods for communicating to the public the results and methods of assessing 

risks of waste management alternatives 

o 

o 

Methods for ensuring public participation in decision making and planning 

Enforcement programs for design and operation of waste handling facilities 

o Examination of state government procurement policies to promote recycling 

and source reduction, and separation of recyclable goods 

o Investigation of regional solutions on a multistate basis, as well as an 

intrastate bask 

o Plan for segregating, treating, transporting and disposing of medical waste 

- 37 -. 
State planning conferences and regional workshops to provide a forum for states 

to share their expertise, programs, and problems will encourage states to plan. 

Some conferences and workshops will be sponsored by private organizations. Others 

will be sponsored by EPA. For example, the Association of State and Territorial Solid 

Waste Management Officials (ASTSWAMO) will sponsor a conference in July of 1989; 

EPA will sponsor several regional workshops in 1989. In addition, EPA regional 

offices will review strategies voluntarily submitted by states and tribes and offer 

technleal assistance upon request. Review of state strategies will help EPA develop 

technical guidances and areas for peer matching. 

-Local PlanningPlanning should be done at the local level as well, by: 

o Characterizing the waste stream 

o Setting municipal goals for recycllng and source reduction 

o Evaluating local markets 

o ldentifying incentives and disincentives for local integrated waste 

management 

o Planning for “orphan” wastes 

o Implementing true-cost accounting. h 

1 Plans should indicate the roles of the public and the private sector in 

implementfng waste handling and other programs. 
TABLE 2. 

NEXT STEPS FOR EPA TO ENCOURAGE INCREASED PLANNING 

Develop State Strategies 

First regional workshop .................. APRIL 1989 

EPA reviews selected state plans to provide 

Technical Assistance Program ................ AUGUST 1989 

\ 

- 39 - 

. 
111. OBJECTIVE: INCREASE SOURCE REDUCTION ACTIVITIES ~ 

~ 

Source -~ reduction, that is, minimizing toxics and volume in products and extending 

their ‘useful life, is a key component for meetlng national and local goals. Removal 

of toxics enhances the safety of recycling, landfiiling, and combustion. Lead and 

cadmium are examples of known toxicants, present in variable quantities in many common 

products. Both lead and cadmium have been found in high concentrations in municipal 

waste combustor ash and leachate from municipal solid waste landfills. Volume 

reduction helps to eke out remaining capacity, thereby easing the “crisis” situation 

and allowing time for long-term planning. Although there 

By slowing the rate at 

which products are 

discarded, waste handling 

and disposal capacity can 

are many players in source reduction, the design and 

manufacturing industry can provide a leadership role in 

instigating change and increasing source reduction 

be extended. activities. In addition, the Federal government can 

provide consistency through regulation or other national 

initiatives. important source reduction activities include minimizing toxics, minimizing volume, increasing procurement of source-reduced goods and investigating 

ongoing source reduction activities. 

Minimize Toxic Constituents and Materials in Municipal Solid Waste 

Minimizing the amount of toxic constituents that enter the municipal solid waste 

stream is important in making every waste handling and management alternative safer. 

As discussed previously, minimizing toxic materials, such as lead and cadmium, can 

reduce metals in combustion ash residues, decrease the pollution potential of landfill 

leachate and combustor stack emissions, and increase the safety of recydling waste 

materials. Risk assessments are necessary, however, to determine if reducing risks at 

the disposal point in a product’s lifecycle causes increased risks from the product at 

other points in its lifecycle, for example, during manufacture. 

____ 

___ 

- 40 - 
Products should not contain lead and cadmium when less toxic materials can be 

feasibly substituted. Lead and cadmium, although not the only toxic elements or 

compounds found in municipal waste, are good first candidates for examining the 

feasibility of substitution because high concentrations of both metals are found in 

combustor ash. Considerations for substitution include: the extent to which the 

metal is at a level or in a form that could lead to significant release upon disposal, 

technical feasibility, impact on product performance or cost, and financial burden to 

industry and the consumer. Industry should evaluate whether lead and cadmium can be 

feasibly replaced, while EPA will study the sources of lead and cadmium and determine 

regulatory and nonregulatory options. 

Constituents other than lead and cadmium should be studied for their potential to 

release when disposed. These constituents could include those that have been found in 

municipal solid waste landfill leachate or air emissions, or combustor stack emissions 

and may include other metals and inorganic compounds, and organics. For example, 

source reduction policies applied to household hazardous waste can help decrease the 

toxicity of this waste, as well as minimize the volume. 

Where substitution of less toxic materials would be burdensome, Industry should 

test products for their retease and/or exposure when disposed of or recycled. 

Labeling those products that have been tested for disposal characteristics would be 

useful in informing the consumer and the waste handler how those products are best 

handled, recycled, or disposed. 

Reversing the Increase in Per Capita Generation of Municipal Solid 

Waste Discards 

-Manufacture of ProductsMinimizing the volume of products which are discarded into municipal solid waste 

will help reduce the per capita increase in waste generation, thereby changing 

“business as usual” in our society’s garbage habits. In the long term, our nation 

must strive to decrease our current per capita generation rate of 3.5 pounds per day, 

- 41 - 
which is the highest in the world. In the short term, we have established a more 

modest, but achievable goal of stopping the increase in our per capita generation 

rate. If our per capita generation rate in the year 2000 were 3.5 pounds per day 

rather than the projected 3.94 pounds per day,* our total gross discards would be 171 

million tons, rather than the projected 193 million tons. A decrease to 3.0 pounds 

per day would bring us below 150 million tons. In many instances, products, containers, and packaging should be made with less material. In other instances, the use 

of more material may be needed to facilitate reuse, thereby extending useful life. 

