STATEMENT OF
DEBRA YAP
DIRECTOR
ENVIRONMENTAL STRATEGIES
AND
SAFETY DIVISION
OFFICE OF BUSINESS OPERATIONS
PUBLIC BUILDINGS SERVICE
U.S. GENERAL SERVICES ADMINISTRATION
BEFORE THE
COMMITTEE ON ENVIRONMENT AND PUBLIC
WORKS
UNITED STATES SENATE
JULY 11, 2002
Mr.
Chairman and Members of the Committee, I am Debra Yap, Director of the
Environmental Strategies and Safety Division in the General Services
Administration=s (GSA=s) Public
Buildings Service. I appreciate the
opportunity to discuss what the Federal Government is doing to ensure the
Federal procurement of recycled-content products, and what can be done to
improve these efforts. With me is
Matthew Urnezis from the Federal Supply Service, Pacific Rim Region.
Section
6002 of the Resource Conservation and Recovery Act (RCRA) established the
Federal buy-recycled program. Executive
Order (EO) 13101, “Greening
the Government Through Waste Prevention, Recycling, and Federal Acquisition” expands, strengthens, and promotes
the Federal Government's commitment to recycling, waste prevention and the
acquisition of recycled content items, and environmentally preferable products,
including biobased. The Environmental
Protection Agency (EPA) designates products that should be purchased with
recycled content. EPA identifies the
products in the Comprehensive Procurement Guidelines (CPG) and provides
recommendations for purchasing the products in Recovered Materials Advisory
Notices (RMANs). The recommendations
primarily pertain to the levels of recycled materials that the designated
products should contain. For the
purposes of this discussion, I will refer to products that meet the RMAN
recommendations as CPG-compliant products.
Executive Order 13101 also established the Federal Environmental
Executive who oversees implementation of Federal purchase of these
products. Each year, the top six
agencies, in terms of Federal procurement expenditures, are required to report
CPG purchases to the Office of the Federal Environmental Executive (OFEE) and
the Office of Federal Procurement Policy (OFPP). The Department of Defense, Department of Energy, National
Aeronautics and Space Administration, Department of Veterans Affairs,
Department of Transportation, and the General Services Administration were the
agencies reporting in the March 2002 report on implementation for Fiscal Years
1998 and 1999. These agencies account
for more than 85% of total Federal procurement expenditures. Final numbers for 1999 indicate that of the
$774 million spent on EPA designated products, $492 million, or 64%, was spent
on CPG-compliant products.
Environmental
stewardship is the responsibility of each Federal agency and GSA takes this
role seriously. This commitment is
reflected in our strategic plan, performance measures, and our active
Affirmative Procurement Program. GSA
has the mission of helping other federal agencies better serve the public by
offering, at best value, superior workplaces, expert solutions, acquisition
services, and management policies. I
would like to relate to you how GSA has attempted to leverage its unique
mission to promote the Federal procurement of recycled-content products. We have sought to encourage and promote
environmental stewardship both internally and governmentwide and have relied on
our relationships with the Office of the Federal Environmental Executive
(OFEE), the White House Task Force on Waste Prevention and Recycling, and the
Office of Federal Procurement Policy (OFPP).
While I will discuss the efforts of the GSA=s Public
Buildings Service (PBS), Federal Supply Service (FSS), and the Office of
Governmentwide Policy (OGP) separately, our efforts have been a coordinated
response to promote Federal procurement of recycled-content products.
The Public
Buildings Service (PBS)
The PBS
mission is to deliver a superior workplace to the Federal worker and at the
same time superior value to the American taxpayer. As the largest commercial-style real estate organization in the
nation, PBS provides workspace for a million Federal employees nationwide, and
real estate and related services to more than 100 Federal organizations. It controls approximately 40% of the Federal
Government=s office
space. PBS constructs, leases, manages,
maintains, and protects office buildings, Federal court-houses, border
stations, laboratories, data processing centers, warehouses, and child care
centers. We consider three options to
meet our client agency requirements for quality work environments: construction
and acquisition of new facilities; repair and alteration of existing
facilities; or leasing space from the private sector. Leveraging our role as the Federal Government=s landlord,
PBS was able to integrate provisions into its leasing agreements for energy
efficiency and sustainable design.
