[Federal Register Volume 60, Number 50 (Wednesday, March 15, 1995)]
[Notices]
[Pages 14182-14191]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-6407]




[[Page 14181]]

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Part VII

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Environmental Protection Agency





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Paper Products Recovered Materials Advisory; Notice

Federal Register / Vol. 60, No. 50 / Wednesday, March 15, 1995 / 
Notices
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[[Page 14182]] 


ENVIRONMENTAL PROTECTION AGENCY

[SWH-FRL-5172-9]


Paper Products Recovered Materials Advisory Notice

AGENCY: Environmental Protection Agency.

ACTION: Notice of availability.

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SUMMARY: The Environmental Protection Agency today is providing notice 
of the availability of a draft Paper Products Recovered Materials 
Advisory Notice and ``Draft Paper Products RMAN--Supporting Analyses.'' 
This action will promote paper recycling by using government 
procurement to expand markets for recovered paper. Under section 6002 
of the Resource Conservation and Recovery Act of 1976, EPA designates 
items that are or can be made with recovered materials and provides 
recommendations for government procurement of these items. In 1988, EPA 
designated the category of paper and paper products and recommended 
minimum recovered materials content levels for items within this 
category that are commonly purchased by government agencies. Today, EPA 
is issuing draft revisions to the 1988 recommendations. EPA also 
addresses issues raised by paper manufacturers, merchants, and 
purchasers as they have been implementing the 1988 recommendations.

DATES: EPA will accept public comments on the recommendations contained 
in the draft Paper Products Recovered Materials Advisory Notice until 
May 15, 1995. Both written and electronic comments must be submitted on 
or before this date.

ADDRESSES: Commenters must send an original and two copies of comments, 
referencing docket F-95-PPRN-FFFFF, to the RCRA Information Center 
(5305), U.S. EPA, 401 M Street SW., Washington, DC 20460.
    Commenters wishing to submit Confidential Business Information 
(CBI) should submit an original and two copies of the CBI, referencing 
docket F-95-PPRN-FFFFF, under separate cover to the Document Control 
Officer (5305), U.S. EPA, 401 M Street SW., Washington, DC 20460.
    Comments may also be submitted electronically by sending electronic 
mail (e-mail) through the Internet System to: RCRA-
D<a href="/cdn-cgi/l/email-protection#640b070f01102401140509050d084a0114054a030b12"><span class="__cf_email__" data-cfemail="fe919d959b8abe9b8e9f939f9792d09b8e9fd0999188">[email protected]</span></a>. All electronic comments must be submitted as an 
ASCII file avoiding the use of special characters and any form of 
encryption. The comments should be identified by docket number F-95-
PPRN-FFFFF. Further information on submitting comments electronically 
is provided below in the section entitled ``Electronic Filing of 
Comments.''
    Public comments and relevant documents are available for viewing in 
the RCRA Information Center (RIC), located in room M2616, at the EPA 
address listed above. The RIC is open from 9 am to 4 pm, Monday through 
Friday, excluding Federal holidays. To review docket materials, the 
public must make an appointment by calling (202) 260-9327. Materials 
may be copied for $0.15 per page.

FOR FURTHER INFORMATION CONTACT: ``Draft Paper Products RMAN--
Supporting Analyses'' is the primary supporting document for the draft 
Paper Products Recovered Materials Advisory Notice (RMAN). Both the 
Federal Register notice and the supporting document will be available 
in electronic format on the Internet System through the EPA Public 
Access Server at gopher.epa.gov. For a paper copy of the Federal 
Register notice or ``Draft Paper Products RMAN--Supporting Analyses,'' 
please contact the RCRA Hotline at 800-424-9346, or, in the Washington, 
DC metropolitan area, (703) 412-9810. Paper copies also are available 
in the RCRA Docket at the address listed in the previous section.
    For technical information regarding the recommendations in today's 
notice, contact Dana Arnold of the Recycling Section in EPA's Office of 
Solid Waste at (703) 308-7279.

ELECTRONIC FILING OF COMMENTS: As part of an interagency 
``streamlining'' initiative, EPA is experimenting with electronic 
submission of public comments through the Internet, in addition to 
accepting comments in traditional written form. This notice is one of 
the actions selected by EPA for this experiment. From the experiment, 
EPA will learn how electronic commenting works, and any problems that 
arise can be addressed before EPA adopts electronic commenting more 
broadly in its rulemaking activities.
    Electronic comment through the Internet raises some novel issues. 
Persons who comment on this document should be aware that this 
experimental electronic commenting is administered on a completely 
public system. Therefore, any personal information included in comments 
and the electronic mail addresses of those who make comments 
electronically are automatically available to anyone else who views 
these comments.
    Similarly, since all electronic comments are available to all 
users, commenters should not submit electronically any information 
which they believe to be Confidential Business Information (CBI). Such 
information should be submitted only in writing as described above 
under Addresses.
    The official record for this action will be kept in paper form. 
Accordingly, EPA will convert all documents received electronically 
into printed paper form as they are received and will place the paper 
copies in the official record, which will also include all comments 
submitted directly in writing. The official record is the paper record 
maintained in the RCRA docket (see Addresses above). (Comments 
submitted on paper will not be transferred to electronic format. These 
comments may be viewed only in the RCRA docket as described above.)
    Because the electronic comment process is still experimental, EPA 
cannot guarantee that all electronic comments can be accurately 
converted to printed paper form. If EPA becomes aware of any problems 
with the receipt of the electronic file or with its transfer to paper, 
the Agency will attempt to contact the commenter to request that the 
comment be resubmitted in electronic or written form.
    Some commenters may choose to submit identical comments in both 
electronic and written form to ensure accuracy. In these instances, EPA 
requests that commenters clearly note in both the electronic and 
written submissions that the comments are duplicated in the other 
medium. This will assist EPA in processing and filing the comments 
during the open comment period.
    As with written comments, EPA will not attempt to verify the 
identities of electronic commenters or to review the accuracy of 
electronic comments. EPA will take such commenters and comments at face 
value. Electronic and written comments will be placed in the official 
record without any editing or change by EPA except to the extent 
changes occur in the process of converting electronic comments to 
printed paper form.
    If it chooses to respond officially to electronic comments on this 
notice, EPA will do so either in a notice in the Federal Register or in 
a response to comments document placed in the official record for this 
docket. EPA will not respond to commenters electronically, other than 
to seek clarification of electronic comments that may be garbled in 
transmission or conversion to printed paper form. Any communications 
from EPA employees [[Page 14183]] to electronic commenters, other than 
those described in this paragraph, either through Internet or otherwise 
are not official responses from EPA.