Thus, in developing products, manufacturers should consider the amount of waste 

generated in the disposal of their products and packaging, and should look for ways to 

reduce those wastes. 

By slowing the rate at which products are discarded, waste handling and disposal 

capacity can be extended. Slowing the rate of generation of discards can be done by 

using products with longer useful lives, or that are reusable, repairable or can be 

remanufactured. For example, if the average consumer throws away only 16 tires in 

his/her lifetime instead of 32, then the amount of tires in the landfill, combustor, 

or tire pile is decreased by a factor of two. With approximately 220 million tires 

being discarded every year and 2 to 3 billion tires already stockpiled in potentially 

harmful monstrous heaps, this reduction in waste generation could have a tremendous 

impact. In designing products, manufacturers should consider whether the products, 

containers, and packages have longer lives, are reusable, or can be composted, in 

order to reduce the amount of waste that is generated. Similarly, consumers should be 

mindful of these considerations in purchasing products. 

States have shown interest in economic incentives, including taxes, tax credits, 

and charges, and regulatory approaches to promote source reduction activities such as 

minimizing toxicity and volume of municipal solid waste. Although federal economic 

incentives and regulatory approaches may be useful in the future, EPA is not 

'Characteristics of Municipal Solid Waste In the United STates, 1960-2000. Franklin 

Associates, Ltd., 1988. 

- 42 - 
recommending their adoption at this time. Rather, €PA believes that these potentially 

useful tools require further assessment. For example, the Agency will assess the 

efficlency of state and local charges and taxes In reducing both the volume and 

toxicity of the waste. These charges, either fixed or variable, can be assessed at 

any transaction point from the manufacture of raw virgin materials through final 

disposal. There are a number of factors influencing the efficacy of a charge program 

that EPA will examine, including the ability of industry and the public to respond to 

the fees, the ease of assessing and collecting the charges, and the extent to which 

such charges change behavior. The study also will examine the use of economic 

incentives to promote source reduction. 

To spur corporate involvement, a corporate recognition program is planned for 

companies and industries that have succeeded in reducing the volume and/or toxicity of 

materials used in their products, In addition, meetings between the chief executive 

officers of corporations and EPA senior officials will be conducted in order to educate corporate policy makers to source reduction, recycling and other waste management 

issues. 

Organizing “Design for Source Reduction’ ’ workshops with design and packaging 

engineers, manufacturers, retailers, wholesalers and distributors and €PA will help 

build consideration of the waste management characteristics of their product into the 

corporate design and manufacturing process. Many factors are considered in design and 

manufacturing products; the Agency simply wants the waste management characteristics 

to be a part of that consideration. 

-Waste AuditsBusinesses should conduct source reduction audiis to flnd ways in which 

operations could be altered to generate less or to reuse wastes, including any 

nonhazardous solid process wastes that are entering the municipal solid waste stream. 

- 43 - 
For example, audits could suggest ways to reduce or reuse office and computer paper, 

to compost yard wastes generated by landscaping and construction companies, and reuse 

or recycle any process trimmings (e.g., leather, rubber, plastic, paper, wood) that 

are handled in the municipal solid waste stream. These commercial wastes often 

constitute a significant portion of the municipal waste stream. Therefore, localities 

should target these wastes and encourage industry to divert them, where praclical, 

through source reduction and reuse. 

-Backyard ComposfingBackyard composting can be a significant source reduction technique by reducing 

the amount of waste that must be collected and managed. (Compostable waste that must 

be managed by a waste handler or recycler in a central composting facility can be 

considered a form of recycling, whereas backyard composting can be considered reuse of 

a material and therefore a type of source reduction activity. The distinction is 

rather arbitrary, "and thus is only for the purpose of discussion.) Public educational materials, school presentations, and workshops can encourage backyard composting of food and yard wastes by the homeowner. In addition, banning yard waste 

from landfills and combustors may provide a local incentive for composting. 

Increase Procurement of Products and Packages with Source Reduction 

Attributes 

By purchasing products that have source reduction attributes (less toxic 

materials, less volume of material per unit product, longer useful life), corporations 

and government can provide a leadership role for source reduction. Procurement helps 

to stimulate awareness of markets for these goods, which may provide incentlves to 

industry to increase manufacture of these products and to phase out products that do 

not meet these specifications for source reduction. 

- 44 - 
Investigate Potential and Ongoing Source Reduction Policies 

and Activities 

Because source reduction is a relatively new and difficult practice for municipal 

solid waste,’ source reduction policies must be fully evaluated to determine their 

efficacy and impacts. For example, a study could be done of the actual reduction of 

waste in a household when purchasing habits are altered in favor of products designed 

for source reduction. Or, a pilot source reduction audit program for businesses could 

measure the results of source reduction efforts on the waste generated. Other areas 

of interest include: 

o The use of photodegradable (degraded by sunlight) and biodegradable products and their impact on the environment and whether they are successful in 

alleviating solid waste and litter problems 

A database of source reduction related activities, including educational and 

legislative initiatives occurring in the United States and abroad (also 

examining the reasons these activities were undertaken and their degree of 

success) 

o 

o The effectiveness of programs that use fees to create incentives for 

households and businesses to reduce the quantity of waste they produce 

(including the effects on illegal dumping). 

