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                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                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|  | Summary of Comments at the Public Meeting on Proposed Guidance on    Acquisition of Environmentally Preferable Products and ServicesUnited States Environmental Protection Agency    Pollution Prevention and Toxic Substances (7409)    EPA 742-R-96-005    February 1996     Summary of Comments at the Public Meeting on Proposed Guidance on Acquisition of    Environmentally Preferable Products and Services    Final ReportCONTENTSI. INTRODUCTION AND BACKGROUND 1     A. Executive Order 12873, Section 503 2     B. The public meeting 2     C. EPA's proposed guidance on acquisition of     environmentally preferable products and services 3II. SUMMARY OF COMMENTS BY TOPIC 4     A. Comments on the effectiveness of the guidance framework 4     B. Comments on the seven guiding principles 6     C. Comments on operationalizing the principles through pilot    acquisitions and other tools 8     D. Comments on the life-cycle assessment (LCA) approach 10     E. Comments on combining Principles #2 and #3 12     F. Comments on the proposed menu of environmental performance    attributes (Appendix B1) 12     G. Comments on establishing core environmental values and the    ecological impact matrix 13     H. Comments on third-party environmental certification     programs 14     I. Miscellaneous comments 17III. CONCLUSIONS 21IV. QUESTION AND ANSWER SESSIONS 22     A. Questions for the federal agency panel and panel 1 22     B. Questions for panels 2 and 3 23     C. Questions for panels 3 and 4 24APPENDICES     A. List of commenters 25     B. Commenters by interest category 27     C. Index of comments 28SECTION ONE     INTRODUCTION AND BACKGROUND     On September 29, 1995, the U.S. Environmental Protection Agency (EPA) published    Proposed Guidance on Acquisition of Environmentally Preferable Products and Services (60    FR 189, 50721-50735). EPA developed the guidance to implement section 503 of Executive    Order 12873, Federal Acquisition, Recycling, and Waste Prevention. The Executive Order    directs federal agencies to evaluate the environmental attributes of the products and    services they purchase.     In a notice accompanying the guidance, EPA announced a public meeting to receive    comments from interested parties on the proposed guidance. This report summarizes oral    comments presented at the public meeting, held on October 26, 1995. EPA requested comment on several specific topics, including:     -- The general framework of the guidance     -- The seven guiding principles     -- Operationalizing the principles through pilot acquisitions and other tools     -- Application of life-cycle assessment (LCA) concepts     -- Combining Principles #2 (Multiple Attributes) and #3 (Life-cycle Perspective)     -- A proposed menu of environmental performance attributes     -- Establishing core environmental values and the ecological impact matrix     -- The potential role of third-party environmental certification programs     Section Two of this report presents comment summaries grouped according to the above    topic areas. While EPA received comment on most of the above topics, some of EPA's    requests for comment went unanswered. Section Three presents the concluding remarks made    by William Sanders, Director of EPA's Office of Pollution Prevention and Toxics. Section    Four summarizes the questions posed during three question-and-answer sessions at the    meeting. Appendix A of this report presents a complete list of commenters. Appendix B is a    list of commenters by interest category. An index of comments is provided in Appendix C.In addition to presenting oral testimony, participants in the public meeting were asked    to submit written comments. At the request of several organizations, the written comment    period was extended. All written comments were due to EPA on December 28, 1995. A public    record was established for these comments under docket number OPPTS-00149. The docket is    located in the TSCA Nonconfidential Information Center, Room NE-B607, 401 M Street, SW.,    Washington, DC 20460, and is available for inspection by the public from noon to 4 p.m.,    Monday through Friday, excluding legal holidays.     A. EXECUTIVE ORDER 12873, SECTION 503     Section 503 of Executive Order 12873, Federal Acquisition, Recycling, and Waste    Prevention, requires EPA to "issue guidance that recommends principles that Executive    agencies should use in making determinations for the preference and purchase of    environmentally preferable products."     "Environmentally preferable" is defined in the Executive Order to mean    "products or services that have a lesser or reduced effect on human health and the    environment when compared with competing products or services that serve the same purpose.    This comparison may consider raw materials acquisition, production, manufacturing,    packaging, distribution, reuse, operation, maintenance, or disposal of the product or    service."     B. THE PUBLIC MEETING     Thirteen interested parties (excluding federal agencies) presented oral testimony at    the public meeting. EPA grouped the public commenters into five panels. Five sets of    comments from four federal agencies were also presented in a separate federal agency    panel. Each speaker was allotted eight minutes for comments. A question-and-answer session    followed every two panels.C. EPA'S PROPOSED GUIDANCE ON ACQUISITION OF ENVIRONMENTALLY    PREFERABLE PRODUCTS AND SERVICES     EPA's document on environmentally preferable purchasing, Proposed Guidance on    Acquisition of Environmentally Preferable Products and Services, summarizes EPA's approach    to developing the guidance, presents seven guiding principles agencies should consider    when purchasing environmentally preferable products, and describes implementation    activities. Copies of this document are available by calling the Pollution Prevention    Information Clearinghouse at 202 260-1023. SECTION TWO     SUMMARY OF COMMENTS BY TOPIC     A. COMMENTS ON THE EFFECTIVENESS OF THE GUIDANCE FRAMEWORK     Most commenters agreed that the overall framework of the guidance is an effective first    step in promoting the acquisition of environmentally preferable products and services.    Several commenters expressed concern, however, that the guidance is not specific enough.    