SUB-SECTION
1: Standardized Environmental Information on Product Labels Subgroup
At
the end of Phase I, the CLI recommended that the EPA determine the effects
of standardizing environmental messages on product labels.
During
Phase II of the CLI, a subgroup was formed to address the issue of standardized
environmental information on product labels. The subgroup was created to investigate the possibility of standardizing
environmental information and displaying it on product labels in a box
format, analogous to the food nutrition label. Appendix 1-7 lists the members of the Standardized Environmental
Information Subgroup.
The
subgroup was formed at the CLI Partner and Task Force Meeting held in
February 1998 (See Chapter 7 for more information on this meeting). During this meeting, two presentations were given on standardizing
environmental information on product labels, in order to engage Stakeholders
in framing the debate. Andrew
Stoeckle of Abt Associates presented a paper that he had written with
Julie Winters of the EPA, that explored issues related to standardizing
environmental information on product labels. Julie Spagnoli of Bayer Corp gave the second presentation. See Appendix 7-1, the February 1998 Partner and Task Force meeting
notes, for a copy of the presentation.
The
group initially met regularly, but merged its meetings with those of the
quantitative core research group as the scope of the issue changed. The following issues were raised during subgroup discussions:
-
standardized
environmental information may be difficult to compile for pesticide
products because product life cycle information can be complex;
-
the
information that people may want varies among different product categories;
-
there
may be insufficient data for some of the products;
-
displaying
comparative information on product labels may entail releasing company
proprietary information; and
-
thoroughly
testing the kind of information interviewees want, and that the EPA
would be able to supply, would take much longer than the time frame
of Phase II of the CLI.
Input from the subgroup, combined with the desire of the Agency
to advance the development of the box concept and frame the debate, led
to the decision to do research on standardizing environmental labels during
the Phase II quantitative research. This research focused on the box format, as well as interviewee
demand for environmental information. More specifically, during the quantitative research, interviewees
were asked which type of label information was the most important to them,
and to identify what types of label information they looked for in different
situations.
The results of the quantitative research supported the idea
of standardizing general label information. The research found that many interviewees think that a standardized
format for the label would help them to locate the information that they
consider to be important. Regarding
what types of information interviewees consider to be important, the quantitative
research indicated that interviewees in general do not consider environmental
information to be one of the more important sections of product labels. For more detailed information on the results of the quantitative
consumer research relating to standardized environmental information,
refer to Chapter 2.
After the results from the quantitative consumer research indicated
that interviewees did not view environmental information as the most important
on product labels, the focus regarding standardization of environmental
information on product labels shifted from determining what type of information
should be standardized to concentrating on finding a comprehendible label
format for information already existing on product labels. During the qualitative focus groups that followed the quantitative
research, interviewees were questioned about their preference for specific
labeling formats, whether the formats made a difference in their understanding
of the information presented, and whether they had a preference for which
information should be presented in standardized or box formats. To read the results of the qualitative research regarding standardized
environmental information on labels, please refer to Chapter 3.
Through its Federal Insecticide, Fungicide, and Rodenticide
Act (FIFRA), the EPA is the only federal agency involved with labeling
that mandates disposal instructions on product labels. This mandate creates a problem, since the research found that
most residential consumers are not interested in the disposal information. Other agencies involved with labeling, for example, the Federal
Trade Commission (FTC), do not have such mandates. FIFRA disposal statements may conflict, however, with state and
local requirements and practices. These types of conflicts prompted the need for further investigation
into storage and disposal issues during Phase II of the CLI. Additionally, storage and disposal instructions on product labels
are frequently not read by consumers; this has, in some cases, lead to
improper storage and disposal of products and containers.
Findings from
Phase I
Phase I of the CLI found that consumers do not read storage
and disposal information on product labels. The majority of consumers interviewed during the Phase I qualitative
research indicated that the storage and disposal section of product labels
contains information that they perceive as "common sense," and
they feel they have a fairly good understanding of the instructions already. Phase I research found, however, that consumers sometimes dispose
of product containers improperly, either because of poor comprehension
of the instructions, or because the instructions themselves (e.g., wrap
in paper and dispose of in the trash) may conflict with state and local
disposal laws or practices.
Goals and Objectives
for Phase II
Phase II of the CLI addressed issues relating to storage and
disposal of unused pesticide, insecticide, and household cleaner products,
as well as disposal of empty containers of these products. Upon recommendation from Phase I of the CLI, a subgroup of CLI
Partner and Task Force members interested in storage and disposal issues
was formed to gain a better understanding of why interviewees do not read
this information, and to investigate ways to increase interviewee comprehension
and utilization of this information. One of the objectives for the group was to research what, if
any, state and local storage and disposal regulations, policies, and practices
exist for the three product categories and product containers. The Subgroup was charged with making recommendations for changes
to storage and disposal language on product labels, as needed, so that
consumers are not inadvertently instructed to store and dispose of unused
product and containers in ways that violate their state and local laws
and practices. The group
also collaborated with the CLI Consumer Education Subgroup to find ways
to increase consumers' reading and comprehension of the storage and disposal
sections of product labels.
To address storage and disposal issues, several activities took
place during Phase II of the CLI, including:
-
primary
research and data analysis of the quantitative survey with regard
to storage and disposal issues,
-
mini
focus group research in the qualitative study of Phase II,
-
information
requests and literature reviews on storage and disposal issues,
-
independent
studies and research,
-
information
exchanges through the CLI Storage and Disposal Subgroup, and
-
data
gathering regarding household hazardous waste (HHW) management programs.
A brief description of each of these activities is provided
below. Learnings from
each of these activities are presented separately following the summary
of storage and disposal activities.
North American Hazardous Materials Management
Association (NAHMMA) Annual Meeting
The EPA held a session on storage and disposal during the North
American Hazardous Materials Management Association (NAHMMA) annual meeting
in San Diego on November 19, 1997[1]. Approximately 20 to 30 people attended the session. The EPA gave a brief overview of the CLI and the issues surrounding
storage and disposal information on product labels in particular. The session was opened to the audience, which consisted primarily
of individuals concerned with product (as opposed to container) disposal,
to gather participants' opinions on how storage and disposal issues may
be addressed on product labels.
North American Hazardous Materials Management
Association (NAHMMA) Mailing
An information request was distributed by the NAHMMA to its
300 members. The request
contained six questions regarding:
-
requirements,
policies, and programs for disposing of pesticide and hard surface
cleaner containers and unused product;
-
requirements,
policies, and programs for recycling pesticide and hard surface cleaner
containers;
-
recycling
of aerosol cans;
-
interviewee
participation in local hazardous waste pick-up days or amnesties for
pesticide and hard surface cleaners containers and unused product;
-
interviewee
participation in recycling programs for empty aerosol and plastic
containers; and
-
common
practices for storage of pesticides and hard surface cleaners.
Appendix 6-1 contains a copy of the questions mailed to NAHMMA
members.
Chemical Specialties Manufacturers Association
(CSMA) and Household and Institutional Products Information Council (HIPIC)
Members' Presentations
Member companies of the Chemical Specialties Manufacturers Association
(CSMA) and the Household and Institutional Products Information Council
(HIPIC) presented findings on research on disposal of products manufactured
by CSMA and HIPIC companies, to the EPA in May 1998.[2], [3] The presentations included results of:
-
environmental
risk assessments on disposal of consumer products, such as Adown
the drain" products, to publicly owned treatment works (POTWs), municipal
solid waste landfills (MSWL), and septic systems;
-
aerosol
recycling; and
-
trends
in household insecticide technology, and how this pertains to safety
and HHW considerations.
For copies of the CSMA and HIPIC presentations, please refer
to EPA's Public Docket Administrative Record AR-139.
The Waste Watch Center (WWC) Report on
Household Hazardous Waste (HHW) Management Programs
The Waste Watch Center (WWC) compiled information on a number
of HHW programs in the United States for the EPA. WWC is a non-profit organization that has been collecting information
on HHW collection programs since 1988. Three main sets of data were provided by the WWC:
-
a
comprehensive listing of HHW programs in the United States as of 1997;
-
a
summary of state regulations that prevent HHWs from being placed in
the trash; and
-
a
listing of non-regulatory measures by state, local, and regional governments
to encourage HHWs to either be re-used, recycled, or managed as hazardous
waste.
For a copy of the WWC report, please refer to the EPA Public
Docket Administrative Record AR-139.