Summary of Participants in Increasing Source Reduction Activities 

Obviously the most important participants in increasing source reduction 

activities are the manufacturing and design industries. They can assume a corporate 

leadership role in the United States to produce products that have less toxicity, 

generate less waste, have longer useful life spans, are reusable, repairable, or have 

other qualities that enhance waste management. In addition, trade associations should 

hold conferences and workshops for member companies focusing on design for effective 

waste management. 

*Some progress has been made in “waste minimization” or “source reduction” of 

industrial process waste (both hazardous and nonhazardous waste) . Source reduction for 

municipal solid waste will build on those efforts. 

- 45 - 
Federal action to require removal of known toxic constituents from products may 

be necessary. In addition, Federal action may be necessary to ensure that manufacturers test these products, including household hazardous waste, and materials for 

their potential to release toxic constituents when landfilled, combusted, or recycled. 

EPA will evaluate the use of the Toxic Substances Control Act (TSCA), as well as 

Investigate broader legislative mandates for authority for these requirements. In 

addition, EPA will continue to sponsor an annual national household hazardous waste 

conference to promote source reduction and proper collection and handling of these 

wastes. 

EPA will work with the Department of Commerce and other agencies to investigate 

methods for stimulating industry to produce products with source reduction attributes. 

For example, a corporate recognition program which would spotlight manufacturers, 

businesses, and industries which engage in source reduction activities (e.g., minimizing waste volume and toxics generated) will be examined. In addition, EPA will 

sponsor studies on current state programs aimed at source reduction. As part of EPA’s 

report to Congress on plastics, EPA will address the benefits and concerns associated 

with degradable plastics, and will seek to resolve the many questions about their 

efficacy in solving solid waste management problems. 

Industry, all governments (Federal, state, and local) and the public should 

purchase products that minimize waste, are less toxic, last longer, or can be repaired 

or remanufactured. In the Federal government, €PA will be exploring, with the General 

Services Administration and other Federal Agencies, appropriate mechanisms to 

accomplish this goal. 

- 46 - 
TABLE 3. 

NEXT STEPS FOR EPA TO ENCOURAGE INCREASED 

SOURCE REDUCTION ACTIVITIES 

Minimize Toxic Constituents and Materials in Waste 

Determine which products, if any, are 

sources of lead and cadmium ................ JANUARY 1989 

Screen for potential substitutes for lead and cadmium .... AUGUST 1989 

Evaluate regulatory and non-regulatory options for 

restriction on, or substitution for lead and cadmium 

in products ........................ NOVEMBER 1989 

Initiate investigation of other toxic constituents 

in products ........................ DECEMBER 1989 

Evaluate need for Federal testingguidelines ......... NOVEMBER 1989 

Minimize the Amount of Waste Generated 

Study on economic incentives ................ DECEMBER 1989 

Establish corporate recognition program ........... SEPTEMBER 1989 

Design for source reduction workshops ........... JULY 1989 

Increase Procurement of Products With Source Reduction Attributes 

Form Federal Task Group to study procurement 

(same group as for procurement of recycled products) .... NOVEMBER 1989 

Study of possible changes in procurement policies ...... JUNE 1990 

Study Ongoing or Potential Source Reduction Policies 

Degradable Plastic Study by General Accouniing Office .... SEPTEMBER 1988 

Initiate database for tracking state source 

reduction programs ...................... JUNE 1989 __ 

- 47 - 
. TABLE 3. (Continued) 

NEXT STEPS FOR EPA TO ENCOURAGE INCREASED 

SOURCE REDUCTION ACTIVITIES 

EPA Report to Congress on Plastics .............. JUNE 1989 

Initiate user fee study ................... NOVEMBER 1989 

Household Hazardous Waste Conference. ........... NOVEMBER 1989 

- 48 - 
IV. OBJECTIVE: INCREASE RECYCLING 

Recycling waste materials diverts potentially large volumes of wastes from 

landfills and combustors. Thus, recycling is absolutely vital to achieving local and 

One of the many 

impediments to mure 

recycling is the wide 

fluctuation of market 

auailability fur many 

secondary materials. 

national goals. Recycling is also important because it 

stops unnecessary depletion of valuable natural 

resources. Finally, recycling is an excellent educational tool to raise awareness in individuals of all 

types of waste management, because everyone must become 

conscious of what they do and do not discard. In order 

to increase recycling, markets must be available, more 

recyclables need to be separated, collected and marketed, a National Recycling Council 

should be formed, incentives and disincentives for safe recycling should be examined, 

and waste exchanges should be promoted. Of course, it is essential that, in the 

development of recycling programs, risks to human health and the environment are 

minimized from the recycling. 

Stimulate Markets for Secondary Materials 

One of the major impediments to more recycling is the wide fluctuation of market 

availability for many secondary materials. We need to stabilize both markets and 

supply so that they complement one another. Because recycling is often driven by 

demand, we need to stimulate the demand for these secondary materials to help avoid 

gluts in the marketplace and to coax change in our current industrial infrastructure. 

A variety of actions may result in market growth. These include the promotion of the 

procurement of recycled goods; market development studies for numerous commodities; 

nonprofit regional market information councils; procurement guidelines for recycled 

products; better separation and collection of plastics and lead-acid batteries; a 

National Recycling Council; studying liability disincentives and incentives; and waste 

exchanges. 

