[Federal Register Volume 59, Number 167 (Tuesday, August 30, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-21181]


[[Page Unknown]]

[Federal Register: August 30, 1994]


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Part II





Environmental Protection Agency





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40 CFR Part 237




Waste Handling Practices for Vessels and Waste Transfer Stations; 
Proposed Rule
ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 237

[FRL-4863-6]

 
Waste Handling Practices for Vessels and Waste Transfer Stations

AGENCY: Environmental Protection Agency.

ACTION: Proposed rule.

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SUMMARY: The Shore Protection Act of 1988 requires that the 
Environmental Protection Agency (EPA) prescribe waste handling 
regulations for waste sources, receiving facilities, and vessels 
handling or transporting municipal or commercial waste in coastal 
waters.
    The EPA is requesting comments on these proposed regulations which: 
Require that waste sources, receiving facilities, and vessels provide 
the means and facilities to minimize waste deposited into coastal 
waters during loading, offloading, and transport; require the 
development, adoption, and, as appropriate, submission by each 
responsible party of an Operation and Maintenance manual identifying 
procedures to be used to prevent, report, and clean up any deposit of 
municipal or commercial waste into coastal waters, including record 
keeping requirements; and as necessary, require use of tracking systems 
to assure adequate enforcement of laws preventing the deposit of 
municipal or commercial waste into coastal waters.

DATES: Written comments on the proposed rule must be received on or 
before October 31, 1994.

ADDRESSES: Written comments on the proposed rule should be addressed to 
Waste Handling Practices Comment Clerk; Water Docket MC-4101, United 
States Environmental Protection Agency, 401 M St. S.W., Washington, 
D.C. 20460. Comments should include the name and address of the person 
commenting, identify this proposed rule by name (Waste Handling 
Practices for Vessels and Waste Transfer Stations), and cite the 
specific section of the proposed rule to which each comment applies. 
Commenters are also requested to submit any references cited in their 
comments. Commenters are also requested to submit an original and three 
copies of their written comments and enclosures. Commenters who want 
receipt of their comments acknowledged should include a self-addressed, 
stamped envelope. All comments must be postmarked or delivered by hand 
by October 31, 1994. No fascimilies (faxes) will be accepted. For 
access to the Docket materials, call (202) 260-3027 between 9 a.m. to 
3:30 p.m., Monday through Friday, excluding legal holidays, for an 
appointment. EPA public information regulation (40 CFR part 2) provides 
that a reasonable fee may be charged for copying.

FOR FURTHER INFORMATION CONTACT: Joel Salter, Oceans and Coastal 
Protection Division, United States Environmental Protection Agency, 
4504F, 401 M St. S.W., Washington, D.C. 20460. Telephone: (202) 260-
8484.

SUPPLEMENTARY INFORMATION:

I. Introduction

    On November 18, 1988, Congress enacted the Shore Protection Act (33 
U.S.C. 2601, Public Law 100-688, 102 Stat. 4139 hereinafter referred to 
as ``SPA'') to minimize trash, medical debris and other unsightly and 
potentially harmful materials from being deposited into the coastal 
waters of the United States as a result of inadequate waste handling 
procedures by vessels transporting wastes on U.S. coastal waters and 
associated loading and off-loading facilities. SPA is Title IV, 
Subtitle A of P.L. 100-688. The Congressional Conference Report on P.L. 
100-688 stated that landfills and their attendant barging operations 
are a major source of floatable waste in harbor areas. The report 
concluded that this type of waste has fouled the beaches of this 
country on several occasions, reducing the quality of coastal waters, 
endangering the health of humans, marine mammals, waterfowl and fish, 
and causing severe declines in coastal economies dependent upon tourism 
and recreational uses.
    Section 4102 of SPA, titled Vessel Permits and Numbers, establishes 
that a vessel may not transport municipal or commercial waste in 
coastal waters without: (1) A permit from the Secretary of 
Transportation; and (2) displaying a number or other marking as 
prescribed by the Secretary under Chapter 123 of Section 12502(b) of 
Title 46, United States Code. The Department of Transportation (DOT) 
has promulgated an interim regulation on vessel permitting and vessel 
numbering system (33 CFR part 151, subpart B).
    Section 4103(a) of SPA requires owners and operators of waste 
sources, vessels transporting waste and waste receiving facilities to 
take all reasonable steps to minimize the amount of municipal or 
commercial waste deposited into coastal waters both during vessel 
loading and unloading operations, and during vessel transportation from 
a waste source to a receiving facility.
    EPA and DOT have been given authority to implement certain 
provisions of SPA. DOT is responsible for issuing permits to the 
appropriate vessels and for prescribing the number or marking which the 
vessel must display under section 4102 of SPA. EPA is responsible for 
developing the regulations, in consultation with DOT, which prescribe 
waste handling practices pursuant to section 4103(b) of SPA. This 
proposed rule, when promulgated, will fulfill EPA's obligation under 
SPA section 4103(b). DOT is responsible for enforcing SPA, although the 
Secretary of Transportation may authorize other officers or employees 
of the United States Government to enforce provisions of SPA under 
title 14 U.S.C. 89.
    The Secretary of Transportation has designated the United States 
Coast Guard (USCG) as the lead entity in implementing SPA on DOT's 
behalf. Vessel permits under SPA are issued by the USCG in accordance 
with 33 CFR part 151, subpart B. Under Sections 4102(d), (e) and 
4104(a) of SPA, EPA has a consultation role on USCG permits and can 
request that the USCG deny, suspend or revoke a permit. Specifically, 
SPA section 4102(d) provides that DOT (USCG) and EPA can deny a permit 
if the owner or operator of a vessel has a record indicating a pattern 
of serious violations of any of the following statutes: The Shore 
Protection Act (33 U.S.C. 2601 et seq.); The Solid Waste Disposal Act 
(42 U.S.C. 6901 et seq.); The Marine Protection, Research, and 
Sanctuaries Act of 1972 (33 U.S.C. 1401 et seq.); The Rivers and 
Harbors Appropriation Act of 1899 (33 U.S.C. 401 et seq.); or The 
Federal Water Pollution Control Act (33 U.S.C. 1251 et seq.). SPA 
directs the USCG to provide a hearing process for denial, suspension or 
revocation of a permit.
    The EPA is proposing these regulations to set waste handling 
practices for municipal and commercial waste transported in U.S. 
coastal waters. SPA permits will require the permittee to comply with 
these EPA regulations when they are promulgated in final form.
    The proposed rules draw on experience from the State of New York (6 
NYCRR Part 360, Solid Waste Management Facilities Document for Solid 
Waste and Semi-solid Waste Handling Practices), and from the State of 
Louisiana (Regulation 29-B, section pertaining to permitting of vessels 
that haul municipal and commercial waste).
    The USCG has issued interim final regulations which prescribe 
permit application requirements for SPA permits (33 CFR part 151). The 
regulations proposed today are designed to work in concert with the 
USCG permit regulations to implement SPA. These regulations apply in 
addition to, and not in lieu of, all applicable requirements under any 
other statutes.

II. Detailed Discussion of the Proposed Rule

Purpose

    Section 237.1, as proposed, essentially restates the regulatory 
authority given to EPA under section 4103(b) of SPA. It requires EPA to 
prescribe regulations that provide methods to minimize waste deposits 
into coastal waters during loading, offloading, and transport. It 
provides for the development and submission, as appropriate, of an 
Operation and Maintenance manual that will identify procedures to 
prevent, report and clean up deposits of waste and keep records. 
Moreover, it allows the Administrator to require owners or operators of 
waste sources, vessels, and receiving facilities to operate a tracking 
system if the Administrator determines them necessary to assure 
adequate compliance with SPA.