Included is a mandatory provision addressing recycled-content products
referencing the Resource Conservation and Recovery Act, Section 6002, and the
EPA=s CPG
program. In its role as a Property
Manager for Federal buildings, PBS includes a clause requiring the use of
recycled-content tissue paper in its janitorial services contracts. But PBS also provides design, acquisition,
and construction of major federal capital projects such as courthouses. The Design Excellence Program Guide includes
evaluation of an architect/engineer=s experience in energy conservation,
pollution prevention, waste reduction, and the use of recovered materials as
selection criteria. PBS has also
formally incorporated the principles of sustainable design into its Facilities
Standards for its building projects.
This includes encouraging the use of recycled-content products and a
list of the construction products from EPA=s Comprehensive Procurement
Guidelines. My division and the GSA
Environmental Executive continue to work closely with the Federal Environmental
Executive, John Howard, and the White House Task Force on Waste Prevention and
Recycling to ensure we are maximizing opportunities within PBS to promote the
use of recycled-content products.
Federal
Supply Service (FSS)
The Federal
Supply Service (FSS) leverages the purchasing power of the Federal Government
to provide Federal agencies with best value in commercial products and
services. FSS programs provide
customers with economical, efficient and effective service delivery, saving
agencies time and administrative costs.
Through
their supply system, FSS provides customers with access to more than 4 million
professional services and commercial products.
The business of FSS is entirely dependent on customer revenues. Because its services are non-mandatory, FSS
must strive to maintain customer loyalty.
To assist
customer agencies in their efforts to purchase recycled-content products, FSS
has developed a number of useful tools.
The Environmental Products and Services Guide, available at fss.gsa.gov/enviro, identifies CPG-compliant products using a “CPG”
icon. It should be noted that this icon
was homegrown as there is no standard logo or labeling practice. GSA developed the icon to make it easier,
faster, and less costly for customer agencies to identify CPG-compliant
products. This guide also provides the
amount of recycled content in the product.
Additionally, GSA=s Customer Supply Catalog identifies
environmental attributes to include the specific percentage of recycled
content.
The FSS
website I just referenced also contains a wealth of environmental information,
including applicable laws, regulations, Executive orders, and links to other
agency sites. The CPG items are
identified and a person using the site can click on a specific item and be
connected to GSA Advantage! or the Schedules E-Library.
Using its
online ordering system known as GSA Advantage!, FSS assists agencies looking
for CPG-compliant products by adding a “CPG” icon to identify stock and special order
items that are compliant. Stock and
special order items include a wide range of paper products, including such
items as copier and other office use paper, folders, binders, envelopes, boxes,
containers and other packing materials, and a variety of kitchen and breakroom
supplies. Some of the non-paper items
include desktop accessories, pens, pencils, binders, award plaques, carpeting
and even paint. Working together, FSS, the GSA Environmental
Executive, and the GSA Office of Governmentwide Policy, Office of Acquisition
Policy, developed a clause change that will require new and renewing schedule
holders to not only identify recycled-content products, but also CPG-compliant
products at proposal submission. This
rulemaking is nearing final publication in the Federal Register at this
time. Once implemented, this will
greatly facilitate an agency=s search for CPG-compliant
products.
Finally, FSS has been instrumental for the yearly report to OFEE and
OFPP by reporting expenditures for other agencies that order certain products
through FSS, most notably, CPG-compliant copier paper.
