STATEMENT OF DOBBINS CALLAHAN ON BEHALF OF
THE BUY RECYCLED BUSINESS ALLIANCE BEFORE A HEARING OF THE UNITED STATES SENATE
COMMITTEE ON ENVIRONMENT AND PUBLIC WORKS ON FEDERAL PROCUREMENT OF RECYCLED
PRODUCTS
July 11, 2002
Thank you, Senator Jeffords, Senator Smith
and the full committee for the opportunity to speak today.
I serve as chair of the Buy Recycled Business
Alliance (BRBA), an organization within the National Recycling Coalition
dedicated to bringing purchasers and vendors of recycled content together in
order to advance the purchase of recycled content products. My company, C&A
Floorcoverings Inc, has been involved with BRBA for several years. We manufacture and sell high performance
carpet products, available in a wide range of colors and styles and available
with significant levels of recycled content.
All of our products are also 100% recyclable.
Before I begin, I also want to commend the
work of the ad hoc coalition – National Recycling Coalition, Steel Recycling
Center, American Plastics Council, Recycled Paperboard Alliance, American Zinc
Association, Consumer’s Choice Council – for recognizing the importance of
green procurement and recycling, and working together to focus congressional
attention on the GAO report.
The two aspects of Federal purchasing of
recycled content products with which I am most familiar are, first, EPA's
issuance of Comprehensive Procurement Guidelines (CPG's) and the Recovered Material Advisory Notices (RMANs) as prescribed by the Resource
Conservation and Recovery Act 6002 (RCRA); and second, the General Services
Administration's procurement process through the use of contracts with
vendors. I am particularly familiar
with issues involving Federal procurement of products that represent new and
innovative technology, as would be the case of course with recycled content
products.
Through my company's efforts to bring
recycled content products into the Federal marketplace, I have personally been
involved with the process of having products "designated" through the
US EPA. "Designation" means
that EPA has studied a product category, found suitable products within the
particular category to be available with meaningful recycled content, and has
determined the practical levels of recycled content that are commercially
available to the Federal marketplace. Once products have been
"designated" by EPA, the purchase of those products with recycled
content is essentially mandated for Federal purchasers.
While I have the greatest respect for the
people at EPA who are doing this work, and are impressed by their commitment,
dedication, and hard work, intrinsic to the designation process are two
obstacles to making innovative products available to Federal purchasers. The first obstacle in the Comprehensive
Procurement Guideline process is that before "designation" can occur,
there must be competitive products available offering comparable levels of
recycled content. This is both a
disincentive for a company to be first in the market place and also delays the
imprimatur to purchase recycled products that EPA designation can provide.
I understand, and support, the wisdom of not
mandating a product when there is only one supplier. Even the best of companies
could be tempted under those circumstances.
But the inability to designate a product because it is too advanced to
have direct competition means that these products cannot be promoted in the
Federal market place and are not given the benefit of the progressive
procurement efforts conducted by the Office of the Federal Environmental
Executive (OFEE). Until there is formal
recognition under EPA’s CPG process, OFEE is somewhat limited in what it can do
to promote purchases of a product regardless of the quality of the product or
the recycled content.
My suggestion is that there be another
category in the CPG / RMAN process. A product could be "recognized"
to meet the intent of Executive Order 13101 and RCRA 6002, but not be
designated because of lack of competition.
This recognition would allow Federal agencies to use procurement of
these products to meet 13101 goals, but procurement of these products would not
be mandated. Currently, a recycled
content product can be available with high levels of recycled content and suitable
performance characteristics but will not be designated by EPA, and cannot be
used by Federal purchasers to meet recycled content purchasing goals, simply
because there is no similar competitive product with recycled content. I'll
address pricing concerns in a moment.
