[Federal Register Volume 64, Number 116 (Thursday, June 17, 1999)]
[Rules and Regulations]
[Pages 32430-32433]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-15263]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 62

[LA-51-7413a; FRL-6360-8]


Approval and Promulgation of State Plans for Designated 
Facilities and Pollutants: Louisiana

AGENCY: Environmental Protection Agency (EPA).

ACTION: Direct final rule.

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SUMMARY: We are approving the section 111(d) Plan submitted by the 
Louisiana Department of Environmental Quality (LDEQ) on December 30, 
1998, to implement and enforce the Emissions Guidelines (EG) for 
existing Hospital/Medical/Infectious Waste Incinerators (MWI). The EG 
requires States to develop plans to reduce toxic air emissions from all 
MWIs. We are also approving a revision to the Louisiana State Plan as 
it pertains to existing municipal solid waste landfills. This revision 
adds certain increments of progress so that we can more effectively 
track facilities' progress towards compliance.

DATES: This direct final rule is effective on August 16, 1999, without 
further notice, unless we receive adverse comments by July 19, 1999. If 
EPA receives such comments, it will publish a timely withdrawal of the 
direct final rule in the Federal Register and inform the public that 
the rule will not take effect.

ADDRESSES: You should address comments on this action to Lt. Mick Cote, 
EPA Region 6, Air Planning Section (6PD-L), 1445 Ross Avenue, Suite 
1200, Dallas, Texas 75202.
    Copies of all materials considered in this rulemaking may be 
examined during normal business hours at the following locations: EPA 
Region 6 offices, 1445 Ross Avenue, Suite 700, Dallas, Texas 75202, and 
at the Louisiana Department of Environmental Quality offices, 7290 
Bluebonnet Blvd., Baton Rouge, Louisiana 70884-2135.

FOR FURTHER INFORMATION CONTACT: Lt. Mick Cote at (214) 665-7219.

SUPPLEMENTARY INFORMATION:

Table of Contents

I. What action is being taken by EPA today?
II. Why do we need to regulate MWI emissions?
III. What is a State Plan?
IV. What does the Louisiana State Plan contan?
V. Is my MWI subject to these regulations?
VI. What steps do I need to take?
VII. Administration Requirements.

I. What Action Is Being Taken by EPA Today?

    We are approving the Louisiana State Plan, as submitted on December 
30, 1998, for the control of air emissions from MWIs, except for those 
MWIs located in Indian Country. When we developed our New Source 
Performance Standard (NSPS) for MWIs, we also developed EG to control 
air emissions from older MWIs. See 62 FR 48348-48391, September 15, 
1997. The LDEQ developed a State Plan, as required by section 111(d) of 
the Clean Air Act (the Act), to adopt the EG into their body of 
regulations, and we are acting today to approve it.
    We approved Louisiana's section 111(d) State plan for municipal 
solid waste landfills on August 29, 1997 (62 FR 45730). In accordance 
with our EG for this category of sources, LDEQ is allowed to develop 
increments of progress separately and submit them as a revision to the 
State Plan. Our detailed discussion of this requirements was discussed 
in 62 FR 45730.
    1. Design plans are due on or before January 28, 1999;
    2. Awarding of contracts is due on or before June 28, 1999;
    3. Initiation of on-site construction is due on or before March 28, 
2000;
    4. Initial performance tests must be completed on or before March 
28, 2000;
    5. Final compliance must be met on or before April 28, 2000. These 
increments of progress satisfy the requirements of the EG for municipal 
solid waste landfills, and we are approving them today as a revision to 
the State Plan.
    We are publishing this action without prior proposal because we 
view this as a noncontroversial amendment and anticipate no adverse 
comments. However, in a separate document in this Federal Register 
publication, we are proposing to approve the revision should 
significant, material, and adverse comments be filed. This action is 
effective August 16, 1999, unless by July 19, 1999, adverse or critical 
comments are received. If we receive such comments, this action will be 
withdrawn before the effective date by publishing a subsequent notice 
that will withdraw the final action. All public

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comments received will be addressed in a subsequent final rule based on 
this action serving as a proposed rule. We will not institute a second 
comment period on this action. Any parties interested in commenting on 
this action should do so at this time. If no such comments are 
received, this action is effective August 16, 1999.