Discussion Paper Evolving from the 1995
Cleaning Products Summit
Representatives from state and local organizations in the CLI
Subgroup provided a previously prepared paper entitled "Concerns
with Household Cleaning Products C
A White Paper," to the CLI Subgroup for discussion and information. (The Subgroup was never able to discuss the paper in detail, however.) The paper outlines health and environmental concerns regarding
household hazardous products, including household cleaning products. The paper addressed concerns regarding methods of disposal for
household hazardous products: in particular, how disposal practices have
adversely affected HHW management programs.
For a copy of the discussion paper, please refer to the EPA
Public Docket Administrative Record AR-139.
Telephone Conversations
In addition, the EPA spoke by telephone with several professionals
in the hazardous waste management and recycling fields, and the EPA's
Regional offices, including the following:
-
officials
in state or regional hazardous waste departments;
-
waste
materials handlers (e.g., people working in recycling or material
recovery companies);
-
individuals
at trade associations (e.g., the Steel Recycling Institute (SRI) and
the American Association for Plastic Container Recovery (AAPR); and
-
EPA
Regional office personnel.
The primary goal of these calls was to gain a variety of perspectives
about storage and disposal requirements or problem areas surrounding these
issues.
For a listing of individual and/or organizations contacted by
telephone, and/or copies of some of the transcripts from the telephone
conversations, please refer to the EPA Public Docket Administrative Record
AR-139.
Learnings from the NAHMMA Annual Meeting
During the NAHMMA annual meeting, the EPA held a session that
gave an overview of the CLI and the storage and disposal issues involved
in the Initiative. The session
was opened to receive feedback from participants on storage and disposal
labeling issues. The majority
of people attending the session were already aware of many of the storage
and disposal issues, and were, therefore, able to provide the EPA with
well informed discussion and suggestions. Many of the people attending the session were more focused on the
disposal of unused product than on disposal of containers. Attendees made several points:
-
many
states do not have statutes specifically addressing disposal of household
pesticides, insecticides, and hard surface cleaners, and programs
that do exist for these products vary widely across states and localities;
-
instructions
on labels such as "wrap in newspaper and throw in trash" are
not appropriate. Commentators
preferred language that instructs consumers to "use it up," such
as, "Only buy what you need," then "Give what you have left
over to someone else who will use it" and finally, "Bring any
unused product to a HHW collection facility or event"; and
-
for
consumers to obtain correct disposal information for HHWs, it is not
enough to simply have language on a label instructing them to "call
your local waste management agency," because many people would not
know whom to call. Instead, several people suggested that a national toll-free
number giving consumers information about disposal requirements in
their local communities may be a better option.
Information from NAHMMA Mailing
The mailing to NAHMMA members had a low response rate. Of the 300 members who received the mailing, only 13 states and
localities, representing 12 states, responded. The organizations that responded were:
-
West
Central Indiana Solid Waste District (Indiana);
-
State
of New Mexico Environment Department, Solid Waste Bureau (New Mexico);
-
Minnesota
Pollution Control Agency, Hazardous Waste Division (Minnesota);
-
Minnesota
Department of Agriculture (Minnesota);
-
Walla
Walla County Regional Planning Department, Recycling and Waste Management
Division (Washington);
-
Oregon
Department of Environmental Quality, Household Hazardous Waste, Solid
Waste Policy and Program Development Section (Oregon);
-
Wisconsin
Department of Agriculture, Trade and Consumer Protection Department
(Wisconsin);
-
Texas
Natural Resources Conservation Commission, Clean Texas 2000/Household
Hazardous Waste Management (Texas);
-
City
of Lawrence, Waste Reduction and Recycling Division (Kansas);
-
Sonoma
County, Household Hazardous Waste Program and Sonoma County Waste
Management Agency (California);
-
Michigan
Department of Environmental Quality, Waste Management Division (Michigan);
-
New
York Department of Environmental Conservation, Division of Solid and
Hazardous Materials (New York); and
-
Vermont
Department of Environmental Conservation, Agency for Natural Resources
(Vermont).
Regulations, policies, and programs pertaining to disposal of
household pesticides, insecticides, and hard surface cleaners vary greatly,
both among and within the states and localities that responded
to the mailing. Most of the
states and local authorities that responded classify the three product
categories as HHW. According
to respondents, in most states it is up to local governments to regulate
disposal of these types of wastes. It is important to note, however, that many respondents did not
distinguish between disposal of unused product and disposal of
empty containers.
State and Local Requirements,
Policies, and Programs for Disposal of Unused Pesticide and Hard Surface
Cleaner Product and Containers
In many of the states that responded to the mailing, consumers
are generally encouraged, but not required, to bring their unused pesticide
or hard surface cleaner products and containers to local HHW collection
events or facilities. Some
states that responded, however, have either statewide and/or local HHW
management programs as part of their state hazardous waste management
plans[4]. (HHWs are exempt from federal hazardous waste regulations under
Subtitle C of the Resource Conservation and Recovery Act (RCRA)). Minnesota, for example, has a statewide hazardous waste management
plan that includes a mandatory HHW management program, and requires every
region in the state (a region may contain anywhere from two to ten counties)
to have a permanent HHW collection facility. Consumers are encouraged to participate in the state's HHW programs
but are not required to; they do not face any penalties if they do not
participate. Minnesota has
some of the most established and extensive regulations regarding disposal
of unused pesticides and hard surface cleaners, as well as empty containers. Currently, there are 41 permanent HHW collection facilities in
the state (Waste Watch Center, 1998). Consumers are urged to buy products only in quantities they think
they will need and to use up as much of the product as possible, or give
it away to someone else who can use it. In the case of unused pesticides, consumers are then encouraged
to take them to a local HHW collection facility or event. As part of the state HHW program, Minnesota has an extensive consumer
education program, which provides detailed information for consumers on
the best ways to store and dispose of their unused pesticide and household
cleaner products and containers.
The West Central Indiana Solid Waste District was one of the
few states that made a distinction between how they handle empty containers
and unused product. For example,
Indiana's State Chemist's office has a program for recycling empty pesticide
containers into plastic lumber. Unused pesticide and hard surface cleaner product can be taken
to collection centers operated by solid waste districts, which either
have permanent collection facilities or one-day collection events.
Vermont handles pesticides and hard surface cleaners somewhat
differently than the other states that responded to the NAHMMA mailing. Vermont's pesticide regulations distinguish between household,
agricultural, and commercial pesticides on the basis of the materials
themselves, rather than on the basis of who uses them. All pesticides are subject to the Vermont Department of Agriculture,
Food and Markets (DAF&M) regulations. These regulations state that Aobsolete,
excess, and mixtures of pesticides" have to be disposed of in accordance
with Vermont's Hazardous Waste Management Regulations (which follow RCRA
Subtitle C regulations). The
DAF&M regulations for pesticide containers state that "disposal
of pesticide containers shall comply with instructions on the labeling
and with other state and federal regulations."
Finally, some states, including Texas and Wisconsin, which have
statewide collection programs for agricultural pesticides, will
accept HHWs in their collections if the agricultural collection program
has funds remaining. Alternatively,
remaining funds and/or grants may be made available to local governments
to help them establish HHW collection programs or annual collection events.
State and Local Requirements,
Policies, and Programs for Recycling of Pesticide and Hard Surface Cleaner
Containers
The majority of the thirteen organizations that responded to
the mailing said that they did not have specific statewide regulations
pertaining to recycling of pesticide and hard surface cleaner containers. Because the vast majority of recycling programs are operated by
municipal governments that must coordinate with local waste hauling companies,
it is up to the company and the local government to decide what materials
can and cannot be recycled. Market forces primarily determine what materials end up being
recycled. If a recycling
company can cost-effectively recycle a specific material, they will be
more willing to collect it. For
example, in most states, certain "clean" plastics (i.e., plastics
#1 and #2) are accepted for recycling; hard surface cleaner containers
made of these types of plastics are usually accepted by recycling programs. Acceptance of aerosol containers containing hard surface cleaners
for recycling, however, is uneven. It is usually left up to the discretion of the waste haulers to
decide if it is economical for them to collect these containers.