Applicability

    Except for those exemptions described below, these proposed 
regulations apply to all owners and operators of vessels transporting 
municipal or commercial waste in coastal waters; waste sources from 
which municipal or commercial waste is loaded onto a vessel in coastal 
waters; and receiving facilities to which municipal or commercial waste 
is offloaded from a vessel in coastal waters. Coastal waters is defined 
in the statute (SPA section 4101(2)) and in proposed Sec. 237.3(b). 
Where there is ambiguity on the applicability of SPA, we are providing 
clarification below.
Vessels Included
    Proposed Sec. 237.2 states that the rule would apply to vessels 
which transport municipal or commercial waste in coastal waters. Owners 
or operators of these vessels are required, among other things, to 
obtain permits from the USCG, and to assure that any deposit of waste 
into coastal waters from the vessel during transport is minimized. The 
preamble to the USCG's interim permitting regulations states that a 
vessel which regularly transports miscellaneous cargo in coastal waters 
but is hired to transport municipal or commercial waste for a specific 
voyage is required to have a permit to transport the municipal or 
commercial waste for that voyage. A SPA permit and compliance with 
waste handling requirements of this rule (when finalized) are required 
of the vessel where the predominant business or purpose of the vessel 
for that voyage is transportation of municipal or commercial waste (54 
FR 22546, 22547, May 24, 1989).
    In developing this regulation, EPA has worked with the USCG to 
identify vessels that have applied for SPA permits. In doing so, it 
became clear that there are vessels currently transporting municipal 
and commercial waste that have not applied for a permit under the USCG 
permitting requirements. For example, EPA is aware of a number of 
vessels that support the offshore oil and gas industry by transporting 
packaged garbage, drilling fluids, and drill cuttings from oil and gas 
platforms and developed and undeveloped lease blocks in coastal waters 
to shore for disposal. EPA believes that these vessels fall within the 
scope of SPA because they are transporting commercial waste in coastal 
waters. Therefore, EPA believes that vessels which are used, 
contracted, or hired to transport oil field municipal and commercial 
waste from offshore development and production facilities to shore 
reception facilities, commonly referred to as ``supply vessels,'' are 
required to comply with these regulations, when promulgated in final 
form. After consulting with the USCG, the agency has been informed that 
the USCG believes that these ``supply vessels'' are also subject to the 
permitting requirements under 33 CFR part 151, subpart B.
    Vessels used, contracted or hired for the purpose of pumping sewage 
from other vessels are also covered by these regulations. The Agency 
considered excluding these pump-out vessels from the universe of 
regulated entities to encourage their use, but concluded that the 
requirements imposed by these regulations are minimal, and should not 
discourage the use of pump-out vessels.
Vessels Excluded
    Section 4102(a) of SPA clearly exempts public vessels from this 
regulation. Section 237.2(b)(1), as proposed, supports this exemption 
by restating that these regulations do not apply to such vessels (as 
defined in 33 CFR 151.1006). ``Public vessels'' are defined as vessels 
that are owned or demise chartered and operated by the United States 
government or a government of a foreign country and are not engaged in 
commercial service. SPA states that vessels as defined in section 2101 
of title 46 of the United States Code are not required to apply for a 
SPA permit to transport municipal or commercial waste in coastal waters 
or comply with this rule. Note that a public vessel would not include a 
vessel owned by a municipality.
    In addition, these proposed regulations would not apply to vessels 
which transport some quantity of municipal or commercial waste 
incidental to the predominant business or purpose of the vessel. For 
example, a ferry transporting people and vehicles which also transports 
a garbage truck loaded with municipal or commercial waste is not 
required to apply for a SPA permit and would be exempt from complying 
with this rule. In this example, the ferry's predominant business or 
purpose is not waste transportation.
    The conference report on P.L. 100-688 states that SPA was intended 
``only to apply to vessels whose purpose is the transportation of 
municipal or commercial waste, not all vessels. It was not intended to 
apply to vessels that may generate waste during their `normal 
operations'.'' Examples of vessels exempt from this rule because of the 
normal operation exemption would be a cruise ship and a fishing vessel, 
both of which transport waste generated by the crew and passengers 
during a voyage. This ``normal operation'' exemption is set forth in 
section 4101(3)(B) of SPA.
    If normal operational waste meeting the definition of municipal or 
commercial waste is transferred from the generating vessel to another 
vessel contracted to transport waste, the vessel receiving the 
municipal or commercial waste is subject to the requirements of SPA as 
a vessel and receiving facility and must comply with requirements under 
these regulations when finalized. The waste generating vessel is not 
regulated under SPA. This clarification allows vessels, such as cruise 
ships and fishing vessels, to offload their normal operational waste 
without being subject to SPA requirements.
Waste Sources
    SPA section 4103(a)(1) requires owners or operators of waste 
sources to take all reasonable steps to assure that all municipal or 
commercial waste is loaded onto a vessel in a manner that assures that 
waste deposited into coastal waters is minimized. There are a variety 
of entities that handle municipal or commercial waste that are 
considered waste sources for purposes of these regulations. These 
include trucks, certain vessels, waste transfer stations, and island 
docks or piers. The following provides some examples of how and when 
this regulation applies to some of these waste sources. Offshore oil 
and gas exploration platforms will not be considered waste sources 
under SPA, for the reasons set forth below.
    A truck transporting municipal or commercial waste will be 
considered a waste source (i.e., rolling stock or motor vehicle) if it 
directly loads its waste onto a vessel. If a truck will be transferring 
municipal or commercial waste to a vessel by means of a waste transfer 
station, EPA is proposing in Sec. 237.2(b)(4) that the truck not be 
considered a waste source, and therefore not be subject to the 
requirements of these regulations on its own. Instead, the waste 
transfer station would be considered the waste source responsible for 
ensuring that the waste transfer meets the waste handling standards for 
these regulations. Section 237.4(e)(1)(ii) should be interpreted to 
require the owner or operator of a waste source to incorporate 
guidelines in the Operation and Maintenance manual that accounts for 
the truck or vessel transfer. The waste transfer station more typically 
will have the necessary equipment and personnel to comply with these 
regulations. Rolling stock and motor vehicles typically are not 
equipped with containment or diversionary structures e.g. dip nets, 
oily water separators etc., and will not, in most cases, be able to 
comply with requirements being proposed in Sec. 237.4.
    In the situation where waste is transferred from an offshore oil 
and gas development and production facility, the oil and gas facility 
is not a waste source for purposes of these regulations. That transfer 
is governed by the Clean Water Act (National Pollution Discharge 
Elimination System), which regulates, among other things, the discharge 
of pollutants from point sources, including offshore oil and gas 
development and production facilities, and the Marine Plastic Pollution 
Research and Control Act (MPPRCA) which governs the regulation of 
garbage generated by ships. Under the Clean Water Act, EPA has 
promulgated effluent limitation guidelines and new source performance 
standards for the offshore oil and gas industry (58 FR 12453, March 4, 
1993). Coverage of these offshore oil and gas development and 
production facilities under SPA would be duplicative and unnecessary.

Definitions

    Section 237.3 lays out definitions to be used to interpret and 
implement these regulations. Some of the definitions are the same as 
the definitions in SPA. Others are clarifications or additions to those 
definitions. Unless otherwise noted, those terms are consistent with 
USCG definitions under 33 CFR part 151. The definitions proposed today 
that are different or in addition to those in SPA include definitions 
for the terms waste source, receiving facility, operator, owner, SPA, 
waste deposit, and waste transfer station.
    EPA proposes to include within the coverage of this regulation a 
typical waste transfer from vessel to vessel (with exceptions noted in 
the discussion of vessels excluded under the applicability section) by 
including the term ``vessel'' in the definition of waste source and the 
definition of receiving facility. This is clearly within the intent of 
the statute. Vessels which transfer municipal or commercial waste to 
other vessels, unless excluded as described above, will be required to 
comply with these regulations as a waste source or receiving facility 
(depending on whether the transfer is loading onto or offloading from 
the vessel) and to clean up waste deposited into U.S. coastal waters as 
a result of inadequate waste transport or transfer practices.
    The definition of ``vessel'' includes non self-propelled vessels 
and the attendant towing vessel. This is included to ensure that barges 
tied to a towing vessel are covered by these regulations. They would be 
considered one vessel.
    The definition of ``waste source'' includes any rolling stock or 
motor vehicles from which waste is directly loaded onto vessels. As 
explained infra, once rolling stock (e.g., a garbage truck) enters a 
waste transfer station, the transfer station, and not the rolling stock 
would be the sole waste source responsible for all appropriate waste 
handling practices and requirements under these proposed regulations.
    Note that the definition of ``municipal and commercial waste'' is 
proposed as defined in section 4103 of SPA, as ``solid waste'' and 
includes solid, semi-solid, and liquid materials (as defined in section 
1004 of the Solid Waste Disposal Act, 42 U.S.C. 6903), with exceptions 
as defined in Section 4101(3) of SPA. It also includes waste drilling 
fluids and drill cuttings.

