[Federal Register Volume 67, Number 241 (Monday, December 16, 2002)]
[Rules and Regulations]
[Pages 76995-76998]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 02-31015]


-----------------------------------------------------------------------

ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 271

[FRL-7412-6]


New Jersey: Final Authorization of State Hazardous Waste Program 
Revision

AGENCY: Environmental Protection Agency.

ACTION: Immediate final rule.

-----------------------------------------------------------------------

SUMMARY: Pursuant to the Resource Conservation and Recovery Act, as 
amended, 42 U.S.C. 6901 et seq. (``RCRA''), and the regulations 
thereunder, the State of New Jersey (the ``State'') applied for final 
authorization of changes to its hazardous waste program. These 
revisions were adopted by the State in January 1999. The Environmental 
Protection Agency, Region 2 (``EPA'') has reviewed the State's 
application and has determined that the State's revisions to its 
hazardous waste program satisfy all of the requirements necessary to 
qualify for final authorization. Accordingly, EPA is today approving 
and authorizing the State's revisions through this immediate final 
rule. EPA did not publish a proposal before today's rule because it 
views this as a routine program change to the State's hazardous waste 
program and does not expect comments that oppose this approval. 
Consequently, unless EPA receives written comments which oppose this 
authorization during the comment period, the decision to authorize the 
revisions to the State's hazardous waste program will take effect as 
provided below. If EPA receives comments that oppose this action, EPA 
shall publish a document in the Federal Register withdrawing this rule 
before it takes effect. In addition to this rule, EPA is publishing in 
the proposed rules section of today's Federal Register, a separate 
notice that proposes to authorize the State's program revisions. This 
proposal ( the ``companion proposal'') will serve as a proposal to 
authorize the State's program revisions, if necessary, as explained 
more fully below in the section identifying the effective date of this 
rule as well as in the companion proposal itself.

DATES: This rule will become effective on February 14, 2003, unless 
adverse comments are received by January 15, 2003. If EPA receives such 
comment, EPA will publish a timely withdrawal of this rule in the 
Federal Register and inform the public that this rule will not take 
effect.

ADDRESSES: Written comments should be sent to Walter M. Mugdan, 
Director, Division of Environmental Planning and Protection, U.S. EPA, 
Region 2, 290 Broadway, New York, New York 10007-1866, (212) 637-3724. 
For further information contact Clifford Ng, Division of Environmental 
Planning and Protection, USEPA, Region 2, 290 Broadway (22nd Floor) New 
York, NY 10007-1866; telephone (212) 637-4113; E mail--
[email protected].
    Copies of the State's application for authorization are available 
for inspection and copying as follows:

The New Jersey Department of Environmental Protection (``NJDEP'')

    Address: Public Access Center, NJDEP, 401 East State Street, 1st 
Floor, Trenton, NJ 08625.
    Hours: Monday through Friday (excluding holidays), 8:30 a.m.-1 
p.m., 2 p.m.-4:30 p.m.
    Telephone: (609) 777-3373.

EPA

    Address: EPA Library, 16th Floor, 290 Broadway, New York, NY 10007-
1866.
    Hours: Monday through Thursday (excluding holidays), 9 a.m.-4:30 
p.m., Friday (excluding holidays), 9 a.m.-1 p.m.
    Telephone: (212) 637-3185.

FOR FURTHER INFORMATION CONTACT: Clifford Ng, (212) 637-4113.

SUPPLEMENTARY INFORMATION: This rule will become effective on February 
14, 2003, unless adverse comments are received during the comment 
period. In the event that such adverse comments are received, EPA will 
publish in the Federal Register a notice withdrawing this rule before 
it becomes effective. EPA will then base any further decision on the 
authorization of the State's program revisions on the companion 
proposal published in today's Federal Register and will address all 
public comments in a later final rule. Interested persons may not have 
another opportunity to comment. Therefore, if you want to comment on 
this authorization, you must do so at this time. If EPA receives 
comments that oppose only the authorization of a particular revision to 
the State's hazardous waste program, EPA will withdraw that part of 
this rule, but the authorization of the program revisions that the 
comments do not oppose will become effective on the date specified 
above. The Federal Register notice of withdrawal will specify which 
part of the authorization will become effective, and which part is 
being withdrawn.