One commenter, the American Forest & Paper Association, believes that the framework is    ineffective. Specific comments are as follows:     The Department of Defense (DOD) believes that the current version of the guidance is    headed in the right direction, because it establishes policies and principles, not    requirements, and because it gives agencies the flexibility to tailor the guidelines to    meet their needs. DOD asserted that a one-size-fits-all solution is not the best way to    meet agencies' varying environmental goals. DOD encouraged EPA not to impose additional    reporting requirements due to the funds needed to meet those requirements, which often are    unavailable.     The Department of Energy (DOE) commended EPA for including energy efficiency as an    important aspect of the guidance. DOE also noted that the guidance is too ambitious in    identifying what environmental preferability entails; consumers might find the approach    overwhelming. EPA should instead focus on promoting high-priority environmental    attributes, such as energy efficiency, recycled content, and lower toxicity.     The American Plastics Council (APC) cautioned that making the guidance perfect will be    impossible. This commenter stated that EPA should finalize the general guidance, then    concentrate on pilot projects to determine how the guidance will be used.     The Society of the Plastics Industry (SPI) supports the guidance as a good first step,    with some corrections. Consideration of environmental preferability should be secondary to    ensuring that products meet performance, safety, and quality criteria at a reasonable    price. In addition, SPI warned that the guidance could be hindered by too much    prescription.     The American Forest & Paper Association (AFPA) asserted that environmental    preferability cannot be determined accurately or completely. As a result, the guidance is    inappropriate and unworkable and would seriously disrupt market forces. AFPA strongly    urged EPA to withdraw the guidance and completely revise it. In addition, AFPA believes    that EPA should involve manufacturers more closely throughout the development of the    guidance.     The Remanufacturing Industries Council (RIC) recommended that EPA incorporate the    concept of remanufacturing in the guidance. RIC stated that remanufacturing is the    ultimate form of recycling, because it extends the life of products and saves the energy,    materials, and labor that are needed to manufacture new products or recycle existing ones.    Unless EPA recognizes the differences between remanufacturing, recycling, and reuse, RIC    believes that the guidance will be incomplete and environmentally deficient.     The Chemical Specialties Manufacturers Association (CSMA) noted that the guidance    appropriately provides broad, flexible guidelines. CSMA suggested that the guidance should    be risk based rather than hazard based and should target product categories that prevent    higher risks and present opportunities for risk reduction.     The Automotive Parts Rebuilders Association (APRA) commented that the guidance would be    more effective if it included the concept of remanufacturing.     The National Recycling Coalition (NRC) expressed concern about the time EPA has taken    to get to this point in the guidance development process. NRC had hoped that EPA would    simply promote the standards and guidelines already developed in conjunction with the    Comprehensive Procurement Guideline (CPG) and Recovered Materials Advisory Notice (RMAN).    The Executive Order did not mention implementation of the guidance, and NRC felt that the    proposed implementation approach might lead to further delays.     Green Seal asserted that EPA should provide specific guidance, rather than a general    framework. The guidance should be directed not just at policy officers but also at    procurement officials. The guidance should indicate which aspects of a product result in    environmental preferability and which do not (e.g., reduced toxicity). The need to give    direction beyond the merely procedural outweighs the danger that officials will apply the    guidance without sufficient testing.     Rochester Midland Corporation stated that the guidance is a good start, but users    demand practical tools that will enable them to do their jobs more easily and safely. B. COMMENTS ON THE SEVEN GUIDING PRINCIPLES     The seven guiding principles are summarized as follows:     -- Principle #1 (Pollution Prevention): Consideration of environmental preferability    should begin early in the acquisition process.     -- Principle #2 (Multiple Attributes): Environmental preferability is a function of    multiple attributes.     -- Principle #3 (Life-cycle Perspective): Environmental preferability should reflect    life-cycle considerations to the extent feasible.-- Principle #4 (Magnitude of Impact): Environmental preferability should consider the    scale (global versus local) and temporal aspects (reversibility) of the impacts.     -- Principle #5 (Local Conditions): Environmental preferability should be tailored to    local conditions where appropriate.     -- Principle #6 (Competition): Environmental attributes should be important factors in    competition among vendors.     -- Principle #7 (Product Attribute Claims): Agencies should examine product attribute    claims carefully.     Commenters supported most principles, suggesting some alterations. General comments on    the seven guiding principles are as follows:     The Department of Defense (DOD) supported the guiding principles, especially Principle    #1 (Pollution Prevention). DOD believes that an up-front look at materials is critical to    determining products' environmental preferability.     The General Services Administration (GSA) approved of Principle #2 (Multiple    Attributes), Principle #3 (Life-cycle Perspective), Principle #5 (Local Conditions),    Principle #6 (Competition), and Principle #7 (Product Attribute Claims).     The Society of the Plastics Industry (SPI) had concerns about Principle #1 (Pollution    Prevention). SPI fears that product manufacturers will feel that they have to justify    every design or process decision. EPA should clarify that the federal government will not    insert itself in product design. SPI agreed with Principle #2 (Multiple Attributes) but    cautioned against a formulistic approach. Principle #4 (Magnitude of Impact) should    reflect the fact that environmental tradeoffs should consider safety, quality,    performance, and price considerations as well. SPI agreed with Principle #5 (Local    Conditions). Regarding Principle #6 (Competition), care should be taken to protect    confidential business information. SPI agreed with Principle #7 (Product Attribute    Claims).     