ACCESSING INTERNET:

1. Through Gopher: Go to: gopher.epa.gov
    From the main menu, choose ``EPA Offices and Regions''. Next, 
choose ``Office of Solid Waste and Emergency Response (OSWER)''. Next, 
choose ``Office of Solid Waste''. Then, choose ``Non-Hazardous Waste--
RCRA Subtitle D''. Finally, choose ``Procurement/Paper''.
2. Through FTP: Go to: ftp.epa.gov
    Login: anonymous
    Password: Your Internet Address
    Files are located in directories/pub/gopher. All OSW files are in 
directories beginning with ``OSW''.
3. Through MOSAIC: Go to: http://www.epa.gov
    Choose the EPA Public Access Gopher. From the main (Gopher) menu, 
choose ``EPA Offices and Regions''. Next, choose ``Office of Solid 
Waste and Emergency Response (OSWER).'' Next, choose ``Office of Solid 
Waste''. Then, choose ``Non-Hazardous Waste--RCRA Subtitle D''. 
Finally, choose ``Procurement/Paper''.
4. Through dial-up access:
    Dial 919-558-0335. Choose EPA Public Access Gopher. From the main 
(Gopher) menu, choose ``EPA Offices and Regions''. Next, choose 
``Office of Solid Waste and Emergency Response (OSWER)''. Next, choose 
``Office of Solid Waste''. Then, choose ``Non-Hazardous Waste--RCRA 
Subtitle D''. Finally, choose ``Procurement/Paper''.

SUPPLEMENTARY INFORMATION:

Preamble Outline

I. Authority
II. Introduction
    A. Objectives
    B. The Procurement Guidelines Development Process
    C. Approach to Recovered Materials Content Recommendations
    1. One-part vs. Two-part Content Levels
    2. Broad vs. Narrow Definition of ``Postconsumer Materials''
    3. Establishment of Minimum Recovered Materials Content Levels 
and Ranges
    4. EPA's Methodology for Recommending Postconsumer and Recovered 
Fiber Content Levels
III. Other Issues Addressed in the Draft Paper Products RMAN
    A. Measurement of Recovered Fiber Content
    B. Clarifications and Revisions to Definitions
    C. Revisions to Item Listings
    D. Recyclability
    E. Use of EPA's Recommendations
III. Request for Comments
I. Authority

    The draft Paper Products Recovered Materials Advisory Notice is 
published under authority of sections 2002(a) and 6002 of the Solid 
Waste Disposal Act, as amended by the Resource Conservation and 
Recovery Act of 1976, as amended, 42 U.S.C. 6912(a) and 6962, and 
Executive Order 12873, ``Federal Acquisition, Recycling, and Waste 
Prevention'' (58 FR 54911, October 22, 1993).

II. Introduction

    Today, the U.S. Environmental Protection Agency (EPA or the Agency) 
is publishing a draft Recovered Materials Advisory Notice (RMAN), which 
contains recommendations for procuring agencies to use when purchasing 
paper and paper products in accordance with section 6002 of the 
Resource Conservation and Recovery Act of 1976 (RCRA).
    Detailed information supporting EPA's draft recommendations are 
found in ``Draft Paper Products RMAN--Supporting Analyses.'' This 
document is available electronically and in paper form. See the section 
above entitled For Further Information Contact for instructions for 
obtaining the supporting analyses document in either format.

A. Objectives

    In developing the draft recommendations for paper and paper 
products, EPA considered two objectives. As required by RCRA section 
6002, EPA's first objective is to recommend content levels that will 
maximize the use of postconsumer recovered materials in paper and paper 
products. EPA's second objective is to promote paper recycling by 
increasing both the usage of postconsumer recovered materials in paper 
manufacturing and the availability of competitively-priced paper and 
paper products containing postconsumer and other recovered materials.
    EPA recognizes that while its recommendations are meant primarily 
for the use of government procuring agencies, EPA's guidance is widely 
used by private sector purchasers, who represent 95% or more of paper 
demand. EPA has found that when its recommendations for postconsumer 
recovered materials content are too high, paper and paper products 
containing these high percentages are often unavailable to government 
agencies and private sector purchasers or are not consistently 
available throughout the U.S. Also, while some paper and paper products 
containing these high percentages of recovered materials are available, 
they often are not price-competitive with other paper and paper 
products offered to government agencies and private sector purchasers. 
As a result, overall use of postconsumer recovered materials may not be 
maximized simply by EPA's recommending high postconsumer content 
levels.
    Since designating paper and paper products as procurement items in 
1988, EPA has found that increasing demand from both public and private 
sector purchasers has resulted in greater recycling of postconsumer 
recovered materials than simply increasing demand from the public 
sector. Therefore, in establishing today's draft content 
recommendations, EPA sought to increase the availability to both 
government and private purchasers of reasonably-priced paper and paper 
products containing postconsumer recovered materials. EPA strongly 
believes that this approach will maximize the recycling and use of 
postconsumer recovered materials.
    Therefore, to meet its twin objectives, EPA is adopting a different 
approach than was used in 1988 to recommend content levels for paper 
and paper products. As explained in more detail below, EPA is 
recommending two-part content levels, consisting of a postconsumer 
fiber component and a recovered fiber component. EPA believes that the 
two-part recommendations will assure that there is a demand for all 
recovered materials, including postconsumer recovered materials, as 
well as those generated during paper converting and printing 
operations.
    Further, EPA is recommending content ranges for each component, 
whenever appropriate, to encourage increased purchasing of paper and 
paper products containing postconsumer and recovered fiber throughout 
the U.S. EPA believes that ranges are appropriate for three reasons. 
First, Executive Order 12873 directs EPA to recommend ranges. Second, 
while many agencies will continue to purchase paper products centrally 
(or from the General Services Administration or the Government Printing 
Office), local purchases will increase as a result of recent government 
procurement reform, which increases the small purchase threshold and 
allows greater local purchasing using credit cards. Currently, the 
postconsumer and total recovered fiber content of many paper products 
varies, as does product [[Page 14184]] availability, across the U.S. 
Procuring agencies can use the ranges as an information source in 
establishing standards for local purchases.
    Third, although EPA's recommendations are intended for government 
purchasing agencies and their contractors, the Agency is aware that 
private sector purchasers refer to EPA's recommendations when 
purchasing paper products. EPA wants to encourage the continued broad 
use of its recommendations to foster greater demand for products 
containing postconsumer and recovered fiber, which, in turn, will lead 
to increased usage of these materials. However, EPA believes that 
private sector purchasers may be able to find paper and paper products 
available only at the lower end of the ranges, because the large 
quantities of paper that these purchasers need will be manufactured 
mainly by mills that use only lower levels of postconsumer and 
recovered fiber.
    There currently are insufficient quantities of paper and paper 
products containing high percentages of postconsumer and recovered 
fiber to meet the demand of both public and private sector purchasers. 
By recommending ranges, EPA is acknowledging that some purchasers will 
be able to buy products that contain high percentages of postconsumer 
and recovered fiber, while others will find that products are available 
that contain lower percentages of these materials. Others, while not 
being able to buy price-competitive products that contain postconsumer 
and recovered fiber even at the low end of the ranges, will continue to 
seek such products, increasing overall demand for recycled paper 
products. EPA anticipates that this increased demand for and purchase 
of paper and paper products containing postconsumer and recovered 
fiber, even at the low end of the recommended ranges, will spur pulp 
and paper mills to make additional capital investments in the equipment 
and systems needed to use greater percentages of these fibers and to 
produce them at a competitive price.
    Therefore, EPA encourages both public and private sector purchasers 
to establish their minimum content standards at the highest levels 
practicable; if a product is not available at a competitive price and 
at a content level at the high end of the range, purchasers should set 
their standards at the highest levels available to them that meet their 
price and performance objectives, using the recommended range as a 
guide. In this way, EPA's recommended ranges will encourage both public 
and private sector purchasers to purchase paper products containing the 
highest levels of postconsumer and recovered fiber practicable.
    Finally, by establishing ranges, EPA is taking into account the 
diversity that exists within the paper industry. The recommendations 
recognize that, in many grades of paper, larger quantities of paper and 
paper products are produced at mills that primarily use wood-based 
fiber than at mills that primarily use recovered and postconsumer 
fiber. While it is not currently economically feasible for these mills 
to substitute high percentages of postconsumer fiber for the wood-based 
fiber, it is technically and economically possible for them to use 
lower percentages of postconsumer and recovered fiber. EPA believes 
that ranges will provide an incentive for all paper mills to maximize 
their usage of postconsumer and recovered fiber. This will lead to 
greater availability of competitively-priced paper and paper products 
for both public and private purchasers. In the long run, this approach 
will lead to greater demand for postconsumer and recovered fiber.

