I N T R O D U C T I O N Volume I of the Decision Maker's Guide to Solid Waste Management cites estimates by the U.S. Environmental Protection Agency (USEPA) that 160 million tons of municipal solid waste were generated in the United States in 1989. Since Volume I was published, the estimated annual generation rate has risen to nearly 195.7 million tons (see Table I-1), and it appears that America's propensity for producing waste is not diminishing. Volume I described a better way of dealing with the growing municipal solid waste problem. That solution, called integrated solid waste management (see Figure I-1), involves a combination of techniques and programs to manage the municipal waste stream. Using the integrated approach, a community can tailor its own unique system to prevent and handle various components of the waste stream in the most economical and environmentally sound manner. In Volume I, readers were introduced to the concept of developing a community integrated waste management system. Volume II expands the information provided in Volume I. It offers decision makers more detailed information so they can help communities successfully implement integrated solid waste management programs. This volume will assist decision makers and technical professionals who must understand the key technical, legal, economic, political, and social issues that must be addressed to develop effective waste management programs. Volume II focuses on municipal solid waste management issues. It does not address management of other important waste types, including hazardous waste, municipal sewage sludge, or agricultural residues. EMERGING ISSUES Waste management practices in the United States are continually changing. Public and private activities at the local, state, federal, and even international levels are having major impacts on community waste management programs. Following are just a few examples of emerging issues that will greatly affect waste management decision making. Technical requirements for siting and operating waste management facilities are becoming more stringent. Federal and state laws require that landfills have engineered safeguards such as liners, leachate collection systems, gas management, and environmental monitoring. New laws require that waste-to-energy facilities have special technology for capturing emissions and that ash residues be specially managed. Standards for work place safety and working conditions are likely for waste management facilities such as recycling centers and composting operations. These new technical requirements will probably increase the cost and the public scrutiny of proposed methods for managing waste. New state and federal guidelines requiring that governments procure products made from recycled materials are stimulating development of recycling markets. Procurement laws should spur the development of new capacity for recycling a variety of products, especially paper. Market development is expected to increase worldwide, since the sale of recyclable material constitutes a major international market, especially for communities on America's east and west coasts. In contrast, the true cost of alternative waste collection, processing and disposal options is not yet well understood by most communities and citizens. As these costs become clearer, source reduction and recycling efforts are likely to be more attractive options. Establishing and operating successful solid waste management programs requires the existence of steady markets for re-cycled products, compost, and the energy produced from WTE plants. This in turn may require increasing the demand for such products. Communities may also need to consider looking for alternative funding sources to support source reduction, recycling, and other programs. How much voters and waste generators are willing to pay for integrated waste management programs has not yet been widely determined. Despite major uncertainities facing decision makers in the United States, there will be a continuing need to address solid waste management issues in a timely manner. Decision makers and technical professionals considering how best to manage community waste must be aware of changing conditions and emerging issues, but they should not be deterred from developing waste management projects. This volume of Decision Makers' Guide will help these persons understand the issues and develop successful integrated waste management programs. Table I-1 Municipal Solid Waste Generated in 1990 (in millions of tons) 6.7%* Glass 13.2 6.7% Food scraps 13.2 8.3% Plastics 16.2 8.3% Metals 16.2 14.6% Rubber, leather, textiles, wood 28.6 17.9% Yard trimmings 35.0 37.5% Paper and paperboard 73.3 TOTAL WEIGHT: 195.7 *Percent of total waste generated. Source: USEPA, Characterization of Municipal Solid Waste in the United States: 1992 Update Figure I-1 Hierarchy of Integrated Solid Waste Management Source Reduction Source reduction tops the hierarchy because of its potential to reduce system costs, prevent pollution, consume resources, and increase efficiency. Source reduction is discussed in more detail in Chapter 5. Source reduction programs are designed to reduce both the toxic constituents in products and quantities of waste generated. Source reduction is a front-end waste avoidance approach that includes strategies such as designing and manufacturing products and packaging with minimum volume and toxic content and with longer useful life. Businesses, institutions, and citizens may also practice source reduction through selective buying and the reuse of products and materials. Recycling Recycling (including composting) is the second step in the hierarchy. It involves collecting materials, reprocessing/ remanufacturing, and using the resulting products. Recycling and composting can reduce the depletion of landfill space, save energy and natural resources, provide useful products, and provide economic benefits. These options are discussed in more detail in Chapters 6 and 7. Waste Combustion and Landfilling Waste combustion and landfilling are at the bottom of the hierarchy USEPA does not rank one of these options higher than the other, as both are viable components of an integrated system. Waste combustion, discussed in Chapter 8, reduces the bulk of municipal waste and can provide the added benefit of energy production. State-of-the-art technologies developed in recent years have greatly reduced the adverse environmental impacts associated with incineration, and although waste combustion is not risk-free, many communities are relying on this waste management alternative. Landfilling, discussed in Chapter 9, is necessary to manage nonrecyclable and noncombustible wastes, and is the only actual waste "disposal" method. Modern landfills are more secure and have more elaborate pollution control and monitoring devices than earlier landfills. Environmental concerns at properly managed landfills are greatly reduced. Also, many new landfills are using methane recovery technologies to develop a marketable product. Source: USEPA References USEPA. 1992, Characterization of Municipal Solid Waste in the United States: 1992 Update. Washington, D.C. EPA/530- R-95-019 (July). USEPA. 1989. Decision Makers Guide to Solid Waste Management. Washington, D.C. EPA/530-SW-89-072 (November).