[Federal Register Volume 64, Number 51 (Wednesday, March 17, 1999)]
[Rules and Regulations]
[Pages 13075-13078]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-6500]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 62

[PA-107-4066c; FRL-6311-3]


Approval and Promulgation of State Air Quality Plans for 
Designated Facilities and Pollutants; Allegheny County, Pennsylvania; 
Control of Landfill Gas Emissions from Existing Municipal Solid Waste 
Landfills

AGENCY: Environmental Protection Agency (EPA).

ACTION: Final rule.

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SUMMARY: EPA is approving a municipal solid waste landfill (MSW) 111(d) 
plan submitted by the Commonwealth of Pennsylvania Department of 
Environmental Protection (PADEP) on behalf of the Allegheny County 
Health Department (ACHD) for the purpose of controlling MSW landfill 
gas emissions from existing facilities. The plan was submitted to 
fulfill requirements of the Clean Air Act (CAA). The Allegheny County 
plan establishes landfill gas emissions limits for existing MSW 
landfills, and provides for the implementation and enforcement of those 
limits.

EFFECTIVE DATE: This final rule is effective on April 16, 1999.

ADDRESSES: Copies of the documents relevant to this action are 
available for public inspection during normal business hours at the Air 
Protection Division, U.S. Environmental Protection Agency, Region III, 
1650 Arch Street, Philadelphia, Pennsylvania 19103; and Allegheny 
County Health Department, Bureau of Environmental Quality, Division of 
Air Quality, 301 39th Street, Pittsburgh, Pennsylvania 15201.

FOR FURTHER INFORMATION CONTACT: James B. Topsale, P.E., at (215) 814-
2190, or by e-mail at [email protected].

SUPPLEMENTARY INFORMATION:

I. Background

    On April 10, 1998 (63 FR 17683), EPA published a direct final rule 
for approval of the MSW landfill 111(d) plan submitted by the PADEP on 
behalf of ACHD. EPA concurrently published a proposed rule on April 10, 
1998 (63 FR 17793) to allow interested parties to submit comments. 
During the public comment period, EPA received one adverse comment from 
Browning-Ferrris Industries, Inc. As a result, EPA withdrew the direct 
final rule granting approval of the MSW landfill 111(d) plan for 
Allegheny County on June 18, 1998 (63 FR 33250).
    On June 16, 1998, EPA published in the Federal Register (63 FR 
32743) a direct final action which amends, corrects errors, and 
clarifies the regulatory text of the ``Standards of Performance for New 
Stationary Sources and Guidelines for Control of Existing Sources: 
Municipal Solid Waste Landfills,'' which was promulgated on March 12, 
1996. The Background section of the amended rule (63 FR 32744) states, 
``These changes do not significantly modify the requirements of the 
regulation.'' No adverse comments were received on the amended landfill 
rule, and as a result, it became effective on August 17, 1998.

II. Response to Public Comments

    During the public comment period offered on the approval of the 
Allegheny County MSW landfill 111(d) plan, EPA received an adverse 
comment from Browing-Ferris Industries, Inc. opposing approval of the 
Allegheny County portion of the Commonwealth of Pennsylvania's plan. 
The following paragraphs present the commenter's remarks and EPA's 
responses.
    Comment: On May 12, 1998, the commenter noted that the effective 
date specified in ``Section G. Compliance Schedule'' of the direct 
final rule can be no sooner than the date of Federal Register 
publication, April 10, 1998. The direct final rule states: ``The final 
compliance date and enforceable increments of progress under the 111(d) 
plans are tied to the effective date of the County's MSW landfill 
regulation (Article XXI, section 2105.73).'' The table ``Reporting and 
Required Increments of Progress,'' which appears in Section G, 
indicates that the first compliance/reporting deadline pursuant to the 
emission guidelines (EG) is ``Within 90 days of the effective date of 
Article XXI Regulation*.'' The footnote (*) states that ``The 
regulation became effective on August 15, 1997.'' According to the 
commenter, use of the state/county effective date to trigger subsequent 
requirements is inconsistent with previous EPA approvals under 40 CFR 
Part 60, Subpart Cc, and with proposed revisions to the landfill new 
source performance standards/emission guidelines (NSPS/EG). Also, the 
Pennsylvania Air Pollution Control Act

[[Page 13076]]

