Hazardous and Solid Waste Management System: Disposal of Coal Combustion Residuals From Electric Utilities; Federal CCR Permit Program, 9940-9987 [2019-28440]

Download as PDF 9940 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules ENVIRONMENTAL PROTECTION AGENCY 40 CFR Parts 22, 124, and 257 [EPA–HQ–OLEM–2019–0361; FRL–10003– 82–OLEM] RIN 2050–AH07 Hazardous and Solid Waste Management System: Disposal of Coal Combustion Residuals From Electric Utilities; Federal CCR Permit Program Environmental Protection Agency (EPA). ACTION: Proposed rule. AGENCY: In December 2016, Congress passed, and the President signed the Water Infrastructure Improvements for the Nation (WIIN) Act, amending section 4005 of the Resource Conservation and Recovery Act (RCRA). The WIIN Act, among other things, requires the Environmental Protection Agency (EPA or the Agency) to implement a federal coal combustion residuals (CCR) permit program in Indian country and, subject to the availability of appropriations specifically provided to carry out a program, to implement a federal CCR permit program in nonparticipating states. The Fiscal Year 2018 and 2019 Omnibus Appropriations Acts provided appropriations to EPA to develop and implement a federal permit program for the regulation of CCR in nonparticipating states. In this action, the Agency is proposing to establish a federal CCR permit program in accordance with the requirements of the WIIN Act. DATES: Comments. Comments must be received on or before April 20, 2020. Public Hearing: The EPA will hold a virtual public hearing on April 15, 2020. ADDRESSES: The EPA has established a docket for this action under Docket ID No. EPA–HQ–OLEM–2019–0361. The EPA has previously established a docket for the April 17, 2015, CCR final rule under Docket ID No. EPA–HQ–RCRA– 2009–0640. All documents in the docket are listed in the https:// www.regulations.gov index. Publicly available docket materials are available either electronically at https:// www.regulations.gov or in hard copy at the EPA Docket Center. The Public Reading Room is open from 8:30 a.m. to 4:30 p.m., Monday through Friday, excluding holidays. The telephone number for the Public Reading Room is (202) 566–1744, and the telephone number for the EPA Docket Center is (202) 566–1742. You may send comments, identified by Docket ID No. lotter on DSKBCFDHB2PROD with PROPOSALS2 SUMMARY: VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 EPA–HQ–OLEM–2019–0361, by any of the following methods: • Federal eRulemaking Portal: https://www.regulations.gov/ (our preferred method). Follow the online instructions for submitting comments. • Mail: U.S. Environmental Protection Agency, EPA Docket Center, Office of Land and Emergency Management Docket, Mail Code 28221T, 1200 Pennsylvania Avenue NW, Washington, DC 20460. • Hand Delivery/Courier: EPA Docket Center, WJC West Building, Room 3334, 1301 Constitution Avenue NW, Washington, DC 20004. The Docket Center’s hours of operations are 8:30 a.m.–4:30 p.m., Monday–Friday (except Federal Holidays). Instructions: All submissions received must include the Docket ID No. for this rulemaking. Comments received may be posted without change to https:// www.regulations.gov/, including any personal information provided. For detailed instructions on sending comments and additional information on the rulemaking process, see the ‘‘Public Participation’’ heading of the SUPPLEMENTARY INFORMATION section of this document. A virtual hearing will be held. The hearing will convene on April 15, 2020, at 9:00 a.m. (Eastern time zone) and will conclude at 6:00 p.m. (Eastern time zone). Please note that any details and updates made to any aspect of the hearing will be posted online at EPA’s CCR website (https://www.epa.gov/ coalash). While the EPA expects the hearing to go forward as set forth above, please monitor our website or contact the person listed in the FOR FURTHER INFORMATION CONTACT section to determine if there are any updates. See Section I.B. below for more details regarding the virtual hearing. FOR FURTHER INFORMATION CONTACT: If you have questions on the proposed requirements of the federal CCR permit program, contact Stacey Yonce, Office of Resource Conservation and Recovery, Environmental Protection Agency, 5304P, Washington, DC 20460; telephone number: (703) 308–8476; email address: yonce.stacey@epa.gov. For more information on this rulemaking please visit https:// www.epa.gov/coalash. SUPPLEMENTARY INFORMATION: Table of Contents I. Public Participation A. Written Comments B. Participation in Public Hearing II. General Information A. Does this action apply to me? B. What action is the Agency taking? PO 00000 Frm 00002 Fmt 4701 Sfmt 4702 C. What is the Agency’s authority for taking this action? D. What are the incremental costs and benefits of this action? III. Background A. CCR Regulatory Overview B. Water Infrastructure Improvements for the Nation Act C. Approach To Developing This Proposal D. Other EPA Permit Programs 1. RCRA Hazardous Waste Permitting 2. CAA Title V Permitting 3. SDWA UIC Permitting 4. CWA NPDES Permitting IV. What is EPA proposing? A. Part 22 Amendments B. Proposal To Use the Part 124 Procedures for Decision-Making for Individual CCR Permits C. Addition of Part 257 Subpart E 1. General Information a. Program Overview b. Definitions c. Considerations Under Federal Law d. Applicability e. Deadlines for Application Submissions f. Effect of a Permit g. Duration of a Permit h. General Permit Provisions i. Permit by Rule j. Transfer of Permit Program Administration 2. Permit Applications a. Permit Application Requirements b. Permit Application Contents c. Periodic Review of Permit Applications d. Permit Denial 3. Permit Content a. Standard Conditions in All Permits b. Establishment of Permit Conditions c. Schedule of Compliance 4. Changes to a Permit a. Modification or Revocation and Reissuance of an Individual Permit at EPA’s Initiative b. Permit Modifications at the Request of the Permittee c. Application To Modify a Permit d. Termination of a Permit V. Electronic Permitting VI. The Projected Economic Impacts of This Action VII. Statutory and Executive Orders Reviews Regulatory Text I. Public Participation A. Written Comments Submit your comments, identified by Docket ID No. EPA–HQ–OLEM–2019– 0361, at https://www.regulations.gov (our preferred method), or the other methods identified in the ADDRESSES section. Once submitted, comments cannot be edited or removed from the docket. The 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 E:\FR\FM\20FEP2.SGM 20FEP2 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules lotter on DSKBCFDHB2PROD with PROPOSALS2 official comment and should include discussion of all points you wish to make. The 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 https://www.epa.gov/dockets/ commenting-epa-dockets. B. Participation in Public Hearing EPA will begin pre-registering speakers for the hearing upon publication of this document in the Federal Register. To register to speak at the hearing, please use the online registration form available at EPA’s CCR website (https://www.epa.gov/coalash) or contact Michelle Long, Office of Resource Conservation and Recovery, Environmental Protection Agency, 5304P, Washington, DC 20460; telephone number: (703) 347–8953; email address: long.michelle@epa.gov to register to speak at the hearing. The last day to pre-register to speak at the hearing will be April 13, 2020. On April 14, 2020, the EPA will post a general agenda for the hearing at EPA’s CCR website (https://www.epa.gov/coalash). EPA will make every effort to follow the schedule as closely as possible on the day of the hearing; however, please plan for the hearings to run either ahead of schedule or behind schedule. Additionally, requests to speak will be taken the day of the hearing at the hearing registration desk. The EPA will make every effort to accommodate all speakers who arrive and register, although preferences on speaking times may not be able to be fulfilled. Each commenter will have 5 minutes to provide oral testimony. The EPA encourages commenters to provide the EPA with a copy of their oral testimony electronically (via email) or in hard copy form. The EPA encourages commenters to provide the EPA with a copy of their oral testimony electronically (via email) or in hard copy form. If EPA is anticipating a high attendance, the time allotment per testimony may be shortened to no shorter than 3 minutes to accommodate all those wishing to provide testimony and have pre-registered. All comments and materials received at the public hearing will be placed in the docket for this rule, as well as a transcript from this hearing. The EPA may ask clarifying questions during the oral presentations but will not respond to the presentations at that VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 time. Written statements and supporting information submitted during the comment period will be considered with the same weight as oral comments and supporting information presented at the public hearing. Verbatim transcripts of the hearings and written statements will be included in the docket for the rulemaking. Please note that any updates made to any aspect of the hearing is posted online EPA’s CCR website (https:// www.epa.gov/coalash). While the EPA expects the hearing to go forward as set forth above, please monitor our website or contact the person listed in the FOR FURTHER INFORMATION CONTACT section to determine if there are any updates. The EPA does not intend to publish a document in the Federal Register announcing updates. If you require the service of a translator please pre-register for the hearing and describe your needs by April 1, 2020. If you require special accommodations such as audio description or closed captioning, please pre-register for the hearing and describe your needs by April 8, 2020. We may not be able to arrange accommodations without advanced notice. Commenters should notify the person listed in the FOR FURTHER INFORMATION CONTACT section and indicate on the registration form of any such needs when they preregister to speak. II. General Information A. Does this action apply to me? This rule applies to all facilities in Indian country 1 and in nonparticipating states subject to requirements of 40 CFR part 257 subpart D (‘‘subpart D’’). This generally includes electric utilities and independent power producers generating coal combustion residuals (CCR) that fall within the North American Industry Classification System (NAICS) code 221112. The term ‘‘nonparticipating state’’ is defined in the Water Infrastructure Improvements for the Nation (WIIN) Act and excludes states that have approved CCR programs where the approval has not been withdrawn, or who have submitted evidence of a state CCR program to EPA and approval is pending. This 1 Indian Country is defined at 18 U.S.C. 1151: (a) All land within the limits of any Indian reservation under the jurisdiction of the United States Government, notwithstanding the issuance of any patent, and, including rights-of-way running through the reservation, (b) all dependent Indian communities within the borders of the United States whether within the original or subsequently acquired territory thereof, and whether within or without the limits of a state, and (c) all Indian allotments, the Indian titles to which have not been extinguished, including rights-of-way running through the same. PO 00000 Frm 00003 Fmt 4701 Sfmt 4702 9941 discussion is not intended to be exhaustive, but rather provides a guide for readers regarding entities likely to be regulated by this action. This discussion lists the types of entities that EPA is now aware could potentially be regulated by this action. To determine whether your entity is regulated by this action, you should carefully examine the applicability criteria found in § 257.123 of this proposal, as well as § 257.50 of title 40 of the Code of Federal Regulations. If you have questions regarding the applicability of this action to a particular entity, consult the person listed in the FOR FURTHER INFORMATION CONTACT section. B. What action is the Agency taking? EPA is proposing to establish a federal CCR permit program in Indian country and in nonparticipating states. EPA is proposing to establish requirements and procedures to issue federal permits for disposal and other solid waste management of CCR in 40 CFR part 257 subpart E. The proposed permit requirements in subpart E include definitions, compliance deadlines, application requirements, content and duration, and modification requirements and procedures. EPA is also proposing to rely on the general administrative procedures applicable to several EPA permit programs. These procedures, which are found in 40 CFR parts 22 and 124, apply to all other RCRA permits, as well as to certain EPA permits issued under the Clean Water Act (CWA), the Safe Drinking Water Act (SDWA), and the Clean Air Act (CAA). EPA is proposing to rely on these general procedures without substantive modification and is proposing only to modify provisions in parts 22 and 124 to the extent necessary to ensure they apply to the federal CCR permit program. All the substantive and technical requirements currently applicable to CCR units would remain in 40 CFR part 257 subpart D. EPA is not proposing to amend or otherwise reopen any of the provisions in 40 CFR part 257 subpart D through this rulemaking. EPA will not respond to any comments that suggest revisions, or that otherwise raise issues with respect to the technical requirements, and such comments will not be considered as part of the administrative record for this rulemaking. However, this is not intended to prevent commenters from identifying any inconsistencies between the existing regulations and the proposals in this notice. E:\FR\FM\20FEP2.SGM 20FEP2 9942 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules C. What is the Agency’s authority for taking this action? These regulations are established under the authority of sections 1008(a), 2002(a), 4004, and 4005(a) and (d) of the Solid Waste Disposal Act of 1970, as amended, RCRA, as amended by the Hazardous and Solid Waste Amendments of 1984 (HSWA) and the WIIN Act of 2016, 42 U.S.C. 6907(a), 6912(a), 6944, and 6945(a) and (d). D. What are the incremental costs and benefits of this action? This action is expected to result in annualized net costs amounting to between $0.09 million and $0.85 million per year when discounting at 7%. Further information on the economic effects of this action can be found in Unit VI of this preamble. lotter on DSKBCFDHB2PROD with PROPOSALS2 III. Background A. CCR Regulatory Overview In 2015, EPA published minimum criteria for CCR disposal and management as solid waste under subtitle D of RCRA titled, ‘‘Hazardous and Solid Waste Management System; Disposal of Coal Combustion Residuals from Electric Utilities,’’ (80 FR 21302, April 17, 2015). The rule established national minimum criteria for existing and new CCR landfills and existing and new CCR surface impoundments (‘‘CCR units’’) and all lateral expansions of CCR units, as codified subpart D.2 The criteria consist of location restrictions, design and operating criteria, groundwater monitoring and corrective action requirements, closure and postclosure care requirements, and recordkeeping, notification and internet posting requirements. Subpart D also requires that CCR units failing to meet certain criteria in the rule stop receiving waste and retrofit or close, in some circumstances. Subtitle D of RCRA generally establishes a framework for federal, state, and local government cooperation in controlling the management of nonhazardous solid waste. Within this framework, the federal role has typically been to establish the overall regulatory direction, by providing minimum nationwide standards that will protect human health and the environment, and to provide technical assistance to states for planning and developing their own programs. Implementation or enforcement of federal criteria established under RCRA subtitle D, however, remained primarily a state and 2 Unless otherwise specified, all references to parts 2, 22, 71, 122, 124, 144, and 257 in this preamble are to Title 40 of the Code of Federal Regulations (CFR). VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 local function outside of Indian country. In Indian country, tribes can develop a subtitle D program under their own authorities. The requirements established in subpart D were designed to be selfimplementing, because states were not required to develop their own CCR programs and because EPA, at that time, had no role in direct implementation or enforcement authority. In subpart D, EPA developed regulatory requirements, with which facilities could comply without the need to interact with a regulatory authority. The protectiveness of the technical requirements was strengthened through additional requirements, such as certifications of compliance by a qualified professional engineer, state and public notifications, and required posting of relevant compliance information on a publicly accessible website maintained by the facility. Since subpart D was finalized, litigation and subsequent rulemakings have resulted in changes to its requirements. Some of those changes have been finalized 3 and others are still pending. B. Water Infrastructure Improvements for the Nation Act In December 2016, the WIIN Act was passed by Congress and signed by the President. The WIIN Act amended RCRA section 4005, creating a new subsection (d). It provided authority for EPA to review and approve programs submitted by states to permit CCR units, which would then operate in lieu of the federal requirements. 42 U.S.C. 6945(d)(1)(A). The WIIN Act requires EPA to implement a federal permit program in Indian country and nonparticipating states, that will require each CCR unit to achieve compliance with applicable criteria established in subpart D, or in successor regulations promulgated pursuant to sections 1008(a)(3) and 4004(a). 42 U.S.C. 6945(d)(2)(B), (5). In the case of nonparticipating states, this requirement is subject to the availability of appropriations specifically provided to carry out this requirement. 42 U.S.C. 6945(d)(2)(B). In fiscal years 2018 and 2019, Congress provided appropriations to EPA for the purpose of developing and implementing a federal permit program for the regulation of CCR under section 2301 of the WIIN Act. Public Law 115–141 and 116–6. The WIIN Act defines ‘‘nonparticipating state’’ as a state (1) 3 Partial vacatur ordered by the United States Court of Appeals for the District of Columbia Circuit (D.C. Circuit) on June 14, 2016, and August 21, 2018, known as the USWAG decision. PO 00000 Frm 00004 Fmt 4701 Sfmt 4702 without an approved CCR program, (2) which has not submitted evidence of a CCR program for approval, (3) which has provided notice of intent to relinquish approval of a CCR program, or (4) for which EPA has withdrawn previously granted approval of a CCR program. 42 U.S.C. 6945(d)(2)(A). The WIIN Act does not provide detailed requirements for a federal CCR permitting program and delegated significant discretion to EPA to craft a federal permitting approach appropriate to implement subpart D. The WIIN Act expressly provides that facilities are to continue to comply with applicable provisions of subpart D until a permit (issued either by an approved state or by EPA) is in effect. 42 U.S.C. 6945(d)(3), (6). The legislation also authorized EPA to use information gathering and enforcement authorities in RCRA Sections 3007 and 3008 to enforce subpart D or permit provisions, in nonparticipating and in states with approved CCR programs, subject to certain conditions. 42 U.S.C. 6945(d)(4). States may submit a program to EPA for approval and, once the state program is approved, permits or other prior approvals 4 issued pursuant to the approved state permit program operate in lieu of the federal requirements. 42 U.S.C. 6945(d)(1)(A). To be approved, a state program must require each CCR unit to achieve compliance with subpart D (or successor regulations) or alternative State criteria that EPA determines are ‘‘at least as protective as’’ subpart D (or successor regulations). State permitting programs may be approved in whole or in part. 42 U.S.C. 6945(d)(1)(B). C. Approach To Developing This Proposal The WIIN Act requires the Administrator to ‘‘implement a permit program,’’ to require compliance with criteria established by regulation under RCRA sections 1008(a)(3) and 4004(a), but otherwise provides few requirements on the content of the permit program and no direction on the specific procedures to be used to implement the program. This is different than, for example, section 3005 of RCRA and sections 402 and 404 of the CWA, each of which provide greater specificity. The WIIN Act authorized the use of subtitle C enforcement authorities in sections 3007 and 3008 of RCRA to 4 See 42 U.S.C. 6945(d)(1)(A), ‘‘Each State may submit to the Administrator, in such form as the Administrator may establish, evidence of a permit program or other system of prior approval and conditions under State law . . .’’ E:\FR\FM\20FEP2.SGM 20FEP2 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules enforce the established criteria as well as federal CCR permits. However, Congress did not expressly reference the permitting provisions in subtitle C, strongly suggesting that Congress did not preclude EPA from considering regulatory approaches of other permit programs as well. In the absence of more explicit Congressional direction, EPA has chosen to rely on its collective experience implementing the existing regulations under the various permit programs across the Agency to develop this proposal. As discussed below, EPA has incorporated elements from permit programs established under the CWA, RCRA, SDWA, or CAA, where the elements seemed well-suited to implement the requirements in subpart D or to particular circumstances associated with CCR units. Finally, several elements are common across EPA permit programs; EPA considers that these common elements also fall squarely within the parameters of what Congress considered to be ‘‘a permit program.’’ lotter on DSKBCFDHB2PROD with PROPOSALS2 D. Other EPA Permit Programs The Agency has experience implementing and overseeing federal environmental permitting programs.5 EPA has modeled many of these proposals on provisions in environmental permit programs developed under other statutory authorities. In developing this proposal, EPA considered experience gained in the RCRA Subtitle C hazardous waste permitting program, CAA Title V permitting program, SDWA Underground Injection Control (UIC) permitting for Class VI wells, and CWA National Pollutant Discharge Elimination System (NPDES) permitting. EPA identified a variety of approaches, considering best practices and lessons learned, that have been incorporated into this proposed federal CCR permitting program, which is streamlined, efficient, and effective at 5 The hazardous waste permitting regulations were initially published in 1980 in the Consolidated Permit Regulations, (45 FR 33290, May 19, 1980) along with regulations for SDWA Underground Injection Control, CWA National Pollutant Discharge Elimination System (NPDES), CWA Section 404 Dredge or Fill Programs, and CAA Prevention of Significant Deterioration permits. On April 1, 1983, EPA published the Environmental Permit Regulations: RCRA Hazardous Waste; SDWA Underground Injection Control; CWA National Pollutant Discharge Elimination System; CWA Section 404 Dredge or Fill Programs, and CAA Prevention of Significant Deterioration in the Federal Register (48 FR 14146, April 1, 1983). These regulations deconsolidated the Consolidated Permit Regulations but did not make any substantive changes to any of the affected sections. The relevant sections to this proposed rule are the creation of parts 124 and 270. VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 requiring each CCR unit to achieve compliance with the requirements of subpart D. 1. RCRA Hazardous Waste Permitting EPA relied on provisions in the hazardous waste permitting program, codified at part 270, in a number of different ways in developing this proposal. First, in select instances in which the part 270 requirements were equally relevant or applicable to CCR facilities, EPA is proposing to adopt the provision nearly verbatim. This includes the proposed provisions at § 257.122, which were taken directly from § 270.3. These provisions list federal laws, such as the Endangered Species Act, that may apply to any EPAissued permit under RCRA. Similarly, many of the standard permit terms and conditions proposed in § 257.140 are found in § 270.30. More commonly, EPA modeled its proposals on aspects or particular wording of part 270 that seemed wellsuited to the current circumstance, with modifications to address differences in statutory authority or in the nature of the CCR units or facilities. Modifications were generally considered appropriate where the part 270 regulations reflect statutory provisions applicable exclusively to permitted hazardous waste facilities; the most significant of these for purposes of part 257 are ‘‘facility-wide’’ corrective action under sections 3004(u) and (v), the land disposal restrictions (LDRs) in sections 3004(d), (m) and 3005(j), and the 10-year permit term in section 3005(c)(3). Because there are no analogous requirements in RCRA section 4005(d) or in part 257, EPA is not proposing to include any provisions in part 270 designed to implement those requirements. For example, § 257.125 largely mirrors § 270.4, but omits the exceptions in § 270.4(a)(i) through (iii) that reflect the LDR requirements, the provision in § 3006(c)(4), and particular ‘‘interim status’’ requirements. Similarly, EPA relied heavily on § 270.1 in drafting the proposals in §§ 257.120 and 257.122 that would establish the basic parameters of the CCR permit program. Modifications were also considered appropriate to reflect the more homogenous nature of CCR facilities. In comparison to many hazardous waste management facilities, CCR facilities handle fewer types of waste with a limited range of constituents, and typically involve a more limited range of waste management activities. One example of this is the permit modification proposals. Reflecting the more limited range of activities, EPA is PO 00000 Frm 00005 Fmt 4701 Sfmt 4702 9943 proposing to establish two categories of permit modifications along with two sets of streamlined procedures that permittees are to use to request modifications, rather than the three classes of permit modifications under part 270. In essence, EPA modeled its proposals for major and minor modifications largely on class I and class III procedures under § 270.42. However, many of the elements of § 270.42 were retained: For example, EPA is proposing that CCR permittees would have a duty to report all relevant changes in the physical facility, and all other changes that may result in noncompliance. EPA is also proposing to establish a non-exclusive list of specific modifications as major or minor. In yet other cases, EPA simply modeled the general approach in this proposed rule after an approach in part 270. For example, EPA is proposing to use a permit by rule approach for new CCR landfills (including lateral expansions of a CCR landfill) in § 257.128; this is modeled after the permit by rule provisions found in § 270.60. Although all of the requirements differ, the permit by rule is employed in both cases as an approach to meet the requirement to have a permit for a regulated unit or facility that does not require any sitespecific operational flexibility and can comply with underlying requirements without site-specific tailoring. Similarly, in § 257.124, EPA is proposing tiered deadlines for the submittal of permit applications by classes of facilities, which is one of the general elements in the comparable provisions in § 270.10(e). All told, EPA relied on part 270 to some extent in developing the following sections in this proposal: §§ 257.120, 257.122–257.125, 257.128, 257.133, 257.140, 257.141, and 257.150–257.153. 2. CAA Title V Permitting In the development of this rulemaking, EPA also examined the federal CAA Title V (40 CFR part 71) permitting provisions to identify permitting approaches that may be appropriate for federal CCR permits. Although statutory authorities for enforcement are different in RCRA and the CAA, fundamental enforcement activities, such as information gathering and gaining access for facility inspections, are similar in all environmental programs. Some standard permit conditions EPA is proposing in § 257.140 are reflected in standard conditions required in § 71.6. EPA also considered the permit modification procedures found in Title E:\FR\FM\20FEP2.SGM 20FEP2 9944 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules lotter on DSKBCFDHB2PROD with PROPOSALS2 V. The part 71 regulations establish three categories of permit modifications: Administrative permit amendments, minor modifications, and major modifications. Administrative permit amendments in § 71.7(d) are those needed to accommodate changes that would otherwise violate terms and conditions of the permit. These include typographical errors, change in information of any person identified in the permit, an increase in monitoring or reporting frequency, change in ownership, and a few other administrative changes. Minor permit modifications in § 71.7(e)(1) do not violate any applicable requirement; are not significant changes to monitoring, reporting, or recordkeeping requirements in the permit; do not require a case-by-case determination for the permit, and do not establish or change a permit term or condition for which there is no corresponding underlying applicable requirement. To obtain a minor permit modification, the permittee must submit an application for a permit modification, which describes the change and any applicable requirements that may change, as well as submit forms to notify affected states and certification from a responsible official. Minor modifications do not require public participation under the part 71 regulations. In turn, the permitting authority can either issue the permit modification as proposed, deny the permit modification application, determine the requested modification does not meet minor permit modification criteria and should be reviewed, or revise the draft permit modification. All changes that are not minor modifications qualify as major modifications under the part 71 regulations. Major modifications include changes to monitoring permit terms or conditions and relaxation of reporting or recordkeeping permit terms and conditions. Major modifications follow procedures such as: Applications, public participation, review by affected states, and review by EPA. The Agency relied on some of these requirements and procedures to develop its proposals for modifications to RCRA CCR permits. 3. SDWA UIC Permitting In the part 144 regulations for SDWA UIC permits, § 144.36, Class VI wells are issued permits for the operating life of the facility and the post-injection site care period. Similar to this provision, EPA is proposing to issue federal RCRA CCR permits without an expiration date and to require the permit be maintained through the active life of the CCR unit, VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 during the post-closure care period, and until any required corrective action is completed. This approach ensures permit coverage for as long as the permittee is subject to the substantive, underlying requirements. Other provisions in the part 144 regulations are also reflected in this proposal. Causes for modification in the UIC program include alterations, information, and new regulations, which are all proposed as causes to modify a RCRA CCR permit. If cause exists, in the UIC program, the Director must determine if the change meets the minor modification criteria in § 144.41, or if it is outside the scope of those criteria and is considered major. Another example of similarity between the UIC permit program and this proposal is that minor modifications do not require a draft permit or public review, but major modifications must follow procedures in part 124. 