[Federal Register Volume 59, Number 43 (Friday, March 4, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-4818]


[[Page Unknown]]

[Federal Register: March 4, 1994]


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Part V





Environmental Protection Agency





_______________________________________________________________________



40 CFR Parts 271 and 279




Hazardous Waste Management System; Identification and Listing of 
Hazardous Waste; Recycled Used Oil Management Standards; Final Rule
ENVIRONMENTAL PROTECTION AGENCY

40 CFR Parts 271 and 279

[EPA/530-2-42-011; FRL-4845-2]

 
Hazardous Waste Management System; Identification and Listing of 
Hazardous Waste; Recycled Used Oil Management Standards

AGENCY: Environmental Protection Agency.

ACTION: Final rule.

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SUMMARY: On September 10, 1992, EPA exempted used oil inserted into 
crude oil pipelines from the part 279 used oil management standards. 
EPA is today clarifying the existing pipeline exemption and expanding 
the exemption to other petroleum refinery applications. Today's 
document clarifies that the exemption from the used oil management 
standards did not intend to exclude used oil mixed with crude oil or 
natural gas liquids (hereinafter referred to as ``crude oil'') in pre-
pipeline units (e.g., stock tanks, production separators) prior to 
being introduced into the crude oil pipeline. In addition, today's rule 
expands the used oil exemption to include transportation and/or storage 
of mixtures of small amounts of used oil (i.e., less than 1%) and crude 
oil that are destined for insertion into a petroleum refining facility 
process at a point prior to crude distillation or catalytic cracking.
    Today's rule exempts from the part 279 standards, used oil that is 
inserted into the petroleum refining facility process after 
distillation or catalytic cracking operations provided that the used 
oil meets the used oil specification prior to insertion.
    Today's rule also exempts from the part 279 standards used oil that 
incidentally enters and is recovered from a refinery's hydrocarbon 
recovery system or wastewater treatment system (i.e., process sewer, 
storm sewer, or wastewater treatment units), if the recovered used oil 
is subsequently inserted into the petroleum refinery process.
    In addition, today's rule expands the definition of transfer 
facility to allow used oil to be held more than 24 hours but less than 
35 days prior to specified activities.
    Finally, EPA is today amending the used oil processor standards to 
clarify that a specific set of on-site maintenance, filtering, and 
separation activities were not intended to be covered under the used 
oil processor standards. EPA is also correcting errors in regulations 
that appeared in the May 3, 1993, Federal Register.

EFFECTIVE DATE: April 4, 1994.

ADDRESSES: The regulatory docket for this rulemaking is available for 
public inspection at room 2427, U.S. Environmental Protection Agency, 
401 M Street SW., Washington, DC 20460 from 9 a.m. to 4 p.m., Monday 
through Friday, except for Federal holidays. The docket number is F-94-
UOTA-FFFFF. The public must make an appointment to review docket 
materials by calling (202) 260-9327. The public may copy a maximum of 
100 pages from any regulatory document at no cost. Additional copies 
cost $.20 per page.

FOR FURTHER INFORMATION CONTACT: For general information contact the 
RCRA Hotline, Office of Solid Waste, U.S. Environmental Protection 
Agency, 401 M Street SW., Washington, DC 20460; Telephone (800) 424-
9346 (toll free) or, in the Washington DC, metropolitan area at (703) 
920-9810.
    For information on specific aspects of this rule, contact Ms. Eydie 
Pines, telephone (202) 260-3509, U.S. EPA, 401 M Street SW., 
Washington, DC 20460.

SUPPLEMENTARY INFORMATION: The contents of today's preamble are listed 
in the following outline:

I. Authority.
II. Background.
    A. Summary of Recent Regulatory Actions Pertaining to Used Oil.
    1. Summary of May 20, 1992, Federal Register Notice.
    2. Summary of September 10, 1992, Federal Register Notice.
    3. May 3, 1993, and June 17, 1993 Correction Notices.
    B. Summary of the 1985 Comments.
    C. Summary of 1991 Comments.
III. Analysis of New Part 279 Provisions.
    A. Summary of Comments from Interested Parties.
    B. Definition of petroleum refining facility, used oil re-
refining facility.
    C. Used Oil Introduced into Crude Oil Pipelines or Petroleum 
Refineries.
    1. Used Oil Introduced into Crude Oil Pipelines.
    2. Storage and Transportation of Mixtures of Used Oil and Crude 
Oil.
    3. Used Oil Inserted into the Petroleum Refining Process without 
Prior Mixing and Mixtures of Greater Than One Percent Used Oil.
    4. Used Oil Inserted Into the Petroleum Refining Process after 
Crude Distillation or Catalytic Cracking.
    5. Used Oil Captured by the Refinery's Hydrocarbon Recovery 
System or Wastewater Treatment System and Inserted into Petroleum 
Refining Process.
    6. Stock Tank Bottoms.
    D. Used Oil Transportation. Definition of Transfer Facility.
    E. Used Oil Processing by Generators and Transfer Facilities.
    1. Definition of Used Oil Processor.
    (A) Reconditioning used oil before returning it for reuse by the 
generator.
    (B) Separating used oil from wastewater to make wastewater 
acceptable for discharge or reuse.
    (C) Using oil mist collectors to remove droplets of used oil 
from in-plant air to make plant air suitable for continued 
recirculation.
    (D) Removing used oil from materials containing or otherwise 
contaminated with used oil in order to remove excessive oil.
    (E) Filtering, separating, or otherwise reconditioning used oil 
before burning it in a space heater.
    F. Restrictions on transporters who are not also processors or 
re-refiners and changes to the definition of transfer facility.
    G. Tracking.
    H. Correction to the Regulatory Language.
    1. Requirements for enforcement authority.
    2. Rebuttable Presumption.
    3. Characteristic Hazardous Waste.
    I. Correction to the Preamble Language.
IV. State Authorization.
V. Executive Order 12866.
VI. Paperwork Reduction Act.
VII. Regulatory Flexibility Act.
VIII. Administrative Procedure Act.

Authority

    The regulations promulgated today are issued under the authority of 
sections 1004, 1006, 2002(a), 3014, and 7004 of the Solid Waste 
Disposal Act, as amended by the Resource Conservation and Recovery Act, 
and as amended by the Used Oil recycling Act, as amended, 42 U.S.C. 
6903, 6905, 6912(a), 6935, and 6974.

II. Background

A. Summary of Recent Regulatory Actions Pertaining to Used Oil

1. Summary of May 20, 1992, Federal Register Notice
    On May 20, 1992, EPA published a final listing determination for 
used oils that are destined for disposal (see 57 FR 21524). The Agency 
determined that used oils destined for disposal did not have to be 
listed as a hazardous waste because used oils do not typically and 
frequently meet the technical criteria for listing a waste as 
hazardous. EPA gave considerable attention, in reaching its 
determination, to the current Federal regulations that govern the 
management of used oils that are disposed, including the requirement 
for used oil that exhibits a characteristic of hazardous waste under 
subtitle C of RCRA.
    The May 20, 1992, Federal Register notice also included a 
categorical exemption from the definition of hazardous waste in 
Sec. 261.4 for non-terne-plated used oil filters that have been hot-
drained to remove used oil. EPA based this exemption on data submitted 
to the Agency indicating that these filters do not typically and 
frequently exhibit the toxicity characteristic.
2. Summary of September 10, 1992, Federal Register Notice
    On September 10, 1992, EPA promulgated a final listing decision for 
used oils that are recycled and simultaneously promulgated management 
standards for used oil, codified at 40 CFR part 279 (see 57 FR 41566). 
EPA determined that used oil destined for recycling did not have to be 
listed as a hazardous waste because the used oil did not meet the 
technical criteria for listing a waste as hazardous, particularly in 
light of the new management standards and other federal requirements 
which control the risks posed by improper management of used oil. The 
standards cover used oil generators, transporters, processors, re-
refiners, off-specification burners and marketers. The standards 
included an exemption from the management standards for used oil placed 
directly in a crude oil pipeline.
3. May 3, 1993, and June 17, 1993 Correction Notices
    On May 3, 1993, EPA published technical amendments and corrections 
to the May 20, 1992 and September 10, 1992, Federal Register Notices 
(see 58 FR 26421). On June 17, 1993, EPA corrected several errors in 
the May 3, 1993, notice (see 58 FR 33341).

B. Summary of the 1985 Comments Regarding Used Oil Mixed With Crude Oil 
Destined for Refineries

    On November 29, 1985, EPA proposed to list all used oil as a 
hazardous waste (50 FR 49248). Commenters responded that used oil mixed 
with crude oil be exempt from such regulation because the small 
quantities of used oil mixed with crude oil posed no threat to the 
environment when refined with crude oil.

