STATEMENT
OF CLIFFORD P. CASE ON BEHALF OF THE NATIONAL RECYCLING COALITION, INC. BEFORE
A HEARING OF THE UNITED STATES SENATE COMMITTEE ON ENVIRONMENT AND PUBLIC WORKS
ON FEDERAL PROCUREMENT OF RECYCLED PRODUCTS
July 11,
2002
I am grateful to Senator Jeffords, Senator Smith and the full Committee for the opportunity to speak today on behalf of the National Recycling Coalition about the importance of federal procurement of recycled products. Recycling makes environmental sense and economic sense; it is enduringly popular with citizens of all ages and backgrounds throughout the nation; it is thoroughly bipartisan; and it deserves the full support of all agencies of the federal government. But while much has been accomplished since the first Earth Day focused public and governmental attention on recycling, much, much more remains to be done.
I am an
attorney, and co-direct the Environmental Practice Group at my firm, Carter,
Ledyard & Milburn in New York City and Washington, DC. For over 30 years I
have maintained a significant interest in recycling and tried to do what I
could, as a lawyer, to make it grow, including founding the National Recycling
Coalition in 1978 to unite the diverse groups who wish to see recycling
succeed. The Coalition has 5,000 members representing all aspects of recycling:
volunteer recyclers, state and local government officials, businesses
collecting and sorting materials for recycling and manufacturers of recycled
products.
It is
fitting that we speak here of federal procurement of recycled products, because
it was the passage of the Resource Conservation and Recovery Act and its
signature by President Ford in October, 1976 that was a major catalyst for the
organization of the National Recycling Coalition. Recycling has always been
recognized as a prime method of conserving resources, and consequently, RCRA
contained an important provision, Section 6002, that for the first time
required that the federal government=s purchasing power be used to support
recycling. An important reason for the formation of the National Recycling
Coalition was to work for the implementation of Section 6002 and later efforts
to use federal procurement to strengthen the markets for recovered materials
and thus make more recycling possible.
Have we
done enough in the past quarter century to comply with Section 6002 and the
executive orders subsequently issued by the first President Bush and by
President Clinton on procurement of environmentally preferable products? Unfortunately,
no. Things started off on the wrong foot when the Environmental Protection
Agency failed to issue guidelines for the purchase of recycled products by
deadlines added to Section 6002 by Congress in the face of agency inaction,
forcing the National Recycling Coalition and Environmental Defense to sue EPA,
successfully, for an order directing guideline issuance.
Since that
time some progress has been made, but as documented by the General Accounting
Office=s June 2001
report, AFederal
Procurement: Better Guidance and Monitoring Needed to Assess Purchases of
Environmentally Friendly Products,@ by no means has that progress been
sufficient. There have been limited successes and isolated achievements, but
anecdotal accomplishments are not enough.
In general,
federal agency procurement does not take advantage of the broad range of
high-quality recycled products available in the marketplace today. As the GAO report makes clear, most agencies
do not know what recycled products they are purchasing, and government buyers
lack knowledge as to what products are available or how to get them. Purchasing
data is fragmentary, in most cases based only on estimates, and incomplete.
Many agencies report little or no information, and important components of many
agencies (for example, in the case of the Department of Defense, the Army, the
Navy and the Air Force) provide little or no information.
Moreover,
the programs that do exist cover direct agency purchases only. I know of no
instance in which agencies make any effort whatsoever to assure compliance with
Section 6002=s
affirmative purchasing requirements by their contractors and grantees. This is
of vital importance because purchases by contractors and grantees using federal
funds are often much more significant than those of the agencies themselves:
GAO notes that in fiscal year 1999, 85% of the total outlays of the Department of
Housing and Urban Development were for grants to states and local governments,
and 69% of the total outlays of the Department of Transportation were for such
grants. It is safe to say that none of those grantees knew that by law, they
were required to give a preference in purchasing to recycled products.