- 49 - 
-Establish lncentivesStates, including economic development agencies, have shown interest in tax 

credits and loans for industries using or processing secondary materials, or 

purchasing recycled goods as incentives for increasing these practices, thereby 

stimulating and stabilizing markets. Incentives ‘must be targeted carefully to have a 

real impact. State and local incentives could include tax credits (including property 

taxes) and other fees in order to encourage existing industries to use secondary 

materials in the manufacture of products, or to lure secondary materials industries to 

communities that lack markets for their collected recyclables. Similar tax incentives 

could be used for industries and businesses that purchase recycled goods, as these 

companies are promoting stable final markets. Other incentives include low-interest 

loans for construction or expansion of secondary materials industries, and for businesses that purchase recycled goods. These economic incentives may be instrumental in 

changing individual and corporate behavior and will be included in the study on 

economic incentives noted earlier in the section on source reduction. 

J 

Each level of government should seek to identify and delineate economic 

disincentives to processing or purchasing secondary materials. Although many 

comprehensive analyses were done in the 1970’s, tax laws and the economy have changed 

in the intervening years, creating a need to update our information. 

Freight rates and other transportation issues are often cited as significant 

disincentives to procuring secondary materials. Given that transportation laws and 

policies have changed since the 1970’s (when extensive studies were done), EPA will 

work with the Interstate Commerce Commission and the Department of Transportation to 

investigate whether transportation issues signiiicantly affect the marketing of 

secondary materials, and whether changes to these policies are necessary to remove 

disincentives to creating stable markets. 

Market development studies would be valuable in determining the regional, 

national, and international growth potential for the secondary (waste) paper market. 

- 50 - 
These studies, done at the state, regional, or Federal level, should evaluate ways to 

expand paper markets on a level concomitant with increased collection and separation 

of waste paper. EPA will conduct such a study, as well as similar studies on compost 

aluminum and glass. Market development studies for other secondary materials would 

identify ways to stimulate markets for these commodities. AI1 market development 

studies should solicit input from the existing local and national secondary materials 

markets. 

-Create Regional Market CouncilsDevelopment of nonprofit regional market information councils can enhance 

communication among states and between localities so as to improve marketing and 

information-sharing regarding secondary materials and compost. To be effective, these 

councils must build on the existing markets and networks in their region. Such 

organizations can match markets with sellers and provide information on the amount and 

type of processing necessary, the long-term availability of the market, and the 

volumes that the market will bear. In addition, regional market councils can study 

regional market development and institute policies to enhance or stabilize markets. 

Membership in such an organization should include representatives from the waste 

management, manufacturing, and secondary materials industries, states, and public 

interest groups. 

-More Procurement of Recycled GoodsProcurement of recycled goods is an important way to stimulate final markets for 

recycled products. Organizations that purchase large amounts of products, such as 

governments, corporations and industry, can be especially helpful in stimulating 

markets. Purchases of recycled goods by consumers provide a clear signal to the 

manufacturing industry to produce and advertise recycled products. 

Governments and corporations should issue procurement guidelines for recycled 

goods. Candidate products include numerous papers (office, computer, newsprint, 

corrugated, tissue), glass, plastic, compost, aluminum, steel, oil, tires, batteries, 

- 51 - 
etc. For example, the Federal government will study whether procurement guidelines 

should be issued for materials in addition to the ones already issued for paper, 

re-refined oils and tires, and the one in process for insulation materials. One 

example would be used automotive parts, or remanufactured engines or electronics. All 

levels of government could procure compost for use along roads and in landscaping 

public lands. EPA and GSA will form a working group with other Federal agencies to 

develop education and implementation programs for existing, planned, and potential 

guidelines in Federal agencies. 

Composto Yard Waste - Special Emphasis 

Composting of yard waste is a key element in the Agenda for Action because yard 

waste accounts for nearly one-fifth of municipal solid waste; It is a beneficlal use; 

and the technologies, which vary from low-technology to high technology can be readily 

tailored to meet the needs of each community. As with recycling of other wastes, 

composting of yard waste is often cost-effective, especially when avoided costs are 

considered. 

o Co-Composting 

Compost from processed food and yard waste, municipal waste and co-composted 

municipal solid waste and sewage, and sludge is also an option which localities should 

explore. In Europe, composting facilities have been successfully operated for over 30 

years. For example, in Sweden, over one-fourth of all solid waste is composted. 

At the same time, it is important to assure that all composting facilities are 

run in an environmentally sound way and that the compost, itself, does not cause any 

significant environmental problems. Markets for compost also need to be further 

developed. Quality guidance for compost products are needed to provide national 

consistency and to assure that the compost will perform safely and adequately. EPA 

will establish guidelines for compost facilities and for compost. The Agency will 

also do a market development study for compost. 

- 52 - 
Better Separation, Collection and Processing of Materials 

To reach a goal of increased recycling, more materials need to be separated, 

collected, processed, marketed and manufactured into new products. We have discussed 

ways to stimulate the two final steps (marketing, manufacture) of recycling, but we 

also need to stimulate the first three steps. 

~ 

~ 

- 

-Local ProgramsCollection, separation, and processing are essentially local issues, and as such, 

will not be discussed in detail in this report. In general, the more convenient 

collection is for the waste generator and for the waste handler, the higher the 

participation rate and amount of materials collected. 

