[Federal Register Volume 60, Number 148 (Wednesday, August 2, 1995)]
[Notices]
[Pages 39385-39387]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-19002]



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ENVIRONMENTAL PROTECTION AGENCY
[FRL-5270-4]


Maryland: Final Determination of Adequacy of the State's 
Municipal Solid Waste Landfill Permitting Program

AGENCY: Environmental Protection Agency (Region III).

ACTION: Notice of Final Determination of Partial Program Adequacy for 
the State of Maryland's Application.

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SUMMARY: Section 4005(c)(1)(B) of the Resource Conservation and 
Recovery Act (RCRA), as amended by the Hazardous and Solid Waste 
Amendments (HSWA) of 1984, requires states to develop and implement 
permit programs to ensure that municipal solid waste landfills (MSWLFs) 
which may receive hazardous household waste or small quantity generator 
waste will comply with the revised Federal MSWLF Criteria (40 CFR part 
258). RCRA section 4005(c)(1)(C) requires the Environmental Protection 
Agency (EPA) to determine whether states have adequate ``permit'' 
programs for MSWLFs, but does not mandate issuance of a rule for such 
determinations. EPA has drafted and is in the process of proposing a 
State/Tribal Implementation Rule (STIR) that will provide procedures by 
which EPA will approve, or partially approve, state/tribal landfill 
permit programs. The Agency intends to approve adequate state/tribal 
MSWLF permit programs as applications are submitted. Thus, these 
approvals are not dependent on final promulgation of the STIR. Prior to 
promulgation of the STIR, adequacy determinations will be made based on 
the statutory authorities and requirements. In addition, states/tribes 
may use the draft STIR as an aid in interpreting these requirements. 
The Agency believes that early approvals have an important benefit. 
Approved state/tribal permit programs provide interaction between the 
state/tribe and the owner/operator regarding site-specific permit 
conditions. Only those owners/operators located in state/tribal areas 
with approved permit programs can use the site-specific flexibility 
provided by 40 CFR part 258 to the extent the state/tribal permit 
program allows such flexibility. EPA notes that regardless of the 
approval status of a state/tribe and the permit status of any facility, 
the federal landfill criteria will apply to all permitted and 
unpermitted MSWLF facilities.
    The State of Maryland, through the Maryland Department of the 
Environment (MDE), applied for a determination of adequacy under 
section 4005 of RCRA. EPA has reviewed Maryland's MSWLF permit program 
application and proposed a determination on March 21, 1995, that 
Maryland's MSWLF permit program is adequate to ensure compliance with a 
major portion of the revised MSWLF Criteria, as described below. EPA is 
today issuing a final determination that the State of Maryland's 
program is adequate for partial approval.

EFFECTIVE DATE: The determination of adequacy for the State of Maryland 
shall be effective immediately.

FOR FURTHER INFORMATION CONTACT: U.S. EPA Region III, 841 Chestnut 
Building, Philadelphia, Pennsylvania 19107, Attn: Mr. Andrew Uricheck, 
mailcode (3HW50), telephone (215) 597-7936.

SUPPLEMENTARY INFORMATION:

A. Background

    On October 9, 1991, EPA promulgated revised Criteria for MSWLFs (40 
CFR part 258). Subtitle D of RCRA, as amended by the Hazardous and 
Solid Waste Amendments of 1984 (HSWA), requires states to develop 
permitting programs that incorporate the Federal Criteria under 40 CFR 
part 258. Subtitle D also requires in section 4005 that EPA determine 
the adequacy of state municipal solid waste landfill permit programs to 
ensure that facilities comply with the revised Federal Criteria. To 
fulfill this requirement, the agency has drafted and is in the process 
of proposing a State/Tribal Implementation Rule (STIR). The rule will 
specify the requirements which state/tribal programs must satisfy to be 
determined adequate.
    EPA intends to approve state/tribal MSWLF permit programs prior to 
the promulgation of STIR. EPA interprets the requirements for states or 
tribes to develop ``adequate'' programs for permits or other forms of 
prior approval, as imposing several minimum requirements. First, each 
state/tribe must have enforceable standards for new and existing MSWLFs 
that are technically comparable to EPA's revised MSWLF criteria. Next, 
the state/tribe must have the authority to issue a permit or other 
notice of prior approval to all new and existing MSWLFs in its 
jurisdiction. The state/tribe also must provide for public 
participation in permit issuance and enforcement as required in section 
7004(b) of RCRA. Finally, EPA believes that the state/tribe must show 
that it has sufficient compliance monitoring and enforcement 
authorities to take specific action against any owner or operator that 
fails to comply with an approved MSWLF program.
    EPA Regions will determine whether state/tribal programs are 
``adequate'' based on the criteria outlined above.
B. State of Maryland