(Section 4004.2(b)) prohibits the state from establishing more 
stringent requirements than the federal government. The commenter 
identified four EPA 111(d) plan approvals, excluding Allegheny County, 
to support his argument that the EG ``effective date'' is not 
established by the effective date of the state/local regulation. 
Furthermore, the commenter noted that a Title V application should not 
be due until one year plus 90 days from April 10, 1998, and that 
installation/operation of an EG compliant gas collection/control system 
should not be required until three years plus ninety days from April 
10, 1998. To support his position, the commenter referenced the pending 
amended EG provision, 40 CFR 60.32c(c), relating to Title V permits, 
that was negotiated under the lawsuit settlement over the MSW Landfill 
NSPS/EG [National Solid Waste Management Association v. Browner No. 96-
1152 (D.C. Cir)].
    EPA's Response: It appears the commenter has misinterpreted the 
requirements of the EG, as amended, and EPA's approval with respect to 
compliance schedule requirements for Allegheny County's 111(d) plan 
landfills. Any ambiguity in the text of the direct final rule published 
on April 10, 1998 that may have caused confusion should now be 
clarified with the discussion below.
    A state's 111(d) plan must include a compliance schedule that 
landfill owners/operators must meet. Most states have proposed that the 
initial design capacity and NMOC emissions rate report must be 
submitted 90 days after EPA approval of their 111(d) plans. The 
promulgated landfill EG require the same reporting and record keeping 
as the related NSPS. However, the EG do not stipulate when the initial 
NMOC emissions and design capacity reports are due for existing 
landfills. Even if a date were clearly specified in the EG, states can 
exercise their own judgement as to when the initial reporting 
requirement must be met, providing the requirement is no less stringent 
than that in the EG. EPA has no documentation that the Allegheny County 
landfill regulation violates any of the requirements of the 
Pennsylvania Air Pollution Control Act (Section 4004.2(b)). Based on 
our review of the public participation documents submitted with 
Allegheny County's 111(d) plan, the issues now raised by the commenter 
in his May 12, 1998 comments to EPA were not raised by that commenter, 
or anyone else, during the 111(d) plan public comment period. 
Furthermore, none of these comments or concerns were identified in the 
PADEP submittal of the Allegheny County MSW landfill 111(d) plan to 
EPA.
    Although the 111(d) plan increments of progress are tied to the 
effective date of the County's MSW landfill regulation, the controlling 
date that triggers and defines the required increments of progress 
dates, from the time of submittal of the design plan to final source 
compliance, is the date when the NMOC emissions rate is first 
calculated to exceed 50 Mg/yr. This is clearly noted in ``Section G. 
Compliance Schedule'' of the direct final rule. Nevertheless, the 
design capacity and initial NMOC emission rate reports were due within 
90 days of the effective date (i.e., August 15, 1997) of the Article 
XXI Regulation.
    EPA has been involved in litigation over the requirements of the 
MSW landfill EG and NSPS since the summer of 1996. On November 13, 
1997, EPA issued a notice of proposed settlement in National Solid 
Wastes Management Association v. Browner No. 96-1152 (D.C. Cir), in 
accordance with Section 113(g) of the Act. (See 62 FR 60898.) It is 
important to note that the proposed settlement did not vacate or void 
the March 12, 1996 MSW landfill EG or NSPS. Pursuant to the proposed 
settlement agreement, EPA published a direct final rulemaking on June 
16, 1998, in which EPA amends 40 CFR Part 60, Subparts Cc and WWW, to 
add clarifying language, make editorial amendments, and to correct 
typographical errors. One particular clarification addresses the 
commenters concern regarding the date when Title V applications are 
due. Specifically, 60.32c(c), as amended, makes it clear that EG 
sources will not become subject to the requirement to apply for a Title 
V permit until 90 days after the effective date of EPA's approval of a 
state's 111(d) plan. (See 63 FR 32743-32753, 32783-32784.) EPA 
regulations at 40 CFR 60.23(a)(2) provide that a state has nine months 
to adopt and submit any necessary state plan revisions after 
publication of a final revised emission guideline document. Thus, 
states are not yet required to submit state plan revisions to address 
the June 16, 1998 direct final amendments in the EG. In addition, as 
stated in the June 16, 1998 rule's preamble, the changes to 40 CFR Part 
60, Subparts Cc and WWW, do not significantly modify the requirements 
of those subparts. (See 63 FR 32744.) Accordingly, the MSW landfill EG 
published on March 12, 1996, was used as a basis by EPA for review of 
state 111(d) plan submittals.