C. Summary of 1991 Comments

    On September 23, 1991, EPA proposed that the two exemptions from 
subtitle C requirements promulgated in 1985 (see 40 CFR 261.6(a)(3) 
(v)-(viii)) for oil-bearing hazardous waste and fuels derived from 
these wastes, also apply to used oils. (56 FR 48026, 48042) EPA 
proposed exemptions from the used oil management requirements (whether 
or not EPA ultimately listed used oil as a hazardous waste) for: (1) 
Used oils that are reinserted as feedstocks at primary petroleum 
refineries; and (2) fuels derived from those used oils.
    Commenters (mainly the primary petroleum refining industry) stated 
that if EPA chose to list used oil as hazardous waste, the Agency 
should exempt used oil that is reintroduced into the refinery process 
from hazardous waste or used oil management standards requirements. 
Commenters further stated that if EPA did not adopt this exemption, the 
entire refinery process could be subject to hazardous waste management 
requirements, including permits. Commenters stated that this would be 
unwarranted because the reintroduction of used oil into the refining 
process contributes only insignificant concentrations of metals to the 
crude oil or finished petroleum product. Other commenters stated that 
refiners that handle used oil should be subject to the same 
requirements for used oil management as are used oil re-refiners.
    Commenters from the primary petroleum refining industry also stated 
that EPA should not limit the exemption to those instances where used 
oil is inserted before fluid catalytic cracking or distillation, since 
other conversion and distillation processes in the refinery would also 
remove, alter or immobilize impurities in the oil. They asserted that 
limiting the point of insertion could foreclose the future development 
of used oil recycling activities. These commenters also stated that 
limiting the insertion point could preclude refineries from accepting 
DIY oil. Commenters asserted that DIY oil might have to undergo certain 
pre-processing at refineries prior to its insertion into the refining 
process. They also asserted that under the proposed exemption, this 
pre-processing would not be exempt and would be a hazardous waste 
activity. Commenters stated that these activities are part of the 
refining process.
    Commenters from the primary petroleum industry further stated that 
EPA should extend the exemption to apply to used oil inserted into the 
pipeline at marketing, E&P and pipeline facilities for use in the 
refinery process. They asserted that used oil recovered from oil and 
gas exploration and production is placed in pipelines and trucks and 
returned to the refinery from other petroleum facilities. Commenters 
stated that the recovered oils are useful, valuable raw materials that 
are reintroduced into the crude stream for their economic value.

III. Analysis of New Part 279 Provisions

    On September 10, 1992, EPA promulgated a final listing decision for 
used oils that are recycled and simultaneously promulgated standards in 
40 CFR part 279 for the management of used oil under RCRA section 3014. 
Under Sec. 279.10(g) of part 279, EPA granted an exemption for used 
oils introduced directly into crude oil pipelines from part 279 
standards at the point at which they are introduced. EPA did not 
address the proposed exemptions for used oil inserted into the 
petroleum refining facility process either prior to or after crude 
distillation or catalytic cracking.
    The American Petroleum Institute filed a petition for review of the 
September 10, 1992, rule, on December 8, 1992, raising the issue that 
EPA had not addressed the proposed exemptions for petroleum refining, 
production, and transportation in the September 10, 1992, final rule. 
Today's rule responds to comments and addresses outstanding issues 
related to used oil and petroleum refining facility processes.

A. Summary of Comments From Interested Parties

    Today's rule was distributed in draft form for comment to the 
litigants and intervenors concerning the 1992 rule, and other concerned 
members of the regulated community, States, and environmental groups. 
The primary substantive comments received on the draft and EPA's 
responses to those comments are summarized below.
    EPA received several comments from the petroleum industry on the 
exemption from part 279 for storage and transportation of mixtures of 
used oil and crude oil that contain less than 1% used oil and are 
destined for insertion into petroleum refining process. These 
commenters objected primarily to provisions in the draft final rule 
limiting the exemption to mixtures that contain less than 1% used oil. 
The commenters also objected to limiting the amount of used oil that 
can be directly inserted into the petroleum refining process to 1% of 
the crude oil process unit throughput at any given time. EPA has 
retained the 1% limit in both cases in today's final rule for reasons 
discussed in section III.B.2 of this preamble.
    EPA received comments from used oil re-refiners (i.e., 
``secondary'' petroleum industry--a type of used oil processor) 
regarding the regulatory status of petroleum refineries that receive 
used oil from off-site and store the used oil on-site before mixing it 
with crude oil. The draft rule proposed to regulate petroleum refining 
facilities as used oil transfer facilities in these circumstances. 
Commenters stated, however, that petroleum refiners that receive used 
oil from off-site pose the same potential concerns from receipt of 
adulterated used oil and improper storage of used oil as re-refiners 
and should therefore be subject to the requirements for used oil 
processor/re-refiners prior to mixing. EPA agrees and has revised the 
draft rule accordingly. These changes are discussed in greater detail 
below.
    EPA also received numerous comments on provisions clarifying what 
constitutes a used oil processor. Provisions contained in the draft 
document would have prohibited both on- and off-site burning of used 
oil generated from specified activities that EPA is today clarifying 
are not subject to the used oil processor standards. Commenters stated 
that the used oil generated from these activities would be suitable for 
burning in accordance with the part 279, subpart G standards and that 
burning should not be further restricted. In response to these 
comments, EPA has decided to allow on-site burning of the used oil 
generated from these activities but has retained the prohibition 
against off-site burning. The basis for this decision is discussed in 
section III.C of today's preamble.

B. Section 279.1--Definition of Petroleum Refining Facility

    Today's rule establishes a regulatory definition for ``petroleum 
refining facility.'' EPA believes it is necessary to define this term 
in order to provide a clear distinction between what the Agency 
considers to be and regulates as primary petroleum refining facilities 
and facilities that EPA considers to be used oil re-refiners for 
regulatory purposes. Under today's rule, ``petroleum refining 
facility'' is defined as follows:

    ``Petroleum refining facility'' means an establishment primarily 
engaged in producing gasoline, kerosine, distillate fuel oils, 
residual fuel oils, and lubricants, through fractionation, straight 
distillation of crude oil, redistillation of unfinished petroleum 
derivatives, cracking or other processes (i.e., facilities 
classified as SIC 2911).

    A used oil re-refiner, in contrast, is a facility that processes 
used oil to produce lube base stocks and greases, industrial fuels, 
asphalt extenders, diesel like fuels, and other products.
    EPA is aware that petroleum refiners and used oil re-refiners 
employ similar production processes and produce similar products. 
Consequently, the Agency has avoided defining these facilities in terms 
of the process steps employed to produce a finished product or the type 
of products produced. As defined by today's rule, petroleum refining 
facilities and used oil re-refining facilities differ primarily in the 
material that constitutes the primary initial feed to the process. In 
order for a facility to be considered a petroleum refining facility, 
the material fed to the front end of the refining process must be 
comprised primarily of crude oil. In order to be considered a used oil 
re-refiner, the material entering the front end of the process must be 
comprised primarily of used oil.

