[Federal Register Volume 61, Number 49 (Tuesday, March 12, 1996)]
[Rules and Regulations]
[Pages 9905-9944]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-5529]
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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Parts 51, 52, and 60
[AD-FRL-5437-8]
RIN 2060-AC42
Standards of Performance for New Stationary Sources and
Guidelines for Control of Existing Sources: Municipal Solid Waste
Landfills
AGENCY: Environmental Protection Agency (EPA).
ACTION: Final rule and guideline.
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SUMMARY: This action adds subparts WWW and Cc to 40 CFR part 60 by
promulgating standards of performance for new municipal solid waste
landfills and emission guidelines for existing municipal solid waste
landfills. This action also adds the source category ``municipal solid
waste landfills'' to the priority list in 40 CFR Part 60, Sec. 60.16,
for regulation under section 111 of the Clean Air Act. These standards
and emission guidelines implement section 111 of the Clean Air Act and
are based on the Administrator's determination that municipal solid
waste landfills cause, or contribute significantly to, air pollution
that may reasonably be anticipated to endanger public health or
welfare. The emissions of concern are non-methane organic compounds
(NMOC) and methane. NMOC include volatile organic compounds (VOC),
hazardous air pollutants (HAPs), and odorous compounds. VOC emissions
contribute to ozone formation which can result in adverse effects to
human health and vegetation. Ozone can penetrate into different regions
of the respiratory tract and be absorbed through the respiratory
system. The health effects of exposure to HAPs can include cancer,
respiratory irritation, and damage to the nervous system. Methane
emissions contribute to global climate change and can result in fires
or explosions when they accumulate in structures on or off the landfill
site. The intended effect of the standards and guidelines is to require
certain municipal solid waste landfills to control emissions to the
level achievable by the best demonstrated system of continuous emission
reduction, considering costs, nonair quality health, and environmental
and energy impacts.
EFFECTIVE DATE: Effective on March 12, 1996.
ADDRESSES: Background Information Document. The background information
document for the promulgated standards may be obtained from the U.S.
EPA Library (MD-35), Research Triangle Park, North Carolina 27711,
telephone number (919) 541-2777. Please refer to ``Air Emissions from
Municipal Solid Waste Landfills--Background Information for Final
Standards and Emission Guidelines,'' EPA-453/R-94-021. The Background
Information Document contains: (1) A summary of all the public comments
made on the proposed standards and the Notice of Data Availability as
well as the Administrator's response to these comments, (2) a summary
of the changes made to the standards since proposal, and (3) the final
Environmental Impact Statement, which summarizes the impacts of the
standards.
Docket. Docket No. A-88-09, containing supporting information used
in developing the promulgated standards, is available for public
inspection and copying between 8:00 a.m. and 4:00 p.m., Monday through
Friday, except for Federal holidays at the following address: U.S.
Environmental Protection Agency, Air and Radiation Docket and
Information Center (MC-6102), 401 M Street SW., Washington, DC 20460
[phone: (202) 260-7548]. The docket is located at the above address in
Room M-1500, Waterside Mall (ground floor). A reasonable fee may be
charged for copying.
FOR FURTHER INFORMATION CONTACT: For information on the regulation of
municipal solid waste landfills, contact Ms. Martha Smith, Waste and
Chemical Processes Group, Emission Standards Division (MD-13), U.S.
Environmental Protection Agency, Research Triangle Park, North Carolina
27711, telephone number (919) 541-2421.
SUPPLEMENTARY INFORMATION:
Judicial Review
Under section 307(b)(1) of the Clean Air Act, judicial review of
the actions taken by this notice is available only by the filing of a
petition for review in the U.S. Court of Appeals for the District of
Columbia Circuit within 60 days of today's publication of this rule.
Under section 307(b)(2) of the Clean Air Act, the requirements that are
the subject of today's notice may not be challenged
[[Page 9906]]
later in civil or criminal proceedings brought by the EPA to enforce
these requirements.
The following outline is provided to aid in locating information in
the introductory text (preamble) to the final standards.
I. Acronyms, Abbreviations, and Measurement Units
A. Acronyms
B. Abbreviations and Measurement Units
C. Conversion Factors and Commonly Used Units
II. Background
III. Summary of Considerations in Developing the Standards and
Emission Guidelines
A. Purpose of the Regulation
B. Technical Basis of the Regulation
C. Stakeholders and Public Involvement
IV. Summary of the Standards, Emission Guidelines, and Methods
V. Impacts of the Standards and Emission Guidelines
A. Environmental Impacts
B. Cost and Economic Impacts
VI. Significant Changes to the Proposed Standards and Emission
Guidelines
A. Design Capacity Exemption
B. Emission Rate Cutoff
C. Collection System Design Specifications
D. Timing for Well Placement
E. Operational Standards
F. Surface Emission Monitoring
G. Model Default Values
VII. Permitting
A. New Source Review Permits
B. Operating Permits
VIII. Administrative Requirements
A. Docket
B. Paperwork Reduction Act
C. Executive Order 12866
D. Executive Order 12875
E. Unfunded Mandate Reform Act
F. Regulatory Flexibility Act
G. Miscellaneous
I. Acronyms, Abbreviations, and Measurement Units
The following definitions, acronyms, and measurement units are
provided to clarify the preamble to the final rule.
A. Acronyms
BDT--best demonstrated technology
BID--background information document
CAA--Clean Air Act
CERCLA--Comprehensive Environmental Response, Compensation, and
Liability Act
EG--emission guideline(s)
EPA--Environmental Protection Agency
FR--Federal Register
HAP--hazardous air pollutant
LFG--landfill gas
MSW--municipal solid waste
NMOC--nonmethane organic compounds
NPV--net present value
NSPS--new source performance standards
NSR--new source review
OMB--Office of Management and Budget
PSD--prevention of significant deterioration
RCRA--Resource Conservation and Recovery Act
VOC--volatile organic compound(s)
B. Abbreviations and Measurement Units
J/scm--joules per standard cubic meter
m--meter
Mg--megagram
mm--millimeter
ppm--parts per million
ppmv--parts per million by volume
tpy--tons per year
yr--year
C. Conversion Factors and Commonly Used Units
1 meter = 3.2808 feet
1 megagram = 1.1023 tons = 2204.6 pounds
1 cubic meter = 35.288 cubic feet = 1.3069 cubic yards
1 cubic meter = 0.0008101 acre-feet
Degrees Celsius = (degrees Fahrenheit - 32)/1.8
II. Background
The United States Environmental Protection Agency (EPA) originally
considered regulating MSW landfill emissions under a RCRA subtitle D
rulemaking. However, the Administrator decided to regulate MSW landfill
emissions under the authority of the CAA, and announced the decision in
the Federal Register on August 30, 1988 (53 FR 33314). The EPA decided
to propose regulation of new MSW landfills under section 111(b) of the
CAA and to propose EG for existing MSW landfills under section 111(d).
The EPA published a proposal of this NSPS and EG in the Federal
Register on May 30, 1991 (56 FR 24468).
Following the receipt of new data and changes in the modeling
techniques, the EPA published a Notice of Data Availability in the
Federal Register on June 21, 1993 (56 FR 33790).
Under the authority of section 111(b)(1)(A) of the CAA, today's
notice adds the source category MSW landfills to the priority list in
40 CFR 60.16 because, in the judgement of the Administrator, it
contributes significantly to air pollution which may reasonably be
anticipated to endanger public health and welfare. Further rationale
for this finding is contained in section 1.1.1 of the promulgation BID
(EPA-453/R-94-021).
Today's notice promulgates the final NSPS and EG for MSW landfills.
The promulgation BID ``Air Emissions from Municipal Solid Waste
Landfills--Background Information for Final Standards and Guidelines''
(EPA 453/R-94-021) summarizes all public comments on the proposed NSPS
and EG and the EPA responses. For further discussion of stakeholder and
public involvement in the development of the rules see section III.C.
of this preamble.
Recent information suggests that mercury might be emitted from
landfills. The EPA is still looking at the possibility and will take
action as appropriate in the future under the landfill national
emission standards for hazardous air pollutants.
III. Summary of Considerations in Developing the Standards and Emission
Guidelines
A. Purpose of the Regulation
Landfill gas emissions contain methane, carbon dioxide, and more
than 100 different NMOC, such as vinyl chloride, toluene, and benzene.
Studies indicate that MSW landfill gas emissions can at certain levels
have adverse effects on both public health and welfare. The EPA
presented concerns with the health and welfare effects of landfill
gases in the preamble to the proposed regulations (56 FR 24468).
Briefly, specific health and welfare effects from LFG emissions are
as follows: NMOC contribute to ozone formation; some NMOC are known or
suspected carcinogens, or cause other noncancer health effects; NMOC
can cause an odor nuisance; methane emissions present a well-documented
danger of fire and explosion on-site and off-site, and contribute to
global climate change as a major greenhouse gas. Today's rules will
serve to significantly reduce these potential problems associated with
LFG emissions.
B. Technical Basis of the Regulation
Today's regulations are based on extensive data analysis and
consideration of several alternatives. Prior to proposal, the EPA
developed an extensive data base, using survey information from
approximately 1,200 landfills, along with emissions information from
literature, State and local agencies, and industry test reports. The
preamble to the proposed regulations presented a detailed discussion of
the data used to develop the rule and the regulatory alternatives
considered (56 FR 24476).
After proposal, the EPA continued to gather new information and
received new data through public comments. The EPA published this new
information in a Notice of Data Availability on June 21, 1993 (56 FR
33790). In addition to
[[Page 9907]]
public comments, the EPA held consultations with industry under the
authority of Executive Order 12875 (See section VIII of this document
for a detailed discussion of the Executive Order).
Based on the new information, the EPA re-assessed the impacts of
the alternatives and made changes to the final regulation. The most
significant changes to the regulation are summarized in section VI of
this preamble. Detailed rationales for these changes as well as more
minor changes are provided in the final BID (EPA 453/R-94-021).
In keeping with the EPA's common sense initiative, several of the
changes were made to streamline the rule and to provide flexibility.
Examples of this streamlining and increased flexibility include
focusing control on the largest landfills, removing the gas collection
system prescriptive design specifications, and more reasonable timing
for the installation of collection wells. All of these changes are
discussed further in section VI of this preamble.
C. Stakeholders and Public Involvement
Prior to proposal, in accordance with section 117 of the CAA, the
EPA had consultations with appropriate advisory committees, independent
experts, Federal departments and agencies. In addition, numerous
discussions were held with industry representatives and trade
associations.
After proposal, the EPA provided interested persons the opportunity
to comment at a public hearing and through a written comment period.
Comment letters were received from 60 commenters including industry
representatives, governmental entities, environmental groups, and
private citizens. A public hearing was held in Research Triangle Park,
North Carolina, on July 2, 1991. This hearing was open to the public
and five persons presented oral testimony on the proposed NSPS and EG.
On June 21, 1993, a supplemental notice of data availability to the
May 30, 1991 proposal appeared in the Federal Register (58 FR 33790).
The notice announced the availability of additional data and
information on changes in the EPA's modelling methodology being used in
the development of the final NSPS and EG for MSW landfills. Public
comments were requested on the new data and comment letters were
received from seven commenters.
Since the Notice of Data Availability, the EPA has held several
consultations with State, local, and industry representatives in
accordance with the October 26, 1993 Executive Order 12875 on Enhancing
the Intergovernmental Partnership.
Major concerns expressed by participants in the consultations were
identified by the EPA. These concerns included: the design capacity
exemption level, collection system design and monitoring flexibility,
and timing of well placement. These concerns and others raised at
proposal and clarified in the consultations were addressed by revising
the rule as described in section VI of this preamble.
IV. Summary of the Standards, Emission Guidelines, and Methods
The affected facility under the NSPS is each new MSW landfill. MSW
landfills are also subject to the requirements of RCRA (40 CFR 257 and
258). A new MSW landfill is a landfill for which construction,
modification, or reconstruction commences on or after the proposal date
of May 30, 1991 or that began accepting waste on or after that date.
The EG require control for certain existing MSW landfills. An
existing MSW landfill is a landfill for which construction commenced
prior to May 30, 1991. An existing MSW landfill may be active, i.e.,
currently accepting waste, or have additional capacity available to
accept waste, or may be closed, i.e., no longer accepting waste nor
having available capacity for future waste deposition. The designated
facility under the EG is each existing MSW landfill that has accepted
waste since November 8, 1987.
The final rules (both the NSPS and EG) require affected and
designated MSW landfills having design capacities below 2.5 million Mg
or 2.5 million cubic meters to file a design capacity report. Affected
and designated MSW landfills having design capacities greater than or
equal to 2.5 million Mg or 2.5 million cubic meters are subject to the
additional provisions of the standards or EG.
The final standards and EG for MSW landfill emissions require the
periodic calculation of the annual NMOC emission rate at each affected
or designated facility with a maximum design capacity greater than or
equal to 2.5 million Mg or 2.5 million cubic meters. Those that emit
more than 50 Mg/yr are required to install controls.
The final rules provide a tier system for calculating whether the
NMOC emission rate is less than or greater than 50 Mg/yr, using a first
order decomposition rate equation. The tier system does not need to be
used to model the emission rate if an owner or operator has or intends
to install controls that would achieve compliance. Chapter 1 of the
promulgation BID (EPA 453/R-94-021) presents a complete discussion of
the components of the tier system.
The BDT for both the NSPS and the EG requires the reduction of MSW
landfill emissions from new and existing MSW landfills emitting 50 Mg/
yr of NMOC or more with: (1) A well-designed and well-operated gas
collection system and (2) a control device capable of reducing NMOC in
the collected gas by 98 weight-percent.
A well-designed and well-operated collection system would, at a
minimum: (1) Be capable of handling the maximum expected gas generation
rate; (2) have a design capable of monitoring and adjusting the
operation of the system; and (3) be able to collect gas effectively
from all areas of the landfill that warrant control. Over time, new
areas of the landfill will require control, so collection systems
should be designed to allow expansion by the addition of further
collection system components to collect gas, or separate collections
systems will need to be installed as the new areas require control.
The BDT control device is a combustion device capable of reducing
NMOC emissions by 98 weight-percent. While energy recovery is strongly
recommended, the cost analysis is based on open flares because they are
applicable to all affected and designated facilities regulated by the
standards and EG. If an owner or operator uses an enclosed combustor,
the device must demonstrate either 98-percent NMOC reduction or an
outlet NMOC concentration of 20 ppmv or less. Alternatively, the
collected gas may be treated for subsequent sale or use, provided that
all emissions from any atmospheric vent from the treatment system are
routed to a control device meeting either specification above.
The standards and EG require that three conditions be met prior to
capping or removal of the collection and control system: (1) The
landfill must be permanently closed under the requirements of 40 CFR
258.60; (2) the collection and control system must have been in
continuous operation a minimum of 15 years; and (3) the annual NMOC
emission rate routed to the control device must be less than the
emission rate cutoff on three successive dates, between 90 and 180 days
apart, based upon the site-specific landfill gas flow rate and average
NMOC concentration.
Section VI.E. of this preamble describes a new section of the NSPS,
Sec. 60.753, ``Operational Standards for Collection and Control
Systems.'' The EG also refer to this section. The
[[Page 9908]]
provisions in this section include: (1) Collection of gas from each
area, cell or group of cells in which non-asbestos degradable solid
waste has been placed for a period of 5 years or more for active areas
or 2 years or more for closed areas; (2) operation of the collection
system with each wellhead under negative pressure, with a nitrogen
level less than or equal to 20 percent (revised from 1 percent in the
proposal, based on public comments) or an oxygen level less than or
equal to 5 percent (a new provision); (3) operation with a landfill gas
temperature less than 55 deg.C (a new provision) at each well
transporting the collected gases to a treatment or control device
designed and operated in compliance with Sec. 60.752(b)(2)(iii) of the
NSPS and operated at all times when the collected gas is vented to it;
and (4) a requirement that the collection system be operated to limit
the surface methane concentration to 500 ppm or less over the landfill
as determined according to a specified monitoring pattern.
Owners and operators must determine compliance with the standards
for the collection systems and control devices according to
Sec. 60.755. Changes made to the final compliance determination and
monitoring procedures as a result of comments are discussed in detail
in the BID (EPA 453/R-94-021). The Secs. 60.757 and 60.758 of the NSPS
and Sec. 60.35(c) of the EG contain recordkeeping and reporting
requirements. Changes have been made to the recordkeeping and reporting
requirements to allow for consistency with the final compliance
requirements.
V. Impacts of the Standards and Emission Guidelines
A. Environmental Impacts of Promulgated Action
The estimated environmental impacts have changed somewhat from
those presented in the preamble to the proposed regulations as a result
of changes in the final rules and changes in the estimation
methodology. These changes were made in response to public comments.
Additional data were also incorporated and are described in the
supplemental Notice of Data Availability (56 FR 33790). The analysis of
environmental impacts presented in this document, along with the
proposal and promulgation BID's, and memoranda in the docket constitute
the Environmental Impact Statement for the final standards and
guidelines.
For most NSPS, emission reductions and costs are expressed in
annual terms. In the case of the NSPS and EG for landfills, the final
regulations require controls at a given landfill only after the
increasing NMOC emission rate reaches the level of the regulatory
cutoff. The controls are applied when the emissions exceed the
threshold, and they must remain in place until the emissions drop below
the cutoff. However, this process could take as long as 50 to 100
hundred years for some landfills. During the control period, costs and
emission reductions will vary from year to year. Therefore, the
annualized numbers for any impact will change from year to year.
Because of the variability of emission reductions and costs of the
final standards and EG over time, the EPA judged that the NPV of an
impact is a more valuable tool in the decision process for landfills
and has used NPV in the development of both the proposal and final
nationwide impacts. The NPV is computed by discounting the capital and
operating costs and emission reductions that will be incurred
throughout the control periods to arrive at a measure of their current
value. In this way, the NPV accounts for the unique emission patterns
of landfills when evaluating nationwide costs and benefits over
different discrete time periods for individual sources. Thus, the
impacts presented include both annualized estimates and estimates
expressed in terms of NPV in 1992.
1. Air Emissions
The methodology for estimating the impacts of the NSPS and EG is
discussed in the proposal BID and in memoranda in the docket. The
analysis of impacts for the NSPS is based on new landfills (beginning
construction after May 30, 1991) that are projected to begin accepting
waste over the first 5 years of the standards. The NPV of the emission
reduction achieved by the final standards is estimated to be 79,300 Mg,
which reflects a 50 percent reduction from the NPV of the baseline
emissions of 160,000 Mg. Substantial reduction of methane emissions is
also achieved. Table 1 presents the emission reductions of the final
NSPS in annualized values as well as NPV.
Table 1.--Summary of Emission Reduction and Cost Impacts for the NSPS
------------------------------------------------------------------------
NPV Annualized
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Baseline NMOC Emissions a (Mg).......... 160,000 13,400
NMOC Emission Reductions (Mg)........... 79,300 4,860
% NMOC Emission Reduction............... 50% 36%
Baseline Methane Emissions a (Mg)....... 10,600,000 899,000
Methane Emission Reduction b (Mg)....... 3,890,000 193,000
% Methane Emission Reduction............ 37% 21%
Cost (Million $)........................ 97 4
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a In the absence of an NSPS. This does not include landfills closed
prior to November 8, 1987.
b This does not enclude landfills expected to undertake profitable
energy recovery.