Specific Waste Handling Practices for Waste Sources and Receiving 
Facilities During Loading and Offloading

    Proposed Sec. 237.4 would require the owner or operator of a waste 
source or receiving facility to: (1) Meet standards related to loading 
and offloading municipal or commercial waste to assure that any deposit 
of waste in coastal waters is minimized; (2) provide methods and 
procedures to promptly clean up waste deposited in coastal waters; (3) 
have fixed lighting; (4) develop, adopt, and submit, as appropriate, an 
Operation and Maintenance manual; and (5) maintain records of waste 
deposited in coastal waters. EPA considered other alternatives to the 
regulations proposed today, such as identifying specific methods and 
tools for clean up required by the regulations instead of generic waste 
handling practice standards. Rather than require the use of specific 
methods or tools, EPA believes that the generic waste handling 
practices contained in the proposed regulations, if promulgated in 
final form, will be sufficient to eliminate the waste problems 
resulting from inadequate municipal and commercial waste handling 
activities in coastal waters while preserving necessary flexibility on 
how to best achieve that result.
    Among the proposed waste handling practices for waste sources and 
receiving facilities are requirements for containment or diversionary 
structures. EPA believes this equipment, e.g., booms, dip nets, and 
oily water separating equipment, is necessary to control or contain the 
waste that is deposited in coastal waters. In addition, EPA proposes 
that waste sources and receiving facilities must have fixed lighting 
when conducting loading and offloading operations between sunset and 
sunrise. Such lighting is necessary to provide waste handling personnel 
with the visual ability to control and contain waste transfers with a 
minimum of improper disposal into coastal waters.
    The proposal also contains requirements for owner or operators of 
waste sources and receiving facilities to clean up all municipal or 
commercial waste that may have been deposited into coastal waters 
during loading or offloading. EPA is proposing that such clean up must 
occur before the first high tide after the disposal occurs. EPA 
believes that requiring this time frame for the clean up is appropriate 
because otherwise the waste would disperse at high tide beyond the 
waste source or receiving facilities' ability to contain or control the 
waste. Among the cleanup methods set forth in the proposed rule are 
sweeper boats, manned boats with nets, booms or other equipment, and/or 
shoreline cleanup personnel. The proposed rule would require that 
cleanup resources be in continuous operation or on standby for loading 
and offloading operations which take place during an ebb tide. EPA 
believes that this requirement will ensure that waste that is deposited 
into coastal waters is contained or controlled before it has the chance 
to disperse with an ebb tide.
    The proposal also would require waste sources and receiving 
facilities to have a placard located at the facility which is readily 
visible to persons involved in waste handling practices. Such placard 
would need to display the name and telephone number of the individual 
responsible for notifying the USCG National Response Center (NRC) at 1-
800-424-8802 in the event of a deposit of waste into coastal waters 
that is not cleaned up.
    SPA section 4103(b)(2) provides that the Administrator may require 
responsible parties to submit Operation and Maintenance manuals, as 
appropriate. EPA proposes to require that all waste sources and 
receiving facilities covered under SPA (with the exceptions noted in 
Sec. 237.2), develop and adopt these manuals and that each of the waste 
sources and receiving facilities submit to the EPA a letter certifying 
that the manual was developed in accordance with the guidelines 
provided. The Operation and Maintenance manual shall then be submitted 
to the Administrator only upon request, and, if requested, within two 
weeks of the request by the Administrator for the manual.
    Alternatives, such as requiring the submission of operation and 
maintenance manuals by a subset of the regulated community, or ``as 
appropriate,'' depending on the circumstances, would be difficult to 
implement and more likely an obstacle to meeting the intent of SPA. The 
development of operation and maintenance manuals by all of the 
regulated community will ensure that owners and operators are aware of 
waste handling procedures, including who shall be responsible for the 
cleanup of waste deposits, notification and reporting requirements, and 
equipment needed to contain and or clean up a waste deposit. Submission 
of manuals upon request will help assure that there is a minimum 
standard of waste handling practices for the regulated community. To 
facilitate implementation of this requirement, EPA is proposing as an 
appendix to this regulation information on developing an operation and 
maintenance manual. The proposal leaves the content of the manual 
flexible--each responsible party will develop its own procedures and 
document these procedures in the manual, following the general guidance 
in the appendix. EPA encourages those that have already developed 
operation and maintenance manuals consistent with the guidelines 
prescribed in Appendix A to use these manuals. Those that have not yet 
developed a relevant operation and maintenance manual are encouraged to 
use the guidelines provided in Appendix A to develop a manual.
    Under this proposal, the Administrator or the Secretary may review 
these manuals and either accept the manual or reject the manual with 
comment if the manual fails to provide the necessary information 
prescribed in the regulations. Operations may continue during this 
review process. Failure to develop an operation and maintenance manual, 
or to follow the procedures adopted in the facility's manual, would be 
a violation of these regulations.
    The Operation and Maintenance manual must include procedures for 
notifying the USCG in the event of a deposit of regulated waste into 
coastal waters that is beyond the capacity of the owner or operator to 
clean up. In addition, it must identify an individual responsible for 
such notification. This individual must be designated by the owner or 
operator of the waste source or receiving facility. The identification 
of this person and his or her responsibilities shall provide a process 
for reporting and requesting assistance in the case of a deposit beyond 
the capacity of the waste source, vessel or receiving facility to 
contain and clean up after implementing clean up procedures outlined in 
the operation and maintenance manual. The responsible individual must 
be a supervisory employee responsible for waste handling activities or 
an officer of the company owning or operating the waste source, vessel 
or receiving facility, who is responsible for some aspect of waste 
handling activities (e.g. vice president in charge of operations). 
Therefore, the responsible individual can be an owner or operator of 
the company. When a municipal or commercial waste deposit is beyond the 
capacity of the regulated entity to clean up after implementing the 
clean up procedures outlined in the Operation and Maintenance manual, 
the responsible individual is accountable for notifying the USCG NRC in 
the case of a deposit of waste into coastal waters.
    The regulations would require that the Operation and Maintenance 
manual be accessible to all employees involved in waste handling 
activities. In addition to the notification requirements, any person 
witnessing a deposit of municipal or commercial waste into coastal 
waters is encouraged to contact the USCG NRC when it is suspected that 
there is a violation of these regulations. Owners and operators are 
encouraged to put this USCG NRC number on the placard.