Many communities and states have devised successful mandatory or voluntary 

collection and separation programs. Again, the issue of mandatory versus voluntary 

progt3ms is a local or state issue, depending on the community’s or state’s needs. 

Other local aspects of collection include the design of an education program and 

choosing among curbside pickup, drop-off centers, and materials recovery facilities. 

Local recycling coordinators can contribute significantly to the success of recycling 

programs. Training of these coordinators in education, collection, processing and 

marketing is therefore very important. EPA will generate guidance on traicing of 

recycling coordinators. 

-Special RecyclablesTwo commodities currently are difficult to collect and/or process, but may be 

beneficial to recycle--plastics and lead-acid batteries. In addition, the processing 

of scrap metals by shredding (including appliances and automobiles) can present 

special problems. ~ 

~ 

- 53 - 
Plastics are promising materials for increased recovery and recycling; however, 

collection and separation of different types of plastic are difficult, and hamper 

current recycling efforts. The voluntary coding of plastic types undertaken by the 

plastics industry is a helpful first step. Until plastic collection is substantially 

improved, recycling of plastics will continue to lag. Industry should step up its 

study of the problems and options for collection of plastics for recycling. 

I 

Lead-acid batteries are a problem to collect, process and dispose of. Although 

many are recycled, a significant number are not. Many battery recyclers are closing 

their doors, and many retailers and auto shops will not accept used batteries from the 

consumer. We must avoid potential risk to human health and the environment from the 

lead and acid in these uncollected (and possibly mismanaged) batteries. Regulatory 

and nsnregulatory options for recovery of lead-acid batteries, including a mandatory 

“take-back, ’’ by manufacturers will be investigated to find practlcal ways to collect 

them for safe recycling. 

“White goods’ ’ (appliances) and automobiles have been collected effectively by 

retailers and the scrap industry. Recently, however, the potential problems associated with the shredding of these goods may be detrimental to this important 

recycling sector. Posslble contamination of the shredder residue with polychlorinated 

biphenyls (PCBs) and other contaminants must be investigated. We must ensure that 

these processes present little risk to human health and the environment, while 

assuring that the beneficial recycling of these materials continues. 

Establish a National Recycling Council 

A national advisory council on recycling pollcies should be formed, comprised 

of representatives from the secondary materials and waste management industries, 

public interest groups, states, localities and regional marketing cooperatives. This 

council would stay abreast of technical, regulatory, and legislaiive policies and 

initiatlves that can enhance or hamper recycling efforts. The advlsory council would 

also measure national progress in attaining goals of increased recycling. In 

~ 54 - 
addition, a national council can explore international markets for secondary materials 

and study world trends. This council should obtain funding through its membership. 

Examine Incentives and Disincentives For Safe Recycling 

Industry has argued that potential liability under Superfund may inhibit the 

secondary materials and recycling industries from recycling materials such as leadacid batteries, household hazardous waste, used oil, autos, and white goods (refrigerators, etc.). These secondary materials and recycling facilities may be liable 

because of the potentially toxic byproducts of processing, including lead and cadmium, 

and PCBs. 

Potential liability may provide a disincentive for persons to operate a recycling 

facility, but also provides an important incentive for persons to properly manage 

their wastes. EPA should review the incentives and disincentives affecting these 

industries. 

Industrial and Commercial Waste Exchanges 

High volume homogeneous industrial or commercial wastes should be reused and 

recycled to the highest degree possible. As noted previously, these nonhazardous 

solid wastes can often end up as municipal solid waste, taking up valuable landfill 

capacity or disturbing operations at a combustion facility. Waste exchanges are an 

important way to relay these wastes from the point of generation to the market. In 

addition, these waste exchanges can often save companies significant costs in disposal. Many regional waste exchanges exist already. Communities and industries 

should access these existing networks or form new exchanges for their areas. 

- 55 - 
Summary of Participants in Increasing Recycling 

-Participants for Stimulating MarketsEconomic incentives and disincentives should be reviewed by all levels of 

government and industry. EPA will update previous studies on economic factors, 

including transportation djsincentives to recycling and potential economic incentives 

for industries processing or using secondary materials and for industries that 

’ purchase recycled goods. 

Market studies for secondary materials should be done by industry and all levels 

of government. EPA will focus initially on paper and compost. 

Industry should convert manufacturing processes to utilize secondary materials to 

a much greater extent, in order to stimulate secondary materials’markets. 

Everyone should purchase recycled goods where practical. EPA will form an 

Agency Working Group to foster federal procurement of recycled goods. This should 

be followed by establishment of a multi-agency Federal task group, made up of representatives from EPA, the General Services Administration, the Department of Defense, 

and other Federal agencies, to encourage Federal agencies to procure recycled goods 

and compost (e.g., National Park Service), and study how procurement of these goods 

may affect operations within the agencies. EPA has issued procurement guidelines for 

some commodities, including paper and tires, and is developing guidelines for others. 

The working group will also formulate ways for agencies to enforce procurement 

guidelines, to ensure that proper purchasing is occurring. 

-Participants in Better Separation, Collection and ProcessingAll levels of government should consider the merits of mandatory separation and 

collection of recyclables. An interagency working group will be convened to study the 

feasibility of a comprehensive separation and collection program for Federal Agencies. A model program to educate employees and encourage participation in paper 

recycling is under development by EPA. 