For existing landfills, the NPV of the NMOC emission reduction
achieved by the final EG is estimated to be 1.1 million Mg, or a 53
percent reduction from a baseline of 2.07 million Mg (NPV). The NPV of
the methane reduction is estimated to be 47 million Mg. Table 2
presents the emission reductions of the final EG in annualized values
as well as NPV. Note that the baseline methane emissions do not include
landfills closed prior to November 8, 1987, and that methane reductions
shown in Tables 1 and 2 do not include landfills expected to undertake
profitable energy recovery. Total methane reductions are anticipated to
be on the order of 7 million megagrams in the year 2000.
[[Page 9909]]
Table 2.--Summary of Emission Reduction and Cost Impacts for the
Emission Guidelines
------------------------------------------------------------------------
NPV Annualized
------------------------------------------------------------------------
Baseline NMOC Emissions a (Mg).......... 2,070,000 145,000
NMOC Emission Reductions (Mg)........... 1,100,000 77,600
% NMOC Emission Reduction............... 53% 54%
Baseline Methane Emissions b (Mg)....... 120,000,000 8,440,000
Methane Emission Reduction (Mg)......... 47,000,000 3,370,000
% Methane Emission Reduction............ 39% 40%
Cost (Million $)........................ 1,278 90
------------------------------------------------------------------------
a In the absence of EG. This does not include landfills closed prior to
November 8, 1987.
bThis does not enclude landfills expected to undertake profitable energy
recovery.
As existing landfills are filled, closed, and replaced by new
landfills, the actual annual emissions reductions achieved by the
guidelines will decrease, while the reductions achieved by the
standards will increase.
Certain by-product emissions, such as NOX, CO, SOX, and
particulates, may be generated by the combustion devices used to reduce
air emissions from MSW landfills. The types and quantities of these by-
product emissions vary depending on the control device. However, by-
product emissions are very low compared to the achievable NMOC and
methane emission reductions. Chapters 4 and 6 of the proposal BID (EPA-
450/3-90-011a) present additional information about the magnitude of
potential secondary air impacts.
2. Water
Landfill leachate is the primary potential source of water
pollution from a landfill. Although there is no data on the effect of
gas collection on leachate composition, the amount of water pollution
present as NMOC in the leachate may be reduced under these standards
and guidelines.
When LFG is collected, organics and water are condensed inside the
header pipes of the gas collection system. This waste also contains
NMOC and various toxic substances present in the LFG. The pH of this
condensate is normally adjusted by adding caustic at the landfill and
then routing it to a public treatment works where it would be treated
and discharged. At this time, there is insufficient data available to
quantify the effects of the rule on leachate.
3. Solid Waste
The final NSPS and EG will likely have little impact on the
quantity of solid waste generated nationwide. Aside from the disposal
of the collection and control system equipment once it can be removed
from the landfill, no other solid wastes are expected to be generated
by the required controls. The increased cost of landfill operation
resulting from the control requirements may cause greater use of waste
recycling and other alternatives to landfill disposal, leading to a
decrease in landfill use. However, quantification of such an impact is
not possible at this time.
4. Superfund Sites
Municipal solid waste landfill sites comprise approximately 20
percent of the sites placed by the EPA on the national priorities list.
Often, remedial actions selected at these sites include venting methane
and volatile organic contaminants, which would be controlled as
necessary to protect human health and the environment.
The final NSPS and EG may affect remedial actions under Superfund
for MSW landfills. Section 121(d)(2) of CERCLA requires compliance with
the substantive standards of applicable or relevant and appropriate
requirements (ARAR) of certain provisions in other environmental laws
when selecting and implementing on-site remedial actions.
``Applicable'' requirements specifically address a hazardous substance,
pollutant, contaminant, remedial action, location, or other
circumstance at a Superfund site. ``Relevant and appropriate''
requirements are not legally applicable, but may address problems or
situations sufficiently similar to those encountered so that their use
is well suited to a particular site. See 40 CFR 300.5 (55 FR 8814,
8817, March 8, 1990).
These air emission rules will apply to new MSW landfills, as well
as to those facilities that have accepted waste since November 8, 1987,
or that have capacity available for future use. For CERCLA municipal
landfill remediations, these requirements would be potential ARAR for
all Records of Decision signed after the date of promulgation. These
NSPS and EG will be applicable for those MSW landfill sites on the
national priorities list that accepted waste on or after November 8,
1987, or that are operating and have capacity for future use. These
standards may also be determined relevant and appropriate for sites
that accepted wastes prior to November 8, 1987. The determination of
relevance and appropriateness is made on a site-specific basis pursuant
to 40 CFR 300.400(g) (55 FR 8841, March 8, 1990). Because the NSPS and
EG apply only to landfills with design capacities greater than or equal
to 2.5 million Mg or 2.5 million cubic meters, the collection and
control requirements may not be relevant and appropriate for smaller
landfills.
Given the significant public policy benefits that result from the
collection and processing of landfill gas, Congress, as part of the
1986 SARA Amendments, enacted CERCLA Section 124 to provide broad
liability protection for companies engaged in landfill gas recovery or
processing. Landfill gas emissions, in addition to being a significant
source of air pollution, can leach underground and cause explosions in
nearby residences. If recovered, landfill gas could supply as much as 1
percent of the U.S. energy requirements.
CERCLA Section 124 states that owners or operators of equipment
installed ``for the recovery or processing (including recirculation of
condensate) of methane'' shall not be liable as a CERCLA ``owner or
operator'' under CERCLA Section 101 (20) nor shall they be deemed ``to
have arranged for disposal or treatment of any hazardous substance* *
*'' pursuant to CERCLA Section 107. Exceptions are provided (1) where a
release is primarily caused by activities of the landfill gas owner/
operator or (2) where such owner/operator would be otherwise liable due
to activities unrelated to methane recovery.
Since passage of CERCLA section 124, methane emissions have been
targeted by the EPA as a large contributor to global warming (18
percent) and landfills are one of the largest source of methane
emissions (36 percent). Because of this, the EPA's Atmospheric
Pollution Prevention Division has initiated the Landfill Methane
Outreach Program to promote landfill gas
[[Page 9910]]
collection projects at the 750 landfills where methane could profitably
be recovered. Methane recovery, as compared with collection and flaring
of landfill gas without recovery, results in significantly less
emissions. It also can greatly reduce the financial burden on local
governments (as well as taxpayers) since the energy recovered can be
sold to utilities or other consumers and thereby create a revenue
stream that may cover the costs of collection and recovery.
The EPA is aware that the standards and guidelines promulgated
today for control of emissions at municipal solid waste landfills may
change the focus of the landfill gas collection and processing for
methane recovery. The landfill gas owner/operator will now need to
consider how the collection and recovery of methane will impact on
controlling the MSW landfill emissions. It is also likely that the
landfill gas owner/operator will be asked to advise and in some cases
help implement the MSW landfill's compliance obligations. These related
objectives, the control of emissions at municipal solid waste landfills
in order to comply with the Clean Air Act Amendments and the reduction
of methane emissions in order to mitigate global warming, will need to
be coordinated in carrying out common activities such as laying a
system of collection piping at a given landfill.
In promulgating today's standards and guidelines, the EPA wants to
promote the policy incorporated in CERCLA Section 124. Recognizing the
chilling effect that potential CERCLA liability might otherwise have on
landfill gas collection or processing activities, the EPA interprets
CERCLA Section 124 in a manner that will encourage the beneficial
recovery of methane. Specifically, EPA believes that Congress intended
Section 124 to provide liability protection to owners and operators of
equipment for the recovery or processing of methane with respect to all
phases involved in landfill gas collection and methane processing. This
includes any assistance (related to recovery or processing of methane)
provided by the landfill gas equipment owner or operator to the
landfill owner/operator for achieving compliance with the emission
standards promulgated today or similar Federal, State, or local
controls on landfill emissions. In general, Section 124 will be
interpreted in a manner to provide owners and operators of equipment
for the recovery or processing of methane with comprehensive protection
from CERCLA liability, unless the release or threatened release was
primarily caused by activities of the owners and operators of the
equipment, or unless such owners or operators would be otherwise liable
under CERCLA.
B. Energy and Economic Impacts of Promulgated Action
The energy and economic impacts are summarized in chapter 1 and
fully discussed in chapter 3 and appendix A of the promulgation BID
(EPA-453/R-94-021). The estimated impacts have changed somewhat as a
result of changes in the final rules and changes in the impacts
estimation methodology made in response to public comments.
1. Energy Impacts
Affected and designated landfills with NMOC emission rates of 50
Mg/yr or more are required to install a gas collection system and
control device. The gas collection system would require a relatively
small amount of energy to run the blowers and the pumps. If a flare is
used for control, auxiliary fuel should not be necessary because of the
high heat content of LFG, commonly 1.86 x 10 \7\ J/scm or more. If a
recovery device such as an internal combustion (I.C.) engine or a gas
turbine is used, an energy savings would result.
The EPA evaluated the overall energy impacts resulting from the use
of flares, I.C. engines, or gas turbines for control of collected
emissions at all affected landfills. The least cost control option was
identified by taking the NPV costs of the three control options
(flares, I.C. engines, and turbines), including any cost savings from
the use of recovered landfill gas, and determining the option that
costs the least. If landfills use the least cost control device, it is
estimated that the NSPS will produce $170 million of energy revenue as
NPV in 1992. The EG are estimated to generated $1.5 billion of energy
revenue as NPV in 1992, if the least cost control device is used.
2. Control Costs and Economic Impacts
Nationwide annualized costs for collection and control of air
emissions from new MSW landfills are estimated to be $4 million. The
nationwide cost of the EG would be approximately $90 million. These
values are annualized costs. Tables 1 and 2 present costs in both
annualized and NPV values. In comparison to other solid waste-related
rules, the nationwide costs of the recently promulgated RCRA Subtitle D
(40 CFR 257 and 258) rule are estimated to be $300 million per year and
the estimated nationwide costs of the MWC rules promulgated in 1991 are
estimated to be $170 million per year for new combustors and $302
million per year for existing combustors (56 FR 5488 and 5514).
The incremental costs and benefits of the different options are
presented in tables 3, 4, 5, and 6 in section VIII.E. For NMOC, the
average cost effectiveness is approximately $1,200/Mg for both the NSPS
and the EG. Preliminary economic analysis indicates that the annual
cost of waste disposal may increase by an average of approximately
$0.60 per Mg for the NSPS and $1.30 per Mg for the EG. Costs per
household would increase approximately $2.50 to $5.00 per year, when
the household is served by a new or existing landfill, respectively.
Additionally, less than 10 percent of the households would face annual
increases of $15 or more per household as a result of the final EG.
However, the EPA anticipates that many landfills will elect to use
energy recovery systems, and costs per household for those areas would
be less. The EPA has concluded that households would not incur severe
economic impacts. For additional information, please refer to the
regulatory impact analysis (Docket No. A-88-09, Item No. IV-A-7) and
chapter 3 of the promulgation BID (EPA-453/R-94-021).
VI. Significant Changes to the Proposed Standards and Emission
Guidelines
All of the significant public comments received on the proposed
standards and EG and the Notice of Data Availability are addressed in
the promulgation BID (EPA-453/R-94-021). This section of the preamble
reviews the major changes to the standards and EG resulting from public
comments. A more detailed rationale for these changes is provided in
chapters 1 and 2 of the promulgation BID (EPA-453/R-94-021).
A. Design Capacity Exemption
A design capacity exemption of 100,000 Mg was included in the
proposed NSPS and EG to relieve owners and operators of small landfills
that the EPA considered unlikely to emit NMOC above the emission rate
cutoff requiring control from undue recordkeeping and reporting
responsibilities. Commenters indicated that the exemption level was too
low, and would still impact many small businesses and municipalities.
In response to these comments and as a result of changes to the
nationwide impacts analysis, the design capacity exemption in the final
NSPS was revised to 2.5 million Mg. The 2.5 million Mg exemption level
would exempt 90 percent of the existing landfills while only losing 15
percent of the total NMOC emission reduction. Most of the exempt
landfills are owned
[[Page 9911]]
by municipalities. The 2.5 million Mg level was chosen to relieve as
many small businesses and municipalities as possible from the
regulatory requirements while still maintaining significant emission
reduction.
This cutoff excludes those landfills who would be least able to
afford the costs of a landfill gas collection and control system and
are less likely to have successful energy recovery projects. However,
depending on site-specific factors including landfill gas
characteristics and local markets, some landfills smaller than the
design capacity exemption level may be able to make a profit by
installing collection and control systems that recover energy. While
the rule does not require control of landfills smaller than 2.5 million
Mg, the EPA encourages energy recovery in cases where it is profitable.
The EPA has developed a Landfill Methane Outreach Program to encourage
more widespread utilization of landfill gas as an energy source.
Information can be obtained by calling the Landfill Methane Outreach
Program Hotline at (202) 233-9042. Available publications are
identified in section 1.2.1 of the promulgation BID.
Since some landfills record waste by volume and have their design
capacities calculated in volume, the EPA also established an equivalent
design capacity exemption of 2.5 million m \3\ of waste. The density of
solid waste within different landfills varies depending on several
factors, including the compaction practices. Any landfill that reports
waste by volume and wishes to establish a mass design capacity must
document the basis for their density calculation.
B. Emission Rate Cutoff
Some commenters asserted that the proposed emission rate cutoff of
150 Mg/yr should be made more stringent, while others favored the
proposal cutoff or higher. The commenters favoring the more stringent
level indicated that the EPA's data on NMOC concentration, the benefits
of energy recovery and reduced global warming, and the reduced health
risks all supported an increased stringency level.
The Climate Change Action Plan, signed by the President in October,
1993, calls for EPA to promulgate a ``tough'' landfill gas rule as soon
as possible. This initiative also supports a more stringent emission
rate cutoff that will achieve greater emission reduction.
Due to the small-size exemption, only landfills with design
capacities greater than 2.5 million Mg of waste or 2.5 million cubic
meters of waste will be affected by this rule. It is estimated that a
landfill of 2.5 million Mg design capacity corresponds to cities
greater than about 125,000 people. On the whole, large landfills
service areas with large population. A reasonable assumption is that
many of these large landfills are in the 400 counties that have been
designated as urban ozone nonattainment areas and are developing plans
to address ozone nonattainment.
Finally, the new data and modeling methodologies, which were
published in the Notice of Data Availability on June 21, 1993,
significantly reduced the emission reduction and corresponding
effectiveness of the rule. Therefore, a more stringent emission rate
cutoff would achieve similar emission reductions at similar cost
effectiveness to the proposed rule.
Based on all of these reasons, the EPA reevaluated the stringency
level and chose an emission rate cutoff of 50 Mg/yr of NMOC for the
final rules. This revision would affect more landfills than the
proposal value of 150 Mg/yr of NMOC; however, the 50 Mg/yr of NMOC will
only affect less than 5 percent of all landfills and is estimated to
reduce NMOC emissions by approximately 53 percent and methane emissions
by 39 percent. The 150 Mg/yr emission rate cutoff would have reduced
NMOC emissions by 45 percent and methane emissions by 24 percent. The
incremental cost effectiveness of control of going from a 150 Mg/yr
cutoff level to a 50 Mg/yr cutoff level is $2,900/Mg NMOC reduction for
new landfills and $3,300/Mg for existing landfills.
The values for NMOC cost effectiveness do not include any credit
for the benefits for toxics, odor, explosion control, or the indirect
benefit of methane control. A revised cost effectiveness could be
calculated with an assumed credit value for one or more of the other
benefits. As an example, assuming a $30/Mg credit for the methane
emission reduction, the incremental cost effectiveness from the
proposal cutoff of 150 Mg/yr to the final cutoff of 50 Mg/yr would be
reduced to $660/Mg NMOC.
C. Collection System Design Specifications
Commenters indicated that the proposed design specifications for
the collection system were overly prescriptive, discouraged innovation,
and did not prevent off-site migration of LFG. In the new Sec. 60.759
for design specifications, certain criteria still require proper
landfill gas collection; however, the proposed design specifications
for the LFG collection system were removed from the final regulations.
Instead, the final rule allows sources to design their own collection
systems. Design plans must meet certain requirements and be signed by a
registered professional engineer, and are subject to agency approval.
These changes were made to provide flexibility and encourage
technological innovation.
D. Timing for Well Placement
The proposed regulations required the installation of collection
wells at applicable landfills within 2 years of initial waste
placement. Commenters indicated that the installation of wells within 2
years was not practiced at many landfills, because many cells were
still active (receiving waste) 2 years after initial placement.
Collection wells installed at these cells would have to be covered
over, which would decrease the operational life of the well and be
costly and inefficient.
The proposed timing for the placement of collection wells has been
revised to reduce costs and better coincide with common operational
practices at MSW landfills. The final regulation allows for well
installation up to 5 years from initial waste placement for active
cells. An area that reaches final grade or closure must install
collection wells within 2 years of initial waste placement.
E. Operational Standards
In response to commenters concerns about the operation of
collection systems, the final NSPS contains a new section, Sec. 60.753,
``Operational Standards for Collection and Control Equipment.'' Various
operational provisions that had previously been located throughout the
proposed rule have been organized under this one section, and new
provisions on collection and control systems have been added. The new
section addresses the following areas: (1) Collection of gas from
active areas containing solid waste older than 5 years (changed from 2
years at proposal); (2) operation of the collection system with
negative pressure at each wellhead (except as noted in the rule); (3)
operation of the collection system with a landfill temperature less
than 55 deg. (or a higher established temperature) and either an
N2 level less than or equal to 20 percent or an O2 level less
than or equal to 5 percent; (4) operation of the collection system with
a surface concentration less than 500 ppm methane; (5) venting all
collected gases to a treatment or control device; and (6) operation of
the treatment or control device at all times when the collected gas is
routed to the control device. The numerical requirements (for the
N2 or O2 levels, landfill temperature,
[[Page 9912]]
and surface concentration) are new requirements that will verify that
the system is being adequately operated and maintained. In conjunction
with the new operational provisions, the compliance, testing and
monitoring sections were revised to reference and support these new or
relocated provisions.
F. Surface Emission Monitoring
Numerous commenters asserted that the proposed rules did not
address surface methane emissions resulting from insufficient well
spacing or from breaks in the cover material. The commenters
recommended that monitoring of surface emissions be required to ensure
the proper operation of collection system equipment. Upon further
analysis, the EPA decided to require surface emission monitoring and
the maintenance of negative pressure at all wells, except under
specified conditions, to ensure proper collection system design and
operation. Based on information submitted by commenters, a maximum
surface concentration of 500 ppm methane should be demonstrated to
indicate proper operation of the collection system. Monitoring is to be
done quarterly, with provisions for increasing monitoring and
corrective procedures if readings above 500 ppm are detected.
Instrumentation specifications, monitoring frequencies, and monitoring
patterns have been structured to provide clear and straight-forward
procedures that are the minimum necessary to assure compliance.