    On August 26, 1993, MDE submitted an application for adequacy 
determination for its MSWLF permit program. On March 21, 1995, EPA 
published a tentative determination of adequacy for most of the 
Maryland program, as described in detail below. Further background on 
the tentative determination of adequacy appears at Vol. 60, No. 54 
Federal Register 14938-14941, March 21, 1995.
    A public comment period began on March 21, 1995, and ended on May 
19, 1995. As announced in the notice of tentative determination, a 
public hearing was held on May 17, 1995, in Baltimore, MD. Few people 
requested the opportunity to speak or offered public comments at the 
public hearing.
    In the State's application for an adequacy determination, Maryland 
documented non-regulatory revisions to many portions of their existing 
program which had not fully met the Federal requirements in EPA's 40 
CFR Part 258. EPA tentatively determined in the March 21, 1995 Federal 
Register that these changes, as described below, allowed Maryland's MSW 
landfill permitting program to be eligible for EPA approval as ensuring 
compliance with 40 CFR Part 258. Those portions of the Maryland 
municipal solid waste landfill permitting program proposed to be 
eligible for partial approval are as follows:

Subpart A--General

    The existing Maryland requirements fully comply with 40 CFR Section 
258.1, Purpose, Scope, and Applicability. MDE permit application 
checklists and internal guidance have been revised to fully incorporate 
the requirements of Sec. 258.2, Definitions and Sec. 258.3, 
Consideration of other Federal laws.

Subpart B--Location Restrictions

    1. The existing Maryland requirements fully comply with 
Sec. 258.11, Floodplains. 

[[Page 39386]]

    2. MDE permit application checklists and internal guidance have 
been revised to incorporate the requirements of Sec. 258.10, Airport 
Safety; Sec. 258.12, Wetlands; Sec. 258.13, Fault areas; Sec. 258.14, 
Seismic Impact Zones; Sec. 258.15, Unstable Areas; and Sec. 258.16, 
Closure of Existing Landfill Units.

Subpart C--Operating Criteria

    1. The existing Maryland requirements fully comply with: 
Sec. 258.20, Hazardous Waste Exclusion; Sec. 258.21, Daily Cover; 
Sec. 258.22, Disease Vectors Control; Sec. 258.24, Air Criteria; 
Sec. 258.25, Access requirements; and Sec. 258.27, Surface Water 
Requirements.
    2. MDE permit application checklists and internal guidance have 
been revised to incorporate the requirements of: Sec. 258.23, Explosive 
Gas Control; Sec. 258.26, Run-On/Run-Off Control Systems; Sec. 258.28, 
Liquids Restrictions; and Sec. 258.29, Record Keeping.

Subpart D--Landfill Design

    1. MDE permit application checklists and internal guidance have 
been revised to incorporate the requirements of the Sec. 258.40 design 
criteria. MDE now requires, as a minimum at all new MSW landfills and 
expansions to existing landfills, the bottom liner system described in 
Sec. 258.40 (b). This consists of a composite liner composed of an 
upper synthetic (plastic) component in direct contact with a lower 
component at least two feet thick made of compacted soil (clay). MDE 
also allows an alternate design that meets the performance standards 
established in Sec. 258.40 (a) and (c). MDE requires that conformance 
be demonstrated through the use of mathematical modeling, such as the 
Hydrologic Evaluation of Landfill Performance Model (HELP) and 
Multimedia Exposure Assessment Model (MULTIMED). MDE has, to date, 
submitted several alternate liner systems to EPA under the 40 CFR 
Sec. 258.40(e) Liner Petition Process, which were subsequently 
approved, thereby demonstrating to EPA that this process is 
successfully in place. Submittal to EPA for such alternate liner 
approvals will no longer be required upon EPA final approval of this 
portion of the State's program.