C. Section 279.10(g)--Used Oil Introduced Into Crude Oil Pipelines or 
Petroleum Refining Facilities

1. Section 279.10(g)(1)--Used Oil Introduced Into Crude Oil Pipelines
    The September 10, 1992, final used oil regulations provided an 
exemption at Sec. 279.10(g) from management standards for used oil that 
is placed directly into a crude oil pipeline (see 57 FR 41613). Today's 
rule replaces Sec. 279.10(g) with Sec. 279.10(g)(1) which clarifies the 
original intent of the pipeline exemption. Section 279.10(g) of the 
September 10, 1992, final rule provided that ``Used oil that is placed 
directly into a crude oil, oil or natural gas pipeline is subject to 
the management standards of [part 279] only prior to the point of 
introduction into the pipeline. Once the used oil is introduced to the 
pipeline, the material is exempt from the requirements of [part 279].''
    EPA is concerned that the phrase, ``placed directly into a crude 
oil or natural gas pipeline,'' can be literally interpreted to apply 
more narrowly than the Agency had intended. EPA understands that it is 
standard practice to first mix small amounts of used oil, typically 
less than 1%, with crude oil in stock tanks, production separators or 
other tank units that are connected via pipeline to the petroleum 
refining facility (i.e., pre-pipeline units). It was not EPA's intent 
to exclude used oil that is mixed with crude oil in these pre-pipeline 
units from the Sec. 279.10(g) pipeline exemption. Rather, EPA intended 
to include this practice within the meaning of ``direct insertion.'' 
Because used oil is typically inserted into the petroleum pipeline 
through these pre-pipeline units, to exclude these units from the 
pipeline exemption would effectively render the exemption meaningless. 
Clearly this was not EPA's intent. Today's rule revises the language of 
the exemption to clarify that used oil may be inserted into the 
pipeline via pre-pipeline units (which contain crude oil) exempt from 
the requirements of part 279. It should be noted here that the 
Sec. 279.10(g)(1) pipeline exemption established by today's rule is 
limited to pipelines that convey crude oil from off-site locations to 
the petroleum refining facility. The exemption does not apply to 
pipelines that convey crude oil from one on-site location within a 
petroleum refinery to another. If such on-site piping contains used 
oil, it is exempt only if it qualifies under Secs. 279.10(g)(2)-(5) 
discussed below. Also, if processing of the used oil is performed prior 
to mixing with crude oil in these pre-pipeline units, such processing 
remains subject to the part 279, subpart F standards for used oil 
processors and re-refiners. Used oil that is generated and stored at 
the pipeline is subject to the used oil generator standards prior to 
mixing with crude oil. Used oil that is transported to the pipeline and 
immediately mixed with crude oil or stored for less than 24 hours prior 
to such mixing is subject to all Subpart E transporter standards except 
for Sec. 279.45 which applies to transfer facilities. Used oil that is 
transported to and subsequently stored at the pipeline for more than 24 
hours and less than 35 days prior to mixing with crude oil is subject 
to all the part 279, subpart E transporter/transfer facility 
requirements.
2. Section 279.10(g)(2)--Storage and Transportation of Mixtures of Used 
Oil and Crude Oil
    Section 279.10(g)(2) of today's rule expands the used oil 
management standard exemption to include: (1) Mixtures of used oil and 
crude oil containing less than 1% used oil that are being stored at the 
petroleum refining facility or in discrete units remotely located from 
the pipeline, as long as the mixture is destined for the refinery and 
inserted prior to crude distillation or catalytic cracking; and (2) 
mixtures of used oil and crude oil containing less than 1% used oil 
that are being transported (via truck, rail, or vessel) to the 
petroleum refinery or the pipeline for insertion into the petroleum 
refining process prior to crude distillation or catalytic cracking. The 
former exemption provided at Sec. 279.10(g) did not apply either to 
mixtures of used oil and crude oil that are stored at the petroleum 
refinery or in remotely located units, or to the transportation of 
mixtures of used oil and crude oil. The previous, more narrow exemption 
was based on the assumption that used oil was placed directly into the 
pipeline (or into units directly connected to the pipeline as 
previously discussed). EPA assumed that the mixing of used oil and 
crude oil occurred at the point at which used oil was inserted into the 
pipeline. EPA has since learned, however, that mixing frequently occurs 
at exploration and production sites that are remotely located from the 
pipeline or the petroleum refinery.
    For example, used oil generated during on- and off-shore drilling 
activities (e.g. from compressors, trucks and other heavy equipment) is 
routinely mixed with crude oil in units (e.g. production separators, 
seagoing vessels, stock tanks, etc.) located at the exploration and 
production site and then transported, as a mixture, to the pipeline or 
petroleum refining facility. Depending on the location of the drilling 
activities, the mixture of used oil and crude oil may need to be 
transported (by vessel, truck, rail, etc.) to a separate location for 
introduction into the pipeline or the petroleum refining facility. In 
the case of off-shore drilling sites for example, conveyance of the 
mixture may involve multiple modes of transportation (i.e., from the 
off-shore platform to land by vessel or pipeline and then to the crude 
oil pipeline by land-based transport). Today's exemption covers all 
modes of transportation of mixtures of used oil and crude or natural 
gas liquids, as long as the mixture contains less than 1% used oil and 
is destined for insertion into a petroleum refining facility process at 
a point prior to crude distillation or catalytic cracking. In addition, 
today's exemption covers storage of mixtures of used oil and crude oil, 
provided that the mixture contains less than 1% used oil and is 
inserted into a petroleum refining facility process prior to crude 
distillation or catalytic cracking.
    Used oil that is generated at exploration and production sites 
continues to be subject to used oil generator standards prior to being 
mixed with crude oil such that it is exempt under today's rule. Used 
oil that is generated off-site and transported to or stored at an 
exploration and production site is subject to the transporter and 
transfer facility standards, as applicable, up until the point at which 
the used oil is mixed with crude oil such that it is exempt under 
Sec. 279.10(g)(2).
    EPA is exempting mixtures of used oil and crude oil held in 
discrete units at a refinery or at remote locations because the Agency 
understands that the amount of used oil contained in these mixtures is 
extremely small relative to the large quantities of crude oil. In 
developing today's rule, EPA held numerous discussions with petroleum 
refinery industry representatives regarding the maximum amount of used 
oil contained in mixtures of used oil and crude oil that are destined 
for insertion into a petroleum refining process prior to crude 
distillation or catalytic cracking. Industry representatives repeatedly 
informed the Agency that used oil constitutes less than 1% of these 
mixtures. In gathering information for today's rule, EPA held 
conference calls with representatives from a number of petroleum 
refining companies (e.g., Mobil Oil Corporation and Phillips Petroleum 
Inc.,). The Agency also conducted several site visits, including visits 
to an Amoco refinery in Whiting, Indiana and a Mobil Oil Corporation 
refinery in Paulsboro, New Jersey. In each case, EPA was informed that 
used oil does not currently, and will not comprise greater than 1% of 
the crude oil/used oil mixture because of the sheer volumes of crude 
oil that are continuously being produced and processed relative to the 
amount of used oil that is generated at production sites or refineries. 
This recent information is consistent with comments submitted in 
response to the 1985 Used Oil Proposed Rule in which Exxon Company, USA 
stated that the average percentage of used oil in refinery feed stock 
streams is less than 0.02% and Texaco, Inc., indicated that used oil 
would constitute no more than 0.01% of the refinery input.
    EPA does not believe it is necessary to apply the used oil 
management standards to the less than 1% fraction of used oil that is 
being held temporarily in discrete units or transported from those 
units to the pipeline or the petroleum refinery for recycling as part 
of a mixture that is composed overwhelmingly of crude oil. In essence, 
because of the high ratio of crude oil to used oil, EPA considers the 
mixture to be equivalent to crude oil for regulatory purposes. EPA's 
part 279 standards were designed to control those particular risks 
associated with the management of used oil (e.g., uncontrolled burning, 
improper storage practices by used oil handlers) pursuant to section 
3014 of RCRA.
    The reason for EPA's imposition of a 1% limit on the amount of used 
oil contained in mixtures of used oil and crude oil being stored or 
transported to a crude oil pipeline or petroleum refinery prior to 
insertion into the refining process is that, while we have determined 
that the small amounts of used oil that are being added to crude oil 
under current practices pose no incremental risk over normal crude oil, 
we have not evaluated whether larger amounts of used oil also pose no 
incremental risk. Given the information provided to EPA by the 
petroleum refining industry regarding the inherent limitations on the 
amount of used oil that is or should be contained in mixtures of used 
oil and crude oil (i.e., less than 1%), and given that EPA has received 
no information, either recently, or in response to previous rulemakings 
that provides basis for an alternative limit, the Agency sees no point 
in imposing a higher cap. Imposition of a higher cap could have the 
effect of encouraging mixing of used oil with crude oil that would not 
otherwise occur during the normal course of petroleum refining 
operations. Such an incentive might lead to increased incremental risk 
from management of large amounts of used oil, exempt from the part 279 
standards, at petroleum refineries. EPA also concluded that a less 
precise limit (i.e., ``de minimis'' or ``small amounts''), as was 
suggested by some commenters from the petroleum refining industry, 
would needlessly cause uncertainty, given that EPA was told repeatedly 
that amounts currently introduced are far less than 1%.
3. Section 279.10(g)(3)--Used Oil Inserted Into the Petroleum Refining 
Process Without Prior Mixing and Mixtures of Greater Than One Percent 
Used Oil
    As previously stated, under today's rule, mixtures of used oil and 
crude oil containing less than 1% used oil that are transported to or 
stored at a petroleum refinery, and are introduced prior to crude 
distillation or catalytic cracking, are exempt from part 279 standards 
under Sec. 279.10(g)(2). It is EPA's understanding, based on 
information received from petroleum industry representatives, that used 
oil can potentially be inserted directly into the petroleum refining 
process prior to crude distillation or catalytic cracking without 
either: (1) Mixing the used oil with crude oil feedstocks, or (2) pre-
processing of the used oil to ensure that any contaminants in the used 
oil will not interfere with the refining process (e.g., contaminants 
fouling a catalyst, etc.). Based on this understanding, today's 
exemption also applies to used oil that is introduced directly into the 
petroleum refining process at a point prior to crude distillation or 
catalytic cracking as long as the used oil comprises less than 1% of 
the crude oil feed to a petroleum refining facility process unit at any 
given time. Again, because of the high ratio of crude oil to used oil, 
EPA considers these mixtures to be equivalent to crude oil for 
regulatory purposes. Therefore, the Agency believes that this activity 