G. Model Default Values
The EPA received additional data after proposal on the model
defaults that were included in the tier system calculations. These
default values are used to calculate whether the NMOC concentration is
above the cutoff level for control requirements of 50 Mg/yr. The new
information received lead the EPA to revise the default values for the
site-specific methane generation rate constant (k), the methane
generation potential (Lo), and the NMOC concentration
(CNMOC). In the absence of site-specific data, the landfill owner
or operator would use the default values for k, Lo, and CNMOC
in order to estimate the annual NMOC emission rate. More information on
the model defaults may be found in the final BID (EPA-453/R-94-021) and
the memorandum ``Documentation of Small-Size Exemption Cutoff Level and
Tier 1 Default Values (Revised),'' October 21, 1993, (Docket No. A-88-
09, Item No. IV-B-5).
The Tier 1 default values of k, Lo, and CNMOC tend to
overstate NMOC emission rates for most landfills, and are intended to
be used to indicate the need to install a collection and control system
or perform a more detailed Tier 2 analysis. It is recommended that
these default values not be used for estimating landfill emissions for
purposes other than the NSPS and EG. The EPA document ``Compilation of
Air Pollution Emission Factors'' (AP-42) provides emission estimation
procedures and default values that can be used for emissions
inventories and other purposes.
VII. Permitting
A. New Source Review Permits
Today's rulemaking under section 111(b) establishes a new
classification of pollutants subject to regulation under the CAA: ``MSW
landfill emissions.'' Therefore, PSD rules now apply to all subject
stationary sources which have increases in landfill gas above the
significance level, 50 tpy or more of NMOC. Landfills below the 2.5
million Mg design capacity exemption, which are not required by the
regulations to install controls, may exceed this significance level. In
this case, the State will need to determine if controls should be
installed for purposes of PSD or NSR compliance.
The proposed significance level for MSW landfill emissions of 40
tpy of NMOC was changed to 50 tpy after consideration of public
comments. The PSD significance level for VOC emissions is 40 tpy. At
proposal, the landfill gas emission level was set at 40 tpy of NMOC to
be consistent with the 40 tpy level for VOC. However, NMOC contains
organic compounds that are not VOC. An NMOC emission rate of roughly 50
tpy corresponds to a VOC emission rate of 40 tpy.
The components of MSW landfill emissions that are regulated as
pollutants or precursors of an air pollutant listed under section 108
of the CAA are also regulated by other provisions of CAA as applicable.
For example, the components of MSW landfill emissions that are emitted
as photochemically reactive VOCs are regulated, as applicable, under
the nonattainment provisions for ozone contained in part D of title I
of the CAA.
B. Operating Permits
Section 502 of the CAA and Sec. 70.3(a) require any source subject
to standards or regulations under section 111 of the CAA to obtain part
70 operating permits. However, landfills below 2.5 million Mg design
capacity are not subject to standards under section 111 because they
are not required to put on controls and are not subject to emission
limits. These landfills are subject to a reporting requirement under
the section 111 rule; however, this requirement determines
applicability of the standard and does not make them ``subject'' for
the purposes of part 70. Consequently, landfills below 2.5 million Mg
design capacity are not subject to part 70, provided they are not major
sources; and this is stated in Sec. 60.752(a) of the rule. If landfills
below 2.5 million Mg design capacity are major sources, they must
obtain a part 70 permit under the same deadlines and requirements that
apply to any other major source. States may request additional
information to verify whether landfills have the potential to emit at
major source levels.
For landfills above the 2.5 million Mg design capacity exemption,
part 70 operating permits are required. These landfills are subject to
emission limits and will most often be major sources. Since landfill
emissions increase over time, a landfill over 2.5 million Mg may not be
major in the beginning; however, as the landfill progresses to
capacity, it may become major. Many of the landfills above the 2.5
million Mg exemption will be required to collect and control the gas
under the regulation. The issuance of a permit will also help enforce
and implement the standard. Therefore, the EPA has decided to require
permits for all landfills with design capacities above 2.5 million Mg,
whether or not the landfill will be required to install a collection
and control system.
The regulation also provides for termination of operating permits.
Landfill emissions, unlike emissions from other source categories,
decrease over time after the landfill is closed. If a landfill has
closed and a control system was never required or the conditions for
control system removal specified in the regulation have been met, an
operating permit is no longer necessary.
VIII. Administrative Requirements
A. Docket
The docket (Docket No. A-88-09) is an organized and complete file
of all the information considered by the EPA in the development of this
rulemaking. The docket is a dynamic file, since material is added
throughout the rulemaking development. The docketing system is intended
to allow members of the public and industries involved to readily
identify and locate documents so that they can effectively participate
in the rulemaking process. Along with
[[Page 9913]]
the statement of basis and purpose of the proposed and promulgated
standards and the EPA responses to significant comments, the contents
of the docket, except for interagency review materials, will serve as
the record in case of judicial review [section 307(d)(7)(A)].
B. Paperwork Reduction Act
The information collection requirements in this 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 (ICR) document has been prepared by the
EPA (ICR No. 1557.03) and a copy may be obtained from Sandy Farmer,
OPPE Regulatory Information Division; U.S. Environmental Protection
Agency (2137); 401 M St., S.W.; Washington, DC 20460, or by calling
(202) 260-2740. The information requirements are not effective until
OMB approves them.
The information required to be collected by this rule is necessary
to identify the regulated entities who are subject to the rule and to
ensure their compliance with the rule. The recordkeeping and reporting
requirements are mandatory and are being established under authority of
section 114 of the Act. All information submitted as part of a report
to the Agency for which a claim of confidentiality is made will be
safeguarded according to the Agency policies set forth in title 40,
chapter 1, part 2, subpart B--Confidentiality of Business Information
(see 40 CFR 2; 41 FR 36902, September 1, 1976, amended by 43 FR 39999,
September 28, 1978; 43 FR 42251, September 28, 1978; 44 FR 17674, March
23, 1979).
The total annual reporting and recordkeeping burden for this
collection, averaged over the first 3 years of the NSPS applicability
to new MSW landfills, is estimated to be 3,379 person hours per year.
This is the estimated burden for 299 respondents (e.g., MSW landfill
owners/operators) per year, at an estimated annual reporting and
recordkeeping burden averaging 11.3 hours per respondent. The rule
requires an initial one-time notification of landfill design capacity.
If the landfill is larger than the design capacity cutoff, annual
reports are required. The capital cost to purchase required monitoring
equipment is $8,100 per monitor. The total annualized capital and
startup costs for purchase of monitoring equipment are $80,250. The
total national annual cost burden including all labor costs and
annualized capital costs for recordkeeping and reporting is $188,850.
Burden means the total time, effort, or financial resources
expended by persons to generate, maintain, retain, or disclose or
provide information to or for a Federal agency. This includes the time
needed to review instructions; develop, acquire, install, and utilize
technology and systems for the purposes of collecting, validating, and
verifying information, processing and maintaining information, and
disclosing and providing information; adjust the existing ways to
comply with any previously applicable instructions and requirements;
train personnel to be able to respond to a collection of information;
search data sources; complete and review the collection of information;
and transmit or otherwise disclose the information.
C. Executive Order 12866
Under Executive Order 12866, (58 FR 51735 (October 4, 1993)) the
EPA 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 effect 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
met forth in the Executive Order.
Pursuant to the terms of Executive Order 12866, this action was
submitted to OMB for review. Changes made in response to OMB
suggestions or recommendations are documented in the public record.
D. Executive Order 12875
To reduce the burden of Federal regulations on States and small
governments, the President issued E.O. 12875 on October 26, 1993. Under
E.O. 12875, the EPA is required to consult with representatives of
affected State, local, and tribal governments. Because this regulatory
action imposes costs to the private sector and government entities in
excess of $100 million per year, the EPA pursued the preparation of an
unfunded mandates statement, consultations, and other requirements of
the Unfunded Mandates Reform Act. The requirements are met as presented
under the following unfunded mandates section (section VIII.E of this
notice).
E. Unfunded Mandate Reform Act
Under section 202 of the Unfunded Mandates Reform Act of 1995
(``Unfunded Mandates Act''), signed into law on March 22, 1995, the EPA
must prepare a statement to accompany any rule where the estimated
costs to State, local, or tribal governments, or to the private sector,
will be $100 million or more per year. Section 203 requires the Agency
to establish a plan for informing and advising any small governments
that may be significantly or uniquely affected by the rule. Section 204
requires that the Agency ``to the extent permitted in law, develop an
effective process to permit elected officers of State, local, and
tribal governments * * * to provide meaningful and timely input in the
development of regulatory proposals containing significant Federal
intergovernmental mandates''. Under section 205(a), the EPA must select
the ``least costly, most cost-effective or least burdensome alternative
that achieves the objectives of the rule'' and is consistent with
statutory requirements.
The unfunded mandates statement under section 202 must include: (1)
A citation of the statutory authority under which the rule is proposed,
(2) an assessment of the costs and benefits of the rule including the
effect of the mandate on health, safety and the environment, and the
Federal resources available to defray the costs, (3) where feasible,
estimates of future compliance costs and disproportionate impacts upon
particular geographic or social segments of the nation or industry, (4)
where relevant, an estimate of the effect on the national economy, and
(5) a description of the EPA's consultation with State, local, and
tribal officials.
Because this rule is estimated to impose costs to the private
sector and governments entities in excess of $100 million per year
(based on tenth or fifteenth year annualized values), it is considered
a significant regulatory action.
The EPA has thus prepared the following statement with respect to
sections 202 through 205 of the Unfunded Mandates Act.
1. Statutory Authority
As discussed in section II of this preamble, the statutory
authority for this rulemaking is section 111 of the CAA. The rule
establishes emission guidelines
[[Page 9914]]
for existing MSW landfills and standards of performance for new MSW
landfills. Section 111(a)(1) of the requires that standards of
performance for new sources reflect the--
* * * degree of emission limitation and the percentage reduction
achievable through application of the best technological system of
continuous emission reduction which (taking into consideration the
cost of achieving such emission reduction, any nonair quality health
and environmental impact and energy requirements) the Administrator
determines has been adequately demonstrated.
Section 111(d) requires emission guidelines for existing sources to
reflect a similar degree of emission reduction.
These systems are referred to as BDT for new and existing sources.
Properly operated gas collection and control systems achieving 98
percent emission reduction have been demonstrated on landfills of the
size affected by the standards and EG, and represent BDT. Control
technologies and their performance are discussed in the preamble to the
proposed rules (56 FR 24476, May 30, 1991).
In selecting BDT, the EPA also considered which landfills should be
required to apply collection and control systems. A range of landfill
design capacity and emission rate cutoffs were evaluated, as described
below in section 2.b ``Regulatory Alternatives Considered.'' The
promulgated standards contain a design capacity exemption of 2.5
million Mg or 2.5 million cubic meters and an emission rate cutoff of
50 Mg NMOC/yr.
The EPA considered emission reduction, costs, and energy
requirements, as required by the statutory language of section 111 of
the CAA, in selecting the promulgated standards and EG. The promulgated
standards represent BDT. They achieve significant reductions in
landfill gas emissions--a 53 percent reduction in NMOC emissions, and a
39 percent reduction in methane reduction emissions nationwide. The
cost impacts of the standards are presented in section V.B and in
section VII.E.2 (below). The public entities and affected industries
who were consulted, as required by the Unfunded Mandates Reform Act,
understand the cost impacts and support the final rules (see Section 4,
``Consultation with Government Officials'' below). The energy impacts
are discussed in section V.B of this notice. To the extent energy
recovery devices are used to comply with the rules, the rules will
result in a net energy savings (production of energy).
Compliance with section 205(a): Regarding the EPA's compliance with
section 205(a), the EPA did identify and consider a reasonable number
of alternatives, and presents a summary of these below. The EPA has
chosen to adopt the alternative with a size cutoff of 2.5 million Mg
capacity, and 50 Mg/yr emissions. The incremental cost effectiveness of
this 50 Mg/yr option is $6,250 per ton of NMOC reduced (versus the less
stringent 75 Mg/yr option). This cost effectiveness is much higher than
is typical for NMOC (or VOC) controls in NSPSs. However, the EPA also
considers the reductions in methane achieved by this 50 Mg/yr option as
necessary to ``achieve the objectives'' of section 111. The additional
methane reductions achieved by this option are also an important part
of the total carbon reductions identified under the Administration's
1993 Climate Change Action Plan. The EPA thus concludes that the chosen
alternative is the most cost-effective to achieve the objectives of
section 111, as called for in section 205(a).
2. Social Costs and Benefits
This assessment of the cost and benefits to State, local, and
tribal governments of the guidelines is based on EPA's ``Economic
Impact Analysis for Proposed Emission Standards and Guidelines for
Municipal Solid Waste Landfills'' and updates to the analysis contained
in ``Air Emissions from Municipal Solid Waste Landfills--Background
Information for Final Standards and Guidelines'' (EPA-453/R-94-021).
Measuring the social costs of the guidelines requires identification of
the affected entities by ownership (public or private), consideration
of regulatory alternatives, calculation of the regulatory compliance
costs for each affected entity, and assessment of the market
implications of the additional pollution control costs. Considering the
social benefits of the guidelines requires estimating the anticipated
reductions in emissions at MSW landfills due to regulation and
identifying the harmful effects of exposure to MSW landfill emissions.
Quantitative valuation of the expected benefits to society was not done
for this rule.
a. Affected Entities. The standards of performance for new sources
will require control of approximately 43 new landfills constructed in
the first 5 years the standards are in effect. The EG will require
control of approximately 312 existing landfills. This represents less
than 5 percent of the total number of landfills in the U.S.
Of the landfills required to install controls, about 30 percent of
the existing landfills and 20 percent of the new landfills are
privately owned. The remainder are publicly owned. (These percentages
are taken from section 3.2.1 of the promulgation BID (EPA-453/R-94-
021). While that analysis used a design capacity exemption level of 1
million Mg rather than the 2.5 million Mg exemption level contained in
the final rule, the percentage of private versus publicly owned
landfills would be similar.
b. Regulatory Alternatives Considered. Under section 205 of the
Unfunded Mandates Act, the Agency must identify and consider a
reasonable number of regulatory alternatives before promulgating a rule
for which a budgetary impact statement must be prepared. The Agency
must select from those alternatives the least costly, most cost-
effective, or least burdensome alternative that achieves the objectives
of the rule, unless the Agency explains why this alternative is not
selected or the selection of this alternative is inconsistent with the
law.
A number of alternatives were considered. These included design
capacity exemption levels of 1, 2.5, and 3 million Mg and emission rate
cutoffs of 50, 75, 100, and 150 Mg/year. Table 3 presents the impacts
of alternative design capacity exemption levels for existing landfills.
Table 4 presents the impacts of alternative emission rate cutoffs for
existing landfills. Tables 5 and 6 present alternative design capacity
exemption levels and emission rate cutoffs for new landfills.
Table 3.--Alternative Design Capacity Exemption Level Options for the Emission Guidelines a,b,
----------------------------------------------------------------------------------------------------------------
Annuald
Number Annual c methane Annual cost NMOC average NMOC
Small size cutoff (millions landfills NMOC emission (million $/ cost eff. ($/ Incremental
Mg) affected emission reduction yr) Mg) cost eff. ($/
reduction (Mg/yr) Mg)
-----------------------------------------------(Mg/yr)----------------------------------------------------------
Baseline e
3,000,000................... 273 73,356 3,220,000 84 1,145 1,145
[[Page 9915]]
2,500,000................... 312 77,600 3,370,000 89 1,147 1,178
1,000,000................... 572 97,600 3,990,000 119 1,219 1,500
No cutoff f................. 7,299 142,000 8,270,000 719 5,063 13,514
----------------------------------------------------------------------------------------------------------------
a Emission rate cutoff level of 50 Mg NMOC/yr.
b All values are fifth year annualized.
c NMOC emission reductions are from a baseline of 145,000 Mg NMOC/yr.
d Methane emission reductions are from a baseline of 8,400,000 Mg methane/yr.
e In the absence of an emission guidelines.
f No emission rate cutoff and no design capacity exemption level.
Table 4.--Alternative NMOC Emission Rate Stringency Level Options for the Emission Guidelines a,b
----------------------------------------------------------------------------------------------------------------
Annual d
Number Annual c methane Annual cost NMOC average NMOC
Emission rate cutoff (Mg landfills NMOC emission (million $/ cost eff. ($/ Incremental
NMOC/yr) affected emission reduction yr) Mg) cost eff. ($/
reduction (Mg/yr) Mg)
-----------------------------------------------(Mg/yr)----------------------------------------------------------
Baseline e..................
150......................... 142 66,600 2,210,000 51 766 766
100......................... 201 72,700 2,720,000 66 908 2,459
75.......................... 250 76,000 3,080,000 79 1,039 3,939
50.......................... 312 77,600 3,370,000 89 1,147 6,250
No cutoff f................. 7,299 142,000 8,270,000 719 5,063 9,783
----------------------------------------------------------------------------------------------------------------
a Design capacity exemption level of 2,500,000 Mg of refuse.
b All values are fifth year annualized.
c NMOC emission reductions are from a baseline of 145,000 Mg NMOC/yr.
d Methane emission reductions are from a baseline of 8,400,000 Mg methane/yr.
e In the absence of an emission guidelines.
f No emission rate cutoff and no design capacity exemption level.
Table 5.--Alternative Design Capacity Exemption Level Options for the New Source Performance Standards a, b
----------------------------------------------------------------------------------------------------------------
Annual d
Number Annual c methane Annual e NMOC average NMOC f
Small size cutoff (millions landfills NMOC emission cost cost eff. ($/ Incremental
Mgr) affected emission reduction (million $/ Mg) cost eff. ($/
reduction (Mg/yr) yr) Mg)
-----------------------------------------------(Mg/yr)----------------------------------------------------------
Baseline g..................
3,000,000................... 41 4,900 193,000 4 816 N/A
2,500,000................... 43 4,900 193,000 4 816 N/A
1,000,000................... 89 4,900 193,000 4 816 N/A
No cutoff h................. 872 13,115 881,000 81 6,176 N/A
----------------------------------------------------------------------------------------------------------------
a Emission rate cutoff level of 50 Mg NMOC/yr.
b All values are fifth year annualized.
c NMOC emission reductions are from a baseline of 13,400 Mg NMOC/yr.
d Methane emission reductions are from a baseline of 899,000 Mg methane/yr.
e Due to rounding off to the nearest million dollar, cost values do not appear to change for each option.
However, actual costs are slightly less for a less stringent option.
f Because the annual cost does not change enough to show a different cost from one option to the next,
incremental cost effectiveness values are not applicable.
g In the absence of a standard.
h No emission rate cutoff and no design capacity exemption level.
Table 6.--Alternative NMOC Emission Rate Stringency Level Options for the New Source Performance Standards a,b
----------------------------------------------------------------------------------------------------------------
Annual c,d Annual c,e
Number NMOC methane Annual f NMOC average NMOC g
Emission rate cutoff (Mg landfills emission emission cost cost eff. ($/ Incremental
NMOC/yr) affected reduction reduction (million $/ Mg) cost eff. ($/
(Mg/yr) (Mg/yr) yr) Mg)
----------------------------------------------------------------------------------------------------------------
Baseline h..................
150......................... 14 5,200 187,000 4 769 NA
100......................... 25 5,100 203,000 4 784 NA
75.......................... 33 5,000 194,000 4 800 NA
[[Page 9916]]
50.......................... 43 4,900 193,000 4 816 NA
No Cutoff i................. 872 13,115 881,000 81 6,176 NA
----------------------------------------------------------------------------------------------------------------
a Design capacity exemption level of 2,500,000 Mg of refuse.
b All values are fifth year annualized.
c Because of the small number of landfills and the longer time period of control for a given landfill at a more
stringent option, the average annual emission reduction appears to decrease for a more stringent option.