The other obstacle to having recycled content
products promoted to Federal purchasers is the sheer amount of time it takes to
go through the designation process. It literally can take years to go through
the evaluation process, the public comment period, the review period, and the
designation. I want to reiterate that
the people I have worked with at EPA are, without exception, hard working,
dedicated and committed people with a willingness to do the right things. This is not an issue of the quality of
people. To the contrary, faced with the
Herculean challenges they face, I think they have had remarkable success. The first problem is that they simply don't
have the resources available, in my opinion, to accomplish their task in a timely
fashion. The second problem lies within
industry itself. EPA has a very open
process of inviting industry to participate from the inception of the review of
a product category through its final designation. Along with the opportunity to
influence regulations that this affords to industry should come an obligation
to be responsible in the process. My experience is not encouraging in this
area. Unfortunately, the research and designation process can be manipulated by
less than complete information. Obviously, it is in the best interest of a manufacturer
to appear to be complying with the intent of the proposed CPG designation. It
is apparent that in this process some industry members have not been as
forthright as the process is designed to encourage. If EPA had additional
resources it would be able to at least spot-check some of industry’s claims in
greater detail. EPA could also require companies submitting information to
state they are in compliance with the FTC’s Guide to Environmental Marketing
Claims.
The other aspect of Federal procurement that
I would like to address is the General Services Administration and particularly
the National Furniture Center in Arlington.
GSA changed its procurement process several years ago from a
"single award" schedule or contact to a "multiple award schedule"
(MAS). Rather than vendors submitting products for bids in narrowly defined
product categories, and having only one vendor for each contract, GSA now
defines categories broadly, assigns specific criteria for a product to be
included in the category, and then negotiates pricing with the vendor rather
than obtaining competitive sealed bids. A means of negotiation is for the
prospective vendor to document to GSA that its is offering the product at the
lowest price it offers the same product to its best customers in the commercial
market place. GSA therefore obtains for
its customers the best price that competitive forces have established for the
product. Because GSA uses the best
competitive price, the need for sealed bids is eliminated and the Federal
customers are still assured of "best value" purchases. While there are many advantages to this
approach, the advantage that is significant to this issue is that GSA can and
has placed recycled content products on the GSA contract, even if there is no
other comparable products available with recycled content, and Federal
purchasers can purchase these products without having to further competitively
bid them. The Federal Acquisition Regulations recognize this process as
establishing best value. If EPA can overcome
the barrier of not recognizing products, which have no competition, GSA offers
a vehicle to get these products to the Federal marketplace without the agencies
having to be concerned with finding competitive recycled content products and
with full assurance that pricing is at best value levels.
GSA is effective through other efforts as
well. GSA nationally has a program,
"Planet GSA," specifically structured to bring Federal agencies into
contact with those companies that are providing products meeting Federal
agencies needs for environmentally preferable products. These meetings,
conducted periodically at strategic GSA locations across the country, provide
the perfect venue for Federal customers who are interested in "buying
green" to meet vendors with the best products for their needs. My
experience with Planet GSA shows they have been exceptionally well done and are
successful.
The next two programs are specific to the
National Furniture Center. Through the
NFC, the companies with the very best efforts in environmental initiatives are
recognized with the "Evergreen Award." Not only does this award provide an incentive for vendors to
offer more recycled content products; it also gives those companies who have
won the award credibility and recognition with Federal purchasers, thereby
encouraging the purchase of recycled content products. Also, several years ago, the Furniture
Center established its "Quality Partnership Council." The purpose and
result of the QPC is to bring vendors and Federal purchasers together to
develop more effective and efficient means of procuring products through the
Multiple Award Schedules. I was a
participant of the QPC meetings for several years and saw as an observer how
very effective this organization was in streamlining federal purchasing;
including purchasing recycled content products. The QPC meetings have all the
appearance of the most aggressive corporate board meetings, except they are run
more efficiently. My suggestion is that
all Procurement Centers expedite adopting the QPC concept. It is a model of
efficiency and of industry and government working cooperatively for everyone's
benefit.
The theme I have tried to develop is that
most of the mechanisms are in place for much more effective purchasing of recycled
content products by Federal purchasers. With adequate resources, a resolution
of the "competitive" requirement, and a means to hold industry more
accountable for comments made regarding proposed CPG's, EPA can be effective in
designating more products quickly. GSA,
through its Multiple Award Schedule has the vehicle to take these products to
the Federal marketplace, and innovative programs like "Planet GSA, the
Evergreen Award, and The National Furniture Center's Quality Partnership
Council can reinforce the good work being done by the OFEE in its efforts at
affirmative procurement.
Thank you.