[Federal Register Volume 84, Number 36 (Friday, February 22, 2019)]
[Proposed Rules]
[Pages 5650-5654]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2019-03105]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 271

[EPA-R04-RCRA-2019-0768; FRL-9989-92-Region 4]


Florida: Proposed Authorization of State Hazardous Waste 
Management Program Revisions

AGENCY: Environmental Protection Agency (EPA).

ACTION: Proposed rule.

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SUMMARY: Florida has applied to the Environmental Protection Agency 
(EPA) for final authorization of changes to its hazardous waste program 
under the Resource Conservation and Recovery Act (RCRA), as amended. 
EPA has reviewed Florida's application and has determined, subject to 
public comment, that these changes satisfy all requirements needed to 
qualify for final

[[Page 5651]]

authorization. Therefore, we are proposing to authorize the State's 
changes. EPA seeks public comment prior to taking final action.

DATES: Comments must be received on or before March 25, 2019.

ADDRESSES: Submit your comments, identified by Docket ID No. EPA-R04-
RCRA-2019-0768, at https://www.regulations.gov. Follow the online 
instructions for submitting comments. Once submitted, comments cannot 
be edited or removed from www.regulations.gov. EPA may publish any 
comment received to its public docket. Do not submit electronically any 
information you consider to be Confidential Business Information (CBI) 
or other information whose disclosure is restricted by statute. 
Multimedia submissions (audio, video, etc.) must be accompanied by a 
written comment. The written comment is considered the official comment 
and should include discussion of all points you wish to make. EPA will 
generally not consider comments or comment contents located outside of 
the primary submission (i.e., on the web, cloud, or other file sharing 
system). For additional submission methods, the full EPA public comment 
policy, information about CBI or multimedia submissions, and general 
guidance on making effective comments, please visit http://www2.epa.gov/dockets/commenting-epa-dockets.

FOR FURTHER INFORMATION CONTACT: Leah Davis, Materials and Waste 
Management Branch, RCR Division, U.S. Environmental Protection Agency, 
Atlanta Federal Center, 61 Forsyth Street SW, Atlanta, Georgia 30303-
8960; telephone number: (404) 562-8562; fax number: (404) 562-9964; 
email address: [email protected].

SUPPLEMENTARY INFORMATION: 

A. Why are revisions to state programs necessary?

    States that have received final authorization from EPA under RCRA 
section 3006(b), 42 U.S.C. 6926(b), must maintain a hazardous waste 
program that is equivalent to, consistent with, and no less stringent 
than the Federal program. As the Federal program changes, states must 
change their programs and ask EPA to authorize the changes. Changes to 
state programs may be necessary when Federal or state statutory or 
regulatory authority is modified or when certain other changes occur. 
Most commonly, states must change their programs because of changes to 
EPA's regulations in 40 Code of Federal Regulations (CFR) parts 124, 
260 through 268, 270, 273, and 279.
    New Federal requirements and prohibitions imposed by Federal 
regulations that EPA promulgates pursuant to the Hazardous and Solid 
Waste Amendments of 1984 (HSWA) take effect in authorized states at the 
same time that they take effect in unauthorized states. Thus, EPA will 
implement those requirements and prohibitions in Florida, including the 
issuance of new permits implementing those requirements, until the 
State is granted authorization to do so.

B. What decisions has EPA made in this proposed rule?

    Florida submitted a final complete program revision application, 
dated August 31, 2018, seeking authorization of changes to its 
hazardous waste program that correspond to certain Federal rules 
promulgated between July 1, 1991 and June 30, 2017 (including RCRA 
Clusters \1\ II, III, IX, XVIII, XX, XXII, XXIII, XXIV, and XXV). EPA 
concludes that Florida's application to revise its authorized program 
meets all of the statutory and regulatory requirements established 
under RCRA, as set forth in RCRA section 3006(b), 42 U.S.C. 6926(b), 
and 40 CFR part 271. Therefore, EPA proposes to grant Florida final 
authorization to operate its hazardous waste program with the changes 
described in the authorization application, and as outlined below in 
Section F of this document.
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    \1\ A ``cluster'' is a grouping of hazardous waste rules that 
EPA promulgates from July 1st of one year to June 30th of the 
following year.
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    Florida has responsibility for permitting treatment, storage, and 
disposal facilities within its borders (except in Indian country) and 
for carrying out the aspects of the RCRA program described in its 
program revision application, subject to the limitations of HSWA, as 
discussed above.