However, the emission reduction for a given year increase for more stringent options.
d NMOC emission reductions are from a baseline of 13,400 Mg NMOC/yr.
e Methane emission reductions are from a baseline of 899,000 Mg NMOC/yr.
f Due to rounding off to the nearest million dollar, cost values do not appear to change for each option.
However, actual costs are slightly less for a less stringent option.
g Because the annual cost does not change enough to show a different cost from one option to the next,
incremental cost effectiveness values are not applicable.
h In the absence of a standard.
i No emission rate cutoff and no design capacity exemption level.
The design capacity cutoff of 2.5 million Mg or 2.5 million cubic
meters was chosen as a result of changes to the nationwide impacts
analysis and to relieve as many small businesses and municipalities as
possible from the regulatory requirements while still maintaining
significant emission reduction. The 2.5 million Mg cutoff level exempts
landfills that serve populations of less than about 125,000 people from
periodic reporting and control requirements. This cutoff excludes those
landfills who would be least able to afford the costs of a landfill gas
collection and control system. A less stringent design capacity
exemption level (e.g., 3 million Mg) was not selected because it would
result in less emissions reductions. A more stringent design capacity
exemption level (e.g., 1 million Mg) was not selected because it would
increase the number of landfills required to apply control by over 80
percent (572 vs. 312 existing landfills) while only achieving an
additional 25 percent NMOC emission reduction (see table 3). It would
also increase national costs and subject smaller government entities to
the regulatory requirements, since smaller governments typically
operate smaller landfills.
The emission rate cutoff of 50 Mg/yr of NMOC was chosen because, in
conjunction with the 2.5 million Mg design capacity cutoff, it will
require control of less than 5 percent of all landfills, yet is
estimated to reduce NMOC emissions by approximately 53 percent and
methane emissions by 39 percent. The Climate Change Action Plan, signed
by the President in October 1993, calls for the EPA to promulgate a
``tough'' landfill gas rule as soon as possible.
The average cost effectiveness is about $1,150/Mg NMOC (see table
4). While the incremental cost effectiveness for NMOC control of going
from a cutoff of 75 Mg/yr to a 50 Mg/yr cutoff is high ($6,250/Mg
NMOC), this value does not include any credit for the benefits of
toxics, odor, explosion control, or the indirect benefit of methane
control. The economic analysis indicated that the final rule (including
the 50 Mg/yr cutoff level) would cause a relatively small increase in
waste disposal costs compared to the current costs and would not result
in severe economic impacts on households (see section C. ``Social
Costs'' below).
A more stringent option (e.g., no cutoff) was not chosen because
the average and incremental cost and cost effectiveness was not
reasonable (see table 4). Less stringent emission rate cutoff levels
were not chosen because they result in less NMOC and methane reduction,
and would not be consistent with the section 111 statutory requirement
to base emission standards on BDT.
The public entities with whom the EPA consulted understood the
EPA's concerns regarding the loss of emission reductions by changing
the proposed capacity exemption level from 100,000 Mg to 5 million Mg
and agreed that 2.5 million relieved 90 percent of the landfills from
the burden of regulation and was reasonable.
c. Social Costs. The regulatory compliance costs of reducing air
emissions from MSW landfills include the total and annualized capital
costs; operating and maintenance costs; monitoring, inspection,
recordkeeping, and reporting costs; and total annual costs. The
annualized capital cost is calculated using a 7 percent discount rate.
The total annual cost is calculated as the sum of the annualized
capital cost; operating and maintenance costs; and the monitoring,
inspection, recordkeeping, and reporting costs.
The total nationwide annualized cost for collection and control of
air emissions from new MSW landfills are estimated to be $4 million.
The nationwide costs of the EG for existing landfills is estimated to
be about $90 million. The annual cost of waste disposal is estimated to
increase by an average of $0.60/Mg for the NSPS and $1.30/Mg for the
EG. Costs per household would increase by approximately $2.50 to $5.00
per year for households served by a new or existing landfill,
respectively, that is required to install a collection and control
system. Because the rule requires control of only about 5 percent of
the landfills in the U.S. many households would experience no increase
in disposal costs. Furthermore, if affected landfills choose to use
energy recovery systems, the cost per household in those areas would be
less. The EPA has concluded that households would not incur severe
economic impacts. For additional information, please refer to the
regulatory impacts analysis (Docket No. A-88-09, Item IV-A-7) and
chapter 3 of the promulgation BID (EPA-453/R-94-021). There are no
Federal funds available to assist State and local governments in
meeting these costs.
d. Social Benefits. Society will benefit from the NSPS and EG
through the reduction of landfill gas emissions, including NMOC and
methane reductions. The total nationwide annualized emission reduction
of the EG is estimated to be 77,600 Mg/yr of NMOC and 3,370,000 Mg/yr
of methane.
[[Page 9917]]
The total nationwide annualized emission reduction for the NSPS is
about 4,900 Mg/yr of NMOC and 881,000 Mg/yr of methane.
The NMOC's present several hazards to human health. The NMOC's
participate in chemical reactions leading to the formation of ozone,
which causes health effects. Also, certain NMOC's have cancer risks and
cause noncancer health effects.
Ozone is created by sunlight acting on NOX and NMOC's in
ambient air. Ozone leads to alterations in pulmonary function,
aggravation of pre-existing respiratory disease, damage to lung
structure, and adverse effects on blood enzymes, the central nervous
system, and endocrine systems. Ozone also warrants control due to its
welfare effects, specifically, reduced plant growth, decreased crop
yield, necrosis of plant tissue, and deterioration of certain synthetic
materials such as rubber (Docket No. A-88-09, Item Nos. II-A-26, II-I-
16, etc.).
There is also concern about cancer risks from landfill NMOC
emissions. In reviewing limited emissions data from MSW landfills, EPA
identified both known and suspected carcinogens such as benzene, carbon
tetrachloride, chloroform, ethylene dichloride, methylene dichloride,
perchloroethylene, trichloroethylene, vinyl chloride, and vinylidene
chloride. Prior to proposal, the EPA attempted to apply statistical
methods to the limited data to generate the average annual increased
cancer incidence and the maximum individual risk (MIR). In evaluating
the result of the calculations for annual incidence and MIR, the EPA
could not determine reasonable estimates of either an annual incidence
or the MIR. The EPA concluded, at proposal, that the uncertainties in
the database are too great to calculate credible estimates of the
cancer risks associated with MSW landfills.
Another benefit of the NSPS and EG is reduced fire explosion hazard
through reduction of methane emissions. The EPA has documented many
cases of acute injury and death caused by explosions and fires related
to municipal landfill gas emissions. In addition to these health
effects, the associated property damage is a welfare effect.
Furthermore, when the migration of methane and the ensuring hazard are
identified, adjacent property values can be adversely affected (Docket
No. A-88-09, Item Nos. II-I-6, II-I-7, etc.)
Another aspect of MSW landfill emissions is the offensive odor
associated with landfills. While the nature of the wastes themselves
contribute to the problem of odor, the gaseous decomposition products
are often characteristically malodorous and unpleasant. Various welfare
effects may be associated with odors, but due to the subjective nature
of the impact and perception of odor, it is difficult to quantify these
effects. Studies indicate that unpleasant odors can discourage capital
investment and lower the socioeconomic status of an area. Odors have
been shown to interfere with daily activities, discourage facility use,
and lead to a decline in property values, tax revenues, and payroll
(Docket No. A-88-09, Item Nos. II-I-6, II-I-7, etc.)
An ancillary benefit from regulating air emissions from MSW
landfills is a reduction in the contribution of MSW landfill emissions
to global emissions of methane. Methane is a major greenhouse gas, and
is 20 to 30 times more potent than CO2 on a molecule-per-molecule
basis. This is due to the radiative characteristics of methane and
other effects methane has on atmospheric chemistry. There is a general
concern within the scientific community that the increasing emissions
of greenhouse gases could lead to climate change, although the rate and
magnitude of these changes are uncertain.
In conclusion, while the social benefits of the rule have not been
quantified, significant health and welfare benefits are expected to
result from the reduction in landfill gas emissions caused by the rule.
3. Effects on the National Economy
The Unfunded Mandates Act requires that the EPA estimate ``the
effect'' of this rule--
``on the national economy, such as the effect on productivity,
economic growth, full employment, creation of productive jobs, and
international competitiveness of the U.S. goods and services, if and
to the extent that the EPA in its sole discretion determines that
accurate estimates are reasonably feasible and that such effect is
relevant and material.''
As stated in the Unfunded Mandates Act, such macroeconomic effects
tend to be measurable, in nationwide econometric models, only if the
economic impact of the regulation reaches 0.25 to 0.5 percent of gross
domestic product (in the range of $1.5 billion to $3 billion). A
regulation with a smaller aggregate effect is highly unlikely to have
any measurable impact in macroeconomic terms unless it is highly
focused on a particular geographic region or economic sector. For this
reason, no estimate of this rule's effect on the national economy has
been conducted.
4. Consultation with Government Officials
The Unfunded Mandates Act requires that the EPA describe the extent
of the EPA's consultation with affected State, local, and tribal
officials, summarize the officials' comments or concerns, and summarize
the EPA's response to those comments or concerns. These goals were
addressed through meetings held with a number of public entities over
the course of six months. Those entities included the US Conference of
Mayors, the National League of Cities, the National Governor's
Association, the National Association of Counties, and the Solid Waste
Association of North America (SWANA). Through these meetings, these
entities were informed of the rule, educated about it, and advised as
to whether or not they would be impacted by it. These initial education
and information sharing meetings were followed by meetings in which
consultations and analysis of various alternatives took place.
Documentation of all meetings and public comments can be found in
Docket A-88-09.
Various concerns were discussed during the meetings. These concerns
included: (1) The design capacity cutoff; (2) collection wells, their
costing and installation requirements; (3) design specifications for
collection systems; (4) well head nitrogen measurement of 20 percent;
and (5) the surface monitoring requirements.
As a result of these consultations, the EPA decided to modify the
final regulatory package to address these concerns. In the final
regulatory package promulgated today: (1) The design capacity cutoff
has been raised from the proposed level of 100,000 to 2.5 million Mg;
(2) Changes were made to the way the costing algorithm calculates the
number of vertical collection wells. The rule was also changed to
require active areas to install wells 5 years from initial waste
placement instead of 2 years. Closed areas or areas at final grade must
install a collection system within 2 years; (3) Prescriptive design
specifications have been removed from the rule and replaced with
general criteria. The EPA is developing an Enabling Document to assist
State and local permitting agencies in their review of designs; (4)
Well head pressure monitoring can meet either 20 percent nitrogen or 5
percent oxygen; (5) Surface monitoring is to be done quarterly instead
of monthly, not to exceed 500 ppm methane above background.
These changes were made in response to consultations held regarding
burden of the regulation and as a result of new
[[Page 9918]]
data presented by the entities with whom the EPA met. A letter from the
Solid Waste Management of North America and SWAC to the EPA
demonstrates their support of this decision. Detailed summaries of the
meetings and the letter can be obtained from the Docket A-88-09.
Documentation of the EPA's consideration of comments on the
proposed standards and guidelines is provided in the BID's for the
proposed and final standards and guidelines. Refer to the ADDRESSES
section of this preamble for information on how to acquire copies of
these documents.
The final rule reflects a minimization of burden on small landfills
and does not create an unreasonable burden for large public entities.
The EPA has considered the purpose and intent of the Unfunded Mandate
Act and has determined the landfill NSPS and EG are needed.
F. Regulatory Flexibility Act
The Regulatory Flexibility Act (5 U.S.C. 601 et seq.) requires the
EPA to give special consideration to the impact of regulation on small
businesses, small organizations, and small governmental units. The
Regulatory Flexibility Act specifies that EPA must prepare an initial
regulatory flexibility analysis if a regulation will have a significant
economic impact on a substantial number of small entities.
Pursuant to section 605(b) of the Regulatory Flexibility Act, 5
U.S.C. 605(b), the Administrator certifies that this rule will not have
a significant economic impact on a substantial number of small
entities.
The final NSPS and Eg exempt small landfills that have a design
capacity below 2.5 million Mg of MSW. This design capacity exemption
will exempt landfills that serve communities of 125,000 people or less,
assuming the typical waste generation rate of 5 lb of waste per person
per day and an average landfill age of 20 years. Section 601 of the
Regulatory Flexibility Act defines a ``small governmental
jurisdiction'' as governments of cities, counties, towns, or other
districts with a population less than 50,000. The design capacity
exemption will exempt landfills that serve small governmental
jurisdictions. Therefore, the landfills NSPS and EG will have no impact
on small entities.
The NSPS and EG will require periodic emissions calculations or
control of emissions from only the largest 10 percent of landfills in
the U.S. By controlling these large landfills, the rules will
significantly reduce landfill gas emissions, which have adverse effects
on human health and welfare, contribute to global warming, and can
create odors and explosion hazards. In consideration of the potential
regulatory burden on small entities and in response to public comment,
the landfill design capacity in the proposed rule was raised to 2.5
million Mg/yr, thereby exempting small entities.
G. Miscellaneous
The effective date of this regulation is March 12, 1996. Section
111(b)(1)(B) of the CAA provides that standards of performance or
revisions thereof become effective upon promulgation and apply to
affected facilities of which the construction or modification was
commenced after the date of proposal, May 31, 1991.
As prescribed by section 111, the promulgation of these standards
was preceded by the Administrator's determination that MSW landfills
contribute significantly to air pollution that may reasonably be
anticipated to endanger public health or welfare. In accordance with
section 117 of the CAA, publication of these promulgated standards was
preceded by consultation with appropriate advisory committees,
independent experts, and Federal departments and agencies.
This regulation will be reviewed 4 years from the date of
promulgation as required by the CAA. This review will include an
assessment of such factors as the need for integration with other
programs, the existence of alternative methods, enforceability,
improvements in emission control technology, and reporting
requirements.
Section 317 of the CAA requires the Administrator to prepare an
economic impact assessment for any NSPS promulgated under section
111(b) of the CAA. An economic impact assessment was prepared for this
regulation and for other regulatory alternatives. All aspects of the
assessment were considered in the formulation of the standards to
ensure that cost was carefully considered in determining the BDT. The
economic impact assessment is included in the BID for the proposed
standards and in Chapter 3 of the promulgation BID.
List of Subjects
40 CFR Part 51
Environmental protection, Air pollution control.
40 CFR Part 52
Air pollution control.
40 CFR Part 60
Environmental protection, Air pollution control, Intergovernmental
relations, reporting and recordkeeping requirements, Municipal solid
waste landfills, Municipal solid waste.
Dated: March 1, 1996.
Carol M. Browner,
Administrator.
For the reasons set out in the preamble, title 40, chapter 1, parts
51, 52 and 60 of the Code of Federal Regulations are amended as
follows:
PART 51--REQUIREMENTS FOR PREPARATION, ADOPTION AND SUBMITTAL OF
IMPLEMENTATION PLANS
1. The authority citation for part 51 continues to read as follows:
Authority: 7401-7671q.
2. Section 51.166(b)(23)(i) is amended by adding an entry to the
end of the Pollutant and Emission Rate list to read as follows:
Sec. 51.166 Prevention of significant deterioration of air quality.
* * * * *
(b) * * *
(23) * * *
(i) * * * Municipal solid waste landfill emissions (measured as
nonmethane organic compounds): 45 megagrams per year (50 tons per year)
* * * * *
PART 52--APPROVAL AND PROMULGATION OF IMPLEMENTATION PLANS
3. The authority citation for part 52 continues to read as follows:
Authority: 42 U.S.C. 7401-7671q.
4. Section 52.21(b)(23)(i) is amended by adding an entry to the end
of the Pollutant and Emission Rate list to read as follows:
Sec. 52.21 Prevention of significant deterioration of air quality.
* * * * *
(b) * * *
(23) * * *
(i) * * * Municipal solid waste landfills emissions (measured as
nonmethane organic compounds): 45 megagrams per year (50 tons per year)
* * * * *
PART 60--STANDARDS OF PERFORMANCE FOR NEW STATIONARY SOURCES
5. The authority citation for part 60 continues to read as follows:
Authority: 42 U.S.C. 7401, 7411, 7414, 7416, and 7601.
6. Section 60.16 of subpart A is amended by adding an entry to the
end to read under Other Source Categories as follows:
[[Page 9919]]
Sec. 60.16 Priority list.
* * * * *
Other Source Categories
* * * * *
Municipal solid waste landfills.\4\
\4\ Not prioritized, since an NSPS for this major source
category has already been promulgated.
---------------------------------------------------------------------------
* * * * *
7. Section 60.30 is amended by adding a new paragraph (c) to read
as follows:
Sec. 60.30 Scope.
* * * * *
(c) Subpart Cc--Municipal Solid Waste Landfills.
8. Part 60 is further amended by adding the Subpart Cc to read as
follows:
Subpart Cc--Emission Guidelines and Compliance Times for Municipal
Solid Waste Landfills
Sec.
60.30c Scope.
60.31c Definitions.
60.32c Designated facilities.
60.33c Emission guidelines for municipal solid waste landfill
emissions.
60.34c Test methods and procedures.
60.35c Reporting and recordkeeping guidelines.
60.36c Compliance times.
Subpart Cc--Emission Guidelines and Compliance Times for Municipal
Solid Waste Landfills
Sec. 60.30c Scope.
This subpart contains emission guidelines and compliance times for
the control of certain designated pollutants from certain designated
municipal solid waste landfills in accordance with section 111(d) of
the Act and subpart B.
Sec. 60.31c Definitions.
Terms used but not defined in this subpart have the meaning given
them in the Act and in subparts A, B, and WWW of this part.
Municipal solid waste landfill or MSW landfill means an entire
disposal facility in a contiguous geographical space where household
waste is placed in or on land. An MSW landfill may also receive other
types of RCRA Subtitle D wastes such as commercial solid waste,
nonhazardous sludge, conditionally exempt small quantity generator
waste, and industrial solid waste. Portions of an MSW landfill may be
separated by access roads. An MSW landfill may be publicly or privately
owned. An MSW landfill may be a new MSW landfill, an existing MSW
landfill or a lateral expansion.
Sec. 60.32c Designated facilities.
(a) The designated facility to which the guidelines apply is each
existing MSW landfill for which construction, reconstruction or
modification was commenced before May 30, 1991.
(b) Physical or operational changes made to an existing MSW
landfill solely to comply with an emission guideline are not considered
a modification or reconstruction and would not subject an existing MSW
landfill to the requirements of subpart WWW [see Sec. 60.750 of Subpart
WWW].
Sec. 60.33c Emission guidelines for municipal solid waste landfill
emissions.
(a) For approval, a State plan shall include control of MSW
landfill emissions at each MSW landfill meeting the following three
conditions:
(1) The landfill has accepted waste at any time since November 8,
1987, or has additional design capacity available for future waste
deposition;
(2) The landfill has a design capacity greater than or equal to 2.5
million megagrams or 2.5 million cubic meters. The landfill may
calculate design capacity in either megagrams or cubic meters for
comparison with the exemption values. Any density conversions shall be
documented and submitted with the report; and
(3) The landfill has a nonmethane organic compound emission rate of
50 megagrams per year or more.