Specific Waste Handling Practices for Vessels During Transport

    Proposed Sec. 237.5 provides a standard for waste handling 
practices for vessels during transport of municipal or commercial waste 
in coastal waters. This standard requires that the owner or operator 
ensure that the deposit of waste into coastal waters from a vessel is 
minimized. For example, open hopper barges transporting municipal solid 
waste could comply by covering the entire open area of the hopper barge 
with a net suitable for minimizing waste deposits into coastal waters 
during transport. In addition to meeting this standard, all vessels 
requiring a SPA permit will be required to submit an Operation and 
Maintenance manual to the appropriate USCG office with their permit 
application. The permittee or applicant should call the USCG NRC to 
obtain the address of the appropriate USCG office for the area in which 
the vessel will operate. The owners or operators of vessels which have 
already obtained a conditional permit under the USCG interim permitting 
rule (33 CFR Part 151) would be required to submit an Operation and 
Maintenance manual within 180 days of the effective date of the rule. 
Owners and operators of vessels not yet permitted would need to submit 
an Operation and Maintenance manual at the time they submit a permit 
application to the USCG.
    Operation and Maintenance manual requirements for vessels are 
similar to those proposed for waste sources and receiving facilities 
discussed above. EPA considered requiring vessel owners and operators 
to submit to the USCG a letter certifying the development of the 
Operation and Maintenance manual rather than the manual itself; 
however, EPA decided that because vessels are required to submit an 
application for a permit it is logical to include a copy of their 
manual. Submission of the manual with the permit application ensures 
that the permit applicant has fully considered these waste handling 
practices, cleanup measures, record keeping, and reporting requirements 
and has documented them accordingly. Guidance for development of a 
vessel Operation and Maintenance manual is found in Appendix A of this 
proposal. Failure to develop an Operation and Maintenance manual is a 
violation of SPA and these regulations.
    EPA is proposing that the owner or operator of a vessel subject to 
this regulation must secure the waste to ensure that deposit in coastal 
waters is minimized. In particular, vessels must not be loaded in 
excess of their design capacity or in a manner inconsistent with the 
vessel's Operation and Maintenance manual. Loading of a vessel in 
excess of its capacity would clearly pose risks of waste deposition in 
coastal waters. In addition, the proposal contains a provision which 
would require vessels to have and use a drainage containment system. 
Such a system will reduce the amount of leachate discharge into coastal 
waters. EPA is also proposing that all ports and valves which may be 
used for flushing or discharging waste residue from the hull or tanks 
must be labelled and valve seals shall be placed on the valves. This 
requirement would ensure that waste handling personnel would easily be 
able to control the movement of leachate and waste on the vessel.
    The Agency is proposing that owners or operators of vessels remove 
all municipal or commercial waste deposited into coastal waters during 
transport, or, when appropriate, during the waste transfer. This 
proposal also would require the vessels to have the capability on board 
to clean up the waste deposited or to call a support unit to clean up 
the waste deposited. In addition, as EPA proposed for waste sources and 
receiving facilities, the proposal would require vessels to have a 
placard located on board which is readily visible to persons involved 
in waste handling practices. The placard would have to display the name 
and telephone number of the individual responsible for notifying the 
USCG NRC of a deposit of waste in coastal waters that is beyond their 
capacity to clean up.
    Finally, the proposal would require vessel owners or operators to 
maintain records of municipal or commercial waste deposited in coastal 
waters. The records are to include information on the date and time of 
day the deposit occurred; the type of waste deposited; the estimated 
amount and type of waste recovered; and the name of the vessel from 
which the deposit occurred. Section 4103(b)(2) authorizes EPA to 
include record keeping requirements in the regulations, and the Agency 
believes that such requirements are reasonable, and will encourage 
proper handling of waste so that deposits into U.S. coastal waters do 
not occur. Similar requirements have been proposed for the owners and 
operators of waste sources and receiving facilities.
    As with waste handling practices proposed for waste sources and 
receiving facilities, EPA considered alternatives to regulating these 
vessels, such as specific procedures and equipment required on board a 
vessel. Because of the variability in nature of municipal and 
commercial waste transported, in addition to the variety of vessels, 
waste sources and receiving facilities affected by this rule, EPA chose 
to propose a waste handling practice standard alternative today that is 
flexible yet sufficient to carry out the goals of the statute.

Tracking System

    Section 4103(b)(3) of SPA allows for tracking systems to be 
required if the Administrator determines that tracking systems will be 
necessary to assure adequate enforcement of the requirements in SPA and 
these regulations. EPA, in consultation with the USCG, conducted a 
study on the need for tracking systems for vessels transporting 
municipal and commercial waste. The results of this study are 
documented in a Report to Congress submitted by EPA in August of 1992, 
titled ``The Need for Tracking Systems on Vessels Transporting 
Municipal or Commercial Wastes.'' EPA is proposing to follow the 
recommendation outlined in that report and require a tracking system in 
the future only if deemed necessary by the Administrator (on a case-by-
case basis).
    EPA is proposing in Sec. 237.6 today that a tracking system may be 
required for owners and operators of waste sources, vessels, and 
receiving facilities which have been identified as persistent 
violators. In determining whether to require a tracking system, EPA is 
proposing that the Administrator consider the following variables: (1) 
The owner's and operator's history of compliance with SPA; (2) the 
owner's and operator's history of compliance with other environmental 
statutes; (3) the characteristics and amounts of waste transported; and 
(4) the feasibility of installing a specific kind of tracking system.
    A tracking system can be used to provide a manifest of waste 
movement, track the waste from a waste source to the offloading 
facility, or serve any purpose deemed appropriate by the Administrator 
to track persistent violators.

Enforcement

    Sections 4105 and 4108 of SPA give the Secretary of Transportation 
the authority to enforce the requirements of SPA and assess penalties. 
The Secretary has delegated this authority to the USCG. Under SPA, EPA 
also is provided authority under sections 4105 and 4104 to: (1) Conduct 
investigations of an owner or operator of a vessel or facility if the 
owner or operator has five or more separate violations during a six-
month period; and (2) request that the Secretary of Transportation 
suspend or revoke a permit issued to a vessel for a violation of SPA or 
regulations promulgated under SPA.
    SPA section 4108 states that after notice and an opportunity for a 
hearing, a person found by the Secretary of Transportation to have 
violated the SPA or a regulation promulgated under it for which a civil 
penalty is provided is liable to the United States for the civil 
penalty so provided. 33 U.S.C. section 2608(a). Section 4109 of the SPA 
establishes that a person who violates SPA requirements is liable to 
the United States government for a civil penalty of not more than 
$25,000. 33 U.S.C. Section 2609(a). The Act specifies that each day of 
a continuing violation is a separate violation. Id.
    Proposed Sec. 237.7(a) codifies the notice and opportunity for a 
hearing provisions from the statutory language of SPA section 4108(a). 
The legislative history of SPA makes it clear that the assessment of 
civil penalties should not require an ``on the record'' hearing within 
the meaning of the Administrative Procedure Act. H. Conf. Rep. No. 100-
1090, at 46 (Oct. 18, 1988). As noted above, the USCG has been 
delegated the authority to enforce the requirements of SPA, and the 
legislative history specifically cites the USCG civil penalty 
procedural rules under 33 CFR 1.07 as providing the appropriate level 
of due process, notice, and opportunity to be heard. Id. Thus, 
Sec. 237.7(a) of the proposed rule specifies that prior to issuing a 
SPA civil penalty, notice and an opportunity for a hearing will be 
conducted in accordance with the Coast Guard's civil penalty 
procedures. The Coast Guard has indicated to EPA its intent to utilize 
the procedures in 33 CFR 1.07 for imposition of civil penalties under 
SPA.
    Section 237.7(b) provides the legal authority for the imposition of 
a civil penalty for any violation of the substantive provisions of part 
237 by restating the statutory penalty level provided in section 
4109(a) of SPA.
    With regard to the ``person'' liable for penalties, section 4104(c) 
broadly defines the term ``person'' to mean an ``individual, trust, 
firm, joint stock company, corporation (including a government 
corporation), partnership, association, state, municipality, 
commission, political subdivision of a State, or any interstate body.'' 
33 U.S.C. 2604(4). Under the terms of Sec. 237.3, any of such 
``persons'' could qualify as an owner or operator of a regulated 
entity, and be subject to the assessment of civil penalties by the 
Secretary.

EPA Review Procedures and Grounds for Denial

    Section 4102(e) provides that the Secretary, after consultation 
with the Administrator, shall issue or deny a permit, within 30 days of 
receiving a complete application. EPA and the USCG intend to establish 
the inter-agency permit and application review procedures in a 
Memorandum of Understanding (MOU). These inter-agency review procedures 
will be developed jointly with the USCG.

III. Compliance With Other Acts and Orders

A. 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 entitlement, 
grants, user fees, or loan programs or the rights and obligations of 
recipients 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.
    It has been determined that this rule is not a ``significant 
regulatory action'' under the terms of Executive Order 12866 and is 
therefore not subject to OMB review.

