[Federal Register Volume 61, Number 47 (Friday, March 8, 1996)]
[Notices]
[Pages 9451-9454]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-5533]



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ENVIRONMENTAL PROTECTION AGENCY
[FRL-5437-9]


West Virginia Division of Environmental Protection: Partial 
Program Adequacy Determination of State Municipal Solid Waste Landfill 
Permit Program

AGENCY: Environmental Protection Agency Region III.

ACTION: Notice of Tentative Determination on the West Virginia Division 
of Environmental Protection Application for a Partial Program Adequacy 
Determination, Public Hearing and Public Comment Period.

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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. On January 26, 1996, EPA published in the Federal 
Register a proposed State/Tribal Implementation Rule (STIR) that 
provides procedures by which EPA will approve, or partially approve, 
State/Tribal landfill permit programs. The EPA 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 the final promulgation of STIR, 
adequacy determinations will be made based on the statutory authorities 
and requirements. In addition, States/Tribes may use the proposed STIR 
as an aid in interpreting these requirements. The EPA 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 States/Tribes with approved permit programs can 
use the site-specific flexibility provided by 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. 

[[Page 9452]]

    The West Virginia Division of Environmental Protection (WVDEP) 
applied for a partial determination of adequacy under section 4005 of 
RCRA. EPA reviewed WVDEP's application and made a tentative 
determination of adequacy for those portions of the WVDEP's MSWLF 
permit program that are adequate to assure compliance with the revised 
MSWLF Criteria. These portions are described later in this notice. The 
WVDEP plans to revise the remainder of its permit program to assure 
complete compliance with the revised MSWLF Criteria and gain full 
program approval. WVDEP's application for partial program adequacy 
determination is available for public review and comment.
    All municipal solid waste landfilled in West Virginia must be 
disposed in a landfill which meets these criteria. This includes all 
ash from municipal solid waste incinerators which is determined to be 
non-hazardous.
    Although RCRA does not require EPA to hold a public hearing on a 
determination to approve any State/Tribe's MSWLF program, EPA Region 
III is offering the opportunity for a public hearing on this 
determination on the date given below in the DATES section.

DATES: All comments on WVDEP's application for a partial determination 
of adequacy must be received by EPA Region III by the close of business 
on April 30, 1996. If, and only if, sufficient interest in having a 
public hearing is requested by April 10, 1996, a public hearing to 
receive oral and written testimony on EPA's tentative determination 
will be held on Tuesday, April 30, 1996 from 7:00 pm until 10:00 pm. 
The hearing, if held, will be at the Capital High School Auditorium, 
1500 Greenbrier Street, Charleston, WV. WVDEP will attend the public 
hearing.
    Written or verbal requests for a public hearing must be received by 
the EPA contact listed below by April 10, 1996. EPA will determine by 
April 12, 1996 if a public hearing is warranted. After that date, any 
interested party may contact the EPA persons listed below to find out 
whether or not a public hearing will be held.

ADDRESSES: Copies of WVDEP's application for partial adequacy 
determination are available from 9 a.m. to 4 p.m. at the following 
addresses for inspection and copying: West Virginia Division of 
Environmental Protection, 1356 Hansford Street, Charleston, WV 25301, 
Attn: Mr. William Rheinlander, telephone 304-558-5929; and U.S. EPA 
Region III, 841 Chestnut Street Building, Philadelphia, Pennsylvania 
19107, Attn: Mr. Andrew R. Uricheck, mailcode (3HW60), telephone 215-
597-7936. All written comments on this tentative determination must be 
sent to U.S. EPA Region III, 841 Chestnut Street Building, 
Philadelphia, Pennsylvania 19107, Attn: Mr. John Humphries, mailcode 
(3HW60).