(b) For approval, a State plan shall include the installation of a
collection and control system meeting the conditions provided in
Sec. 60.752(b)(2)(ii) of this part at each MSW landfill meeting the
conditions in paragraph (a) of this section. The State plan shall
include a process for State review and approval of the site-specific
design plans for the gas collection and control system(s).
(c) For approval, a State plan shall include provisions for the
control of collected MSW landfill emissions through the use of control
devices meeting the requirements of paragraph (c)(1), (2), or (3) of
this section, except as provided in Sec. 60.24.
(1) An open flare designed and operated in accordance with the
parameters established in Sec. 60.18; or
(2) A control system designed and operated to reduce NMOC by 98
weight percent; or
(3) An enclosed combustor designed and operated to reduce the
outlet NMOC concentration to 20 parts per million as hexane by volume,
dry basis at 3 percent oxygen, or less.
Sec. 60.34c Test methods and procedures.
For approval, a State plan shall include provisions for: the
calculation of the landfill NMOC emission rate listed in Sec. 60.754,
as applicable, to determine whether the landfill meets the condition in
Sec. 60.33c(a)(3); the operational standards in Sec. 60.753; the
compliance provisions in Sec. 60.755; and the monitoring provisions in
Sec. 60.756.
Sec. 60.35c Reporting and recordkeeping guidelines.
For approval, a State plan shall include the recordkeeping and
reporting provisions listed in Secs. 60.757 and 60.758, as applicable,
except as provided under Sec. 60.24.
Sec. 60.36c Compliance times.
(a) Except as provided for under paragraph (b) of this section,
planning, awarding of contracts, and installation of MSW landfill air
emission collection and control equipment capable of meeting the
emission guidelines established under Sec. 60.33c shall be accomplished
within 30 months after the effective date of a State emission standard
for MSW landfills.
(b) For each existing MSW landfill meeting the conditions in
Sec. 60.33c(a)(1) and Sec. 60.33c(a)(2) whose NMOC emission rate is
less than 50 megagrams per year on the effective date of the State
emission standard, installation of collection and control systems
capable of meeting emission guidelines in Sec. 60.33c shall be
accomplished within 30 months of the date when the condition in
Sec. 60.33c(a)(3) is met (i.e., the date of the first annual nonmethane
organic compounds emission rate which equals or exceeds 50 megagrams
per year).
9. Part 60 is amended by adding a new subpart WWW to read as
follows:
Subpart WWW--Standards of Performance for Municipal Solid Waste
Landfills
Sec.
60.750 Applicability, designation of affected facility, and
delegation of authority.
60.751 Definitions.
60.752 Standards for air emissions from municipal solid waste
landfills.
60.753 Operational standards for collection and control systems.
60.754 Test methods and procedures.
60.755 Compliance provisions.
60.756 Monitoring of operations.
60.757 Reporting requirements.
60.758 Recordkeeping requirements.
60.759 Specifications for active collection systems.
Subpart WWW--Standards of Performance for Municipal Solid Waste
Landfills
Sec. 60.750 Applicability, designation of affected facility, and
delegation of authority.
(a) The provisions of this subpart apply to each municipal solid
waste
[[Page 9920]]
landfill that commenced construction, reconstruction or modification or
began accepting waste on or after May 30, 1991. Physical or operational
changes made to an existing MSW landfill solely to comply with Subpart
Cc of this part are not considered construction, reconstruction, or
modification for the purposes of this section.
(b) The following authorities shall be retained by the
Administrator and not transferred to the State: None.
Sec. 60.751 Definitions.
As used in this subpart, all terms not defined herein shall have
the meaning given them in the Act or in subpart A of this part.
Active collection system means a gas collection system that uses
gas mover equipment.
Active landfill means a landfill in which solid waste is being
placed or a landfill that is planned to accept waste in the future.
Closed landfill means a landfill in which solid waste is no longer
being placed, and in which no additional solid wastes will be placed
without first filing a notification of modification as prescribed under
Sec. 60.7(a)(4). Once a notification of modification has been filed,
and additional solid waste is placed in the landfill, the landfill is
no longer closed. A landfill is considered closed after meeting the
criteria of Sec. 258.60 of this title.
Closure means that point in time when a landfill becomes a closed
landfill.
Commercial solid waste means all types of solid waste generated by
stores, offices, restaurants, warehouses, and other nonmanufacturing
activities, excluding residential and industrial wastes.
Controlled landfill means any landfill at which collection and
control systems are required under this subpart as a result of the
nonmethane organic compounds emission rate. The landfill is considered
controlled at the time either
(1) A notification of intent to install a collection and control
system or
(2) A collection and control system design plan is submitted in
compliance with Sec. 60.752(b)(2)(i).
Design capacity means the maximum amount of solid waste a landfill
can accept, as specified in the construction or operating permit issued
by the State, local, or Tribal agency responsible for regulating the
landfill.
Disposal facility means all contiguous land and structures, other
appurtenances, and improvements on the land used for the disposal of
solid waste.
Emission rate cutoff means the threshold annual emission rate to
which a landfill compares its estimated emission rate to determine if
control under the regulation is required.
Enclosed combustor means an enclosed firebox which maintains a
relatively constant limited peak temperature generally using a limited
supply of combustion air. An enclosed flare is considered an enclosed
combustor.
Flare means an open combustor without enclosure or shroud.
Gas mover equipment means the equipment (i.e., fan, blower,
compressor) used to transport landfill gas through the header system.
Household waste means any solid waste (including garbage, trash,
and sanitary waste in septic tanks) derived from households (including,
but not limited to, single and multiple residences, hotels and motels,
bunkhouses, ranger stations, crew quarters, campgrounds, picnic
grounds, and day-use recreation areas).
Industrial solid waste means solid waste generated by manufacturing
or industrial processes that is not a hazardous waste regulated under
Subtitle C of the Resource Conservation and Recovery Act, parts 264 and
265 of this title. Such waste may include, but is not limited to, waste
resulting from the following manufacturing processes: electric power
generation; fertilizer/agricultural chemicals; food and related
products/by-products; inorganic chemicals; iron and steel
manufacturing; leather and leather products; nonferrous metals
manufacturing/foundries; organic chemicals; plastics and resins
manufacturing; pulp and paper industry; rubber and miscellaneous
plastic products; stone, glass, clay, and concrete products; textile
manufacturing; transportation equipment; and water treatment. This term
does not include mining waste or oil and gas waste.
Interior well means any well or similar collection component
located inside the perimeter of the landfill. A perimeter well located
outside the landfilled waste is not an interior well.
Landfill means an area of land or an excavation in which wastes are
placed for permanent disposal, and that is not a land application unit,
surface impoundment, injection well, or waste pile as those terms are
defined under Sec. 257.2 of this title.
Lateral expansion means a horizontal expansion of the waste
boundaries of an existing MSW landfill. A lateral expansion is not a
modification unless it results in an increase in the design capacity of
the landfill.
Municipal solid waste landfill or MSW landfill means an entire
disposal facility in a contiguous geographical space where household
waste is placed in or on land. An MSW landfill may also receive other
types of RCRA Subtitle D wastes (Sec. 257.2 of this title) such as
commercial solid waste, nonhazardous sludge, conditionally exempt small
quantity generator waste, and industrial solid waste. Portions of an
MSW landfill may be separated by access roads. An MSW landfill may be
publicly or privately owned. An MSW landfill may be a new MSW landfill,
an existing MSW landfill, or a lateral expansion.
Municipal solid waste landfill emissions or MSW landfill emissions
means gas generated by the decomposition of organic waste deposited in
an MSW landfill or derived from the evolution of organic compounds in
the waste.
NMOC means nonmethane organic compounds, as measured according to
the provisions of Sec. 60.754.
Nondegradable waste means any waste that does not decompose through
chemical breakdown or microbiological activity. Examples are, but are
not limited to, concrete, municipal waste combustor ash, and metals.
Passive collection system means a gas collection system that solely
uses positive pressure within the landfill to move the gas rather than
using gas mover equipment.
Sludge means any solid, semisolid, or liquid waste generated from a
municipal, commercial, or industrial wastewater treatment plant, water
supply treatment plant, or air pollution control facility, exclusive of
the treated effluent from a wastewater treatment plant.
Solid waste means any garbage, sludge from a wastewater treatment
plant, water supply treatment plant, or air pollution control facility
and other discarded material, including solid, liquid, semisolid, or
contained gaseous material resulting from industrial, commercial,
mining, and agricultural operations, and from community activities, but
does not include solid or dissolved material in domestic sewage, or
solid or dissolved materials in irrigation return flows or industrial
discharges that are point sources subject to permits under 33 U.S.C.
1342, or source, special nuclear, or by-product material as defined by
the Atomic Energy Act of 1954, as amended (42 U.S.C 2011 et seq.).
Sufficient density means any number, spacing, and combination of
collection
[[Page 9921]]
system components, including vertical wells, horizontal collectors, and
surface collectors, necessary to maintain emission and migration
control as determined by measures of performance set forth in this
part.
Sufficient extraction rate means a rate sufficient to maintain a
negative pressure at all wellheads in the collection system without
causing air infiltration, including any wellheads connected to the
system as a result of expansion or excess surface emissions, for the
life of the blower.
Sec. 60.752 Standards for air emissions from municipal solid waste
landfills.
(a) Each owner or operator of an MSW landfill having a design
capacity less than 2.5 million megagrams by mass or 2.5 million cubic
meters by volume shall submit an initial design capacity report to the
Administrator as provided in Sec. 60.757(a). The landfill may calculate
design capacity in either megagrams or cubic meters for comparison with
the exemption values. Any density conversions shall be documented and
submitted with the report. For purposes of part 70 permitting, a
landfill with a design capacity less than 2.5 million megagrams or 2.5
million cubic meters does not require an operating permit under part 70
of this chapter. Submittal of the initial design capacity report shall
fulfill the requirements of this subpart except as provided for in
paragraphs (a)(1) and (a)(2) of this section.
(1) The owner or operator shall submit to the Administrator an
amended design capacity report, as provided for in Sec. 60.757(a)(3),
when there is any increase in the design capacity of a landfill subject
to the provisions of this subpart, whether the increase results from an
increase in the area or depth of the landfill, a change in the
operating procedures of the landfill, or any other means.
(2) If any increase in the maximum design capacity of a landfill
exempted from the provisions of Sec. 60.752(b) through Sec. 60.759 of
this subpart on the basis of the design capacity exemption in paragraph
(a) of this section results in a revised maximum design capacity equal
to or greater than 2.5 million megagrams or 2.5 million cubic meters,
the owner or operator shall comply with the provision of paragraph (b)
of this section.
(b) Each owner or operator of an MSW landfill having a design
capacity equal to or greater than 2.5 million megagrams or 2.5 million
cubic meters, shall either comply with paragraph (b)(2) of this section
or calculate an NMOC emission rate for the landfill using the
procedures specified in Sec. 60.754. The NMOC emission rate shall be
recalculated annually, except as provided in Sec. 60.757(b)(1)(ii) of
this subpart. The owner or operator of an MSW landfill subject to this
subpart with a design capacity greater than or equal to 2.5 million
megagrams or 2.5 million cubic meters is subject to part 70 permitting
requirements. When a landfill is closed, and either never needed
control or meets the conditions for control system removal specified in
Sec. 60.752(b)(2)(v) of this subpart, a part 70 operating permit is no
longer required.
(1) If the calculated NMOC emission rate is less than 50 megagrams
per year, the owner or operator shall:
(i) Submit an annual emission report to the Administrator, except
as provided for in Sec. 60.757(b)(1)(ii); and
(ii) Recalculate the NMOC emission rate annually using the
procedures specified in Sec. 60.754(a)(1) until such time as the
calculated NMOC emission rate is equal to or greater than 50 megagrams
per year, or the landfill is closed.
(A) If the NMOC emission rate, upon recalculation required in
paragraph (b)(1)(ii) of this section, is equal to or greater than 50
megagrams per year, the owner or operator shall install a collection
and control system in compliance with paragraph (b)(2) of this section.
(B) If the landfill is permanently closed, a closure notification
shall be submitted to the Administrator as provided for in
Sec. 60.757(d).
(2) If the calculated NMOC emission rate is equal to or greater
than 50 megagrams per year, the owner or operator shall:
(i) Submit a collection and control system design plan prepared by
a professional engineer to the Administrator within 1 year:
(A) The collection and control system as described in the plan
shall meet the design requirements of paragraph (b)(2)(ii) of this
section.
(B) The collection and control system design plan shall include any
alternatives to the operational standards, test methods, procedures,
compliance measures, monitoring, recordkeeping or reporting provisions
of Secs. 60.753 through 60.758 proposed by the owner or operator.
(C) The collection and control system design plan shall either
conform with specifications for active collection systems in
Sec. 60.759 or include a demonstration to the Administrator's
satisfaction of the sufficiency of the alternative provisions to
Sec. 60.759.
(D) The Administrator shall review the information submitted under
paragraphs (b)(2)(i) (A),(B) and (C) of this section and either approve
it, disapprove it, or request that additional information be submitted.
Because of the many site-specific factors involved with landfill gas
system design, alternative systems may be necessary. A wide variety of
system designs are possible, such as vertical wells, combination
horizontal and vertical collection systems, or horizontal trenches
only, leachate collection components, and passive systems.
(ii) Install a collection and control system within 18 months of
the submittal of the design plan under paragraph (b)(2)(i) of this
section that effectively captures the gas generated within the
landfill.
(A) An active collection system shall:
(1) Be designed to handle the maximum expected gas flow rate from
the entire area of the landfill that warrants control over the intended
use period of the gas control or treatment system equipment;
(2) Collect gas from each area, cell, or group of cells in the
landfill in which the initial solid waste has been placed for a period
of:
(i) 5 years or more if active; or
(ii) 2 years or more if closed or at final grade;
(3) Collect gas at a sufficient extraction rate;
(4) Be designed to minimize off-site migration of subsurface gas.
(B) A passive collection system shall:
(1) Comply with the provisions specified in paragraphs (b)(2)(ii),
(A) (1), (2), and (4) of this section.
(2) Be installed with liners on the bottom and all sides in all
areas in which gas is to be collected. The liners shall be installed as
required under Sec. 258.40 of this title.
(iii) Route all the collected gas to a control system that complies
with the requirements in either paragraph (b)(2)(iii) (A), (B) or (C)
of this section.
(A) An open flare designed and operated in accordance with
Sec. 60.18;
(B) A control system designed and operated to reduce NMOC by 98
weight-percent, or, when an enclosed combustion device is used for
control, to either reduce NMOC by 98 weight percent or reduce the
outlet NMOC concentration to less than 20 parts per million by volume,
dry basis as hexane at 3 percent oxygen. The reduction efficiency or
parts per million by volume shall be established by an initial
performance test, required under Sec. 60.8 using the test methods
specified in Sec. 60.754(d).
(1) If a boiler or process heater is used as the control device,
the landfill gas
[[Page 9922]]
stream shall be introduced into the flame zone.
(2) The control device shall be operated within the parameter
ranges established during the initial or most recent performance test.
The operating parameters to be monitored are specified in Sec. 60.756;
(C) Route the collected gas to a treatment system that processes
the collected gas for subsequent sale or use. All emissions from any
atmospheric vent from the gas treatment system shall be subject to the
requirements of paragraph (b)(2)(iii) (A) or (B) of this section.
(iv) Operate the collection and control device installed to comply
with this subpart in accordance with the provisions of
Sec. Sec. 60.753, 60.755 and 60.756.
(v) The collection and control system may be capped or removed
provided that all the conditions of paragraphs (b)(2)(v) (A), (B), and
(C) of this section are met:
(A) The landfill shall be no longer accepting solid waste and be
permanently closed under the requirements of Sec. 258.60 of this title.
A closure report shall be submitted to the Administrator as provided in
Sec. 60.757(d);
(B) The collection and control system shall have been in operation
a minimum of 15 years; and
(C) Following the procedures specified in Sec. 60.754(b) of this
subpart, the calculated NMOC gas produced by the landfill shall be less
than 50 megagrams per year on three successive test dates. The test
dates shall be no less than 90 days apart, and no more than 180 days
apart.
Sec. 60.753 Operational standards for collection and control systems.
Each owner or operator of an MSW landfill gas collection and
control system used to comply with the provisions of
Sec. 60.752(b)(2)(ii) of this subpart shall:
(a) Operate the collection system such that gas is collected from
each area, cell, or group of cells in the MSW landfill in which solid
waste has been in place for:
(1) 5 years or more if active; or
(2) 2 years or more if closed or at final grade;
(b) Operate the collection system with negative pressure at each
wellhead except under the following conditions:
(1) A fire or increased well temperature. The owner or operator
shall record instances when positive pressure occurs in efforts to
avoid a fire. These records shall be submitted with the annual reports
as provided in Sec. 60.757(f)(1);
(2) Use of a geomembrane or synthetic cover. The owner or operator
shall develop acceptable pressure limits in the design plan;
(3) A decommissioned well. A well may experience a static positive
pressure after shut down to accommodate for declining flows. All design
changes shall be approved by the Administrator;
(c) Operate each interior wellhead in the collection system with a
landfill gas temperature less than 55 oC and with either a
nitrogen level less than 20 percent or an oxygen level less than 5
percent. The owner or operator may establish a higher operating
temperature, nitrogen, or oxygen value at a particular well. A higher
operating value demonstration shall show supporting data that the
elevated parameter does not cause fires or significantly inhibit
anaerobic decomposition by killing methanogens.
(1) The nitrogen level shall be determined using Method 3C, unless
an alternative test method is established as allowed by
Sec. 60.752(b)(2)(i) of this subpart.
(2) Unless an alternative test method is established as allowed by
Sec. 60.752(b)(2)(i) of this subpart, the oxygen shall be determined by
an oxygen meter using Method 3A except that:
(i) The span shall be set so that the regulatory limit is between
20 and 50 percent of the span;
(ii) A data recorder is not required;
(iii) Only two calibration gases are required, a zero and span, and
ambient air may be used as the span;
(iv) A calibration error check is not required;
(v) The allowable sample bias, zero drift, and calibration drift
are 10 percent.
(d) Operate the collection system so that the methane concentration
is less than 500 parts per million above background at the surface of
the landfill. To determine if this level is exceeded, the owner or
operator shall conduct surface testing around the perimeter of the
collection area along a pattern that traverses the landfill at 30 meter
intervals and where visual observations indicate elevated
concentrations of landfill gas, such as distressed vegetation and
cracks or seeps in the cover. The owner or operator may establish an
alternative traversing pattern that ensures equivalent coverage. A
surface monitoring design plan shall be developed that includes a
topographical map with the monitoring route and the rationale for any
site-specific deviations from the 30 meter intervals. Areas with steep
slopes or other dangerous areas may be excluded from the surface
testing.
(e) Operate the system such that all collected gases are vented to
a control system designed and operated in compliance with
Sec. 60.752(b)(2)(iii). In the event the collection or control system
is inoperable, the gas mover system shall be shut down and all valves
in the collection and control system contributing to venting of the gas
to the atmosphere shall be closed within 1 hour; and
(f) Operate the control or treatment system at all times when the
collected gas is routed to the system.