B. The Procurement Guidelines Development Process

    EPA's procurement guidelines are required by section 6002 of RCRA 
and Executive Order 12873. In an April 20, 1994 Federal Register 
notice, EPA explained that under Executive Order 12873, the Agency is 
required to issue a regulation, known as a Comprehensive Procurement 
Guideline (CPG), which will designate items that procuring agencies 
should purchase containing recovered materials. Executive Order 12873 
also directed EPA to issue guidance documents, known as Recovered 
Materials Advisory Notices, which will contain EPA's recommendations 
for purchasing the designated items. In the April 20, 1994 Federal 
Register, EPA published the first draft RMAN, which established eight 
product categories corresponding to the categories used in the CPG. One 
of these categories, Part A, was reserved for recommendations for paper 
and paper products. See the April 20, 1994 Federal Register (59 FR 
18852) and ``Draft Paper Products RMAN--Supporting Analyses'' for more 
detail about the requirements of RCRA section 6002 and the guidelines 
development process.
    In today's notice, EPA is announcing that the draft recommendations 
for paper and paper products are available for public review and 
comment. EPA's draft recommendations are found in the Appendix at the 
end of this Federal Register notice. They are arranged in the RMAN 
format established by the April 20, 1994 Federal Register notice. As 
noted above, detailed information supporting the draft recommendations 
are found in ``Draft Paper Products RMAN--Supporting Analyses.''

C. Approach to Recovered Materials Content Recommendations

1. One-Part vs. Two-Part Content Levels
    As defined in RCRA section 6002(h), the term ``recovered 
materials'' refers to materials generated after the end of the 
papermaking process. Recovered materials can be generated by many 
sources, including paper mills, intermediate paper users such as 
printers and converters, merchants, retailers, and the intended end 
user. Recovered materials are sometimes divided into ``preconsumer 
materials,'' which refers to materials that have not passed through 
their intended end usage, and ``postconsumer materials,'' which refers 
to materials that have passed through their intended end usage. Minimum 
content standards can be expressed as a percentage of postconsumer 
materials content, a percentage of recovered materials (or total 
recovered materials) content, or percentages of both. For example, 
today, a common content standard for printing and writing paper is 50% 
total recovered materials, including 10% postconsumer materials.
    In 1988, EPA recommended postconsumer content levels for newsprint, 
tissue products, paperboard, and packaging; and ``waste paper'' content 
levels for most printing and writing papers. As defined in the 1988 
paper procurement guideline, ``waste paper'' includes postconsumer 
materials and certain materials generated after the end of the 
papermaking process (see 53 FR 23551, June 22, 1988).
    In response to a 1990 EPA request for comment (55 FR 40384, October 
3, 1990) and an EPA-sponsored 1993 public forum, a group of commenters 
suggested that the Agency recommend two-part content levels consisting 
of a ``total recovered materials'' component in addition to a 
postconsumer recovered materials component. Within this group, some 
commenters favor a postconsumer materials component that is defined 
consistently with the postconsumer definition contained in RCRA section 
6002(h). Others favor a broader component consisting of postconsumer 
materials plus certain preconsumer materials that require deinking or 
cleaning, similar to postconsumer materials, prior to use.

[[Page 14185]]

    These commenters argue that two-part content levels can achieve two 
goals: (1) Assure markets for all recovered materials, regardless of 
source and (2) increase demand for postconsumer materials. Because 
there is a limited amount of preconsumer recovered materials, 
commenters argue that pulp and paper mills will need to use greater 
percentages of postconsumer materials in order to meet total recovered 
materials requirements in their products. According to one commenter's 
estimate, the paper industry recovered and used 87% of available 
preconsumer materials (i.e., materials generated by sources other than 
the intended end user of a finished product) in 1990.\1\ According to 
the American Forest & Paper Association (AF&PA), an industry 
association, almost all preconsumer materials are recovered and used 
when exports are taken into account.