4. CWA NPDES Permitting Additionally, EPA reviewed the part 122 regulations for CWA NPDES permits, particularly for information and processes for issuing general permits. In the NPDES program, individual or general permits may be issued. An individual permit is written to reflect site-specific conditions of a single discharger based on information submitted by that discharger in a permit application and is unique to that discharger. An NPDES general permit is issued to a category of facilities with similar operations, but no one in particular. Multiple dischargers may obtain coverage under that general permit after it is issued, consistent with the permit eligibility and authorization provisions. This is similar to the approach proposed in § 257.127 for the federal CCR program to establish procedures to issue general permits. The benefits of CCR general permits are expected to be similar to the benefits of NPDES general permits, resulting in clarity and efficiency. CCR general permit applicants would know their permit requirements before applying for coverage under that permit. Furthermore, obtaining coverage under a general permit is expected to be quicker than for an individual permit, with coverage under a general permit occurring within 45 days. General permits would allow the Agency to provide timely permit coverage for a potentially large number of similar CCR units subject to the same requirements of subpart D. IV. What is EPA proposing? EPA is proposing to create a new subpart E in part 257, which would PO 00000 Frm 00006 Fmt 4701 Sfmt 4702 establish the general requirements and many of the procedures that EPA would use to issue federal CCR permits. As discussed in more detail throughout this preamble, many of the proposals are similar to EPA’s existing regulations in part 270, which establish the general requirements applicable to RCRA hazardous waste permits. EPA has also modeled some of its proposals on regulations in environmental permit programs developed under other statutory authorities, such as the CWA NPDES, SDWA UIC, and CAA Title V programs. EPA is also proposing to rely on the general, administrative procedures applicable to EPA environmental permit programs found in parts 22 and 124 without substantive modification. These procedures apply to RCRA hazardous waste permits, as well as to EPA permits issued under other statutory authorities. EPA is proposing only to modify those provisions in parts 22 and 124 to the extent necessary to ensure they apply to the federal CCR permit program. With the exception identified in Unit IV.C.3.b of this preamble, EPA is not proposing to amend or otherwise reopen any of the requirements applicable to CCR units in subpart D. EPA will not respond to any comments that suggest revisions, or that otherwise raise issues with respect to subpart D requirements, and such comments will not be considered as part of the administrative record for this rulemaking. However, this is not intended to prevent commenters from identifying any inconsistencies between the existing regulations and the proposals in this notice. A. Part 22 Amendments 40 CFR part 22 contains the Consolidated Rules of Practice. These are procedural rules for the administrative assessment of civil penalties, issuance of compliance or corrective action orders, and the revocation, termination or suspension of permits, under most environmental statutes. In this action, EPA is proposing to amend only the provision in part 22 related to termination of a permit. In § 124.5(d)(2), there is a reference to ‘‘. . . Such termination of NPDES and RCRA permits shall be subject to the procedures of part 22 of this chapter.’’ EPA is proposing a Termination of a Permit provision in part 257 and is proposing to amend § 22.44 to add a reference to § 257.153 into the regulatory text. E:\FR\FM\20FEP2.SGM 20FEP2 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules B. Proposal To Use the Part 124 Procedures for Decision-Making for Individual CCR Permits Part 124 establishes the procedural requirements for issuing, modifying, revoking and reissuing, denying, and terminating EPA-issued permits under several federal programs, including under RCRA for hazardous waste management facilities. Part 124 also establishes procedures applicable to certain state-administered permit programs. This Unit of the preamble first describes generally how part 124 works and then presents the Agency’s proposal to follow the decision-making procedures in part 124, subpart A, when issuing individual federal CCR permits under part 257, subpart E. This overview is presented solely for the reader’s convenience. EPA is proposing only to modify provisions in part 124 to the extent necessary to ensure they apply to the federal CCR permit program. EPA is not proposing to amend or otherwise reopen any of the substantive obligations in these regulations. EPA will not respond to any comments that suggest revisions, or that otherwise raise issues with respect to these requirements, and such comments will not be considered as part of the administrative record for this rulemaking. lotter on DSKBCFDHB2PROD with PROPOSALS2 1. Overview of Part 124, Subpart A Subpart A of part 124 (Subpart A) is codified in §§ 124.1 through 124.21 and contains general procedural requirements applicable to several EPA permit programs, including RCRA permits issued under the hazardous waste program. Subpart A describes the steps EPA will follow in receiving permit applications, preparing draft permits, issuing public notice, inviting public comment, and holding public hearing on draft permits. Subpart A also includes requirements for assembling an administrative record, responding to comments, issuing a final permit decision, and allowing for administrative appeal of a final permit decision. Under the procedures of part 124, a facility must apply for a permit based on the requirements of a federal program (e.g., part 270 for RCRA hazardous waste management facilities). EPA 6 reviews the application and notifies the 6 This background discussion assumes that the facility is obtaining an EPA-issued permit and therefore it uses the term ‘‘Regional Administrator.’’ Alternatively, in instances where the state has an approved program, the State Director would have the authority to issue the permit. As discussed elsewhere in this Unit, the agency is proposing to revise the current definition of ‘‘Regional Administrator’’ in subpart A for RCRA CCR permits. VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 permit applicant when the application is complete as required under § 124.3. EPA then decides whether to issue a notice of intent to deny the application or to prepare a draft permit as specified under § 124.6. Either of these decisions would be supported by a statement of basis required by § 124.7 or a fact sheet required by § 124.8 that becomes part of the official administrative record for the permit as specified under § 124.9. Decisions to revoke and reissue, to terminate a permit, and some decisions to modify a permit would also follow the above procedures. See generally § 124.5. EPA may commence any of these actions on its own initiative or may act in response to a request submitted by any interested person that meet the requirements of § 124.5(a). Denials of such requests for modification, revocation and reissuance, or termination, unlike denials of applications, are not subject to public comment or public hearings. § 124.5(b). If EPA decides to deny the request, a notice briefly stating the reasons for the denial is sent to the requester. Such a notice is not accompanied by a statement of basis or a fact sheet. In addition, an administrative record is not assembled pursuant to § 124.9. Denials of requests for modification, revocation and reissuance, or termination cannot be formally appealed to the Administrator under the appeal procedures specified in under § 124.19; however, such an action can be informally appealed under the procedures specified in § 124.5(b). All draft permits prepared under §§ 124.5 and 124.6 are subject to public notice pursuant to § 124.10, public comment under § 124.11, and, in suitable cases, public hearings pursuant to § 124.12. These processes allow any interested person to bring forward comments or questions concerning the draft permit or its supporting materials. After the close of the comment period, including any public hearing, EPA issues a final decision on the permit following the procedures under § 124.15. The final permit decision is accompanied by a response to all significant comments in accordance with § 124.17 which, together with additional supporting material, completes the final administrative record. See, § 124.18. Whenever commenters on a draft permit ask that changes be made, the final permit will not become effective until 30 days after notice is served under § 124.15(a). This 30-day gap between the date of issuance and the effective date of a final permit allows for time to appeal a decision on a permit. If no such comments are received, the PO 00000 Frm 00007 Fmt 4701 Sfmt 4702 9945 final permit is issued and effective the same day. 2. Proposal To Apply Procedural Requirements of Part 124 When Issuing CCR Permits The Agency is proposing to apply the existing decision-making procedures in part 124 subpart A without modification, when issuing federal CCR permits. These procedures are common to several EPA permit programs, and EPA considers them to be generally applicable. By contrast, EPA is not proposing to adopt any of the requirements in subparts B, C, D, or G of part 124 as part of the federal CCR permitting program because these subparts contain procedures specific to individual federal programs, i.e., RCRA hazardous waste management facilities, CAA prevention of significant deterioration (PSD) permits, and SDWA UIC permits.7 Some requirements in subpart A as currently written would apply to the federal CCR permit program without modification. For example, § 124.3(e) allows for site visits by the Agency when determined necessary during the processing of a permit application; this provision applies to all federal permitting programs covered by subpart A (i.e., this provision is not limited to certain federal permitting programs). In this proposal, EPA intends for provisions that are not currently limited to another federal permitting program to apply to the federal RCRA CCR permitting program. Put another way, unless the provision is explicitly written to limit applicability only to other federal permitting programs or the provision is proposed to be exempt from applying to federal CCR permits, such part 124 requirements would apply to the federal RCRA CCR permitting program. For other requirements in subpart A, EPA is proposing to revise a provision to make clear whether the requirement would apply to the federal CCR permit program. EPA is proposing: (1) New and revising several existing definitions to cover the CCR permit program; (2) amendments to particular requirements in subpart A to make clear whether the provision would apply to the federal CCR permitting program (e.g., the addition of references or citations to specific provisions in the proposed CCR permit program regulations). Many of the proposed amendments to subpart A would simply make explicit whether a given requirement would be applicable to RCRA CCR permits. These proposed 7 Subparts E and F of part 124 are currently reserved and contain no requirements. E:\FR\FM\20FEP2.SGM 20FEP2 9946 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules lotter on DSKBCFDHB2PROD with PROPOSALS2 amendments are discussed in this preamble and are presented in the proposed regulatory text. Furthermore, these proposed revisions do not change substantively the decision-making procedures of part 124, nor are they intended to. In proposing these minor revisions, EPA is not soliciting comments on and will not respond to comments on the existing regulatory provisions which underlie the revisions as they apply to other federal permitting programs. a. Definitions In addition to amending the introductory text of § 124.2(a), EPA is proposing to add three new definitions and revise five current definitions in this section. When used in §§ 124.1 through 124.21 as proposed, these new and revised definitions would allow for the proper interpretation and understanding of how the existing decision-making procedures of subpart A would apply to the federal RCRA CCR permitting program. The Agency is proposing to amend the introductory text of § 124.2(a) by adding a reference to § 257.121 in the first sentence. Section 257.121 is a new section containing proposed definitions under the regulations for the federal RCRA CCR permit program. Adding this new reference to § 257.121 will allow these key definitions to apply within subpart A without the need to recodify them in subpart A. The Agency is proposing to add several new definitions to § 124.2(a) of subpart A. RCRA CCR general permit. EPA is proposing this term to mean a RCRA CCR permit containing terms and conditions to ensure compliance with requirements of subpart D applicable to a specified category of CCR units, which are designated as eligible for coverage under the general permit. General permits in the CCR program would be issued in accordance with the proposed provision under § 257.127. This definition is needed to identify those provisions of subpart A applicable to general permits that may apply to CCR general permits. RCRA CCR permit. This term would mean a permit issued pursuant to section 4005(d) of RCRA (42 U.S.C. 6945(d)). Section 4005(d) is the new section of RCRA established by the WIIN Act of 2016 that provides EPA with the authority to establish a federal CCR permit program. EPA is proposing to add this term to subpart A to identify those provisions that would only apply within the federal CCR permitting program. Put another way, the use of this term would help distinguish VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 between types of RCRA permits. For example, this term would not apply to permits for RCRA hazardous waste management facilities because section 4005(d) does not apply to these facilities. RCRA permit. The Agency is proposing that this term means a permit issued pursuant to any section of RCRA. This term would apply to CCR permits as well permits for hazardous waste management facilities. EPA is proposing to add this term (and RCRA CCR permit) to facilitate proper interpretation of the subpart A provisions. In addition, EPA is proposing to revise several existing definitions in § 124.2(a) of subpart A. The Agency is proposing these revisions to incorporate the concept of CCR permits into the existing definitions. EPA is not proposing to revise or reopen the existing definitions as they apply to other federal permitting programs covered by subpart A. Accordingly, the Agency will not respond to any comments on these definitions as they apply to other federal permitting programs. Director and Regional Administrator. EPA is proposing to revise the term Regional Administrator to indicate that this term includes the Administrator within the context of the CCR permitting program if the Administrator has not issued a delegation of authority to the Regional Administrator. Because of the proposed change to the definition of Regional Administrator, the Agency is proposing to revise the current definition of Director by adding the Administrator to the list of persons included in the definition. These proposed changes are necessary to properly interpret the requirements of subpart A that would include the CCR permitting program. Facility. While this term is already defined in subpart A for other federal permitting programs, the Agency is proposing to revise the definition in subpart A to make clear that, for purposes of only the federal CCR permitting program, the definition of facility as codified in § 257.53 applies to CCR permits. Permit. The Agency is proposing to revise this definition to simply incorporate the concept of RCRA CCR permits into the existing definition. This would be accomplished by adding a reference to part 257 to the first sentence and including citations to § 257.127 for RCRA CCR general permits and § 257.128 for CCR permit by rule to the second sentence. These proposed changes are necessary to properly interpret the requirements of subpart A PO 00000 Frm 00008 Fmt 4701 Sfmt 4702 that would include the CCR permitting program. RCRA. The Agency is proposing to revise the current definition of RCRA in subpart A by adding a reference to Public Law 114–322 to the definition. This public law is the WIIN Act of 2016 that provides EPA with the authority to establish a federal CCR permit program. When used in subpart A as proposed, the term RCRA would apply to the CCR permitting program as well as other permitting programs under RCRA (e.g., hazardous waste management facilities). EPA is proposing to revise this term to facilitate proper interpretation of the subpart A provisions that would include a permitting program for CCR units. b. Other Revisions to Subpart A EPA is proposing several minor revisions to certain provisions of subpart A to harmonize it with the proposed CCR permit program requirements. Many of the proposed revisions to subpart A simply make clear whether a given requirement would be applicable to federal CCR permits issued by EPA. One example of these minor proposed changes includes adding references or regulatory citations to the new proposed federal CCR permitting provisions. Another example would be those subpart A provisions that are affected by use of the new definitions. Any provision of subpart A that would be amended is presented in the regulatory text accompanying this action. In addition, the Agency has placed a memorandum in the docket that shows each of these amendments in redline and strikeout format. C. Addition of Part 257 Subpart E EPA is proposing to create a new subpart E to part 257 to contain federal CCR permit program regulations. 1. General Information a. Program Overview EPA is proposing in § 257.120 to provide a general overview of the federal RCRA CCR permit program. Paragraph (a)(1) specifies that these regulations have been established to implement the mandate pursuant to section 4005(d) of RCRA, and paragraph (a)(2) specifies that subpart E would contain requirements for permit applications, content, modifications, revocation and reissuance, and termination. Consistent with RCRA 4005(d)(2)(B), EPA is proposing at § 257.120(a)(3) that the requirements in subpart D will be the basis of the permit content. EPA is proposing at § 257.120(b) to require owners and operators of CCR units that are located in E:\FR\FM\20FEP2.SGM 20FEP2 lotter on DSKBCFDHB2PROD with PROPOSALS2 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules nonparticipating states and in Indian country, and that are subject to requirements in subpart D, to obtain a federal CCR permit. EPA intends this to mean that permits are mandatory for all CCR units in these locations. This would also mean that once a permit has been issued or a permit application has been finally adjudicated, a facility could no longer operate the permitted CCR units under the self-implementing program. Further, compliance with the applicable requirements in subpart D alone would no longer mean that a CCR unit (or regulated entity) would be in compliance with the requirements of RCRA subtitle D. This proposal is based on both legal and practical considerations. First, EPA considers this to flow directly from the requirement in RCRA section 4005(d)(2)(B) for EPA ‘‘to implement a permit program to require each [CCR] unit . . . to achieve compliance with applicable criteria established by the Administrator.’’ Second, any other approach would effectively deprive the permit of any real legal or practical effect. An individual CCR permit will be the result of an adjudication that will clarify how the subpart D requirements apply to the specific facility operations and site conditions at issue to ensure that the statutory protectiveness standard in section 4004(a) of RCRA has been met. If the facility could at any time return to alternative compliance approaches it had previously developed under the self-implementing criteria, the permit effectively would become unenforceable. Moreover, if the record created through the permit process showed that particular permit conditions were necessary to meet the statutory standard, EPA would have no basis to allow the facility to operate without those conditions. It is implausible that this is the outcome Congress intended. EPA is proposing that subpart E would apply jointly and severally to both owners and operators of a CCR unit that dispose of or otherwise engage in solid waste management of CCR. This reflects the joint and several liability established under subpart D for each of these entities. Therefore, this proposed rule would also require owners and operators of CCR units subject to requirements in subpart D, located in nonparticipating states and in Indian country, to obtain a federal CCR permit. At § 257.120(b)(2), EPA is proposing to codify the statutory requirement that the owner and operator of a CCR unit must continue to comply with all applicable requirements of subpart D until a CCR permit is in effect. Consistent with RCRA section VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 4005(d)(6), once a permit has become effective for a CCR unit, compliance with the permit terms will constitute compliance with subpart D for enforcement purposes. This permit shield provision is discussed further in Unit IV.C.1.f of this preamble. EPA is proposing at § 257.120(b)(3) that, before a permit is issued, submittal of a complete and timely permit application in accordance with the requirements in §§ 257.124, 257.130, and 257.131 serves as compliance with the requirement to obtain a permit, unless and until EPA takes final action on the application (i.e., to issue or deny a permit). This proposal is based on the rationale that once the owner and operator have submitted a timely and complete permit application, the action is out of their hands until the Administrator acts on the application. The owner and operator should not be deemed out of compliance if they have done everything possible to obtain a permit and are awaiting action by EPA. This does not affect the applicant’s obligation to continue to comply with all applicable requirements in subpart D. EPA is proposing at § 257.120(b)(4) that any CCR unit located in a nonparticipating state or in Indian country must have a permit during each stage of operation listed in § 257.123(a). The requirement to obtain and maintain a permit would apply throughout all stages of operation during which solid waste management of CCR occurs at the facility, including the active life of the CCR unit (i.e., during active placement of waste in the unit and until closure activities are completed), the postclosure care period and until completion of all corrective action. This corresponds with the statutory mandate that a permit program require each CCR unit to achieve compliance with the requirements in subpart D. As these requirements apply at all stages of operation, it is likewise necessary to require the CCR unit to have a permit throughout all stages of operation. After the Administrator has issued a permit, the permittee must continue to have a permit. Any CCR unit without either a permit or a timely, complete permit application in accordance with proposed §§ 257.124, 257.130 and 257.131 will be considered an ‘‘open dump,’’ as defined in 42 U.S.C. 6903(14), irrespective of the unit’s compliance with the requirements of subpart D and may no longer receive waste. This flows from the prohibitions on open dumps and ‘‘open dumping’’ in RCRA §§ 4004(a) and 4005(a). EPA is proposing three permitting approaches at § 257.120(b)(5). These are PO 00000 Frm 00009 Fmt 4701 Sfmt 4702 9947 a general permit (see § 257.127 and Unit IV.C.1.h of this preamble), a permit by rule (see § 257.128 and Unit IV.C.1.i), or an individual permit. In most cases, EPA intends to issue a single individual permit to each regulated facility, which implements all applicable requirements of subpart D for all CCR units at the facility. However, in some cases, a single federal CCR permit for all CCR units at a facility may not be feasible. This could occur, for example, in situations where one CCR unit is eligible for the permit by rule or a general permit, but the other CCR units at the facility require an individual CCR permit. This could also occur in instances where a state program is approved to operate in lieu of the federal program to issue permits for only some of the requirements in subpart D (i.e., a partial state program approval) and other subpart D requirements must be implemented through a federal CCR permit. Thus, a single individual permit would be issued to a facility only when feasible. The default approach for a CCR permit is an individual permit, but if there is a CCR unit that meets the eligibility criteria for a permit by rule or general permit, then those approaches would satisfy the requirement to obtain a permit for those CCR units that meet the respective eligibility criteria. Additionally, EPA is proposing at § 257.120(b)(6) that the Administrator may issue or deny a permit for one or more CCR units at a facility without simultaneously issuing or denying a permit to all the CCR units at the facility. The status of any CCR unit for which a permit has not been issued or denied would not be affected by the issuance or denial of a permit to any other CCR unit at the facility, even if multiple units were included in the same permit application. The compliance status of each unit should normally be evaluated individually. EPA is proposing at § 257.120(b)(7) that CCR permits issued by EPA will not have an expiration date. This provision is discussed in detail in Unit IV.C.1.g of this preamble. Permit terms will remain in effect until modified, revoked and reissued, or terminated. EPA is proposing at § 257.132 that a permittee must review and resubmit each permit application, or each notice of intent to be covered by the permit by rule, no less frequently than every 10 years. This is intended to ensure that EPA will have current information about operations at each permitted facility, which would alternatively be gained through a permit renewal process if permits had an expiration date. E:\FR\FM\20FEP2.SGM 20FEP2 9948 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules EPA is proposing in § 257.120(b)(8) that a federal CCR permit may be modified, revoked and reissued, or terminated for cause by the Administrator as set forth in §§ 257.150 through 257.153. This provision and the rationale for it are described in Units IV.C.4.a and IV.C.4.d of this preamble. b. Definitions EPA is proposing to establish the following definitions at § 257.121. i. Applicable Requirement EPA is proposing to create a definition of ‘‘applicable requirement’’ to establish criteria for CCR permit content. For the Administrator to issue federal CCR permits consistent with RCRA section 4005(d), to require each CCR unit to achieve compliance with applicable criteria established in subpart D, the permit must contain those requirements. Therefore, EPA is proposing to define applicable requirement as a requirement in subpart D to which the permittee is subject. A definition of this term provides clarity regarding requirements in this proposal pertaining to applicability, application requirements, content, modification application requirements, and schedules of compliance, in a manner consistent with the statutory language of RCRA section 4005(d). lotter on DSKBCFDHB2PROD with PROPOSALS2 ii. Completion of All Corrective Action EPA is proposing to define the term ‘‘completion of all corrective action’’ as completion of activities required by § 257.95(g) through (i), § 257.96, § 257.97, and § 257.98(a) and (b) in accordance with the requirements of § 257.98(c) through (f). Because permits must require permittees to achieve compliance with applicable criteria established in subpart D, EPA is proposing that the term ‘‘completion of all corrective action’’ correspond to all required corrective action activities in subpart D. This definition is for use in subpart E only and is not intended to modify any provision in subpart D. iii. General Permit For clarity, EPA is proposing to define the term ‘‘general permit’’ in a manner consistent with how the term is used in other federal permitting programs. General permit regulations in other federal permit programs provide for issuance to categories of facilities or processes based on criteria relevant to the specific program (e.g., the definition of general permit in the NPDES program in § 122.2 includes geographic area as a criterion for categorization.) The definition of general permit is necessarily different in this proposal VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 than in other permit programs, in that it contains language unique to the RCRA 4005(d) for a federal CCR permit program and references subpart D. The categorization of CCR units eligible to be covered by a general permit would be based on criteria defined by operating parameters unique to CCR units, such as wet or dry operation (i.e., landfills or surface impoundments) and which determine applicability of requirements of subpart D. General permits would be issued to a category of CCR units, which would be defined in the general permit itself and would contain all subpart D requirements applicable to that category of units. iv. Individual Permit EPA is proposing a definition of the term ‘‘individual permit,’’ to distinguish permits issued for CCR units at a single facility from general permits or permit by rule. An individual permit can be tailored to the site-specific conditions at the facility (i.e., by establishing unique terms and conditions to require compliance with the applicable requirements of subpart D, based on site-specific approaches, which may be proposed in the permit application or otherwise developed in the permit writing process). v. Owner and Operator EPA is proposing to adopt the definition of ‘‘owner or operator’’ that is consistent with part 270. A permitting program, by definition, regulates interaction between applicants and permitting authorities, and legal obligations and procedures governing those interactions. Therefore, EPA is proposing to align this definition more closely with part 270 than with subpart D. Because this proposal utilizes approaches and provisions from existing federal permitting programs, using the definition from the federal RCRA hazardous waste permitting program seems more appropriate. vi. Permit by Rule EPA is proposing a definition of the term ‘‘permit by rule,’’ consistent with how the term is used in other federal permitting programs. The permit by rule is a permitting approach, which is established in § 257.128. Compliance with the permit by rule procedures and requirements satisfies the requirement in § 257.123(a) to have a CCR permit as long as the conditions in § 257.128(a) are met. No subsequent or facilityspecific permit is issued. vii. Responsible Official EPA is proposing to use a definition of ‘‘responsible official’’ that is based on PO 00000 Frm 00010 Fmt 4701 Sfmt 4702 the definition of that term found in § 71.2, which is similar to the definition found in § 270.11, to describe the appropriate signatories to permit applications and reports. This language is standard across environmental programs and defines the level of responsibility, within various organizational structures, from which EPA will accept formal communications and certifications for permitting and compliance purposes. The organizational structures included in the definition are: Corporations, partnerships (a partner may be a corporation), sole proprietorship, and municipalities. Because the appropriate level of responsibility at an organization for legal purposes is not dependent upon the details of a particular environmental program, EPA believes there is no basis to define this level of responsibility differently in this proposal. c. Considerations Under Federal Law When issuing federal permits, EPA may be subject to obligations under other federal laws that may impact the permits. If any of these laws is applicable to issuance of a particular permit, then its procedures must be followed. Furthermore, these laws may require EPA to include certain conditions in the CCR permit or to deny a CCR permit. The five federal laws relevant to the issuance of CCR permits are proposed at § 257.122: The Wild Scenic Rivers Act, the National Historic Preservation Act of 1966, the Endangered Species Act, the Coastal Zone Management Act and the Fish and Wildlife Coordination Act. These same federal laws are also included in part 270 and part 144 permitting regulations. These laws are included in this proposed regulation because they impose obligations on EPA’s permit issuance process; other federal laws may impose requirements on a permitted facility that are not listed here. The public, the Corps of Engineers, the Fish and Wildlife Service, the National Marine Fisheries Service, and other interested Federal agencies, all have the opportunity to comment on any draft CCR permit. EPA seeks comment on whether the list of Federal laws is appropriate or whether any should be added or removed. d. Applicability RCRA section 4005(d) provides that the Administrator is to administer a permit program to require each CCR unit located in nonparticipating states or in Indian country to achieve compliance with applicable requirements established by the E:\FR\FM\20FEP2.SGM 20FEP2 lotter on DSKBCFDHB2PROD with PROPOSALS2 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules Administrator under part 257 (subpart D). See 42 U.S.C. 6945(d)(2)(B) and (d)(5). Therefore, EPA is proposing that the applicability criteria of the CCR permit program would mirror the applicability criteria found in § 257.50. Owners and operators not subject to the requirements of subpart D would not be subject to requirements of this proposal. EPA is proposing at § 257.123(a)(1) to require all owners and operators of CCR units (i.e., CCR landfills and CCR surface impoundments, including any lateral expansions of such units) who are subject to the requirements of subpart D to submit a CCR permit application. This requirement would apply whenever the CCR unit is subject to requirements of subpart D, including throughout the active life, post-closure care period, and until completion of all corrective action. Depending on the stage of operation of the CCR unit, only a portion of these requirements may remain applicable, for example if the CCR unit is undergoing closure or is in post-closure care. Any CCR unit subject to any requirements in subpart D would require a permit for any of these stages of operation. These requirements would apply to CCR units and associated solid waste management activities located offsite of an electric utility or independent power producer, as long as the CCR unit is subject to requirements of subpart D. To comply with the requirement to obtain a CCR permit, the owner and operator of a CCR unit must jointly (when they are separate entities) submit a complete and timely permit application in accordance with §§ 257.124, 257.130, 257.131 and any subsequent