II. Why Do We Need To Regulate MWI Emissions?

    When burned, hospital waste and medical/infectious waste emit 
various air pollutants, including hydrochloric acid, dioxin/furan, and 
toxic metals (lead, cadmium, and mercury). Mercury is highly hazardous 
and is of particular concern because it persists in the environment and 
bioaccumulates through the food web. Serious developmental and adult 
effects in humans, primarily damage to the nervous system, have been 
associated with exposures to mercury. Harmful effects in wildlife have 
also been reported; these include nervous system damage and behavioral 
and reproductive deficits. Human and wildlife exposure to mercury 
occurs mainly through the ingestion of fish. When inhaled, mercury 
vapor attacks the lung tissue and is a cumulative poison. Short-term 
exposure to mercury in certain forms can cause hallucination and impair 
consciousness. Long-term exposure to mercury in certain form can affect 
the central nervous system and cause kidney damage.
    Exposure to particulate matter has been linked with adverse health 
effects, including aggravation of existing respiratory and 
cardiovascular disease and increased risk of premature death. 
Hydrochloric acid is a clear colorless gas. Chronic exposure to 
hydrochloric acid has been reported to cause gastritis, chronic 
bronchitis, dermatitis, and photosensitization. Acute exposure to high 
levels of chlorine in humans may result in chest pain, vomiting, toxic 
pneumonitis, pulmonary edema, and death. At lower levels, chlorine is a 
potent irritant to the eyes, the upper respiratory tract, and lungs.
    Exposure to dioxin and furan can cause skin disorders, cancer, and 
reproductive effects such as endometriosis. These pollutants can also 
effect the immune system. We estimate that this State Plan will reduce 
mercury emissions from MWIs in Louisiana by approximately 94 percent, 
hydrochloric acid emissions by 98 percent, and dioxin/furan emissions 
by 95 percent.

III. What Is a State Plan?

    Section 111(d) of the Act requires that pollutants controlled under 
the NSPS must also be controlled at older sources in the same source 
category. Once an NSPS is promulgated, we then publish an EG applicable 
to the control of the same pollutant from existing (designated) 
facilities. States with designated facilities must then develop a State 
Plan to adopt the EG into their body of regulations. States must also 
include in this State Plan other elements, such as inventories, legal 
authority, and public participation documentation, to demonstrate the 
ability to enforce it.

IV. What Does the Louisiana State Plan Contain?

    The LDEQ adopted the Federal NSPS and EG by reference into its 
State regulations at LAC 33:III.3003.B, Table 2, and LAC 33:III.3003 
C5, as State Rule AQ 178. AQ 178 was published in the Louisiana 
Register on December 20, 1998. The Louisiana State Plan contains:
    1. A demonstration of the State's legal authority to implement the 
section 111(d) State Plan;
    2. State Rule AQ 178 as the enforceable mechanism;
    3. An inventory of approximately 56 known designated facilities, 
along with estimates of their toxic air emissions;
    4. Emission limits that are as protective as the EG;
    5. A compliance date 30 months after the effective date of the 
Federal approval of this State Plan;
    6. Testing, monitoring, reporting and recordkeeping requirements 
for the designated facilities;
    7. Records from the public hearing; and,
    8. Provisions for progress reports to EPA.
    The Louisiana State Plan was reviewed for approval against the 
following criteria: 40 CFR 60.23 through 60.26, Subpart B--Adoption and 
Submittal of State Plans for Designated Facilities; and, 40 CFR Part 
60, 60.30e through 60.39e, Subpart Ce--Emission Guidelines and 
Compliance Times for Hospital/Medical/Infectious Waste Incinerators. A 
detailed discussion of our evaluation of the Louisiana State Plan is 
included in our technical support document, located in the official 
file for this action.