The Chemical Specialties Manufacturers Association (CSMA) agreed with Principle #1    (Pollution Prevention) and reaffirmed that the guidance should be holistic. CSMA also    agreed with Principle #2 (Multiple Attributes) but believes that attributes such as health    and safety benefits should be considered as well. Determination of environmental    preferability should be based on net environmental benefits. This commenter believes that    Principle #4 (Magnitude of Impact) is too broad; no clear hierarchy establishes which    values are preferable. EPA's attempts to establish such values in Appendix E are in    conflict with Principle #5 (Local Conditions) because they emphasize global concerns over    local ones. Regarding Principle #6 (Competition), CSMA asserted that comparisons between    products should be based on the Federal Trade Commission (FTC) environmental product    marketing guides. CSMA also believes that use of the FTC guides should be emphasized in    Principle #7 (Product Attribute Claims). This commenter suggested the addition of another    principle as well: agencies should identify major risk-based activities and determine how    to reduce their effects.     The Automotive Parts Rebuilders Association (APRA) believes that the concept of    remanufacturing should be included in several of the principles. This concept is    consistent with Principle #1 (Pollution Prevention), because remanufacturing needs to be    incorporated early in a product's design process. It meets the goals of waste prevention,    as stated in Principle #2 (Multiple Attributes). Remanufacturing also satisfies Principle    #3 (Life-cycle Perspective), and the savings in nonrenewable resources that    remanufacturing achieves has long-term effects, as in Principle #4 (Magnitude of Impact).     The Scientific Certification Systems Company (SCS) agreed with Principle #1 (Pollution    Prevention) but recommended that product performance be included in the analysis of    environmental preferability. This commenter believes that Principle #2 (Multiple    Attributes) is an understatement. Environmental preferability is not a decision it is a    dynamic. A product that is considered environmentally preferable today might not be    tomorrow. The guidance proposes two ways to determine environmental preferability: through    a lengthy process or through a streamlined approach that reduces products to a number of    attributes. SCS stated that recommending the latter, as the guidance does, is    inappropriate. Streamlining an approach before all necessary information is available will    result in inappropriate determinations of environmental preferability.     C. COMMENTS ON OPERATIONALIZING THE PRINCIPLES THROUGH PILOT     ACQUISITIONS AND OTHER TOOLS     While most commenters supported the emphasis on pilot projects, several stated that    pilot projects go beyond EPA's mandate, as established in Executive Order 12873. These    commenters believe that the Executive Order does not require EPA to recommend    implementation procedures for acquiring environmentally preferable products and services,    and that doing so would be costly and time-consuming. Commenters had no suggestions for    other tools EPA might propose to operationalize the principles. Specific comments are as    follows:     The Department of Defense (DOD) stated that pilot projects can be very useful. Pilots    reveal the strengths and weaknesses of various programs and provide concrete examples. DOD    cautioned, however, that operationalizing the principles would be difficult because no    accepted standards exist for labeling environmentally preferable products. DOD proposes a    pilot project to improve the evaluation process for the Defense Logistics Agency's    environmentally preferable catalog, which is currently based on vendor information.     The General Services Administration (GSA) approved of the emphasis on pilot testing.    GSA and EPA have already engaged in pilot tests involving environmentally preferable    cleaning products and Energy Star computers. As a result, GSA plans to have a matrix    available in 1996 for use when purchasing cleaning products. This commenter recommended    that EPA expedite further pilot testing and develop a testing schedule. Concerning    operationalization of the principles, GSA felt that an average user should be able to    apply the guidance easily and that the guidance should be made available soon.     The Department of Energy (DOE) supported pilot projects and recommended that EPA    continue to work with agencies to identify other pilots. The results of these pilots    should be made available, and the pilots should be incorporated in the Federal Supply    Schedule. To avoid overburdening procurement officers with environmental preferability    determinations, the guidance should be expanded. This commenter supports a commonsense    approach to decision-making.     The American Plastics Council (APC) wondered how agencies will operationalize the    guidance, because the guidance is relatively general. Although the guidance is a good    first step, "the devil is in the details" of the operationalization process.     The American Forest & Paper Association (AFPA) believes that pilot projects go    beyond EPA's mandate, as stated in Executive Order 12873; the Executive Order does not    require EPA to provide implementation procedures for purchasing environmentally preferable    products and services. In addition, AFPA objected to the guidance advocating major    government initiatives for pilot testing for which no funds have been appropriated. The    cost to taxpayers and suppliers (especially small businesses) of conducting such pilots is    substantial. Small businesses would be expected to supply a great deal of information and    would feel obligated to comply to obtain government business.     The Automotive Parts Rebuilders Association (APRA) recommended that EPA ensure that at    least one pilot project focus on remanufactured products.     The National Recycling Coalition (NRC) stated its concern that the guidance does not    provide the basic criteria officials need to purchase environmentally preferable products.    The guidance needs to set forth some minimum standards that identify environmentally    preferable products. Something more akin to Canada's Environmental Choice program,    although not necessarily a logo program, might be helpful. The goal of the guidance should    be to provide officials with product category specific guidance and to help them select    products that are equal in value but provide environmental benefits. NRC stated that the    fundamental issue facing EPA is whether EPA plans to issue such product category specific    guidance or only a policy directive.     