III. Final Action

    Based upon the rationale discussed in the proposed and related 
direct final rulemaking (63 FR 17793 and 17683, April 10, 1998), EPA is 
approving the Allegheny County portion of the Pennsylvania MSW landfill 
111(d) plan. As provided by 40 CFR 60.28(c), any revisions to the 
Allegheny County portion of the plan or associated regulations will not 
be considered part of the applicable plan until submitted by PADEP in 
accordance with 40 CFR 60.28(a) or (b), as applicable, and until 
approved by EPA .

IV. Administrative Requirements

A. Executive Orders 12866

    The Office of Management and Budget (OMB) has exempted this 
regulatory action from review under Executive Order (E.O.) 12866, 
entitled ``Regulatory Planning and Review.''

B. Executive Order 12875

    Under E.O. 12875, EPA may not issue a regulation that is not 
required by statute and that creates a mandate upon a state, local, or 
tribal government, unless the Federal government provides the funds 
necessary to pay the direct compliance costs incurred by those 
governments. If EPA complies by consulting, E.O. 12875 requires EPA to 
provide to the Office of Management and Budget a description of the 
extent of EPA's prior consultation with representatives of affected 
state, local, and tribal governments, the nature of their concerns, 
copies of written communications from the governments, and a statement 
supporting the need to issue the regulation. In addition, E.O. 12875 
requires EPA to develop an effective process permitting elected 
officials and other representatives of state, local, and tribal 
governments ``to provide meaningful and timely input in the development 
of regulatory proposals containing significant unfunded mandates.'' 
Today's rule does not create a mandate on state, local or tribal 
governments. The rule does not impose any enforceable duties on these 
entities. Accordingly, the requirements of Section 1(a) of E.O. 12875 
do not apply to this rule.

C. Executive Order 13045

    E.O. 13045, entitled ``Protection of Children from Environmental 
Health Risks and Safety Risks'' (62 FR 19885, April 23, 1997), applies 
to any rule that the EPA determines (1) is ``economically 
significant,'' as defined under E.O. 12866, and (2) the environmental 
health or safety risk addressed by the rule has a disproportionate 
effect on children. If

[[Page 13077]]

the regulatory action meets both criteria, the Agency must evaluate the 
environmental health or safety effects of the planned rule on children 
and explain why the planned regulation is preferable to other 
potentially effective and reasonably feasible alternatives considered 
by the Agency. This final rule is not subject to E.O. 13045 because it 
is not an economically significant regulatory action as defined by E.O. 
12866, and it does not address an environmental health or safety risk 
that would have a disproportionate effect on children.

D. Executive Order 13084

    Under E.O. 13084, EPA may not issue a regulation that is not 
required by statute, that significantly affects or uniquely affects the 
communities of Indian tribal governments, and that imposes substantial 
direct compliance costs on those communities, unless the Federal 
government provides the funds necessary to pay the direct compliance 
costs incurred by the tribal governments. If EPA complies by 
consulting, E.O. 13084 requires EPA to provide to the Office of 
Management and Budget, in a separately identified section of the 
preamble to the rule, a description of the extent of EPA's prior 
consultation with representatives of affected tribal governments, a 
summary of the nature of their concerns, and a statement supporting the 
need to issue the regulation. In addition, E.O. 13084 requires EPA to 
develop an effective process permitting elected and other 
representatives of Indian tribal governments ``to provide meaningful 
and timely input in the development of regulatory policies on matters 
that significantly or uniquely affect their communities.'' Today's rule 
does not significantly or uniquely affect the communities of Indian 
tribal governments. This action does not involve or impose any 
requirements that affect Indian Tribes. Accordingly, the requirements 
of section 3(b) of E.O. 13084 do not apply to this rule.

E. Regulatory Flexibility Act

    The Regulatory Flexibility Act (RFA) generally requires an agency 
to conduct a regulatory flexibility analysis of any rule subject to 
notice and comment rulemaking requirements unless the agency certifies 
that the rule will not have a significant economic impact on a 
substantial number of small entities. Small entities include small 
businesses, small not-for-profit enterprises, and small governmental 
jurisdictions. Pursuant to section 605 (b) of the RFA I certify that 
this rule will not have a significant economic impact on a substantial 
number of small entities. This Federal action approves pre-existing 
requirements under Federal, State, or Local law and imposes no new 
requirements on any entity affected by this rule, including small 
entities. Therefore, these amendments will not have a significant 
impact on a substantial number of small entities.