V. Is My MWI Subject to These Regulations?

    The EG for existing MWIs affect any MWI built on or before June 20, 
1996. If your facility meets this criterion, you are subject to these 
regulations.

VI. What Steps Do I Need To Take?

    You must meet the requirements incorporated by reference in LAC 
33:III.3003.B and C5, and summarized as follows:
    1. Determine the size of your incinerator by establishing its 
maximum design capacity; as an alternative, you can elect to accept a 
permit restriction to limit the amount of waste you may burn per hour.
    2. Each size category of MWI has certain emission limits 
established which your incinerator must meet. See Table 1 of 40 CFR 
part 60, subpart Ce to determine the specific emission limits which 
apply to you. The emission limits apply at all times, except during 
startup, shutdown, or malfunctions, provided that no waste has been 
charged during these events. See 40 CFR 60.33e, as listed at 62 FR 
48382, September 15, 1997.
    3. There are provisions to address small rural incinerators. See 40 
CFR 60.33e(b), 60.36e, 60.37e(c)(d), and 60.38e(b), as listed at 62 FR 
48380, September 15, 1997.
    4. You must meet a 10 percent opacity limit on your discharge, 
averaged over a six-minute block. See 40 CFR 60.33e(c), as listed at 62 
FR 48380, September 15, 1997.
    5. You must have a qualified MWI operator available to supervise 
the operation of your incinerator. This operator must be trained and 
qualified through a State-approved program, or a training program that 
meets the requirements listed under 40 CFR 60.53c(c). See 40 CFR 
60.34e, as listed at 62 FR 48380.
    6. Your operator must be certified, as discussed in 4 above, no 
later than one year after we approve this Louisiana State Plan. See 40 
CFR 60.39e(e), as listed at 62 FR 48382. You must develop and submit to 
LDEQ a waste management plan. This plan must be developed under 
guidance provided by the American Hospital Association publication, An 
Ounce of Prevention: Waste Reduction Strategies for Health Care 
Facilities, 1993, and must be submitted to LDEQ no later than one year 
after we approve this State Plan. See 40 CFR 60.35e, as listed at 62 FR 
48380.
    7. You must conduct an initial performance test to determine your 
incinerators compliance with these emission limits. See 40 CFR 60.37e 
and 60.8, as listed at 62 FR 48380.
    8. You must install and maintain devices to monitor the parameters 
listed under Table 3 to Subpart Ec. See 40 CFR 60.37e(c), as listed at 
62 FR 48381.
    9. You must document and maintain information concerning pollutant

[[Page 32432]]

concentrations, opacity measurements, charge rates, and other 
operational data. This information must be maintained for a period of 
five years. See 40 CFR 60.38e, as listed at 62 FR 48381.
    10. You must report to LDEQ the results of your initial performance 
test, the values for your site-specific operating parameters, and your 
waste management plan. This information must be reported within 60 days 
following your initial performance test, and must be signed by the 
facilities manager. See 40 CFR 60.38e, as listed at 62 FR 48381.
    11. In general, you must comply with all the requirements of this 
State Plan within one year after we approve it; however, there are 
provisions to extend your compliance date. See 40 CFR 60.39e, as listed 
at 62 FR 48381.

VII. Administrative Requirements

A. Executive Order (E.O.) 12866

    The Office of Management and Budget (OMB) has exempted this 
regulatory action from 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, or EPA consults with those governments. If EPA complies by 
consulting, E.O. 12875 requires EPA to provide to the OMB 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 any 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 rules on any of 
these entities. This action does not create any new requirements but 
simply approves requirements that the State is already imposing. 
Accordingly, the requirements of section 1(a) of E.O. 12875 do not 
apply to this rule.

C. Executive Order 13045

    Executive Order 13045, entitled ``Protection in Children from 
Environmental Health Risks and Safety Risks'' (62 FR 19885, April 23, 
1997), applies to any rule that: (1) is determined to be ``economically 
significant'' as defined under E.O. 12866, and (2) concerns an 
environmental health or safety risk that EPA has reason to believe may 
have a disproportionate effect on children. If 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.
    The EPA interprets E.O. 13045 as applying only to those regulatory 
actions that are based on health or safety risks, such that the 
analysis required under section 5-501 of the Order has the potential to 
influence the regulation. This final rule is not subject to E.O. 13045 
because it approves a State program.