According to respondents, since pesticide containers (plastic
and aerosol) may contain some residual chemicals, they may be considered
to be hazardous wastes in some localities. Consequently, these containers may not be permitted in the local
recycling stream or may not be collected by the local waste hauler. According to respondents, this exclusion occurs primarily because
residual chemicals may increase the likelihood of contamination of other
recyclable materials. Respondents
noted that in some cases, waste haulers in their areas are reluctant to
collect pesticide containers, because the cost of decontaminating their
collection bailer far outweighs the benefits of collecting these types
of containers. In most of
the states that responded to the mailing, consumers are instructed to
follow the directions on the product label for disposal instructions.
State
and Local Requirements, Policies, and Programs for the Recycling of Aerosol
Containers
Recycling of aerosol containers (usually cans) varies from state
to state and from locality to locality. In all 12 states that responded to the NAHMMA mailing, consumers
are asked to empty their aerosol cans prior to recycling or disposing. (Containers can be emptied either at a local HHW collection facility
or event, or by making sure that all of the product is used up.) Acceptability of aerosol cans, either at recycling centers or through
curbside programs, largely depends on the recycler's locality and whether
the local recycling company will accept the material. Some waste haulers are reluctant to collect aerosol cans because
they say that it is difficult to determine if the can is completely empty
or completely de-pressurized, and waste haulers say that this can lead
to contamination and/or fire hazards for other recyclable materials. Acceptability of aerosol cans for recycling often also depends
on the contents of the can. In
most states, aerosol cans that contained pesticides are usually not accepted
for recycling (because of potential contamination and fire hazards). It should be noted, however, that the EPA's PR notice 94-2 authorizes
recycling of empty aerosol pesticide containers. In terms of aerosol cans that contained hard surface cleaners,
however, it is up to the local recycling program to decide whether it
will accept these cans.
The CSMA and HIPIC countered the argument that there are risks
associated with aerosol recycling, as many waste haulers stated, with
data showing the growth in aerosol recycling in the U.S. The presentation was given to the EPA in conjunction with other
presentations made by members of CSMA and HIPIC in May 1998. (See discussion below).
Consumer Participation or
Reaction to Local Hazardous Waste Pick-up Days or Amnesty Programs
Many of the respondents did not distinguish between participation
rates for pesticides or hard surface cleaners and all other hazardous
wastes, most likely because this information is not tracked separately
by product type. In some
states, information on overall consumer participation in pick-up/amnesty
days is not tracked at all. In
most of the states that responded to the NAHMMA mailing, consumer participation
in hazardous waste pick-up days or amnesty programs was reported to be
"quite high." Most states
reported an average participation rate of between 3% and 5% of the population
(i.e., local population). Although
the percent of the total population participating in these programs may
seem low, HHW program managers say that participation is "quite high"
because the need for pick-up days and/or amnesty programs may not be continuous;
i.e., when an event such as this occurs the participation rate is high,
but may seem low when averaged over the entire population.
Consumer Participation or
Reaction to Recycling Programs for Empty Aerosol or Plastic Containers
Consumer participation in recycling programs for aerosol and
plastic containers is mixed. Many
states do not break down data on consumer participation or reaction to
recycling programs according to the materials recycled. A few states indicated that participation/reaction to recycling
programs for plastic containers tends to be higher and more positive than
that for aerosol cans. According to these respondents, this difference occurs primarily
because consumers are familiar with recycling plastics, whereas recycling
of aerosol cans is still a relatively new idea in many communities.
Common Practices for Storage of Pesticide and Hard Surface Cleaners
Most of the 12 states that responded to the mailing indicated
that they do not have specific requirements or policies for storage of
household pesticides, insecticides, and hard surface cleaners, aside from
the label instruction that says to "Keep out of reach of children." Minnesota does, however, provide consumers with a flier on storage
and use of general household chemicals. In states that have established regulations for agricultural pesticides,
there are stringent regulations for the storage of these types of pesticides. For example, in Vermont, no distinction is made between household
and agricultural pesticides, and, therefore, household pesticides must
be stored in accordance with agricultural pesticide regulations. The regulations state that these products must be stored so as
to avoid leakage, and to make sure that pesticide containers are resistant
to corrosion, leakage, puncture, or cracking.
Chemical Specialties Manufacturers Association (CSMA) and Household
and Institutional Products Information Council (HIPIC) Members' Presentations
The CSMA and HIPIC members' presentations began with a discussion
of several risk assessment studies. Risk assessment estimates the potential for toxicity of chemicals
to humans or harm to the environment. Conducting a risk assessment includes: hazard identification, dose-response
assessments, exposure assessments, and risk or outcome characterization. In most cases, toxicity risk to humans or harm to the environment
is determined by hazard identification and an evaluation of dose-response
relationships; determining whether there is a hazard to humans
is often dependent on whether a dose-response relationship exists (Kimmel
et al., 1990). A dose-response
relationship compares the actual concentration of toxic materials in the
environment with either the no-observed-effect-level (NOEL) and/or the
lowest-observed-effect-level (LOEL). The NOEL is the highest dose that can be given without any effects
being observed. The no-observed-effect-concentration (NOEC) is the highest
concentration of toxic material in the environment that does not cause
an adverse effect to the environment and the surrounding communities. The actual concentration of materials, sometimes referred to as
the predicted environmental concentration (PEC), is then compared to the
NOEC to determine if the concentration of materials in the environment
may be potentially harmful.
Several methodologies may be used to assess the environmental
fate of a chemical. The most
common is mathematical modeling of the fate and transport of the chemical
in the environment. Other
methods include chemical analysis, either through laboratory simulations
of "real-world" situations, or through representative environmental
samples (RES) (long-term monitoring of the environment). These last two methods are used less frequently due to the immense
costs involved.
Several factors are taken into consideration to determine the
PEC. First, characterization
of the chemicals themselves and information on potential emissions is
made. Additionally, a pathway
analysis (i.e., the most likely pathway, either air, water, or soil,)
for the emissions is determined. Finally, assessment of the endpoint for the chemicals is conducted. Emissions estimates and physical and chemical data feed into an
assessment of the fate of the chemical(s) in the environment. This is what is used to determine the PEC. If the ratio between the PEC and the NOEC is less than or equal
to one, then it is safe to dispose of the chemical in the environment
in the quantities estimated. Generally, for acute effects a safety factor is included. If the ratio is greater than or equal to one, then the concentration
of chemical in the environment may cause potential harm to the environment.
Environmental Risk Assessment
of Consumer Products: Introduction and Evaluation of Publicly Owned Treatment
Works (POTWs)
The Procter and Gamble Company (P&G) presented the findings
from an environmental risk assessment of disposing consumer products (such
as household cleaning products) to publicly owned treatment works (POTWs). P&G's risk assessment study utilized a mathematical model and
laboratory data. The model
looked at the disposal of household products typically designed for Adown
the drain" use, for the entire U.S. population that is connected to POTWs
(about 75%). P&G pointed
out that products are formulations of different chemicals (e.g., active
ingredients, carriers, and additives), and each of these components has
a particular fate in the environment. P&G's model assumed both a typical disposal of the product
consisting of release of the product to the sewage system during normal
use of the product, as well as a worst-case scenario in which the entire
product is dumped down the drain.
The model examined what the effects to a POTW's functionality
would be if excess amounts of major domestic detergent surfactants used
in household products, perborate (bleach), or quaternary ammonium chloride
compounds were put down the drain. To determine the effects on a POTW, the efficiency of aerobic and
anaerobic functions of the microbes responsible for waste removal in POTWs
was studied. From these studies
P&G determined that none of the products, in the amounts tested, would
have a negative effect on the functionality of a POTW. Thus, P&G concluded that POTWs are capable of handling household
consumer products, even in worst-case situations.
Septic System--Product Use and Disposal
The second presentation was made by The Clorox Company (Clorox),
a leading manufacturer of household cleaning products. Clorox described why studying septic systems is important (approximately
25% of the U.S. population uses septic systems to treat their wastewater),
and how down-the-drain products are tested and evaluated to determine
the products' impact on septic systems.
The presentation began with a brief overview of how septic systems
operate and a description of the test procedures used to measure the impact
of down-the-drain products on a septic system. Septic tank compatibility of down-the-drain products is determined
by evaluating microbial toxicity, sludge setting, and the biodegradation/removal
potential. In addition, there
are laboratory mini-septic systems that monitor coliform count, pH, chemical
and biological oxygen demand and wastewater flow rates. The results of these tests are used to develop no-observed-effect-concentrations
(NOEC). Information on consumer use habits and packaging size allows
for developing a Predicted Environmental Concentration (PEC). The NOEC is compared to the PEC. The greater the NOEC/PEC ratio, the greater the safety margin. As the safety margin increases, the risk associated with adverse
effects decreases.