    \1\See the ``Final Report on Recycled Paper Definitions, 
Standards, Measurement, Labeling Guidelines, and Buy-Recycled 
Initiative,'' Addendum E, Recycling Advisory Council, February 6, 
1992. EPA placed a copy of the report in the docket for the Paper 
Products RMAN. The report also is available from the National 
Recycling Coalition.
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    A second group of commenters favored a single, strictly 
postconsumer standard. These commenters argue that most preconsumer 
material is already recovered, and that the focus for government 
procurement should be on postconsumer paper because it is the single 
largest component of municipal solid waste. They also believe that only 
a strictly postconsumer standard will stimulate markets for materials 
collected by municipal recycling programs.
    A third group of commenters argue in favor of a single, total 
recovered materials standard encompassing both preconsumer and 
postconsumer materials. They believe that because most preconsumer 
material is already recovered, virtually all additional recovered paper 
will necessarily come from postconsumer sources.
    EPA believes that the two-part approach is preferable to the 
postconsumer-only and total recovered materials-only approaches because 
the two-part approach will result in greater usage of postconsumer 
materials. A single, postconsumer level fails to acknowledge the 
continuing contribution to solid waste management and the investments 
made by mills that have been using all recovered materials, regardless 
of source, that require deinking, cleaning, or processing prior to use. 
Additionally, EPA believes that, because most preconsumer materials are 
now being used, total recovered materials content levels will lead to 
higher use of postconsumer materials as mills seek sufficient materials 
to meet the total recovered materials content levels.
    EPA also believes that a broad, single, total recovered materials 
content level will not fulfill the statutory requirement that 
government agencies procure paper products containing the ``highest 
percentage of postconsumer recovered materials practicable.''
2. Broad vs. Narrow Definition of ``Postconsumer Materials''
    Several groups recommended that EPA broaden the postconsumer 
definition to include certain preconsumer materials that, like 
postconsumer materials, require deinking or contaminant removal prior 
to use. These groups state that there is no reason, from a papermaking 
perspective, to separate these materials. They further state that it is 
difficult to distinguish postconsumer and preconsumer materials and 
that tracking of postconsumer materials is not feasible and extremely 
costly to implement.
    It is not the intent of RCRA that pulp and paper mills track every 
piece of recovered paper or that mills using recovered materials incur 
unnecessary costs. Under RCRA section 6002, procuring agencies are 
required to (1) obtain certifications that the product offered to them 
meets the minimum content level specified in their specifications or 
solicitation documents and (2) purchase paper products containing the 
highest levels of postconsumer materials practicable. Procuring 
agencies are not required to obtain certifications regarding the exact 
amount of postconsumer or recovered fiber used. For example, if an 
agency solicits copier paper containing 20% postconsumer fiber, bidders 
must certify that the product offered contains this minimum percentage. 
The product may occasionally contain higher levels of postconsumer 
fiber, but the bidders and the mills supplying them are not required to 
conduct a detailed analysis in order to determine the exact percentage 
of postconsumer fiber in the product in excess of the 20% minimum.
    Some degree of tracking is needed, however, to identify the 
postconsumer materials content of paper and paper products offered to 
government agencies in order (1) to satisfy the RCRA certification 
requirement and (2) to meet the RCRA requirement that paper and paper 
products contain the highest levels of postconsumer materials 
practicable. Although it is difficult, in some instances, to determine 
whether a material is pre- or postconsumer, manufacturers of deinked 
market pulp and paper products containing postconsumer materials are 
making market claims about the postconsumer content of their products. 
Therefore, EPA believes that the level of information in the market is 
adequate, and no additional tracking is necessary for mills to certify 
that their products meet EPA's draft recommendations.
    EPA notes that, while several groups also urged the adoption of a 
broader postconsumer definition for use in Executive Order 12873, the 
Executive Order contains a postconsumer definition analogous to the 
statutory definition. EPA believes that its recommendations should be 
consistent with Executive Order 12873.
    As discussed in detail in the supporting analyses document, there 
have been significant increases in deinking and processing capacity and 
various technology improvements that make it possible to manufacture 
virtually all non-food\2\ grades of paper and paperboard using some 
percentage of postconsumer fiber. Thus, EPA believes that it is not 
necessary to expand the definition of postconsumer materials used in 
the 1988 procurement guideline. For these reasons, EPA is using the 
statutory definition of ``postconsumer'' in today's draft RMAN.

    \2\Manufacturers of food-grade paper and paperboard must be able 
to certify that their products meet Food and Drug Administration 
requirements that the items contain no hazardous and deleterious 
substances that can migrate into the food. While it is technically 
possible to produce a food-grade product with recovered and/or 
postconsumer fiber, the material must be carefully selected. Limited 
availability of suitable material precludes wide-spread use of 
recovered or postconsumer fiber in food-grade paper products.
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    EPA also notes that the type of postconsumer ``material'' of 
concern is fiber. For most products, the fiber is derived from wood, 
but it also can be derived from textiles or agricultural products. The 
availability of such fiber is limited and has been used primarily by 
manufacturers of cotton fiber printing and writing papers, which 
represented less than 1% of printing and writing papers capacity in 
1993. Recognizing this, EPA will refer to ``postconsumer fiber,'' 
rather than to ``postconsumer material.'' EPA believes that the 
statutory definition is broad enough to encompass postconsumer fiber 
derived from textiles and other non-wood sources.
    Thus, the two-part content levels recommended in today's draft RMAN 
will consist of a ``recovered fiber'' component and a ``postconsumer 
fiber'' component. These terms are discussed in section III.B below. 
[[Page 14186]] 
    As part of this approach, EPA will no longer use the term ``waste 
paper'' for printing and writing papers. EPA prefers the term 
``recovered fiber'' because the name reflects the fact that this 
material has value. As discussed in section II.B of this preamble, EPA 
is adapting the 1988 definition of ``waste paper'' to define 
``recovered fiber.''
3. Establishment of Minimum Recovered Materials Content Levels and 
Ranges
    a. Content recommendations vs. minimum content standards. RCRA 
section 6002 requires procuring agencies to purchase paper and paper 
products containing the ``highest percentages of postconsumer recovered 
materials practicable.'' EPA stated in the 1988 paper procurement 
guideline that the use of minimum content levels would satisfy this 
requirement (see 53 FR 23553, June 22, 1988).
    Under RCRA section 6002(i), it is the procuring agencies' 
responsibility to establish minimum recovered materials content 
standards, while EPA provides recommendations regarding the levels of 
recovered materials in the designated items. To make it clear that EPA 
does not establish the specific minimum content standards used by other 
agencies, EPA will no longer refer to its recommendations as recovered 
materials content ``standards,'' as was done in the 1988 paper 
procurement guideline. Instead, EPA will refer to its recommendations 
as recovered materials content ``levels,'' consistent with RCRA section 
6002(e) and Executive Order 12873.
    b. Recommended content ranges. Executive Order 12873 directs EPA to 
present ``the range of recovered materials content levels within which 
the designated recycled items are currently available.'' In meeting 
this provision, EPA will recommend ranges that (1) reflect the best 
information available to the Agency about the use of postconsumer and 
other recovered fiber in the manufacture of a designated item and (2) 
encourage manufacturers to use the maximum amount of postconsumer and 
recovered fiber without compromising competition or product performance 
and availability. EPA recommends that procuring agencies use these 
ranges, in conjunction with their own research into the content of 
items available to them, to establish their minimum content standards. 
In some instances, EPA will recommend one level, rather than a range, 
because the item is universally available at that recommended level. In 
such cases, EPA recommends that procuring agencies use that level in 
establishing their minimum content standards.
4. EPA's Methodology for Recommending Postconsumer and Recovered Fiber 
Content Levels
    EPA identified and evaluated pertinent data sources and information 
regarding the percentages of postconsumer and recovered fiber contained 
in paper and paper products. Sources included EPA research, responses 
to the 1990 Federal Register request for comment and the 1993 public 
forum, procuring agency and industry data, manufacturers' information, 
and other published data. Based on this information and the content 
levels established in Executive Order 12873, EPA established 
recommended levels or ranges of levels for paper and paper products.
    As previously discussed, whenever feasible, EPA will recommend 
ranges for both recovered fiber and postconsumer fiber content. The 
high end of each range will be set at the maximum content currently 
used in paper and paper products that are available in sufficient 
quantities, and with adequate competition, to meet procuring agency 
needs. For many items, this level will be 100% for the recovered fiber 
component of the two-part content recommendations. The high end of each 
range will direct procuring agencies toward those levels that will meet 
the statutory requirement to purchase paper and paper products 
containing the highest levels of postconsumer fiber practicable. Thus, 
EPA strongly encourages procuring agencies to specify and seek paper 
and paper products containing both postconsumer and recovered fiber at 
levels at or near the high end of the recommended ranges if price and 
performance meet the procuring agencies' objectives.
    The low end of each range will be set at levels that can be met by 
the simple majority of mills currently producing paper and paper 
products containing postconsumer and recovered fiber. These levels 
could also be met by other mills if they decide to purchase or produce 
pulp made from postconsumer and recovered fiber. For most items, these 
levels will be higher than the lowest percentage currently in products, 
in order to provide an incentive for paper mills that now primarily use 
wood-based fiber or lower levels of postconsumer or recovered fiber to 
increase their use of postconsumer and recovered fiber in the 
manufacture of their products. For example, if the majority of mills 
currently use 20% postconsumer fiber in a writing paper, but a few 
mills use 10% postconsumer fiber, EPA would recommend 20% as the low 
end of the range.
    In all five major paper and paperboard grades, there are groups of 
mills that use high levels of postconsumer and recovered fiber and 
groups of mills that primarily use wood-based fiber, sometimes in 
conjunction with low percentages of postconsumer and/or recovered 
fiber. EPA accounted for this diversity in establishing the recommended 
ranges. As a result, for some items, there is a broad range for 
postconsumer or recovered fiber content. The high end of these ranges 
generally reflects the percentages of postconsumer and recovered fiber 
used by mills that rely on this type of fiber, while the low end of the 
ranges reflects the percentages of postconsumer and recovered fiber 
used by mills that rely primarily on wood-based fiber. For many items, 
the low end of the recovered fiber range is the same percentage as the 
low end of the postconsumer fiber range. In these instances, all of the 
recovered fiber used by these mills is postconsumer fiber. This means 
that the item can contain either all postconsumer fiber (e.g., X% 
recovered fiber, all of which is postconsumer) or blends of recovered 
and postconsumer fiber (e.g., 100% recovered fiber, including Y% 
postconsumer fiber) and still fall within EPA's recommended range.
    It is EPA's intention to provide procuring agencies with the best 
and most current information available to assist them in fulfilling 
their statutory obligations under RCRA section 6002. To do this, EPA 
will monitor changes in manufacturing capacity and product content and 
the progress made by procuring agencies in purchasing paper and paper 
products with the highest percentages of postconsumer and recovered 
fiber practicable. EPA will periodically adjust the recommended content 
ranges to reflect these changes. As larger quantities of paper become 
available that contain higher levels of postconsumer and recovered 
fiber, EPA will consider increasing the content levels in its 
recommendations.
III. Other Issues Addressed in the Draft Paper Products RMAN