GSA=s Office of
Governmentwide Policy (OGP) is responsible for carrying out the policy and
regulatory functions assigned to GSA by Congress, and exercises GSA=s authority
as one of the central management agencies of the Federal Government. OGP brings interagency groups together to
collaborate on developing the policies and guidelines for the implementation of
Federal laws, executive orders and other Executive Branch guidance. Under OGP, the Office of Acquisition Policy
develops regulations and policies for the Federal acquisition community that
enable them to acquire goods and services at best value. Along with NASA and DoD, the GSA Senior
Procurement Executive is one of three signatories to the Federal Acquisition
Regulation (FAR) and sits on the FAR Council as well. The Office of Acquisition Policy chairs the Civilian Agency
Acquisition Council (CAAC) that allows for interagency collaboration on
acquisition regulations. Together with
NASA, DoD, and the CAAC, the Office of Acquisition Policy has developed
regulatory guidance that specifically address requirements for and purchasing
of recycled-content products from the earliest stages of requirements analysis,
market research, and acquisition planning, through source selection and
contract administration. A FAR
solicitation provision and contract clause were added to inform suppliers of products
and services alike of their responsibility to use recycled-content products,
specifically, those that are CPG-compliant.
The Office of Acquisition Policy also works closely with the Office of
Federal Environmental Executive, the White House Task Force on Waste Prevention
and Recycling, and OFPP to refine the coverage in the FAR and is, in fact,
working on some refinements through a rulemaking at this time.
This office
also plays another important role that helps to close the circle on GSA's coordinated
approach to promoting federal procurement of recycled-content products. GSA, under OFPP direction, manages the
Federal Procurement Data
System
(FPDS). FPDS captures contract award
information for the entire federal
government
on awards over $25,000.00. GSA also
chairs the interagency working
group that
develops new data elements for tracking new requirements for OFPP
approval. In October 2001, the committee developed a
new data element capturing
information on CPG-compliant contracts. A reporting subgroup of the White House Task Force on Waste
Prevention and Recycling has been working to refine the new data element with
the purpose of easing manual Resource Conservation and Recovery Act (RCRA)
reporting by agencies and to provide a basis for measuring CPG-compliant
purchasing. GSA will participate with
the Task Force in these subgroup meetings.
Reporting
and measuring continue to challenge this program governmentwide.
While we
applaud efforts to refine the FPDS data element, dollar or volume
amounts of
individual CPG items within an individual contract cannot be
captured. Also, it is important
to understand that purchases under $25,000.00 are not required to be reported
through FPDS. The reporting subgroup of
the White House Task Force on Recycling and Waste Prevention continues to
address these reporting challenges and make recommendations for improvement.
The Task Force and GSA will continue to work with agencies to stress the
importance of agencies' commitment to environmental stewardship through
acquisition planning, contract development and aggressive Affirmative
Procurement Programs. GSA's
Environmental Executive and Senior Procurement Executive have partnered to
maintain the momentum of the GSA Affirmative Procurement Program and to monitor
its progress.
While some
interesting research is being conducted regarding the tracking of credit card
purchases, we do not currently have the ability to do this. Compounding the credit card challenge, is
that a card holder cannot identify CPG-compliant products at retail
establishments as there is no program for labeling products under this
program. Without such a labeling
program, we must focus our attention on education for credit card purchasers
and making it easy to purchase CPG-compliant products. GSA is trying to help through its continuing
efforts to identify compliant products through FSS.
We believe that a periodic review of the EPA list of CPG items would
help to ensure that suppliers of such products are available and responsive and
new entrants into the market are included on the supplier lists. We understand that EPA is reviewing their
supplier list and we recommend that this be done periodically.
We must be
vigilant regarding our education and guidance and this should include the
contractor community. Without a
labeling program, suppliers need to understand how to accurately identify a
product=s
environmental attributes.
In closing,
I would like to offer a copy of an electronic survey we used this year in our
agency to identify strengths and weaknesses in our Affirmative Procurement
Program. We will use the results of
this survey as a basis for a plan of continuous improvement. Perhaps other agencies might find it useful
and can modify it for their use. We
will provide a copy of it to the Office of Federal Environmental
Executive.
Mr.
Chairman, this concludes my formal statement.
We would be glad to answer any questions that you or Members of the
Committee may have about our efforts to promote federal procurement of
recycled-content products.