NRC also expressed concern about the resources available to implement the guidance. The    process set forward in the guidance would take too long and require the use of too many    resources that are not currently available. NRC recommended that EPA consider using    existing standards and research already conducted.     Rochester Midland Corporation emphasized the need to conduct pilot projects. In    addition, the guidance needs to provide tools that will allow users to make informed    decisions. Information matrices are important, but users want a system to identify    products that make it easier and safer for them to do their jobs.     D. COMMENTS ON THE LIFE-CYCLE ASSESSMENT (LCA) APPROACH     Several commenters approved of the emphasis on LCA but cautioned that LCA is not fully    developed, can be costly, and requires analyses that agencies might not be able to    conduct; EPA should acknowledge these concerns. Other commenters objected to the inclusion    of LCA in the guidance because this assessment is impossible to apply to every procurement    decision. Specific comments are as follows:     The Department of Defense (DOD) supports the LCA approach, but this commenter warned    that LCA can be costly and complex, and the tools to conduct it are often flawed. DOD    encouraged EPA to investigate ways to share the lessons other agencies and the private    sector have learned in practicing or studying LCA.     The General Services Administration (GSA) approves of the emphasis on LCA and believes    that the guidance clearly defines LCA.     The American Plastics Council (APC) supports the LCA approach as the only honest way to    discuss environmental preferability but does not think life-cycle inventory or analysis    can be conducted for every product or even major product categories. In addition, LCA is    static and costly and takes a long time to conduct.     The Society of the Plastics Industry (SPI) believes that LCA should be encouraged, not    required. Because LCA is almost impossible to operationalize in every decision, the    guidance should not recommend a procedure that will result in "paralysis by    analysis."The American Forest & Paper Association (AFPA) asserted that by advocating LCA, the    guidance is advocating analysis for which highly accurate data are not available. LCA    tools are not fully developed, and without complete information, agencies cannot conduct    comparable assessments. Reducing environmental attributes to numbers could lead to poor,    arbitrary decisions and give rise to international trade concerns.     The Remanufacturing Industries Council (RIC) stated that the concept of LCA should    include mention of remanufacturing.     The Chemical Specialties Manufacturers Association (CSMA) believes that LCA has been    valuable when used internally by companies but stated that there is no scientifically    acceptable method to ensure accurate comparisons. LCA is a method that is maturing; policy    decisions about it remain to be made. The GSA cleaning products guidance oversimplifies    the environmental aspects of products by reducing the information to a single number.     The Automotive Parts Rebuilders Association (APRA) stated that the concept of    remanufacturing should be included in the description of LCA in Appendix A.     The Scientific Certification Systems Company (SCS) felt that although LCA is practiced,    the approach is evolving and under constant examination. As a result, agencies should use    caution when using an LCA approach.     E. COMMENTS ON COMBINING PRINCIPLES #2 AND #3     Two commenters on this topic recommended that EPA combine Principles #2 and #3.    Specific comments are as follows:     The American Plastics Council (APC) stated that multiple attributes are composed of all    effects and should be identified throughout the life cycle of a product or service. APC    also recommended that the LCA and multiple attributes analysis consider how the product is    used in the environment in which it is used. This commenter cautioned, however, that    assessment of multiple attributes can be difficult.     The Society of the Plastics Industry (SPI) also recommended that EPA combine Principles    #2 and #3.     F. COMMENTS ON THE PROPOSED MENU OF ENVIRONMENTAL PERFORMANCE    ATTRIBUTES (APPENDIX B1)     Commenters disagreed about the proposed menu of environmental performance attributes.    While some found the list helpful in identifying which attributes contribute to    environmental preferability, others worried that the list could be used inappropriately.    Several commenters suggested other attributes to add to the list. Specific comments are as    follows:     The Chemical Specialties Manufacturers Association (CSMA) stated that Appendix B1 is a    "laundry list" of performance characteristics. CSMA expressed concern that the    list could be used as a checklist to create environmental winners and losers. Instead, EPA    should promote voluntary disclosure by suppliers based on the FTC guides, which encourage    competition and innovation. CSMA also suggested that risk-based rather than hazard-based    assessments be used.     The Automotive Parts Rebuilders Association (APRA) recommended that remanufacturing be    listed as a positive attribute in Appendix B1.     The National Recycling Coalition (NRC) reemphasized that recycled content and    recyclability be considered major attributes of a product in Appendix B1. NRC believes    that these attributes produce multiple environmental benefits throughout the life cycle of    a product, whether in manufacturing, reuse, disposal, or recycling. This commenter    encouraged federal agencies to select major attributes from the list that produce    environmental benefits across the life cycle of a product. NRC also thinks that Appendix    B1 should include source reduced attributes.     Rochester Midland Corporation noted that the list of stressors presenting high risk, as    stated in Appendix B1, is similar to the attributes that the commenter's American Society    for Testing Materials (ASTM) taskgroup has identified.     G. COMMENTS ON ESTABLISHING CORE ENVIRONMENTAL VALUES AND THE     ECOLOGICAL IMPACT MATRIX     Commenters disagreed about the value of the ecological impact matrix. While one    commenter believes that the matrix is sound, others stated that it has not been    sufficiently developed and is difficult to use. Specific comments are as follows:     The American Plastics Council (APC) finds the matrix difficult to understand and use.    