Subpart E--Ground-Water Monitoring and Corrective Action

    1. The previously existing Maryland requirements for groundwater 
sampling and corrective action were in need of substantial upgrading to 
meet the 40 CFR Part 258 requirements. Using existing authorities, MDE 
is requiring all current landfill operators to amend their existing 
ground-water monitoring plans to meet the requirements of Subpart E in 
terms of monitoring frequency and coverage, including the pollution 
parameters listed in Appendices I and II of 40 CFR Part 258. For 
proposed facilities and changes to existing facilities, MDE has amended 
their application forms and checklists to require the preparation and 
implementation of a monitoring program which incorporates the complete 
EPA requirements (Secs. 258.50 thru 258.55).
    2. In the assessment of corrective measures, selection of remedies, 
and implementation of corrective actions, MDE will use the EPA 
regulations (Secs. 258.56; 258.57; 258.58) to guide their enforcement 
actions.

Subpart F--Closure and Post-Closure Care

    1. Closure Criteria (Sec. 258.60)--Maryland now requires flexible 
membrane caps, where appropriate, in accordance with the EPA 
regulations, and is implementing the closure periods required.

C. Public Comments

    EPA Region III received the following written and/or verbal public 
comments on its tentative determination of full program adequacy 
approval of the Maryland MSW landfill permitting program.
    The first commenter questioned if revisions made by MDE to their 
existing guidances, checklists and procedures to more fully comply with 
the Federal requirements, but made before MDE regulations were revised, 
were in compliance with the Maryland Administrative Procedure Act 
(MAPA). This issue was specifically addressed in a December 15, 1994 
letter from MDE to EPA, in response to a question raised by EPA. MDE, 
supported by a statement from their Attorney General's Office, and 
referencing several specific existing regulations, took the position 
that their existing regulations allow them flexibility to expand their 
checklists, procedures, and guidances to require additional information 
and/or impose additional conditions on persons applying for a landfill 
permit in Maryland. In response to the commenter, MDE reiterated this 
position to EPA in a letter dated June 26, 1995. Furthermore, MDE has 
formally agreed to incorporate these changes in their regulations as 
soon as possible, thereby satisfying another concern expressed by this 
commenter.
    A commenter objected to MDE's commitment to specify a synthetic 
membrane final cover whenever the bottom liner permeability is less 
than 1x10-5 cm/sec, since this would be far more stringent than the EPA 
requirements. We agree that this is more stringent than the minimum EPA 
requirements, but the states are always free to adopt requirements more 
stringent than the federal requirements. MDE, in a letter dated June 
26, 1995, agreed with this commenter, and has revised their checklists 
and proposed regulations to conform to the federal criteria requiring a 
final cover of no more permeability than the bottom liner. Thus, a 
synthetic cap will not be required under all circumstances, but only 
when the bottom liner contains a synthetic liner or at specific sites 
where the State believes a more impervious cap is needed to protect 
groundwater.
    This same commenter stated that the MDE checklists for groundwater 
monitoring did not allow the owner/operators to do verification 
sampling before having to issue a notification of the finding and 
beginning assessment sampling, if a statistical increase is found under 
detection monitoring. This again is more stringent than the EPA 
requirements. MDE, in the June 26, 1995 letter to EPA, agreed with this 
statement also, and has revised their permit review checklists to adopt 
the federal criteria more exactly.
    This same commenter noted that the ASTM standard for a minimum 
sampling well diameter is two inches, while the MDE requirement is four 
inches. He stated that the installation and operation of a four-inch 
diameter well was obviously more expensive than a two-inch well, and 
his company has successfully been using two-inch wells. EPA does not 
prescribe a minimum well diameter. MDE's response was that state 
procedures allow a permittee to request a variance to the four-inch 
diameter requirement, and, in fact, they have granted such variances to 
the commenter's company in the past.
    A commenter also criticized the requirement to analyze groundwater 
samples for the extensive parameter lists contained in Appendices I and 
II, and the prohibition of field filtering groundwater samples. Both of 
these issues are beyond the scope of this determination, as they 
address the 40 CFR 258 regulations as issued. This commenter also noted 
that his company was working with EPA Headquarters over its concerns on 
the field-filtering ban. We encourage this effort as the more 
appropriate means to affect a change in the EPA requirements.
    A commenter objected to the MDE requirement that four samples be 
taken to establish background groundwater quality conditions. EPA 
requirements do not establish a specific number of 