- 56 - 
Recycling in communities should be publicized by local governments and the waste 

management industry through the news media, schools, workshops, etc. The secondary 

materials industries should publicize their availability and existing network to the 

public and local government and should examine ways to expand their role in community 

recycling. 

rx 

Industry working with government should continue to investigate ways to collect 

more plastics, while the Federal Government will investigate systems for assuring that 

car batteries are collected. EPA will evaluate the regulatory and nonregulatory 

options for promoting better management of batteries. Use of the Toxic Substances 

Control Act will be investigated. Finally, €PA will evaluate the management of 

“fluff” residue from shredding of white goods, autos, and other metals. 

-Participants in Waste ExchangesStates and industry should distribute information on existing waste exchanges 

through regional marketing councils and should assist local governments and industries 

in matching waste providers with recipients. 

I Municipalities and the waste management industry should characterize their waste 

streams and meet with the industries that contribute their solid wastes to the 

municipal solid waste stream. Local governments and waste handlers should develop 

local or regional waste exchanges and work with the industries at hand to find markets 

or uses for this waste. 

- 57 - 
TABLE 4. 

NEXT STEPS FOR EPA TO PARTICIPATE IN AND 

ENCOURAGE INCREASED RECYCLING 

Stimulate Markets for Secondary Materials 

Study on existing economic and transportation disincentives 

to recycling ........................ SEPTEMBER 1989 

Study on potential recycling incentives 

to encourage recycling .................. DECEMBER 1989 

Market development study for paper ............. SEPTEMBER 1989 

Market development study €or compost ............ SEPTEMBER 1989 

Initiate guidellnes for compost facilities ......... NOVEMBER 1989 

Initiate guidelines for compost quality .......... NOVEMBER 1989 

Form EPA Working Group for implementing procurement. ... NOVEMBER 1988 

Form Federal Task Group for implementing procurement .... NOVEMBER 1989 

Final tire procurement guidelines ............. NOVEMBER 1988 

Final insulation materials procurement guidelines ..... FEBRUARY 1989 

Study on procurement of other materials. ........... AUGUST 1989 

Better Separation, Collection Processing and Recycling 

of Waste 

Initiate model training program for recycling coordinators . . NOVEMBER 1989 

Review regulatory, non-regulatory options 

for batteries ....................... AUGUST 1989 

Evaluate recycling of white goods and other metals ..... ONGOING 

Form interagency work group on recycling and separation 

in Federal agencies ................... AUGUST 1989 

Modeleducation program for Federalagencies ......... JUNE 1989 

- 58 - 
TABLE 4. (Continued) 

NEXT STEPS FOR EPA TO PARTICIPATE IN AND 

ENCOURAGE INCREASED RECYCLING 

National Recycling Council 

Facilitate the formation of the National Council . a . . . . . MARCH 1989 

Review Incentives and Disincentive sf Liability 

Review of lead-acid batteries and metalshredding byproducts . . . . . . . . . . . . . . . . . . - ONGOING 
V. OBJECTIVE: REDUCE RISKS OF COMBUSTION 

Combustion of municipal waste can be a viable waste management alternative for 

many communities, To increase the viability of this option, it is important to ensure 

that combustors are designed, operated, and controlled to 

minimize risks to human health and the environment from 

both air emissions and ash. Options for improving the 

Combustion of waste can 

be a viable waste 

marlagement altemaff ue if 

it is designed, operated, safety of combustion include upgrading combustor perand controlled to formance standards, increasing education and technical 

minimise risks to human 

health and the 

enuironment. 

- 

assistance, establishing operator training and certification programs, and evaluating potential bans on 

combustion of some types of waste. 

Upgrade Combustor Performance Standards and Ash Management 

-Air EmissionsThe establishment of appropriate performance standards for municipal waste 

combustors serves several purposes, including protection of human health and the 

environment, consistency and efficiency in the design and operation of combustors, and 

increased public confidence in the safety of combustors. Standards for particulate 

matter control from combustors were initially established in the 1970’s. Since then, 

pollution control technologies applicable to combustors have improved significantly. 

I 

Considering these technological improvements and other information compiled 

during the EPA’s comprehensive study of municipal waste combustion, EPA issued an 

Advanced Notice of Proposed Rulemaking (ANPR) announcing intentions to revise 

standards for combustors. EPA plans to issue both performance standards for new 

sources and guidelines for states to use in considering additional control requirements for existing sources. These regulatory requirements for new and existing 

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combustors should ensure that the public health and environment are protected through 

the application of the best system of control technologies available considering cost, 

energy requirements, and other environmental considerations. 

The current schedule calls for the new source standards and existing source 

guidelines to be proposed in November 1989 and promulgated in December 1990. In the 

interim, EPA has already taken steps to ensure that new sources install the best 

available control technologies. In June 1987, EPA issued guidance to new source 

permitting authorities that established the presumption that best available control 

technologies for combustors include dry scrubbers, efficient particulate control 

equipment, and good combustion practices. A recent survey of affected sources 

demonstrated one hundred percent compliance with the June 1987 guidance. 

-Ash ManagementNo combustor should be built without a plan for management of the residual ash. 

Such plans might include dedicated landfill cells with special pollution controls, 

stabilization, or contracts for recycling the ash for use in roadbeds. Local 

government should require a plan for safe and effective ash management when 

contracting for a combustion facility. 

Education and Technical Assistance 

Education and technical assistance regarding the combustion of municipal solid 

waste are important in increasing the safety and effectiveness of combustion. 