This commenter believes that the matrix has fatal flaws, which APC will discuss in greater    length in its written comments.     One flaw APC found in the matrix is its emphasis on the renewability/nonrenewability of    resources. APC provided the example of an environmentally friendly windshield wiper fluid    in a plastic container. The container is made from a nonrenewable resource, but shipping    the product in this type of container uses fewer nonrenewable resources. Thus,    considerations of renewability/nonrenewability alone could result in selection of a    product that is not the most environmentally preferable in the long run. APC stated that    global versus local considerations in the matrix are problematic as well. This commenter    will discuss these flaws further in APC's written comments.     The Scientific Certification Systems Company (SCS) stated that the matrix is useful in    the determination of environmental preferability, but only as a starting point. It is not    sufficiently designed, measurable, or able to produce usable information.     Rochester Midland Corporation believes that the matrix is sound and will assist users    in understanding that many issues surround the determination of environmental    preferability.     H. COMMENTS ON THIRD-PARTY ENVIRONMENTAL CERTIFICATION PROGRAMS     Commenters disagreed about the use of third-party environmental certification programs.    Although some commenters felt that such programs help determine which products and    services are environmentally preferable, others objected to their use. Those that opposed    third-party certification programs expressed concern about the use of ecoseals and stated    that the government should not delegate governmental functions to private parties.    Specific comments are as follows:     The Department of Defense (DOD) recommended that EPA be more involved in the    certification process. DOD suggested three methods: 1) EPA could serve in a certifying    capacity; 2) EPA could review the procedure for third-party certification programs; and 3)    when third-party certification organizations are involved, EPA could make sure that the    appropriate testing has been conducted. DOD stated that lack of EPA involvement in    certification will force agencies to create their own certification systems or to accept    the claims of manufacturers. DOD supported EPA in developing a long-term project to test    third-party certification systems.     The General Services Administration (GSA) agreed that third-party certification    programs are valuable, but GSA shared EPA's concerns about the lack of accepted national    standards for third-party certification programs.     The Department of Energy (DOE) stated that determination of environmental preferability    should occur outside the routine procurement process, by existing federal supply sources    such as GSA and the Defense Logistics Agency and by third-party certification programs    such as Green Seal. EPA should help identify third-party certification programs and should    encourage agencies to purchase environmentally preferable products through federal supply    sources and EPA-approved third-party certification programs.     The American Plastics Council (APC) expressed concern about the role of ecoseals in the    determination of environmental preferability. APC cautioned that unless ecoseals are used    carefully, they can have adverse effects; they can be based on decisions of what is    politically correct at the moment. This commenter also asked: If a product is not chosen,    does the manufacturer have legal recourse if it feels it has been the victim of    discrimination?     The Society of the Plastics Industry (SPI) disagreed that agencies should rely on    third-party certification programs. This commenter asserted that such programs are not    reliable and cannot be substituted for the decisions of individual procurement officials.    The process of using third-party certification programs could be too judgmental.     The Grocery Manufacturers of America (GMA) expressed concern that the guidance could    become a backdoor to a government-sponsored system of ecoseals. GMA stated that Principles    #1 through #5 ensure that agencies will not oversimplify the determination of    environmental preferability. Yet Principle #7 (Product Attribute Claims) and Appendix F    could negate what the other principles have established. GMA expressed concern that    Principle #7 will invite agencies to equate ecoseals with environmental preferability.     GMA summarized why ecoseals do not work. Unlike labels that provide information, seals    are symbols awarded by stakeholders and experts based on subjective judgments. This    commenter indicated that experience with ecoseals in Europe has revealed that they are    flawed; ecoseals are not objective, they stifle innovation, and they reward environmental    inferiority by recognizing products that are politically correct at a given time. Further,    GMA stated that ecoseals train consumers to look for symbols rather than facts.     In addition, GMA stated that federal procurement cannot legally be based on ecoseals,    because the legal system recognizes that the government cannot make private parties    cooperate with something that is essentially a governmental duty. The requirement not to    delegate governmental functions reflects the principle that those who exercise the powers    of government must be subject to special disciplines. None of these disciplines apply to    ecoseals companies. Agencies need to ensure that their decisions are not based on value    judgments.     Having established this in its preamble, the guidance recommends that agencies rely on    ecoseals as long as they meet certain criteria. Thus, the language of the preamble and the    guidance itself contradict each other. GMA proposed that EPA clarify the guidance's    reference to ecoseals so that it echoes the preamble. EPA should make it clear that    agencies should make decisions based on objective information, not value judgments.     The American Forest & Paper Association (AFPA) is against third-party certification    programs for two reasons: 1) the government cannot legally delegate governmental functions    to private parties, and 2) third-party certification programs cannot determine    environmental preferability because there is no methodology to do so. AFPA cautioned that    EPA's guidance is based on the same concepts that the European Union ecolabel scheme is.    