Federal Register notice or other notification establishing a deadline for a CCR permit application. EPA is proposing at § 257.123(a)(2) that the owner and operator of a CCR unit and associated solid waste management activities need not apply for a federal CCR permit if it is subject to requirements of a Participating State CCR Permit Program, or a State CCR Program that has been submitted to EPA and approval is pending, as EPA only has the authority to issue permits in nonparticipating states and Indian country. RCRA section 4005(d) provides that states may submit a CCR permit program, or other system of prior approval, to the Administrator for approval to operate in lieu of the federal program. See Unit III.B of this preamble. In addition to state CCR permit program approval in whole, state CCR permit programs may be approved by the Administrator in part. A partial program approval would result in a state CCR permit program that operates in lieu of the federal program for only a subset of VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 subpart D requirements. For example, if a state submits for approval a CCR permit program that only regulates certain types of CCR units (e.g., landfills) or does not require compliance with all elements of the CCR regulations (i.e., does not contain requirements for structural stability), EPA could grant a ‘‘partial approval’’ that would approve the state’s permit program to operate in lieu of only certain provisions in the federal CCR program. For any subpart D requirements not covered by the approved state program, the state is considered a nonparticipating state and the owner and operator of such CCR units would be required to apply for and obtain a federal CCR permit. EPA is proposing at § 257.123(a)(3) that the owner and operator could meet this obligation by submitting an application (or in one case, a notification) for any of the following three kinds of CCR permits. The first is an individual permit. An individual permit would be issued to one or more CCR units at the same facility and would contain terms and conditions tailored to the site-specific circumstances at the facility, such as controls and procedures to achieve compliance with applicable requirements of subpart D. In the second approach, the owner and operator may apply for coverage under a general permit. EPA is proposing at § 257.127 to establish provisions under which EPA may issue one or more general permits. The Administrator could issue a general permit for a category of similar CCR units, which would contain all requirements of subpart D applicable to that category of CCR units and associated solid waste management operations. See Unit IV.C.1.h of this preamble for more discussion on general permits. The third is compliance with the terms of the permit by rule proposed in § 257.128. See Unit IV.C.1.i for more discussion on the permit by rule. This approach would only be available to new landfills or lateral expansions that meet the eligibility criteria and other requirements proposed in § 257.128. If the owner and operator do not meet the criteria for, or choose not to pursue, a general permit or permit by rule for a CCR unit, they must apply for an individual permit. EPA expects most CCR units subject to this program would be issued an individual CCR permit. The permit by rule and general permit approaches are proposed to streamline the CCR permit program. EPA believes they would result in more timely permitting actions that meet the statutory mandate to issue permits requiring each CCR unit to comply with PO 00000 Frm 00011 Fmt 4701 Sfmt 4702 9949 applicable requirements in subpart D. The permit by rule or general permit approaches are protective alternatives that will allow the Administrator to focus on issuance of permits to those units whose greater risks, or more complicated operations or site conditions, warrant the level of oversight associated with an individual permit. These streamlined approaches would be available only to certain CCR units with less complex operations or site conditions and more straightforward requirements in subpart D. Both the permit by rule and the general permits would contain eligibility criteria to ensure that coverage is available only to CCR units appropriately regulated through these alternatives. Consistent with this proposal, states would be able, but not required, to incorporate general permits and permits by rule into their programs submitted for approval to the Administrator. This could be considered as an option for permitting CCR units when developing state programs. A facility could utilize more than one permitting mechanism. For example, at a facility with multiple CCR units, each unit could operate under a different type of permit. Thus, one unit that is a new landfill and its associated solid waste management activities could operate under a permit by rule, while another CCR unit and its associated solid waste management activities may meet the eligibility criteria for a general permit established in accordance with § 257.127, and an individual permit could be issued for the remaining CCR units and their associated solid waste management activities at the facility. As discussed in Unit IV.C.2.d of this preamble, if EPA receives a permit application that does not meet the requirements in §§ 257.130 through 257.131, the procedures in § 124.3 would apply without modification. However, EPA is proposing at § 257.123(b) that this would not affect the requirement for the owner and operator of a CCR unit to obtain a permit. If the Administrator determines an application is incomplete, the owner and operator must re-apply for a CCR permit. If the owner and operator fail to re-apply for a CCR permit, the CCR unit will be considered an open dump, subject to an enforcement action, and must cease placing waste in the unit. In such cases, the owner and operator would nevertheless be required to continue to conduct other required activities under subpart D, including, but not limited to fugitive dust control, groundwater monitoring, retrofit, closure, post-closure care, or corrective action. Any owner and operator that E:\FR\FM\20FEP2.SGM 20FEP2 lotter on DSKBCFDHB2PROD with PROPOSALS2 9950 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules does not continue to conduct these activities under subpart D would also be subject to enforcement action for open dumping under RCRA § 4005(a). EPA expects that the deadline to reapply for a permit will be established in the notification of the final adjudication of the original permit application (denial for incompleteness) and would be based on the scope of the missing information. Alternatively, EPA is considering establishing a single deadline in the regulation for an applicant to re-apply after a permit is denied based on an incomplete application. EPA is taking comment on these approaches and alternative approaches and timeframes for an applicant to remedy a permit denial based on an incomplete application. EPA is not proposing to require entities who are exclusively engaged in the beneficial use of CCR, consistent with the requirements in § 257.53 to obtain a federal CCR permit. This exemption is proposed at § 257.123(c)(1). The beneficial use of CCR is not regulated under subpart D; therefore, EPA would have no basis to require entities who only engage in beneficial use to apply for and obtain a permit. If owners and operators of a CCR unit are subject to other requirements under subpart D and also engage in beneficial use of CCR, they would be required to apply for a CCR permit for only the regulated activities. In addition to the exemptions from subpart D, EPA is proposing to adopt at § 257.123(c)(2) a provision similar to § 270.1(c)(3) that owners and operators are not required to obtain or modify CCR permits in order to conduct an immediate response. An immediate response is a response action taken when there is a release, or an imminent and substantial threat of a release, of CCR that poses a reasonable probability of adverse effects on health or the environment. EPA is proposing this exemption to avoid delays, due to permit applications or processing, in response activities necessary to address a health or public safety concern that is urgent or potentially urgent. EPA is not proposing a definition of immediate response to give the Administrator and the facility flexibility to assess individual situations on a caseby-case basis and to coordinate with state, and local emergency responders. However, EPA envisions that immediate responses are those that are conducted as quickly as feasible. In evaluating whether an individual situation constitutes an immediate response, the Administrator and the facility should consider any indications of urgency with which the response is conducted to VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 assess eligibility for this exemption. These indications could include, for example, conducting the response activities on a continuous basis (i.e., 24hour days, 7 days per week), short-term rental of equipment to increase the pace of the response, procurement of response contractors, or other levels of effort above and beyond staffing and resources used during normal operations. Once the immediate response is over, the owner and operator would be required to obtain or modify a permit as needed to conduct any longterm response actions or address any changes to the unit or operations resulting from the release or response. e. Deadlines for Application Submissions As previously stated, all owners and operators of a CCR unit in nonparticipating states and in Indian country must apply for and obtain a federal CCR permit in accordance with § 257.123(a). In determining when the owner and operator of a CCR unit should be required to submit a permit application to the Administrator, EPA considered many factors. To determine how to prioritize applications in a timely and orderly fashion, EPA analyzed the number of CCR units located in nonparticipating states and in Indian country based on information posted on each facility’s publicly accessible CCR website in accordance with § 257.107, so that CCR permits for all regulated units may be issued as expeditiously as possible. EPA also looked at application deadlines established in other permitting programs, described in Unit III.C of this preamble, and how those programs prioritized application submittal. To prioritize the processing of individual permit applications for existing CCR units, EPA is proposing at § 257.124(a)(1) and (2) to establish tiers of deadlines when permit applications must be sent to the Administrator. Tiering application deadlines for owners and operators of CCR units will help EPA review each permit application thoroughly and act on each permit application in a timely manner. Tiering applications may avoid a situation where EPA would receive a large number of applications at the same time. This could result in poor quality permits or in permit appeals that could have been avoided if EPA had sufficient time to review each application and draft permit content, or it could result in the need for facilities to update pending permit applications if information in them becomes out of date by the time EPA acts on them. In addition, tiering applications will allow PO 00000 Frm 00012 Fmt 4701 Sfmt 4702 EPA to address the highest priority CCR units first. If a CCR facility has multiple CCR units and one or more of the CCR units at the facility triggers an application deadline, the permit application must include all CCR units at the facility that are not covered by a permit by rule or general permit. The compliance deadlines proposed at § 257.124(a) would require permit applications for either a general permit issued in accordance with § 257.127, the permit by rule proposed at § 257.128, or an individual permit. The compliance deadlines in the proposed rule would not prevent owners and operators from submitting applications early. EPA is proposing at § 257.124(a)(1) that the first tier of permit applications would be due 18 months after the effective date of the final rule for several reasons. This timeframe would allow owners and operators sufficient time to prepare applications and document compliance strategies they wish to propose in their permit applications, with supporting documentation to justify these approaches. Eighteen months will also allow EPA sufficient time to develop any necessary implementation materials, such as permit applications and instructions or technical guidance documents, as well as an electronic system for federal CCR permitting. Finally, this time will also provide states with an opportunity to develop and submit for approval CCR State Permit Programs in light of the requirements that will be established in this federal permitting program. EPA considers this approach to be protective and otherwise consistent with RCRA 4005(d). Facilities must continue to comply with the rule during this time, and the statute contemplates that facilities will continue to operate during this period. Section 4005(d)(3) expressly provides that facilities must continue to comply with the federal rule until a state or federal permit is effective; this would be unnecessary if they had to stop operating. To determine which CCR units should comprise the first tier of applications, EPA decided to prioritize the issuance of permits to CCR units that present higher acute risks. Accordingly, EPA looked to the hazard potential classification system for CCR surface impoundments. The hazard potential ratings refer to the potential for loss of life or damage if there is a dam or embankment failure. The ratings do not refer to the current structural stability of the dam or embankment. Subpart D requires owners and operators of CCR impoundments to conduct periodic hazard potential classification E:\FR\FM\20FEP2.SGM 20FEP2 lotter on DSKBCFDHB2PROD with PROPOSALS2 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules assessments and rate the units as either a high hazard potential CCR surface impoundment, a significant hazard potential CCR surface impoundment, or a low hazard potential CCR surface impoundment. See §§ 257.73(a)(2) and 257.74(a)(2). The high hazard potential CCR surface impoundments are among the highest priority for EPA because the high hazard classification means a diked surface impoundment where failure or mis-operation of these surface impoundments will probably cause loss of human life. Each hazard potential classification assessment is required to be certified by a qualified professional engineer and contain documentation to provide the basis for the current hazard potential rating. The initial hazard potential assessment was required by October 19, 2016, for existing units and prior to the initial receipt of CCR in the unit for new units or lateral expansions. Several of these units are in states that EPA has been working with to develop a CCR State Permit Program, so EPA assumes that these units would be in Participating states and would consequently not be subject to federal CCR permitting requirements, by the time a final rule is effective. Therefore, the first proposed tier would include any CCR facility with at least one existing CCR surface impoundment, new CCR surface impoundment, or inactive CCR surface impoundment that is classified as high hazard potential under § 257.73(a)(2) or § 257.74(a)(2) and located in a nonparticipating state or in Indian country. Furthermore, all CCR units at such a facility would be required to be included in this initial permit application at this time, or to apply for a general permit or permit by rule. EPA considers this subset of CCR units to be the highest priority to submit a permit application and should therefore constitute the first tier. EPA is also proposing to require owners and operators of CCR units in Indian country to submit applications in the first tier. RCRA provides no option other than a federal CCR permit for these CCR units, regardless of state program approval status or appropriations. EPA has no reason to delay submittal of applications for these CCR units. EPA is aware of three facilities in Indian country with CCR units that would be subject to this rule; this relatively small number of permits also would not delay issuance of other CCR permits to units with potentially higher risks. EPA is not proposing to define subsequent tiers of applications at this time. EPA is proposing at § 257.124(a)(2) that the Administrator will notify owners and operators of CCR facilities VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 by a notice in the Federal Register at least 180 days before the application submission is required. This timeframe is similar to the requirement established in the RCRA hazardous waste permitting program at § 270.1(b) for part B applications. The proposed CCR permit application requirements, described in Unit IV.C.2 of this preamble, will not include a part A and part B, as was done in part 270, because submission of a separate part A would serve no useful purpose. As noted, Congress has already effectively granted currently operating units the equivalent of interim status in RCRA 4005(d)(3) by requiring compliance with subpart D until a permit is in effect. The CCR units that would be covered by subsequent tiers must comply with subpart D until they are covered by an effective federal or Participating State CCR permit. EPA believes that 180 days is sufficient time for the owner and operator to prepare the permit application. As described in Unit IV.C.2, the information required in the permit application will be information about the facility, information about the applicant, technical information about the CCR units at the facility, site conditions, plans, maps, drawings, and other documents. Since the CCR units are already subject to subpart D, most of the information required in the application has already been developed by the owner and operator in accordance with subpart D, and in many cases is posted on the facility’s publicly accessible website. EPA is considering several approaches to prioritizing the permit applications in subsequent tiers. Examples are provided here in no particular order: • CCR units located in states that affirmatively declare to EPA that they do not intend to pursue program approval; • CCR units located at specific facilities; • CCR surface impoundments with significant hazard potential for structural stability; • CCR surface impoundments that are in assessment of corrective measures or corrective action after an exceedance of a groundwater protection standard or after experiencing a release; • CCR units that are undergoing closure; • CCR units that are undergoing closure with CCR remaining in the unit; • CCR units that are in the postclosure care period; • CCR landfills; • CCR landfills that are in assessment of corrective measures or corrective action after an exceedance of a PO 00000 Frm 00013 Fmt 4701 Sfmt 4702 9951 groundwater protection standard or after experiencing a release; • New CCR landfills or lateral expansions that are not covered by a permit by rule under § 257.128; • CCR units that have not met the location restriction requirement for placement above the uppermost aquifer demonstration under § 257.60; or • CCR units that have not met the location restriction requirement for wetlands (§ 257.61), fault areas (§ 257.62), seismic impact zones (§ 257.63), or unstable areas (§ 257.64). EPA requests comment on approaches to prioritizing applications, including how many tiers of permit application deadlines there should be for this permitting program. In the development of this proposed rule, EPA has considered having two, three, or more tiers of permit application deadlines to space out the applications so that EPA may act on them in a timely manner. The number of tiers will depend on whether owners and operators choose to submit permit applications early, the number of CCR facilities that meet the different criteria, and the time needed for EPA review of permit applications and drafting of permits in this new program. EPA also solicits comment on the method of deciding which units must apply, and the timeframe, as there are many ways that CCR units can be prioritized based on the criteria listed above or using other methods. EPA is proposing at § 257.124(a)(3) to establish deadlines for the submittal of a permit application for any CCR unit that becomes subject to the requirements of subpart D on or after the promulgation of the federal CCR permit program final rule. For CCR units that become subject to subpart D, and therefore this rule, after this rule is finalized, the deadlines to submit a permit application are phased in. For CCR units that become subject to federal permitting requirements after promulgation of the final permitting rule, but prior to 24 months after the effective date of the rule, permit applications would be due 24 months after the effective date of the final rule. This is six months after the first tier of applications under the prioritization approach discussed above, and this deadline reflects the fact that the first tier of applications would be the highest priority for EPA to act on. For CCR units that become subject to federal permitting requirements after that date, the owner and operator would submit a permit application for such a CCR unit no less than 180 days prior to becoming subject to the requirements of subpart D. CCR units that become subject to federal permitting requirements after E:\FR\FM\20FEP2.SGM 20FEP2 lotter on DSKBCFDHB2PROD with PROPOSALS2 9952 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules this rule is finalized would include units that are constructed before promulgation of the final federal CCR permit program rule but that initially receive waste after that date. It would also include new CCR units that begin construction after the final federal CCR permit program promulgation date. EPA believes that 180 days is a sufficient, but not excessive, amount of time before receipt of waste is expected to begin for an owner and operator to submit a permit application. If the new CCR unit is a CCR surface impoundment, or if for any reason the owner and operator choose not to apply for a permit by rule for a new CCR landfill or lateral expansion in accordance with § 257.128, they will need to apply for an individual permit following the requirements of §§ 257.130 and 257.131. If the owner and operator submitted a permit application to the Administrator at least 180 days before becoming subject to the requirements of subpart D, this would fulfill the requirement to obtain a permit, and after 180 days they may begin to operate the unit in compliance with applicable requirements of subpart D, even if a permit has not been issued by the Administrator. EPA considers this approach to be protective as facilities must comply with the rule until a permit is in effect, which will be sufficient in the interim. Consistent with EPA’s interest in prioritizing the issuance of permits based on risk, EPA intends to initially focus on issuing permits for existing units, which generally pose higher risks than newlyconstructed units. CCR units that become subject to federal permitting after this rule is finalized would also include CCR units (located in nonparticipating states or in Indian country) that ceased receipt of CCR before the effective date of subpart D, October 19, 2015, but begin receiving waste in the CCR unit again. For example, consider a CCR landfill (‘‘Landfill A’’) that contained CCR before 2015 and then ceased receipt of waste. If Landfill A becomes subject to the requirements of subpart D because it begins receipt of CCR again, the proposed provisions in § 257.124(a)(3) would require the owner and operator of Landfill A to apply for a CCR permit no less than 180 days before becoming subject to the requirements of subpart D. This requirement would ensure that all CCR units meeting the applicability criteria proposed at § 257.123(a) would be required to obtain a federal CCR permit. EPA is also proposing at § 257.124(a)(4) that requests for coverage under a general permit or Notification of VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 Intent (NOI) to be covered by the permit by rule are due at the same time applications for individual permits. If the new CCR unit is a CCR landfill and it meets the criteria for a permit by rule under § 257.128, the obligation to apply for a CCR permit may be met by submitting an NOI to be covered by the permit by rule. Submittal of the NOI would be required on or before the deadline for other CCR units at a facility to apply for an individual permit or submit a request for coverage under a general permit, as specified in § 257.124(a)(1) through (3). This proposal would give the owner and operator of a new landfill sufficient time to obtain coverage under a permit by rule by the date a permit application for other CCR units at the facility would be required, or to obtain coverage under a general permit. In the course of developing this proposed rulemaking, EPA also considered requiring all permit applications to be submitted with the same deadline. EPA decided not to propose that all applications be submitted at the same time due to concerns about the potential for a backlog of permit applications, as discussed previously in this Unit. If, after receiving comments, the Agency decides that all applications should be required by the same date (e.g., 24 months after the promulgation of the final CCR permitting regulation), EPA would prioritize issuance of the permits using one or a combination of the approaches discussed above. f. Effect of a Permit EPA is proposing at § 257.125(a) that compliance with the terms and conditions of an issued and effective CCR permit would constitute compliance with the requirements of subpart D for the CCR units and operations covered by the permit. This provision, known as a ‘‘permit shield,’’ would implement sections 4005(d)(3) and 4005(d)(6) of RCRA. Section 4005(d)(3) provides that the applicable criteria in subpart D apply to each CCR unit unless a permit issued under an approved state program or a federal CCR permit is in effect for the unit. Section 4005(d)(6) provides that a CCR unit shall be considered a sanitary landfill for purposes of RCRA only if it is operating in accordance with the requirements of a CCR permit, issued by a state with an approved program or by EPA, or in accordance with the applicable criteria in subpart D. The wording of proposed § 257.125(a) is generally similar to permit shield provisions in other federal permit programs, such as §§ 270.4(a)(1) and PO 00000 Frm 00014 Fmt 4701 Sfmt 4702 71.6(f). Consistent with those provisions, the proposed permit shield provision expressly provides that compliance wth a permit shields the permittee from any claim in an enforcement proceeding (including a citizen suit proceeding brought pursuant to RCRA section 7002) that the permittee was or is not in compliance with any subpart D requirement not specified in the permit. The proposed permit shield provision does not prevent EPA from modifying the permit to make changes or incorporate additional requirements on its own initiative. EPA is also proposing in § 257.150(a)(5) that it may initiate a modification to correct any error in a permit. EPA is proposing to include an express statement to this effect in § 257.125(a) to avoid any confusion about the relationship between these two regulatory provisions and about the effect of the provisions in RCRA sections 4005(d)(5) and (6). Establishing these regulatory provisions to implement the statutory permit shield provision would generally provide certainty regarding a permittee’s legal obligations under subpart D and reaffirms that the permit will provide a clear determination of the actions that the permittee must take to be in compliance with those requirements. A permit shield would not apply prior to the effective date of a permit or any permit modification, even for those modifications that do not require prior approval. Under the express wording of RCRA 4005(d)(6) a permit shield is only available through compliance with requirements in an effective permit. In § 257.125(b) and (c), language is proposed to clarify that issuance of a CCR permit does not convey any property rights of any sort, nor any exclusive privilege, and that a CCR permit does not authorize injury, invasion of private rights, or violations of local or state law. EPA is also proposing to specify that a CCR permit does not authorize violations of federal laws not explicitly considered and addressed in the permitting action. These provisions are consistent with other EPA permit programs under RCRA, the CWA, and the CAA, which provide neither property rights, nor any other special privilege under State or Federal law. Further, there is no indication on the face of RCRA 4005(d) that Congress intended to grant CCR permittees any greater rights or privileges than were provided to permittees under these other federal permit programs. The language that EPA has proposed here is generally consistent with the comparable regulatory provisions in other federal E:\FR\FM\20FEP2.SGM 20FEP2 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules permitting programs (see §§ 270.4(b), 270.4(c), 71.6(a)(6)(iv)). lotter on DSKBCFDHB2PROD with PROPOSALS2 g. Duration of a Permit EPA considered durations of permits in other federal permitting programs when evaluating whether to establish a specific term or limited duration for federal CCR permits (e.g., to require that all permits expire after a specific time). For example, CAA Title V permits expire five years after the date of issuance, in accordance with § 71.6(a)(11). Under RCRA § 3005(c)(3) hazardous waste permits are effective for a fixed term not to exceed ten years. By contrast, permits issued in the UIC program for Class VI carbon dioxide geologic sequestration wells do not expire and are issued for the operating life of the facility and the post-injection site care period. See § 144.36(a). Federal permitting programs have various and unique statutory mandates, which may determine the effective permit term in any given program. Congress did not direct EPA to issue CCR permits for a particular term. EPA is proposing at § 257.126 that RCRA CCR permits would be issued without expiration and would remain in effect throughout the active life of the CCR unit, the post-closure care period, until completion of all corrective action, and until the permit is terminated. A permittee could request termination of the permit in accordance with the requirements proposed in § 257.153 when all applicable requirements of subpart D have been satisfied. EPA is proposing to adopt this approach because it best ensures sustained regulatory oversight of the facility throughout the full cycle of solid waste management activities regulated under subpart D, as well as until completion of all corrective action and post-closure care. EPA is proposing other mechanisms to ensure the permit is periodically updated as necessary to accurately reflect current operations and regulatory requirements. To require a CCR unit to achieve compliance with subpart D, a CCR permit must be effective and enforceable. Permitting programs that issue permits with expiration dates often face challenges issuing timely permit renewals. While there are mechanisms to allow for enforcement of an expired permit, such as administrative continuance, these mechanisms can frequently result in a very similar outcome to the proposed approach of issuing CCR permits with no expiration date. The benefit of the proposed approach is that permitting actions will occur only when needed, to VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 address changes at a facility or in applicable requirements, Based on EPA’s experience issuing permits under part 270, permit expiration can also result in situations in which the permit has expired before the cleanup or other post-closure activities have been completed. In practice, it can be difficult to ensure permittees submit timely and complete applications before the expiration date, once active waste management has ceased and only corrective action or post-closure activities remain. Although EPA has authority to issue an order to compel compliance, these situations highlight potential challenges of expired permits. In general, permit expiration serves several important functions. It provides a mechanism for regular review of the existing permit and its terms and conditions, and for incorporation of any new information and, if necessary, new conditions into the permit through a public process. It also helps to ensure sufficient opportunities for public participation during the life of the CCR unit. The Agency believes the proposal to issue federal CCR permits without an expiration will also provide these same functions, albeit through other mechanisms, as discussed below. If a permit is issued with an expiration date, renewal must occur at that time, even if no changes have occurred at a facility or if a permit had been recently modified and was up-todate. EPA could not identify one timeframe for the expiration of all CCR permits that would anticipate a single time for a permitting action that would capture all changes in operations or underlying requirements at a particular CCR unit or facility. Re-issuance of a CCR permit at a specified frequency in addition to the proposed modification requirements would not reasonably be expected to improve the permit or provide valuable opportunity for oversight or public participation. Renewing CCR permits without changes could divert facility resources or Agency resources away from higher priority permitting actions, such as applying for and issuing major modifications or ensuring that minor modification procedures are being