I. State Authorization Under RCRA

    Pursuant to section 3006 of RCRA, 42 U.S.C. 6926, EPA may, upon 
application by a state, authorize the applicant state's hazardous waste 
program to operate in the state in lieu of the federal hazardous waste 
program. For purposes of authorization, the federal hazardous waste 
program (the ``Federal Program'') is comprised of the regulations 
published in Title 40 of the Code of Federal Regulations (``CFR'') 
under the authority of RCRA. To qualify for final authorization, a 
state's hazardous waste program must: (1) Be equivalent with the 
Federal Program; (2) be consistent with the Federal Program; and (3) 
provide for adequate enforcement. RCRA section 3006(b), 42 U.S.C. 
6926(b).

II. Background--History of RCRA Authorization Within the State

    In 1985, the State was granted final authorization by EPA for the 
RCRA base program, effective February 21, 1985 (50 FR 5260, 2/7/85). At 
that time the base

[[Page 76996]]

program covered the essential core of the Federal Program as reflected 
in the initial enactment of RCRA prior to its amendment by the 
Hazardous and Solid Waste Amendments of 1984. In 1988 and 1993 EPA 
authorized the State for a small number of additional regulations (53 
FR 30054, 8/10/88, and 58 FR 59370, 11/9/93).
    On October 21, 1996, the State repealed its regulations comprising 
its then existing hazardous waste program, including those regulations 
authorized by EPA, and adopted a new program (N.J.A.C. 7:26G-1.1 et 
seq., 28 New Jersey Register 4606, 10/21/96). As part of this October 
21, 1996 adoption, the State adopted, with certain exceptions and 
modifications, 40 CFR Parts 124, 260-266, 268 and 270 as set forth in 
the July 1, 1993 CFR, by incorporation by reference, and designated 
these provisions N.J.A.C. 7:26G-4 through N.J.A.C. 7:26G-13, inclusive. 
(28 New Jersey Register 4652-4668, 10/21/96. N.J.A.C. 7:26G-4 through 
N.J.A.C. 7:26G-13 are referred to below as the ``State Program''). 
Under cover of a letter dated January 13, 1999, the State submitted an 
application meeting the requirements of 40 CFR Part 271, requesting 
authorization of the State Program.\1\ In August 1999, EPA published a 
Federal Register notice in which it authorized the State Program. (64 
FR 41823, 8/2/99).
---------------------------------------------------------------------------

    \1\ The State's redesignation of the Parts of the Federal 
Program adopted by incorporation by reference on October 21, 1996, 
and comprising the State Program, is as follows: N.J.A.C. 7:26G-4 
(40 CFR Part 260); N.J.A.C. 7:26G-5 (40 CFR Part 261); N.J.A.C. 
7:26G-6 (40 CFR Part 262); N.J.A.C. 7:26G-7 (40 CFR Part 263); 
N.J.A.C. 7:26G-8 (40 CFR Part 264); N.J.A.C. 7:26G-9 (40 CFR Part 
265); N.J.A.C. 7:26G-10 (40 CFR Part 266); N.J.A.C. 7:26G-11 (40 CFR 
Part 268); N.J.A.C. 7:26G-12 (40 CFR Part 270); and N.J.A.C. 7:26G-
13 (40 CFR Part 124).
---------------------------------------------------------------------------