A. Measurement of Recovered Fiber Content

    As procuring agencies implemented the 1988 designation of paper and 
paper products, EPA received inquiries about measurement of recovered 
fiber content. Today, EPA is addressing the two principal inquiries: 
(1) Whether postconsumer and recovered fiber content should be measured 
as a [[Page 14187]] percentage of fiber weight or total sheet weight 
and (2) whether mill broke generated by a papermaking process that uses 
postconsumer or recovered fiber can be included in content 
calculations. In the draft RMAN, EPA recommends that postconsumer and 
recovered fiber content be measured as a percentage of the weight of 
the fiber in paper or a paper product. In addition, EPA wishes to 
clarify that mill broke generated by a papermaking process that uses 
postconsumer or recovered fiber can be included in content 
calculations, to the extent that the feedstock contains materials which 
would qualify as postconsumer or recovered fiber. These issues are 
discussed in detail in chapter VI.A of ``Draft Paper Products RMAN--
Supporting Analyses.''

B. Clarifications and Revisions to Definitions

    Today, EPA also addresses definitional issues raised by procuring 
agencies, mills and other interested parties since the 1988 paper 
procurement guideline was issued. Specifically, EPA has been asked (1) 
whether the definition of ``postconsumer'' includes printers' over-
runs, converters' scrap, and/or over-issue publications, (2) which 
definition of ``recovered materials'' applies to the content standards 
established in Executive Order 12873, and (3) whether a paper product 
converted from off-specification paper or obsolete inventory contains 
``recovered material.''
    EPA discusses these questions in detail in chapter VI.B of ``Draft 
Paper Products RMAN--Supporting Analyses.'' EPA's responses to the 
inquiries are as follows. (1) The definition of ``postconsumer'' 
materials in RCRA section 6002(h) does not include printers' over-runs, 
converters' scrap, and/or over-issue publications. (2) Procuring 
agencies should use the definition of ``recovered fiber'' in today's 
draft RMAN when purchasing printing and writing papers in accordance 
with the content levels established in Executive Order 12873. (3) 
Because off-specification paper and obsolete inventory that contain no 
recovered fiber do not meet the statutory definition of ``recovered 
materials,'' products made from these materials cannot be sold as 
recycled products. Materials must be repulped, not just recovered, in 
order to count toward recovered fiber content.
    In addition, several commenters suggested that EPA expand the 
definition of ``mill broke'' and narrow the definition of ``waste 
paper.'' In today's draft RMAN, EPA has expanded the mill broke 
definition to include certain materials that are generated after the 
completion of the papermaking process, including materials generated in 
finishing operations. These materials are commonly re-pulped, sold to 
others for pulping, or otherwise used in or converted to paper 
products. In addition, in developing the definition of ``recovered 
fiber'' from the 1988 ``waste paper'' definition, EPA has made three 
significant changes. First, the definition found in section A-7 of the 
draft RMAN clarifies that materials must be repulped, not just 
recovered, in order to count toward recovered fiber content. Second, 
consistent with the revised definition of ``mill broke,'' the 
definition of ``recovered fiber'' excludes materials such as obsolete 
inventory or off-specification product generated at mills after the end 
of the papermaking process. Third, EPA is clarifying that forest 
residues do not count toward ``recovered fiber'' content. See chapter 
VI.B of ``Draft Paper Products RMAN--Supporting Analyses'' for a 
detailed discussion of the draft definitions of ``mill broke'' and 
``recovered fiber.''

C. Revisions to Item Listings

    The 1988 paper procurement guideline contained 24 recommended 
minimum content levels. Today's draft RMAN contains 54 recommended 
minimum content levels. In addition to revised content recommendations, 
EPA made the following changes:
    <bullet> The printing and writing paper recommendations are no 
longer limited to ``high grade bleached'' papers.
    <bullet> The draft RMAN uses new terminology for uncoated printing 
and writing papers to better reflect the terminology currently used by 
paper merchants and mills.
    <bullet> The draft RMAN incorporates the content levels for 
uncoated printing and writing papers established by Executive Order 
12873.
    <bullet> The draft RMAN includes separate recommendations for wove 
and kraft envelopes, rather than lumping them into one envelope 
listing.
    <bullet> The draft RMAN includes recommendations for 
supercalendered paper, safety paper, coated printing papers, and 
bristols.
    <bullet> The ``doilies'' listing under the tissue products 
subcategory has been replaced with a ``tray liners'' listing in a new 
Miscellaneous Paper Products subcategory.
    <bullet> The ``Unbleached packaging'' and ``Recycled paperboard'' 
subcategories have been reorganized into a Paperboard and Packaging 
subcategory that contains recommendations for corrugated containers, 
solid fiber boxes, folding cartons, industrial paperboard, 
miscellaneous paperboard products, carrierboard, and brown papers.
    These changes are discussed in detail in ``Draft Paper Products 
RMAN--Supporting Analyses.''
D. Recyclability