implemented properly. EPA believes that the goal of ensuring that permits continue to require compliance with all applicable requirements of subpart D and accurately reflect current operations is best accomplished through appropriate modification requirements and periodic permit application reviews. The proposed modification requirements in §§ 257.150 through 257.152 are PO 00000 Frm 00015 Fmt 4701 Sfmt 4702 9953 intended to address all situations where changes to a permit are needed. Additionally, if a permit remains unmodified for ten years, the Agency is proposing to require permittees to review and resubmit CCR permit applications by that date to ensure that the Administrator has current information about the CCR units. See proposed § 257.132 and Unit IV.C.2.c of this preamble. These requirements provide mechanisms for timely incorporation of any new information or requirements into the permit, or corrections to errors or omissions that might render the permit at odds with regulatory or statutory requirements. Combined with the ability of citizens to petition EPA to modify a permit (see Unit IV.C.4.a of this preamble and the existing procedures in § 124.6), these mechanisms provide sufficient opportunities for public participation throughout the life of the CCR unit. In sum, the Agency believes the proposed approach to issue federal CCR permits without expiration will result in permits that are effective and enforceable and provide appropriate mechanisms to require permits be kept up-to-date, while ensuring adequate transparency and public engagement. h. General Permit Provisions EPA is proposing at § 257.127 to establish procedures for issuance of one or more general permits, as an alternative to individual permits. The EPA is proposing that the Administrator could issue a general CCR permit to an identified category of CCR units involving the same, or substantially similar, operations, which are all subject to the same applicable requirements of subpart D and would require the same permit terms and conditions to achieve compliance with subpart D. See proposed § 257.127(a). A general permit would be issued when, in the opinion of the Administrator, it would be more appropriate to regulate those units under a general CCR permit than under individual CCR permits. A general CCR permit would be proposed in the Federal Register and finalized in accordance with the applicable requirements of part 124. Once a general permit is final, it would be available for eligible CCR units to seek coverage to satisfy the requirement to obtain a federal CCR permit. Each general permit would be written for a defined category of CCR units (e.g., a surface impoundment closing with waste in place, undergoing corrective action implementing a pump and treat system). EPA is proposing at § 257.127(b) that each general permit would identify criteria indicating which E:\FR\FM\20FEP2.SGM 20FEP2 lotter on DSKBCFDHB2PROD with PROPOSALS2 9954 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules CCR units are eligible for coverage. The general permit would contain all requirements necessary to achieve compliance with the requirements of subpart D applicable to those CCR units, and it would contain eligibility criteria limiting its availability only to those CCR units, as well as procedures to obtain coverage under the general CCR permit. Requirements in a general permit would also include liner design criteria, unit design criteria, structural stability requirements, location restrictions, inspections, groundwater monitoring, and posting information to a publicly accessible CCR website. A general permit could contain limitations not specifically found in subpart D, but which would be necessary for the general permit to require compliance with subpart D for each CCR unit covered by it. These terms and conditions could include operating limitations necessary to ensure the completeness and appropriateness of the terms and conditions in the general CCR permit. For example, if a general permit was issued for a category of CCR units that includes existing surface impoundments but excludes CCR units subject to the requirements § 257.73(c) through (e), the general CCR permit would not contain terms and conditions requiring compliance with § 257.73(c) through (e) (i.e., a compiled history of construction, periodic structural stability assessments, or periodic safety factor assessments). Such a general permit would instead contain limitations, derived from the applicability criteria in § 257.73(b), on the height (20 feet) or storage area and height (20 acre-feet and 5 feet) of CCR units covered by it. By including eligibility criteria in the general permit, which would limit its availability to CCR units operating at a height no greater than 20 feet, or a storage area no greater than 20 acre-feet and a height no greater than 5 feet, the general permit in this example would satisfy the statutory mandate to require compliance with subpart D, even though it would not include terms incorporating requirements in § 257.73(c) through (e). In addition to requirements in subpart D and operational limitations inherent to ensuring appropriateness of the terms and conditions, general permits would also include requirements regarding: Criteria for eligibility to be covered by the general permit, procedures to apply for coverage under the general permit, monitoring, reporting and notifications, and posting information to a publicly accessible CCR website. EPA intends that a general permit will proscribe clearly what types of CCR units are VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 eligible for coverage and will require compliance with those criteria. A general permit would contain clear procedures, with deadlines, for an owner and operator of a CCR unit to follow if, after obtaining coverage under the general permit, the CCR unit becomes ineligible for the general permit and must satisfy the requirement to have a CCR permit through another mechanism. EPA is proposing that coverage under a general permit would be optional. Even if a CCR unit is eligible for coverage under a general permit, the owner and operator could elect to apply for an individual permit instead. To obtain coverage under a general permit, an owner and operator must submit a request to be covered, in accordance with procedures provided in the general permit, and coverage would be effective 45 days after receipt of a complete and accurate request, in the absence of any objection from the Administrator. EPA intends that a request for coverage under a general permit will require more detailed information than an NOI for coverage under the permit by rule, but less than what would be required in an application for an individual CCR permit. Once a request for coverage has been submitted in accordance with the requirements in § 257.127(c) and the general permit, the permittee need take no further action to obtain a permit, provided the CCR unit meets the eligibility criteria. If the Administrator determines the CCR unit does not meet the eligibility criteria established in the general permit, the Administrator would notify the owner or operator in writing that an NOI or individual permit application is required, and will include a brief statement of the reasons for this decision and a deadline for the owner and operator to submit an NOI or individual permit application, and a statement that on the effective date of the individual CCR permit the general permit as it applies to the individual permittee shall automatically terminate. The determination that a permittee must apply for an individual permit would not be subject to judicial review as it is not a final permitting action. If an owner and operator requests coverage under a general permit for which a CCR unit is not eligible, they would be potentially subject to enforcement action for failure to apply for and obtain a CCR permit. The owner and operator would be required to comply with all applicable requirements of subpart D until an effective federal or Participating state CCR permit has been issued. EPA believes general permits may be an appropriate permitting mechanism in PO 00000 Frm 00016 Fmt 4701 Sfmt 4702 this program because the permitting universe has a limited number of types of CCR units, the waste management practices are relatively common among CCR units, and compliance monitoring and notification provisions are already generally established in subpart D. It is also possible that, as the corrective action portion of the program matures, there could be certain commonly used cleanup approaches, due to the limited number of regulated constituents, which are primarily the same chemical class (metals). The relative uniformity of CCR units and the focused regulatory requirements may make general permits an efficient and effective permitting approach for CCR units. If there are categories of CCR units with similar permitting needs, issuance of general permits could result in improved clarity about applicable regulatory requirements through quicker permitting of CCR units with enforceable and effective CCR permits. In exchange, a general permit would not be tailored to site-specific conditions and would not provide the specificity an individual permit could provide. Instead, it would be somewhat tailored to a category of CCR units (e.g., a general permit only available to certain types of surface impoundments would not contain subpart D requirements that are only applicable to landfills). A general permit would be issued without site-specific considerations and could not be modified for an individual permittee. EPA is proposing that only the following procedures in part 124 would apply to the issuance of a general permit: §§ 124.6–124.14. By contrast, requests for coverage under a general permit would not be subject to any of the part 124 procedures for applications because they are not applications for permits. The part 124 procedures applicable to the denial, termination, and modification of permits would not apply either to the issuance of a general permit or to the process of requesting coverage under a general permit; instead EPA is proposing routes for revocation or termination of coverage. EPA is requesting comment on the appropriate use of general permits, including categories of CCR units for which general permits may be appropriate, requirements for content in the streamlined application, whether public comment on individual applications for a general permit is appropriate, and whether EPA should be required to issue a determination that coverage under a general permit is appropriate for a particular CCR unit. E:\FR\FM\20FEP2.SGM 20FEP2 lotter on DSKBCFDHB2PROD with PROPOSALS2 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules i. Permit by Rule A permit by rule is proposed in § 257.128, which would deem the owner and operator of a new landfill or lateral expansion of a landfill to have a CCR permit as long as certain conditions are met. No subsequent or facility-specific permit would be issued and the owner and operator of a CCR unit eligible for the permit by rule would not be required to submit an application for EPA to review in order to qualify. However, a notification requirement is included in the proposed permit by rule, to allow EPA to track the universe of CCR units regulated under the federal CCR permitting program for purposes of program oversight and enforcement. The proposed permit by rule would only be available to new CCR landfills (which includes lateral expansions of CCR landfills) that meet the criteria in § 257.128 (e.g., the CCR unit must be in compliance with the applicable technical requirements of subpart D). The proposed permit by rule would only be available to new CCR landfills that meet the design criteria at § 257.70(a) or (b). A new CCR landfill constructed with an alternate composite liner, as provided at § 257.70(c), would not be eligible for the permit by rule. See proposed § 257.128(a)(1)(vi). In addition, groundwater monitoring of the uppermost aquifer must show no detections of constituents in Appendix IV at a statistically significant level above a groundwater protection standard, which would trigger corrective action requirements. See proposed § 257.128(a)(1)(vi). There must also be no non-groundwater releases from the CCR unit; the proposal would require the owner and operator to apply for a general permit or individual CCR permit if a leak or release is detected. See proposed § 257.128(a)(10) and § 257.128(b). Similarly, EPA is proposing that, no less than 180 days prior to initiating closure of any unit covered by the permit by rule, the owner and operator must apply for either a general or individual permit. See proposed § 257.128(a)(4) and § 257.128(b). If a CCR unit is designed or operated in any way that deviates from the criteria in § 257.128(a), it would no longer be eligible for the permit by rule and the owner and operator would be required to apply for an individual or general CCR permit within 60 days of becoming ineligible; e.g., if an owner or operator completes a statistical analysis and identifies a statistically significant increase in the monitoring data above a groundwater protection standard for any constituent in Appendix IV. These restrictions on VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 eligibility for the permit by rule are necessary to ensure that compliance with the requirements of the permit by rule will result in compliance with applicable requirements in subpart D. Additionally, EPA believes that the subpart D requirements which would be applicable when any of these conditions are not met are more appropriately addressed by a general or individual CCR permit. EPA is proposing the permit by rule for new CCR landfills based on the risks these types of units present and the nature of the technical requirements. EPA’s 2014/2015 risk assessment 8 shows that CCR landfills meeting the liner requirements in subpart D present significantly lower risks than the other types of units regulated under subpart D, generally by an order of magnitude. Furthermore, the proposed criteria in § 257.128 are designed to ensure that these units continue to operate safely. This provision is limited to units constructed with a composite liner and a leachate collection and removal system that meet the requirements in § 257.70(a), (b) and (d). The unit must also comply with all location restrictions standards. The design and operating standards applicable to the new CCR landfills eligible for the permit by rule at § 257.70(a), (b), and (d) through (g) are generally both less extensive and more prescriptive than for other CCR units. Consequently, these units have few options for compliance and operational practices are not expected to vary widely to account for site specific conditions; the requirements should therefore be relatively uniform. To ensure this remains the case, EPA is proposing to restrict eligibility for permit by rule in § 257.128 to units that have not initiated corrective action or closure. The compliance options for closure can vary substantially in response to site conditions, and EPA therefore considers that these activities warrant the oversight and ability to more precisely tailor the requirements that comes from an individual permit. Newly constructed landfills are expected to operate for a significant time before either closure of the unit or corrective action becomes necessary. If the owner and operator is operating a CCR unit in accordance with the permit by rule and a change occurs that makes the unit ineligible for the permit by rule, EPA is proposing at § 257.128(b) a requirement to apply for an individual 8 US EPA, ‘‘Human and Ecological Risk Assessment of Coal Combustion Residuals’’, December 2014. This document is available at www.regulations.gov as docket item EPA–HQ– RCRA–2009–0640–11993. PO 00000 Frm 00017 Fmt 4701 Sfmt 4702 9955 or general permit within 60 days of the change, e.g., within 60 days of completing statistical analysis that identifies a statistically significant increase above a groundwater protection standard for any Appendix IV constituent. An application for an individual or general permit would also be required no less than 180 days prior to initiating closure. Because the requirements in subpart D applicable to the CCR units meeting the proposed criteria in § 257.128(a) are fairly straightforward, EPA does not believe issuance of an individual CCR permit would add significant value as far as clarifying applicable requirements, Agency review of an application, or public comment. The permit by rule would require compliance with applicable requirements of subpart D until a more complex determination of applicable requirements and appropriate compliance strategies is needed, such as when the unit begins closure. The permit by rule would allow the Agency to focus on issuing individual CCR permits to other facilities and CCR units facing complex applicability issues and compliance strategies. Individual CCR permits remain appropriate in these circumstances, where the permit issuance process may provide more value in terms of clarification to the permittee, the Agency, and the public regarding applicable requirements and acceptable compliance approaches. EPA is requesting comments on this approach, and whether there are other categories of units that could be appropriately permitted by rule. j. Transfer of Permit Program Administration EPA anticipates that after federal CCR permit applications have been submitted, or possibly after federal CCR permits have been issued, one or more states may obtain CCR State Permit Program approval and begin permitting CCR units in lieu of the federal program. Alternatively, after a state has been operating an approved CCR State Permit Program, the state could relinquish the program or EPA could withdraw the approval, and the CCR units in that state would need to be permitted by EPA under the federal program. These situations would require close coordination between the state and EPA to clarify permittee compliance obligations, as well as each agency’s responsibilities, during such a transition. RCRA § 4005(d)(2)(B) provides authority to implement a federal CCR permit program only in Indian country E:\FR\FM\20FEP2.SGM 20FEP2 9956 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules lotter on DSKBCFDHB2PROD with PROPOSALS2 and in nonparticipating states. EPA is proposing at § 257.129 procedures to transition between federal and state CCR permit programs when approvals of state CCR permit programs are issued or withdrawn. Because each state has its own regulatory procedures (usually established by statute and/or regulation) EPA anticipates that the procedures necessary to transfer administration of a permit program between a state and EPA will necessarily vary. Based on its specific circumstances, a state might prefer, for example, to revoke and reissue all permits immediately, or the state might prefer to have EPA continue to administer a small subset of permits for some period of time (e.g., where the facility is in the final stages of corrective action). To allow for this, EPA is not proposing to establish uniform procedures for transferring documents and responsibilities associated with CCR permit program administration. Instead, the procedure to be used would be specified in the proposed and final notices announcing the change in CCR State Permit Program approval status. Further details could be specified in a Memorandum of Agreement (MOA), a letter, or a Federal Register notice. If a program is being transferred to EPA from a state and the application deadlines established in § 257.124 and subsequent Federal Register notices have passed, alternative deadlines will need to be established for CCR units previously regulated by the state to apply for a federal permit. EPA is proposing language that would require these alternative compliance deadlines to be proposed and finalized in a Federal Register notice. EPA envisions that during a transition period when administration of a CCR permitting program is being transferred between EPA and a state, any CCR permits that have been issued by one agency would remain in effect until a new CCR permit issued by the agency receiving the program is effective. Details about this and other issues would be clarified in a notice provided by EPA, or in a MOA between EPA and the state agency. 2. Permit Applications EPA is proposing at § 257.130 to require the owner and operator of one or more CCR units subject to subpart D meeting the applicability criteria in § 257.123(a) to submit a timely and complete application for a federal CCR permit. The deadlines for the submission of applications would be established as proposed in § 257.124, and requirements for content of an application are proposed in § 257.131. An application would be considered VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 timely and complete when it meets the requirements proposed in § 257.124, § 257.130, and § 257.131 and when the applicant(s) submit any supplemental information requested by the Administrator that is necessary to establish permit conditions to require compliance with subpart D, including to assess the applicability of subpart D. a. Permit Application Requirements EPA is proposing at § 257.130(a)(1) that a CCR permit application must contain information about each CCR unit at the facility, as well as operations beyond the CCR units related to the solid waste management of CCR. All portions of the CCR permit application relevant to the CCR units must be completed, except as discussed in the next two paragraphs. While subpart D primarily regulates CCR units, solid waste management activities which occur beyond the unit boundary may be subject to requirements in subpart D (e.g., fugitive dust control along roadways that are used to transport CCR beyond the unit). Information about solid waste management activities could also be necessary for the Administrator to establish permit conditions to ensure compliance with the requirements, or determine applicability, of subpart D. One example of this is where non-CCR waste streams are managed in CCR units. A CCR permit application could require information about those waste streams, such as volumes or water content. There may be cases where there are multiple CCR units at a facility subject to federal CCR permit requirements, and one or more has already met this requirement through the permit by rule provision in § 257.128, or through coverage obtained in a general permit issued in accordance with § 257.127. In these cases, EPA is proposing at § 257.130(a)(2) that detailed information about the CCR unit(s) that have already satisfied the federal permitting requirements would not be required in a permit application for the remaining CCR units at the facility in order for that permit application to be complete. However, EPA may request some limited information on these units, for identification purposes or as needed to assess applicability and draft permit terms for other CCR units at the facility, in the application. There may also be cases where one or more CCR units at a facility are subject to federal CCR permitting requirements and one or more other CCR units at the facility are not. This could happen if the state is partially nonparticipating (i.e., a partially-approved state program). In these cases, only detailed information PO 00000 Frm 00018 Fmt 4701 Sfmt 4702 about CCR units or related solid waste management activities subject to regulation under the federal CCR permit program would need to be included in the federal CCR permit application. EPA may request identification of stateregulated CCR units or related solid waste management activities at the facility in the permit application, but the content requirements in § 257.131 would not apply to these CCR units, which are excluded from the federal CCR permitting requirements by RCRA section 4005(d)(2)(B). As discussed in Unit IV.B.2 of this preamble, EPA is proposing to rely on the existing procedural requirements in part 124 for CCR permits. This would include the provisions at § 124.3 requiring EPA to determine that the applicant(s) has fully complied with the CCR permit application requirements before beginning to process an application. Consistent with § 124.3(c) EPA would review the application for completeness, and if the application is found to be incomplete, EPA will notify the applicant(s) in writing and will list the information necessary to make the application complete. In practice, EPA has frequently informally requested additional information from the applicant or provided an opportunity to supplement their application prior to triggering a formal notification that an application is incomplete. EPA generally expects to adopt a similar practice for CCR permit applications. The requirement at § 257.130(a) for both the owner and the operator to submit the permit application, and to be joint permittees, reflects the joint and several liability established under subpart D for the owner and operator. In addition, based on EPA’s experience implementing the part 270 regulations, it is important that both the owner and operator be permittees. When the facility or unit owner is not the operator, he or she may be removed from daily activities. A requirement to certify the permit application ensures that the owner has at least some familiarity with the facility operations for which he or she will be liable. It also ensures that the owner is aware of and acknowledges this potential liability. EPA recognizes some owners may believe this transparency is unnecessary and may be willing to accept joint and several liability for submittals and permit applications signed and certified solely by the operator. EPA is proposing an option in § 257.130(a)(2) to allow the owner to defer to the operator’s signature and certification of posted documents, submittals and applications, while remaining a permittee and accepting joint and several liability for E:\FR\FM\20FEP2.SGM 20FEP2 lotter on DSKBCFDHB2PROD with PROPOSALS2 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules those submittals and compliance with the federal CCR permit, as modified. EPA believes this acknowledgment of liability, and the issuance of all federal CCR permits to both owners and operators, would result in permits which are as effective and enforceable as they would be if an owner signed and certified each posted document, submittal, or application individually. After a permit is issued, the owner would remain a permittee, subject to civil or criminal enforcement, as appropriate, for any violations of the permit conditions or these regulations. With respect to transparency about the requirements, each permit or permit modification would be issued to both permittees, and the owners would be aware of requirements in the permits. Owners would have the right to comment on any draft permit or appeal any final permit if he or she did not believe the permit conditions were in accordance with regulatory or statutory requirements. EPA is requesting comment on this approach. EPA is proposing at § 257.130(b) that an application is complete when the Administrator receives the information required by §§ 257.130 and 257.131, including any supplemental information requested during review of the application, about all CCR units and related solid waste management operations at the facility, and the application is completed to the Administrator’s satisfaction. For example, the Administrator could determine an application to be incomplete under these provisions where portions of the permit application are not sufficiently detailed to allow the Administrator to determine the specific requirements in subpart D that apply to the facility or to draft the terms and conditions necessary to require compliance with the regulatory requirements or the statutory standard. The breadth of this requirement corresponds to the statutory mandate that federal CCR permits must require each CCR unit to achieve compliance with the requirements of subpart D; EPA must be able to require sufficient information to issue permits that meet those standards. The proposed standard for completeness would include any supplemental information requested by the Administrator during the review of the application (i.e., before the application is determined to be complete). After the application is determined to be complete, consistent with § 124.3(c), EPA may request additional information from the applicant(s) but only when necessary to clarify, modify, or supplement VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 previously submitted material. Requests for such additional information will not render an application incomplete. Any notice of incompleteness or request for supplemental information issued pursuant to this process would clearly state the information that is missing and provide a deadline for submittal, to avoid delays in permit issuance. If the applicants fail to respond to a notice of incompleteness or to correct the identified application deficiencies, EPA may deny the permit and initiate enforcement action under RCRA section 3008. See § 124.3(d). EPA is proposing at § 257.130(c) to require the applicant(s) to submit any information determined to be missing from or inaccurate in the permit application to the Administrator as soon as the applicant becomes aware of the missing, new or corrected information. This requirement would apply even without a request from the Administrator. As operations continue after the application is submitted, changes to the facility or operations may occur or new information may become available through monitoring that would result in a different CCR permit application than the application previously submitted. Proposed § 257.130(c) would also require submittal of inadvertently omitted information and revisions to incorrect information, as soon as the applicant becomes aware of it. EPA believes this requirement comports with RCRA section 4005(d). In order to correctly determine applicability and appropriate permit terms EPA must have correct, up-to-date information about the CCR units and facility operation. Consistent with the requirements of subpart D (which apply to both owners and operators), and with the proposal to require both operators and owners to obtain a permit, EPA is proposing that this requirement would apply independently to the owner and operator where they are not the same person, and that either would be required to submit corrected or updated information when it becomes available. EPA is proposing in § 257.130(d) to allow CBI claims in a federal CCR permit application for any information that is not required to be made publicly available under part 257. An applicant would be required to claim information in the permit application as CBI at the time of submittal. The applicant would be required to provide supporting documentation of the validity of the claim. If EPA determined the information to be CBI, it would be treated in accordance with requirements in part 2, which would limit public availability of the information. This PO 00000 Frm 00019 Fmt 4701 Sfmt 4702 9957 proposed provision would ensure compliance with requirements in part 2 regarding proper treatment of CBI. EPA is not aware of any information that would be required in the permit application which would qualify as CBI and is requesting comments on this provision and on inclusion of CBI procedures in the proposal. The Agency specifically requests comments providing examples of information to be required in a CCR permit application that might be claimed as CBI. All CCR permit applications would require certification for truth, completeness and accuracy, based on reasonable inquiry, by a responsible official in accordance with proposed § 257.130(e). The language proposed to be required in the certification is similar to certification language required by other federal environmental permit programs in parts 71, 122 and 270. The level of responsibility held by a responsible official within various organizational structures is provided in the proposed definition of responsible official in § 257.121. EPA believes the proposed requirement for certification of the application is appropriate to fully implement the WIIN Act and issue CCR permits which require compliance with subpart D, in light of the permit shield provision. Certification by a responsible official of the truth, accuracy and completeness of the application, upon which the permit will be based, would ensure a level of care in preparation of the application. This certification demonstrating that a responsible official has taken adequate care in the preparation of the application can help to prevent any failure on the part of CCR unit owner and operator to meet the requirements of RCRA through error or omission, or by carelessness or deliberate act. The certification language also would provide the responsible official with clear notice of enforcement liability for any such lack of due care. See also proposed § 257.130(e)(1). EPA is proposing in § 257.130(f) to require that records of data and information supporting the application for the federal CCR permit be maintained for the life of the permit. Because EPA is proposing that CCR permits be issued without an expiration date, the application for a CCR permit would also be a lifetime application, through the active life of the unit, postclosure care, and until completion of all corrective action. However, EPA anticipates the permit application will be revised as operations or regulations change, when inadvertently omitted, new or corrected information becomes available or when the applicant applies for a modification. EPA is proposing E:\FR\FM\20FEP2.SGM 20FEP2 9958 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules lotter on DSKBCFDHB2PROD with