Citizens who are more educated about the design and operation of combustors can 

better assist in the planning for local waste management, and may be more willing to 

site properly designed and operated combustors. Operators of combustion facilities as 

well as local government can use technical assistance offered by the Federal government and industry in order to ensure safe and effective combustion of the waste. 

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All levels of government (local, state, tribal, and Federal) need to educate 

their citizens about the risks and benefits of municipal solid waste combustion, in 

addition to the other issues mentioned previously in this report. Local governments 

need to involve citizens in the decision-making process. Citizens want to know about 

the risks that they may be assuming in siting a’ facility in their neighborhood. 

Information on risks, as well as other relevant issues will be included in EPA’s 

update of the Decisionmakers Guide. 

Operator Certification 

Operator training and certification programs can help ensure safe and effective 

operation of the combustor and pollution control equipment. Issues that need to be 

resolved concerning training and Certification include: which level of government 

should establish training and certification requirements, which specific combustor 

plant personnel should be trained and/or certified, how frequently certification 

should be renewed, and others. 

Some states have already initiated training and certification programs. EPA has 

maintained close contact both with these states and with the American Society of 

Mechanical Engineers (ASME) during ASME’s ongoing efforts to develop a model 

combustor training and certification program. Although states and/or local governments are best suited to actually administer such programs, EPA will be considering 

the value of establishing model operator training and certification standards or 

guidance during the development of the regulatory program for new and existing 

combustors. 

Banning Particular Wastes from Combustors 

Existing data indicate that certain waste materials contribute relatively 

significant amounts of hazardous constituents to emissions and ash (especially toxic 

organics and heavy metals). However, data are currently inadequate to determine 

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precisely the effect on air emissions and ash of eliminating specific materials from 

the waste stream prior to combustion. EPA has commissioned a study to identify major 

sources of lead and cadmium which are disposed of in the municipal solid waste stream. 

As a follow up to this study, €PA will do a preliminary screen to see if there are 

potential substitutes for significant sources of lead or cadmium. If suitable 

substitutes may be available for lead or cadmium in any products, a regulatory 

evaluation will be initiated for those products to determine if restrictions on, or 

substitution for lead or cadmium is appropriate. 

Despite the current paucity of data, individual governments at the state and 

local level may wish to consider banning specific waste materials from existing or 

planned combustors for various reasons. For example, a municipality struggling to 

initiate an effective yard waste composting program may find that banning yard wastes 

from combustion may increase composting rates. Such yard waste bans may also improve 

combustion of the rest of the waste stream by reducing moisture content and ensuring 

more consistent Btu values through the seasons. Local governments considering bans of 

certain wastes from combustors should ensure that sufficient capacity is available to 

properly handle the banned waste, and that the management option for the banned waste 

does not pose a greater risk to human health and the environment. 

Municipal Waste Combustor Permits 

Some states and communities have a policy of issuing combustor permits only when 

the combustor was planned as part of an overall evaluation of integrated waste 

management, including recycling. Thus, waste managers and planners would have to at 

least consider the practicality of establishing a recycling and/or composting program. 

Such practices can help to prevent reliance on “single solutions77 and promote the 

concepts and practices of integrated waste management. Other communities should 

consider such action in order to leverage consideration of recycling programs and 

ensure proper planning. 

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TABLE 5. 

NEXT STEPS FOR EPA TO HELP REDUCE THE RISKS OF COMBUSTION 

Upgrade Combustor Performance Standards and Ash Management 

Proposed air emission standards ............... NOVEMBER 1989 

Final air emission standards ................ DECEMBER 1990 

Operator Certification 

Resolve issues ....................... JUNE 1989 

Decide whether to develop a model 

operator certification program .............. NOVEMBER 1989 

Bans on Materials from Incinerators (See also Table 3, Minimizing 

Toxic Constituents and Materials in Waste) 

Provide information on problem wastes (see also Table 6, 

Bans on Materials from Landfllls) .............. DECEMBER 1989 

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VI. OBJECTIVE: REDUCE RISKS OF LANDFILLS 

Municipal solid waste landfills are used to dispose of the majority of our 

nation’s municipal solid waste, and will continue to be essential in the future. 

Although increased source reduction and recycling will reduce the volumes of waste 

going to landfills, and may make some waste more benign, we must increase the safety 

of landfills to ensure protection of human health and the environment, as well as 

public support when new ones must be sited. Operator certification, minimum design 

and operation standards, education and technical assistance, and studies on potential 

bans of some wastes from landfills all contribute to reaching the goal of increased 

safety and reduced volumes of waste needing landfilling. 

Operator Certification 

Properly designed and operated landfills require knowledgeable operators in order 

to ensure efficient and safe compaction of waste without damage to liners, leachate 

collection systems, or other design features. In addiMunicipal solid waste 

landfills are used to tion, the monitoring required at municipal landfills 

dispose of the majority requires an experienced operator. Certification of 

of our nation’s municipal 

solid waste, and will operators can help ensure that experienced operators run 

continue to be essential 

in the future. 

the facilities and equipment. Increasing the safety and 

effective use of landfills through certification can help 

prevent problems endangering human health and the 

environment, can increase public confidence, and can extend precious landfill 

capacity. 

Any certification of landfill operators should occur through state programs or 

through programs developed by trade and industry associations. €PA is planning to 

provide guidance on certification to states that want to develop and implement a 

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certification program. These programs could work similarly to the programs for 

combustor operator certification. 