B. Regulatory Flexibility Act

    Pursuant to the Regulatory Flexibility Act of 1980, 5 U.S.C. 601 et 
seq., whenever an agency is developing regulations, it must prepare and 
make available for public comment the impact of the regulations on 
small entities (i.e., small businesses, small organizations, and small 
governmental jurisdictions). However, no regulatory flexibility 
analysis is required if the head of the agency certifies that the rule 
will not have a significant economic impact on a substantial number of 
small entities. The Agency has prepared a Regulatory Impact Analysis 
(RIA). This RIA shows that the estimated first year cost is 
approximately $1,609,000 for vessels, waste sources, and receiving 
facilities. Annual costs during the next 5 years are estimated at 
$249,000 for vessels, waste sources, and receiving facilities. The 
average first year costs per vessel of $253-$1,413 are not considered 
significant. The average first year costs for waste sources and 
receiving facilities are estimated at $126-$2,316. The largest share of 
compliance costs, measured as first year costs, will be for waste 
transport vessels, primarily supply boats transporting muds and 
packaged garbage from offshore rigs. Based on EPA's analysis of the 
effected regulated community, I certify that this proposed rule imposes 
no significant economic impacts on a substantial number of small 
entities.

C. Paperwork Reduction Act

    The information collection requirements in this proposed rule have 
been submitted for approval to the Office of Management and Budget 
(OMB) under the Paperwork Reduction Act, 44 U.S.C. 3501 et. seq. An 
Information Collection Request document has been prepared by EPA (ICR 
#1700.01) and a copy may be obtained from the Information Policy 
Branch; EPA; 401 M St., S.W. (Mail Code 2136); Washington, DC 20460 or 
by calling (202)260-2740.
    This collection of information has an estimated reporting burden 
averaging 4 hours per response and an estimated annual recordkeeping 
burden averaging 25 hours per respondent. These estimates include time 
for reviewing instructions, searching existing data sources, gathering 
and maintaining the data needed, and completing and reviewing the 
collection of information.
    Comments regarding the burden estimate or any other aspect of this 
collection of information, including suggestions for reducing this 
burden should be sent to Chief, Information Policy Branch, EPA, 401 M 
St. S.W. (mail code 2136), Washington, DC 20460; and to the Office of 
Information and Regulatory Affairs, Office of Management and Budget, 
Washington, DC 20503, marked ``Attention: Desk Officer for EPA.'' The 
final Rule will respond to any public comments on the information 
collection requirements contained in this proposal.

List of Subjects in 40 CFR Part 237

    Environmental protection, Coastal zone, Marine debris, Municipal 
and commercial waste, Penalties, Reporting and recordkeeping 
requirements, Solid waste, Vessels, Waste handling practices, Water 
pollution control.

    Dated: August 19, 1994.
Carol M. Browner,
Administrator.

    40 CFR part 237 is proposed to be added to read as follows:

PART 237--WASTE HANDLING PRACTICES FOR VESSELS AND WASTE TRANSFER 
STATIONS

Sec.
237.1  Purpose.
237.2  Applicability.
237.3  Definitions.
237.4  Specific waste handling practices for waste sources and 
receiving facilities during loading and offloading.
237.5  Specific waste handling practices for vessels during 
transport.
237.6  Tracking system.
237.7  Enforcement.

Appendix A to Part 237--Guidance on Operation and Maintenance 
Manuals for Waste Sources, Vessels and Receiving Facilities
Appendix B to Part 237--EPA Regional Contacts for SPA

    Authority: 33 U.S.C. 2602 et seq.


Sec. 237.1  Purpose.

    This Part 237 establishes regulatory requirements in response to 
the Shore Protection Act of 1988 (33 U.S.C. 2601 et. seq.). This part 
includes provisions for:
    (a) Waste minimization. Requirements under the Shore Protection 
Act, title IV of Public Law 100-688 (102 Stat. 4154-4159), for vessels, 
waste sources, and receiving facilities to assure that commercial and/
or municipal waste deposited into coastal waters during loading, 
offloading and transport is minimized;
    (b) Operation and Maintenance Manual development. The preparation, 
adoption, and as appropriate, submission, by the owner or operator of a 
waste source, vessel, or receiving facility, of an Operation and 
Maintenance manual identifying procedures to be used to prevent, 
report, and clean up any deposit of municipal or commercial waste into 
coastal waters, including record keeping requirements; and
    (c) Tracking system installation. Tracking systems where and when 
the Administrator determines they are necessary to assure adequate 
compliance with laws regarding the deposit of municipal or commercial 
waste into coastal waters.


Sec. 237.2  Applicability.

    (a) Inclusion. Except as provided in paragraph (b) of this section, 
this part applies to each owner or operator of:
    (1) A vessel transporting municipal or commercial waste in coastal 
waters;
    (2) A waste source as defined in Sec. 237.3(l); or
    (3) A receiving facility as defined in Sec. 237.3(g).
    (b) Exclusion. This part does not apply to:
    (1) The owner or operator of a public vessel as defined in 
Sec. 237.3(f);
    (2) Vessels transporting municipal or commercial waste incidental 
to their predominant business or purpose;
    (3) Vessels transporting municipal or commercial waste generated 
during normal operations;
    (4) Rolling stock or motor vehicles which transfer municipal or 
commercial waste to a vessel within a waste transfer station; and
    (5) Offshore oil and gas development and production facilities.
    (c) Compatibility. The requirements of the Shore Protection Act 
(SPA) and this part, apply in addition to, and not in lieu of, all 
applicable requirements under any other statutes.


Sec. 237.3  Definitions.

    The definitions set forth in section 4101 of SPA apply to this 
part, except if they have been modified in this section.
    (a) Administrator. Administrator means the Administrator of the 
Environmental Protection Agency or person designated by the 
Administrator.
    (b) Coastal waters. Coastal waters means--
    (1) The territorial seas of the United States;
    (2) The Great Lakes and their connecting waters;
    (3) The marine and estuarine waters of the United States up to the 
head of tidal influence; and
    (4) The Exclusive Economic Zone as established by Presidential 
Proclamation 5030, dated March 10, 1983 (3 CFR, 1983 Comp., p. 22).

    Note: Under this proclamation, the Exclusive Economic Zone 
extends from the baseline of the territorial sea of the United 
States seaward 200 nautical miles.

    (c) Municipal or commercial waste. Municipal or commercial waste 
means solid waste (as defined in section 1004 of the Solid Waste 
Disposal Act (42 U.S.C. 6903)) except--
    (1) Solid waste identified or listed under section 3001 of the 
Solid Waste Disposal Act (42 U.S.C. 6921);
    (2) Waste generated by the vessel during normal operations;
    (3) Debris solely from construction activities;
    (4) Sewage sludge subject to regulation under title I of the Marine 
Protection, Research and Sanctuaries Act of 1972 (33 U.S.C. 1401 et 
seq.); and
    (5) Dredged or fill material subject to regulation under title I of 
the Marine Protection, Research and Sanctuaries Act of 1972 (33 U.S.C. 
1401 et seq.), the Federal Water Pollution Control Act (33 U.S.C. 1251 
et seq.), or the Rivers and Harbors Appropriation Act of 1899 (33 
U.S.C. 401 et seq.).
    (d) Operator. Operator means any person responsible for the overall 
operation of a vessel, waste source, or receiving facility that handles 
municipal or commercial waste.
    (e) Owner. Owner means any person who owns a vessel, waste source, 
or receiving facility, or part of a vessel, waste source or receiving 
facility, that handles municipal or commercial waste.
    (f) Public vessel. Public vessel means a vessel that--
    (1) Is owned or demise chartered, and operated by the United States 
Government or a government of a foreign country; and
    (2) Is not engaged in commercial service.
    (g) Receiving facility. Receiving facility means a facility, vessel 
or operation which receives municipal or commercial waste unloaded from 
a vessel in coastal waters.
    (h) Secretary. Secretary means the Secretary of Transportation.
    (i) SPA. SPA means the Shore Protection Act, Title IV of Public law 
100-688, section 4101 et seq.; 33 USC 2600 et seq.
    (j) Vessel. Vessel means every description of watercraft or other 
artificial contrivance used, or capable of being used, as a means of 
transportation on water. It includes, in the case of a non-self-
propelled vessel, both the non-self-propelled vessel and the towing 
vessel.
    (k) Waste deposit. Waste deposit means any municipal or commercial 
waste originating from a waste source, receiving facility, or vessel 
that is placed, discharged, spilled, dropped, or leaked, into coastal 
waters.
    (l) Waste source. Waste source means a vessel, or a facility from 
which municipal or commercial waste is loaded onto a vessel in coastal 
waters, including any rolling stock or motor vehicles from which that 
waste is directly loaded.
    (m) Waste transfer station. Waste transfer station means a waste 
source or receiving facility as defined in Sec. 237.3(g) and (l), 
operated primarily for the purpose of loading or unloading municipal or 
commercial waste from a land-based source to a vessel or from a vessel 
to a landbased receiving facility.