PROPOSALS2 that the permittee must maintain these records until the contents of the application change such that the records no longer support the application, or until the permittee no longer has compliance obligations in subpart D and the CCR permit is terminated. If the applicant revises or modifies the application, old records which no longer support the revised or modified application would no longer need to be maintained, unless they were subject to other recordkeeping requirements in this rule (e.g., a groundwater well construction diagram). Because the application will be a living document and CCR permits will be issued with no expiration date, it is important that the applicant maintain all records and supporting documentation used to support the application for the permit. b. Permit Application Contents The proposed application requirements in § 257.131 envision the application would contain sufficient site-specific information that permit terms could be drafted to include all applicable requirements of subpart D and incorporate site-specific approaches to compliance, considering factors such as local geology, hydrogeology and ecology as well as the design, construction, operation, maintenance, and monitoring of the CCR unit. Applications would be required to contain information about the facility, the owner and operator, CCR unit(s), features surrounding the unit(s), and operating conditions at the unit(s). The proposed regulatory text describes types of information that would be required in each of these categories, with examples that are intended to be clarifying but not limiting. EPA is proposing specific language to require an applicant to provide site-specific plans and nonnarrative information, such as maps, drawing, figures, or other visual information, as appropriate in any of the categories listed above. EPA intends to provide an electronic permit application form, as discussed in Unit V of this preamble. EPA is proposing in § 257.131(a)(1) to require information about the facility in the CCR permit application. While subpart D primarily regulates CCR units, some requirements apply to property or operations beyond the boundaries for the CCR unit, such as fugitive dust control criteria or corrective action requirements; EPA may therefore request information directly related to those requirements. Information about the operating history of the facility may be necessary to determine applicability of requirements in subpart D to certain units (e.g., the date when a CCR unit VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 began receiving waste). In § 257.131(a)(1) the proposal describes types of information about the facility which would be required in the CCR permit application, including the facility’s physical location and a description of the facility and its operations. This could include a description of the number of CCR disposal units at the facility, production rates, how CCR are handled at the facility (e.g., dry handling, sluicing), and how the CCR are transported to the unit after generation. Information about what the facility produces in addition to electricity, if anything, and how long the facility has operated would also be required, in addition to identification of the publicly accessible CCR website the applicants intend to use to comply with information posting requirements. The application would also require an indication of whether an initial, revised, or modified permit is requested. EPA believes all this information is necessary to draft permit terms and conditions to require compliance with subpart D, including to assess applicability. To the extent the Administrator needs the information to issue a CCR permit that meets the requirements in RCRA section 4005(d), additional information about the facility not specifically listed may be requested in the CCR permit application. EPA is proposing to require sufficient information about the applicant(s) to contact them during and after the process of issuing the permit in § 257.131(b). Information about the ownership status would be needed to issue the permit to the correct person(s) and to review the required certification by an appropriate responsible official. Information in other environmental permits held by the owner and operator is potentially relevant to the issuance of the CCR permit, such as state-issued permits for construction of the CCR unit, air permit requirements for fugitive dust control, or environmental permits related to other federal considerations (e.g., scenic rivers). Additional information about the applicant(s) not specifically listed in § 257.131(b) may be requested by the Administrator, insofar as the Administrator needs the information to issue a CCR permit that meets the requirements in RCRA section 4005(d). EPA is proposing at § 257.131(c) to require information about CCR unit(s) in a permit application. The CCR permit application would require sufficient information about each CCR unit at the facility to allow the Administrator to issue a permit to require compliance with, including to assess the applicability of, subpart D. EPA is PO 00000 Frm 00020 Fmt 4701 Sfmt 4702 proposing to require information in the application about the location, design, construction, operation, maintenance, closure and retrofit of each CCR unit to be permitted (e.g., design of liner, description of run-on/runoff controls, design of structural stability controls and monitoring procedures, construction and placement of groundwater monitoring wells, statistical methods used to evaluate groundwater data, procedures and methods used to take samples and ensure data quality, any remedial measures in place, any closure activities conducted, and type of monitoring conducted such as detection, assessment, or corrective action). The application must describe site-specific compliance approaches the applicants are proposing to use to meet applicable requirements. Some of this information may be provided in plans, maps, drawings or diagrams attached to the permit application. EPA intends to use this information to assess applicability of requirements of subpart D, and to draft terms and conditions to require compliance with those applicable requirements. For example, information about the design of the liner in a CCR unit would allow the Administrator to draft a permit requiring compliance with a particular liner design requirement, where the applicant has selected one design alternative from multiple options. In another example, information about run-on and run-off controls used at a CCR landfill would allow the Administrator to draft permit terms and conditions requiring the permittee implement those controls, and monitoring their effectiveness, to meet these requirements in subpart D. A substantial amount of the information that would be required by § 257.131(c) for each CCR unit in a permit application would already have been developed and posted on a publicly accessible CCR website in accordance with subpart D, which requires site-specific plans for compliance on issues like run-on and runoff control, fugitive dust control, groundwater monitoring, etc. These plans must contain maps, drawings, and other documents that would satisfy many of the proposed application requirements. EPA is requiring submittal of this information in the permit applications, rather than allowing applicants to refer the Administrator to download documents from the public websites, for several reasons. The nature of web posting allows potentially frequent changes or amendments to posted documents, and submittal of these documents ensures E:\FR\FM\20FEP2.SGM 20FEP2 lotter on DSKBCFDHB2PROD with PROPOSALS2 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules that EPA is reviewing the version the applicant intends EPA to use in the permitting action. Additionally, the proposed requirement for the CCR permit application to be certified for truth, completeness and accuracy, consistent with other federal permitting programs, requires submittal of all supporting information in the application. EPA believes that electronic submittal of CCR permit applications will minimize any burden associated with submittal of materials that may be available on publicly accessible CCR websites, and that the minimal effort associated with electronic submittal of those documents is warranted by the benefits of receiving a certified application directly from the applicants. EPA is proposing in § 257.131(d) and (e) that the CCR permit applications would be required to contain information about the natural conditions and features surrounding each CCR unit to be permitted. The applicants would be required to provide technical and other information about the geologic, hydrogeologic and ecologic characteristics and features of the area surrounding the CCR unit, including assessment of subsurface characteristics. At a minimum, this would include information about the locations of any floodplains, wetlands, endangered species, fault lines or unstable areas, measured and modeled groundwater elevations, subsurface lithology including any confining units, surface water features, soil and subsoil characteristics, groundwater well locations and uses and adjacent land uses. This information would be provided for the areas underlying and in proximity to the CCR unit. These features have the potential to impact every aspect of the CCR unit and the effectiveness of the compliance approaches to be incorporated in the CCR permit. These include impacts to the effectiveness of the liner, stability of the unit, operation of the unit and its control structures, the effectiveness of proposed monitoring approaches and well locations, determination of background concentration of regulated contaminants, the appropriateness of proposed closure procedures, considerations of other applicable federal requirements listed in proposed § 257.122, and the appropriateness or effectiveness of any corrective action remedy, including monitoring to assess the effectiveness of that remedy. The owner and operator must provide this information for all past, present, and planned CCR units to be included in the permit. The information required in a CCR permit application in § 257.131(f) would VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 include attachments, such as sitespecific compliance plans required by subpart D, and visual representation of information, such as maps and drawings. This information is necessary to allow the permit writer to understand site conditions and evaluate applicability of requirements and compliance strategies proposed by the owner and operator and to draft terms and conditions that will ensure compliance with the requirements of subpart D. For example, potentiometric maps indicating groundwater flow direction are necessary for the permit writer to establish requirements in the permit pertaining to groundwater monitoring and site-specific background concentrations. The attachments required will depend upon the type of CCR unit—not all items listed would be required for all units. Similarly, additional documents not specifically listed may be needed in a permit application for certain units. For example, if a CCR unit is operating under the terms of a compliance order which requires an operating plan for a corrective action remedy, that plan should be included in the CCR permit application. The listed examples of plans include those required by subpart D (e.g., emergency action plan required by § 257.73, fugitive dust control plan required by § 257.80, run-on and run-off control system plan required by § 257.81(c), inflow design flood control system plan required by § 257.82(c), assessment of corrective measures required by § 257.96, closure plan or retrofit plan required by § 257.102, and post-closure care plan required by § 257.104). The examples of maps required in a CCR permit application include a site map; a topographic map; and a sufficient number of potentiometric maps, illustrating the direction of groundwater flow, to capture temporal and seasonal changes in flow direction. These examples are provided for clarity and are not intended to be limiting. Other maps may be required in the CCR permit application, depending on site-specific circumstances at the CCR unit. The standard for completeness regarding plans, maps, drawing, and other documents is the same as the standard proposed for all other application elements; the information must be sufficiently complete for the Administrator to issue a permit to require compliance with subpart D, including to assess the applicability of subpart D. The proposal requires minimum elements to be included in each type of map so that multiple pieces of PO 00000 Frm 00021 Fmt 4701 Sfmt 4702 9959 information may be viewed on the same page. Elements to be required in maps, drawings, and diagrams include minimum elements necessary for someone reading them to understand information in the permit application holistically, in the context of the requirements of subpart D. For example, when reviewing monitoring well data, it is helpful to have a map that indicates all the following: The location of the CCR units, the location of each groundwater monitoring well with its identification noted and the direction of groundwater flow. When evaluating a proposed schedule for conducting corrective action activities, for example, it would be helpful to have a map with the location of the CCR unit, the direction of groundwater flow, the location(s) of groundwater monitoring wells where detections above background or groundwater protection standards have occurred and the detections, and the location of any downgradient potable wells. These are simply examples of situations where a well-designed map or drawing will depict multiple pieces of information together to facilitate understanding of the situation at, around, and below the CCR unit. It may be appropriate to provide additional elements on these maps for some CCR units, depending on site-specific conditions. EPA believes that, generally, permit applicants have developed maps, drawings, and diagrams required by subpart D in a manner consistent with the requirements proposed here. To the extent that owners and operators of CCR units have not done so, EPA is proposing to require such appropriate representation of data in the CCR permit applications. All information in the application must be presented in a manner that is organized and clearly labeled, so it can be understood by another person. EPA is proposing this requirement explicitly based on experience reviewing information posted on the publicly accessible CCR websites. In some instances, information posted on these websites has been disorganized and not labeled, making it difficult for a reader to identify, for example, the date and sampling location of posted groundwater sampling results, or the type of groundwater monitoring wells (i.e., background or downgradient) depicted on a groundwater monitoring system map. To avoid delays in permit issuance associated with potentially lengthy review of unclear permit application materials and incompleteness determinations, and to minimize the potential for erroneous E:\FR\FM\20FEP2.SGM 20FEP2 lotter on DSKBCFDHB2PROD with PROPOSALS2 9960 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules permitting actions, EPA is proposing to establish this requirement for clarity and organization. EPA may implement this standard through incompleteness letters, incompleteness determinations, or ultimately permit denials, if a permit application contains such lack of clarity or disorganization that the Administrator cannot draft a permit and the applicants do not correct the application. EPA is proposing to require information necessary to evaluate the appropriateness of compliance strategies proposed in the application. Such strategies may include, but are not limited to, establishing the minimum number of downgradient wells needed to characterize groundwater quality, design of a run-on control system, establishing background concentration of constituents in groundwater upgradient of the CCR unit, establishing buffer zones to protect wetlands or sensitive ecosystems, or delineating of the nature and extent of releases when assessing corrective action measures. One example of this would be sampling data used to calculate hydraulic conductivity of a liner designed to comply with § 257.70(c). The examples included in the proposed regulatory text are intended to be clarifying but not limiting, and EPA is proposing at § 257.131(a) that the standard of completeness for the application with respect to these materials be what is sufficient to support decisions by the Administrator to draft permit conditions to require compliance with, including to assess the applicability of, the requirements of subpart D. One type of document required by subpart D that is not included in the application requirements listed in § 257.131(f) is third-party, or Professional Engineer (P.E.), certifications required by subpart D. An applicant may include these in the CCR permit application, but EPA is not proposing to require them. The P.E. certifications are based on information required in the permit application, which EPA will review in the process of writing the permit. Also, based on cursory review of some of the P.E. certifications posted on publicly accessible CCR websites, they may not contain any substantive information that would be helpful in drafting a permit. Finally, a review of a P.E. certification to determine whether it meets the requirements of subpart D would be a compliance assurance function, rather than a permitting function. For these reasons, P.E. certifications are not included in the proposed requirements for a CCR permit application. VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 EPA envisions that all applications for CCR permits would be submitted electronically (e-permitting). Discussion on e-permitting approaches is found below in Unit V of this preamble. EPA intends to provide an electronic CCR permit application form to owners and operators. EPA envisions that some of the information required in the application would be submitted by responding to questions on the electronic form in various formats (e.g., typing in narrative responses, selection from a multiple-choice list, selecting true or false). Other information would need to be attached to the application electronically (e.g., maps, drawings, diagrams, or site-specific plans describing compliance strategies). EPA intends to make the application a living document, to be updated and amended, and submitted and certified for truth and accuracy, throughout the life of the permit. EPA believes this approach may improve the accuracy of the permit application and the quality of federal CCR permits, while minimizing the regulatory burden to applicants by eliminating the need to re-submit information the Agency has already received in an application. c. Periodic Review of Permit Applications EPA is proposing that CCR permits would be issued without an expiration date, as discussed in Unit IV.C.1.g, and it is hypothetically possible that a CCR permit could be based on a permit application that is many years old. EPA does not believe this situation will occur frequently, based on EPA’s proposal at § 257.151 to require owners and operators to seek to modify their permit whenever any of their solid waste management operations involving CCR no longer reflect the operations described in their permit or permit application and to require that the owner and operator update the entire application whenever any permit modification is sought. Consequently, EPA expects that most CCR permits would be modified throughout the life of the permit (i.e., evergreen permits) and the CCR permit application would be modified by the permittee(s) at those times, providing EPA with current information about permitted activities. To address potential situations where many years could pass with no changes to the permit or the application, and to ensure that CCR permits remain up-todate, EPA is proposing at § 257.132 to require that each permit application be reviewed by the permittee no less frequently than every ten years after the date of permit issuance or the last modification. At the ten-year review, the PO 00000 Frm 00022 Fmt 4701 Sfmt 4702 permittee(s) would be required to review the permit application and either submit necessary revisions to the application to ensure that it continues to meet the CCR application requirements of §§ 257.130 and 257.131 or submit a statement that the application continues to meet those requirements and remains accurate and complete. Responsible officials for the owner and operator would be required to certify for truth, completeness, and accuracy either a statement that the permit application remains current or an amended permit application. If the permittee determines during a periodic review that the permit application is no longer accurate or no longer meets the proposed application requirements under §§ 257.130 and 257.131, the Agency is proposing at § 257.132(c) that the permittee must take certain actions. First, the permittee would be required to revise the permit application to meet the proposed requirements in §§ 257.130 and 257.131 and accurately reflect current operations and changes that may have occurred since the previous application was submitted. If changes to the application warrant a modification to the CCR permit, the permittee would be required to apply for a permit modification according to the proposed procedures in § 257.152. The permit application would need to be certified for truth, accuracy and completeness by a responsible official in accordance with proposed requirements in § 257.130(e) and submitted to the Administrator. A major modification would invoke the public participation requirements in part 124. For example, draft permits are subject to public notice, public comment, and in some cases, a public hearing. These procedures would allow the public to bring forward comments concerning any draft permit or its supporting materials prior to permit issuance. EPA is proposing at § 257.132(d) that permittees complete periodic reviews of their most recent CCR permit application no later than ten years after the date of permit issuance or after any reissuance or modification of such permit, whichever date is later. For all subsequent permit application reviews, the review would need to be completed no later than ten years after the date of the submittal resulting from the previous permit application review or after the date such permit is reissued or modified, whichever date is later. If the permit is modified or otherwise issued with a new date, the ten-year review period would begin on that new date in the permit. For example, if the initial CCR permit was issued on October 20, E:\FR\FM\20FEP2.SGM 20FEP2 lotter on DSKBCFDHB2PROD with PROPOSALS2 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules 2022, the permittee would be required to complete the permit application review no later than October 20, 2032. Alternatively, if the initial CCR permit was issued on October 20, 2022, and the permit was modified on February 21, 2025, the permittee would be required to complete the periodic permit application review no later than February 21, 2035. In the second example, the permit modification during the third year after permit issuance would have the effect of resetting the ten-year period during which the application review must be conducted. EPA anticipates that facilities with operating CCR units or that are in the midst of corrective action will seek to modify their permits at least once in any ten-year period; based on the proposal to reset the clock with every modification, it is therefore likely that the ten-year periodic review will never be triggered for most facilities. Instead, for these facilities, the equivalent of this review will occur in the context of each modification, based on EPA’s proposal at § 257.151(b)(1) and (d)(1) to require a facility to update the entire application whenever any permit modification is sought. By contrast, the proposed tenyear review is intended to address those situations in which the permit has not been modified in the last decade— which are expected to be the exception and are most likely to be facilities with CCR units exclusively in post-closure, with no corrective action requirements. For the CCR permitting program, EPA believes that an application review that occurs no less frequently than once every ten years will provide an appropriate level of review and attention to maintaining an updated CCR permit application. A ten-year timeframe is consistent with the effective term of a RCRA hazardous waste permit. See RCRA 3005 (c)(3). The ten-year application review requirement is a complement to, and does not replace, the requirements for permit modifications proposed in §§ 257.150 through 257.152 and the requirement to submit new or changed information in § 257.130(c). If the ten-year application review identifies a modification that has occurred at the CCR unit without a required permit modification, the permittee may be subject to enforcement for failure to comply with modification procedures in §§ 257.150 through 257.152. As discussed in Unit IV.C.1.i of this preamble, EPA is proposing a permit by rule for certain CCR units. The Notification of Intent required by § 257.128 does not contain detailed information about the CCR unit, but a VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 periodic review of the Notice of Intent would provide EPA with current information from the owner and operator about the eligibility of the CCR unit for the permit by rule. EPA believes that CCR units operating in accordance with the permit by rule may update the Notice of Intent infrequently if at all, and it is expected that a new landfill or lateral expansion of a landfill may operate for many years without detecting a groundwater contaminant in part 257 Appendix IV above a groundwater protection standard. A CCR unit operating in accordance with the permit by rule could reasonably be expected to do so for longer than 10 years. To ensure that all CCR permits are kept up-to-date, the Agency is proposing that CCR units operating under a permit by rule would be subject to the periodic permit application review requirements for the Notice of Intent. EPA is proposing in § 257.127 procedures to issue one or more general permits applicable to categories of similar CCR units subject to the same requirements in subpart D. Because a general permit would be drafted to accommodate a narrow set of circumstances, the application for a general permit would be streamlined and less detailed than an application for an individual CCR permit. Until a general permit is established with its own eligibility criteria, the potential frequency with which a CCR unit might either meet those criteria and apply for the general permit or might cease to meet the eligibility criteria and submit an application for a different type of CCR permit is unknown. However, periodic review and recertification of the application submitted would provide the same value for a general permit application as it would for an individual permit application. EPA has identified no reason to exclude CCR units operating under a general permit from a requirement to review and resubmit an application no less frequently than every ten years. Consequently, EPA is proposing that CCR units operating under a general permit would be subject to the periodic application review requirements proposed at § 257.132. d. Permit Denial The proposed language in § 257.133 would establish the grounds for which EPA may deny an application for an individual CCR permit. Denial of a permit could have significant consequences, including the requirement that the facility cease receipt of waste into the CCR unit. Based on experience under other federal PO 00000 Frm 00023 Fmt 4701 Sfmt 4702 9961 permitting programs, EPA expects that denial of a CCR permit would occur rarely; however, it is important to establish the circumstances under which EPA would exercise this authority, to ensure that permit applicants are fully apprised of the legal standards that will apply to their applications. The grounds for denial of a permit application, which are set forth at proposed § 257.133(a), largely mirror those EPA is proposing to establish for termination of a permit in § 257.153. Specifically, EPA is proposing that any of the following would be grounds for denial: (1) Failure by the permittee in the application or during the permit issuance process to disclose fully all relevant facts; (2) Misrepresentation by the permittee of any relevant facts at any time; (3) A determination by the Administrator that the reasonable probability of adverse effects arising from disposal or other solid waste management of CCR can only be regulated to acceptable levels by permit denial; (4) The Administrator has received notification of an applicant’s intent to be covered by a general permit issued in accordance with § 257.127 or the permit by rule in § 257.128; and (5) EPA has transferred administration of the permit program to a state in accordance with § 257.129, and the state permit is in effect for each CCR unit at the facility. The latter two situations may be cases where a facility would prefer to withdraw its application. EPA considers that withdrawal of the application may be an equally appropriate mechanism to close out the federal action, but requests comment on whether there are competing considerations. One ground that is unique to this section specifies that denial may be appropriate when an applicant fails to respond to an incompleteness determination with submittal of a complete permit application. This ground corresponds to the procedures under § 124.3 that are discussed in Unit IV.B.1 of this preamble. The provisions proposed at § 257.133 would also specify that EPA may deny an application in whole or in part. As previously discussed, EPA is proposing to require a permit not only for disposal, but also to conduct all activities subject to requirements in subpart D (e.g., monitoring, retrofit, closure, postclosure care and corrective action). The proposal at § 257.133(a) specifies that EPA may deny a CCR permit for certain activities (e.g., to dispose of waste in a CCR unit), but issue a permit to conduct other activities at that unit (e.g., closure, post-closure care, or corrective action). E:\FR\FM\20FEP2.SGM 20FEP2 lotter on DSKBCFDHB2PROD with PROPOSALS2 9962 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules Or, as a further example, EPA may deny a permit for waste disposal at one CCR unit at a facility but may permit disposal at a different CCR unit at the same facility. For the same reasons, EPA seeks public comment on its proposal that the Administrator may partially deny a permit for any of the enumerated grounds even if the application is incomplete; for example, EPA may deny a permit to operate one unit if information is lacking for that unit but grant the remainder of the application if the information is otherwise complete. See proposed § 257.133(b). As noted earlier, EPA is proposing to rely on the existing procedures in part 124, which include procedures to deny a permit application (e.g., procedures applicable to issuing a notice of intent to deny at § 124.6(b)). Under those procedures, the applicant may correct the deficiencies identified in a notice of intent to deny at any time by submitting a new (corrected) permit application. If the deficiencies are not corrected and a final decision to deny a permit is issued and becomes effective (see § 124.15(b)), the applicant would be subject to enforcement. Moreover, after a CCR permit is denied, the CCR unit(s) would be an open dump, and the owner and operator would be required to cease placing waste in the unit. See RCRA § 4005(a). The applicant would also remain subject to the applicable requirements of subpart D. Note that even after a denial has been issued, a revised application correcting the deficiency can be submitted. If a permit application is denied, which is expected to occur rarely, the owner and operator would still be required to obtain a CCR permit for activities that remain subject to requirements in subpart D, such as closure. Additionally, an enforcement action may be taken to bring the facility into compliance with subpart D. EPA believes a procedure to deny a permit is one of the necessary components of the authority delegated to EPA as part of the directive to implement a federal permit program. Without it, EPA would have no option other than to issue a CCR permit after an application is received, even in situations where that would be contrary to Congressional intent. For example, EPA lacks the authority to issue a permit that does not meet the statutory standard in RCRA sections 4005(d)(2)(B) and (d)(5). Furthermore, such a provision is consistent with other federal environmental permit programs implemented by EPA, which have the authority to deny an application for a permit on comparable grounds. See, e.g., §§ 71.11 and 270.29. VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 3. Permit Content a. Standard Conditions in All Permits Proposed language at § 257.140 would establish standard terms and conditions, which would be included in each CCR permit. Many of these standard terms and conditions contain legal requirements inherent to permits and are consistent with standard terms utilized in other federal permitting programs. EPA is proposing standard terms and conditions to improve the efficiency and enforceability of CCR permits. These conditions could be either written expressly into a CCR permit or incorporated by specific references to paragraphs in § 257.140. i. Duty to Comply—This standard permit term would require compliance with