    The underlying purpose of RCRA section 6002 is to use the stimulus 
of governmental purchasing to foster markets for recovered materials. 
Therefore, EPA encourages materials recovery to conserve valuable 
natural resources and to provide alternatives to landfilling and 
incineration. In order to achieve both of these objectives, EPA 
believes that procuring agencies should consider the impact of their 
purchases on their recyclable materials collection programs.
    Depending on their fiber or other characteristics, some used paper 
products containing recovered materials may have a wider variety of 
potential markets and, therefore, may be easier to recycle than others. 
Certain characteristics can lower the value of collected used paper or 
limit its reuse as a feedstock for new products. Other characteristics 
might require adjustments in an agency's recyclables collection 
program.
    For example, ``white office paper'' is a highly valued recovered 
material. Depending on its market, a ``white office paper'' collection 
program might exclude other office papers that are colored, coated, or 
contain groundwood. Thus, if a procuring agency decided to purchase a 
colored paper or a paper containing groundwood for use in office 
printers and copiers, the agency should expect that these materials 
would affect the office paper collection program if they are mixed with 
the white paper. The agency could find that the used paper is 
recyclable, but that (1) its value is reduced because it is now ``mixed 
paper'' rather than ``white office paper,'' or (2) a separate sort is 
required in order to maintain the value of the white office paper. 
Alternatively, the agency could find that the mixed paper must be 
disposed of because there is no market for it in the geographic area in 
which the agency is located.
    Yet other characteristics might make a paper product more 
recyclable or generate less material because the product is source 
reduced. For example, manufacturers may be using less packaging or 
reusable packaging, resulting in less waste.
    EPA believes that procuring agencies should consider these impacts 
prior to purchasing paper products containing recovered materials. 
Therefore, in section A-6 of today's draft RMAN, EPA [[Page 14188]] is 
recommending that procuring agencies consider the effect of their 
procurement actions on their used paper collection programs by 
assessing the impact of their decisions on their overall contribution 
to the solid waste stream.

E. Use of EPA's Recommendations

    EPA encourages state and local agencies and private sector 
purchasers to use the recommendations in today's draft RMAN when 
purchasing paper and paper products. EPA recommends that purchasers 
establish their minimum content standards at the highest percentages 
available to them that achieve their price and performance objectives, 
even if these standards are above EPA's recommended ranges.
    EPA has found that some state agencies have been using the Agency's 
1988 content recommendations as a starting point in establishing 
product labeling requirements. While EPA's recommendations were not 
intended for use as labeling standards, they can be used as an 
information source for agencies establishing recycled product labeling 
programs.
    EPA cautions persons using EPA's recommendations, whether to 
establish purchasing specifications or labeling standards, to use them 
only for the specific items for which they were intended. It is not 
appropriate to analogize from one item in a paper grade (e.g., printing 
and writing paper, tissue products, paperboard) to another item that 
could also fall within that grade, without first researching the use of 
postconsumer and recovered fiber in the other item. The two items could 
have different performance requirements necessitating different levels 
of postconsumer or recovered fiber. In addition, one item could be made 
primarily by mills that use high percentages of postconsumer or 
recovered fiber, while the other item could be made primarily by mills 
that use low or no percentages of this fiber.

IV. Request for Comments

    EPA requests comment on the content levels, definitions, and 
specifications recommendations found in today's draft RMAN. In 
addition, EPA requests comment or information on the following issues, 
which are discussed in detail in ``Draft Paper Products RMAN--
Supporting Analyses:''

Recommendations for Tissue Products

    <bullet> Do government agencies or their contractors purchase 
specialty tissue products?
    <bullet> Is postconsumer or other recovered fiber used in the 
manufacture of specialty tissue products and, if so, in what 
percentages?
    <bullet> Can manufacturers of consumer paper napkins and consumer 
facial tissues that primarily use wood-based fiber produce these items 
using a minimum of 30% and 20% postconsumer fiber, respectively? If 
not, what levels of postconsumer fiber can be used in these items?
    <bullet> Can manufacturers of consumer paper napkins and consumer 
facial tissues use a range of recovered fiber from 30-100% and 20-100%, 
respectively?
    <bullet> Are tray liners available containing percentages of 
recovered fiber, including postconsumer fiber, other than 100% 
recovered fiber, including 75% postconsumer fiber?
    <bullet> Can postconsumer fiber be used in tray liners and meet 
Food and Drug Administration (FDA) restrictions on migration of 
contaminants into food?
Recommendations for Paperboard and Packaging Products

    <bullet> Is recovered fiber other than postconsumer fiber used in 
the manufacture of corrugated containers?
    <bullet> Are corrugated containers rated at 300 psi or greater 
available containing more than 30% postconsumer fiber?
    <bullet> Will the recent increased demand for OCC affect the 
ability of manufacturers to meet the recommended content levels for 
corrugated containers?
    <bullet> Will the imminent availability of additional capacity to 
make linerboard containing 100% recovered fiber allow manufacturers to 
exceed the high end of the ranges of recommended content levels for 
corrugated containers?
    <bullet> Are there differences in the postconsumer fiber content 
currently used in coated and uncoated folding cartons?
    <bullet> Should recommendations for coated and uncoated folding 
cartons be listed separately because of the differences in their 
ability to incorporate postconsumer fiber content?
    <bullet> Will the recent increased demand for OCC affect the 
availability of folding cartons containing higher percentages of 
postconsumer fiber?
    <bullet> Should EPA recommend different content levels for the 
various industrial paperboard products, based on the specific 
application(s) for those products?
    <bullet> Should EPA recommend different postconsumer ranges for 
coated and uncoated miscellaneous paperboard products, and should there 
should be different content recommendations based on the specific 
application(s) of the products?
    <bullet> Are percentages of postconsumer fiber greater than 15% 
used in padded mailers? What percentages of recovered fiber other than 
postconsumer fiber are used in padded mailers?
    <bullet> Are there different performance characteristics of the two 
different types of carrierboard (solid unbleached sulfate and recycled 
paperboard) that would require listing them separately in the final 
RMAN?
    <bullet> Is postconsumer or other recovered fiber used in solid 
bleached sulfate paperboard products, in general, and in food grade 
items in particular?
    <bullet> Do procuring agencies purchase solid bleached sulfate 
paperboard products, either directly or indirectly? If yes, to what 
extent?
    <bullet> Should EPA recommend content levels for solid bleached 
sulfate paperboard products?

Recommendations for Printing and Writing Papers

    <bullet> Do state agency requirements for the paper used to print 
state checks differ from federal or commercial check specifications and 
if so, how? What is the availability of safety paper containing 
recovered and postconsumer fiber that meets state agency requirements?
    <bullet> What is the performance and availability of greeting card 
stock containing higher percentages of postconsumer fiber?