C. What is the effect of this proposed authorization decision?

    If Florida is authorized for the changes described in Florida's 
authorization application, these changes will become part of the 
authorized State hazardous waste program, and will therefore be 
federally enforceable. Florida will continue to have primary 
enforcement authority and responsibility for its State hazardous waste 
program. EPA would maintain its authorities under RCRA sections 3007, 
3008, 3013, and 7003, including its authority to:
     Conduct inspections, and require monitoring, tests, 
analyses and reports;
     Enforce RCRA requirements, including authorized State 
program requirements, and suspend or revoke permits; and
     Take enforcement actions regardless of whether the State 
has taken its own actions.
    This action will not impose additional requirements on the 
regulated community because the regulations for which EPA is proposing 
to authorize Florida are already effective under State law, and are not 
changed by today's proposed action.

D. What happens if EPA receives comments that oppose this action?

    EPA will evaluate any comments received on this proposed action and 
will make a final decision on approval or disapproval of Florida's 
proposed authorization. Our decision will be published in the Federal 
Register. You may not have another opportunity to comment. If you want 
to comment on this authorization, you must do so at this time.

E. What has Florida previously been authorized for?

    Florida initially received final authorization on January 29, 1985, 
effective February 12, 1985 (50 FR 3908), to implement the RCRA 
hazardous waste management program. EPA granted authorization for 
changes to Florida's program on the following dates: December 1, 1987, 
effective March 3, 1988 (52 FR 45634); December 16, 1988, effective 
January 3, 1989 (53 FR 50529); December 14, 1990, effective February 
12, 1991 (55 FR 51416); February 5, 1992, effective April 6, 1992 (57 
FR 4371); February 7, 1992, effective April 7, 1992 (57 FR 4738); May 
20, 1992, effective July 20, 1992 (57 FR 21351); November 9, 1993, 
effective January 10, 1994 (58 FR 59367); July 11, 1994, effective 
September 9, 1994 (59 FR 35266); April 16, 1994, effective October 17, 
1994 (59 FR 41979); October 26, 1994, effective December 27, 1994 (59 
FR 53753); April 1, 1997, effective June 2, 1997 (62 FR 15407); 
September 18, 2000, effective November 18, 2000 (65 FR 56256); August 
23, 2001, effective October 22, 2001 (66 FR 44307); August 20, 2002, 
effective October 21, 2002 (67 FR 53886 and 67 FR 53889); October 14, 
2004, effective December 13, 2004 (69 FR 60964); August 10, 2007, 
effective October 9, 2007 (72 FR 44973); February 7, 2011, effective 
April 8, 2011 (76 FR 6564); and October 8, 2014, effective December 8, 
2014 (79 FR 60756). The authorized Florida program, through RCRA 
Cluster IV, was incorporated by reference into

[[Page 5652]]

the CFR on January 20, 1998, effective March 23, 1998 (63 FR 2896).

F. What changes are we proposing with today's action?

    Florida submitted a final complete program revision application, 
dated August 31, 2018, seeking authorization of changes to its 
hazardous waste management program in accordance with 40 CFR 271.21. 
This application included changes associated with Checklists \2\ 104, 
107, 178, 218, 222, 223, and 228 through 237. Florida previously 
submitted program revision applications for Checklists 218, 222, 223, 
and 228 through 235. It resubmitted these Checklists with its August 
31, 2018 application in response to EPA comments. EPA proposes to 
determine, subject to receipt of written comments that oppose this 
action, that Florida's hazardous waste program revisions are equivalent 
to, consistent with, and no less stringent than the Federal program, 
and therefore satisfy all of the requirements necessary to qualify for 
final authorization. Therefore, EPA is proposing to authorize Florida 
for the following program changes:
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    \2\ A ``checklist'' is developed by EPA for each Federal rule 
amending the RCRA regulations. The checklists document the changes 
made by each Federal rule and are presented and numbered in 
chronological order by date of promulgation.