This scheme is currently under attack by foreign governments, industry, and the U.S.    government.     The Chemical Specialties Manufacturers Association (CSMA) is opposed to third-party    certification. CSMA believes that comparisons should be based on the FTC guides and should    encourage voluntary disclosure. These comparisons should be factual and substantive and    maintain confidentiality.     The National Recycling Coalition (NRC) reminded EPA that, in Executive Order 12873, the    National Institute of Standards and Technology (NIST) was directed to do product testing.    NRC believes that NIST should become involved immediately regarding third-party    certification programs. This commenter encouraged EPA to consider whether certification    programs are a viable means of identifying environmentally preferable products.     The Scientific Certification Systems Company (SCS) believes that there is a role for    third-party certification programs, but that role is inappropriately defined. This    commenter noted that the FTC guides are a good starting point, but they do not define    environmental preferability or provide information to an audience in a useful way. SCS    stated that judgment of environmental preferability by a panel is inappropriate because    environmental preferability changes from one day to the next. In addition, third-party    certification programs do not create or use products and technologies; they can identify    that a product is what it claims to be and that data are sufficient to substantiate that    claim, but they cannot determine environmental preferability.     Green Seal asserted that federal agencies need the assistance of third-party    certification programs to determine which products are environmentally preferable. The    National Performance Review of the Federal Government makes it clear that federal agencies    should rely on private sector approaches. Green Seal pointed out that the private sector    relies on third-party certification programs, and the government should, too.    Government-only standards limit creativity.     I. MISCELLANEOUS COMMENTS     Additional comments presented at the meeting ranged from suggestions that agencies    procure municipal solid waste (MSW) services in accordance with RCRA to recommendations    that agencies acquire products developed by the Alternative Agriculture Research and    Commercialization Center of the U.S. Department of Agriculture. Specific comments are as    follows:     The General Services Administration (GSA) recommended a two- to three-day conference on    purchasing environmentally preferable products, in which EPA could bring together    government agencies, third-party certification programs, and manufacturers to discuss    implementation of the guidance. GSA believes that these parties all have the same goal;    they next need to work together to determine how best to accomplish that goal.     The Department of Energy (DOE) emphasized the importance of energy efficiency in    federal procurement. DOE encourages energy efficiency in government purchasing under    Section 161 of the Energy Policy Act of 1992. The federal policy of encouraging energy    efficient purchasing is described in detail in Section 507b of Executive Order 12902,    which directs all agencies to increase their use of energy efficient products. The    Executive Order defines energy efficient products as those in the top 25 percent of the    market in terms of energy and water efficiency or those at least 10 percent more efficient    than any DOE issued national standards.     To assist agencies in complying with the Executive Order, DOE has teamed up with the    Office of Federal Procurement Policy of the Office of Management and Budget to sponsor an    energy efficiency challenge. The challenge asks federal agencies to take a leadership role    in making energy efficiency a part of their practices. Twenty-two agencies representing    $10 billion in products joined in the effort by signing the challenge. The next step is    for each agency to update its procurement policies and practices to make them more energy    efficient.     DOE is also developing technical guidelines to provide energy efficient levels for    common products. DOE will disseminate these guidelines in printed and electronic forms.     The U.S. Department of Agriculture (USDA) encouraged federal agencies to purchase    environmentally preferable products that have been developed by the Alternative    Agriculture Research and Commercialization Center of USDA. The center has developed 54    environmental products and invested $23 million, matched by $93 million from the private    sector. USDA provided examples of some of these products, which include an ethanol-based    windshield wiper fluid made from corn, a transmission fluid substitute made from rapeseed,    wheat straw that is used for constructing interior walls, and a particleboard also made of    wheat straw. USDA cautioned that several federal requirements hinder the use of these    products, such as the regulation that federal agencies must purchase recycled content    paper. This regulation prohibits agencies from using tree-free paper made of kenaf, for    example. USDA encouraged EPA to work to overcome these regulations.     The American Plastics Council (APC) cautioned EPA from going beyond the realm of    federal procurement to tell private sector purchasers which products are environmentally    preferable. This commenter does not believe that the government should dictate to the    private sector which products are environmentally superior. EPA should also be wary that    purchasing environmentally preferable products will probably not reduce costs in the short    run, although it may in the long term. This commenter also noted that the guidance is not    the origin of environmentally preferable purchasing. The market has already seen many    products with recycled content and energy efficient attributes, which were driven by    industry's desire to satisfy more environmentally aware consumers. APC believes that the    government is now catching up to the private sector in terms of environmental purchasing.     The Remanufacturing Industries Council (RIC) stressed the importance of remanufacturing    in the determination of environmental preferability. RIC recommended that EPA incorporate    remanufacturing as a specific concept in the guidance, establish incentives to promote the    use of remanufacturing, and create a remanufacturing advisory committee.     