III. The January 1999 Adoption and the Scope of the Authorization for 
Which the State Has Applied

    On September 8, 1998, the State proposed various amendments to the 
State Program, as well as amendments to the procedures by which 
revisions to the state Program would subsequently be adopted. (30 
N.J.R. 3128, 9/8/98). On January 19, 1999, the State adopted the 
proposed amendments with changes responsive to public comment. (31 
N.J.R. 166, 1/19/99, the ``Adoption''). In terms of process, the 
Adoption amended the New Jersey Administrative Code (``N.J.A.C.'') by 
establishing a procedure pursuant to which the regulations comprising 
the Federal Program would subsequently be adopted by prospective 
incorporation by reference. (N.J.A.C. 7:26G-1.4(b), (c), (e) and (j)-
(l), 31 N.J.R. 169-70, 1/19/99). Substantively, the Adoption revised 
the State Program by incorporating by reference all of the changes to 
the Federal Program promulgated by EPA from July 2, 1993 through July 
31, 1998, with certain specified modifications, and by prospectively 
incorporating the Federal Program as thereafter amended and 
supplemented. Since the CFR is current through July 1 of the calendar 
year in which it is published, this means that in effect the State 
incorporated by reference the Federal Program as set forth in the July 
1998 version of 40 CFR; incorporated by reference all amendments or 
additions to the Federal Program adopted by EPA from July 2 through 
July 31, 1998, of which there was only one: 63 FR 37780 (7/14/98), 
amending subsection 40 CFR 261.5(j); and prospectively incorporated by 
reference the regulations comprising the Federal Program as 
subsequently amended and supplemented. (The period from July 2, 1993 
through July 31, 1998, shall be referred to below as the ``relevant 
period'').
    Under cover of a letter dated August 22, 2002, the State submitted 
an application meeting the requirements of 40 CFR Part 271, requesting 
final authorization of the State Program revisions made in the Adoption 
with a specified limitation. Thus, in its application, the State 
limited its request for authorization to those of its regulations which 
incorporate by reference the changes to the Federal Program promulgated 
by EPA during the relevant period. Conversely, the State in its 
application is not requesting to be authorized for those of its 
regulations which were adopted by means of prospective incorporation by 
reference of federal regulations promulgated by EPA subsequent to July 
31, 1998. (The revisions to the State Program for which the State has 
requested authorization shall be referred to below as the ``1999 
Program Revisions'').

IV. Decision

A. Authorization of the 1999 Program Revisions and the State Program As 
Revised

    EPA has reviewed the State's application and has determined that 
the 1999 Program Revisions possess the requisite equivalence and 
consistency with the Federal Program. Furthermore, the State's 
application indicates that the State possesses the necessary 
enforcement resources and is prepared to utilize those resources to 
provide adequate enforcement of the State Program as revised. 
Accordingly, EPA has determined that the 1999 Program Revisions qualify 
for authorization and hereby approves and authorizes them.
    As noted above, the Adoption adopts the changes to the Federal 
Program promulgated by EPA during the relevant period, with certain 
specified modifications. These modifications, however, are not 
substantive. Rather, they reflect appropriate substitutions of State 
citations for federal citations, the substitution of State terminology 
for federal terminology where the subject federal terms are not 
replaced globally in the State Program's definitions (7:26G-4.2), the 
exclusion from said definitional section of certain required federal 
terminology, technical corrections to State rules, and the nonadoption 
of federal regulations applicable only to facilities outside the State 
or not otherwise required for authorization. None of these 
nonsubstantive modifications impact the requisite equivalence or 
consistency of the State Program as revised, and therefore, pose no 
obstacle to authorization.
    EPA notes that its determination to authorize the 1999 Program 
Revisions is based on the information submitted to EPA by the State. If 
the criteria upon which EPA bases its approval subsequently change for 
any reason, including without limitation changes in State laws, 
regulations or administrative procedures, or major budgetary changes, 
which negate the equivalency or consistency of one or more provisions 
of the 1999 Program Revisions, or in any way limit the State's ability 
to enforce or properly administer the State Program as revised, EPA may 
revisit its approval. In such event, EPA may exercise its authority, 
provided in 40 CFR 271.22, to afford the State an opportunity to 
correct any program deficiencies, or EPA may withdraw authorization of 
the 1999 Program Revisions, in whole or in part. Furthermore, 
authorization of the 1999 Program Revisions by EPA shall not be deemed 
in any way as a waiver by EPA of any of its statutory rights under RCRA 
including but not limited to sections 3004(v), 3005(c)(3), 3007, 3008, 
3013, 3020(c) and 7003 (42 U.S.C. 6924(v), 6925(c)(3), 6927, 6928, 
6934, 6939b(c) and 6973).