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                                 Federal Register
    Description of Federal        Date and Page       Analogous State
          Requirement                                  authority \3\
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Checklist 104, Used Oil Filter  57 FR 21524, 5/20/ F.A.C. 62-730.030(1).
 Exclusion.                      92.
Checklist 107, Used Oil Filter  57 FR 29220, 7/1/  F.A.C. 62-730.030(1).
 Exclusion; Technical            92.
 Correction.
Checklist 178, Petroleum        64 FR 6806, 2/11/  F.A.C. 62-730.030(1).
 Refining Process Wastes;        99.
 Leachate Exemption.
Checklist 218, F019 Exemption   73 FR 31756, 6/4/  F.A.C. 62-730.030(1).
 for Wastewater Treatment        08.
 Sludges from Auto
 Manufacturing Zinc
 Phosphating Processes.
Checklist 222, OECD             75 FR 1236, 1/8/   F.A.C. 62-730.160(1);
 Requirements; Export            10.                62-730.170(1); 62-
 Shipments of Spent Lead-Acid                       730.180(1) and (2);
 Batteries.                                         and 62-730.181(1).
Checklist 223, Hazardous Waste  75 FR 12989, 3/18/ F.A.C. 62-730.020(1);
 Technical Corrections and       10; 75 FR 31716,   62-730.030(1); 62-
 Clarifications.                 6/4/10.            730.160(1); 62-
                                                    730.170(1); 62-
                                                    730.180(1) and (2);
                                                    62-730.181(1); 62-
                                                    730.183; and 62-
                                                    730.220(1).
Checklist 228, Hazardous Waste  77 FR 22229, 4/13/ F.A.C. 62-730.030(1)
 Technical Corrections and       12.                and 62-730.181(1).
 Clarifications.
Checklist 229, Conditional      78 FR 46448, 7/31/ F.A.C. 62-730.020(1)
 Exclusion for Solvent           13.                and 62-730.030(1).
 Contaminated Wipes.
Checklist 230, Conditional      79 FR 350,1/3/14.  F.A.C. 62-730.020(1)
 Exclusion for Carbon Dioxide                       and 62-730.030(1).
 (CO2) Streams in Geologic
 Sequestration Activities.
Checklist 231, Hazardous Waste  79 FR 7518, 2/7/   F.A.C. 62-730.020(1);
 Electronic Manifest Rule.       14.                62-730.160(1); 62-
                                                    730.170(1); and 62-
                                                    730.180(1) and (2).
Checklist 232, Revisions to     79 FR 36220, 6/26/ F.A.C. 62-730.020(1)
 the Export Provisions of the    14.                and 62-730.030(1).
 Cathode Ray Tube Rule.
Checklist 233, Revisions to
 the Definition of Solid Waste
    233A......................  80 FR 1694, 1/13/  F.A.C. 62-730.021.
                                 15..
    233B......................                     F.A.C. 62-730.020(1);
                                                    62-730.021; and 62-
                                                    730.030(1).
    233C......................                     F.A.C. 62-730.030(1).
    233D2.....................                     F.A.C. 62-730.020(1);
                                                    62-730.021; 62-
                                                    730.030(1); and 62-
                                                    730.220.
    233E......................                     F.A.C. 62-730.020(1)
                                                    and 62-730.030(1).
Checklist 234, Response to      80 FR 18777, 4/8/  F.A.C. 62-730.020(1)
 Vacaturs of the Comparable      15.                and 62-730.030(1).
 Fuels Rule and the
 Gasification Rule.
Checklist 235, Disposal of      80 FR 21301, 4/17/ F.A.C. 62-730.030(1).
 Coal Combustion Residuals       15.
 from Electric Utilities.
Checklist 236, Imports and      81 FR 85696, 11/   F.A.C. 62-730.020(1);
 Exports of Hazardous Waste.     28/16; 82 FR       62-730.021; 62-
                                 41015, 8/29/17.    730.030(1); 62-
                                                    730.160(1); 62-
                                                    730.170(1); 62-
                                                    730.180(1) and (2);
                                                    62-730.181(1); and
                                                    62-730.185(1).
Checklist 237, Hazardous Waste  81 FR 85732, 11/   F.A.C. 62-710.210(2);
 Generator Improvements Rule.    28/16.             62-730.020(1); 62-
                                                    730.021; 62-
                                                    730.030(1); 62-
                                                    730.160(1), (3) and
                                                    (4); 62-730.170(1);
                                                    62-730.180(1) and
                                                    (2); 62-730.181(1);
                                                    62-730.183(1); 62-
                                                    730.185(1); and 62-
                                                    730.220(1).
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G. Where are the revised State rules different from the Federal rules?