Ogden Projects, Inc., emphasized the federal government's need to procure solid waste    services that are in compliance with RCRA and other federal regulations. Ogden Projects    noted that the federal government is the nation's largest disposer of MSW, yet a very    small amount of MSW disposed of by the government is managed in accordance with RCRA and    other regulations. Ogden Projects stated that EPA should require that federal agencies    dispose of their MSW only in combustion facilities and landfills that are in compliance    with RCRA and the Clean Air Act. This commenter also believes that the federal government    should purchase power from companies that generate it with less pollution.     The Automotive Parts Rebuilders Association (APRA) believes that the guidance should    distinguish between remanufacturing and recycling so that federal agencies appreciate how    remanufacturing can contribute to environmental preferability. APRA also asserted that the    guidance should dictate a preference for products that are remanufactured where the costs    support such a preference. This commenter believes that EPA should actively promote    remanufacturing. In addition, the guidance should be clarified so that remanufacturing and    recycling are applied to product components as well as final products. Finally, APRA    stated that the guidance should create positive incentives for manufacturers to build    remanufacturing into their products and expand remanufacturing to more products.     Sunshine Makers, Inc., emphasized that environmentally preferable products should bring    about the elimination of hazardous wastes. This commenter recommended that agencies use    the following steps when acquiring environmentally preferable cleaning products (these    steps were part of Sunshine Makers' recommendations to the Northeastern Wyoming Coal    Producers Association): 1) determine what needs to be changed; 2) survey your agency to    find people who use the product and ask for their input; 3) do not assume that you need to    acquire new equipment to get a newer cleaning technology; 4) make the selection    requirements for the replacement cleaner rigorous, and verify all claims; 5) once you have    determined which product to purchase, ensure that the product is clean when it enters your    organization; 6) request that the supplier provide toxic contaminant leaching procedures    (TCLP) and certify that the product is below the required emissions level for volatile    organic compounds and other hazardous substances; and 7) complete LCA and ensure that the    product can be disposed of safely and in an environmentally friendly manner.SECTION THREE     CONCLUSIONS     In closing the meeting, William Sanders, Director of EPA's Office of Pollution    Prevention and Toxics, summarized the comments made at the meeting. He stated that there    is general, although not unanimous, agreement that the guidance is a good first step and    that LCA should be part of the framework. Commenters have expressed concern, however,    about whether LCA can be used without overwhelming purchasers. Mr. Sanders stated that    although commenters did not agree about the role of third-party certification programs,    EPA will need to address this issue as the Agency moves towards implementation of the    guidance. Mr. Sanders also stated that commenters approved of the need for pilot projects    and agreed that EPA needs to move more quickly in implementing the guidance.SECTION FOUR     QUESTION AND ANSWER SESSIONS     A question and answer session followed every two panels. Attendees were invited to    submit their written questions to the moderator, who read them aloud. Panelists to whom    the questions were addressed were not obligated to answer the questions at this time. All    questions were entered into the record and will be considered by EPA and the appropriate    agencies as EPA reviews comments offered during the public meeting and submitted to the    docket.     A. QUESTIONS FOR THE FEDERAL AGENCY PANEL AND PANEL 1     Federal Agency Panel     Carole Parker, U.S. Department of Defense     John Stanberry, U.S. General Services Administration     Rick Klimkof, U.S. Department of Energy     Ron McHugh, U.S. Department of Energy     Bruce Crain, U.S. Department of Agriculture     Panel 1    Rick Otis, American Plastics Council    Maureen Healey, The Society for the Plastics Industry     From David Sussman, Ogden Projects, Inc.    To Carole Parker and Rick Klimkof    The first two speakers discussed procurement of products and had no mention of services.    Is this an oversight or are services of no interest to these two agencies?     From Larry Errelich, George Washington University    To Rick Klimkof    Will the program you described be separate or part of this program? If it is to be    integrated, how will that be done?     From Stephen Evanoff, Lockheed-Martin Corporation    To Carole Parker and Rick Klimkof    Please comment on the role of prime contractors in general and government operators in    particular in implementing this program.     From Ken Farber, Hogan and Hartson for PIMA    To Fran McPoland    How will this program be coordinated with DOE's energy-efficient product program,    particularly if there is a potential conflict of methodologies, assumptions, and criteria?        From David Isaacs, EIA    To Carole Parker    You mentioned the difficulties associated with evaluating the environmental attributes of    complex defense systems. Can you elaborate on those difficulties?     From Stephen P. Ashkin, Rochester Midland Corporation    To various agency environmental executives     Would each agency identify what pilot projects are currently underway and what may be in    the works?     From Eun-Sook Goidel, EPA    To Panel 1    Are there alternative frameworks apart from LCA that can help us capture the    multidimensional aspects of environmental preferability?     From Eun-Sook Goidel, EPA    To Panel 1    A number of commenters have indicated that they are concerned about the use of third    parties in determining environmentally preferable products because such a determination is    inherently a governmental function. Could the federal agencies comment on this?     From John Shoaff, EPA    To Maureen Healey    In regard to the LCA and multiple attributes, can you elaborate on your comments that the    government should ask how product design considerations are internalized into operations?     From Dave Core, Steel Shipping Container Institute    To Eun-Sook Goidel, EPA    Will these guidelines allow waivers for products that must first meet other    regulatory requirements, e.g., DOT hazmat regulations?     