Clorox presented a hypothetical example of consumer normal use
(1/4 cup/gallon; 1-5 times per week), heavy use (2 cup/gallon; 8 times per week), and
worst-case misuse (1 gallon; largest container) of a down-the-drain product. Based on the above consumer use patterns, the PEC is: normal use
C 21
to 105 milligrams per liter (mg/liter); heavy use C 335 mg/liter; and worst case C
1,335 mg/liter. Assume that
test results indicate a NOEC of 2500 mg/liter. Then, even under the worst case scenario (consumer disposing entire
content of largest container directly into septic tank), no adverse effects
would be expected.
Clorox also presented screen test results that examined the
effects of disposing copious amounts (i.e., 10-300 times normal use) of
household ingredients into a septic system.
Environmental Risk Assessment: Municipal Solid Waste Landfills
(MSWL)
The final presentation of risk assessment models was given by
the Amway Corporation (Amway). Amway
presented the findings of a risk assessment model that examined the effects
of disposing household products to municipal solid waste landfills (MSWL). Amway presented a comprehensive model of the various stages of
conducting a risk assessment of disposing household products to MSWL.
The first step is identifying the hazards and the risks of this
type of disposal by determining the exposure compartments (e.g., hazards
of raw material components, hazards of using the products, hazards during
storage and disposal of the product) and the hazard identification (i.e.,
the toxicity, reactivity, flammability, and corrosivity of the products). Toxicity was chosen as the primary hazard because it is not necessarily
mitigated by landfill dilution, as are the other hazard characteristics
usually cited for municipal solid wastes. Also, toxicity could potentially aggregate in the leachate and
should be accounted for using a rigorous risk assessment model as the
one presented by Amway.
The second step assesses risk by identifying the various routes
of product disposal (e.g., down the drain, through MSWL, recycling, composting,
or special collections), and the various routes of exposure of the product
(i.e., surface water, ground water, air, and direct contact).
The model tested the potential effects of disposal of household
hazardous products on a RCRA "Subtitle D" MSWL, assuming a worst-case
scenario (i.e., 100% emission to leachate and 100% emission to air). RCRA Subtitle D landfills have to comply with regulations concerning
specified soil types, and be sited to avoid sensitive areas and seismic
activities; the landfill must be equipped for venting of gases, and must
meet specific liner requirements (usually double-lined). Finally, leachate from these landfills must be monitored, and there
must be continuous monitoring of the landfill liner to detect any failures.
Amway also presented several case studies, utilizing risk assessment
models, in which the typical concentrations of household products such
as, toilet bowl cleaners, glass cleaners, and bleach, disposed of to MSWL,
were compared to the NOEC for these products in landfills. In almost all of the cases, it was found that these types of household
products do not pose an adverse threat to the functionality of MSWL; RCRA
Subtitle D landfills are capable of handling the concentrations of household
products that consumers dispose into them.
Aerosol Containers Handled
Through the Recycling and Solid Waste Streams
The CSMA and HIPIC made a presentation on the advantages of
recycling empty aerosol containers. They pointed out that the majority of aerosol cans are made of
recyclable steel, and that the majority of them are made with 25% or more
recycled content. Steel is
the most recycled commodity. It
was pointed out that steel manufacturers have use for the high-quality
steel from which aerosol cans are made. Recycling of empty aerosol cans benefits the environment and is
economical. The CSMA and
HIPIC pointed out that if all empty aerosol cans manufactured in the United
States per year were recycled, there would be enough empty household residential
aerosols to manufacture 160,000 cars. They also emphasized that steel recycling is energy efficient,
stating that every pound of steel recycled saves 5,450 BTUs of energy,
and that every ton of recycled steel saves 2,500 pounds of iron ore, 1,000
pounds of coal, and 40 pounds of limestone.
Data were also presented demonstrating the growth in empty household
residential aerosol recycling. In
the early 1990s, only one community recycled empty household residential
aerosols, compared to 5,000 communities today that include aerosols in
their recycling programs. Additionally,
several states have issued statewide endorsements stating that they support
and encourage the recycling of empty aerosol containers in their recycling
programs. These states include
Michigan, Wisconsin, Illinois, New Jersey, Ohio, Florida, North Carolina,
Pennsylvania, Texas, and California. (The CSMA and HIPIC provided supporting letters from each of these
states, highlighting their support for aerosol recycling in their state
recycling programs.)
Finally, the CSMA and HIPIC presented data from a risk assessment
study that was sponsored by the CSMA and conducted by the Factory Mutual
Research Corporation (an independent fire engineering research group),
which studied the risks of aerosol containers in Material Recycling Facilities
(MRF). The study focused
on the potential for release of container contents, the potential for
ignition, and the potential for fire or explosion during the pre-bailing,
bailing, and post-bailing stages. It was found that because of the operating conditions in MRFs,
and in the bailers in particular (e.g., there is not much air circulation
within the bailer itself, and therefore little likelihood of materials
in the bailer igniting), the risks of these types of accidents were minimal
and comparable to other risks in the facilities. The CSMA and HIPIC concluded their presentation with a brief overview
of ways in which risks at MRFs that handle aerosol containers may be minimized. For example, one of the primary ways to reduce risk is through
consumer education efforts that inform consumers to use up all of the
product in the container and to place only empty aerosol containers in
the recycling bin. Similarly,
education of employees working at MRFs can help to minimize risks as they
become more adept at handling loads that include some of these containers. Finally, adding magnetic separation (so that only the empty
cans are picked up) or ventilation to bailer operations can further decrease
the chances of explosions or fires.
Trends in Household Insecticide
Technology Relevant to Product Safety and Household Hazardous Waste (HHW)
Considerations
S.C. Johnson and Son, Inc. (S.C. Johnson) presented data on
recent trends in the household insecticide products (HIP) industry, as
well as information regarding whether these products should be categorized
as HHW. For purposes of this
discussion, the focus was on insecticides used indoors (HIP); lawn and
garden products were not considered. S.C. Johnson began by presenting summary data on the different
types of products that make up the household insecticide product category.
Information on the trends in the active ingredients used in
indoor insecticide spray products was presented. The data demonstrated that, over the past six decades, the
trend in the types of active ingredients used in these products has been
to eliminate the use of chemicals, such as chlorinated hydrocarbons (DDT
and chlordane), and increase the use of synthetic pyrethroids and natural
pyrethroids. Additionally,
these "newer" active ingredients are more efficient, and are therefore
typically used at significantly lower concentrations than their predecessors. Similarly, another trend in indoor insecticides has been to substitute
water for organic solvents as the diluent in ready-to-use sprays. As an example, RaidJ
Ant and Roach Killer, the leading product in this category, now has 60%
water in its product formulation, whereas before 1995, this same product
had no water in its formulation. This trend is consistent among other RaidJ
products, with some products (RaidJ
trigger products) containing as much as 97% water.
Additionally, natural and synthetic pyrethroids have much lower
leachability potentials, and therefore less potential to contaminate groundwater
sources. (Indoor insecticides
may have potential for groundwater contamination through leaching of active
ingredients through soil layers in and around landfills.) S.C. Johnson's research showed that the most commonly used active
ingredients in household insecticides today (i.e., synthetic pyrethroids
and certain active ingredients used in bait forms) are either too insoluble
in water, or they tend to be too tightly bound to soil particles, to have
any significant leaching potential to groundwater sources The exceptions
to this are active ingredients such as diazinon and propoxur (Baygon),
which are not often used in HIP these days, can be found in residual quantities
in soils, and have some slight capacity to partition to soil water and
move with the water.
To support these findings, S.C. Johnson presented data on certain
physical/chemical parameters relevant to environmental fate for active
ingredients used in HIP, and data from the EPA's Pesticide in Groundwater
Database on detection of active ingredients used in insecticides in groundwater. These data are based on monitoring studies conducted between 1971
and 1991 throughout the U.S. The
data showed that, with the exception of detections of insecticides in
agricultural areas, concentrations of insecticide active ingredients typically
did not exceed allowable maximum contaminant levels (MCL) set by the EPA.
Finally, S.C. Johnson pointed out that there have been recent
shifts in the types of insecticides being used by consumers. Traditional sprays and foggers have been joined by, and to some
degree replaced by, insecticides in forms such as baits that are sold
in child-resistant plastic stations and non-chemical devices such as sticky
tapes that trap insects. Additionally,
research is being conducted on the possibilities of efficient use and
marketing of "bio-pesticides," though this category has not achieved
significant marketplace success among HIP to date.