would pose no significant increase in risk.
    Used oil that is inserted directly into the petroleum refining 
process (at a volume of less than 1% of the crude oil process unit feed 
at any given time) is considered mixed, and therefore exempt from part 
279, at the point at which it enters the process. This exemption 
applies both to used oil generated at the petroleum refining facility 
where the used oil is being inserted, and to used oil generated off-
site that is collected and transported to the petroleum refining 
facility for insertion into the refining process prior to crude 
distillation or catalytic cracking.
    Used oil that is inserted into the petroleum refining process 
without first being mixed with crude oil feedstocks (e.g. in crude oil 
stock tanks) is subject to part 279 standards prior to insertion. Used 
oil that is generated on-site and then stored without prior mixing and 
used oil generated on-site that constitutes greater than 1% of a 
mixture of used and crude oil continues to be subject to the part 279, 
subpart C standards for generators. With the exception of used oil that 
is exempt from the part 279 standards because it constitutes less than 
1% of a mixture of used oil and crude oil, used oil that is generated 
off-site and then transported to or stored at a petroleum refining 
facility, continues to be subject to the applicable part 279 
requirements i.e., to the requirements for used oil transporters and 
transfer facilities while being transported and to the requirements for 
used oil processors upon receipt at the petroleum refining facility. 
Petroleum refining facilities that receive used oil from off-site for 
direct insertion into the petroleum refining process are subject to the 
used oil processor standards from the point at which they receive the 
used oil up until the point at which the used oil is inserted into the 
petroleum refining process. Finally, it is important to reiterate that 
the exemptions provided under both Secs. 279.10(g)(2) and 279.10(g)(3) 
of today's rule apply at the point of mixing and only to mixtures that 
contain less than 1% of used oil.
    Although petroleum industry representatives have raised concerns 
that a 1% limit on the amount of used oil that can be inserted directly 
into the petroleum refining process may be technology limiting, EPA has 
not received any information that would support this position, nor has 
the Agency received information to support an alternative level. The 
Agency believes that by limiting the amount of used oil that can be 
introduced directly into the refining process exempt from the used oil 
processing standards, it can better ensure against mixing only to avoid 
compliance with the part 279 processing standards. If information 
becomes available that the 1% limit is inhibiting used oil recycling, 
the Agency will consider whether any change to the rules is necessary.
    In the draft rule, EPA proposed to regulate petroleum refining 
facilities that receive used oil from off-site as used oil transfer 
facilities prior to mixing. However, EPA agrees with comments on the 
draft rule that petroleum refining facilities that receive used oil 
from off-site pose the same potential concerns associated with receipt 
of adulterated used oil and improper storage of used oil as used oil 
re-refiners. Petroleum refining facilities that receive used oil from 
off-site may not have adequate information to ensure that the used oil 
has not not been improperly mixed with listed hazardous waste. Also, 
the volumes of used oil that may be managed require adequate planning 
for dealing with emergency releases. EPA has therefore revised the 
final rule to provide that petroleum refining facilities that receive 
and store used oil from off-site are subject to the used oil processor 
standards prior to mixing. The principal effect of this change is that 
petroleum refiners that receive used oil from off-site must prepare a 
waste analysis plan to ensure that the used oil has not been mixed with 
hazardous waste and must maintain an operating record to document 
compliance with the waste analysis plan. In addition, such refineries 
will have to adopt or amend emergency contingency plans to address used 
oil in accordance with Sec. 279.52 of the used oil management 
standards.
4. Section 279.10(g)(4)--Used Oil Inserted Into the Petroleum Refining 
Process After Crude Distillation or Catalytic Cracking
    Under Sec. 279.10(g)(4) of today's rule, used oil that is inserted 
into the petroleum refining process after crude distillation or 
catalytic cracking is exempt from the part 279 standards provided that 
the used oil meets the used oil specification prior to insertion. Used 
oil remains subject to part 279 standards up until its actual insertion 
into the petroleum refining process. As previously discussed, used oil 
generated on-site must be stored according to part 279, subpart C 
standards for used oil generators. Used oil generated off-site must be 
transported according to the part 279, subpart E standards for 
transporters and transfer facilities and stored according to the part 
279, subpart F standards for used oil processor/re-refiners.
    EPA's use of the terms ``before'' and ``after'' crude distillation 
or catalytic cracking is intended to distinguish between the initial 
part of the petroleum refining process where crude oil is the primary 
feedstock and is refined by undergoing crude distillation or catalytic 
cracking and the latter part of the petroleum refining process where 
crude oil residuals constitute the primary feed, and coke and asphalt 
are the primary products. Refinery processes that occur after crude 
distillation or catalytic cracking do not provide refining to the same 
extent as that which occurs as a result of crude distillation or 
catalytic cracking. Crude distillation or catalytic cracking is 
expressly designed to remove, alter, or otherwise immobilize 
contaminants in the normal course of the refining process. EPA has 
insufficient information on post-crude distillation or catalytic 
cracking units identified by commenters (e.g., asphalt towers, 
petroleum cokers), and is concerned about the possible environmental 
effects (e.g., air emissions, transfer of inorganics to asphalt or 
petroleum coke) of placing large amounts of off-specification used oil 
into the petroleum refining process without passing through the crude 
distillation or catalytic cracking units. In contrast, on-specification 
used oil may be burned in the same manner as virgin petroleum fuel in 
other situations, therefore it makes little sense to restrict its use 
as a feedstock to the petroleum coker (or in any other process 
``after'' crude distillation or catalytic cracking).
    It should be noted that if off-specification used oil is inserted 
into petroleum refining processes after crude distillation or catalytic 
cracking (e.g., a coker), the facility would be subject to the used oil 
processing requirements in part 279, subpart F. In addition, petroleum 
refining facilities that wish to insert on-specification used oil into 
the refining process after crude distillation or catalytic cracking and 
that are the first to claim that the used oil is on-specification 
(whether generated at the refinery, or at an off-site location), would 
be defined as marketers subject to the requirements for used oil 
marketers found in part 279, subpart H.
5. Section 279.10(g)(5)--Used Oil Captured by the Refinery's 
Hydrocarbon Recovery System or Wastewater Treatment System and Inserted 
Into Petroleum Refining Process
    Section 279.10(g)(5) of today's rule exempts from the part 279 
standards used oil that incidentally enters and is recovered from a 
petroleum refining facility's hydrocarbon recovery system or its 
wastewater treatment system (e.g., process sewer, storm sewer, or 
wastewater treatment units), if the recovered used oil is subsequently 
inserted into the petroleum refining process. Oil (that may contain 
small amounts of used oil) that has been recovered from a refining 
facility's hydrocarbon recovery or wastewater treatment system is 
typically used as a feedstock in petroleum refining to produce more 
petroleum products. EPA understands that used oil, generated from 
routine refinery process operations and that incidentally enters a 
refinery's recovery or wastewater treatment system (e.g., drips, leaks, 
and spills from compressors, valves, and pumps), represents a small 
portion of the total oil that enters (and is then recovered from) the 
recovery or wastewater treatment system. Thus, the oil recovered from 
the system is more properly characterized as crude feedstock than used 
oil. Provided the used oil is inserted into the petroleum refining 
process, EPA believes that regulation under part 279 standards is 
unwarranted. This exemption from the part 279 standards does not extend 
to used oil which is intentionally introduced into a petroleum 
refinery's recovery or wastewater treatment system (e.g., pouring 
collected used oil into any part of the hydrocarbon recovery system, 
storm or process sewer system or into wastewater treatment units). Used 
oil may not be introduced to the refinery's hydrocarbon recovery or 
wastewater treatment system as a way to avoid meeting the conditions 
specified in Sec. 279.10(g)(4).
    For the purposes of the exemption in today's rule, the examples 
cited in the existing de minimis wastewater exclusion (Sec. 279.10(f)) 
provide guidance on what types of releases to a refinery's hydrocarbon 
recovery or wastewater treatment system would be considered ``routine'' 
or ``incidental''. The exemption is intended to cover losses from 
drippage, minor spillage, etc., that cannot be reasonably avoided. For 
example, used oil that has been collected from equipment or vehicle 
maintenance activities and intentionally introduced into a refinery's 
wastewater treatment system would not be exempt under Sec. 279.1(g)(5) 
from the part 279 standards once recovered. Similarly, used oil that is 
generated off-site and is brought to the refinery may not be added to 
any portion of the refinery's wastewater treatment system (i.e., 
process sewer, storm sewer, or wastewater treatment units), and still 
be exempt under Sec. 279.10(g)(5) once recovered; such oil is clearly 
not ``incidentally captured'' by the refinery's wastewater treatment 
system. In fact, unless specifically exempted under Sec. 279.10(g)(2) 
or Sec. 279.10(g)(3) of today's rule, this type of activity would meet 
the definition of used oil processing under the existing used oil 
management standards (see 40 CFR 279.1).
    Today's rule does not preclude intentional introduction of used oil 
in to the facility's recovered oil tanks. EPA is aware that used oil 
from both on- and off-site is often added directly to the petroleum 
refining facility's recovered oil tanks. Mixtures of used oil and 
recovered oil that contain greater than 1% used oil are regulated as 
used oil. Mixtures of used oil and recovered oil that contain less than 
1% used oil and are inserted into the petroleum refining process prior 
to crude distillation or catalytic cracking are exempt from the part 
279 used oil management standards under Sec. 279.10(g)(2). Mixtures of 
used oil and recovered oil that contain less than 1% used oil and are 
inserted into the petroleum refining process after crude distillation 
or catalytic cracking are exempt from the part 279 standards (under 
Sec. 279.10(g)(4)) only if the used oil meets the used oil 
specification prior to mixing with recovered oil.
6. Section 279.10(g)(6)--Stock Tank Bottoms
    Section 279.10(g)(6) of today's rule exempts tank bottoms from 
stock tanks containing exempt mixtures of used oil and crude oil from 
the part 279 standards. Like the actual mixtures of used oil and crude 
oil, the bottoms from these mixtures are expected to contain 
insignificant amounts of used oil. Therefore, the Agency does not 
believe that the bottoms from tanks (or other units) containing 
mixtures of used oil and crude oil should be subject to the used oil 
management standards. The tank bottoms are subject to all other 
applicable requirements, i.e., the Sec. 262.11 requirement to determine 
if they are hazardous waste.