B. QUESTIONS FOR PANELS 2 AND 3     Panel 2    E. Donald Elliott, Grocery Manufacturers of America     Amy Schaffer, American Forest & Paper Association     Mike Conlon, Remanufacturing Industries Council     Panel 3    Ralph Engel, Chemical Specialties Manufacturers Association    David Sussman, Ogden Projects, Inc.     Mike Conlon, Automotive Parts Rebuilders Association     No questions were posed to these two panels.C. QUESTIONS FOR PANELS 4 AND 5     Panel 4     Edgar Miller, National Recycling Coalition     Chet Chaffee, Scientific Certification Systems Company     Arthur Weissman, Green Seal     Panel 5    Stephen Ashkin, Rochester Midland Corporation    Lloyd Murphy, Sunshine    Makers, Inc.     From Rick Otis, American Plastics Council    To Arthur Weissman    How do you address the concern that the ecoseal certification process is too    slow to accommodate changes in product design, manufacturing processes, and    ingredients? Will not the delay slow down product innovation?     From Rick Otis, American Plastics Council    To Arthur Weissman    You said "all things being equal" with respect to an attribute like a toxic    ingredient. How do you ensure that all other things are equal? And when they    are not, what value judgments do you use to weigh the differences?     From Birgit Leuschel, New Jersey Institute of Technology    To Chet Chaffee    How does the ISO 14000 series relate to the EPA guidelines? To what extent    could an ISO 14001 certified company meet the proposed criteria?APPENDIX A     LIST OF COMMENTERS     American Forest & Paper Association    Amy Schaffer    Senior Director    1111 19th Street, NW., Suite 800    Washington, DC 20036    202 463-2585    Fax: 202 463-2423     American Plastics Council    Rick Otis    Director    1275 Case Street, NW., Fifth Floor    Washington, DC 20005    202 371-5319    Fax: 202 371-5679     Automotive Parts Rebuilders Association    Mike Conlon    General Counsel    1818 M Street, NW., Suite 700    Washington, DC 20036    202 331-7050    Fax: 202 331-9306     Chemical Specialties Manufacturers    Association    Ralph Engel    President    1931 I Street, NW.    Washington, DC 20006    202 872-8110    Fax: 202 872-8114     Green Seal    Arthur Weissman    Vice President of Standards    1730 Rhode Island Avenue, NW., Suite 1050    Washington, DC 20036    202 331-7337, Extension 32    Fax: 202 331-7533     Grocery Manufacturers of America    E. Donald Elliott    Counsel    1001 Pennsylvania Avenue, NW., Suite 800    Washington, DC 20004    202 639-7170    Fax: 202 639-7372     National Recycling Coalition    Edgar Miller    Director of Policy    1727 King Street, Suite 105    Alexandria, VA 22314-2720    703 683-9025    Fax: 703 683-9026     Ogden Projects, Inc.    David Sussman    Senior Vice President    1212 New York Avenue, NW., Suite 300    Washington, DC 20005    202 371-5144    Fax: 202 371-9236     Remanufacturing Industries Council    Mike Conlon    General Counsel    1818 M Street, NW., Suite 700    Washington, DC 20036    202 331-7050    Fax: 202 331-9306     Rochester Midland Corporation    Stephen Ashkin    Vice President    333 Hollendec Street    Rochester, NY 14603-1515    716 336-2200    Fax: 716 336-2357     Scientific Certification Systems Company    Chet Chaffee    Vice President, Marketing    1 Kaiser Plaza, Suite 901    Oakland, CA 94612    510 832-1415    Fax: 510 832-0359     The Society of the Plastics Industry    Maureen Healey    Director, Federal Government Affairs    1275 K Street, NW., Suite 400    Washington, DC 20005    202 371-5219    Fax: 202 842-1165     Sunshine Makers, Inc.    Lloyd Murphy    Director, Industrial Education    1059 Jennings Station Road    St. Louis, MO 63137    314 867-8725    Fax: 314 867-8791     U.S. Department of Agriculture    Bruce Crain    Director, Alternative Agriculture Research and    Commercialization Center    0156 South Building    12th Street and Independence Avenue, SW.    Washington, DC 20250    202 690-1633    Fax: 202 690-1655     U.S. Department of Defense    Carole Parker    Director, Pollution Prevention    Office of the Deputy Under Secretary of    Defense Environmental Security    5109 Leesburg Pike, Suite 310    Falls Church, VA 22041     U.S. Department of Energy    Rick Klimkof    Program Manager, Federal Energy    Management Program    1001 Independence Avenue, SW. (EE92)    Washington, DC 20585-0121    202 586-8287    Fax: 202 586-3000     U.S. Department of Energy    Ron McHugh    1001 Independence Avenue, SW. (EE92)    Washington, DC 20585-0121    202 586-8287    Fax: 202 586-3000     U.S. General Services Administration    John Stanberry    Environmental Executive    18th and F Streets, NW.    Washington, DC 20405    202 208-7929APPENDIX BCOMMENTERS BY INTEREST CATEGORY     CATEGORY:    COMMENTER     Federal Agency:    U.S. Department of Agriculture    U.S. Department of Defense    U.S. Department of Energy (two commenters)    U.S. General Services Administration     Consumer and/or Commercial Products Manufacturer:    Sunshine Makers, Inc.Industrial Products Manufacturer:    Rochester Midland Corporation     Environmental Advocacy Organization:    National Recycling Coalition     Trade Association:    American Plastics Council    American Forest & Paper Association    Automotive Parts Rebuilders Association    Chemical Specialties Manufacturers Association    Grocery Manufacturers of America    Remanufacturing Industries Council    The Society of the Plastics Industry     Standards and Certification Organization:     Green Seal    Scientific Certification Systems Company     Miscellaneous:     Ogden Projects, Inc.APPENDIX CINDEX OF COMMENTS     Commenter: Pages Where Comments Appear     American Plastics Council: 4, 9, 11, 12, 13, 15, 19     American Forest & Paper Association: 5, 9, 11, 16     Automotive Parts Rebuilders Association: 5, 7, 9, 11, 13, 19     Chemical Specialties Manufacturers Association: 5, 7, 11, 12, 16     Green Seal: 5, 17     Grocery Manufacturers of America: 15     National Recycling Coalition: 5, 10, 13, 16     Ogden Projects, Inc.: 19     Remanufacturing Industries Council: 5, 11, 19     Rochester Midland Corporation: 6, 10, 13, 14     Scientific Certification Systems Company: 8, 12, 14, 17     The Society of the Plastics Industry: 4, 7, 11, 12, 15     Sunshine Makers, Inc.: 20     U.S. Department of Agriculture: 18     U.S. Department of Defense: 4, 6, 8, 10, 14     U.S. Department of Energy: 4, 9, 15, 18     U.S. General Services Administration: 7, 9, 11, 14, 17footer>**Contacting EPP | EPP HomeOPPT Home | EPA Home | Search | Comments
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