A review of
agency responses to the GAO report demonstrates that while most agencies give
lip service to the importance and desirability of recycling, they do not take
responsibility to make procurement of recycled products work, either for
themselves or for their contractors and grantees. Moreover, these agencies make
no effort to justify their failures to perform. While noting that training of
buyers in procurement of environmentally preferable products is needed, the
agencies show no indication of any attempt to provide such training, either on
their own or in conjunction with others, despite being charged by Congress with
the duty of affirmative procurement of recycled products. Such blatant disregard
of the law should no longer be condoned.
This
bureaucratic foot-dragging, prolonged for over two decades, is immensely
frustrating to those of us who have been advocates for more recycling over the
years, but it is also important to society as a whole, because the ability to
recycle more, and thus achieve the benefits of conservation of resources,
reduction of pollution and savings in energy B all important to our national
security as well as to the environment B depends directly on strong markets
for recovered materials, and these markets depend directly in turn on strong
markets for the recycled products made from those materials. Every time a
federal agency fails to buy a product made from recovered paper, plastic or
metal, it condemns that material to the landfill instead of to a new,
productive rebirth as a recycled product. Every time a federal agency fails to
require its contractor or grantee to use construction products made from
recovered materials, it ensures that those materials will be thrown away and
not recovered.
This is not
by any means an academic issue. This past July 1, in my home of New York City,
the Department of Sanitation stopped collecting recovered glass and plastic
bottles and paperboard drink containers. The reason asserted by the City
administration? A lack of markets for these recovered materials. One may be
somewhat skeptical of the City=s reasoning here B I know I
am B but the
fact remains that a number of municipalities have recently cited a lack of
markets as a reason for cut-backs in recycling collection efforts. Furthermore,
data from the Environmental Protection Agency show that after a decade of
significant growth, the nation=s recycling rate leveled off in the
late 1990=s: waste
generation began to increase faster than recycling. Moreover, many of the
products entering the waste stream today, in particular the ever-growing flood
of obsolete electronic equipment, are particularly tough to recycle, and
require even more effort to achieve success in recycling than the simpler waste
materials of the past.
Given this
background, it is especially infuriating to encounter the bland assertions of
procurement bureaucrats that purchasing recycled is too difficult to do, or
requires more information that is not easily available, or more training that
someone else needs to provide, and so on ad finitum.
It is
evident that we need to do more than we have been to break down the barriers to
greater success in government programs to buy recycled. Most importantly, every
responsible procurement official needs to make buying recycled an important
part of his or her duties, and every government contractor and grantee needs to
receive clear instructions on its obligation to recycle. If these duties and
obligations are not fulfilled, definite sanctions should be imposed,
proportionate to the seriousness of the offense. For a procurement official, a
failure to buy recycled should be recognized as a failure to perform his or her
duties of office. For a contractor or grantee, a failure to buy recycled should
be recognized as a failure to perform the terms of its contract or grant
agreement.
Several
promising initiatives have been proposed to increase the success of the
government=s
procurement programs for recycled products. The National Recycling Coalition
has not taken an official position on these initiatives, but we hope this
Committee will consider some or all of them. They include: codification of the
existing executive orders on procurement to, among other things, give statutory
sanction to principles of design for recyclability, life-cycle costing and
reliance on environmentally preferable products; requiring major improvements
in the woefully inadequate information collection system for purchasing
recycled products, so that year-over-year progress -- or its absence -- can be
more clearly tracked; providing for mandatory training programs for government
buyers, to take the mystery out of buying recycled; and a Congressional award
program to recognize those dedicated public servants who, despite all the
current obstacles, have nevertheless managed to buy recycled products
successfully.
Coupled
with these new initiatives must, however, be a continuing interest in this
subject on the part of Congress, because no legislation is self-executing and
careful oversight is essential. If nothing else, the history of Section 6002 of
the Resource Conservation and Recovery Act since 1976 teaches us that!
We commend
this Committee for its interest in government procurement of recycled products.
As we know you agree, the benefits of recycling are great and have been
repeatedly documented. But we cannot achieve these benefits unless we take
buying recycled seriously. The government represents us all and should be the
leader, not the laggard, in doing just that. The National Recycling Coalition
looks forward to working with you over the coming months to make sure that this
vision of true government leadership becomes reality.
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