(g) If monitoring demonstrates that the operational requirement in
paragraphs (b), (c), or (d) of this section are not met, corrective
action shall be taken as specified in Sec. 60.752(a) (3) through (5) or
Sec. 60.755(c) of this subpart. If corrective actions are taken as
specified in Sec. 60.755, the monitored exceedance is not a violation
of the operational requirements in this section.
Sec. 60.754 Test methods and procedures.
(a)(1) The landfill owner or operator shall calculate the NMOC
emission rate using either the equation provided in paragraph (a)(1)(i)
of this section or the equation provided in paragraph (a)(1)(ii) of
this section. The values to be used in both equations are 0.05 per year
for k, 170 cubic meters per megagram for Lo, and 4,000 parts per
million by volume as hexane for the CNMOC.
(i) The following equation shall be used if the actual year-to-year
solid waste acceptance rate is known.
[GRAPHIC] [TIFF OMITTED] TR12MR96.025
[[Page 9923]]
where,
MNMOC=Total NMOC emission rate from the landfill, megagrams per
year
k=methane generation rate constant, year-1
Lo=methane generation potential, cubic meters per megagram
solid waste
Mi=mass of solid waste in the ith section, megagrams
ti=age of the ith section, years
CNMOC=concentration of NMOC, parts per million by volume as
hexane
3.6 x 10-9=conversion factor
The mass of nondegradable solid waste may be subtracted from the
total mass of solid waste in a particular section of the landfill
when calculating the value for Mi if the documentation
provisions of Sec. 60.758(d)(2) are followed.
(ii) The following equation shall be used if the actual year-to-
year solid waste acceptance rate is unknown.
MNMOC=2Lo R (e-kc - e-kt) (CNMOC) (3.6 x
10-9)
where,
MNMOC=mass emission rate of NMOC, megagrams per year
Lo=methane generation potential, cubic meters per megagram
solid waste
R=average annual acceptance rate, megagrams per year
k=methane generation rate constant, year-1
t=age of landfill, years
CNMOC=concentration of NMOC, parts per million by volume as
hexane
c=time since closure, years. For active landfill c = O and
e-kc=1
3.6 x 10-9=conversion factor
The mass of nondegradable solid waste may be subtracted from the
average annual acceptance rate when calculating a value for R, if
the documentation provisions of Sec. 60.758(d)(2) are followed.
(2) Tier 1. The owner or operator shall compare the calculated NMOC
mass emission rate to the standard of 50 megagrams per year.
(i) If the NMOC emission rate calculated in paragraph (a)(1) of
this section is less than 50 megagrams per year, then the landfill
owner shall submit an emission rate report as provided in
Sec. 60.757(b)(1), and shall recalculate the NMOC mass emission rate
annually as required under Sec. 60.752(b)(1).
(ii) If the calculated NMOC emission rate is equal to or greater
than 50 megagrams per year, then the landfill owner shall either comply
with Sec. 60.752(b)(2), or determine a site-specific NMOC concentration
and recalculate the NMOC emission rate using the procedures provided in
paragraph (a)(3) of this section.
(3) Tier 2. The landfill owner or operator shall determine the NMOC
concentration using the following sampling procedure. The landfill
owner or operator shall install at least two sample probes per hectare
of landfill surface that has retained waste for at least 2 years. If
the landfill is larger than 25 hectares in area, only 50 samples are
required. The sample probes should be located to avoid known areas of
nondegradable solid waste. The owner or operator shall collect and
analyze one sample of landfill gas from each probe to determine the
NMOC concentration using Method 25C of appendix A of this part or
Method 18 of appendix A of this part. If using Method 18 of appendix A
of this part, the minimum list of compounds to be tested shall be those
published in the most recent Compilation of Air Pollutant Emission
Factors (AP-42). If composite sampling is used, equal volumes shall be
taken from each sample probe. If more than the required number of
samples are taken, all samples shall be used in the analysis. The
landfill owner or operator shall divide the NMOC concentration from
Method 25C of appendix A of this part by six to convert from CNMOC
as carbon to CNMOC as hexane.
(i) The landfill owner or operator shall recalculate the NMOC mass
emission rate using the equations provided in paragraph (a)(1)(i) or
(a)(1)(ii) of this section and using the average NMOC concentration
from the collected samples instead of the default value in the equation
provided in paragraph (a)(1) of this section.
(ii) If the resulting mass emission rate calculated using the site-
specific NMOC concentration is equal to or greater than 50 megagrams
per year, then the landfill owner or operator shall either comply with
Sec. 60.752(b)(2), or determine the site-specific methane generation
rate constant and recalculate the NMOC emission rate using the site-
specific methane generation rate using the procedure specified in
paragraph (a)(4) of this section.
(iii) If the resulting NMOC mass emission rate is less than 50
megagrams per year, the owner or operator shall submit a periodic
estimate of the emission rate report as provided in Sec. 60.757(b)(1)
and retest the site-specific NMOC concentration every 5 years using the
methods specified in this section.
(4) Tier 3. The site-specific methane generation rate constant
shall be determined using the procedures provided in Method 2E of
appendix A of this part. The landfill owner or operator shall estimate
the NMOC mass emission rate using equations in paragraph (a)(1)(i) or
(a)(1)(ii) of this section and using a site-specific methane generation
rate constant k, and the site-specific NMOC concentration as determined
in paragraph (a)(3) of this section instead of the default values
provided in paragraph (a)(1) of this section. The landfill owner or
operator shall compare the resulting NMOC mass emission rate to the
standard of 50 megagrams per year.
(i) If the NMOC mass emission rate as calculated using the site-
specific methane generation rate and concentration of NMOC is equal to
or greater than 50 megagrams per year, the owner or operator shall
comply with Sec. 60.752(b)(2).
(ii) If the NMOC mass emission rate is less than 50 megagrams per
year, then the owner or operator shall submit a periodic emission rate
report as provided in Sec. 60.757(b)(1) and shall recalculate the NMOC
mass emission rate annually, as provided in Sec. 60.757(b)(1) using the
equations in paragraph (a)(1) of this section and using the site-
specific methane generation rate constant and NMOC concentration
obtained in paragraph (a)(3) of this section. The calculation of the
methane generation rate constant is performed only once, and the value
obtained is used in all subsequent annual NMOC emission rate
calculations.
(5) The owner or operator may use other methods to determine the
NMOC concentration or a site-specific k as an alternative to the
methods required in paragraphs (a)(3) and (a)(4) of this section if the
method has been approved by the Administrator as provided in
Sec. 60.752(b)(2)(i)(B).
(b) After the installation of a collection and control system in
compliance with Sec. 60.755, the owner or operator shall calculate the
NMOC emission rate for purposes of determining when the system can be
removed as provided in Sec. 60.752(b)(2)(v), using the following
equation:
MNMOC = 1.89 x 10-3 QLFG CNMOC
where,
MNMOC = mass emission rate of NMOC, megagrams per year
QLFG = flow rate of landfill gas, cubic meters per minute
CNMOC = NMOC concentration, parts per million by volume as
hexane
(1) The flow rate of landfill gas, QLFG, shall be determined
by measuring the total landfill gas flow rate at the common header pipe
that leads to the control device using a gas flow measuring device
calibrated according to the provisions of section 4 of Method 2E of
appendix A of this part.
(2) The average NMOC concentration, CNMOC, shall be determined
by collecting and analyzing landfill gas sampled from the common header
pipe before the gas moving or condensate
[[Page 9924]]
removal equipment using the procedures in Method 25C or Method 18 of
appendix A of this part. If using Method 18 of appendix A of this part,
the minimum list of compounds to be tested shall be those published in
the most recent Compilation of Air Pollutant Emission Factors (AP-42).
The sample location on the common header pipe shall be before any
condensate removal or other gas refining units. The landfill owner or
operator shall divide the NMOC concentration from Method 25C of
appendix A of this part by six to convert from CNMOC as carbon to
CNMOC as hexane.
(3) The owner or operator may use another method to determine
landfill gas flow rate and NMOC concentration if the method has been
approved by the Administrator as provided in Sec. 60.752(b)(2)(i)(B).
(c) The owner or operator of each MSW landfill subject to the
provisions of this subpart shall estimate the NMOC emission rate for
comparison to the PSD major source and significance levels in
Secs. 51.166 or 52.21 of this chapter using AP-42 or other approved
measurement procedures. If a collection system, which complies with the
provisions in Sec. 60.752(b)(2) is already installed, the owner or
operator shall estimate the NMOC emission rate using the procedures
provided in paragraph (b) of this section.
(d) For the performance test required in Sec. 60.752(b)(2)(iii)(B),
Method 25 or Method 18 of appendix A of this part shall be used to
determine compliance with 98 weight-percent efficiency or the 20 ppmv
outlet concentration level, unless another method to demonstrate
compliance has been approved by the Administrator as provided by
Sec. 60.752(b)(2)(i)(B). If using Method 18 of appendix A of this part,
the minimum list of compounds to be tested shall be those published in
the most recent Compilation of Air Pollutant Emission Factors (AP-42).
The following equation shall be used to calculate efficiency:
Control Efficiency = (NMOCin - NMOCout)/(NMOCin)
where,
NMOCin = mass of NMOC entering control device
NMOCout = mass of NMOC exiting control device
Sec. 60.755 Compliance provisions.
(a) Except as provided in Sec. 60.752(b)(2)(i)(B), the specified
methods in paragraphs (a)(1) through (a)(6) of this section shall be
used to determine whether the gas collection system is in compliance
with Sec. 60.752(b)(2)(ii).
(1) For the purposes of calculating the maximum expected gas
generation flow rate from the landfill to determine compliance with
Sec. 60.752(b)(2)(ii)(A)(1), one of the following equations shall be
used. The k and Lo kinetic factors should be those published in
the most recent Compilation of Air Pollutant Emission Factors (AP-42)
or other site specific values demonstrated to be appropriate and
approved by the Administrator. If k has been determined as specified in
Sec. 60.754(a)(4), the value of k determined from the test shall be
used. A value of no more than 15 years shall be used for the intended
use period of the gas mover equipment. The active life of the landfill
is the age of the landfill plus the estimated number of years until
closure.
(i) For sites with unknown year-to-year solid waste acceptance
rate:
Qm = 2Lo R (e-kc - e-kt)
where,
Qm = maximum expected gas generation flow rate, cubic meters
per year
Lo = methane generation potential, cubic meters per megagram
solid waste
R = average annual acceptance rate, megagrams per year
k = methane generation rate constant, year-1
t = age of the landfill at equipment installation plus the time the
owner or operator intends to use the gas mover equipment or active
life of the landfill, whichever is less. If the equipment is
installed after closure, t is the age of the landfill at
installation, years
c = time since closure, years (for an active landfill c = O and
e-kc = 1)
(ii) For sites with known year-to-year solid waste acceptance rate:
[GRAPHIC] [TIFF OMITTED] TR12MR96.026
where,
QM=maximum expected gas generation flow rate, cubic meters per
year
k=methane generation rate constant, year-1
Lo=methane generation potential, cubic meters per megagram
solid waste
Mi=mass of solid waste in the ith section, megagrams
ti=age of the ith section, years
(iii) If a collection and control system has been installed, actual
flow data may be used to project the maximum expected gas generation
flow rate instead of, or in conjunction with, the equations in
paragraphs (a)(1) (i) and (ii) of this section. If the landfill is
still accepting waste, the actual measured flow data will not equal the
maximum expected gas generation rate, so calculations using the
equations in paragraphs (a)(1) (i) or (ii) or other methods shall be
used to predict the maximum expected gas generation rate over the
intended period of use of the gas control system equipment.
(2) For the purposes of determining sufficient density of gas
collectors for compliance with Sec. 60.752(b)(2)(ii)(A)(2), the owner
or operator shall design a system of vertical wells, horizontal
collectors, or other collection devices, satisfactory to the
Administrator, capable of controlling and extracting gas from all
portions of the landfill sufficient to meet all operational and
performance standards.
(3) For the purpose of demonstrating whether the gas collection
system flow rate is sufficient to determine compliance with
Sec. 60.752(b)(2)(ii)(A)(3), the owner or operator shall measure gauge
pressure in the gas collection header at each individual well, monthly.
If a positive pressure exists, action shall be initiated to correct the
exceedance within 5 calendar days, except for the three conditions
allowed under Sec. 60.753(b). If negative pressure cannot be achieved
without excess air infiltration within 15 calendar days of the first
measurement, the gas collection system shall be expanded to correct the
exceedance within 120 days of the initial measurement of positive
pressure. Any attempted corrective measure shall not cause exceedances
of other operational or performance standards.
(4) Owners or operators are not required to install additional
wells as required in paragraph (a)(3) of this section during the first
180 days after gas collection system start-up.
(5) For the purpose of identifying whether excess air infiltration
into the landfill is occurring, the owner or operator shall monitor
each well monthly for temperature and nitrogen or oxygen as provided in
Sec. 60.753(c). If a well exceeds one of these operating parameters,
action shall be initiated to correct the exceedance within 5 calendar
days. If correction of the exceedance cannot be achieved within 15
calendar days of the first measurement, the gas collection system shall
be expanded to correct the exceedance within 120 days of the initial
exceedance. Any attempted corrective measure shall not cause
exceedances of other operational or performance standards.
(6) An owner or operator seeking to demonstrate compliance with
Sec. 60.752(b)(2)(ii)(A)(4) through the use of a collection system not
conforming to the specifications provided in Sec. 60.759 shall provide
information satisfactory to the Administrator as specified in
Sec. 60.752(b)(2)(i)(C) demonstrating that off-site migration is being
controlled.
[[Page 9925]]
(b) For purposes of compliance with Sec. 60.753(a), each owner or
operator of a controlled landfill shall place each well or design
component as specified in the approved design plan as provided in
Sec. 60.752(b)(2)(i). Each well shall be installed within 60 days of
the date in which the initial solid waste has been in place for a
period of:
(1) 5 years or more if active; or
(2) 2 years or more if closed or at final grade.
(c) The following procedures shall be used for compliance with the
surface methane operational standard as provided in Sec. 60.753(d).
(1) After installation of the collection system, the owner or
operator shall monitor surface concentrations of methane along the
entire perimeter of the collection area and along a serpentine pattern
spaced 30 meters apart (or a site-specific established spacing) for
each collection area on a quarterly basis using an organic vapor
analyzer, flame ionization detector, or other portable monitor meeting
the specifications provided in paragraph (d) of this section.
(2) The background concentration shall be determined by moving the
probe inlet upwind and downwind outside the boundary of the landfill at
a distance of at least 30 meters from the perimeter wells.
(3) Surface emission monitoring shall be performed in accordance
with section 4.3.1 of Method 21 of appendix A of this part, except that
the probe inlet shall be placed within 5 to 10 centimeters of the
ground. Monitoring shall be performed during typical meteorological
conditions.
(4) Any reading of 500 parts per million or more above background
at any location shall be recorded as a monitored exceedance and the
actions specified in paragraphs (c)(4) (i) through (v) of this section
shall be taken. As long as the specified actions are taken, the
exceedance is not a violation of the operational requirements of
Sec. 60.753(d).
(i) The location of each monitored exceedance shall be marked and
the location recorded.
(ii) Cover maintenance or adjustments to the vacuum of the adjacent
wells to increase the gas collection in the vicinity of each exceedance
shall be made and the location shall be re-monitored within 10 calendar
days of detecting the exceedance.
(iii) If the re-monitoring of the location shows a second
exceedance, additional corrective action shall be taken and the
location shall be monitored again within 10 days of the second
exceedance. If the re-monitoring shows a third exceedance for the same
location, the action specified in paragraph (c)(4)(v) of this section
shall be taken, and no further monitoring of that location is required
until the action specified in paragraph (c)(4)(v) has been taken.
(iv) Any location that initially showed an exceedance but has a
methane concentration less than 500 ppm methane above background at the
10-day re-monitoring specified in paragraph (c)(4) (ii) or (iii) of
this section shall be re-monitored 1 month from the initial exceedance.
If the 1-month remonitoring shows a concentration less than 500 parts
per million above background, no further monitoring of that location is
required until the next quarterly monitoring period. If the 1-month
remonitoring shows an exceedance, the actions specified in paragraph
(c)(4) (iii) or (v) shall be taken.
(v) For any location where monitored methane concentration equals
or exceeds 500 parts per million above background three times within a
quarterly period, a new well or other collection device shall be
installed within 120 calendar days of the initial exceedance. An
alternative remedy to the exceedance, such as upgrading the blower,
header pipes or control device, and a corresponding timeline for
installation may be submitted to the Administrator for approval.
(5) The owner or operator shall implement a program to monitor for
cover integrity and implement cover repairs as necessary on a monthly
basis.
(d) Each owner or operator seeking to comply with the provisions in
paragraph (c) of this section shall comply with the following
instrumentation specifications and procedures for surface emission
monitoring devices:
(1) The portable analyzer shall meet the instrument specifications
provided in section 3 of Method 21 of appendix A of this part, except
that ``methane'' shall replace all references to VOC.
(2) The calibration gas shall be methane, diluted to a nominal
concentration of 500 parts per million in air.
(3) To meet the performance evaluation requirements in section
3.1.3 of Method 21 of appendix A of this part, the instrument
evaluation procedures of section 4.4 of Method 21 of appendix A of this
part shall be used.
(4) The calibration procedures provided in section 4.2 of Method 21
of appendix A of this part shall be followed immediately before
commencing a surface monitoring survey.
(e) The provisions of this subpart apply at all times, except
during periods of start-up, shutdown, or malfunction, provided that the
duration of start-up, shutdown, or malfunction shall not exceed 5 days
for collection systems and shall not exceed 1 hour for treatment or
control devices.
Sec. 60.756 Monitoring of operations.
Except as provided in Sec. 60.752(b)(2)(i)(B),
(a) Each owner or operator seeking to comply with
Sec. 60.752(b)(2)(ii)(A) for an active gas collection system shall
install a sampling port and a thermometer or other temperature
measuring device at each wellhead and:
(1) Measure the gauge pressure in the gas collection header on a
monthly basis as provided in Sec. 60.755(a)(3); and
(2) Monitor nitrogen or oxygen concentration in the landfill gas on
a monthly basis as provided in Sec. 60.755(a)(5); and
(3) Monitor temperature of the landfill gas on a monthly basis as
provided in Sec. 60.755(a)(5).
(b) Each owner or operator seeking to comply with
Sec. 60.752(b)(2)(iii) using an enclosed combustor shall calibrate,
maintain, and operate according to the manufacturer's specifications,
the following equipment.
(1) A temperature monitoring device equipped with a continuous
recorder and having an accuracy of 1 percent of the
temperature being measured expressed in degrees Celsius or
0.5 deg.C, whichever is greater. A temperature monitoring
device is not required for boilers or process heaters with design heat
input capacity greater than 44 megawatts.
(2) A gas flow rate measuring device that provides a measurement of
gas flow to or bypass of the control device. The owner or operator
shall either:
(i) Install, calibrate, and maintain a gas flow rate measuring
device that shall record the flow to the control device at least every
15 minutes; or
(ii) Secure the bypass line valve in the closed position with a
car-seal or a lock-and-key type configuration. A visual inspection of
the seal or closure mechanism shall be performed at least once every
month to ensure that the valve is maintained in the closed position and
that the gas flow is not diverted through the bypass line.