D. Used Oil Transportation

Section 279.1--Definition of Transfer Facility
    Today's rule revises the definition of transfer facility to allow 
used oil to be held at a location (i.e., a transfer facility) 
temporarily prior to activities that are not subject to the processor 
standards as a result of today's rulemaking. In the September 10, 1992 
final rule, a transfer facility was defined as a transportation-related 
facility where shipments of used oil are held for more than 24 hours 
but less than 35 days during the normal course of transportation. 
Today's rule expands that definition to allow used oil to be held for 
more than 24 hours but less than 35 days during the normal course of 
transportation or prior to an activity performed pursuant to 
Sec. 279.20(b)(2). Under the amended definition, as discussed below in 
section F of this preamble, a site to which used oil from oil-bearing 
electrical transformers is transported for filtering prior to reuse 
would be considered a transfer facility under today's definition.

E. Section 279.20(b)(2)(ii)--Used Oil Processing by Generators and 
Transfer Facilities

    Since the promulgation of the September 10, 1992, Used Oil 
Management Standards, a number of parties have raised concerns 
regarding the definition of used oil processor and the types of 
activities that are covered by that definition. The commenters are 
concerned that a broad construction of the term processor 
inappropriately includes a number of very basic on-site generator 
activities that the Agency did not intend to regulate under the used 
oil processor standards (e.g. reconditioning/maintenance to extend the 
life of used oil, separation of used oil from wastewater discharge, 
etc.). EPA agrees that activities such as these, when performed by the 
generator, were not intended to be covered under the used oil processor 
standards because used oil processing is not their primary purpose, as 
explained below in greater detail. In fact, too broad an interpretation 
of the processor definition may discourage environmentally beneficial 
recycling and waste minimization activities by imposing an unwarranted 
regulatory burden on owners and operators that EPA did not intend to 
regulate as used oil processors.
    Therefore, today's rule revises the used oil management regulations 
to clarify the Agency's intent regarding the definition of a used oil 
processor by specifying those on-site maintenance, filtering, and 
separation activities that are not, and were not intended to be subject 
to the used oil processing standards. Under today's rule, generators\1\ 
who only handle used oil in a manner specified under 
Sec. 279.20(b)(2)(ii) are not processors provided that the used oil is 
generated on-site and is not being sent directly off-site to a burner 
of on- or off-specification used oil fuel. (Section 279.20(b)(2)(ii) 
also applies to collection centers and aggregation points since these 
entities are regulated as generators.)
---------------------------------------------------------------------------