F. Unfunded Mandates

    Under Section 202 of the Unfunded Mandates Reform Act of 1995 
(``Unfunded Mandates Act''), signed into law on March 22, 1995, EPA 
must prepare a budgetary impact statement to accompany any proposed or 
final rule that includes a Federal mandate that may result in estimated 
annual costs to State, local, or tribal governments in the aggregate; 
or to a private sector, of $100 million or more. Under Section 205, EPA 
must select the most cost-effective and least burdensome alternative 
that achieves the objectives of the rule and is consistent with 
statutory requirements. Section 203 requires EPA to establish a plan 
for informing and advising any small governments that may be 
significantly or uniquely impacted by the rule. EPA has determined that 
the approval action promulgated does not include a Federal mandate that 
may result in estimated annual costs of $100 million or more to either 
State, local, or tribal governments in the aggregate, or to the private 
sector. This Federal action approves pre-existing requirements under 
State or local law, and imposes no new requirements. Accordingly, no 
additional costs to State, local, or tribal governments, or to the 
private sector, result from this action.

G. Submission to Congress and the Comptroller General

    The Congressional Review Act, 5 U.S.C. 801 et seq., as added by the 
Small Business Regulatory Enforcement Fairness Act of 1996, generally 
provides that before a rule may take effect, the agency promulgating 
the rule must submit a rule report, which includes a copy of the rule, 
to each House of the Congress and to the Comptroller General of the 
United States. EPA will submit a report containing this rule and other 
required information to the U.S. Senate, the U.S. House of 
Representatives, and the Comptroller General of the United States prior 
to publication of the rule in the Federal Register. This rule is not a 
``major rule'' as defined by 5 U.S.C. 804(2).

H. Petitions for Judicial Review

    Under section 307(b)(1) of the Clean Air Act, petitions for 
judicial review of this action to approve the Allegheny County portion 
of the Pennsylvania MSW landfill 111(d) plan must be filed in the 
United States Court of Appeals for the appropriate circuit by May 17, 
1999. Filing a petition for reconsideration by the Administrator of 
this final rule does not affect the finality of this rule for the 
purposes of judicial review nor does it extend the time within which a 
petition for judicial review may be filed, and shall not postpone the 
effectiveness of such rule or action. This action may not be challenged 
later in proceedings to enforce its requirements. (See section 
307(b)(2).)

List of Subjects in 40 CFR Part 62

    Environmental protection, Administrative practice and procedure, 
Air pollution control, Intergovernmental relations, Non-methane organic 
compounds, Methane, Municipal solid waste landfills, Hydrocarbons, 
Reporting and record keeping requirement.

    Dated: March 9, 1999.
Thomas Voltaggio,
Acting, Regional Administratopr, Region III.

    40 CFR Part 62, Subpart NN, is amended as follows:

PART 62--[AMENDED]

    1. The authority citation for Part 62 continues to read as follows:

    Authority: 42 U.S.C. 7401-7671q.

Subpart NN--Pennsylvania

    2. Subpart NN is amended by adding a new center heading and 
Secs. 62.9630, 62.9631, and 62.9632 to read as follows:

Landfill Gas Emissions From Existing Municipal Solid Waste 
Landfills (Section 111(d) Plan)


Sec. 62.9630  Identification of plan.

    Section 111(d) plan for municipal solid waste landfills and the 
associated Allegheny County Health Department Regulation in Article 
XXI, Sec. 2105.73, as submitted on October 23, 1997, by the 
Commonwealth of Pennsylvania.


Sec. 62.9631  Identification of sources.

    The plan applies to all Allegheny County, Pennsylvania, existing 
municipal solid waste landfills for which construction, reconstruction, 
or modification was commenced before May 30, 1991 and that has accepted 
waste at any time since November 8, 1987 or that has additional 
capacity available for future waste deposition, as described in 40 CFR 
part 60, subpart Cc.

[[Page 13078]]

Sec. 62.9632  Effective date.

    The effective date of the plan for municipal solid waste landfills 
is April 16, 1999.

[FR Doc. 99-6500 Filed 3-16-99; 8:45 am]
BILLING CODE 6560-50-U