Sec. 237.4  Specific waste handling practices for waste sources and 
receiving facilities during loading and offloading.

    (a) Waste handling practice standards. (1) The owner or operator of 
a waste source or receiving facility shall load and offload municipal 
and commercial waste to assure that any deposit of waste into coastal 
waters is minimized. Waste sources and receiving facilities shall 
employ containment or diversionary structures and appropriate equipment 
(such as dip nets and oily water separating equipment).
    (2) The methods adopted by the owner or operator to meet these 
waste handling practice standards shall be identified in the Operation 
and Maintenance manual.
    (b) Fixed lighting. The owner or operator of a waste source or 
receiving facility shall use fixed lighting when conducting loading and 
offloading operations between sunset and sunrise that adequately 
illuminates the loading and offloading point and the surrounding area.
    (c) Waste deposit cleanup. The owner or operator of a waste source 
or receiving facility shall remove all municipal or commercial waste 
that may have been deposited into coastal waters from waste loading, or 
unloading operations of a waste source or receiving facility. Such 
removal shall be completed prior to the first high tide following the 
completion of any loading or offloading operation in which the deposit 
occurs and before the waste disperses beyond containment ability. The 
methods for cleanup of the waste shall be identified in the waste 
source and receiving facility's Operation and Maintenance manual.
    (1) The methods used may include sweeper boats to sweep up solid 
wastes deposited, manned boats with nets to remove waste, booms or 
other equipment to recover waste deposited near shore, and/or shoreline 
cleanup crews, as long as they meet the requirements of 
Sec. 237.4(a)(1).
    (2) Cleanup resources shall be in continuous operation or on 
standby at the waste source and receiving facility for loading and 
offloading operations which take place during an ebb tide.
    (3) The owner or operator of the waste source or receiving facility 
shall have a placard located at the facility where it will be readily 
visible to persons involved in waste handling indicating the individual 
responsible for notifying the United States Coast Guard (USCG) National 
Response Center in the event of a deposit of waste into coastal waters 
that is not completely cleaned up.
    (i) The telephone number for the individual responsible for 
notification shall be visibly and legibly displayed on the placard.
    (ii) The telephone number for the individual responsible for 
notification shall be designated by the owner or operator of the waste 
source or receiving facility.
    (iii) The individual responsible for notification must be a 
supervisory employee responsible for waste handling activities or an 
officer of the company owning or operating the waste source, vessel or 
receiving facility, who is responsible for some aspect of waste 
handling activities (e.g. vice president in charge of operations).
    (4) If the owner or operator is unable to meet the cleanup 
requirements of these regulations after implementing cleanup procedures 
specified in the Operation and Maintenance manual, the responsible 
individual shall notify the appropriate USCG office. The USCG shall be 
notified prior to the first high tide following the completion of any 
loading or unloading operation in which the deposit occurs, and before 
the waste disperses beyond containment ability. Such verbal 
notification shall be followed by written notification to the USCG 
within five days.
    (d) Waste deposit records. (1) The owner or operator of a waste 
source or receiving facility shall maintain a record of municipal or 
commercial waste deposited by the waste source or receiving facility 
into coastal waters. These records shall include:
    (i) Date of deposit of municipal or commercial waste into coastal 
waters;
    (ii) Time of day the municipal or commercial waste was deposited 
into coastal waters;
    (iii) Estimated amount and type of waste deposited and amount and 
type of waste recovered;
    (iv) Estimated amount and type of waste not recovered;
    (v) Name of the vessel being loaded/offloaded; and
    (vi) Name of the waste source or receiving facility.
    (2) The owner or operator shall retain these records for no less 
than three years and must submit these records to the Administrator or 
the Secretary within five working days of a request by the 
Administrator or the Secretary for these records.
    (3) The owner or operator shall keep a record of its compliance 
with the notification required by Sec. 237.4(c)(4).
    (e) Operation and Maintenance Manual. (1) The owner or operator of 
each existing waste source and receiving facility shall develop, adopt, 
and comply with an Operation and Maintenance manual within 180 days 
after [the date the final rule becomes effective]. The owner or 
operator of a new waste source or receiving facility shall develop, 
adopt, and comply with an Operation and Maintenance manual within 180 
days of initiating operations. The manual shall:
    (i) Include record keeping procedures;
    (ii) Contain a description of the basic operation and maintenance 
standards adopted by the waste source or receiving facility to 
implement the requirements of Sec. 237.4(a);
    (iii) Identify and provide telephone numbers for the individual 
responsible for notifying the USCG National Response Center, and the 
EPA Regional Office contact for the EPA region in which the waste 
source or receiving facility operates (see Appendix B of this part);
    (iv) Provide a description of the procedures the owner or operator 
will use to clean up any deposit of municipal and commercial waste 
consistent with Sec. 237.4(c); and
    (v) Comply with the format and guidelines established in Appendix A 
for waste sources and receiving facilities.
    (2) Submission of a letter of certification.
    (i) Each waste source and receiving facility shall submit a letter 
within 180 days after [the effective date of the final rule] certifying 
that the Operation and Maintenance manual has been developed as 
required by this regulation. The letter of certification shall be 
submitted to the EPA regional office for the State in which it does 
business (see Appendix B of this part).
    (ii) The Operation and Maintenance manual shall be submitted to EPA 
within two weeks of a request by EPA for the manual.
    (iii) If the Administrator determines that the manual fails to meet 
the requirements of this part, the Administrator may submit a notice of 
disapproval to the owner or operator requiring that the owner or 
operator make changes to the Operation and Maintenance manual.
    (iv) The owner or operator of a waste source or receiving facility 
shall make the required corrections indicated in any notice of 
disapproval it receives from EPA and resubmit the manual to EPA within 
90 days of the receipt of notice of disapproval.
    (3) The Operation and Maintenance manual shall be made available 
and accessible to all employees directly associated with municipal or 
commercial waste transporting or handling, and to EPA and USCG 
representatives upon request.


Sec. 237.5  Specific waste handling practices for vessels during 
transport.