[[Page 39387]]
samples to be taken, only that the number is appropriate to the 
statistical method of analysis chosen. MDE responded in the June 26, 
1995 letter to EPA that they agree, and have revised their permit 
review checklists to more specifically reference the federal criteria.
    As a State's regulations and statutes are amended to comply with 
the federal MSWLF landfill regulations, unapproved portions of a 
partially approved MSWLF permit program may be approved by the EPA. The 
State may submit an amended application to EPA for review and an 
adequacy determination will be made using the same criteria as for the 
initial application. This adequacy determination will be published in 
the Federal Register and will summarize the Agency's decision and the 
portion(s) of the State MSWLF permit program affected. It will also 
provide a 30-day public comment period. The adequacy determination will 
become effective sixty (60) days following publication if no adverse 
comments are received. If EPA receives adverse comments on its adequacy 
determination, another Federal Register notice will be published either 
affirming or reversing the initial decision while responding to the 
public comments.
    To ensure compliance with all of the revised Federal Criteria and 
to obtain full EPA approval, MDE must revise the following aspects of 
its permit program. Consequently, these portions of the Maryland 
program are not being proposed for approval:
    (1) Post-Closure Care Requirements (Sec. 258.61)--MDE must amend 
its existing regulations extending the post-closure care period of 
closed landfills from a minimum of 5 years to 30 years, with the 
flexibility to increase or decrease that period as necessary or 
demonstrated. The extension of the period required for financial 
assurance will require legislative action. The State must also 
specifically require leachate collection and treatment, as well as gas 
and groundwater monitoring, as post-closure care requirements. MDE has 
committed to make these changes.
    (2) Subpart G--Financial Assurance Criteria (Secs. 258.70--
258.74)--Maryland's only existing financial assurance requirements are 
limited to the posting of a $5000 per acre closure bond, and even this 
requirement exempts, by statute, local governments, who currently 
operate most MSW landfills in Maryland. To comply with Federal 
requirements, MDE has committed to prepare a major revision to its 
regulations, adopting the financial assurance requirements in 40 CFR 
part 258 for closure, post-closure care, and corrective action. It is 
believed that these revisions will require an act by the Maryland 
legislature to revise the statute exempting local governments from 
financial assurance requirements. MDE has committed to submit the 
required legislation for consideration at the next General Assembly 
session.
    Maryland has submitted a revised schedule, in a letter to EPA dated 
June 26, 1995, for completing the necessary changes to the laws, 
regulations, and/or guidance to comply with the remaining 40 CFR part 
258 requirements. This schedule commits to revising the remaining 
portions of the MDE program not currently proposed for approval and 
have them in effect by December 20, 1996. Maryland will submit an 
application for full program approval to EPA when these revisions are 
effective.
D. Decision

    Taking into consideration the public comments received as a result 
of our tentative determination, and several revisions made to the MDE 
program as a result thereof, we conclude that the State of Maryland's 
application for adequacy determination meets all of the statutory and 
regulatory requirements established by RCRA. Accordingly, Maryland is 
granted a determination of adequacy for partial approval of its 
municipal solid waste permit program, for those portions of their 
program as described above.
    Section 4005(a) of RCRA provides that citizens may use the citizen 
suit provisions of Section 7002 of RCRA to enforce the Federal MSWLF 
criteria in 40 CFR Part 258 independent of any State/Tribal enforcement 
program. As explained in the preamble to the final MSWLF criteria, EPA 
expects that any owner or operator complying with provisions in a 
state/tribal program approved by EPA should be considered to be in 
compliance with the Federal Criteria. See 56 FR 50978, 50995 (October 
9, 1991).
    Today's action takes effect on the date of publication. EPA 
believes it has good cause under section 553(d) of the Administrative 
Procedure Act, 5 U.S.C 553(d), to put this action into effect less than 
30 days after publication in the Federal Register. All of the 
requirements and obligations in Maryland's program are currently in 
effect as a matter of State law. EPA's action today does not impose any 
new requirements with which the regulated community must begin to 
comply, nor do these requirements become enforceable by EPA as federal 
law. Consequently, EPA does not find it necessary to give notice prior 
to making its approval effective.

Compliance With Executive Order 12866

    The Office of Management and Budget has exempted this notice from 
the requirements of Section 6 of Executive Order 12866.

Certification Under the Regulatory Flexibility Act

    Pursuant to the provisions of 5 U.S.C. 605(b), I hereby certify 
that this approval will not have a significant economic impact on a 
substantial number of small entities. It does not impose any new 
burdens on small entities. This notice, therefore, does not require a 
regulatory flexibility analysis.

    Authority: This notice is issued under the authority of Section 
2002, 4005 and 4010(c) of the Solid Waste Disposal Act, as amended; 
42 U.S.C. 6912, 6945 and 6949(a)(c).

    Dated: July 25, 1995.
W. Michael McCabe,
Regional Administrator.
[FR Doc. 95-19002 Filed 8-1-95; 8:45 am]
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