Given the data presented and the fact that household insecticide
products as discussed have not always been considered to be "toxic"
or "acutely toxic" under either RCRA or FIFRA regulations, S.C. Johnson
offered the opinion that these types of pesticides should not be considered
"household hazardous wastes," and they do not need to be diverted
from municipal solid waste streams.
Waste Watch Center (WWC) Report on Household
Hazardous Waste (HHW) Programs
The WWC provided the EPA with a listing of HHW programs in the
United States, as of 1997. The
data include both permanent and non-permanent HHW programs; farm and conditionally
exempt small quantity generator waste; specialized programs, such as those
that collect only paints, only farm pesticides, or only dry cell batteries;
and curbside or special used oil collection programs. Waste Watch Center defined a HHW program as being permanent
if the program had "at least monthly collections held at either a
fixed site or at a dedicated mobile facility" (WWC, 1998). Since no central directory of HHW programs currently exists, WWC
complied the data from various sources, including state and municipal
information, project sponsor materials, personal contacts, and reporting
forms.
In discussions regarding the data provided by WWC, the CLI Storage
and Disposal Subgroup pointed out several limitations. For example, although the data provided comprehensive information
on the number of HHW programs in the country, it did not provide population
information, such as the number of people using these programs, or how
many people are being served by each HHW program. Additionally, members of the Subgroup pointed out that participation
in HHW programs is likely to be more erratic than, for example, a recycling
program. This implies that
participation in an HHW program may therefore
not be as extensive as the WWC data suggest. One member of the Subgroup mentioned that in his locality, HHW
collection events occur quite infrequently. Therefore, if a consumer missed a collection date, they would be
more likely to place the HHW in the trash.
WWC's Data on HHW Programs
The WWC's data provided some key findings, presented below,
broken down by the data on HHWs and information on policies, regulations,
and programs at the state and local level:
-
the
number of HHW programs in the U.S. has steadily increased since 1980;
-
the
total number of HHW programs in the U.S., as of 1997, was 14,591;
-
the
total number of permanent HHW programs in the U.S., as of 1997, was
442 programs;
-
every
state in the U.S. has some type of HHW program;
-
items
that are collected by HHW programs include, but are not limited to:
used paints, used motor oils, pesticide, cleaning products, household
batteries, fluorescent light bulbs, explosives, photochemicals, solvents,
automotive parts, etc.;
-
California,
Florida, Massachusetts, New Jersey, Minnesota, and Washington have
the largest number of HHW programs C
each of these states has over 500 HHW programs throughout the state;
and
-
almost
every state (except North Dakota, South Dakota, Nebraska, Louisiana,
Mississippi, Georgia, West Virginia, and Maine) has at least one permanent
HHW program, as defined by WWC.
The WWC compiled information from official records and documentation,
as well as from conversations with experts in the field, about existing
state and local official and un-official rules, regulations, policies,
and practices that govern the disposal of HHWs. Some of the types of state, local, or regional regulations
include the following:
-
defining
as hazardous wastes all household wastes that contain hazardous substances. Some states, such as California, do not allow these types of
wastes into the solid waste stream;
-
defining
some products of wastes, which are solid wastes under RCRA, as hazardous;
-
having
land bans that exclude certain hazardous products from landfills;
-
prohibiting
certain hazardous wastes from being placed in the trash or brought
to some solid waste companies or municipal solid waste (MSW) facilities
(i.e., composting facilities and incinerators);
-
requiring
that products containing certain hazardous substances be labeled to
inform consumers that these products should not be placed in the trash;
-
requiring
manufacturers to take back discarded products from consumers, so that
local governments are relieved of paying for their disposal and/or
recycling costs (e.g., in New Jersey); and
-
mandating
that local recycling programs be established, and that these programs
meet specific recycling targets. Collection of household hazardous products by these recycling
programs may help communities meet these recycling goals.
In addition to the mandatory programs described above, several
states and localities have established non-regulatory approaches for managing
HHWs C
or, at the very least, to prevent them from being placed in the trash
or being dumped down the drain. Examples of these include:
-
establishing
state funded and operated HHW collections at local and regional levels;
-
designating
responsibility, often to the regional (rather than state) level government,
to keep HHW and conditionally exempt small quantity generator (CESQG)
wastes out of the solid waste stream;
-
providing
funding (e.g., in California, Vermont, Washington, Minnesota) to regional
governments to develop a plan to manage HHW and CESQG wastes at the
regional level;
-
providing
funding to local and regional governments to operate HHW collection
days;
-
providing
funding to local and regional governments to establish permanent HHW
collection facilities;
-
establishing
education programs in coordination with state, local, and regional
HHW management programs;
-
adopting
the EPA's Universal Waste Rule;
-
developing
manuals and training courses for consumers on the best ways to dispose
of their HHWs as part of HHW management plans;
-
establishing
product labeling requirements to help consumers identify products
that contain hazardous substances; and
-
providing
consumers with information on alternative products that do not contain
hazardous substances. Local governments have an interest in providing this information
because they are the ones that bear the costs of managing HHWs in
their waste streams.
Discussion
Paper Evolving from the 1995 Cleaning Products Summit
Representatives from state and local
organizations in the Storage and Disposal Subgroup provided a paper entitled
"Concerns with Household Cleaning Products C
A White Paper" to the Storage and Disposal Subgroup for its information
and discussion. The Subgroup
was never able to discuss the paper in detail, however. The paper was written in 1996 by Philip Dickey of the Washington
Toxics Coalition (WTC) in collaboration with Dana Duxbury of the Waste
Watch Center (WWC), David Galvin of the King County Local Hazardous Waste
Management Program, Brian Johnson of the City of Santa Monica Environmental
Programs Division, and Arthur Weissman of Green Seal. The paper discusses several issues relating to HHWs and to household
cleaning products. The paper
was provided to the Storage and Disposal Subgroup as a discussion paper
to inform the Subgroup about:
-
state
and local agencies' concerns with current storage and disposal instructions
on product labels, and to explain why state and local agencies advocate
that labels instruct consumers to contact their local agencies for
proper disposal instructions;
-
to
provide background on HHW programs; and
-
to
initiate discussion regarding the potential harmful effects of household
cleaning products to the environment and to human health and safety.
The paper evolved from a meeting called the "Cleaning Products
Summit" held in March 1995. The
paper addresses concerns raised by both those who work with HHW programs
and manufacturers of household cleaning products. In
particular, it discusses the debate between these two groups about the
definition of HHW and the types of products that should and should not
be included in the definition. Manufacturers
of household cleaning products argue that their products should not be
included in HHW programs because they contain only Asmall
concentrations of active ingredients" (Dickey et al., 1996, available
in Administrative Record). Those
who manage HHW programs argue that household cleaning products should
be included in HHW programs because, even though concentrations of these
ingredients may be low, the active and/or inert ingredients contained
in these products may be hazardous.
The discussion below highlights some of the topics covered in
the paper.
Purposes of Household Hazardous
Waste Facilities and Programs
The paper begins with a discussion of the purposes of HHW programs. Manufacturers have argued that HHW programs have traditionally
handled only HHWs as defined under the Resource Conservation and Recovery
Act (RCRA). Consequently,
these programs may not be as useful as they once were, because so few
of today's household products end up as hazardous wastes as defined under
RCRA. According to the authors,
however, HHW programs continue to be useful and necessary because they
do not simply collect wastes from households, but often are the main waste
collectors for conditionally exempt small quantity generators (CESQG). As a result they often collect products, for example, janitorial
cleaning agents, which are hazardous. Additionally, HHW programs collect wastes that have a hazardous
component to them, regardless of the volume and concentration of these
hazardous components, because the cumulative impacts of these chemicals
may in fact have a significant impact on the environment and to human
health and safety.
Dickey et al. also point out that HHW programs have increased
their function beyond that of waste collection facilities. Many HHW programs have extensive consumer education programs that
try to educate the public about issues other than disposal of products
alone, including the proper storage and use of products, and their misuse,
as well as pollution prevention and source reduction in general. In addition, the authors point out that the materials brought into
a HHW facility (including household cleaning products, used motor oil,
paints, pesticides, etc.), are not always seen as "waste." These products can often be used for other purposes; many HHW
facilities are beginning to find ways to reuse and recycle the products
brought into their facilities.