    \1\A used oil generator is any person, by site, whose act or 
process produces used oil or whose act first causes used oil to 
become subject to regulations. For example, generators include all 
persons and businesses who produce used oil through commercial or 
industrial operations and vehicle services, including government 
agencies, and/or persons and businesses who collect used oil from 
households and ``do-it-yourself'' oil changes.
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    Activities that EPA did not intend to include under the definition 
of used oil processor are described below. EPA does not believe that 
the activities identified in Sec. 279.20(b)(2)(ii) should be subject to 
the used oil processor standards because used oil processing is not the 
primary purpose of these activities i.e., the primary purpose of these 
activities is not to produce from used oil or to make it more amenable 
for the production of used oil derived products, and the Agency does 
not expect these limited activities will pose the same kinds of 
environmental problems that may occur at processor facilities. Instead, 
in these cases, the act of mixing, filtering, separating, draining 
etc., used oil by the generator constitutes a basic step that is 
incidental or ancillary to a primary activity which is distinct from 
used oil processing. It is important to note, however, that owners or 
operators who generate used oil as a result of any of the activities 
specified in Sec. 279.20(b)(2)(ii) are considered used oil generators 
and are subject to the generator standards in subpart C.
    EPA is allowing on-site but not off-site burning of used oil 
generated from designated on-site activities because the Agency 
believes that this approach best enables EPA to strike a reasonable 
balance between encouraging beneficial on-site reuse and recycling 
activities that should pose very limited risks, on one hand, and 
ensuring that activities undertaken primarily to make used oil more 
amenable for burning (i.e., used oil processing) are adequately 
controlled under the more stringent used oil processing standards.
    The definition of a used oil processor is based on the purpose for 
which used oil is being filtered, separated, or otherwise reconditioned 
(i.e., whether the activity is designed to produce used oil derived 
products or to make used oil more amenable for the production of used 
oil derived products). The Agency is concerned that in situations where 
used oil is being filtered, separated or otherwise reconditioned and 
then sent to off-site burners, the purpose of the activity may prove 
difficult to discern and that consequently, Sec. 279.20(b)(2)(ii) 
provisions may be used as a means to avoid compliance with the used oil 
processor standards (i.e., by persons who claim not to be used oil 
processors under the Sec. 279.20(b)(2)(ii) provisions but whose primary 
purpose is to make the used oil more suitable for burning). Therefore, 
EPA believes it is necessary to adopt an objective measure of the 
purpose of the activity. The Agency believes that a prohibition against 
sending used oil generated from specified on-site activities to off-
site burners provides the most practical and effective way to ensure 
that activities undertaken only to make used oil more amenable for 
burning are subject to the used oil processor standards.
1. Definition of Used Oil Processor
    (A) Reconditioning used oil before returning it for reuse by the 
generator. Under today's rule facility owners or operators who clean, 
separate, or otherwise recondition used oil generated on-site and then 
reuse it are not considered used oil processors, provided that the 
reconditioned used oil is being reused by the owner or operator who 
generated it. Examples of activities covered under this category 
include filtering of metalworking fluids for reuse, and filtering and 
then replacing oil from oil-bearing transformers and turbines during 
routine maintenance.
    Most manufacturing facilities have in place central filtration 
systems designed to remove contaminants from and extend the life of 
water-soluble metal working fluids (e.g., lubricants and coolants), 
used in machining, grinding, and boring equipment. These filtration 
systems are on-site systems that filter chips, metal fines, dirt, 
water, and other contaminants from cutting fluids, drawing lubricants 
and coolants used in machining operations. The filtration of these 
extraneous materials is designed to extend the life of the reusable 
coolants and lubricants and is incidental to the production process. 
Today's rule clarifies that this type of filtration activity is not 
subject to the used oil processing standards when the generator reuses 
the filtered oil.
    Similarly, during regularly scheduled maintenance of oil-bearing 
transformers and turbines, the oil in the electrical equipment is 
removed so that repairs/maintenance can be performed. In some 
instances, the oil is filtered prior to replacement. The filtering of 
the used oil is done to extend the life of the used oil, not because 
the oil is no longer useful, and is therefore ancillary to the 
equipment repair and maintenance. While, under today's rule, the owner 
or operator would not be considered a processor in these cases, the 
draining of the used oil from the transformer constitutes generation of 
used oil so that the facility would be considered a used oil generator.
    The Agency is aware that not all used transformer oil is drained 
and filtered in the field. Instead, the oil-bearing electrical 
equipment may be transported to a central location where the oil is 
removed, filtered, and replaced. Or, the used oil may be removed from 
the transformers or turbines in the field and then transported 
separately in a tanker truck to a central location where it is filtered 
and put back into electrical equipment. Under today's rule, in cases 
where electrical equipment containing used oil is transported to a 
central location, the transporter of the oil bearing electrical 
equipment would not be considered a used oil transporter. However, the 
owner or operator would become a generator at the point at which the 
used oil is drained from the equipment (i.e., at the site where the oil 
is drained and filtered).
    In cases where the used oil is removed from the transformers or 
turbines in the field and then transported separately in a tanker truck 
to a central location for filtering prior to replacement into 
electrical equipment, the owner or operator would become a generator in 
the field (i.e., at the point at which the used oil is drained). The 
person who then transports the used oil would also be considered a used 
oil transporter subject to the transporter standards. In these cases, 
the location at which the used oil is filtered would be considered a 
used oil transfer facility subject to the transfer facility standards 
in Sec. 279.45, provided that the used oil is stored at the site for 
more than 24 hours and less than 35 days. If the used oil is filtered 
within 24 hours of being drained (i.e., during transport) only the part 
279 standards for used oil transporters would apply. This filtering 
activity should not raise the kind of environmental concerns that would 
be present at used oil processors; essentially, the filtering is 
incidental to the transportation and storage and should not change a 
facility's regulatory status. As discussed in more detail below, 
today's rule provides that transporters of used oil that is removed 
from electrical transformers and turbines and filtered by the 
transporter or at a transfer facility prior to being returned to the 
same use are not subject to the processor or re-refiner requirements in 
subpart F. In accordance with Sec. 279.10(e), once the used oil has 
been reclaimed to the point where it is ready for reuse without further 
processing, it is not subject to regulation as used oil.
    (B) Separating used oil from wastewater to make wastewater 
acceptable for discharge or reuse. Today's rule clarifies that oil/
water separation activities designed to make wastewater acceptable for 
discharge or reuse are not subject to the used oil processor standards. 
Facilities often use oil/water separators to remove oil (which may 
contain used oil) from oil/water mixtures collected from the facility's 
storm sewer, process sewer, sumps and other wastewater containment 
areas. These separation systems use chemical and physical methods to 
break the oil/water emulsion and recover oil from the wastewater in 
order to make the wastewater or storm water acceptable for discharge or 
reuse in compliance with local, state and federal regulations.
    This type of pretreatment of wastewater containing oil is designed 
primarily to ensure that the wastewater meets established limits for 
water discharge to streams and POTWs, and not to produce used oil 
derived products or to make used oil more amenable for the production 
of used oil derived products. This type of oil/water separation 
activity is therefore not subject to the used oil processor standards 
as clarified under today's rule. It should be noted, however, that any 
used oil recovered from separator units would be subject to the used 
oil generator standards. It is also important to note that this 
provision applies only to used oil that is generated on-site. The 
provision would apply, for example, to simple oil water separation 
activities conducted (for purposes of wastewater discharge) by a used 
oil processor on wastewater which has been generated by that processor. 
However, persons who perform oil/water separation activities on oily 
wastewater received from off-site would be considered used oil 
processors.
    (C) Using oil mist collectors to remove droplets of used oil from 
in-plant air to make plant air suitable for continued recirculation. As 
clarified under today's rule, the act of removing used oil from ambient 
air in the workplace is not subject to the used oil processor 
standards. At manufacturing facilities, droplets of used oil from 
machining operations are often dispersed into in-plant air. Oil mist 
collectors physically remove the small droplets of oil present in the 
ambient air. This activity is not subject to the used oil processing 
standards because it is intended primarily to make plant air suitable 
for continued recirculation and not to produce products from used oil 
or to make it more amenable for the production of used oil derived 
products. However, the oil removed from oil mist collectors is subject 
to the used oil generator standards.
    (D) Removing used oil from materials containing or otherwise 
contaminated with used oil in order to remove excessive oil. Under 
Sec. 279.10(c) of the used oil standards, materials containing or 
otherwise contaminated with used oil from which the used oil has been 
properly drained or removed to the extent possible such that no visible 
signs of free-flowing oil remain in or on the material are not used oil 
except when burned for energy recovery. Today's rule clarifies that the 
Agency does not consider the removal of used oil from materials 
containing or contaminated with used oil in order to remove excess oil 
in accordance with Sec. 279.10(c) to be used oil processing. The 
production of used oil derived products is clearly not the primary 
reason for removing used oil from materials containing or contaminated 
with used oil. Instead, the activity is conducted primarily to clean 
the materials (e.g., machine tools, scrap metal, etc.) prior to reuse, 
recycling, or disposal and is therefore not subject to the used oil 
processing standards as clarified by today's rule. However, in removing 
the used oil from the materials, the owner or operator becomes a used 
oil generator subject to the Subpart C used oil generator standards.
    (E) Filtering, separating, or otherwise reconditioning used oil 
before burning it in a space heater. Under Sec. 279.23 of the used oil 
standards, used oil may be burned in a used oil-fired space heater 
under specified conditions, and provided that the space heater burns 
only used oil that the owner or operator generates and/or used oil 
obtained from household DIY oil changers. Prior to burning, the used 
oil must often be filtered to remove impurities. Today's rule clarifies 
that filtering of used oil for the purpose of removing contaminants 
prior to burning the used oil in a space heater is not considered 
processing of used oil.
    EPA provided a regulatory exemption from the used oil burning 
standards for generators who burn used oil in on-site space heaters (in 
accordance with Sec. 279.23) because the Agency believes that burning 
of small amounts of used oil in space heaters poses insignificant risks 
due to the small volume of used oil burned (see 50 FR 49194, Nov. 29, 
1985). The Agency believes that, because of the small volumes of used 
oil involved, filtering, separating, or otherwise reconditioning used 
oil that is generated on-site prior to burning it in a space heater 
would also not pose significant risk. Therefore, although the purpose 
of the filtering activity in this case is to make the used oil more 
amenable for burning, because of the small amounts of used oil being 
filtered for this purpose, the Agency does not believe that imposition 
of the used oil processor standards is warranted. EPA is therefore 
adding a regulatory clarification (Sec. 279.20(b)(2)(ii)(F)) that the 
used oil processor standards do not apply to filtering of used oil 
prior to burning it in a space heater, provided that the used oil is 
generated on-site or obtained from households or ``do-it-yourself'' oil 
changes.
    F. Section 279.41--Restrictions on transporters who are not also 
processors or re-refiners and changes to the definition of transfer 
facility.
    Today's rule amends Sec. 279.41 to provide that transporters of 
used oil that is removed from oil-bearing transformers and turbines and 
filtered by a transporter or at a transfer facility before being 
returned to its original use are not subject to the used oil processor 
and re-refiner requirements. As previously discussed, during routine 
maintenance of oil-bearing transformers and turbines (or similar 
equipment), the oil in the electrical equipment is removed so that 
repairs/ maintenance can be performed. In some cases, the used oil is 
removed from the transformers or turbines in the field and then 
transported separately in a tanker truck (subject to the used oil 
transporter standards) to a central location where it is filtered and 
put back into electrical equipment. As discussed above, under today's 
rule the filtering of the used oil would not be considered used oil 
processing provided that the filtered oil is reused in the same or 
similar manner. And, in these cases (i.e., where the used oil is 
removed from the equipment and transported to a separate location for 
filtering), the location at which the oil is filtered would be 
considered a transfer facility provided that the used oil is stored for 
more than 24 hours and less than 35 days. If, as sometimes occurs, the 
used oil is filtered within 24 hours of being stored at the central 
location (i.e., during transport) the only applicable standards would 
be the part 279 standards for used oil transporters (i.e., the 
Sec. 279.45 requirements for used oil storage at transfer facilities 
would not apply).
    Section 279.41(c) of today's rule provides conforming changes to 
the used oil transportation standards to allow transporters or transfer 
facilities to filter the used oil without being subject to the used oil 
processor standards. It should be clearly noted, however, that if the 
used oil is stored at a site for more than 35 days, greater 
environmental concerns may be present, so the site would no longer be 
considered a transfer facility and the processor standards would apply.
    In addition, this rule expands the definition of transfer facility 
to allow used oil to be held at a location (i.e., a transfer facility) 
temporarily prior to activities that are exempt from or performed 
pursuant to the part 279 standards as a result of today's rulemaking. 
Under today's revised definition, used oil can be held at a transfer 
facility for more than 24 hours but less than 35 days prior to an 
activity and performed pursuant to Sec. 279.20(b)(2). As a result of 
this change, a site where used oil that has been drained from oil-
bearing transformers and turbines is held for more than 24 hours and 
less than 35 days prior to being filtered for reuse would be considered 
a transfer facility.
    G. Section 279.46--Tracking Today's rule revises the Sec. 279.46 
tracking requirements as they apply to rail transporters. Under amended 
Sec. 279.46, a signature is not required on records of acceptance or 
records of delivery of used oil shipments that are exchanged between 
rail transporters. The Agency is making this change in response to 
comments submitted by the railroad industry regarding the 
impracticability of requiring signed receipts when used oil is 
transferred from one rail transporter to another. EPA is aware that 
rail cars are typically transferred from one railroad company to 
another without the face-to-face contact that occurs in, for example, 
the motor carrier industry. The Agency also recognizes that, unlike 
non-rail transporters, railroads rely on sophisticated electronic 
tracking and information systems for recording rail-to-rail transfer of 
cargo. Given these unique circumstances, and in light of the fact that 
40 CFR 263.20(f) regulations for hazardous waste transporters do not 
include signature requirements for intermediate rail carriers, EPA 
agrees that the signature requirements are unduly burdensome and 
unnecessary when applied to intermediate used oil rail transporters. 
EPA is therefore revising the used oil regulations to eliminate the 
Sec. 279.46 signature requirements between intermediate rail carriers.