    Dated: March 8, 1995.
Elliott P. Laws,
Assistant Administrator, Office of Solid Waste and Emergency Response.
Appendix--Draft Paper Products Recovered Materials Advisory Notice 
Contents

Part A--Paper and Paper Products
    Section A-1--Printing and Writing Papers
    Section A-2--Newsprint
    Section A-3--Sanitary Tissue Products
    Section A-4--Paperboard and Packaging
    Section A-5--Miscellaneous Paper Products
    Section A-6--Other Recommendations for Paper and Paper Products
    Section A-7--Definitions
    Appendix A-1.--Example Calculation of Postconsumer Fiber Content 
of a Corrugated Container
Part A--Paper and Paper Products
Section A-1--Printing and Writing Papers

    Preference Program: EPA recommends that procuring agencies 
establish minimum content standards expressed as a percentage of 
recovered fiber, including a percentage of postconsumer fiber. EPA 
recommends that procuring agencies base their minimum content 
standards for printing and writing papers on the content levels 
shown in Tables A-1a, A-1b, and A-1c. Percentages are based on the 
fiber weight of the product.

                                                                        
[[Page 14189]]
  Table A-1a.--Recommended Recovered Fiber Content Levels for Uncoated  
                       Printing and Writing Papers                      
------------------------------------------------------------------------
                                                Recovered   Postconsumer
                    Item                          fiber         fiber   
                                                (percent)     (percent) 
------------------------------------------------------------------------
Reprographic Paper (e.g., mimeo and                                     
 duplicator paper, high-speed copier paper,                             
 and bond paper*)...........................         20            20   
Offset Paper (e.g., offset printing paper*,                             
 book paper*, bond paper*)..................         20            20   
Tablet Paper (e.g., office paper such as                                
 note pads, stationery* and other writing*                              
 papers)....................................         20            20   
Forms Bond (e.g., forms, computer printout                              
 paper, ledger*)............................         20            20   
Envelope Paper:                                                         
    Wove....................................         20            20   
  Kraft:                                                                
      White and colored (including manila)..      10-20         10-20   
      Unbleached............................         10            10   
Cotton Fiber Paper (e.g., cotton fiber                                  
 papers, ledger*, stationery* and matching                              
 envelopes, and other writing* papers)......         50            20   
Text & Cover Paper (e.g., cover stock, book                             
 paper*, stationery* and matching envelopes,                            
 and other writing* paper)..................         50            20   
Supercalendered.............................         10            10   
Check Safety Paper..........................         10           10    
------------------------------------------------------------------------
*These items can be made from a variety of printing and writing papers, 
  depending on the performance characteristics of the item. Some of the 
  papers are a commodity-type and some are specialty papers. EPA        
  recommends that procuring agencies determine the performance          
  characteristics required of the paper prior to establishing minimum   
  content standards. For example, bond, ledger, or stationery made from 
  cotton fiber paper or a text and cover paper have different           
  characteristics than similar items made from commodity papers.        


   Table A-1b.--Recommended Recovered Fiber Content Levels for Coated   
                       Printing and Writing Papers                      
------------------------------------------------------------------------
                                                Recovered   Postconsumer
                     Item                         fiber         fiber   
                                                (percent)     (percent) 
------------------------------------------------------------------------
Coated Printing Paper........................           10            10
Carbonless...................................           20            20
------------------------------------------------------------------------


  Table A-1c.--Recommended Recovered Fiber Content Levels for Bristols  
------------------------------------------------------------------------
                                                Recovered   Postconsumer
                    Item                          fiber         fiber   
                                                (percent)     (percent) 
------------------------------------------------------------------------
File Folders (manila and colored)...........         20               20
Dyed Filing Products........................      20-50               20
Cards (index, postal, and other, including                              
 index sheets)..............................         50               20
Pressboard Report Covers and Binders........         50               20
Tags and Tickets............................      20-50               20
------------------------------------------------------------------------

Section A-2--Newsprint
    Preference Program: EPA recommends that procuring agencies 
establish minimum content standards expressed as a percentage of 
recovered fiber, including a percentage of postconsumer fiber. EPA 
recommends that procuring agencies base their minimum content standards 
for newsprint on the content levels shown in Table A-2. Percentages are 
based on the fiber weight of the product.

  Table A-2.--Recommended Recovered Fiber Content Levels for Newsprint  
------------------------------------------------------------------------
                                                Recovered   Postconsumer
                     Item                         fiber         fiber   
                                                (percent)     (percent) 
------------------------------------------------------------------------
Newsprint....................................       40-100         40-85
------------------------------------------------------------------------

Section A-3--Tissue Products
    Preference Program: EPA recommends that procuring agencies 
establish minimum content standards expressed as a percentage of 
recovered fiber, including a percentage of postconsumer fiber. EPA 
recommends that procuring agencies base their minimum content standards 
for tissue products on the content levels shown in Table A-3. 
Percentages are based on the fiber weight of the product.

                                                                        
[[Page 14190]]
    Table A-3.--Recommended Recovered Fiber Content Levels for Tissue   
                                Products                                
------------------------------------------------------------------------
                                                Recovered   Postconsumer
                    Item                          fiber         fiber   
                                                (percent)     (percent) 
------------------------------------------------------------------------
Bathroom tissue:                                                        
    Commercial/industrial...................       100          25-60   
    Consumer................................    20-100          20-60   
Paper towels:                                                           
    Commercial/industrial...................       100          40-60   
    Consumer................................    20-100          20-60   
Paper napkins:                                                          
    Commercial/industrial...................       100          30-60   
Facial tissue:                                                          
    Commercial/industrial...................       100             30   
Industrial wipers...........................    40-100             40   
------------------------------------------------------------------------

Section A-4--Paperboard and Packaging Products
    Preference Program: EPA recommends that procuring agencies 
establish minimum content standards expressed as a percentage of 
recovered fiber, including a percentage of postconsumer fiber. EPA 
recommends that procuring agencies base their minimum content standards 
for paperboard and packaging products on the content levels shown in 
Table A-4. Percentages are based on the fiber weight of the product.

  Table A-4.--Recommended Recovered Fiber Content Levels for Paperboard 
                         and Packaging Products                         
------------------------------------------------------------------------
                                                Recovered   Postconsumer
                    Item                          fiber         fiber   
                                                (percent)     (percent) 
------------------------------------------------------------------------
Corrugated containers:*                                                 
    (<300 psi)..............................     40-50         40-50    
    (300 psi)...............................        30            30    
Solid Fiber Boxes...........................        40            40    
Folding cartons**...........................       100         40-80    
Industrial paperboard (e.g., tubes, cores,                              
 drums, and cans)...........................       100        45-100    
Miscellaneous (e.g., pad backs, covered                                 
 binders, book covers, mailing tubes,                                   
 protective packaging)......................    90-100        75-100    
Padded mailers..............................      5-15          5-15    
Carrierboard................................    25-100            15    
Brown papers (e.g., wrapping paper and bags)      5-40          5-20    
------------------------------------------------------------------------
*The recovered fiber and postconsumer fiber content is calculated from  
  the content of each component relative to the weight each contributes 
  to the total weight of the box. See Appendix I for an example.        
**The recommended content ranges are not applicable to all types of     
  paperboard used in folding cartons. Cartons made from solid bleached  
  sulfate or solid unbleached sulfate contain no or small percentages of
  postconsumer fiber, depending on the paperboard source.               