Definition of Household Hazardous
Waste
There is a clear difference in how both HHW managers and manufacturers
of household cleaning products define HHW. Household hazardous waste managers generally define HHWs as waste
from residential sources that exhibits characteristics of hazardous wastes,
such as: toxicity, corrosivity, ignitability, or reactivity. Manufacturers of household cleaning products, as represented by
the Chemical Specialities Manufacturers Association (CSMA), define HHW
as any "discarded household material which creates by itself or in
conjunction with other household materials a verifiable level of toxicity
that adversely affects health or the environment."
Dickey et al. point out that there is a clear distinction between
the two definitions. First,
the CSMA definition only considers the toxicity of a product and not any
of the other characteristics that hazardous wastes may exhibit. Also, they point out that unlike the CSMA definition, the definition
used by HHW managers does not simply consider the adverse effects of HHW,
but considers the potential dangers and/or risks of these wastes. Because of this difference in definitions, household cleaning products
are considered HHWs by most HHW program managers, even though they may
not be as hazardous as other materials collected by HHW programs (e.g.,
paints or used motor oil).
Effects of Household Cleaning Products
The paper also provides details about the health and environmental
effects of ingredients found in cleaning products. In particular, the paper discusses information and data on the
health effects of certain ingredients found in some cleaning products,
such as skin/eye/lung irritation, inhalation problems, and carcinogenic
effects. Dickey et al. also
provide information and supporting data on the environmental effects that
these ingredients can have when disposed of down the drain or in the trash. Examples include eutrophication of lakes, rivers, and estuaries;
biodegradability and bioconcentration of the ingredients; the effects
of heavy metals and organic compounds in household wastewaters; and the
effects of volatile organic compound (VOC) emissions from these products.
Concerns Regarding Household
Hazardous Wastes
The paper specifically addresses several concerns about HHWs,
particularly cleaning products considered by managers of HHW programs
to be HHWs. Occasionally,
localities will perform Asorts"
of their solid waste stream to assess what types of products are in the
waste stream. According to
several solid waste sorts, the average volume of HHW in the solid waste
stream is between 0.3% and 0.5% by weight (from Systems, 1985 and Rathje,
Wilson et al., 1987, in Dickey et al., 1996). Dickey et al. stress that even though these percentages are relatively
small, they can amount to significant quantities when converted to actual
volumes of waste. Additionally, even though these HHWs represent relatively small
percentages of the total municipal solid waste stream, they contribute
to the majority of the toxicity, corrosivity, and reactivity of the waste
stream.
Hazardous chemicals found in household cleaning products can
pose other real risks to the facilities and workers who handle these wastes. Hazardous wastes may leak out of trucks, loaders, and landfills. Chemicals may also react with other materials in the solid waste
stream and cause acid or alkaline releases, as well as increase the risk
of flammability. Workers
who pick up household trash may be exposed to HHW chemicals that are mixed
in with the municipal waste stream. Dickey et al. cite a California study done in 1982 which found
that A3 percent of refuse collection workers
in the state were injured due to contact with HHW" (California Solid Waste
Board, 1984, in Dickey et al., 1996). Though national statistics for these types of incidents are rare,
many local agencies are beginning to keep these types of statistics for
their municipalities. They
are also tracking the medical costs to localities arising from these kinds
of injuries. In addition,
many localities also state that the mitigation costs of chemical spills
and exposures can be quite significant.
Managers of HHW programs have expressed serious concerns about
the potential for explosions and damage to waste handling equipment that
may result from reactions between HHW chemicals or liquids and solid wastes. For this reason, HHWs are banned from the municipal solid waste
stream in many localities.
Dickey et al. refute the household cleaning product and household
pesticide manufacturers' conclusion that disposal of their products in
the trash or down the drain does not present any significant adverse effects
to municipal landfills. Dickey
et al. contend that these conclusions are based on studies of RCRA Subtitle
D landfills, which are required to have a double lining at their base
to prevent leachate from leaking into groundwater (See CSMA and HIPIC
discussion above). The authors
add, however, that a large proportion of landfills in the U.S. were built
prior to this requirement, and may therefore pose a risk of leaching into
nearby groundwater. According
to the paper, studies have shown that, in some cases, HHW chemicals have
been found in these leachates and can be quite harmful (e.g., lead or
mercury). Municipalities
are now finding themselves in the position of having to pay for huge clean-up
of these older landfill sites. The
authors also cite studies that show that the lining in current landfills
may eventually wear down and increase the chances of landfill leachates
seeping into groundwater systems (LaPage and Winton, 1994, in Dickey et
al., 1996).
The paper concludes by recognizing that all products have environmental
impacts. Dickey et al. encourage
product manufacturers to take these impacts, however minor, into consideration. They suggest that manufacturers can do this by practicing resource
conservation and pollution prevention, and by eliminating the use of chemicals
(e.g., dioxin and its precursors) in their products that are known to
be harmful to human health and the environment.
Findings from Telephone
Conversations
Several phone calls were made to individuals knowledgeable about
HHW management. Calls were
placed to trade associations such as the Steel Recycling Institute, the
National Association for Plastic Container Recovery, the Solid Waste Association
of North America, and the American Plastics Council. Calls were also placed to a few HHW management programs, including
those in Missouri, Nebraska, and Washington state.
Many of the people contacted had information on regulations,
policies, and programs regarding disposal of containers, but were
less able to provide detailed information on regulations, policies, and
programs regarding storage and disposal of unused product. Many thought that, in general, consumers would likely have to dispose
of unused product at permanent or mobile collection facilities or events. Several people stated that California and Minnesota were the only
states, to their knowledge, that mandated that unused HHW products be
disposed of at local collection facilities.
The Steel Recycling Institute provided information about the
recycling of aerosol cans. According
to SRI, there are 4,500 municipal locations, serving over one hundred
million people, that include aerosols in their recycling programs. SRI often works with local governments on their recycling programs
and provides guidance on how steel recycling can be incorporated into
their recycling stream. In
many localities recycling of aerosol cans is a relatively new concept. Through its brochures and other literature, SRI provides guidance
for proper disposal of aerosol cans and their contents. Consumers are instructed to make sure that aerosol cans are completely
empty before they can be recycled (either at the curbside or through a
recycling center) in areas where cans are accepted into the recycling
stream. Additionally, SRI instructs customers to take aerosol cans,
which are either not empty or too old and rusty for the contents to be
used up, to special collection centers or events in their local communities,
rather than recycling the can.
Storage and disposal labeling issues were discussed during regular
conference calls among members of the Storage and Disposal subgroup. (For a complete list of Subgroup members please see Appendix 1-8.) The Storage and Disposal Subgroup met weekly or bi-weekly, via
conference call, between February and September 1998. The Storage and Disposal Subgroup was formed to make recommendations
for improving storage and disposal information on product labels, as well
as to discuss potential problems and next steps in addressing storage
and disposal language changes on product labels. A challenge facing the group was to discover how to provide universal
language on a label that does not conflict with state and local regulations,
policies, and programs, but which informs consumers of proper storage
and disposal procedures. The
Subgroup concluded that because product labeling is mandated on a federal
level, label language cannot address every variation in storage and disposal
requirements, policies, and programs across the nation.
Several suggestions were made by Subgroup members for changes
to the current language on product labels, but it was difficult for the
group to come to a consensus on a statement best suited for each product
category. It was also difficult
for the Subgroup to reach a consensus on many of the recommendations suggested
by Subgroup members, due to differing views and concerns.
The Subgroup convened in a face-to-face meeting on September
22, 1998, prior to the CLI Partner and Task Force meeting. The purpose of the meeting was to come to an agreement over issues
that the group was unable to resolve or address over conference calls,
as well as to make recommendations to CLI Partner and Task Force members. The day was spent deliberating over several issues, including the
different viewpoints among industry and state and local agency Partners,
regarding the type of instructions that should be placed on product labels. At the end of the day, a consensus was reached regarding label
language for empty containers, but not on the appropriate language for
partially-filled household pesticide containers or household cleaner containers.
Areas of Agreement for Storage and Disposal
Label Language
The Storage and Disposal Subgroup agreed on label language changes
for empty pesticide and household cleaner containers. The group recommended that the language on these containers read:
"Place
in trash. Recycle where available."