FOR FURTHER INFORMATION AND TO REQUEST A PUBLIC HEARING, CONTACT: U.S. 
EPA Region III, 841 Chestnut Street Building, Philadelphia, 
Pennsylvania 19107, Attn: Mr. Andrew R. Uricheck, mailcode (3HW60) or 
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 to ensure that MSWLFs comply with the Federal 
Criteria under 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 EPA has proposed in 
the Federal Register the State/Tribal Implementation Rule (STIR). The 
Rule specifies the requirements which State/Tribal programs must 
satisfy to be determined adequate.
    EPA proposed in the STIR to allow partial approvals if: 1) the 
Regional Administrator determines that the State/Tribal permit program 
largely meets the requirements for ensuring compliance with Part 258; 
2) changes to a limited part(s) of the State/Tribal permit program are 
needed to meet these requirements; and, 3) provisions not included in 
the partially approved portions of the State/Tribal permit program are 
a clearly identifiable and separable subset of Part 258. These 
requirements will address the potential problems posed by the dual 
State/Tribal and Federal regulatory controls following the October 9, 
1993 effective date of the Federal regulations. On that date, Federal 
rules covering any portion of a State/Tribe's program that had not 
received EPA approval became enforceable through the citizen suit 
provisions of RCRA 7002. Owners and operators of MSWLFs subject to such 
dual programs must understand the applicable requirements and comply 
with them. In addition, those portions of the Federal program that are 
in effect must mesh well enough with the approved portions of the 
State/Tribal program to leave no significant gaps in regulatory control 
of MSWLF's. Partial approval would allow the EPA to approve those 
provisions of the State/Tribal permit program that meet the 
requirements and provide the State/Tribe time to make necessary changes 
to the remaining portions of its program. As a result, owners/operators 
will be able to work with the State/Tribal permitting agency to take 
advantage of the Criteria's flexibility for those portions of the 
program which have been approved.
    As provided in the October 9, 1991 municipal landfill rule, EPA's 
national Subtitle D standards took effect in October 1993 in any State/
Tribe that lacks an approved program. Consequently, any remaining 
portions of the Federal Criteria which are not included in an approved 
State/Tribal program by October 1993 would apply directly to the owner/
operator. On April 7, 1995, EPA issued a Federal Register Notice 
extending the effective date of the 40 CFR Part 258, subpart G 
requirements relating to Financial Assurance until April 9, 1997.
    EPA intends to approve portions of State/Tribal MSWLF permit 
programs prior to the promulgation of the final STIR. EPA interprets 
the requirements for States or Tribes to develop ``adequate'' programs 
for permits or other forms of prior approval to impose 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 a State/Tribe has submitted an 
``adequate'' program based on the interpretation outlined above. EPA 
expects States/Tribes to meet all of these requirements for all 
elements of a MSWLF program before it gives full approval to a MSWLF 
program.
    EPA also is requesting States/Tribes seeking partial program 
approval to provide a schedule for the submittal of all remaining 
portions of their MSWLF permit programs. EPA notes that the proposed 
STIR makes submission of a schedule mandatory.

[[Page 9453]]


B. State of West Virginia

    In a letter dated June 17, 1994, WVDEP submitted a complete 
application to EPA Region III for a partial program adequacy 
determination. In response to EPA review comments on their application, 
WVDEP submitted additional information in letters dated April 10, 1995 
and October 12, 1995. EPA reviewed WVDEP's application and this 
additional information and has tentatively determined that the 
following portions of the State's municipal solid waste landfill 
permitting program will ensure compliance with the revised Federal 
Criteria. EPA has also assessed the impact of the ruling in Federal 
District Court of West Virginia on September 28, 1995, in Valero 
Terrestrial Corporation, et al. v. Callaghan, Civil Action No. 
5:93CV189 (N.D.W.V.), and the Court's subsequent clarification issued 
December 12, 1995, and has determined, in conjunction with the State, 
that the portions of the State's program proposed herein for approval 
by EPA have not been adversely impacted. Public comment is invited on 
this issue.
    As noted in the detailed discussions which follow, portions of the 
West Virginia program currently fulfill the Federal requirements, and 
other portions will fulfill the Federal requirements after the State's 
revision of its guidelines and/or permit application forms, which they 
are required to complete prior to receiving final EPA partial approval. 
Lastly, portions of the West Virginia program which do not currently 
meet the Federal requirements and can only be revised through their 
regulation revision process, which includes State Legislature action, 
are not being proposed for EPA approval at this time. The State has 
committed to submitting an application for full program approval to EPA 
by September 1, 1996, after these regulatory changes have been made.
    Portions of the West Virginia Program tentatively proposed for 
approval at this time:
Subpart A--General
    The existing WVDEP requirements fully comply with 40 CFR Sections 
258.1, Purpose, Scope, and Applicability and 258.3, Consideration of 
other Federal laws.
Subpart B--Location Restrictions
    1. The existing WVDEP requirements fully comply with Sec. 258.11, 
Floodplains; Sec. 258.12, Wetlands; Sec. 258.13, Fault Areas; and 
Sec. 258.16, Closure of Existing MSWLF Units.
    2. WVDEP permit application checklists and internal guidance will 
be revised to incorporate the requirements of Sec. 258.10, Airport 
Safety; Sec. 258.14, Seismic Impact Zones; and Sec. 258.15, Unstable 
Areas.
Subpart C--Operating Criteria
    1. The existing WVDEP requirements fully comply with: Sec. 258.20, 
Hazardous Waste Exclusion; Sec. 258.21, Daily Cover; Sec. 258.22, 
Disease Vectors Control; Sec. 258.23, Explosive Gas Control; 
Sec. 258.24, Air Criteria; Sec. 258.25, Access requirements; 
Sec. 258.26, Run-On/Run-Off Control Systems; Sec. 258.27, Surface Water 
Requirements; and Sec. 258.29, Recordkeeping Requirements.
    2. WVDEP permit application checklists and internal guidance will 
be revised to incorporate the leachate recirculation restrictions of 
Sec. 258.28, Liquids Restrictions.
Subpart D--Landfill Design
    1. WVDEP regulations now require, as a minimum, at all new MSW 
landfills and expansions to existing landfills, the bottom liner system 
described in 40 CFR 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). WVDEP also allows an alternate liner design. WVDEP permit 
application checklists and internal guidance will be revised to require 
applications requesting approval of any alternate liner design to 
demonstrate that they comply with the performance standards established 
in Sec. 258.40 (a) and (c). WVDEP will require 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).
Subpart E--Groundwater Monitoring and Corrective Action
    1. The existing West Virginia requirements for groundwater sampling 
program are in need of substantial upgrading to meet the 40 CFR part 
258 requirements. The primary deficiency is the need to require the 
extensive pollutant parameter coverage of Appendices I and II in 40 CFR 
part 258 in groundwater sampling programs. Existing WVDEP requirements 
meet the requirements of 40 CFR 258.50, Applicability, and Sec. 258.56, 
Assessment of Corrective Measures.
    2. WVDEP permit applications and/or guidelines will be revised to 
incorporate the requirements of 40 CFR 258.53, Groundwater Sampling and 
Analysis; Sec. 258.57, Selection of Remedy; and Sec. 258.58, 
Implementation of the Corrective Action Program.
Subpart F--Closure and Post-Closure Care
    1. Post-Closure Care Requirements (Sec. 258.61)--Existing West 
Virginia statute requires the Federal standard of a 30-year post-
closure care period.
    Not all existing States/Tribes permit programs ensure compliance 
with all provisions of the revised Federal Criteria. Were EPA to 
restrict a State/Tribe from submitting its application until it could 
ensure compliance with the entirety of 40 CFR Part 258, many States/
Tribes would need to postpone obtaining approval of their permit 
programs for a significant period of time. This delay in determining 
the adequacy of the State/Tribal permit program, while the State/Tribe 
revises its statutes or regulations, could impose a substantial burden 
on owners and operators of landfills because the State/Tribe would be 
unable to exercise the flexibility available to States/Tribes with 
approved permit programs.
    As State/Tribal 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/Tribe may submit an amended application to EPA for review, and an 
adequacy determination will be made using the same criteria used for 
the initial application. This adequacy determination will be published 
in the Federal Register which will summarize the Agency's decision and 
the portion(s) of the State/Tribal MSWLF permit program affected. It 
will also provide for a minimum 30 day public comment period. This 
future adequacy determination will become effective 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 of its municipal solid waste landfill 
permitting program, the West Virginia Division of Environmental 
Protection must revise the following additional portions of its 
program:
    1. Subpart A--General--Include the definitions listed in 
Sec. 258.2, Definitions.
    2. Subpart E--Groundwater Monitoring--Adopt the requirements of 40 
CFR 258.51, Groundwater Monitoring Systems; Sec. 258.54, Detection 