Increase Design and Operation Standards and Guidance 

Minimum standards for the design and operation of landfills are critical for 

ensuring protection of human health and the environment over both the short and long 

term. Properly designed and operated landfills should provide safe disposal of waste, 

but do not efficiently reduce the bulk or toxicity of the waste. Thus, waste disposed 

in landfills degrades very slowly and safe design and operation throughout the life of 

the landfill is crucial. 

Minimum standards for design and operation of landfills exist at both the Federal 

and state level. Revised minimum standards for design, operation, and location of 

landfills, including monitoring, closure and corrective action requirements were 

proposed by EPA on August 30, 1988, in response to requirements under the Hazardous 

and Solid Waste Amendments of 1984. When final, these standards will help to prevent 

future problems with releases of toxic constituents to ground and surface waters. 

Remedial action for existing and/or closed landfills that are posing potential threats 

to human health and the environment is also important. States must$adopt and enforce 

these standards for existing landfills in order to ensure safe and effective operation 

of landfills. Many states have already developed stringent standards for operation 

and design of landfills. 

EPA has also been developing air emission standards for new and existing landfills under the Clean Air Act to control emissions of volatile organic compounds that 

create an odor nuisance as well as a potential hazard to human health and the 

environment. 

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Education and Technical Assistance 

Education and technical assistance by all levels of government and industry can 

decrease the risks posed by landfilling, upgrade design and operation, and increase 

public confidence in the management practice. 

There is ongoing debate about the landfill characteristics which are best for 

managing municipal solid waste. This debate is concerned with whether a landfill 

should be “dry” (to prevent any leaching of hazardous constituents) or “wet” (to 

promote degradation at a higher rate). EPA will sponsor a technical conference of 

experts and engineers to further discuss this question, and any research necessary in 

the area. 

As mentioned earlier in the section on combustion, education about risks, 

benefits, and other relevant information should be available to everyone. The 

decisionmakers guide which was mentioned earlier will include a discussion on 

landfills. 

Finally, guidance on implementing EPA’s final revised landfill criteria will be 

necessary for municipal waste landfill owners and operators. EPA will develop this 

guidance to aid in proper implementation. 

Bans on Certain Wastes from Landfills 

It may be desirable to restrict or ban certain wastes from landfills in order to 

increase the safety and effective management of the landfill and leachate collection 

system. Some wastes may be “bad actors” by contributing hazardous constituents to 

landfill leachate, producing explosive levels of methane gas or producing toxic air 

emissions. 

What wastes, if any, should be banned from landfills should be considered by the 

Federal government, states and municipalities. EPA will provide information on which 

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constituents should be considered by states and localities for bans. Constituents 

such as oil, household hazardous waste, car batteries, tires, and yard waste will be 

considered by EPA. For any proposed bans, the management practice that would take the 

place of landfilling should be evaluated to ensure that this alternate management 

practice has sufficient current or future capacity and poses fewer risks/ than 

landfilling. For example, states and municipalities should ensure that composting 

facilities have adequate capacity to handle a large influx of yard waste which may 

have been banned from the landfill, or that new composting facilities will be built. 

Landfill Permits 

Some states and communities have a policy of issuing landfill permits only when 

the landfill was planned as part of an overall evaluation of integrated waste 

management, including recycling. Thus, waste managers and planners would have to at 

least consider the practicality of establishing a recycling and/or composting program. 

Such practices can help to prevent reliance on “single solutions” and promote the 

concepts and practices of integrated waste management. Other communities should 

consider such action in order to leverage consideration of recycling programs and 

ensure proper planning. 

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TABLE 6 

NEXT STEPS FOR EPA TO HELP REDUCE THE RISKS OF LANDFILLING 

Operator certification 

Training materlals for operators ............... SEPTEMBER 1989 

State certification guidance ................. DECEMBER 1990 

Design and operation standards 

Propose revised minimum criteria for landfills ...... AUGUST 1988 

Issue final criteria .................... DECEMBER 1989 

Air emission standards proposed ............... MAY 1990 

Final air emission standards ................ AUGUST 1991 

Education and Technical Assistance 

Technical guidance for the revised landfill criteria . . . JANUARY 1990 

Bans on Materials from Landfilling (see also Table 3, Minimizing 

Toxic Constituents and Materials in Waste) 

Provide information on problem wastes ............ DECEMBER 1989 

(see also Table 5, Ban on Materials from combustors) 

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CONCLUSION 

Our nation has choices as to how we are going to deal with our ever-growing 

garbage problem. We can centinue to create more and more garbage, or wetcan cut back, 

We can continue to bury most of our waste, or we can find feasible ways to recycle 

more of it. We can design products and packaging without considering disposal or we 

can design for source reduction and recycling. We can wait for local crises to occur 

or we can plan now to avoid them. In short, we can ignore the issue and hope it goes 

away, which it will not, or we can act now to deal with it. But whether we like it or 

not, our garbage is no longer “out of sight and out of mind.” 

The Agenda for Action establishes a “game plan” for addressing our garbage 

problcm which underscores the need for an effective integrated waste management 

approach. including source reduction, recycling, combustion, and landfilling. It is 

not a panacea, but the Agency believes that its implementation will go a long way in 

safely eliminating the gap between the generation of garbage and our capacity to 

handle it, as well as provide for waste management that protects both human health and 

the environment. 

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