D. Executive Order 13084

    Under E.O. 13084, EPA may not issue a regulation that is not 
required by statute, that significantly 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, or EPA consults with those 
governments. If EPA complies by consulting, E.O. 13084 requires EPA to 
provide to the OMB, 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 officials 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, 5 U.S.C. 600 et seq., 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. This final rule will not have a significant 
impact on a substantial number of small entities because SIP approvals 
under section 110 and subchapter I, part D of the Federal Clear Air Act 
(the Act) do not create any new requirements but simply approve 
requirements that the State is already imposing. Therefore, because the 
Federal SIP approval does not create any new requirements, I certify 
that this action will not have a significant economic impact on a 
substantial number of small entities. Moreover, due to the nature of 
the Federal-State relationship under the Act, preparation of a 
flexibility analysis would constitute Federal inquiry into the economic 
reasonableness of state action. The Act forbids EPA to base its actions 
concerning SIPs on such grounds. See Union Electric Co., v. U.S. EPA, 
427 U.S. 246, 255-66 (1976); 42 U.S.C. 7410(a)(2).

F. Unfunded Mandates

    Under section 202 of the Unfunded Mandates Reform Act of 1995, 
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 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 rue 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.
    The 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

[[Page 32433]]

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. The 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. A major rule can 
not take effect until 60 days after it is published in the Federal 
Register. This action is not a ``major'' rule as defined by 5 U.S.C. 
804(2). This rule will be effective August 16, 1999.

H. Petitions for Judicial Review

    Under section 307(b)(1) of the Act, petitions for judicial review 
of this action must be filed in the United States Court of Appeals for 
the appropriate circuit by August 16, 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 60

    Environmental protection, Administrative practice and procedure, 
Air pollution control, Hospital/medical/infectious waste incineration, 
Intergovernmental relations, Reporting and recordkeeping requirements.

    Dated: June 7, 1999.
Gregg A. Cooke,
Regional Administrator, Region 6.

    40 CFR part 62 of the Code of Federal Regulations is amended as 
follows:

PART 62--[AMENDED]

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

    Authority: 42 U.S.C. 7401-7642

Subpart T--Louisiana

    2. Section 62.4620 is amended by revising paragraph (b)(4) and 
adding paragraphs (b)(5), (c)(5), and (c)(6) to read as follows:


Sec. 62.4620  Identification of plan.

* * * * *
    (b) * * *
    (4) Control of landfill gas emissions from existing municipal solid 
waste landfills, submitted on December 9, 1996 (LAC 33.III.3003.B, 
Table 2), and revised on December 20, 1998 (LAC 33.III.3003.C.4).
    (5) Control of air emissions from designated hazardous/medical/
infectious waste incinerators, submitted by the Louisiana Department of 
Environmental Quality on December 30, 1998 (LAC 33.III.3003.C.5).
    (c) * * *
    (5) Municipal solid waste landfills.
    (6) Hazardous/medical/infectious waste incinerators.
    3. Subpart T is amended by adding a new Sec. 62.4633 and a new 
undesignated center heading to read as follows:

Air Emissions From Hazardous/Medical/Infectious Waste Incinerators


Sec. 62.4633  Identification of sources.

    The plan applies to existing hazardous/medical/infectious waste 
incinerators for which construction, reconstruction, or modification 
was commenced before June 20, 1996, as described in 40 CFR part 60, 
subpart Ce.
    4. Subpart T is amended by adding anew Sec. 62.4634 and a new 
undesignated center heading to read as follows:

Effective Date


Sec. 62.4634  Effective date.

    The effective date for the portion of the plan applicable to 
existing hazardous/medical/infectious waste incinerators is August 16, 
1999.

[FR Doc. 99-15263 Filed 6-16-99; 8:45 am]
BILLING CODE 6560-50-M