The group suggested that the recycling statement be optional
for manufacturers. The group
also recommended that manufacturers be allowed to use an optional statement
that reads:
"Do not
re-use container."
Finally, the group agreed to have the storage instructions on
product labels remain as they currently appear.
Areas of Disagreement for Label Language
The Storage and Disposal Subgroup debated over several months
about the appropriate language for partially-filled pesticide and household
cleaner containers. They
never reached a consensus. The
group suggested that the decision for any change to label language (i.e.,
for language on empty cleaner and pesticide containers) be delayed until
the EPA makes a policy decision about how to handle partially-filled containers.
Representatives from state and local organizations suggested
changing current label disposal language to instruct consumers to first
call their local waste authority to get proper disposal instructions for
their localities, and, if not told otherwise, to dispose of the product
in the trash. They argued
that current disposal language is often in conflict with their own laws,
practices, or programs, which ban HHWs from municipal landfills. Label language should therefore instruct consumers to contact
their local authorities to get the correct disposal instruction for their
area. Representatives from
state and local organizations in the Storage and Disposal Subgroup issued
the following statement at the CLI Partner and Task Force meeting (September
1998):
"The
CLI Subgroup representatives from state and local organizations have agreed
that the status quo disposal instructions are unacceptable to some state
and local programs. Existing
label instructions result in unfair CERCLA liability for local agencies
as well as sanitation worker injuries due to HHW releases from the solid
waste system. Additionally,
local HHW programs attempt to be consistent with the EPA-endorsed waste
management hierarchy or reuse and recycling before disposal. For partially-filled containers, the statement "call
your local environmental, health, or waste department for disposal instructions is appropriate."
The suggestion to place a statement to contact local authorities
was rejected by most of the industry Stakeholders in the Subgroup, who
argued that instructing consumers to contact their local authorities or
HHW programs to get proper disposal instructions would give consumers
the impression that their products are harmful. They also argued that many of these programs often misrepresent
and give consumers wrong information about their products. Industry Stakeholders in the Subgroup argued that their products
are safe to dispose of in the trash or down the drain, and should not
be classified as HHW. They
provided evidence in support of this (see CSMA and HIPIC discussion, above). They said that state and local organizations did not provide scientific
evidence for their conclusions. Additionally, industry representatives argued that putting a statement
such as Acall
your local authority..." would be confusing for consumers, because it
is difficult for consumers to know which agency is the proper one for
them to contact. Furthermore, industry representatives cite data that found
that the majority of people usually use up all of the product in a container
before disposing of it. The
representatives argue that the disposal of partially-filled containers
is not as significant as state and local organizations claim. The industry representatives from the household cleaner and indoor
insecticide industry, as represented by CSMA and HIPIC, issued the following
statement at the CLI Partner and Task Force meeting (September 1998):
"The
majority of industry participants believe there is a substantial body
of scientific support for making the recommendation to dispose of CLI-covered
products through the normal waste systems, either in the trash or down
the drain, depending on the product type. No such scientific support for directing consumers to call their
local authorities for alternate disposal methods has been presented to
the Subgroup. Therefore,
making such a change to the label is unjustified. We are also concerned about referring consumers to local authorities
that are disseminating inaccurate information. Many products are mis-characterized as hazardous by local agencies
and inappropriate information on 'alternatives' is also provided as well. Furthermore,
consumers may not have easy access to their 'local
authorities' and may not even know which agency to call."
State and local authorities believe the industry data that supports
the above statement are limited and based on limited risk assessments
(e.g., considering only the effects to RCRA Subtitle D landfills without
studying the effects of HHW leakage in older, unlined landfills). Additionally, they state that industry studies are based on limited
products and formulations and do not take into account the cumulative
effects of all of the ingredients in these products, many of which may
be considered hazardous.
Some industry representatives in the Storage and Disposal Subgroup
from the outdoor pesticide industry do, however, view some of their products
differently. These representatives
stated that they do not have evidence to show that their products are
safe to dispose of down the drain, and they are not opposed to directing
consumers to contact their local waste handling agency for disposal instructions. It should be noted, however, that this is not the view shared by
the entire outdoor pesticide industry.
Other general recommendations and suggestions were made to the
CLI Partner and Task Force members at the September meeting. These are discussed in the recommendations chapter (Chapter 9).
Suggestions for Label Language for Partially-filled
Containers
Although no consensus was reached at the September 22, 1998,
face-to-face meeting on the issue of partially-filled containers, the
Subgroup did make several suggestions over the course of the conference
calls, for label language for different types of products (e.g., pesticides,
household cleaners, liquids, solids, etc.) presented below. The arguments for and against these statements are also presented
wherever possible.
Disposal
of Partially-filled Liquid Cleaner Containers
Several suggestions were made for label language for partially-filled
liquid cleaner containers:
1. Representatives from state and local organizations in the Subgroup
suggested that these containers say, "Call your local environmental,
health or waste department for specific disposal instructions. If no restrictions, pour down the drain while running water. Do not mix with other products during disposal."
2. Industry representatives suggested, "Pour product down
the drain while running water [Do not mix with other products]," with
the latter part of the statement being optional.
Both of these suggestions have associated tradeoffs. Both options allow for disposal of the liquid cleaner down the
drain. The first option,
however, is too long to fit on a product label. Some members of the Subgroup pointed that the second option conflicts
with some state and local laws, polices, and practices.
Disposal
of Partially-filled Liquid Pesticide Containers
Three suggestions were made by members
of the Subgroup for label language for partially-filled liquid pesticide
containers:
1. Option 1 read, "Call your local waste disposal service. If local laws permit, put partially full container in trash. [Never pour product down any drain]," with the latter part
of the statement as optional.
2. Another option read, "Call your local environmental, health
or waste department for specific disposal instructions."
3. The third statement suggestion was for the label to say, "Place
in trash."
Both the first and the second options were seen by state and
local organizations representatives as viable, since they did not contradict
state and local laws or practices. Also, the first option gave consumers an alternative if they found
that there was no local guidance for disposal of liquid pesticide containers. The third option was seen as contradicting some state and local
laws, practices, and regulations.
Disposal of Partially-filled Aerosol Containers
There was disagreement from both the representatives from state
and local organizations and the industry representatives on suggestions
for disposal instructions for partially-filled aerosol containers. The following three suggestions were made, but no consensus was
reached for reasons outlined above.
1. "Call your local environmental, health or waste department
for specific disposal instructions."
2. "Place in trash."
3. "Call your local waste disposal service. If local laws permit, place partially full container in trash."
Except for the second suggestion, all of the above options would
allow consumers to be in compliance with any state or local practices
concerning the disposal of partially-filled aerosol cans. The third option also gives consumers alternatives if there are
no specific guidelines for these containers. As with liquid cleaner and pesticide containers, the option to
place the container in the trash is not an ideal one for state and local
organizations, as this instruction can contradict state and local laws
and practices.
Disposal
of Partially-filled Solid Cleaner Containers
As with liquid and aerosol containers, industry representatives
suggested that the text on labels of partially-filled solid cleaner containers
read, "Place in trash," whereas representatives from state
and local organizations wanted it to read, "Call your local environmental,
health or waste department for specific disposal instructions." Arguments similar to those above were made for both of these statements. Agency representatives felt that instructions to call a local waste
department for disposal instructions has the added benefit that if specific
instructions are not available, then the agency would likely encourage
the consumer to use up the product or give it to someone who can use it
up. This direction would allow consumers to practice source reduction,
which is preferred over disposal for managing wastes.
Disposal
of Partially-filled Solid Pesticide Containers
Similar suggestions were made for partially-filled solid pesticide
containers:
1. Industry representatives favored the statement, "Place
in trash."
2. Representatives from state and local organizations wanted label
language to be changed to read, "Call your local environmental,
health or waste department for specific disposal instructions."
Similar arguments for and against each of these statements were
offered by both groups of Stakeholders in the Subgroup.
As mentioned above, no consensus was reached on an appropriate
statement for partially-filled containers, and it was decided that any
change of this sort would have to be a decision of the EPA.
Finally, CSMA and HIPIC representatives suggested to the Subgroup
that a committee be formed to develop risk-based criteria for directing
particular consumer pesticides that may warrant special handling to waste
collection programs, such as household hazardous waste programs. They suggested that the committee be composed of experts from the
field of risk-assessment, EPA, consumer pesticide manufacturers, the solid
waste management industry, state and local HHW programs, and other appropriate
experts. The suggestion was
rejected, however, by members of the Subgroup from state and local agencies
who argued that the decision to divert some of these products to HHW programs
should not be based solely on risk assessment studies.