(c) Each owner or operator seeking to comply with
Sec. 60.752(b)(2)(iii) using an open flare shall install, calibrate,
maintain, and operate according to the manufacturer's specifications
the following equipment:
(1) A heat sensing device, such as an ultraviolet beam sensor or
[[Page 9926]]
thermocouple, at the pilot light or the flame itself to indicate the
continuous presence of a flame.
(2) A device that records flow to or bypass of the flare. The owner
or operator shall either:
(i) Install, calibrate, and maintain a gas flow rate measuring
device that shall record the flow to the control device at least every
15 minutes; or
(ii) Secure the bypass line valve in the closed position with a
car-seal or a lock-and-key type configuration. A visual inspection of
the seal or closure mechanism shall be performed at least once every
month to ensure that the valve is maintained in the closed position and
that the gas flow is not diverted through the bypass line.
(d) Each owner or operator seeking to demonstrate compliance with
Sec. 60.752(b)(2)(iii) using a device other than an open flare or an
enclosed combustor shall provide information satisfactory to the
Administrator as provided in Sec. 60.752(b)(2)(i)(B) describing the
operation of the control device, the operating parameters that would
indicate proper performance, and appropriate monitoring procedures. The
Administrator shall review the information and either approve it, or
request that additional information be submitted. The Administrator may
specify additional appropriate monitoring procedures.
(e) Each owner or operator seeking to install a collection system
that does not meet the specifications in Sec. 60.759 or seeking to
monitor alternative parameters to those required by Sec. 60.753 through
Sec. 60.756 shall provide information satisfactory to the Administrator
as provided in Sec. 60.752(b)(2)(i) (B) and (C) describing the design
and operation of the collection system, the operating parameters that
would indicate proper performance, and appropriate monitoring
procedures. The Administrator may specify additional appropriate
monitoring procedures.
(f) Each owner or operator seeking to demonstrate compliance with
Sec. 60.755(c), shall monitor surface concentrations of methane
according to the instrument specifications and procedures provided in
Sec. 60.755(d). Any closed landfill that has no monitored exceedances
of the operational standard in three consecutive quarterly monitoring
periods may skip to annual monitoring. Any methane reading of 500 ppm
or more above background detected during the annual monitoring returns
the frequency for that landfill to quarterly monitoring.
Sec. 60.757 Reporting requirements.
Except as provided in Sec. 60.752(b)(2)(i)(B),
(a) Each owner or operator subject to the requirements of this
subpart shall submit an initial design capacity report to the
Administrator.
(1) The initial design capacity report shall fulfill the
requirements of the notification of the date construction is commenced
as required under Sec. 60.7(a)(1) and shall be submitted no later than
the earliest day from the following:
(i) 90 days of the issuance of the State, Local, Tribal, or RCRA
construction or operating permit; or
(ii) 30 days of the date of construction or reconstruction as
defined under Sec. 60.15; or
(iii) 30 days of the initial acceptance of solid waste.
(2) The initial design capacity report shall contain the following
information:
(i) A map or plot of the landfill, providing the size and location
of the landfill, and identifying all areas where solid waste may be
landfilled according to the provisions of the State, local, Tribal, or
RCRA construction or operating permit;
(ii) The maximum design capacity of the landfill. Where the maximum
design capacity is specified in the State or local construction or RCRA
permit, a copy of the permit specifying the maximum design capacity may
be submitted as part of the report. If the maximum design capacity of
the landfill is not specified in the permit, the maximum design
capacity shall be calculated using good engineering practices. The
calculations shall be provided, along with such parameters as depth of
solid waste, solid waste acceptance rate, and compaction practices as
part of the report. The State, Tribal, local agency or Administrator
may request other reasonable information as may be necessary to verify
the maximum design capacity of the landfill.
(3) An amended design capacity report shall be submitted to the
Administrator providing notification of any increase in the design
capacity of the landfill, whether the increase results from an increase
in the permitted area or depth of the landfill, a change in the
operating procedures, or any other means which results in an increase
in the maximum design capacity of the landfill above 2.5 million
megagrams or 2.5 million cubic meters. The amended design capacity
report shall be submitted within 90 days of the issuance of an amended
construction or operating permit, or the placement of waste in
additional land, or the change in operating procedures which will
result in an increase in maximum design capacity, whichever occurs
first.
(b) Each owner or operator subject to the requirements of this
subpart shall submit an NMOC emission rate report to the Administrator
initially and annually thereafter, except as provided for in paragraphs
(b)(1)(ii) or (b)(3) of this section. The Administrator may request
such additional information as may be necessary to verify the reported
NMOC emission rate.
(1) The NMOC emission rate report shall contain an annual or 5-year
estimate of the NMOC emission rate calculated using the formula and
procedures provided in Sec. 60.754(a) or (b), as applicable.
(i) The initial NMOC emission rate report shall be submitted within
90 days of the date waste acceptance commences and may be combined with
the initial design capacity report required in paragraph (a) of this
section. Subsequent NMOC emission rate reports shall be submitted
annually thereafter, except as provided for in paragraphs (b)(1)(ii)
and (b)(3) of this section.
(ii) If the estimated NMOC emission rate as reported in the annual
report to the Administrator is less than 50 megagrams per year in each
of the next 5 consecutive years, the owner or operator may elect to
submit an estimate of the NMOC emission rate for the next 5-year period
in lieu of the annual report. This estimate shall include the current
amount of solid waste-in-place and the estimated waste acceptance rate
for each year of the 5 years for which an NMOC emission rate is
estimated. All data and calculations upon which this estimate is based
shall be provided to the Administrator. This estimate shall be revised
at least once every 5 years. If the actual waste acceptance rate
exceeds the estimated waste acceptance rate in any year reported in the
5-year estimate, a revised 5-year estimate shall be submitted to the
Administrator. The revised estimate shall cover the 5-year period
beginning with the year in which the actual waste acceptance rate
exceeded the estimated waste acceptance rate.
(2) The NMOC emission rate report shall include all the data,
calculations, sample reports and measurements used to estimate the
annual or 5-year emissions.
(3) Each owner or operator subject to the requirements of this
subpart is exempted from the requirements of paragraphs (b)(1) and (2)
of this section, after the installation of a collection and control
system in compliance with Sec. 60.752(b)(2), during such time as the
collection and control system is in
[[Page 9927]]
operation and in compliance with Sec. Sec. 60.753 and 60.755.
(c) Each owner or operator subject to the provisions of
Sec. 60.752(b)(2)(i) shall submit a collection and control system
design plan to the Administrator within 1 year of the first report,
required under paragraph (b) of this section, in which the emission
rate exceeds 50 megagrams per year, except as follows:
(1) If the owner or operator elects to recalculate the NMOC
emission rate after Tier 2 NMOC sampling and analysis as provided in
Sec. 60.754(a)(3) and the resulting rate is less than 50 megagrams per
year, annual periodic reporting shall be resumed, using the Tier 2
determined site-specific NMOC concentration, until the calculated
emission rate is equal to or greater than 50 megagrams per year or the
landfill is closed. The revised NMOC emission rate report, with the
recalculated emission rate based on NMOC sampling and analysis, shall
be submitted within 180 days of the first calculated exceedance of 50
megagrams per year.
(2) If the owner or operator elects to recalculate the NMOC
emission rate after determining a site-specific methane generation rate
constant (k), as provided in Tier 3 in Sec. 60.754(a)(4), and the
resulting NMOC emission rate is less than 50 Mg/yr, annual periodic
reporting shall be resumed. The resulting site-specific methane
generation rate constant (k) shall be used in the emission rate
calculation until such time as the emissions rate calculation results
in an exceedance. The revised NMOC emission rate report based on the
provisions of Sec. 60.754(a)(4) and the resulting site-specific methane
generation rate constant (k) shall be submitted to the Administrator
within 1 year of the first calculated emission rate exceeding 50
megagrams per year.
(d) Each owner or operator of a controlled landfill shall submit a
closure report to the Administrator within 30 days of waste acceptance
cessation. The Administrator may request additional information as may
be necessary to verify that permanent closure has taken place in
accordance with the requirements of 40 CFR 258.60. If a closure report
has been submitted to the Administrator, no additional wastes may be
placed into the landfill without filing a notification of modification
as described under Sec. 60.7(a)(4).
(e) Each owner or operator of a controlled landfill shall submit an
equipment removal report to the Administrator 30 days prior to removal
or cessation of operation of the control equipment.
(1) The equipment removal report shall contain all of the following
items:
(i) A copy of the closure report submitted in accordance with
paragraph (d) of this section;
(ii) A copy of the initial performance test report demonstrating
that the 15 year minimum control period has expired; and
(iii) Dated copies of three successive NMOC emission rate reports
demonstrating that the landfill is no longer producing 50 megagrams or
greater of NMOC per year.
(2) The Administrator may request such additional information as
may be necessary to verify that all of the conditions for removal in
Sec. 60.752(b)(2)(v) have been met.
(f) Each owner or operator of a landfill seeking to comply with
Sec. 60.752(b)(2) using an active collection system designed in
accordance with Sec. 60.752(b)(2)(ii) shall submit to the Administrator
annual reports of the recorded information in (f)(1) through (f)(6) of
this paragraph. The initial annual report shall be submitted within 180
days of installation and start-up of the collection and control system,
and shall include the initial performance test report required under
Sec. 60.8. For enclosed combustion devices and flares, reportable
exceedances are defined under Sec. 60.758(c).
(1) Value and length of time for exceedance of applicable
parameters monitored under Sec. 60.756(a), (b), (c), and (d).
(2) Description and duration of all periods when the gas stream is
diverted from the control device through a bypass line or the
indication of bypass flow as specified under Sec. 60.756.
(3) Description and duration of all periods when the control device
was not operating for a period exceeding 1 hour and length of time the
control device was not operating.
(4) All periods when the collection system was not operating in
excess of 5 days.
(5) The location of each exceedance of the 500 parts per million
methane concentration as provided in Sec. 60.753(d) and the
concentration recorded at each location for which an exceedance was
recorded in the previous month.
(6) The date of installation and the location of each well or
collection system expansion added pursuant to paragraphs (a)(3), (b),
and (c)(4) of Sec. 60.755.
(g) Each owner or operator seeking to comply with
Sec. 60.752(b)(2)(i) shall include the following information with the
initial performance test report required under Sec. 60.8:
(1) A diagram of the collection system showing collection system
positioning including all wells, horizontal collectors, surface
collectors, or other gas extraction devices, including the locations of
any areas excluded from collection and the proposed sites for the
future collection system expansion;
(2) The data upon which the sufficient density of wells, horizontal
collectors, surface collectors, or other gas extraction devices and the
gas mover equipment sizing are based;
(3) The documentation of the presence of asbestos or nondegradable
material for each area from which collection wells have been excluded
based on the presence of asbestos or nondegradable material;
(4) The sum of the gas generation flow rates for all areas from
which collection wells have been excluded based on nonproductivity and
the calculations of gas generation flow rate for each excluded area;
and
(5) The provisions for increasing gas mover equipment capacity with
increased gas generation flow rate, if the present gas mover equipment
is inadequate to move the maximum flow rate expected over the life of
the landfill; and
(6) The provisions for the control of off-site migration.
Sec. 60.758 Recordkeeping requirements.
Except as provided in Sec. 60.752(b)(2)(i)(B),
(a) Each owner or operator of an MSW landfill subject to the
provisions of Sec. 60.752(b) shall keep for at least 5 years up-to-
date, readily accessible, on-site records of the maximum design
capacity, the current amount of solid waste in-place, and the year-by-
year waste acceptance rate. Off-site records may be maintained if they
are retrievable within 4 hours. Either paper copy or electronic formats
are acceptable.
(b) Each owner or operator of a controlled landfill shall keep up-
to-date, readily accessible records for the life of the control
equipment of the data listed in paragraphs (b)(1) through (b)(4) of
this section as measured during the initial performance test or
compliance determination. Records of subsequent tests or monitoring
shall be maintained for a minimum of 5 years. Records of the control
device vendor specifications shall be maintained until removal.
(1) Where an owner or operator subject to the provisions of this
subpart seeks to demonstrate compliance with Sec. 60.752(b)(2)(ii):
(i) The maximum expected gas generation flow rate as calculated in
Sec. 60.755(a)(1). The owner or operator may use another method to
determine the maximum gas generation flow rate,
[[Page 9928]]
if the method has been approved by the Administrator.
(ii) The density of wells, horizontal collectors, surface
collectors, or other gas extraction devices determined using the
procedures specified in Sec. 60.759(a)(1).
(2) Where an owner or operator subject to the provisions of this
subpart seeks to demonstrate compliance with Sec. 60.752(b)(2)(iii)
through use of an enclosed combustion device other than a boiler or
process heater with a design heat input capacity greater than 44
megawatts:
(i) The average combustion temperature measured at least every 15
minutes and averaged over the same time period of the performance test.
(ii) The percent reduction of NMOC determined as specified in
Sec. 60.752(b)(2)(iii)(B) achieved by the control device.
(3) Where an owner or operator subject to the provisions of this
subpart seeks to demonstrate compliance with
Sec. 60.752(b)(2)(iii)(B)(1) through use of a boiler or process heater
of any size: a description of the location at which the collected gas
vent stream is introduced into the boiler or process heater over the
same time period of the performance testing.
(4) Where an owner or operator subject to the provisions of this
subpart seeks to demonstrate compliance with Sec. 60.752(b)(2)(iii)(A)
through use of an open flare, the flare type (i.e., steam-assisted,
air-assisted, or nonassisted), all visible emission readings, heat
content determination, flow rate or bypass flow rate measurements, and
exit velocity determinations made during the performance test as
specified in Sec. 60.18; continuous records of the flare pilot flame or
flare flame monitoring and records of all periods of operations during
which the pilot flame of the flare flame is absent.
(c) Each owner or operator of a controlled landfill subject to the
provisions of this subpart shall keep for 5 years up-to-date, readily
accessible continuous records of the equipment operating parameters
specified to be monitored in Sec. 60.756 as well as up-to-date, readily
accessible records for periods of operation during which the parameter
boundaries established during the most recent performance test are
exceeded.
(1) The following constitute exceedances that shall be recorded and
reported under Sec. 60.757(f):
(i) For enclosed combustors except for boilers and process heaters
with design heat input capacity of 44 megawatts (150 million British
thermal unit per hour) or greater, all 3-hour periods of operation
during which the average combustion temperature was more than 28 oC
below the average combustion temperature during the most recent
performance test at which compliance with Sec. 60.752(b)(2)(iii) was
determined.
(ii) For boilers or process heaters, whenever there is a change in
the location at which the vent stream is introduced into the flame zone
as required under paragraph (b)(3)(i) of this section.
(2) Each owner or operator subject to the provisions of this
subpart shall keep up-to-date, readily accessible continuous records of
the indication of flow to the control device or the indication of
bypass flow or records of monthly inspections of car-seals or lock-and-
key configurations used to seal bypass lines, specified under
Sec. 60.756.
(3) Each owner or operator subject to the provisions of this
subpart who uses a boiler or process heater with a design heat input
capacity of 44 megawatts or greater to comply with
Sec. 60.752(b)(2)(iii) shall keep an up-to-date, readily accessible
record of all periods of operation of the boiler or process heater.
(Examples of such records could include records of steam use, fuel use,
or monitoring data collected pursuant to other State, local, Tribal, or
Federal regulatory requirements.)
(4) Each owner or operator seeking to comply with the provisions of
this subpart by use of an open flare shall keep up-to-date, readily
accessible continuous records of the flame or flare pilot flame
monitoring specified under Sec. 60.756(c), and up-to-date, readily
accessible records of all periods of operation in which the flame or
flare pilot flame is absent.
(d) Each owner or operator subject to the provisions of this
subpart shall keep for the life of the collection system an up-to-date,
readily accessible plot map showing each existing and planned collector
in the system and providing a unique identification location label for
each collector.
(1) Each owner or operator subject to the provisions of this
subpart shall keep up-to-date, readily accessible records of the
installation date and location of all newly installed collectors as
specified under Sec. 60.755(b).
(2) Each owner or operator subject to the provisions of this
subpart shall keep readily accessible documentation of the nature, date
of deposition, amount, and location of asbestos-containing or
nondegradable waste excluded from collection as provided in
Sec. 60.759(a)(3)(i) as well as any nonproductive areas excluded from
collection as provided in Sec. 60.759(a)(3)(ii).
(e) Each owner or operator subject to the provisions of this
subpart shall keep for at least 5 years up-to-date, readily accessible
records of all collection and control system exceedances of the
operational standards in Sec. 60.753, the reading in the subsequent
month whether or not the second reading is an exceedance, and the
location of each exceedance.
Sec. 60.759 Specifications for active collection systems.
(a) Each owner or operator seeking to comply with
Sec. 60.752(b)(2)(i) shall site active collection wells, horizontal
collectors, surface collectors, or other extraction devices at a
sufficient density throughout all gas producing areas using the
following procedures unless alternative procedures have been approved
by the Administrator as provided in Sec. 60.752(b)(2)(i)(C) and (D):
(1) The collection devices within the interior and along the
perimeter areas shall be certified to achieve comprehensive control of
surface gas emissions by a professional engineer. The following issues
shall be addressed in the design: depths of refuse, refuse gas
generation rates and flow characteristics, cover properties, gas system
expandibility, leachate and condensate management, accessibility,
compatibility with filling operations, integration with closure end
use, air intrusion control, corrosion resistance, fill settlement, and
resistance to the refuse decomposition heat.
(2) The sufficient density of gas collection devices determined in
paragraph (a)(1) of this section shall address landfill gas migration
issues and augmentation of the collection system through the use of
active or passive systems at the landfill perimeter or exterior.
(3) The placement of gas collection devices determined in paragraph
(a)(1) of this section shall control all gas producing areas, except as
provided by paragraphs (a)(3)(i) and (a)(3)(ii) of this section.
(i) Any segregated area of asbestos or nondegradable material may
be excluded from collection if documented as provided under
Sec. 60.758(d). The documentation shall provide the nature, date of
deposition, location and amount of asbestos or nondegradable material
deposited in the area, and shall be provided to the Administrator upon
request.
(ii) Any nonproductive area of the landfill may be excluded from
control, provided that the total of all excluded areas can be shown to
contribute less than 1 percent of the total amount of NMOC emissions
from the landfill. The
[[Page 9929]]
amount, location, and age of the material shall be documented and
provided to the Administrator upon request. A separate NMOC emissions
estimate shall be made for each section proposed for exclusion, and the
sum of all such sections shall be compared to the NMOC emissions
estimate for the entire landfill. Emissions from each section shall be
computed using the following equation:
Qi = 2 k Lo Mi (e-kti) (CNMOC) (3.6 x
10-9)
where,
Qi = NMOC emission rate from the ith section, megagrams
per year
k = methane generation rate constant, year-1
Lo = methane generation potential, cubic meters per megagram
solid waste
Mi = mass of the degradable solid waste in the ith
section, megagram
ti = age of the solid waste in the ith section, years
CNMOC = concentration of nonmethane organic compounds, parts
per million by volume
3.6 x 10-9 = conversion factor
(iii) The values for k, Lo, and CNMOC determined in field
testing shall be used, if field testing has been performed in
determining the NMOC emission rate or the radii of influence. If field
testing has not been performed, the default values for k, Lo and
CNMOC provided in Sec. 60.754(a)(1) shall be used. The mass of
nondegradable solid waste contained within the given section may be
subtracted from the total mass of the section when estimating emissions
provided the nature, location, age, and amount of the nondegradable
material is documented as provided in paragraph (a)(3)(i) of this
section.