    (a) Waste handling practice standards. (1) The owner or operator of 
a vessel which transports municipal or commercial waste must secure the 
waste to assure that any deposit of waste into coastal waters during 
transport is minimized. At a minimum the owner or operator must ensure 
that:
    (i) Waste is not loaded in excess of the vessel's design capacity 
nor in a manner inconsistent with the instructions in the vessel's 
adopted Operational and Maintenance manual;
    (ii) The vessel transporting solid waste has and uses a drainage 
containment system for collection of leaching liquids; and
    (iii) All ports and valves which may be used for flushing or 
discharging waste or waste residue from the hull or tanks are labelled 
and valve seals are placed on the valves.
    (2) The methods adopted by the owner or operator to meet the waste 
handling practice standards shall be identified in the Operation and 
Maintenance manual.
    (b) Waste deposit clean up. The owner or operator of a vessel 
shall:
    (1) Remove all municipal or commercial waste that may have been 
deposited into coastal waters during transport on the vessel. When a 
vessel is also a waste source or receiving facility, it shall be 
responsible for the clean up of any waste deposited during the loading 
or offloading activities. The methods for clean up of the waste shall 
be identified in the vessel's Operation and Maintenance manual.
    (2) Provide the capability on board the vessel to clean up the 
deposit or to call a support unit to clean up the deposit.
    (3) Have a placard located on the vessel where it will be readily 
visible to persons involved in waste handling indicating the individual 
responsible for notifying the USCG NRC in the event of a deposit of 
waste into coastal waters that is not completely cleaned up.
    (i) The telephone numbers for the individual responsible for 
notification and the USCG NRC shall be visibly and legibly displayed on 
the placard.
    (ii) The individual responsible for notification shall be 
designated by the owner or operator of the vessel.
    (iii) The individual responsible for notification must be a 
supervisory employee responsible for waste transport activities or an 
officer of the company owning or operating the vessel who is 
responsible for some aspect of waste transport requirements (e.g. vice 
president in charge of vessel operations).
    (4) If the owner or operator is unable to meet the requirements of 
this part after implementing clean up procedures specified in the 
Operation and Maintenance manual, the responsible individual shall 
notify the USCG NRC. The USCG NRC shall be notified prior to the first 
high tide following the completion of any loading or unloading 
operation in which the deposit occurs, or, when in transport, before 
the waste disperses beyond containment ability. Such verbal 
notification shall be followed by written notification to the USCG 
within five days.
    (c) Waste deposit records. (1) The owner or operator of a vessel 
shall maintain a record of all municipal or commercial waste deposited 
by the vessel into coastal waters. These records must include the 
following information:
    (i) Date of deposit of municipal or commercial waste into coastal 
waters;
    (ii) Time of day the municipal or commercial waste was deposited 
into coastal waters;
    (iii) Estimated amount and type of waste deposited and amount 
recovered;
    (iv) Estimated amount and type of waste not recovered; and;
    (v) Name of the vessel.
    (2) The owner or operator shall retain these records for no less 
than three years and must submit these records to the Administrator or 
the Secretary upon their request within five working days of the 
request for the records.
    (3) The owner or operator shall keep a record of its compliance 
with the clean-up notification as required by Sec. 237.5(b)(4).
    (d) Operation and Maintenance Manual. (1) The owner or operator of 
each existing vessel shall develop, adopt and comply with an Operation 
and Maintenance manual within 180 days after [the effective date of the 
final rule]. New permit applicants shall submit the manual with their 
SPA permit application. The manual shall:
    (i) Include record keeping procedures;
    (ii) Contain a description of the basic operation and maintenance 
standards adopted by the vessel to implement the requirements of 
Sec. 237.5(a);
    (iii) Identify and provide telephone numbers for the individual 
responsible for notifying the USCG and the USCG contact for the state 
waters in which the vessel operates;
    (iv) Provide a description of the procedures the owner or operator 
will use to cleanup any deposit of municipal or commercial waste 
consistent with Sec. 237.5(b); and
    (v) Comply with the minimum requirements established in Appendix A 
of this part for vessels.
    (2) Submission of the Operation and Maintenance manual.
    (i) Each vessel owner or operator shall submit the vessel Operation 
and Maintenance manual to the USCG as part of the SPA permit 
application under 33 CFR part 151 (Each vessel owner or operator that 
has obtained a conditional permit under 33 CFR part 151 shall submit a 
vessel operation and maintenance manual within 180 days after [the 
effective date of the final rule]).
    (ii) If the Administrator or Secretary determines that the manual 
fails to meet the requirements of this Part, the Administrator or 
Secretary may submit a notice of disapproval to the owner or operator 
requiring that the owner or operator make changes to the Operation and 
Maintenance manual.
    (iii) The owner or operator of the vessel shall make the required 
corrections indicated by the Administrator or the Secretary in any 
notice of disapproval and resubmit the manual to the Administrator or 
Secretary, as appropriate, within 90 days receipt of such notice of 
disapproval.
    (3) The Operation and Maintenance manual shall be made available 
and accessible to all employees directly associated with municipal or 
commercial waste transport or handling, and to EPA or USCG officials 
upon request.


Sec. 237.6  Tracking system.

    The Administrator may require owners and operators of vessels, 
waste sources, and/or waste facilities to install a waste tracking 
system to track vessel movement of waste in coastal waters.
    (a) In determining whether to require a tracking system the 
Administrator will consider the following:
    (1) The owner and operator's history of compliance with SPA;
    (2) The owner and operator's history of compliance with other 
statutes intended to prevent deposit of municipal or commercial waste 
into coastal waters;
    (3) The characteristics and amounts of waste transported loaded, or 
off-loaded; and
    (4) The feasibility of installing a specific kind of tracking 
system.
    (b) A tracking system shall be implemented or installed and placed 
in operation by the owner or operator of a vessel, receiving facility 
or waste source within 18 months of the receipt of a notice from the 
Administrator requiring such system, or sooner if the Administrator, so 
directs.


Sec. 237.7  Enforcement.

    (a) Prior to imposing a civil penalty for any violation of this 
part, notice and opportunity for a hearing shall be provided in 
accordance with 33 CFR 1.07 or in a manner consistent with the 
statutory language of SPA section 4108(a).
    (b) A person violating any requirement of this part is liable for a 
civil penalty of not more than $25,000. Each day of a continuing 
violation is a separate violation.

Appendix A--Guidance on Operation and Maintenance Manuals for Waste 
Sources, Vessels and Receiving Facilities

    This appendix provides a basic structure for the development of 
operation and maintenance manuals for the regulated entities. The 
operation and maintenance manual developed by a vessel permitted 
under the Shore Protection Act, or associated waste source and 
receiving facility should be a clear statement of: (1) operation and 
maintenance procedures for preventing waste from accidentally 
spilling into coastal waters of the United States, (2) clean up 
procedures the regulated entity will follow when a waste deposit 
does occur, and (3) reporting procedures the regulated entity will 
follow when a waste deposit does occur. Each regulated vessel, or 
associated waste source and receiving facility should develop an 
operation and maintenance manual to suit its particular 
characteristics.

I. Applicability

    A. The owners or operators of the following vessels (unless 
excluded, as discussed below) are required to develop and submit an 
operation and maintenance manual (Sec. 237.2(a)):
    1. A vessel transporting municipal or commercial waste in 
coastal waters;
    2. Vessels that regularly transport miscellaneous cargo but are 
hired, contracted, or used to transport municipal or commercial 
waste for a specific voyage; and
    3. Vessels that transport operational waste from other vessels 
that meet the definition of municipal or commercial waste--this does 
not include vessels transporting their own operational wastes.
    B. The owners or operators of the following vessels, and some 
others, are excluded from developing and submitting operation and 
maintenance manuals (Sec. 237.2(b) for full list of exclusions):
    1. Public vessels, defined as vessels that are owned, demise 
chartered, and operated by the United States Government or a 
government of a foreign party, and do not engage in commercial 
service; and
    2. Vessels that transport some quantity of waste incidental to 
the predominant business or purpose of the vessel. For example, a 
ferry which transports a garbage truck loaded with municipal or 
commercial waste.
    C. The owners or operators of waste sources and receiving 
facilities, as defined below and in section 237.3(g) and (l) are 
required to develop and submit (upon request) an operation and 
maintenance manual:
    1. A facility, vessel, or operation that receives municipal or 
commercial waste unloaded from a vessel; and
    2. A vessel or a facility from which municipal or commercial 
waste is loaded onto a vessel, including any rolling stock or motor 
vehicles from which that waste is directly loaded.

II. The Manual

    The structure and detail of each operation and maintenance 
manual may vary as the vessel, waste source, or receiving facility 
will vary and as the type of waste transferred and transported will 
vary. As a result of the variation in the physical nature of 
municipal and commercial waste, the structure and requirements 
provided in this appendix are necessarily generic and will require 
further elaboration based on the specifics of the operations and 
maintenance nuances at your facility, source, or vessel. However, it 
is expected that an operation and maintenance manual meeting the 
minimum requirements of this regulation need not exceed 20 to 30 
pages in length.