B. Exceptions

    In 1999, when EPA authorized the State Program, it did so with two 
important exceptions. These two exceptions are in no way altered by 
today's action authorizing the 1999 Program Revisions. These two 
exceptions to EPA's authorization of the State Program, as revised, are 
specified below.

[[Page 76997]]

    (1) Corrective Action In its October 1996 adoption, in N.J.A.C. 
7:26G-8.1(a), the State incorporated by reference 40 CFR Part 264 , the 
part of the Federal Program fixing the standards for the owners and 
operators of hazardous waste treatment, storage and disposal 
facilities. In the remaining subparagraphs of 7:26G-8.1 [(b) through 
(h)] the State neither omitted 40 CFR 264.101, 264.552 and 264.553, nor 
adopted these federal regulations with modifications. Thus, in 1996 the 
State adopted 40 CFR 264.101, 264.552 and 264.553 by means of 
incorporation by reference through 7:26G-8.1(a). The above three 
sections of the Federal Program are the sections implementing the 
corrective action provisions of RCRA, which provisions were 
incorporated into RCRA upon the enactment of the Hazardous and Solid 
Waste Amendments of 1984. The State, despite its adoption of 40 CFR 
264.101, 264.552 and 264.553, informed EPA in its 1999 application for 
authorization of the State Program that it was not applying for 
authorization for corrective action at that time, and would apply for 
corrective action authorization under a separate application in the 
future. Accordingly, in its 1999 Federal Register notice authorizing 
the State Program, while EPA authorized N.J.A.C. 7:26G-8.1(a), EPA did 
not authorize the State for corrective action, and stated explicitly 
that 40 CFR 264.101, 264.552 and 264.553 would remain in full force and 
effect, and that until the State is authorized for corrective action, 
EPA would continue to issue corrective action permits within the State. 
(64 FR at 41824, 8/2/99).
    In its current application, the State again has not sought 
authorization for corrective action. Consequently, the State remains 
unauthorized for corrective action; 40 CFR 264.101, 264.552 and 264.553 
remain in full force and effect; and EPA shall continue to issue 
corrective action permits within the State pursuant to federal 
permitting regulations, until the State is authorized for corrective 
action.
    (2) Loss of Interim Status The second exception evolves the 
regulations governing the loss of interim status. In its October 1996 
adoption, in N.J.A.C. 7:26G-12.1(a), the State incorporated by 
reference 40 CFR 270.73(a) and (b). The State, however, did not 
incorporate by reference 40 CFR 270.73(c)-(g). Rather, the State 
replaced these subparagraphs of 40 CFR 270.73 with 7:26G-12.1(c)(16). 
Title 40 CFR 270.73 is the regulation in the Federal Program governing 
the loss of interim status (RCRA section 3005(c)(2)(C) and (e)(2)(3), 
42 U.S.C. 6925(c)(2)(C) and (e)(2)(3)). N.J.A.C. 7:26G-12.1(c)(16) 
provides that the State may terminate interim status at its discretion, 
under a variety of circumstances subject to a hearing, if requested. By 
contrast, the federal loss of interim status regulations, excluded by 
the State and replaced by 7:26G-12.1(c)(16), are non-discretionary and 
operate automatically, without the opportunity for a hearing, if the 
requirements cited in these federal provisions are not met. Since 
7:26G-12.1(c)(16) is discretionary and lacks automatic application, it 
is not equivalent to 40 CFR 270.73(c)-(g), is less stringent than 40 
CFR 270.73(c)-(g), and therefore, could not be authorized. 
Consequently, in its 1999 Federal Register notice authorizing the State 
Program, EPA did not authorize the State for N.J.A.C. 7:26G-
12.1(c)(16), and stated explicitly that 40 CFR 270.73(c)-(g) would 
remain in full force and effect.
    In the 1999 Program Revisions, the State did not alter the 
provisions of N.J.A.C. 7:26G-12.1(c)(16) which previously precluded its 
authorization. Consequently, EPA today is not authorizing the State for 
N.J.A.C. 7:26G-12.1(c)(16), and 40 CFR 270.73(c)-(g) shall remain in 
full force and effect.