the permit terms and clarify that failure to comply may result in enforcement, revocation and reissuance, termination, or denial of a permit. While it is unlikely that EPA would terminate or deny a permit to remedy noncompliance without issuing a new CCR permit, EPA is proposing to preserve these options to maintain flexibility to resolve case-by-case situations as they arise, in the most appropriate manner. This term is standard in other federal permitting programs, including part 270. ii. Duty to submit periodic review of application—This standard permit term would implement the requirement proposed in § 257.132 for the permittee to review the application submitted for the permit no less frequently than every ten years from the date of issuance. If no information in the application has changed, the permittee must submit a statement to that effect with a certification by a responsible official of truth, completeness and accuracy. If information in the application has changed, the permittee must modify the application and resubmit it. If a modification to the permit is needed, the permittee would be required to submit the updated information as part of an application for such a modification in accordance with § 257.152. EPA is striving to develop an electronic CCR permit application system, which would allow the permittee to review the previous application and amend only the portions that require revision electronically. EPA intends to implement such a system to facilitate implementation of this proposed provision, by allowing the permittee to focus efforts only on information that must be updated. Once a CCR permit is modified or reissued, it will have a new issuance PO 00000 Frm 00024 Fmt 4701 Sfmt 4702 date and the ten-year review period would begin anew. If a CCR permit is modified more frequently than every ten years, then the permittee would not have to conduct any periodic application reviews. However, the permittee would always be obligated to evaluate changes at the facility and changes in the regulatory requirements, and to apply for permit modifications as needed. iii. Need to Halt or Reduce Activity Not a Defense—This standard term would clarify that the permittee may not use as a defense in an enforcement action that the only way to maintain compliance with the permit was to halt or reduce the permitted activity. This term is standard in other federal permitting programs, including part 270. It is also consistent with the underlying regulations in subpart D, as well as the prohibition against open dumps in RCRA section 4005. iv. Requirement to mitigate impacts of noncompliance—This standard term would require a permittee to take steps to mitigate the impacts of noncompliance, should any occur, where the noncompliance results in a reasonable probability of adverse impacts to human health and the environment. This provision is similar to requirements in other federal permitting programs, including part 270. EPA believes it is consistent with RCRA § 4004(a) to require the facility to take appropriate actions after noncompliance to minimize impacts, particularly actions that may be most effective immediately after a catastrophic event such as a natural disaster. These actions could range in scope and complexity from providing immediate notification to a public water system about a release before it reaches a public water system intake, to cleaning up CCR released due to a dam failure. v. New statutory requirements or regulations—This standard term would implement requirements proposed at § 257.151 that, if the underlying statutory or regulatory requirements become more stringent than the corresponding CCR permit conditions, the permittees must apply for a permit modification to reflect the updated requirements. This term is intended to ensure that the federal CCR permitting program will satisfy the statutory requirement for CCR permits to require CCR units to achieve compliance with applicable criteria established in subpart D. This term would apply to changes in underlying requirements that result from a change in the statute, a change to subpart D, or a judicial order. This E:\FR\FM\20FEP2.SGM 20FEP2 lotter on DSKBCFDHB2PROD with PROPOSALS2 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules term only requires action by the permittee if the permit is less protective than the underlying requirement after the change. If the permit is more stringent than the underlying requirement, then the permittees would not be required by this standard condition to apply for a modification to the permit to incorporate the change and could continue to comply with the more stringent permit conditions. vi. Proper operation and maintenance—This proposed standard term would require that the permittee must at all times properly operate and maintain all CCR units, ancillary equipment and systems of treatment or control to achieve compliance with the conditions of the permit. The proposed language includes a variety of activities considered part of proper operation and maintenance: Performance, funding, staffing, training, and quality assurance. This proposal does not intend to create an independent technical requirement separate from subpart D, but rather to clarify that failure to properly operate or maintain equipment would not excuse failure to comply with requirements or standards in the permit. This would be required throughout the active life of the unit, the post-closure care period and until all corrective action is complete. Proper operation and maintenance would require the operation of back-up or auxiliary systems when needed to comply with the permit. EPA believes this standard term is necessary to require the permittee to take reasonable actions to ensure that all controls, monitoring, and other requirements of the CCR permit are implemented as intended. While many permittees may already properly operate and maintain the CCR units, ancillary equipment, and treatment or control systems, failure to do so can result in malfunctions or catastrophic releases. This could also result in noncompliance with requirements in subpart D, or a reasonable probability of harm to health and the environment. EPA believes an independently enforceable requirement to properly operate and maintain this equipment is consistent with RCRA 4005(a) and may serve to prevent accidents or noncompliance before they happen. This term is required in other federal permitting programs, including part 270. The Agency proposes to apply this requirement to both owners and operators of CCR units, consistent with their respective joint and several liability and responsibility for compliance. Where there are concerns that operators would have primary control over compliance with this proposed provision, owners may VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 undertake efforts to ensure that operators comply with the proposed standard through private agreements that protect landowners when CCR units are operated by another entity. vii. Permit actions—This proposed standard term clarifies that a permit may be modified, revoked and reissued, or terminated for cause. It also stipulates that applying for a permit modification or termination, or notifying the Administrator of planned changes or anticipated noncompliance, does not stay any permit condition. This standard term would implement the modification procedures in §§ 257.150 through 257.152. This proposed standard term is consistent with other federal permitting programs, including part 270. EPA does not believe this standard term would conflict with the proposed minor modification provisions in § 257.151. Specifically, § 257.151(b)(7) would provide that if a permittee applies to modify the permit and the modification qualifies as minor, and if EPA does not respond to the request to modify the permit within 45 days, the permittee can proceed with the modification. While the permittee may go ahead with the minor modification, all permit terms would remain effective until EPA issues a modified permit. EPA does not anticipate conflict between these provisions, because the criteria for minor modifications generally include changes which increase the stringency of the CCR permit. viii. Property Rights—EPA is proposing that each CCR permit include a term that clarifies the permit does not convey any property rights. This standard term would implement provisions proposed at § 257.125(c). EPA does not have the authority to convey property rights in a CCR permit. This proposed standard term is consistent with permit terms used in other federal permitting programs, including part 270. ix. Duty to Provide Information—EPA is proposing that each CCR permit include a term that establishes the permittee’s duty to provide information requested by the Administrator to determine whether cause exists for modifying, revoking and reissuing, or terminating this permit, or to determine compliance with this permit. The term would also require the permittee to furnish to the Administrator, upon request, copies of records required to be kept by this permit. This standard term would implement provisions in the WIIN Act that provided EPA information gathering authority under RCRA section 3007. This proposed standard term is consistent with other PO 00000 Frm 00025 Fmt 4701 Sfmt 4702 9963 federal permitting programs, including part 270. x. Inspection and Entry—EPA is proposing that each CCR permit include a term that clarifies the permittee’s duty to allow EPA access to inspect, collect samples, and access records at the permitted facility. These activities are necessary elements of any permitting program and are common in federal permitting programs. The authority for EPA to conduct these activities under section 3007 of RCRA was provided in the WIIN Act. The proposed language includes provisions that inspection, sample collection, and access to records must be conducted at reasonable times, which would generally be during normal business hours. It also specifies that presentation of credentials would be required to gain access for these purposes. xi. Monitoring and Records—EPA is proposing that each CCR permit include a term that establishes the permittee’s duty to maintain certain types of records related to monitoring. This standard term would require that records of monitoring information, including all supporting data and quality assurance records, be maintained for a period of at least ten years, or longer if requested by the Administrator. Records used to support the permit application would be required to be maintained for the lifetime of the permit. The standard term would require that all groundwater monitoring records be maintained throughout the active life of the unit, the post-closure care period and until completion of all corrective action. These recordkeeping provisions are consistent with the underlying CCR rule. Most of the information included in the proposed standard terms is required to be posted to a facility publicly accessible CCR website. The posting requirements do not allow for removing information from the publicly accessible CCR websites, and so information posted there is maintained throughout the life of the unit. Because CCR permits are proposed to be issued without expiration, EPA believes the records used to develop the permit application would remain relevant throughout the lifetime of the permit and should be maintained. xii. Signatory requirements—EPA is proposing that each CCR permit include a term that requires applications, reports, or information required to be submitted to the Administrator by the permit be signed and certified in accordance with the procedures of proposed § 257.130(e). A CCR permit is not likely to require many submittals of information. The primary mechanism E:\FR\FM\20FEP2.SGM 20FEP2 lotter on DSKBCFDHB2PROD with PROPOSALS2 9964 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules for reporting information in the CCR program is by posting on a publicly accessible CCR website. Reporting requirements in the CCR permit are most likely to pertain to permit modifications or reports of noncompliance. For both types of submittals, EPA is proposing to require the permittees to include the same certification as to the truth, completeness and accuracy of the contents as is required for the original permit application. Applications for major permit modification would require certification according to other proposed requirements in § 257.152(b). xiii. Reporting requirements—These standard terms would be placed in each CCR permit, and they require reporting of certain information within specified timeframes. These provisions are commonly found in other federal permitting programs, including parts 270 and 71. (A) Anticipated noncompliance—This proposed standard term would require reporting to the Administrator in advance of anticipated noncompliance. If, for any reason, the permittee will be unable to comply with any terms or conditions, the permittee would be required to provide notice to the Administrator as soon as possible and at least 60 days prior to any planned changes in the permitted facility that may result in permit noncompliance. If the permittee applies for a modification to the permit to accommodate these changes, and the anticipated noncompliance is explained in the application, that application could serve as compliance with this notification requirement. (B) Twenty-four-hour reporting—This proposed standard term would require reporting as soon as possible, but no later than 24 hours after any noncompliance that could impact health or the environment. EPA anticipates this reporting requirement will be used infrequently, such as after sudden releases of CCR to the environment beyond the facility property boundary or to a waterway. A requirement to report such incidents within 24 hours is appropriate, so that EPA can respond, if needed, to oversee cleanup or take other action to ensure any impacts to health or the environment are mitigated. (C) Other information—This proposed standard term would require the permittee to supplement or correct previously submitted information if the permittee realizes later that it was incorrect or incomplete. This would help EPA to ensure that CCR permits continue to meet the requirements of RCRA § 4005(d)(2)(B) by providing the Agency the opportunity to evaluate the VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 submitted information and determine whether any changes to the permit are needed. xiv. Severability—EPA is proposing a standard term to establish severability of the CCR permit. This would mean that if a term in the permit was invalidated through an appeal process or other mechanism, the rest of the permit would remain in effect. Severability is a common element in federal permitting programs. It would allow a permittee or other affected party to pursue appeal of a permit term without risking loss of other portions of the permit. It would also avoid the administrative burden of having to re-issue an entire permit to accommodate changes to address invalidation of only a part of the permit. b. Establishment of Permit Conditions EPA is proposing to establish three provisions to guide a permit writer’s discretion in developing individual permit conditions. Each of these provisions borrow heavily from § 270.30. First, EPA is proposing in § 257.141(a) to include the direction that in addition to the standard conditions in § 257.140, the Administrator is to establish terms and conditions in a CCR permit, on a case-by-case basis, in accordance with the requirements and procedures of this subpart and with the mandate in section 4005(d)(2)(B) of RCRA. EPA is also proposing to codify the statutory mandate by specifying that the permit must include all permit terms and conditions necessary to ensure that each CCR unit will achieve compliance with subpart D of this part. Second, EPA is proposing in § 257.141(b) to clarify that a permit writer may either incorporate the applicable requirements of subpart D by re-writing them into the permit or incorporating them by reference. Any incorporation by reference must include a citation to the specific provision or requirement. Allowing incorporation by reference could streamline the permit writing process or reduce the length of a permit, while maintaining clarity about which CCR rule requirements apply to the CCR unit and what the permittee must do to comply with them. Incorporation by reference could also reduce the need for permit modifications, if the permit references portions of subpart D that are subsequently amended through rulemaking. If the reference to the amended subpart D requirement in the permit continues to require compliance with the applicable requirements in subpart D, then no permit modification would be needed. EPA expects that incorporation by reference may be most PO 00000 Frm 00026 Fmt 4701 Sfmt 4702 effective when the reference is specific and the requirements of subpart D are straightforward, and do not require sitespecific tailoring in a permit. Third, EPA is proposing in § 257.141(c) to provide that the permit is to include such terms and conditions as the Administrator determines necessary to ensure there is no reasonable probability of adverse effects on health or the environment from the solid waste management of CCR at the permitted facility. This proposal is modeled on the RCRA ‘‘omnibus’’ provision at § 270.30(b)(2). It would authorize the permit writer to establish terms and conditions not expressly found in subpart D, but which the Administrator determines, after review of the CCR permit application materials and operations at the facility, to be necessary to meet the protectiveness standard in section 4004(a) of RCRA. Based on its experience implementing the subtitle C permit program, EPA considers this authority to be a key component of an effective permit program A permit reflects the result of an adjudication in which the permit authority determines how the technical criteria in subpart D apply to the facility’s specific operations and site conditions. During this process questions can arise as to how particular requirements apply to unique or anomalous situations that are not explicitly resolved by the text of the regulation (and likely could not be given the nature of these regulations, which establish generally applicable national requirements). ‘‘Omnibus’’ provides a kind of bridging or supplemental authority that allows permit writers to clarify how the technical criteria apply in a specific context, and to draft terms and conditions approving site-specific approaches, that are appropriate for the on-the-ground conditions at the facility, to achieve compliance with applicable requirements in subpart D. To be clear, this provision would not allow the Administrator to waive, amend, or alter any requirement in subpart D in a CCR permit, as that can only be accomplished through rulemaking. Evaluating compliance approaches proposed by the applicant in sitespecific plans or reports and incorporating them into the permit, either directly or by reference, is expected to be a large and critical part of the CCR permit writing process. A permit writer would review these documents in the application and draft permit conditions, which may be based on proposed compliance approaches found in the site-specific plans or reports that elaborate on the technical E:\FR\FM\20FEP2.SGM 20FEP2 lotter on DSKBCFDHB2PROD with PROPOSALS2 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules criteria in subpart D. For example, an applicant who has triggered corrective action requirements for a CCR unit would develop a site-specific corrective measures assessment to comply with the requirements of § 257.96. The applicant would also select a corrective action remedy based on the findings of that assessment, in accordance with requirements in § 257.97. The corrective measures assessment would be submitted as part of the CCR permit application, and the applicant would provide documentation to support selection of the remedy. The permit writer would review these application materials and develop enforceable permit terms and conditions to require compliance with subpart D, reflecting specific approaches proposed in the application. These terms could include requirements to sample specific wells according to specific procedures, methods and schedules. They could also include requirements to design and implement specified remedial technologies in accordance with milestone deadlines. For example, ‘‘The permittee shall complete design of an in-situ treatment system to contain and control releases of chromium from the CCR unit to a concentration no greater than 1 mg/l. The design shall be completed no later than December 1, 2019, and construction of the remedy shall begin within six months of completing the design.’’ This adjudication of subpart D requirements would result in permit conditions interpreting those requirements, but which, consistent with the direction in RCRA § 4005(d)(2)(B), would be necessary to issue an enforceable CCR permit. The proposed language in § 257.141(a) and (c) is intended to provide the permit writer the authority and flexibility to develop such terms and conditions. It would also provide the permit writer, in the event that proposed approaches in the permit application are not sufficient to achieve compliance with the requirements of subpart D, with the authority to develop terms and conditions that will require the permittee to achieve such compliance. Just as under the omnibus clause, EPA would bear the burden of demonstrating that the factual prerequisites to exercise the authority under § 257.141(c) have been met. EPA would present these findings in the Statement of Basis and Purpose accompanying both the draft and final permit. Finally, because § 257.141(c) is both a procedural and substantive provision, EPA is proposing it pursuant to RCRA §§ 1008(a)(3) and 4004(a) as well as RCRA § 4005(d). As such, EPA VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 considers it to be, at least in part, a technical criterion. EPA requests comment on whether it would therefore be appropriate to include a corresponding provision with the other technical criteria in subpart D. c. Schedule of Compliance EPA is proposing at § 257.142(a) that if a CCR unit is not in compliance with one or more applicable requirements of subpart D and will still be out of compliance at the time of permit issuance, a permit may be issued which includes a schedule of compliance. The schedule of compliance would consist of a series of enforceable actions, each with a deadline, which will result in compliance with subpart D as soon as is feasible. In cases where the applicant is subject to a judicial consent decree or administrative order, the compliance schedule would not deviate from the specific requirements in the consent decree or administrative order and would be no less stringent but may be more detailed (e.g., may include interim milestones). If the final compliance deadline in the compliance schedule is more than one year after the CCR permit becomes effective, then EPA is proposing that interim milestones with compliance deadlines would be established, each lasting no longer than one year. EPA is proposing a one-year timeframe to maintain effective oversight of compliance efforts, while recognizing that some work required to achieve compliance may take months or more, and that seasonal or inclement weather may impact the feasibility of accomplishing major construction or earth-moving activities more quickly. In addition, EPA is proposing at § 257.142(a)(3) to require that no later than 30 days after each interim milestone deadline or the final deadline for compliance, the permittee must post a notification on the public CCR website of its compliance or noncompliance with the interim milestone or final requirements. EPA believes 30 days is sufficient time to prepare and post this notification, which is essentially a statement of actions taken or not taken. If the permittee fails to comply with deadlines in a schedule of compliance in a CCR permit, the permittee would be subject to enforcement, modification of the permit to incorporate additional requirements or restrictions, or potentially termination of the CCR permit. An example of a situation where a compliance schedule may be appropriate would be where a CCR unit does not meet an applicable location standard but has not yet ceased PO 00000 Frm 00027 Fmt 4701 Sfmt 4702 9965 receiving waste, even though the deadline to do so has passed. The facility may have failed to comply with the requirement to cease receiving waste due to delays in making the operational changes needed to cease sending nonCCR waste streams to the CCR unit. EPA could issue a CCR permit to require compliance with closure requirements in subpart D by establishing enforceable deadlines for project milestones in the CCR permit, as well as any applicable corrective action requirements. If the CCR unit is being operated under an enforcement order (i.e., a federal consent decree or an administrative order) the Administrator could establish a schedule of compliance to incorporate the enforcement order in the CCR permit. If the CCR unit is not operating under an enforcement order, the Administrator could develop a schedule of compliance to ensure the fastest closure feasible and require the permittee to come into compliance with subpart D using a site-specific compliance approach, with milestones, in an enforceable permit. These milestones could include, for example: Completion of process change drawings no later than three months after permit issuance, ordering necessary equipment no later than one month after drawings are complete, and installing new equipment at the first scheduled shutdown of the unit or no later than 120 days after the new equipment is received. 4. Changes to a Permit During the active life of a CCR unit, through post-closure care and until completion of all corrective action, changes to a permit are inevitable to keep pace with evolving business practices, technology, cleanup decisions, and changes in applicable regulatory requirements. It is likely that all CCR permits will need to be changed multiple times throughout the operation and closure of the unit, and EPA is proposing to establish procedures at §§ 257.150 through 257.152 to accomplish this. EPA is proposing two basic categories of modifications: (1) Those which are initiated by EPA, including in response to a citizen petition submitted in accordance with § 124.5, and (2) those which are initiated by the permittee. The procedures EPA is proposing at §§ 257.150 through 257.152 would establish the factual findings and criteria applicable to all modifications. These procedures would distinguish between two types of permittee-initiated changes, categorizing them as either major or minor, along with a streamlined process for a facility to E:\FR\FM\20FEP2.SGM 20FEP2 9966 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules lotter on DSKBCFDHB2PROD with PROPOSALS2 request minor modifications. EPA is also proposing to rely on the existing procedures in part 124 or part 22 whenever EPA modifies or revokes and reissues a permit at its own initiative, terminates a permit, or acts on a permittee’s request for a major modification. a. Modification or Revocation and Reissuance of an Individual Permit at EPA’s Initiative EPA is proposing that the Administrator may modify or revoke and reissue an individual permit if one or more of the causes listed in § 257.150(a) exist. EPA is proposing explicitly that the Administrator may make this determination based on information from any source, such as through a facility inspection, information submitted or posted by the permittee, a petition under § 124.5 of this chapter, or whenever EPA reviews the permit file. When a permit is modified, only the conditions subject to modification would be reopened. By contrast, if a permit is revoked and reissued, the entire permit would be reopened and subject to revision. Revocation and reissuance would generally be appropriate when the changes are too extensive to be addressed through a permit modification. For example, revocation and reissuance may be appropriate when permitting authority is partially transferred to a state that has received a partial program approval. In this example, if a federal permit includes multiple CCR units, and some of them become subject to permit requirements under an approved state program, the federal permit may be revoked and reissued to include only the CCR units which remain subject to federal permitting requirements. This structure is consistent with procedures in other federal permitting programs and with the standard terms for severability proposed in § 257.140. See, e.g., §§ 122.62, 144.39, and 270.41. EPA is proposing to limit the Agency’s authority to initiate a modification only to situations in which EPA determines that one or more of the causes listed in § 257.150(a) exist. These are generally similar to those found in several EPA programs including NPDES, UIC, and RCRA. See, §§ 122.62, 144.39, and 270.41. The first cause listed in § 257.150(a)(1) would be if there are alterations or additions to the facility that would be materially and substantially different from those specified in the existing permit conditions or permit application, or that could otherwise impact the ability of the VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 permit to require compliance with any of the requirements in subpart D. This type of modification could include changes to operations beyond the CCR unit but that could affect the measures the facility has adopted to comply with subpart D, such as a change to a process or operation that affects fugitive dust control or run-on runoff control. The EPA authority to initiate a permit modification to address this situation is necessary to ensure that CCR permits continue to require the permittee to achieve compliance with subpart D. The second cause listed in § 257.150(a)(2) would be where EPA has received information since the time of permit issuance that demonstrates the need for modified permit conditions. EPA is proposing that it could modify a permit on this basis in two situations. The first situation is where the information was not available to EPA at the time of permit issuance, and the information would have justified the inclusion of different permit conditions at the time of issuance to require compliance with subpart D. The second situation would not hinge on whether the information was available at the time of permit issuance but would authorize modification whenever any information shows that modification is necessary to include requirements in the permit which ensure there will continue to be no reasonable probability of adverse effects on health or the environment from permitted operations. EPA recognizes that this latter provision is broader than the comparable provisions under other EPA regulations (e.g., § 270.42) but this was intentional. In contrast to other programs, EPA is proposing that CCR permits be issued without an expiration date, which means that there will be no routine opportunity to reexamine the permit as a whole or to rectify mistakes. Thus, for example, if an inspection reveals deterioration of a cap over a closed CCR landfill, the Administrator should be able to extend the postclosure care period in the CCR permit to ensure continued compliance with the performance standards in § 257.102, without regard to whether those conditions existed at the time of permit issuance, and therefore such information might have been available to EPA. The Agency considers such a provision to be an essential component of the program to ensure that any permit continues to meet the standard in RCRA section 4005(d)(2)(B) throughout the entire life of the permit. This authority is particularly critical in light of the permit shield provided by RCRA 4005(d)(6) and the corresponding provision proposed in § 257.125(a). PO 00000 Frm 00028 Fmt 4701 Sfmt 4702 In accordance with proposed § 257.150(a)(3), if the Administrator has cause to terminate a permit under § 257.153 but determines that modification or revocation and reissuance is more appropriate, the Administrator may change the permit to incorporate updated permit terms to require compliance with subpart D. For example, if a CCR unit is out of compliance, rather than terminate the permit in accordance with § 257.153(a), the Administrator may initiate a modification to incorporate a schedule of compliance into the permit in accordance with § 257.142. This approach could minimize any interruption in the effectiveness of an enforceable CCR permit and may be appropriate if a permit modification could result in quicker compliance with subpart D requirements than other alternatives, such as an enforcement action. For example, in the context of a permittee that is not in compliance with the requirements for an ongoing, complex corrective action, EPA may decide to modify the permit to establish more prescriptive interim milestones, rather than terminating the permit and relying on a RCRA section 3008(a) compliance order to govern the cleanup. The fourth cause listed in § 257.150(a)(4) for EPA to initiate a permit modification is if EPA becomes aware of transfer of ownership or operation of a permitted CCR unit. If the new owner and operator have not submitted a timely permit application to update the name(s) of the permittee(s), EPA may initiate modification of the permit. EPA views this as a necessary provision, given that a permit issued in the name of an entity which no longer has control of the CCR unit would be less effective and enforceable than a permit issued to the owner and operator currently in control of the CCR unit. Failure of the new owner and operator to apply in a timely manner for a permit modification to reflect the transfer of control should not preclude EPA from transferring the permit, where EPA has information verifying that the transfer has occurred. An additional basis for EPA to initiate a permit modification under § 257.150(a)(5) is where modification is appropriate to correct any error, mistake or omission, so as to conform a permit’s requirements to the applicable requirements of subpart D. EPA believes this requirement is necessary to meet the standard in RCRA section 4005(d), particularly in light of the proposed permit shield. To ensure the inclusion of all appropriate permit terms and conditions, EPA is proposing the Administrator may initiate modification E:\FR\FM\20FEP2.SGM 20FEP2 lotter on DSKBCFDHB2PROD with PROPOSALS2 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules of a permit to correct errors, mistakes or omissions in order to conform CCR permits to subpart D. EPA is proposing to include a reference in § 257.150(a) to the existing provision in § 124.5(a) that lays out the procedure by which any interested person may petition the Administrator to modify or revoke and reissue a permit. A corresponding reference to petitions to terminate a permit is proposed in § 257.153. As specified in § 124.5, such a petition can only be granted if EPA determines that one or more of the grounds in paragraph (a) of this section have been established. Also, as specified § 124.5, the petition must be in writing and contain reasons or factual information or evidence. An interested party might obtain such information through personal observation (e.g., observation of unpermitted or non-compliant CCR management activities at a facility subject to a permit issued under these proposed requirements; observation of excessive releases from a facility, such as fugitive dust, uncontrolled runoff, or seepage of CCR). An interested party could also obtain information by reviewing compliance information submitted to EPA or posted on a publicly accessible CCR website. If any member of the public believes that a CCR permit should be modified based on such information, EPA is proposing to provide the same opportunity to request that the Administrator modify, revoke and reissue, or terminate a CCR permit that is available for NPDES, UIC, and RCRA hazardous waste permits. EPA requests comment on whether this provision is appropriate in the context of a RCRA subtitle D permit program. EPA is proposing at § 257.150(b) a provision modeled after § 270.41(c), which would provide that the suitability of the siting of a previously permitted unit will not be considered at the time of permit modification or revocation and reissuance unless new information or regulations indicate there is a reasonable probability of adverse effects to health or the environment that was unknown at the time of permit issuance. This provision is intended to confirm that the Administrator will not routinely require the owner and operator to evaluate whether an existing CCR facility or existing CCR unit continues to be properly sited during routine permit modifications. Such an action is not within the current scope of subpart D, which requires a single demonstration of compliance with the location criteria. However, if information becomes available demonstrating that the CCR unit presents a reasonable probability of VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 adverse effects to health or the environment, the permit would fail to meet the protectiveness standard in RCRA section 4004(a). As an example, this provision might be triggered if the elevation of the aquifer beneath the unit had significantly and permanently increased over time, e.g., as a result of intersecting surface water or aquifer deformation, such that the CCR unit located above the aquifer would no longer meet the requirements of § 257.60. The proposed provision at § 257.150(b) would clarify that in such a case EPA could modify or revoke and reissue the CCR permit with updated permit terms, under the omnibus provision proposed at § 257.141, to address the risks. This provision is similar to § 270.41(c), which is limited to situations in which the risk was unknown at the time of permit issuance. EPA is proposing to retain this limitation, even though, as discussed above, EPA is otherwise proposing to adopt more expansive bases for Agencyinitiated modifications in this program. EPA believes that there should be a higher bar to impose further conditions on the siting of a unit, given that it may be technically difficult to address issues once the unit has been built and is operating. EPA is proposing to adopt language in § 257.150(b) that reflects the RCRA section 4004(a) standard and to clarify that the risk was unknown to the Administrator, rather than merely ‘‘unknown.’’ In fact, EPA expects that the likelihood that a unit’s compliance with the location criteria would change over time is low, and because this will be a rare occurrence, would be properly addressed under omnibus authority. However, EPA requests comment on whether this could occur with sufficient frequency that it would be best addressed by amending the criteria at §§ 257.60 through 257.64 to reflect these circumstances rather than the approach proposed in this action. Note that the language under § 257.150(b) would not preclude routine application of the subpart D location criteria to lateral expansions. In subpart D, lateral expansions are considered new CCR units that must be permitted and must comply with all the requirements applicable to new units, including the location criteria. To ensure adequate public notice and transparency, EPA is proposing at § 257.150(c) that the Administrator will post all EPA permitting actions on a publicly available website. This would include: Draft permits, permit modifications, revocations, terminations, and reissued permits. This PO 00000 Frm 00029 Fmt 4701 Sfmt 4702 9967 is discussed further in Unit V of this preamble. b. Permit Modifications at the Request of the Permittee After an individual CCR permit is issued, the permittees are obligated to evaluate changes at the facility and changes in the regulatory requirements, and to apply for permit modifications as needed to maintain a permit which accurately reflects operations at the facility and requires compliance with the applicable requirements of subpart D and the protectiveness standard in RCRA section 4004(a). An individual CCR permit modification could be requested by the permittee at any time during the life of the permit, which is how EPA expects most modifications will be initiated. To obtain a modification, EPA is proposing that the permittee would submit an application for a permit modification to EPA, in accordance with § 257.152, which would describe the type of permit modification requested and would specify the requested changes to permit provisions. In all applications for permit modifications, the permittees would submit information to EPA that describes the exact change requested to the permit conditions, proposes whether the change is a major or minor modification, and provides a permit application that contains the information required in the relevant provisions in §§ 257.130 and 257.131. All applications must also include the certification required under § 257.130(e), attesting to completeness, truth and accuracy of the application. In addition, as part of seeking a modification to a permit, the owner and operator must review the previously submitted permit application in its entirety to determine whether it continues to accurately reflects solid waste management of CCR at the facility. If the permit application no longer completely and accurately describes these operations, the facility must submit an amended application that reflects its current operations, even if the facility believes that no modification of existing permit conditions is necessary in light of these changes. EPA is proposing two types of modifications, major and minor, for many reasons. EPA examined several other environmental permitting programs to inform this proposed rule, as discussed in Unit III.C of this preamble. Some of these programs have more than two types of modifications, including the RCRA hazardous waste permitting program. However, based on the nature and complexity of the scope E:\FR\FM\20FEP2.SGM 20FEP2 9968 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules lotter on DSKBCFDHB2PROD with PROPOSALS2 of CCR disposal and waste management EPA is proposing that only two categories of modifications are necessary to capture all reasonably anticipated modification scenarios. CCR are generally managed in only two types of units: A landfill or a surface impoundment; in contrast, there are many more types of hazardous wastes which are typically managed in a wide variety of ways (e.g. treated, stored, or disposed of) in a variety of units (i.e., landfills, surface impoundments, tanks, incinerators). Further, the modifications necessary for CCR units are anticipated to generally be similar for landfills and surface impoundments. i. Minor Modifications at the Request of the Permittee Minor modifications would be minor or administrative changes that keep the permit current with respect to common changes to the facility or its operations. These changes would not substantially alter the permit conditions or reduce the ability of the facility to operate in a manner that is protective of health and the environment. These criteria for minor modifications, which are proposed in § 257.151(a), were modeled on the criteria for class I modifications under § 270.42 and minor modifications in § 71.7(e)(1). The proposed criteria are intended to exclude any change that could decrease the effectiveness of the permit at either requiring compliance with subpart D, or otherwise ensuring that the facility continues to meet the protectiveness standard in RCRA section 4004(a). Because of their administrative nature, simplicity, routine nature, and lack of impact on the operation or protectiveness of the CCR unit and related waste management practices, such modifications should be implemented quickly and do not warrant public comment. A list of examples of minor modifications is provided in § 257.151(a)(1) through (a)(10), but any modification that meets the criteria proposed in § 257.151(a) would be processed as a minor modification. EPA included the examples on the list largely because they are expected to be routine changes that can be quickly reviewed, and that should have little potential to impact human health or the environment, and consequently do not necessitate an opportunity for public comment. Among the listed examples of minor modifications are any administrative or informational changes in the permit application, such as changes to the name or contact information of coordinators or other persons or agencies identified in the permit or VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 compliance plans. Another example is any correction of typographical error in the permit, as long as these revisions do not substantively or materially impact any of the permit terms. An example of a minor permit modification that EPA is proposing to include at § 257.151(a)(3) is the transfer of ownership or operational control of a CCR unit or facility. EPA understands that a change in ownership or operational control of a CCR unit or facility can sometimes happen quickly or may be uncertain until the transfer occurs. In that case, it may not be feasible for the permittee to apply for a permit modification 45 days prior to the transfer. Therefore, the proposal would require the new owner or operator to submit a revised permit application as soon as practicable, but no later than 30 days after the transfer of ownership or operational control occurs. The new permittee would also provide contact information to the Administrator. In addition, EPA is proposing at § 257.151(a)(4) to consider any changes necessary to comply with new or amended regulations as minor modifications, when these changes can be incorporated directly into the permit without requiring a significant exercise of technical judgement or discretion and without substantially changing design or operational restrictions or compliance approaches required by the existing permit. EPA is proposing that public input is not needed for the kind of ministerial modification that merely implements the change in the regulation. This is also the case for any changes in statutory requirements. Since a change in the regulation underlying the permit condition would go through public notice and a public comment, further opportunity for public comment on effectuating that change is not needed. Similarly, when the statute changes, EPA has no discretion to revise Congress’s mandate, and updating the permit to reflect that mandate is merely a ministerial exercise that does not warrant public comment. In these circumstances, permittees will be expected to initially determine the changes that are applicable to their CCR units and the changes to the permit conditions that are needed. The permittees would to submit an application for a minor modification if those changes can be incorporated directly, without requiring discretion regarding applicability or any changes to site-specific compliance approaches. If the change in regulatory or statutory requirements requires a permit modification that is complex or requires changes to compliance approaches or other decisions in the permit that relied PO 00000 Frm 00030 Fmt 4701 Sfmt 4702 on any significant judgment or discretion, then the modifications would be considered major. See proposed § 257.151(c)(9). EPA is proposing in § 257.151(a)(6) that minor modifications can include any changes that increase the stringency of permit requirements, such an increase in the frequency or duration of the procedures for inspection, monitoring, recordkeeping, web posting, sampling, analytical methods, or maintenance activities. If the permittee wants to inspect the CCR unit more often than required by the existing permit, conduct more groundwater samples or increase the frequency of sample collection, or use any equivalent analytical methods, this provision allows the permittee to make these changes using the minor modification procedures. Also, if there are changes to monitoring, sampling, or analysis methods or procedures that are appropriate to conform permit conditions to updated agency guidance or regulations, these would be considered minor modifications. EPA will review the proposed modifications to make sure the changes are equivalent to or more stringent than the permit terms, but EPA believes that, on balance, an opportunity for public comment would unnecessarily delay implementation of clearly desirable changes. Another minor modification at § 257.151(a)(8) would be if an existing groundwater monitoring well needs to be replaced because it has been damaged or rendered inoperable. As long as the well replacement does not significantly change the location, design, or depth of the sampling interval of the well, this can be considered a minor modification, but if it does change any of those criteria, it would be considered a major modification. The last example of a minor modification in the proposed rule would be a change to the closure plan to adjust the estimates of the maximum extent of operations or the maximum inventory of waste onsite at any time during the active life of the facility. This is proposed at § 257.151(a)(9). These would be considered minor modifications as long as all of the other monitoring and reporting requirements are conducted in accordance with the permit and as long as these changes continue to ensure there is no reasonable probability of adverse effects to health and the environment. The procedures to obtain a modification are proposed at § 257.151(b) and would differ for minor modifications and major modifications. In either case, the owner and operator E:\FR\FM\20FEP2.SGM 20FEP2 lotter on DSKBCFDHB2PROD with PROPOSALS2 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules would submit a permit modification application to EPA in accordance with § 257.152 and indicate whether the permittee considers the proposed change to be a major or minor modification. All minor permit modification applications must contain sufficient information to justify treating the modification as minor. The Administrator would review the application and determine if that characterization is accurate. This is an important step, because the major and minor procedures differ significantly in several respects. For example, the minor modification procedures proposed at § 257.151(b) would not require a public comment period or public meeting as they are changes that do not substantially alter the permit conditions. Any modifications that meet the criteria at § 257.151(a) would be considered as minor; if multiple modifications are requested in a single application, the permittee would be required to demonstrate that all of them meet the criteria. Any that do not would be considered major modifications and processed according to the procedures proposed at § 257.151(d). EPA is proposing two provisions that specify the timing for requesting a minor modification; first at § 257.151(b)(1), which would apply to most requests, EPA is proposing to require the permittee to submit an application no less than 45 days before making a change to the CCR unit. This deadline would be excepted for minor modifications requested due to the transfer of ownership or operational control of a CCR unit or facility, where it is often not feasible to apply 45 days in advance, as provided in § 257.151(a)(3). Second, EPA is proposing at § 257.151(b)(2) that if there are revisions to subpart D, such as a final rule promulgation or court order, which makes the underlying requirements less stringent than the existing permit conditions, the owner and operator may continue to operate in accordance with the permit or may apply for a minor permit modification in accordance with § 257.152. All regulatory revisions will be posted in the Federal Register, and it will be the permittee’s responsibility to be aware of any new or more stringent applicable requirements. Whenever the underlying requirements in subpart D change to be more restrictive, such that compliance with the permit no longer results in compliance with subpart D, the permittee would be required to apply for a permit modification. EPA believes that the permittee should initiate these modifications because an owner and VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 operator is best able to identify the impact of any regulatory changes on operations at a facility. Moreover, these modifications will be put into effect faster if the permittee initiates the modification than if EPA initiated the modification. After a permit application for a minor modification is submitted, EPA is proposing in § 257.151(d)(4) and (d)(5) that the Administrator would determine whether the modification is appropriate and protective. The Administrator may take a number of actions in response; first EPA may determine that the proposed modification does not meet the criteria for a minor modification and therefore must follow the procedures for a major modification in § 257.151(d). The Administrator could also determine that additional information is needed to evaluate the modification; for example, if the application does not contain enough supporting information to demonstrate that the change is necessary or that it meets the conditions for a minor modification. The Administrator may also deny the request if it does not contain enough supporting information or if the requested modification would result in a permit that does not require compliance with subpart D or otherwise fails to meet the statutory protectiveness standard. If the Administrator takes any of these actions, the permittee may update the application and submit it again to the Administrator. In this case, the permittee must continue to comply with the original permit conditions. Finally, the Administrator may approve the minor modification and update the permit accordingly, including a new permit issuance date. EPA is proposing at § 257.151(b)(7) that if EPA has not responded within 45 days after the permittee submits the application for the modification, the application will be considered to be approved and the permittee may make the change as described in the permit modification application. Since minor modifications do not substantially alter the permit conditions, EPA believes that 45 days provides sufficient notice of the proposed change. This ensures that minor, unsubstantial changes are made in a timely manner and keeps the permit application up to date. Note that minor modifications would not be subject to the requirements in § 124.5, which is consistent with the approach under the NPDES, UIC, 404 programs, as well as the RCRA hazardous waste program, which excludes both Class 1 and 2 modifications. See § 124.5(c)(3). PO 00000 Frm 00031 Fmt 4701 Sfmt 4702 9969 ii. Major Modifications at the Request of the Permittee In contrast to minor modifications, major modifications are those changes that materially alter the facility, its operation, or compliance approaches required in the existing permit, or changes to address regulatory revisions that will require a significant exercise of technical judgement or discretion to implement. EPA is proposing at § 257.151(c) that any modification that does not meet the criteria proposed at § 257.151(a) to be a minor modification would be a major modification. Major modifications would include physical or operational changes, changes to compliance approaches, or any other changes that could impact the protection of health and the environment. If a CCR unit transitions into a new operating phase and becomes subject to requirements in subpart D not included in the permit, a major modification application must be submitted to the Agency to update the permit. However, if a CCR unit transitions into a new operating phase and all requirements in subpart D applicable to the unit in the new operating phase are already included in the permit, no permit modification would be required. Examples of major modifications that meet the above criteria are proposed in § 257.151(c)(1) through (9). EPA requests comment on whether the criteria proposed in § 257.151(c) is sufficiently comprehensive to include all potential modifications that should be treated as major, and on the appropriateness of the listed examples of major modifications. The first example of a major modification that EPA is proposing at § 257.151(c)(1) is any change that reduces the frequency or stringency of requirements for inspection, monitoring, sampling, analysis, recordkeeping, reporting, web posting, or maintenance activities by the permittee. These would be considered major modifications because there is a possibility that the change would make the newly revised permit conditions less stringent than the existing requirements in the permit, which warrants careful review and, because it could impact the public, an opportunity for public comment. The Administrator will not approve changes that make the permit conditions less protective than the underlying requirements in subpart D. For example, a facility might be required to conduct daily inspections following a structural stability failure at the CCR surface impoundment to monitor the progress of remediating the issue. After the structural stability issue is resolved, a E:\FR\FM\20FEP2.SGM 20FEP2 9970 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules lotter on DSKBCFDHB2PROD with PROPOSALS2 major modification could be requested to allow the facility to instead comply with the weekly inspection requirements in § 257.83(a)(i). This modification would be less stringent than the original permit term, but not than the technical criteria in subpart D, and could be approved because the permit would continue to meet the statutory standard that each permit requires compliance with subpart D. Removing a permit condition because the underlying regulatory requirement is no longer applicable would be considered to be a major modification, if the change in the applicable requirement was not merely incorporating a regulatory revision, a statutory change, or a court order (e.g., vacatur of a requirement). See § 257.151(c)(2). For example, this could include a change based on completion of an operating phase (e.g., completion of closure activities). Another example could be a change in the applicability of emergency action plan (EAP) requirements for existing and new CCR surface impoundments, in response to a change in the unit’s hazard potential classification. See §§ 257.73(a)(3) and 257.74(a)(3), respectively. The EAP is a document that identifies potential emergency conditions at a CCR surface impoundment and specifies actions to be followed to minimize loss of life and property damage. The requirement for an owner and operator of a CCR surface impoundment to prepare an EAP applies to non-incised 9 surface impoundments classified as either highor significant hazard potential.10 A hazard potential classification provides an indication of the potential for danger to human life, economic loss, environmental damage, disruption of lifeline facilities, or other impacts in the event of a release of CCR from a surface impoundment due to failure or misoperation. If subject to the requirement, owners and operators must conduct periodic (i.e., every five years) hazard potential re-assessments. The CCR regulations address situations where the hazard potential classification of a CCR unit changes over time (e.g., the 9 The CCR regulations define an ‘‘incised’’ surface impoundment as a CCR surface impoundment which is constructed by excavating entirely below the natural ground surface, holds an accumulation of CCR entirely below the adjacent natural ground surface, and does not consist of any constructed diked portion. 10 A ‘‘high hazard potential’’ impoundment is a diked surface impoundment where failure or misoperation will probably cause loss of human life. A ‘‘significant hazard potential’’ impoundment is a diked surface impoundment where failure or misoperation results in no probable loss of human life, but can cause economic loss, environmental damage, disruption of lifeline facilities, or impact other concerns. VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 circumstances presenting the potential for loss of life no longer exist). In the situation relevant to this example, if the CCR unit is determined to be no longer classified as either a high hazard potential unit or significant hazard potential unit, then the CCR unit is no longer subject to the EAP requirements. See § 257.73(a)(3)(iii). Once this determination is made, it would be appropriate to modify the permit to remove the EAP requirements from the permit because the EAP provisions are no longer applicable to the CCR surface impoundment. EPA is proposing this would be a major modification to a CCR permit. EPA is also proposing at § 257.151(c)(3) that any reduction in the number, or substantial changes in location, depth, or design of groundwater monitoring wells required by the permit would be considered a major modification. This is considered a major modification because there is a possibility that the change would make the requested permit conditions less stringent than the existing permit, which warrants careful review and, because it could impact the public, an opportunity for public comment. EPA is also proposing at § 257.151(c)(4) that the addition of a new CCR unit, including a lateral expansion, would be considered a major modification, provided the new unit did not qualify for and opt for coverage by either a general permit or the permit by rule (proposed at § 257.128). Such an addition would be a significant change to the CCR facility; it may allow a higher volume of CCR to be managed at the facility, and the new CCR unit may be subject to different requirements than the other unit(s) at the facility, which may have predated the 2015 rule. This would mean that new permit terms would be required, and, because these changes could significantly impact the public, EPA would consider public notice and an opportunity for comment not only appropriate, but necessary. EPA is also proposing at § 257.151(c)(5) that any modification of a CCR unit, including physical changes or changes in management practices which are not minor modifications under § 257.151(a) will be considered a major modification. This would include any change to the CCR unit or CCR management operations that would require a material revision to the permit terms as written. EPA is also proposing at § 257.151(c)(6) that initiation of a corrective action program, in accordance with § 257.96, or any substantive revision to the corrective action requirements in the permit would PO 00000 Frm 00032 Fmt 4701 Sfmt 4702 be considered a major modification. A site-specific compliance approach to corrective action is required when there is a statistically significant increase (SSI) above a groundwater protection standard for any constituent listed on Appendix IV of part 257, which indicates that there is a reasonable probability of adverse effects on health and the environment. Since corrective action will require discretion and professional judgment to determine an appropriate compliance approach and could impact the public, this would be considered a major modification. EPA is proposing in § 257.151(c)(7) that changes to an approved plan required by subpart D, such as a closure plan required by § 257.102(b) or postclosure care plan required by § 257.104(d), and any reduction in the post-closure care period for any reason would also be examples of major modifications. The closure and postclosure requirements are found in §§ 257.100 through 257.104. Development of a site-specific plan for a CCR unit involves many decision points. For example, when developing a closure plan, the permittee must decide whether to close by removal or close by leaving CCR in place and how to design a final cover system. Moreover, the performance standards in the regulations allow for a variety of engineering approaches and can involve complex technical issues. These decisions also involve a certain degree of long-term risk, all of which warrants the greater degree of oversight and public involvement that comes with a major modification. These same considerations would apply equally to any other plans, such as a groundwater monitoring plan, a run-on run-off control plan, or a post-closure care plan. These plans serve to establish maintenance and monitoring procedures to ensure the continued effectiveness of controls to prevent releases, monitoring to evaluate effectiveness of controls or corrective measures, or of closure requirements. Therefore, EPA is proposing that these also be considered major modifications. EPA is also proposing at § 257.151(c)(8) that an extension of the final date in a schedule of compliance established in accordance with § 257.142 would be an example of a major modification. A compliance schedule would be included in a CCR permit if the permittee is out of compliance with one or more provisions of subpart D. A modification to extend a compliance schedule would extend its period of noncompliance. Because this could increase the probability of adverse effects on health or the environment, E:\FR\FM\20FEP2.SGM 20FEP2 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules lotter on DSKBCFDHB2PROD with PROPOSALS2 default approval of the proposed modification is inappropriate and public input is warranted. EPA is proposing at § 257.151(c)(9) that if there is a change in underlying regulatory requirements, which requires substantial changes to the design, operation, or compliance strategies established in the permit, or that requires the application of significant technical judgement or discretion, this type of change would be considered a major modification. This would include, for example, the establishment or revision of a performance standard or applicability determination that is complex or relies on significant judgment or discretion to account for site-specific considerations. Public input on EPA’s determinations regarding the requirements of that revised standard in the site-specific context at the particular CCR unit or facility would be warranted. EPA is proposing to rely on the existing decision-making procedures in part 124 when issuing RCRA CCR permits, consistent with procedures followed in other federal permitting programs. The procedures for approving a major modification are the same as those that must be followed to issue the initial permit. Specifically, EPA must issue a draft permit (or tentative denial) in accordance with § 124.6 accompanied by a statement of basis or fact sheet, as appropriate. See §§ 124.7 and 124.8. The draft must be publicly noticed and made available for public comment. See §§ 124.9 through 124.11. EPA would provide notice of an opportunity for a public hearing and would hold one if EPA determines there is significant public interest and a public hearing is warranted. See § 124.12. EPA’s final decision will include a response to comments and may be appealed under § 124.19. See also, §§ 124.15, 124.17. Unlike minor modifications, for major modifications, EPA is not proposing to establish a default approval if EPA does not take action within a certain number of days after the application for the modification is received. c. Application To Modify a Permit Whenever a permittee needs to make a change to a CCR permit, EPA is proposing that the permittee will update the permit application and submit it to the Administrator for review. EPA is anticipating that the permit application will be the same for initial permit issuance, as