Section A-5--Miscellaneous Paper Products
    Preference Program: EPA recommends that procuring agencies 
establish minimum content standards expressed as a percentage of 
recovered fiber, including a percentage of postconsumer fiber. EPA 
recommends that procuring agencies base their minimum content standards 
for the listed paper products on the content levels shown in Table A-5. 
Percentages are based on the fiber weight of the product.

Table A-5.--Recommended Recovered Fiber Content Levels for Miscellaneous
                             Paper Products                             
------------------------------------------------------------------------
                                                Recovered   Postconsumer
                     Item                         fiber         fiber   
                                                (percent)     (percent) 
------------------------------------------------------------------------
Tray liners..................................          100            75
------------------------------------------------------------------------

Section A-6--Other Recommendations for Paper and Paper Products
    Measurement: EPA recommends that procuring agencies express their 
minimum content standards as a percentage of the fiber weight of the 
paper or paper product. EPA further recommends that procuring agencies 
specify that mill broke cannot be counted toward postconsumer or 
recovered fiber content, except that procuring agencies should permit 
mills to count mill broke generated in a papermaking process using 
postconsumer and/or recovered fiber as feedstock toward ``postconsumer 
fiber'' or ``recovered fiber'' content, to the extent that the 
feedstock contained these materials. In other words, if a mill uses 
less than 100% postconsumer or recovered fiber, only a proportional 
amount of broke can be counted towards postconsumer or recovered fiber 
content.
    Specifications: EPA recommends that procuring agencies review 
specifications provisions pertaining to performance and aesthetics and 
revise provisions that can impede use of postconsumer and recovered 
fiber, unless such provisions are related to reasonable performance 
standards. Agencies should determine whether performance provisions are 
[[Page 14191]] unnecessarily stringent for a particular end use. 
Agencies also should revise aesthetics provisions--such as brightness, 
dirt count, or shade matching--if appropriate, consistent with the 
agencies' performance requirements, in order to allow for a higher use 
of postconsumer and recovered fiber.
    EPA recommends that procuring agencies document determinations that 
paper products containing postconsumer and recovered fiber will not 
meet the agencies' reasonable performance standards. Any determination 
should be based on technical performance information related to a 
specific item, not a grade of paper or type of product.
    EPA recommends that procuring agencies watch for changes in the use 
of postconsumer and recovered fiber in paper and paper products. When a 
paper or a paper product containing postconsumer and recovered fiber is 
produced in types and grades not previously available, at a competitive 
price, procuring agencies should either revise specifications to allow 
the use of such type or grade, or develop new specifications for such 
type or grade, consistent with the agencies' performance requirements.
    Recyclability: EPA recommends that procuring agencies consider the 
effect of a procurement of a paper product containing recovered and 
postconsumer fiber on their paper collection programs by assessing the 
impact of their decision on their overall contribution to the solid 
waste stream.
Section A-7--Definitions
    For purposes of the recommendations contained in this Part, terms 
shall have the following meanings:
    ``Postconsumer fiber'' means:
    (1) Paper, paperboard, and fibrous wastes from retail stores, 
office buildings, homes, and so forth, after they have passed through 
their end-usage as a consumer item, including: used corrugated boxes; 
old newspapers; old magazines; mixed waste paper; tabulating cards; and 
used cordage; and
    (2) All paper, paperboard, and fibrous wastes that enter and are 
collected from municipal solid waste.
    Postconsumer fiber does not include fiber derived from printers' 
over-runs, converters' scrap, and over-issue publications.
    ``Recovered fiber'' ``Recovered fiber'' means the following 
materials:
    (1) Postconsumer fiber such as:
    (A) Paper, paperboard, and fibrous wastes from retail stores, 
office buildings, homes, and so forth, after they have passed through 
their end-usage as a consumer item, including: used corrugated boxes; 
old newspapers; old magazines; mixed waste paper; tabulating cards; and 
used cordage; and
    (B) All paper, paperboard, and fibrous wastes that enter and are 
collected from municipal solid waste.
    (2) Fiber derived from printing and converting operations, 
excluding any paper generated in a paper mill prior to the completion 
of the paper manufacturing process. ``Recovered fiber'' includes 
repulped fiber from dry paper scrap generated after the paper machine 
reel has been rewound and/or cut into smaller rolls or rough sheets, 
including but not limited to:
    (A) Envelope cuttings, finishing trim, bindery trimmings, and other 
paper and paperboard resulting from printing, cutting, forming, and 
other converting operations; and bag, box, and carton manufacturing 
wastes; and
    (B) Repulped finished paper and paperboard from obsolete 
inventories of paper merchants, wholesalers, dealers, printers, 
converters, or consumers.
    ``Mill broke'' means any paper or paperboard scrap generated in a 
mill prior to completion of the papermaking process and/or specific 
materials generated during finishing operations that occur after the 
end of the papermaking process. It includes the following materials, 
whether generated prior to or after the completion of the papermaking 
process: paper machine trim, offgrade or off-specification rolls (also 
referred to as rejected, unused stock), culls, stub rolls, side rolls, 
end rolls, and obsolete inventories of paper and paperboard. Although 
mill broke is occasionally sold from one mill to another, such a sale 
does not alter its classification or exclusion from the definition of 
``recovered fiber.''
Appendix A-1.--Example Calculation of Postconsumer Fiber Content of a 
Corrugated Container

    C-flute has a take-up factor of approximately 1.44, which means 
that for each one foot of combined corrugated board there is 1.44 feet 
of fluted medium. This factor is used to calculate the weight of 
paperboard in a given area of combined corrugated board, from which the 
basis weight of the board is derived. Each linerboard contributes 35% 
of the basis weight (42/121.4). The medium contributes 30% of the total 
basis weight (37.4/121.4).

------------------------------------------------------------------------
                                                           Board basis  
                                                        weight (lbs/MSF)
------------------------------------------------------------------------
Linerboard #1.........................................    42 x 1.00=42.0
Medium................................................    26 x 1.44=37.4
Linerboard #2.........................................    42 x 1.00=42.0
                                                       -----------------
Combined Board Weight.................................     121.4 lbs/MSF
------------------------------------------------------------------------

    If the linerboard used has 20% postconsumer fiber and the medium 
has 80% postconsumer fiber, the resulting total postconsumer fiber 
content of the containerboard is as follows:

Linerboard: .35 x .20=.07 x 2=.14 (or 14%)
Medium: .30 x .80=.24 (or 24%)
Total postconsumer fiber: .14+.24=.38 (or 38%)

[FR Doc. 95-6407 Filed 3-14-95; 8:45 am]
BILLING CODE 6560-50-P

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