III. Operation and Maintenance Manuals for Vessels

    A. The operation and maintenance manual for vessels consists of 
three parts:
    1. Waste transfer procedures;
    2. Waste clean up procedures; and
    3. Waste deposit reporting procedures.
    B. The first part of the operation and maintenance manual shall 
identify the measures that you will take to minimize the deposit of 
waste into coastal waters during transport and transfer activities. 
In the operation and maintenance manual you should 
(Sec. 237.5(d)(ii)):
    1. Describe the roles and responsibilities of each relevant 
member of the crew during waste transfer and transport.
    2. Provide a detailed step-wise description to the vessel crew 
on the implementation of the technologies and techniques that will 
be employed during waste transfer and transport. These should 
include appropriate containment or diversionary structures, or other 
equipment designed to minimize waste deposits. The technologies and 
techniques described shall be appropriate to the size and nature of 
the vessel and must represent a responsible effort to minimize the 
spillage of waste.
    3. Instruct the crew to secure the waste in such a way as to 
prevent the deposit of waste.
    4. Direct the crew not to load the vessel in excess of its 
capacity.
    5. Direct the crew that all ports and valves that may be used 
for flushing or discharging waste or waste residue from the hull or 
tanks must be clearly labelled and that all ports and valves must be 
sealed except for the purpose of transferring wastes.
    6. Describe record keeping procedures, i.e. record of amount and 
type of waste offloaded, or amount and type of waste received.
    C. The second part of the operation and maintenance manual 
describes for the vessel crew the procedures that will be used to 
clean up, promptly and thoroughly, any waste deposited into coastal 
waters (Sec. 237.5(a)(1)(iv)). This section must:
    1. Describe the role and responsibilities of each relevant 
member of the crew during cleanup.
    2. Describe in detail for the crew the techniques and 
technologies that will be employed during waste cleanup. The 
technologies or techniques must be appropriate to the waste type and 
the size and nature of the vessel and must represent a responsible 
effort to clean up all waste promptly and thoroughly.
    D. In the third part of the operation and maintenance manual 
describe the procedures to be followed if the vessel's crew is 
unable to clean up all of the waste deposited. In this section you 
must:
    1. Provide a contact name and telephone number of the designated 
responsible person (see section 237.5) involved in the ownership or 
operation of the vessel. Indicate that this contact person should be 
notified immediately by telephone, marine radio if the crew is 
unable to completely clean up the waste deposited. This contact name 
and phone number and the number of the USCG NRC must be posted on 
the vessel in a location visible to the vessel's crew.
    2. Provide the telephone number of the USCG NRC to be called by 
the responsible person if the crew is unable to completely clean up 
the waste deposited.
    3. Provide an example of a followup letter to be used by the 
responsible person to report the waste deposit to the USCG NRC.
    4. Provide copies of the form that assists record-keeping and 
reporting in the event of a waste deposit. The operation and 
maintenance manual must instruct the appropriate crew member to 
complete one of these forms for each deposit of waste. The record 
must include the time and date of the deposit, estimates of the 
amount of wastes deposited and amount retrieved, actions taken to 
clean up the waste deposit, and any other pertinent information. If 
an action was not accomplished or successful, it is important to 
document why those actions were taken. Any actions to prevent 
further incidents of this type should also be recorded. All waste 
deposits must be recorded, whether cleaned up or not.

IV. Operation and Maintenance Manuals for Waste Sources and 
Receiving Facilities

    A. The operation and maintenance manual for waste sources and 
receiving facilities consists of three parts: waste transfer 
procedures, waste cleanup procedures, and waste deposit reporting 
procedures.
    B. The first part of the operation and maintenance manual must 
identify the measures that you will take to prevent the deposit of 
waste into coastal waters during the transfer of wastes 
(Sec. 237.4(e)(1)). In the operation and maintenance manual you 
must:
    1. Describe the roles and responsibilities of each relevant 
facility staff member during waste transfer.
    2. Provide a detailed step-wise description to relevant 
employees on the implementation of technologies and techniques that 
will be employed during waste transfer. These should include 
appropriate containment or diversionary structures, or other 
equipment designed to minimize waste deposits. The technologies or 
techniques described must be appropriate to the waste type and size 
and nature of the vessels loaded/unloaded, and represent a 
responsible effort to minimize the deposit of wastes.
    3. Describe record keeping procedures, i.e record of amount and 
type of waste offloaded, or amount and type of waste received.
    C. The second part of the operation and maintenance manual 
describes for your employees the procedures that will be used to 
clean up, promptly and thoroughly, any waste deposited into coastal 
waters. This section must:
    1. Describe the roles and responsibilities of each relevant 
employee during waste cleanup.
    2. Describe in detail how to implement the techniques and 
technologies that will be employed during waste cleanup. The 
technologies and techniques used must be appropriate to the waste 
type and size and nature of the vessels, and must represent a 
responsible effort to clean up all waste promptly and thoroughly. 
The methods described may include sweeper boats, manned boats to 
remove waste, shoreline cleanup crews, and booms or other equipment 
designed to recover waste deposited near shore.
    3. Specify that cleanup equipment and personnel be in continuous 
operation, or on standby at the transfer facility for waste transfer 
operations that occur during an ebb tide.
    4. Direct all employees that all waste that clearly resulted 
from, or may have resulted from, waste loading or unloading 
operations shall be removed prior to the first high tide following 
the completion of any waste transfer operation or before the waste 
has had a chance to disperse.
    D. The third part of the operation and maintenance manual 
describes the procedures to be followed if the facility's staff is 
unable to clean up all of the waste deposited. This section must:
    1. Provide a contact name and telephone number of the designated 
responsible person (Sec. 237.4) involved in the ownership or 
operation of the facility. Indicate that this contact person should 
be notified immediately by telephone or in writing if the employees 
are unable to completely clean up the waste deposit. This contact 
name and phone number must be posted at the facility in a location 
visible to the facility's employees.
    2. Provide the telephone number of the USCG NRC to be called if 
the employees are unable to completely clean up the deposit. This 
telephone number must also be posted at the facility in a location 
visible to the facility's employees.
    3. Provide an example of a letter to be used by the responsible 
person to report the waste deposit to the appropriate EPA official.
    4. Provide copies of the form that assists record-keeping and 
reporting in the event of a waste deposit. The operation and 
maintenance manual must instruct the appropriate employee on duty to 
complete one of these forms for each waste deposit. The record must 
include the time and date of the deposit, estimates of the amount of 
wastes deposited and amount retrieved, cause of deposit, actions 
taken to clean up the waste deposit, and any other pertinent 
information. If an action was not accomplished or it was decided to 
attempt an unsuccessful control strategy, it is important to 
document why those actions were taken. Any actions to prevent 
further incidents of this type should also be recorded. All waste 
deposits must be recorded, whether cleaned up or not.

Appendix B to Part 237--EPA Regional Contacts for SPA

Connecticut, Maine, Massachusetts, New Hampshire, Rhode Island, 
Vermont--EPA Region 1, Waste Management Division, J.F.K. Federal 
Building, One Congress Street, Boston, MA 02203, Telephone: 617-565-
3420

New Jersey, New York, Puerto Rico, Virgin Islands--EPA Region 2, Air 
and Waste Management Div., Jacob K. Javitz Federal Bldg., 26 Federal 
Plaza, New York, NY 10278, Telephone: 212-264-3384

Delaware, District of Columbia, Maryland, Pennsylvania, Virginia, 
West Virginia--EPA Region 3, Environmental Services Div., 841 
Chestnut St., Philadelphia, PA 19107, Telephone: 215-597-9800

Alabama, Florida, Georgia, Kentucky, Mississippi, North Carolina, 
South Carolina, Tennessee--EPA Region 4, Water Management Division, 
345 Courtland St., N.E., Atlanta, GA 30365, Telephone: 404-347-4727

Illinois, Indiana, Michigan, Minnesota, Ohio, Wisconsin--EPA Region 
5, Waste Management Division, 77 West Jackson Boulevard, Chicago, IL 
60604-3507, Telephone: 312-353-2000

Arkansas, Louisiana, New Mexico, Oklahoma, Texas--EPA Region 6, 
Environmental Services Div., First Interstate Bank Tower at Fountain 
Place, 1445 Ross Avenue, 12th Floor Suite 2000, Dallas, TX 75202-
2733, Telephone Number 214-655-2270

Arizona, California, Hawaii, Nevada, American Samoa, Guam--EPA 
Region 9, Hazardous Waste Management, Division, 75 Hawthorne St., 
San Francisco, CA 94105, Telephone: 415-744-1305

Alaska, Idaho, Oregon, Washington--EPA Region 10, Environmental 
Services, Division, 1200 Sixth Avenue, Seattle, WA 98101, Telephone: 
206-553-4873.

[FR Doc. 94-21181 Filed 8-29-94; 8:45 am]
BILLING CODE 6560-50-P