H. Corrections to the Regulatory Language

1. Requirements for Enforcement Authority
    The Agency published a correction notice on May 3, 1993, which 
amended several sections of the part 279 used oil management standards 
that were originally promulgated on September 10, 1992. In the May 3, 
1993, correction notice, EPA incorrectly amended regulatory 
Sec. 271.16, that addressed the requirements for States to have 
adequate criminal enforcement authority for hazardous waste. EPA 
amended the regulation to include enforcement authority for used oil 
handlers that manage used oil incorrectly, but EPA inadvertently 
deleted from Sec. 271.16 enforcement authority for the improper 
management of hazardous waste. Therefore, today's rule corrects this 
section to include enforcement authority for the improper management of 
both hazardous waste and used oil.
2. Rebuttable Presumption
    The final used oil regulations published on September 10, 1992, 
allow persons to rebut the presumption that used oil containing more 
than 1,000 ppm total halogens is a hazardous waste by using an 
analytical method from SW-846, Third Edition, to show that the used oil 
does not contain hazardous waste. In the regulations, the Agency 
provided information on the cost of SW-846, Edition III and how to 
obtain it. However, the Agency misquoted the cost of the document. The 
actual cost was $319.00 rather than $110.00 as quoted throughout the 
September 10, 1992, regulations. To avoid having to amend the 
regulations as a result of future changes in the cost of the document, 
the Agency is deleting reference to the cost of SW-846, Edition III 
from the used oil regulations.
3. Characteristic Hazardous Waste
    Today's rule revises Sec. 279.10(b)(2)(iii) by deleting reference 
to the listing status (under part 261, subpart D) of a hazardous waste 
that is mixed with used oil. This change is necessary to correct a 
contradiction in the regulations regarding applicability of the used 
oil management standards to mixtures of used oil and hazardous waste 
that is listed in subpart D solely because it exhibits one or more of 
the characteristics of hazardous waste identified in subpart C. In 
technical corrections to the used oil management standards published on 
May 3, 1993, (57 FR 26420), EPA amended Sec. 279.10(b)(2) to correct an 
error in the September 10, 1992, standards regarding how these mixtures 
are regulated. At that time, conforming changes should have been, but 
were not made to Sec. 279.10(b)(2)(iii). As amended by today's rule, 
Sec. 279.10(b)(2)(iii) correctly provides that mixtures of used oil and 
hazardous waste that solely exhibits one or more hazardous waste 
characteristic and mixtures of used oil and hazardous waste that is 
listed in subpart D solely because it exhibits one or more subpart C 
hazardous characteristics are regulated as used oil if the mixture is 
of used oil and a waste which is hazardous solely because it exhibits 
the characteristic of ignitability and the resultant mixture does not 
exhibit the characteristic of ignitability.

IV. State Authorization

    As explained in the preamble to the May 3, 1993, Technical 
Correction to the September 10, 1992, rule, EPA is treating the 
majority of the final used oil management standards in the same manner 
as ``non-HSWA'' Subtitle C requirements. The used oil management 
standards became effective on March 8, 1993, only in those States and 
Territories that do not have RCRA base program authorization and on 
Indian lands. States are required to revise their Subtitle C base 
programs to adopt the new used oil requirements (including those 
promulgated in today's rule) by July 1, 1994, or by July 1, 1995, if a 
statutory change is necessary. See 58 FR 26420 and 57 FR 41605.
    Authorized States are only required to modify their programs when 
EPA promulgates Federal standards that are more stringent or broader in 
scope than the existing Federal standards. Section 3009 of RCRA allows 
States to impose standards more stringent than those in the Federal 
program. For those Federal program changes that are less stringent or 
reduce the scope of the Federal program, States are not required to 
modify their programs. See 40 CFR 271.1(k). Except for the amendments 
made to Sec. 279.20(b), the standards promulgated today are less 
stringent than or reduce the scope of the existing Federal 
requirements. The amendments made to Sec. 279.20(b) merely provide 
clarification of the existing used oil regulations and are therefore 
not considered to be less stringent than the current Federal program. 
Therefore, with the exception of the provisions added at 
Sec. 279.20(b)(2)(i), authorized States would not be required to modify 
their programs to adopt requirements equivalent to or substantially 
equivalent to the provision listed above.

V. Executive Order 12866

    Under Executive Order 12866, 58 FR 51735 (October 4, 1993) the 
Agency must determine whether the regulatory action is ``significant'' 
and therefore subject to OMB review and the requirements of the 
Executive Order. The Order defines ``significant regulatory action'' as 
one that is likely to result in a rule that may: (1) Have an annual 
effect on the economy of $100 million or more or adversely affect in a 
material way the economy, a sector of the economy, productivity, 
competition, jobs, the environment, public health or safety, or State, 
local, or tribal governments or communities;
    (2) Create a serious inconsistency or otherwise interfere with an 
action taken or planned by another agency;
    (3) Materially alter the budgetary impact of entitlements, grants, 
user fees, or loan programs or the rights and obligations of recipient 
thereof; or
    (4) Raise novel legal or policy issues arising out of legal 
mandates, the President's priorities, or the principles set forth in 
the ``Executive Order.''
    OMB has exempted this regulatory action from E.O. 12866 review.

VI. Paperwork Reduction Act

    The reporting and recordkeeping requirements of part 279 have been 
approved by OMB and generally assigned the control number 2050-0124 
(See 58 FR 34374 (June 25, 1993)), which remains in effect. As today's 
rule does not impose any new such requirements, a separate information 
collection request was not prepared.

VII. Regulatory Flexibility Act

    Today's rule does not impose any new regulatory requirements, and 
indeed, decreases the costs of compliance for a number of facilities. I 
therefore certify that today's rule will not have a significant impact 
or a substantial number of small entities.

VIII. Administrative Procedures Act

    Today's rule takes final action on EPA's 1985 and 1991 proposals to 
exempt used oil inserted into primary refining processes from the used 
oil management standards. EPA did not address these issues in its 
September 10, 1992, final rule, and therefore those proposals remained 
outstanding until today's rule. Since these issues were fully addressed 
in those proposals, further public comment on today's rule is 
unnecessary. The other changes being made in today's rule either 
correct errors or clarify the language contained in the September 10, 
1992 rule. No comment is necessary on these provisions.

List of Subjects

40 CFR Part 271

    Environmental protection, Administrative practice and procedure, 
Confidential business information, Hazardous materials transportation, 
Hazardous waste, Indians--lands, Intergovernmental relations, 
Penalties, Reporting and recordkeeping requirements, Water pollution 
control, Water supply.