    When revised state rules differ from the Federal rules in the RCRA 
state authorization process, EPA determines whether the state rules are 
equivalent to, more stringent than, or broader in scope than the 
Federal program. Pursuant to Section 3009 of RCRA, 42 U.S.C. 6929, 
state programs may contain requirements that are more stringent than 
the Federal regulations. Such more stringent requirements can be 
federally authorized and, once authorized, become federally 
enforceable. Although the statute does not prevent states from adopting 
regulations that are broader in scope than the Federal program, states 
cannot receive federal authorization for such regulations, and they are 
not federally enforceable.
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    \3\ The Florida regulatory citations are from the Florida 
Administrative Code (F.A.C.), effective June 18, 2018.
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    EPA has determined that certain regulations included in Florida's 
program revision application are more stringent than the Federal 
program. All of these more stringent requirements will become part of 
the federally enforceable RCRA program in Florida when authorized. 
Florida is more stringent than the Federal program at 40 CFR 262.16 and 
40 CFR 262.17 because F.A.C. 62-730.160(3) requires that generators 
keep written documentation of all inspections required by 40 CFR 262.16 
and 40 CFR 262.17 for at least

[[Page 5653]]

three years from the date of the inspection. Documentation of these 
inspections is not required by the Federal regulations.
    Florida is broader in scope than the Federal program in its 
adoption of 40 CFR 260.43 (2017) at F.A.C. 62-730.021, and 40 CFR 
261.4(a)(24) (2017) at F.A.C. 62-730.030(1). Both of these regulations 
include provisions from the 2015 Revisions to the Definition of Solid 
Waste (DSW) Rule that have been vacated and replaced with the less 
stringent requirements of 40 CFR 260.43 (2008) and 40 CFR 261.4(a)(24) 
and (25) (2008) from the 2008 DSW Rule (see 83 FR 24664, May 30, 2018). 
Broader-in-scope requirements are not part of the authorized program 
and EPA cannot enforce them. Although regulated entities must comply 
with these requirements in accordance with State law, they are not RCRA 
requirements.
    States cannot receive authorization for certain Federal regulatory 
functions included in the regulations associated with the Hazardous 
Waste Electronic Manifest Rule (Checklist 231). Although Florida has 
adopted these regulations to maintain its equivalency with the Federal 
program, it has appropriately maintained the Federal references (see 
F.A.C. 62-730.020(3)(b)(1)).
    States also cannot receive authorization for certain Federal 
regulatory functions included in the regulations involving 
international shipments (i.e., import and export provisions) associated 
with the OECD Requirements for Export Shipments of Spent Lead-Acid 
Batteries (Checklist 222), the Revisions to the Export Provisions of 
the Cathode Ray Tube Rule (Checklist 232), and the Imports and Exports 
of Hazardous Waste Rule (Checklist 236). Although Florida has adopted 
these regulations to maintain its equivalency with the Federal program, 
it has appropriately maintained the Federal references (see F.A.C. 62-
730.020(3)(b)(1)).