Storage and disposal issues were addressed again at a CLI Partner
and Task Force meeting in April 1999. Jean Frane, of the Office of Pesticide Programs (OPP), briefly
summarized recent OPP activities relating to storage and disposal issues,
specifically addressing the impasse reached by the Storage and Disposal
Subgroup (i.e., the conflict between storage and disposal instructions
on some product labels and local/state regulations, policies, or practices). At this meeting, it was pointed out that states are reluctant to
advance the "Read the Label FIRST!" campaign while there are
still outstanding unresolved issues concerning the storage and disposal
section of the label. Although
no new language has currently been proposed, OPP met with representatives
of state and local organizations, as well as representatives from industry,
and expects to have a proposal on storage and disposal language by Fall/Winter
1999.
In Phase I of the CLI, research findings, literature review
summaries, and Stakeholder comments indicated that many consumers do not
consistently or thoroughly read or use the labels of indoor insecticides,
outdoor pesticides, and household cleaning products. For this reason, changes to label information or design will
not lead to significant benefits to consumer knowledge, understanding,
or health and safety--unless consumers first read the labels.
Consumers have also stated in a variety of research arenas that
they do not understand much of the content of many of these product labels. In addition - and
more importantly from the point of consumer education - they
have expressed that they often do not feel motivated to read the labels,
because they see little personal benefit in doing so.
Overview and
Goals of the Consumer Education Campaign
A primary goal of the Consumer Education Campaign is to increase
consumer awareness of label information on a national level. Reaching consumers nationwide can represent a major commitment
of time and resources. The
CLI benefits greatly from equal involvement of a variety of participants,
many of whom have the ability and willingness to help produce and disseminate
consumer education materials. The
campaign thus involves and encourages the participation of many organizations
that represent avenues for reaching consumers directly, such as:
-
CLI
Partners' organizations;
-
state
and local government agencies;
-
non‑profit
organizations;
-
schools,
libraries, and civic groups; and
-
local
media, such as newspapers, magazines, radio, and cable channels.
Such broad participation by many organizations greatly increases
the possibilities for exposing consumers to repeated messages, and thus
increases the success of the campaign.
The CLI's goals included:
-
improving
product labels so that they would be easier for consumers to understand;
-
helping
consumers to become more aware of product labels and the information
they contain;
-
helping
consumers to feel more motivated to read and understand label information;
-
giving
consumers better tools for understanding label information; and
-
encouraging
consumers to more consistently and more thoroughly read labels of
these products, prior to purchase, use, storage, and disposal.
To address these goals, the CLI established a Consumer Education
Subgroup in Phase II, to encourage safe and environmentally responsible
behavior by consumers regarding indoor insecticides, outdoor pesticides,
and household cleaning products. This group included more than 20 participants, representing organizations
that have an interest in consumer education issues related to product
labeling. Various businesses,
state agencies, non-profit organizations, other organizations, and EPA
staff members are represented. The
group was expanded according to the recommendation presented by the Phase
II research, to include marketing, brand, outreach, education, and public
relations experts. The complete
list of participants can be found in Appendix 1-9.
The CLI was initiated to identify ways to:
-
increase
reading and use of labels;
-
decrease
the misuse of products;
-
decrease
the incidence of accidents involving products; and
-
decrease
environmental impacts caused by improper storage and disposal.
During Phase II, meetings of the subgroup occurred approximately
every two or three weeks, mainly through conference calls. All members of the subgroup received advance notice of the calls,
and future meetings were tentatively scheduled during these calls. An average of more than a dozen participants attended these calls. Participants discussed the concept and need for an education campaign
logo, slogan, materials to be used for consumer education, media venues,
and strategic plans. Feedback
from all participants was always encouraged; whenever possible, Stakeholder
opinions were weighed heavily in making decisions. After the September 1998 Partner and Task Force meeting, the Subgroup
was divided up into smaller groups targeting message development for consumer
education materials, the placement of the consumer education materials,
and the development of a consumer education campaign logo. Based on recommendations from the meeting, Partners were asked
to encourage the participation of key marketing personnel from their organizations.
The Consumer Education Subgroup conceptualized, developed, and
began implementing a broad‑based, long‑range consumer education
plan intended to help people to read, understand, interpret, and use label
information. The Subgroup
developed an easily understood message--"Read the Label FIRST!"--and,
at the time this report went to press, was in the process of developing
a unique, memorable, consumer‑friendly logo. The Subgroup also drafted text for outreach brochures targeting
gardeners, children's health, pet protection, and household products,
that was presented at a Partner and Task Force meeting in April 1999. The various components of the campaign will be designed to work
with and reinforce each other.
Components of the Consumer Education Plan
The EPA and its CLI Partner and Task Force members intend to
begin implementing the consumer education effort in Spring 2000 with the
public launch of the nationwide ARead
the Label FIRST!" campaign. This launch is timed to coincide with the appearance of newly redesigned
labels on store shelves and with the consumers' general interest in seasonal
gardening and cleaning activities. Eventually, the Consumer Education Subgroup intends to finalize
and make available to the public a variety of materials, possibly including
but not necessarily limited to the following:
-
brochures
or flyers for a general consumer audience, pet owners, parents, and
gardeners;
-
posters;
-
a
fact sheet on label changes resulting from the CLI;
-
camera-ready
logos; and
-
a
publicity guidance document outlining a variety of cost-effective
ways to use the Campaign's logo, slogans, taglines, brochures, and
other materials.
To make the Campaign materials useful to as many organizations
as possible, the Consumer Education Subgroup hopes to make the materials
available in easy-to-use formats. Restrictions on how organizations may use the materials will be
minimized.
At this point in time, the Consumer Education
Subgroup expects to use a variety of methods to announce and distribute
materials for the Campaign, potentially including the following:
-
sending
camera-ready materials to all CLI Partners, Task Force Members, and
Consumer Education Subgroup members, via regular mail and e-mail;
-
distributing
materials to trade associations for certain audiences (e.g., the national
Parent-Teacher Association);
-
distributing
materials through product manufacturers (who often provide information
at point of purchase, via mailings, etc.);
-
posting
of materials on the CLI website, available for downloading; and
-
mailing
press releases and information packets to appropriate organizations.
To be effective, consumer education needs to be directed toward
identified needs. Therefore,
the work to be implemented by the Consumer Education Subgroup depends
on decisions and recommendations made by other CLI subgroups. Findings from other components of the CLI have and will continue
to feed into the work of the Consumer Education Subgroup.
The intent of the Campaign is to have consistent, mutually reinforcing
messages targeting specific consumer audiences and originating from all
CLI participants and interested groups. The "Read the Label FIRST!" message will thus come
from government, industry, health, environmental, and consumer groups
alike. The slogan and logo
are designed to be accompanied by reasons why reading the label is important,
addressing the main motivating factors for label reading that were identified
in the quantitative and qualitative research. Child and pet safety, environmental benefits, and gaining the best
value for money spent will feature among the top reasons to read labels
and follow label directions.
Following its initial emphasis on getting consumers to notice
and read labels, the intent of the CLI is to expand the Campaign to help
people better understand the information that appears on labels. This would include education in the meaning and use of signal words
(CAUTION, WARNING, DANGER), as well as information designed to teach people
why environmental information and storage and disposal information - which research shows are among the least often read sections on the label - are
important to the consumer.
The Consumer Education Subgroup has proposed a long-range Campaign
designed to unfold, expand, and develop over a number of years, including
nationally televised ads and educational curricula.
NAHMMA is a non-profit
association of individuals, businesses, governmental, and non-profit
officials, dedicated to pollution prevention and reducing hazardous
components entering municipal waste streams from households, small
businesses, and other entities.
CSMA is a voluntary
nonprofit trade association of some 400 companies engaged in the
manufacture, formulation, distribution, and sale of non-agricultural
pesticides, antimicrobials, detergents and cleaning compounds, industrial
and automotive specialty chemicals and polishes, and floor maintenance
products for household, institutional, and industrial uses.
HIPIC, formed
in 1994, was established to provide fact-based information on the
proper use, storage, disposal, and recycling of household and institutional
products. Its membership includes many suppliers and manufacturers
of household and institutional products.
For a complete
list of all states with HHW programs, refer to discussion of the
WWC report.
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