[[Page 9454]]
Monitoring Program; and Sec. 258.55, Assessment Monitoring Program.
    3. Subpart F--Final Closure--Adopt the criteria in 40 CFR 
Sec. 258.60, Closure Criteria, pertaining to the time allowed to apply 
the final cover.
    4. Subpart G--Financial Assurance Criteria--The major revision 
needed in WVDEP's permitting requirements is its adoption of the 40 CFR 
Part 258 Financial Assurance requirements. This includes Sec. 258.70, 
Applicability; Sec. 258.71, Financial Assurance for Closure; 
Sec. 258.72, Financial Assurance for Post-Closure Care; Sec. 258.73, 
Financial Assurance for Corrective Action, and Sec. 258.74, Allowable 
Mechanisms. Current WVDEP regulations contain neither the applicability 
nor scope of the Federal requirements. A statutory change in West 
Virginia law is needed to implement portions of this Federal criteria.
    WVDEP has submitted a schedule indicating that it will commit to 
complete these above regulatory revisions by September 1, 1996. To 
allow West Virginia to begin exercising some of the flexibility allowed 
in States with adequate permit programs, EPA is proposing to approve 
now those portions of the WVDEP's program not required to need 
regulatory revision, and which therefore can be implemented prior to 
September 1996.
    EPA reviewed the State's schedule and believes it is reasonable, 
considering the complexity of the rule changes, number of steps in the 
State rulemaking process, and the need for legislative action.
    Comments are solicited on this tentative determination until April 
30, 1996. Copies of WVDEP's application are available for inspection 
and copying at the locations indicated in the ADDRESSES section of this 
notice.
    EPA Region III will hold a public hearing if, and only if, 
requested (see DATES section of this notice) on this tentative 
decision, on April 30, 1996 from 7:00 p.m. to 10:00 pm at the Capital 
High School in Charleston, West Virginia. Comments can be submitted at 
the hearing, if held, as transcribed from oral comments presented, or 
in writing at the time of the hearing.
    EPA will consider all written public comments on its tentative 
determination received during the public comment period, as well as 
those presented at the public hearing. Issues raised by those comments 
may be the basis for EPA's reconsideration of this tentative 
determination of adequacy for WVDEP's program. EPA will make a final 
decision on whether or not to approve WVDEP's program and will provide 
notice in the Federal Register. The notice will include a summary of 
the reasons for the final determination and a response to all major 
comments.
    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 EPA 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).

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 according to EPA Headquarters this tentative 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 
proposed notice, therefore, does not require a regulatory flexibility 
analysis.

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

    Dated: February 28, 1996.
Stanley L. Laskowski,
Deputy Regional Administrator.
[FR Doc. 96-5533 Filed 3-7-96; 8:45 am]
BILLING CODE 6560-50-P