40 CFR Part 279

    Petroleum, Recycling, Reporting and recordkeeping requirements, 
Used oil.

    Dated: February 25, 1994.
Carol M. Browner,
Administrator.
    For the reasons set out in the preamble, title 40, chapter I of the 
Code of Federal Regulations is amended as follows:

PART 271--REQUIREMENTS FOR AUTHORIZATION OF STATE HAZARDOUS WASTE 
PROGRAMS

    1. The authority citation for part 271 continues to read as 
follows:

    Authority: 42 U.S.C. 6905, 6912(a), and 6926.

    2. Section 271.16 is amended by revising paragraph (a)(3)(ii) to 
read as follows:


Sec. 271.16  Requirements for enforcement authority.

    (a) * * *
    (3) * * *
    (ii) Criminal remedies shall be obtainable against any person who 
knowingly transports any hazardous waste to an unpermitted facility; 
who treats, stores, or disposes of hazardous waste without a permit; 
who knowingly transports, treats, stores, disposes, recycles, causes to 
be transported, or otherwise handles any used oil regulated by EPA 
under section 3014 of RCRA that is not listed or identified as a 
hazardous waste under the state's hazardous waste program in violation 
of standards or regulations for management of such used oil; or who 
makes any false statement, or representation in any application, label, 
manifest, record, report, permit or other document filed, maintained, 
or used for purposes of program compliance (including compliance with 
any standards or regulations for used oil regulated by EPA under 
section 3014 of RCRA that is not listed or identified as hazardous 
waste). Criminal fines shall be recoverable in at least the amount of 
$10,000 per day for each violation, and imprisonment for at least six 
months shall be available.
* * * * *

PART 279--STANDARDS FOR THE MANAGEMENT OF USED OIL

    3. The authority citation for part 279 continues to read as 
follows:

    Authority: Sections 1006, 2002(a), 3001 through 3007, 3010, 
3014, and 7004 of the Solid Waste Disposal Act, as amended (42 
U.S.C. 6905, 6912(a), 6921 through 6927, 6930, 6934, and 6974); and 
sections 101(37) and 114(c) of CERCLA (42 U.S.C. 9601(37) and 
9614(c)).

    4. In Sec. 279.1 the definition of ``Petroleum refining facility'' 
is added in alphabetical order and the definition of ``Used oil 
transfer facility'' is revised to read as follows:


Sec. 279.1  Definitions.

* * * * *
    Petroleum refining facility means an establishment primarily 
engaged in producing gasoline, kerosine, distillate fuel oils, residual 
fuel oils, and lubricants, through fractionation, straight distillation 
of crude oil, redistillation of unfinished petroleum derivatives, 
cracking or other processes (i.e., facilities classified as SIC 2911).
* * * * *
    Used oil transfer facility means any transportation related 
facility including loading docks, parking areas, storage areas and 
other areas where shipments of used oil are held for more than 24 hours 
and not longer than 35 days during the normal course of transportation 
or prior to an activity performed pursuant to Sec. 279.20(b)(2). 
Transfer facilities that store used oil for more than 35 days are 
subject to regulation under subpart F of this part.


Sec. 279.10  [Amended]

    5. Section 279.10(b)(1)(ii) is amended by removing the phrase ``for 
the cost of $110.00.''
    6. Section 279.10 is amended by revising paragraphs (b)(2)(iii) and 
(g) to read as follows:


Sec. 279.10  Applicability.

* * * * *
    (b) * * *
    (2) * * *
    (iii) Regulation as used oil under this part, if the mixture is of 
used oil and a waste which is hazardous solely because it exhibits the 
characteristic of ignitability (e.g., ignitable-only mineral spirits), 
provided that the resultant mixture does not exhibit the characteristic 
of ignitability under Sec. 261.21 of this chapter.
* * * * *
    (g) Used oil introduced into crude oil pipelines or a petroleum 
refining facility. (1) Used oil mixed with crude oil or natural gas 
liquids (e.g., in a production separator or crude oil stock tank) for 
insertion into a crude oil pipeline is exempt from the requirements of 
this part. The used oil is subject to the requirements of this part 
prior to the mixing of used oil with crude oil or natural gas liquids.
    (2) Mixtures of used oil and crude oil or natural gas liquids 
containing less than 1% used oil that are being stored or transported 
to a crude oil pipeline or petroleum refining facility for insertion 
into the refining process at a point prior to crude distillation or 
catalytic cracking are exempt from the requirements of this part.
    (3) Used oil that is inserted into the petroleum refining facility 
process before crude distillation or catalytic cracking without prior 
mixing with crude oil is exempt from the requirements of this part 
provided that the used oil constitutes less than 1% of the crude oil 
feed to any petroleum refining facility process unit at any given time. 
Prior to insertion into the petroleum refining facility process, the 
used oil is subject to the requirements of this part.
    (4) Except as provided in paragraph (g)(5) of this section, used 
oil that is introduced into a petroleum refining facility process after 
crude distillation or catalytic cracking is exempt from the 
requirements of this part only if the used oil meets the specification 
of Sec. 279.11. Prior to insertion into the petroleum refining facility 
process, the used oil is subject to the requirements of this part.
    (5) Used oil that is incidentally captured by a hydrocarbon 
recovery system or wastewater treatment system as part of routine 
process operations at a petroleum refining facility and inserted into 
the petroleum refining facility process is exempt from the requirements 
of this part. This exemption does not extend to used oil which is 
intentionally introduced into a hydrocarbon recovery system (e.g., by 
pouring collected used oil into the waste water treatment system).
    (6) Tank bottoms from stock tanks containing exempt mixtures of 
used oil and crude oil or natural gas liquids are exempt from the 
requirements of this part.
* * * * *
    7. Section 279.20 is amended by revising paragraph (b)(2) to read 
as follows:


Sec. 279.20  Applicability.

* * * * *
    (b) * * *
    (2) (i) Except as provided in paragraph (b)(2)(ii) of this section, 
generators who process or re-refine used oil must also comply with 
subpart F of this part.
    (ii) Generators who perform the following activities are not 
processors provided that the used oil is generated on-site and is not 
being sent off-site to a burner of on- or off-specification used oil 
fuel.
    (A) Filtering, cleaning, or otherwise reconditioning used oil 
before returning it for reuse by the generator;
    (B) Separating used oil from wastewater generated on-site to make 
the wastewater acceptable for discharge or reuse pursuant to section 
402 or section 307(b) of the Clean Water Act or other applicable 
Federal or state regulations governing the management or discharge of 
wastewaters;
    (C) Using oil mist collectors to remove small droplets of used oil 
from in-plant air to make plant air suitable for continued 
recirculation;
    (D) Draining or otherwise removing used oil from materials 
containing or otherwise contaminated with used oil in order to remove 
excessive oil to the extent possible pursuant to Sec. 279.10(c); or
    (E) Filtering, separating or otherwise reconditioning used oil 
before burning it in a space heater pursuant to Sec. 279.23.
* * * * *
    8. Section 279.41 is amended by adding paragraph (c) to read as 
follows:


Sec. 279.41  Restrictions on transporters who are not also processors 
or re-refiners.

* * * * *
    (c) Transporters of used oil that is removed from oil bearing 
electrical transformers and turbines and filtered by the transporter or 
at a transfer facility prior to being returned to its original use are 
not subject to the processor/re-refiner requirements in subpart F of 
this part.


Sec. 279.44  [Amended]

    9. Section 279.44(c) introductory text is amended by removing the 
phrase ``for the cost of $110.00.''
    10. Section 279.46 is amended by revising paragraphs (a)(5) and 
(b)(5) to read as follows:


Sec. 279.46  Tracking.

* * * * *
    (a) * * *
    (5) (i) Except as provided in paragraph (a)(5)(ii) of this section, 
the signature, dated upon receipt of the used oil, of a representative 
of the generator, transporter, or processor/re-refiner who provided the 
used oil for transport.
    (ii) Intermediate rail transporters are not required to sign the 
record of acceptance.
    (b) * * *
    (5) (i) Except as provided in paragraph (b)(5)(ii) of this section, 
the signature, dated upon receipt of the used oil, of a representative 
of the receiving facility or transporter.
    (ii) Intermediate rail transporters are not required to sign the 
record of delivery.
* * * * *


Sec. 279.53  [Amended]

    11. Section 279.53(c) introductory text is amended by removing the 
phrase ``for the cost of $110.00.''


Sec. 279.63  [Amended]

    12. Section 279.63(c) is amended by removing the phrase ``for the 
cost of $110.00.''
[FR Doc. 94-4818 Filed 3-3-94; 8:45 am]
BILLING CODE 6560-50-P