H. Who handles permits after the final authorization takes effect?

    When final authorization takes effect, Florida will issue permits 
for all the provisions for which it is authorized and will administer 
the permits it issues. EPA will continue to administer any RCRA 
hazardous waste permits or portions of permits that EPA issued prior to 
the effective date of authorization until they expire or are 
terminated. EPA will not issue any new permits or new portions of 
permits for the provisions listed in the table above after the 
effective date of the final authorization. EPA will continue to 
implement and issue permits for HSWA requirements for which Florida is 
not yet authorized. EPA has the authority to enforce State-issued 
permits after the State is authorized.

I. How does today's proposed action affect Indian country (18 U.S.C. 
1151) in Florida?

    Florida is not authorized to carry out its hazardous waste program 
in Indian country within the State, which includes the Indian lands 
associated with the Miccosukee Tribe of Indians of Florida and The 
Seminole Tribe of Florida. Therefore, this proposed action has no 
effect on Indian country. EPA retains jurisdiction over Indian country 
and will continue to implement and administer the RCRA program on these 
lands.

J. What is codification and will EPA codify Florida's hazardous waste 
program as proposed in this rule?

    Codification is the process of placing citations and references to 
the State's statutes and regulations that comprise the State's 
authorized hazardous waste program into the Code of Federal 
Regulations. EPA does this by adding those citations and references to 
the authorized State rules in 40 CFR part 272. EPA is not proposing to 
codify the authorization of Florida's changes at this time. However, 
EPA reserves the ability to amend 40 CFR part 272, subpart K for the 
authorization of Florida's program changes at a later date.

K. Statutory and Executive Order Reviews

    The Office of Management and Budget (OMB) has exempted this action 
from the requirements of Executive Order 12866 (58 FR 51735, October 4, 
1993) and 13563 (76 FR 3821, January 21, 2011). This action proposes to 
authorize State requirements for the purpose of RCRA section 3006 and 
imposes no additional requirements beyond those imposed by State law. 
Therefore, this action is not subject to review by OMB. This action is 
not an Executive Order 13771 (82 FR 9339, February 3, 2017) regulatory 
action because actions such as today's proposed authorization of 
Florida's revised hazardous waste program under RCRA are exempted under 
Executive Order 12866. 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 proposes to authorize 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 (2 U.S.C. 1531-
1538). For the same reason, this action also does not significantly or 
uniquely affect the communities of tribal governments, as specified by 
Executive Order 13175 (65 FR 67249, November 9, 2000). This action will 
not have substantial direct effects on the states, on the relationship 
between the national 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 proposes to authorize State requirements as part of 
the State 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 action 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 section 3006(b), EPA grants a state's application for 
authorization as long as the 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 proposing 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 this action in accordance with the 
``Attorney General's Supplemental Guidelines for the Evaluation of Risk 
and Avoidance of Unanticipated Takings'' issued under the executive

[[Page 5654]]

order. This action does not impose an information collection burden 
under the provisions of the Paperwork Reduction Act of 1995 (44 U.S.C. 
3501 et seq.). ``Burden'' is defined at 5 CFR 1320.3(b). Executive 
Order 12898 (59 FR 7629, February 16, 1994) establishes federal 
executive policy on environmental justice. Its main provision directs 
federal agencies, to the greatest extent practicable and permitted by 
law, to make environmental justice part of their mission by identifying 
and addressing, as appropriate, disproportionately high and adverse 
human health or environmental effects of their programs, policies, and 
activities on minority populations and low-income populations in the 
United States. Because this action proposes authorization of pre-
existing State rules which are at least equivalent to, and no less 
stringent than existing Federal requirements, and imposes no additional 
requirements beyond those imposed by State law, and there are no 
anticipated significant adverse human health or environmental effects, 
this proposed rule is not subject to Executive Order 12898.

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 action is issued under the authority of sections 
2002(a), 3006, and 7004(b) of the Solid Waste Disposal Act as 
amended, 42 U.S.C. 6912(a), 6926, and 6974(b).

    Dated: December 21, 2018.
Mary S. Walker,
Acting Regional Administrator, Region 4.
[FR Doc. 2019-03105 Filed 2-21-19; 8:45 am]
 BILLING CODE 6560-50-P