V. Administrative Requirements

    The Office of Management and Budget has exempted this action from 
the requirements of Executive Order 12866 (58 FR 51735, October 4, 
1993), and therefore this action is not subject to review by OMB. This 
action authorizes the State's requirements for the purpose of RCRA 3006 
and imposes no additional requirements beyond those imposed by State 
law. Accordingly, I certify that this action will not have a 
significant economic impact on a substantial number of small entities 
under the Regulatory Flexibility Act (5 U.S.C. 601 et seq.). Because 
this action authorizes pre-existing requirements under State law and 
does not impose any additional enforceable duty beyond that required by 
State law, it does not contain any unfunded mandate or significantly or 
uniquely affect small governments, as described in the Unfunded 
Mandates Reform Act of 1995 (Pub. L. 104-4). For the same reason, this 
action does not have tribal implications within the meaning of 
Executive Order 13175 (65 FR 67249, November 9, 2000). It does not have 
substantial direct effects on tribal governments, on the relationship 
between the Federal government and the Indian tribes, as specified in 
Executive Order 13175. This action will not have substantial direct 
effects on the states, on the relationship between the Federal 
government and the states, or on the distribution of power and 
responsibilities among the various levels of government, as specified 
in Executive Order 13132 (64 FR 43255, August 10, 1999), because it 
merely authorizes State requirements as part of the State of New 
Jersey's RCRA hazardous waste program without altering the relationship 
or the distribution of power and responsibilities established by RCRA. 
This action also is not subject to Executive Order 13045 (62 FR 19885, 
April 23, 1997), because it is not economically significant and it does 
not make decisions based on environmental health or safety risks. This 
rule is not subject to Executive Order 13211, ``Actions Concerning 
Regulations That Significantly Affect Energy Supply, Distribution, or 
Use'' (66 FR 28355 (May 22, 2001)) because it is not a significant 
regulatory action under Executive Order 12866.
    Under RCRA 3006(b), EPA grants a state's application for 
authorization as long as such state meets the criteria required by 
RCRA. It would thus be inconsistent with applicable law for EPA, when 
it reviews a state authorization application, to require the use of any 
particular voluntary consensus standard in place of another standard 
that otherwise satisfies the requirements of RCRA. Thus, the 
requirements of section 12(d) of the National Technology Transfer and 
Advancement Act of 1995 (15 U.S.C. 272 note) do not apply. As required 
by section 3 of Executive Order 12988 (61 FR 4729, February 7, 1996), 
in issuing this rule, EPA has taken the necessary steps to eliminate 
drafting errors and ambiguity, minimize potential litigation, and 
provide a clear legal standard for affected conduct. EPA has complied 
with Executive Order 12630 (53 FR 8859, March 15, 1988) by examining 
the takings implications of the rule in accordance with the ``Attorney 
General's Supplemental Guidelines for the Evaluation of Risk and 
Avoidance of Unanticipated Takings'' issued under the executive order. 
This rule does not impose an information collection burden under the 
provisions of the Paperwork Reduction Act of 1995 (44 U.S.C. 3501 et 
seq.).
    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 document and

[[Page 76998]]

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 in the Federal Register. A major rule cannot 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 
action will be effective 60 days after publication of this notice, or 
later, if adverse comment is received.

List of Subjects in 40 CFR Part 271

    Environmental protection, Administrative practice and procedure, 
Confidential business information, Hazardous waste, Hazardous waste 
transportation, Indian lands, Intergovernmental relations, Penalties, 
Reporting and recordkeeping requirements.

    Authority: This rule is issued under the authority of Sections 
2002(a), 3006 and 7004(b) of RCRA, 42 U.S.C. 6912(a), 6926, 6974(b).

    Dated: October 28, 2002.
William J. Muszynski,
Deputy Regional Administrator, Region II.
[FR Doc. 02-31015 Filed 12-13-02; 8:45 am]
BILLING CODE 6560-50-P