(b) Each owner or operator seeking to comply with
Sec. 60.752(b)(2)(i)(A) shall construct the gas collection devices
using the following equipment or procedures:
(1) The landfill gas extraction components shall be constructed of
polyvinyl chloride (PVC), high density polyethylene (HDPE) pipe,
fiberglass, stainless steel, or other nonporous corrosion resistant
material of suitable dimensions to: convey projected amounts of gases;
withstand installation, static, and settlement forces; and withstand
planned overburden or traffic loads. The collection system shall extend
as necessary to comply with emission and migration standards.
Collection devices such as wells and horizontal collectors shall be
perforated to allow gas entry without head loss sufficient to impair
performance across the intended extent of control. Perforations shall
be situated with regard to the need to prevent excessive air
infiltration.
(2) Vertical wells shall be placed so as not to endanger underlying
liners and shall address the occurrence of water within the landfill.
Holes and trenches constructed for piped wells and horizontal
collectors shall be of sufficient cross-section so as to allow for
their proper construction and completion including, for example,
centering of pipes and placement of gravel backfill. Collection devices
shall be designed so as not to allow indirect short circuiting of air
into the cover or refuse into the collection system or gas into the
air. Any gravel used around pipe perforations should be of a dimension
so as not to penetrate or block perforations.
(3) Collection devices may be connected to the collection header
pipes below or above the landfill surface. The connector assembly shall
include a positive closing throttle valve, any necessary seals and
couplings, access couplings and at least one sampling port. The
collection devices shall be constructed of PVC, HDPE, fiberglass,
stainless steel, or other nonporous material of suitable thickness.
(c) Each owner or operator seeking to comply with
Sec. 60.752(b)(2)(i)(A) shall convey the landfill gas to a control
system in compliance with Sec. 60.752(b)(2)(iii) through the collection
header pipe(s). The gas mover equipment shall be sized to handle the
maximum gas generation flow rate expected over the intended use period
of the gas moving equipment using the following procedures:
(1) For existing collection systems, the flow data shall be used to
project the maximum flow rate. If no flow data exists, the procedures
in paragraph (c)(2) of this section shall be used.
(2) For new collection systems, the maximum flow rate shall be in
accordance with Sec. 60.755(a)(1).
10. Part 60 is further amended by adding Methods 2E, 3C and 25C to
appendix A as follows:
Appendix A--Reference Methods
* * * * *
Method 2E--Determination of Landfill Gas; Gas Production Flow Rate
1. Applicability and Principle
1.1 Applicability. This method applies to the measurement of
landfill gas (LFG) production flow rate from municipal solid waste
(MSW) landfills and is used to calculate the flow rate of nonmethane
organic compounds (NMOC) from landfills. This method also applies to
calculating a site-specific k value as provided in
Sec. 60.754(a)(4). It is unlikely that a site-specific k value
obtained through Method 2E testing will lower the annual emission
estimate below 50 Mg/yr NMOC unless the Tier 2 emission estimate is
only slightly higher than 50 Mg/yr NMOC. Dry, arid regions may show
a more significant difference between the default and calculated k
values than wet regions.
1.2 Principle. Extraction wells are installed either in a
cluster of three or at five locations dispersed throughout the
landfill. A blower is used to extract LFG from the landfill. LFG
composition, landfill pressures near the extraction well, and
volumetric flow rate of LFG extracted from the wells are measured
and the landfill gas production flow rate is calculated.
2. Apparatus
2.1 Well Drilling Rig. Capable of boring a 0.6 meters diameter
hole into the landfill to a minimum of 75 percent of the landfill
depth. The depth of the well shall not exceed the bottom of the
landfill or the liquid level.
2.2 Gravel. No fines. Gravel diameter should be appreciably
larger than perforations stated in sections 2.10 and 3.2 of this
method.
2.3 Bentonite.
2.4 Backfill Material. Clay, soil, and sandy loam have been
found to be acceptable.
2.5 Extraction Well Pipe. Polyvinyl chloride (PVC), high
density polyethylene (HDPE), fiberglass, stainless steel, or other
suitable nonporous material capable of transporting landfill gas
with a minimum diameter of 0.075 meters and suitable wall-thickness.
2.6 Wellhead Assembly. Valve capable of adjusting gas flow at
the wellhead and outlet, and a flow measuring device, such as an in-
line orifice meter or pitot tube. A schematic of the wellhead
assembly is shown in figure 1.
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2.7 Cap. PVC, HDPE, fiberglass, stainless steel, or other
suitable nonporous material capable of transporting landfill gas
with a suitable wall-thickness.
2.8 Header Piping. PVC, HDPE, fiberglass, stainless steel, or
other suitable nonporous material capable of transporting landfill
gas with a suitable wall-thickness.
2.9 Auger. Capable of boring a 0.15 to 0.23 meters diameter
hole to a depth equal to the top of the perforated section of the
extraction well, for pressure probe installation.
2.10 Pressure Probe. PVC or stainless steel (316), 0.025
meters. Schedule 40 pipe. Perforate the bottom two thirds. A minimum
requirement for perforations is slots or holes with an open area
equivalent to four 6.0 millimeter diameter holes spaced 90 deg.
apart every 0.15 meters.
2.11 Blower and Flare Assembly. A water knockout, flare or
incinerator, and an explosion-proof blower, capable of extracting
LFG at a flow rate of at least 8.5 cubic meters per minute.
2.12 Standard Pitot Tube and Differential Pressure Gauge for
Flow Rate Calibration with Standard Pitot. Same as Method 2,
sections 2.1 and 2.8.
2.13 Gas flow measuring device. Permanently mounted Type S
pitot tube or an orifice meter.
2.14 Barometer. Same as Method 4, section 2.1.5.
2.15 Differential Pressure Gauge. Water-filled U-tube manometer
or equivalent, capable of measuring within 0.02 mm Hg, for measuring
the pressure of the pressure probes.
3. Procedure
3.1 Placement of Extraction Wells. The landfill owner or
operator shall either install a single cluster of three extraction
wells in a test area or space five wells over the landfill. The
cluster wells are recommended but may be used only if the
composition, age of the solid waste, and the landfill depth of the
test area can be determined. CAUTION: Since this method is complex,
only experienced personnel should conduct the test. Landfill gas
contains methane, therefore explosive mixtures may exist at or near
the landfill. It is advisable to take appropriate safety precautions
when testing landfills, such as installing explosion-proof equipment
and refraining from smoking.
3.1.1 Cluster Wells. Consult landfill site records for the age
of the solid waste, depth, and composition of various sections of
the landfill. Select an area near the perimeter of the landfill with
a depth equal to or greater than the average depth of the landfill
and with the average age of the solid waste between 2 and 10 years
old. Avoid areas known to contain nondecomposable materials, such as
concrete and asbestos. Locate wells as shown in figure 2.
Because the age of the solid waste in a test area will not be
uniform, calculate a weighted average to determine the average age
of the solid waste as follows.
[GRAPHIC] [TIFF OMITTED] TR12MR96.027
where,
Aavg=average age of the solid waste tested, year
fi=fraction of the solid waste in the ith section
Ai=age of the ith fraction, year
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[[Page 9933]]
3.1.2 Equal Volume Wells. This procedure is used when the
composition, age of solid waste, and landfill depth are not well
known. Divide the portion of the landfill that has had waste for at
least 2 years into five areas representing equal volumes. Locate an
extraction well near the center of each area. Avoid areas known to
contain nondecomposable materials, such as concrete and asbestos.
3.2 Installation of Extraction Wells. Use a well drilling rig
to dig a 0.6 meters diameter hole in the landfill to a minimum of 75
percent of the landfill depth, not to exceed the bottom of the
landfill or the water table. Perforate the bottom two thirds of the
extraction well pipe. Perforations shall not be closer than 6 meters
from the cover. Perforations shall be holes or slots with an open
area equivalent to 1.0 centimeter diameter holes spaced 90 degrees
apart every 0.1 to 0.2 meters. Place the extraction well in the
center of the hole and backfill with 2.0 to 7.5 centimeters gravel
to a level 0.3 meters above the perforated section. Add a layer of
backfill material 1.2 meters thick. Add a layer of bentonite 1.0
meter thick, and backfill the remainder of the hole with cover
material or material equal in permeability to the existing cover
material. The specifications for extraction well installation are
shown in figure 3.
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3.3 Pressure Probes. Shallow pressure probes are used in the
check for infiltration of air into the landfill, and deep pressure
probes are used to determine the radius of influence. Locate the
deep pressure probes along three radial arms approximately 120
degrees apart at distances of 3, 15, 30, and 45 meters from the
extraction well. The tester has the option of locating additional
pressure probes at distances every 15 meters beyond 45 meters.
Example placements of probes are shown in figure 4.
The probes located 15, 30, and 45 meters from each well, and any
additional probes located along the three radial arms (deep probes),
shall extend to a depth equal to the top of the perforated section
of the extraction wells. Locate three shallow probes at a distance
of 3 m from the extraction well. Shallow probes shall extend to a
depth equal to half the depth of the deep probes.
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Use an auger to dig a hole, approximately 0.15 to 0.23 meters in
diameter, for each pressure probe. Perforate the bottom two thirds
of the pressure probe. Perforations shall be holes or slots with an
open area equivalent to four 6.0 millimeter diameter holes spaced 90
degrees apart every 0.15 meters. Place the pressure probe in the
center of the hole and backfill with gravel to a level 0.30 meters
above the perforated section. Add a layer of backfill material at
least 1.2 meters thick. Add a layer of bentonite at least 0.3 meters
thick, and backfill the remainder of the hole with cover material or
material equal in permeability to the existing cover material. The
specifications for pressure probe installation are shown in figure
5.
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[GRAPHIC] [TIFF OMITTED] TR12MR96.022
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3.4 LFG Flow Rate Measurement. Determine the flow rate of LFG
from the test wells continuously during testing with an orifice
meter. Alternative methods to measure the LFG flow rate may be used
with approval of the Administrator. Locate the orifice meter as
shown in figure 1. Attach the wells to the blower and flare
assembly. The individual wells may be ducted to a common header so
that a single blower and flare assembly and flow meter may be used.
Use the procedures in section 4.1 to calibrate the flow meter.
3.5 Leak Check. A leak check of the above ground system is
required for accurate flow rate measurements and for safety. Sample
LFG at the wellhead sample port and at a point downstream of the
flow measuring device. Use Method 3C to determine nitrogen (N2)
concentrations. Determine the difference by using the formula below.
Difference=Co-Cw
where,
Co=concentration of N2 at the outlet, ppmv
Cw=concentration of N2 at the wellhead, ppmv
The system passes the leak check if the difference is less than
10,000 ppmv. If the system fails the leak check, make the
appropriate adjustments to the above ground system and repeat the
leak check.
3.6 Static Testing. The purpose of the static testing is to
determine the initial conditions of the landfill. Close the control
valves on the wells so that there is no flow of landfill gas from
the well. Measure the gauge pressure (Pg) at each deep pressure
probe and the barometric pressure (Pbar) every 8 hours for 3
days. Convert the gauge pressure of each deep pressure probe to
absolute pressure by using the following equation. Record as
Pi.
Pi=Pbar+Pg
where,
Pbar=Atmospheric pressure, mm Hg
Pg=Gauge pressure of the deep probes, mm Hg
Pi=Initial absolute pressure of the deep probes during static
testing, mm Hg
3.6.1 For each probe, average all of the 8 hr deep pressure
probe readings and record as Pia. The Pia is used in
section 3.7.6 to determine the maximum radius of influence.
3.6.2 Measure the LFG temperature and the static flow rate of
each well once during static testing using a flow measurement
device, such as a Type S pitot tube and measure the temperature of
the landfill gas. The flow measurements should be made either just
before or just after the measurements of the probe pressures and are
used in determining the initial flow from the extraction well during
the short term testing. The temperature measurement is used in the
check for infiltration.
3.7 Short Term Testing. The purpose of short term testing is to
determine the maximum vacuum that can be applied to the wells
without infiltration of air into the landfill. The short term
testing is done on one well at a time. During the short term
testing, burn LFG with a flare or incinerator.
3.7.1 Use the blower to extract LFG from a single well at a
rate at least twice the static flow rate of the respective well
measured in section 3.6.2. If using a single blower and flare
assembly and a common header system, close the control valve on the
wells not being measured. Allow 24 hours for the system to stabilize
at this flow rate.
3.7.2 Check for infiltration of air into the landfill by
measuring the temperature of the LFG at the wellhead, the gauge
pressures of the shallow pressure probes, and the LFG N2
concentration by using Method 3C. CAUTION: Increased vacuum at the
wellhead may cause infiltration of air into the landfill, which
increases the possibility of a landfill fire. Infiltration of air
into the landfill may occur if any of the following conditions are
met: the LFG N2 concentration is more than 20 percent, any of
the shallow probes have a negative gauge pressure, or the
temperature has increased above 55 deg.C or the maximum established
temperature during static testing. If infiltration has not occurred,
increase the blower vacuum by 4 mm Hg, wait 24 hours, and repeat the
infiltration check. If at any time, the temperature change exceeds
the limit, stop the test until it is safe to proceed. Continue the
above steps of increasing blower vacuum by 4 mm Hg, waiting 24
hours, and checking for infiltration until the concentration of
N2 exceeds 20 percent or any of the shallow probes have a
negative gauge pressure, at which time reduce the vacuum at the
wellhead so that the N2 concentration is less than 20 percent
and the gauge pressures of the shallow probes are positive. This is
the maximum vacuum at which infiltration does not occur.
3.7.3 At this maximum vacuum, measure Pbar every 8 hours
for 24 hours and record the LFG flow rate as Qs and the probe
gauge pressures for all of the probes as Pf. Convert the gauge
pressures of the deep probes to absolute pressures for each 8-hour
reading at Qs as follows:
P=Pbar+Pf
where,
Pbar=Atmospheric pressure, mm Hg
Pf=Final absolute pressure of the deep probes during short term
testing, mm Hg
P=Pressure of the deep probes, mm Hg
3.7.4 For each probe, average the 8-hr deep pressure probe
readings and record as Pfa.
3.7.5 For each probe, compare the initial average pressure
(Pia) from section 3.6.1 to the final average pressure
(Pfa). Determine the furthermost point from the wellhead along
each radial arm where Pfa Pia. This distance
is the maximum radius of influence (ROI), which is the distance from
the well affected by the vacuum. Average these values to determine
the average maximum radius of influence (Rma).
The average Rma may also be determined by plotting on semi-
log paper the pressure differentials (Pfa-Pia) on the y-
axis (abscissa) versus the distances (3, 15, 30 and 45 meters) from
the wellhead on the x-axis (ordinate). Use a linear regression
analysis to determine the distance when the pressure differential is
zero. Additional pressure probes may be used to obtain more points
on the semi-long plot of pressure differentials versus distances.
3.7.6 Calculate the depth (Dst) affected by the extraction
well during the short term test as follows. If the computed value of
Dst exceeds the depth of the landfill, set Dst equal to
the landfill depth.
Dst=WD + Rma2
where,
Dst=depth, m
WD=well depth, m
Rma=maximum radius of influence, m
3.7.7 Calculate the void volume for the extraction well (V) as
follows.
V=0.40 Rma2 Dst
where,
V=void volume of test well, m3
Rma=maximum radius of influence, m
Dst=depth, m
3.7.8 Repeat the procedures in section 3.7 for each well.
3.8 Calculate the total void volume of the test wells (Vv)
by summing the void volumes (V) of each well.
3.9 Long Term Testing. The purpose of long term testing is to
determine the methane generation rate constant, k. Use the blower to
extract LFG from the wells. If a single blower and flare assembly
and common header system are used, open all control valves and set
the blower vacuum equal to the highest stabilized blower vacuum
demonstrated by any individual well in section 3.7. Every 8 hours,
sample the LFG from the wellhead sample port, measure the gauge
pressures of the shallow pressure probes, the blower vacuum, the LFG
flow rate, and use the criteria for infiltration in section 3.7.2
and Method 3C to check for infiltration. If infiltration is
detected, do not reduce the blower vacuum, but reduce the LFG flow
rate from the well by adjusting the control valve on the wellhead.
Adjust each affected well individually. Continue until the
equivalent of two total void volumes (Vv) have been extracted,
or until Vt=2 Vv.
3.9.1 Calculate Vt, the total volume of LFG extracted from
the wells, as follows.
[GRAPHIC] [TIFF OMITTED] TR12MR96.028
where,
Vt=total volume of LFG extracted from wells, m3
Qi=LFG flow rate measured at orifice meter at the ith
interval, cubic meters per minute
tvi=time of the ith interval, hour (usually 8)
3.9.2 Record the final stabilized flow rate as Qf. If,
during the long term testing, the flow rate does not stabilize,
calculate Qf by averaging the last 10 recorded flow rates.
3.9.3 For each deep probe, convert each gauge pressure to
absolute pressure as in section 3.7.4. Average these values and
record as Psa. For each probe, compare Pia to Psa.
Determine the furthermost point from the wellhead along each radial
arm where Psa Pia. This distance is the
stabilized radius of influence. Average these values to determine
the average stabilized radius of influence (Rsa).
3.10 Determine the NMOC mass emission rate using the procedures
in section 5.
3.11 Deactivation of pressure probe holes. Upon completion of
measurements, if pressure probes are removed, restore the
[[Page 9940]]
integrity of the landfill cover by backfilling and sealing to
prevent venting of LFG to the atmosphere or air infiltration.
4. Calibrations
Gas Flow Measuring Device Calibration Procedure. Locate a
standard pitot tube in line with a gas flow measuring device. Use
the procedures in Method 2D, section 4, to calibrate the orifice
meter. Method 3C may be used to determine the dry molecular weight.
It may be necessary to calibrate more than one gas flow measuring
device to bracket the landfill gas flow rates. Construct a
calibration curve by plotting the pressure drops across the gas flow
measuring device for each flow rate versus the average dry gas
volumetric flow rate in cubic meters per minute of the gas. Use this
calibration curve to determine the volumetric flow from the wells
during testing.
5. Calculations
5.1 Nomenclature.
Aavg=average age of the solid waste tested, year
Ai=age of solid waste in the ith fraction, year
A=age of landfill, year
Ar=acceptance rate, megagrams per year
CNMOC=NMOC concentration, ppmv as hexane (CNMOC=Ct/6)
Ct=NMOC concentration, ppmv (carbon equivalent) from Method 25C
D = depth affected by the test wells, m
Dst=depth affected by the test wells in the short term test, m
DLF=landfill depth, m
f = fraction of decomposable solid waste in the landfill
fi=fraction of the solid waste in the ith section
k=methane generation rate constant, year-1
Lo=methane generation potential, cubic meters per megagram
Lo=revised methane generation potential to account for the
amount of nondecomposable material in the landfill, cubic meters per
megagram
Mi=mass of solid waste of the i