proposed at §§ 257.130 and 257.131 and in Unit IV.C.2, as it would be for a modification, through an electronic permitting process (see Unit V of this preamble). When the permittees need to make a change to the VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 permit application, they would be able to access the permit application from the electronic permitting system and make any necessary changes throughout the entire permit application. Then, the permittees will be required to certify the amended permit application for truth, completeness and accuracy. The timelines for applications that EPA is proposing would be no less than 180 days in advance of the proposed change for a major modification, and for minor modification no less than 45 days in advance of the proposed change. See proposed § 257.152(c) and (b)(2), respectively. EPA anticipates more time would be needed to process major modifications to CCR permits, because the operational or regulatory changes would be more complex, and to follow the required public participation procedures. EPA is proposing at § 257.152(a) that for either type of modification, major or minor, a complete permit application must contain sufficient information about the specific change anticipated, the modification type that is requested, and the reason why the permit modification is necessary. EPA is proposing that the permittee must give a detailed description of the exact modification or modifications requested for the facility or operations as well as any supporting documentation referenced by the permit. Since some requirements in subpart D pertain to the entire facility, such as the Fugitive Dust Control Plan required in § 257.80, any proposed changes to the facility-wide requirements must address any impacts that the modification could have around the facility. The permittee must also identify which permit condition(s) it is requesting to modify. The application must also identify whether the change meets the criteria for either a major or a minor permit modification, with sufficient information to support that classification. In addition, the permit modification application must contain an explanation of why the modification is necessary to ensure that the permit accurately reflects the current facility conditions and operations. In many cases, this explanation will include a written description of exactly why the change must be made, any technical justifications, along with supporting data, and any other applicable information required by §§ 257.130, 257.131, or 257.152. EPA believes that all of this information is necessary to completely understand and evaluate the requested modification, as well as how to draft modified permit terms that will require compliance with subpart D. Consistent with the procedures for initial permit applications and PO 00000 Frm 00033 Fmt 4701 Sfmt 4702 9971 § 124.3(c) EPA would review the application for a permit modification for completeness. If it is found to be incomplete, EPA will notify the applicant(s) in writing and will list the information necessary to make the application complete. In practice, EPA has frequently informally requested additional information from the applicant or provided an opportunity to supplement their application prior to triggering a formal notification that an application for a permit modification is incomplete. EPA generally expects to adopt a similar practice for CCR permit modification applications. Prior to submitting the permit modification application, the owner and operator must review and update the previously submitted permit application in its entirety. The owner and operator would need to certify, as proposed at § 257.130(e), that both the updated sections to support the requested modification, and all other sections of the previously submitted permit application, truthfully, accurately, and completely describe all CCR units and solid waste management operations regulated by this program. If, the applicant, during this review, determines that any information in the prior application is no longer accurate, complete, or true, then that information must be updated in the modification application. This requirement is proposed because a modified permit would be issued with a new effective date, which would begin anew the periodic application review period proposed in § 257.132. In order to avoid a situation where a portion of a permit application could remain unreviewed for many years, this application review should occur each time an application for a modification is submitted. EPA requests comment on whether these application procedures are sufficient and if the time periods identified for minor and major modifications are feasible for making these changes to a permit. d. Termination of an Individual Permit Establishing the circumstances under which a permit is no longer necessary or can be revoked is a key component of any permit program. The grounds for permit termination are specified in EPA regulations in several permit programs, including CWA, SDWA and RCRA hazardous waste permitting. See §§ 122.64, 144.40, 233.36, 270.43. These regulations share several common elements; generally, permits can be terminated under these regulations to address a significant risk, or in response to a permittee’s malfeasance. See, Id. Some of these programs include E:\FR\FM\20FEP2.SGM 20FEP2 lotter on DSKBCFDHB2PROD with PROPOSALS2 9972 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules additional grounds that would be relevant in this context; allowing for termination when the permitted activity ceases, or to transition to some other regulatory mechanism, See §§ 122.64(b), 233.36(a)(3) and (4). Accordingly, EPA is proposing at § 257.153(a) that an individual CCR permit could be terminated for limited, specified reasons. Consistent with the programs discussed above, a permit could be terminated by: Significant noncompliance; failure to fully disclose all relevant facts in an application or during the permit issuance process; misrepresentation of relevant facts at any time; or a determination that there is reasonable probability of adverse effects on human health or the environment from the permitted activity, which can only be addressed by permit termination. EPA is also proposing to adopt provisions that would authorize permit termination to allow transition to coverage by a general permit under § 257.127; permit by rule at § 257.128; to a permit issued under an approved State CCR Permit Program; or in response to cessation of the permitted activity with no remaining compliance obligations in subpart D. EPA does not anticipate that CCR permit termination to address permittee malfeasance or a significant risk will occur often. While there is a future date where a CCR unit may no longer be subject to requirements in subpart D, and may not need a permit, these units typically operate for decades. After a CCR unit is closed, post-closure care is conducted over 30 years, and corrective action measures can take decades to achieve all cleanup goals. Closure, postclosure care and any required corrective action would be conducted under the terms of a CCR permit. Even if serious noncompliance leads EPA to deny a CCR permit for disposal, a new or modified CCR permit would be issued to require other activities to be conducted in compliance with the requirements of subpart D. Thus, in the overall scheme of the CCR permit program, permit termination should happen infrequently as the result of a unit no longer having compliance obligations, or if transitioning to a different CCR permitting mechanism, such as a general CCR permit. EPA is proposing at § 257.153(b) that any termination of a CCR permit would follow the procedures in part 124 or part 22. Part 22 contains the Consolidated Rules of Practice Governing Administrative Assessment of Civil Penalties and the Revocation/ Termination or Suspension of Permits and EPA proposes to amend it by adding § 257.153 to the list of provisions VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 by which EPA may terminate a permit for cause in § 124.5. This would make the requirements of § 22.44 applicable to termination of a CCR permit, including requirements for public notice and comment. V. Electronic Permitting The Agency is proposing to use electronic permitting (e-permitting) for as much of the permitting process as possible. E-permitting would improve the effectiveness and efficiency by streamlining the permitting process for both the permitting authority and the permittee, reducing time between application and permit issuance as well as improving the permit modification process. For each applicable CCR unit or facility, e-permitting could include the: • Submittal of the initial permit application, • Public notice of draft permitting actions, • Issuance of final permitting actions, • Submittal of an application for a permit modification, • Public notice on draft permits and draft major modifications, • Permittee access to the permit application for the periodic application review, • Correspondence between EPA and the permittee or interested parties, and • Termination of a permit. To accomplish electronic permitting, EPA proposes to develop a CCR module in the RCRAInfo system using the Central Data Exchange (CDX) for owners and operators of CCR units to create a profile and submit information in this system. RCRAInfo allows for the creation of an EPA Identifier number if the facility does not already have one through the system. EPA envisions the system to include fillable forms with different options based on CCR unit type. For example, existing CCR surface impoundments would have different requirements to enter in the system than existing CCR landfills, and both would have different requirements in the permit application than new CCR units (i.e., landfills, lateral expansions, and surface impoundments). Since EPA is proposing to ideally issue one individual CCR permit per facility, the basic information about the facility, owner, operator, and operations would be entered once in the permit application; separate information about each CCR unit at the facility would be entered based on the number and type of CCR units. The electronic system would also include the ability for the permit applicant to submit plans, drawings, and other documents into the system for review as part of the permit application. PO 00000 Frm 00034 Fmt 4701 Sfmt 4702 Another option that EPA is considering for e-permitting is the use of a secure email box or another electronic method to reduce the use of paper but follow a streamlined permitting process. EPA requests comment on the use of electronic permitting. Are there other electronic information collection methods that should be considered, what would those entail and why should the Agency consider them? In addition, what type of information collection would be the most effective for this industry? Regardless of the permit submission method that is developed for the CCR permit program, all the information submitted by the permit applicant must be certified for truth and accuracy, and then must be reviewed by a permit writer for compliance with both the technical requirements in subpart D and the permitting requirements in this proposed rule. VI. The Projected Economic Impacts of This Action A. Costs of the Proposed Rule EPA estimated the costs associated with this action in an Economic Analysis (EA) which is available in the docket for this action. The EA considers two general categories of costs: Costs to regulated entities to prepare, submit, and revise initial permit applications, and to prepare, submit, and revise anticipated major and minor permit modifications; and costs to EPA to review and assess permit applications and permit modifications. The proposed permit application contents align with information already required by Subpart D to be developed and posted on publicly accessible CCR websites. Therefore, the EA estimates the incremental costs attributable to the provisions of this action against the baseline costs and practices in place as a result of the 2015 CCR final rule. The EA estimates that the net annualized impact of this proposed rule over a 20year period of analysis will be annual costs of between $0.09 million and $0.85 million. This action is not considered an economically significant action under Executive Order 12866. B. Affected Universe This proposed rule affects facilities subject to EPA’s 2015 CCR final rule, which generally includes electric utilities and independent power producers who fall within the North American Industry Classification System (NAICS) code 221112, and who generate CCR. The EA estimates that between 86 and 271 facilities will be affected by the proposed rule. E:\FR\FM\20FEP2.SGM 20FEP2 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules VII. Statutory and Executive Orders Reviews Additional information about these statutes and Executive Orders can be found at https://www2.epa.gov/lawsregulations/laws-and-executive-orders. A. Executive Order 12866: Regulatory Planning and Review and Executive Order 13563: Improving Regulation and Regulatory Review This action is a significant regulatory action that was submitted to the Office of Management and Budget (OMB) for review. While this is not an economically significant action, it is expected to raise novel legal or policy issues. Any changes made in response to OMB recommendations have been documented in the docket. The EPA prepared an analysis of the potential costs and benefits associated with this action. This Economic Assessment (EA), entitled Economic Assessment; Hazardous and Solid Waste Management System: Disposal of Coal Combustion Residuals from Electric Utilities; Federal CCR Permit Program; Proposed Rule is summarized in Unit VI of this preamble and is available in the docket. lotter on DSKBCFDHB2PROD with PROPOSALS2 B. Executive Order 13771: Reducing Regulation and Controlling Regulatory Costs This action is expected to be an Executive Order 13771 regulatory action. Details on the estimated costs of this proposed rule can be found in EPA’s analysis of the potential costs and benefits associated with this action. C. Paperwork Reduction Act (PRA) The information collection activities in this proposed rule have been submitted for approval to the Office of Management and Budget (OMB) under the PRA. The Information Collection Request (ICR) document that the EPA prepared has been assigned EPA ICR number 2610.01, OMB control number 2050–NEW. The ICR for this proposed rule will serve is an amendment to the ICR approved by OMB for the Final Rule: Hazardous and Solid Waste Management System; Disposal of Coal Combustion Residuals from Electric Utilities published in the Federal Register at 80 FR 21302, April 17, 2015. You can find a copy of the ICR in the docket for this action, and it is briefly summarized here. Respondents/affected entities: Coalfired electric utility plants that will be affected by the rule. Respondent’s obligation to respond: The recordkeeping, notification, and posting are mandatory as part of the minimum national criteria being VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 promulgated under Sections 1008, 4004, and 4005(a) of RCRA. Estimated number of respondents: 62. Frequency of response: The frequency of response varies. Total estimated burden: EPA estimates the total annual burden to respondents to be an increase in burden of approximately 2,288 hours from the currently approved burden. Burden is defined at 5 CFR 1320.3(b). Total estimated cost: The total estimated annual cost of this rule is a cost increase of approximately $136,312. This cost increase is composed of approximately $135,690 in annualized labor costs and $622 in capital or operation and maintenance costs. An agency may not conduct or sponsor, and a person is not required to respond to, a collection of information unless it displays a currently valid OMB control number. The OMB control numbers for the EPA’s regulations in 40 CFR are listed in 40 CFR part 9. Submit your comments on the Agency’s need for this information, the accuracy of the provided burden estimates and any suggested methods for minimizing respondent burden to the EPA using the docket identified at the beginning of this rule. You may also send your ICR-related comments to OMB’s Office of Information and Regulatory Affairs via email to OIRA_ submission@omb.eop.gov, Attention: Desk Officer for the EPA. Since OMB is required to make a decision concerning the ICR between 30 and 60 days after receipt, OMB must receive comments no later than March 23, 2020. The EPA will respond to any ICR-related comments in the final rule. D. Regulatory Flexibility Act (RFA) I certify that this action will not have a significant economic impact on a substantial number of small entities under the RFA. The small entities subject to the requirements of this action are generally electric utilities and independent power producers who fall within the NAICS code 221112, and who generate CCR. The Agency has determined that no small entities are affected at or above one percent of annual revenues, thus, determining that there is not a significant economic impact on any small entities. Estimated costs to regulated entities rely on information in prior Information Collection Requests (ICRs) prepared for similar permitting programs, including costs to prepare, submit, and revise initial permit applications, and to prepare, submit, and revise anticipated major and minor permit modifications. Estimates of annual revenues are PO 00000 Frm 00035 Fmt 4701 Sfmt 4702 9973 calculated using reported generation figures and average annual power costs. Details of this analysis are presented in Unit VI of this preamble and in the Economic Assessment, which is available in the docket for this action. This action does not change the existing regulatory requirements associated with the 2015 CCR rule, which EPA previously determined would not have a SISNOSE. E. Unfunded Mandates Reform Act (UMRA) This action does not contain an unfunded mandate of $100 million or more as described in UMRA, 2 U.S.C. 1531–1538, and does not significantly or uniquely affect small governments. This action imposes no enforceable duty on any state, local or tribal governments or the private sector. The costs involved in this action are imposed only by participation in a voluntary federal program. UMRA generally excludes from the definition of ‘‘federal intergovernmental mandate’’ duties that arise from participation in a voluntary federal program. F. Executive Order 13132: Federalism This action does not have federalism implications. It 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. G. Executive Order 13175: Consultation and Coordination With Indian Tribal Governments This action has tribal implications because it would impose requirements on facilities located in Indian country. However, it will neither impose substantial direct compliance costs on federally recognized tribal governments, nor preempt tribal law. The EPA will engage with tribal officials under the EPA Policy on Consultation and Coordination with Indian Tribes concurrent with the public comment process for this regulation to permit them to have meaningful and timely input into its development. For the ‘‘Final Rule: Hazardous and Solid Waste Management System; Disposal of Coal Combustion Residuals from Electric Utilities’’ published April 17, 2015, in the Federal Register at 80 FR 21302 (the 2015 CCR Rule), EPA identified three of the 414 coal-fired electric utility plants (in operation as of 2012) which are located on tribal lands. That rulemaking and the CCR rules and proposed rules that followed all E:\FR\FM\20FEP2.SGM 20FEP2 9974 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules lotter on DSKBCFDHB2PROD with PROPOSALS2 concluded however, that these facilities are not owned by tribal governments. The Agency is correcting that analysis today for the following three facilities: (1) The Navajo Generating Station in Coconino County, Arizona, which is operated by the Arizona Salt River Project and owned by the Navajo Nation; (2) the Bonanza Power Plant in Uintah County, Utah, which is operated by the Deseret Generation and Transmission Cooperative and owned by the Ute Indian Tribe; and (3) the Four Corners Power Plant in San Juan County, New Mexico, which is operated by the Arizona Public Service Company and owned by the Navajo Nation. The Navajo Generating Station and the Four Corners Power Plant are on tribal trust lands belonging to the Navajo Nation, while the Bonanza Power Plant is located on tribal trust lands within the Uintah and Ouray Reservation of the Ute Indian Tribe. Because CCR units are land-based units, the fact that these CCR facilities are located on tribal trust land means that the facility owners within the meaning of the CCR Rule are the tribal trust beneficial landowner tribes. The Agency continues to believe that the facility operators will bear all direct compliance costs associated with the above-mentioned rules and this proposal. However, to the extent that an operator fails to comply with a federal CCR requirement, CCR facility owners may also be held liable. H. Executive Order 13045: Protection of Children From Environmental Health Risks and Safety Risks This action is not subject to Executive Order 13045 because it is not economically significant as defined in Executive Order 12866, and because the EPA does not believe the environmental health or safety risks addressed by this action present a disproportionate risk to children. This action’s health and risk assessments are contained in the document titled ‘‘Human and Ecological Risk Assessment of Coal Combustion Residuals’’ which is available in the docket for the final rule as docket item EPA–HQ–RCRA–2009–0640–11993. As ordered by E.O. 13045 Section 1– 101(a), for the ‘‘Final Rule: Hazardous and Solid Waste Management System; Disposal of Coal Combustion Residuals from Electric Utilities’’ published April 17, 2015 in the Federal Register at 80 FR 21302, EPA identified and assessed environmental health risks and safety risks that may disproportionately affect children in the revised risk assessment. The results of the screening assessment found that risks fell below the criteria when wetting and run-on/runoff controls required by the rule are VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 considered. Under the full probabilistic analysis, composite liners required by the rule for new waste management units showed the ability to reduce the 90th percentile child cancer and noncancer risks for the groundwater to drinking water pathway to well below EPA’s criteria. Thus, EPA believes that this rule will be protective of children’s health. I. Executive Order 13211: Actions Concerning Regulations That Significantly Affect Energy Supply, Distribution or Use This action is not a ‘‘significant energy action’’ because it is not likely to have a significant adverse effect on the supply, distribution or use of energy. This rule is not economically significant and is not expected to have a significant effect on the production, use or supply of energy commodities. Additionally, it is narrowly tailored such that no novel legal or policy issues adversely affecting the supply, distribution or use of energy arising out of legal mandates, the President’s priorities or the principles set forth in Executive Orders 12866 and 13211 will occur. J. National Technology Transfer and Advancement Act (NTTAA) This rulemaking does not involve technical standards. K. Executive Order 12898: Federal Actions To Address Environmental Justice in Minority Populations and Low-Income Populations The EPA believes that this action does not have disproportionately high and adverse human health or environmental effects on minority populations, lowincome populations and/or indigenous peoples, as specified in Executive Order 12898 (59 FR 7629, February 16, 1994). The documentation for this decision is contained in EPA’s Regulatory Impact Analysis (RIA) for the CCR rule which is available in the docket for the 2015 CCR final rule as docket item EPA–HQ– RCRA–2009–0640–12034. EPA’s risk assessment did not separately evaluate either minority or low-income populations. However, this rule creates a permitting framework that implements the CCR rule, which is riskreducing with reductions in risk occurring largely within the surface water catchment zones around, and groundwater beneath, coal-fired electric utility plants. Since the CCR rule is riskreducing and this action does not add to risks, this action will not result in new disproportionate risks to minority or low-income populations. Additionally, EPA evaluated the demographic characteristics of PO 00000 Frm 00036 Fmt 4701 Sfmt 4702 communities that may be affected by the CCR rule. In the analysis contained in the RIA the demographic characteristics of populations surrounding coal-fired electric utility plants are compared with broader population data for two geographic areas: (1) One-mile radius from CCR management units (i.e., landfills and impoundments) likely to be affected by groundwater releases from both landfills and impoundments; and (2) watershed catchment areas downstream of surface impoundments that receive surface water run-off and releases from CCR impoundments and are at risk of being contaminated from CCR impoundment discharges (e.g., unintentional overflows, structural failures, and intentional periodic discharges). For the population as a whole 24.8 percent belong to a minority group and 11.3 percent falls below the Federal Poverty Level. For the population living within one mile of plants with surface impoundments 16.1 percent belong to a minority group and 13.2 percent live below the Federal Poverty Level. These minority and low-income populations are not disproportionately high compared to the general population. The percentage of minority residents of the entire population living within the catchment areas downstream of surface impoundments is disproportionately high relative to the general population, i.e., 28.7 percent, versus 24.8 percent for the national population. Also, the percentage of the population within the catchment areas of surface impoundments that is below the Federal Poverty Level is disproportionately high compared with the general population, i.e., 18.6 percent versus 11.3 percent nationally. Comparing the population percentages of minority and low-income residents within one mile of landfills to those percentages in the general population, EPA found that minority and low-income residents make up a smaller percentage of the populations near landfills than they do in the general population, i.e., minorities comprised 16.6 percent of the population near landfills versus 24.8 percent nationwide and low-income residents comprised 8.6 percent of the population near landfills versus 11.3 percent nationwide. In summary, although populations within the catchment areas of plants with surface impoundments appear to have disproportionately high percentages of minority and low-income residents relative to the nationwide average, populations surrounding plants with landfills do not. Because landfills are less likely than impoundments to E:\FR\FM\20FEP2.SGM 20FEP2 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules experience surface water run-off and releases, catchment areas were not considered for landfills. 40 CFR Part 22 Environmental protection, Administrative practice and procedure, Air pollution control, Hazardous substances, Hazardous waste, Penalties, Pesticides and pests, Poison prevention, Water pollution control. 40 CFR Part 124 Environmental protection, Administrative practice and procedure, Air pollution control, Hazardous waste, Indians—lands, Reporting and recordkeeping requirements, Water pollution control, Water supply. 40 CFR Part 257 Environmental protection, Beneficial use, Coal combustion products, Coal combustion residuals, Coal combustion waste, Disposal, Hazardous waste, Landfill, Surface impoundment. Dated: December 19, 2019. Andrew R. Wheeler, Administrator. For the reasons set out in the preamble, title 40, chapter I, of the Code of Federal Regulations is proposed to be amended as follows: PART 22—CONSOLIDATED RULES OF PRACTICE GOVERNING THE ADMINISTRATIVE ASSESSMENT OF CIVIL PENALTIES AND THE REVOCATION/TERMINATION OR SUSPENSION OF PERMITS 1. The authority citation for part 22 continues to read as follows: ■ Authority: 7 U.S.C. 1361; 15 U.S.C. 2615; 33 U.S.C. 1319, 1342, 1361, 1415 and 1418; 42 U.S.C. 300g-3(g), 6912, 6925, 6928, 6991e and 6992d; 42 U.S.C. 7413(d), 7524(c), 7545(d), 7547, 7601 and 7607(a), 9609, and 11045. 2. Amend § 22.44 by revising paragraph (b) introductory text to read as follows: lotter on DSKBCFDHB2PROD with PROPOSALS2 ■ § 22.44 Supplemental rules of practice governing the termination of permits under section 402(a) of the Clean Water Act or under section 3008(a)(3) of the Resource Conservation and Recovery Act. * * * * * (b) In any proceeding to terminate a permit for cause under § 122.64, § 257.153, or § 270.43 of this chapter during the term of the permit: * * * * * VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 PART 124—PROCEDURES FOR DECISIONMAKING The additions and revisions read as follows: 3. The authority citation for part 124 continues to read as follows: § 124.2 ■ List of Subjects 9975 Authority: Resource Conservation and Recovery Act, 42 U.S.C. 6901 et seq.; Safe Drinking Water Act, 42 U.S.C. 300f et seq.; Clean Water Act, 33 U.S.C. 1251 et seq.; Clean Air Act, 42 U.S.C. 7401 et seq. 4. Amend § 124.1 by revising paragraphs (a) and (d) to read as follows: ■ § 124.1 Purpose and scope. (a) This part contains EPA procedures for issuing, modifying, revoking and reissuing, or terminating all RCRA, UIC, PSD and NPDES ‘‘permits’’ (including ‘‘sludge-only’’ permits issued pursuant to § 122.1(b)(2) of this chapter). The latter kinds of permits are governed by part 270. RCRA interim status and UIC authorization by rule are not ‘‘permits’’ and are covered by specific provisions in parts 144, subpart C, and 270. This part also does not apply to permits issued, modified, revoked and reissued or terminated by the Corps of Engineers. Those procedures are specified in 33 CFR parts 320–327. The procedures of this part also apply to denial of a permit for a RCRA CCR unit under § 257.133 or for the active life of a RCRA hazardous waste management facility or unit under § 270.29. * * * * * (d) This part is designed to allow permits for a given facility under two or more of the listed programs to be processed separately or together at the choice of the Regional Administrator or the Administrator, in the case of RCRA CCR permits. This allows EPA to combine the processing of permits only when appropriate, and not necessarily in all cases. The Regional Administrator may consolidate permit processing when the permit applications are submitted, when draft permits are prepared, or when final permit decisions are issued. This part also allows consolidated permits to be subject to a single public hearing under § 124.12. Permit applicants may recommend whether or not their applications should be consolidated in any given case. * * * * * ■ 5. Amend § 124.2 by: ■ a. Revising paragraph (a) introductory text; ■ b. Adding in alphabetical order the definitions of ‘‘RCRA CCR General Permit’’, ‘‘RCRA CCR Permit’’, ‘‘RCRA Permit’’; and ■ c. Revising the definitions of ‘‘Director’’, ‘‘Facility or activity’’, ‘‘Permit’’, ‘‘Regional administrator’’, and . PO 00000 Frm 00037 Fmt 4701 Sfmt 4702 Definitions. (a) In addition to the definitions given in §§ 122.2 and 123.2 (NPDES), 501.2 (sludge management), 144.3 and 145.2 (UIC), 233.3 (404), and 257.121, 270.2 and 271.2 (RCRA), the definitions below apply to this part, except for PSD permits which are governed by the definitions in § 124.41. Terms not defined in this section have the meaning given by the appropriate Act. * * * * * Director means the Administrator, Regional Administrator, the State director or the Tribal director as the context requires, or an authorized representative. When there is no approved State or Tribal program, and there is an EPA administered program, Director means the Regional Administrator, except for RCRA CCR permits where Director means the Administrator. When there is an approved State or Tribal program, ‘‘Director’’ normally means the State or Tribal director. In some circumstances, however, EPA retains the authority to take certain actions even when there is an approved State or Tribal program. (For example, when EPA has issued an NPDES permit prior to the approval of a State program, EPA may retain jurisdiction over that permit after program approval; see § 123.1) In such cases, the term ‘‘Director’’ means the Regional Administrator and not the State or Tribal director. * * * * * Facility or activity means any ‘‘HWM facility,’’ UIC ‘‘injection well,’’ NPDES ‘‘point source’’ or ‘‘treatment works treating domestic sewage’’ or State 404 dredge or fill activity, or any other facility or activity (including land or appurtenances thereto) that is subject to regulation under the RCRA, UIC, NPDES, or 404 programs. For RCRA CCR permits, facility means facility as that term is defined in § 257.53 of this chapter. * * * * * Permit means an authorization, license or equivalent control document issued by EPA or an ‘‘approved State’’ to implement the requirements of this part and parts 122, 123, 144, 145, 233, 257, 270, and 271 of this chapter. ‘‘Permit’’ includes RCRA ‘‘permit by rule’’ (§ 270.60), RCRA standardized permit (§ 270.67), UIC area permit (§ 144.33), NPDES or 404 ‘‘general permit’’ (§§ 270.61, 144.34, and 233.38), RCRA CCR general permit (§ 257.127), and RCRA CCR permit by rule (§ 257.128). Permit does not include E:\FR\FM\20FEP2.SGM 20FEP2 9976 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules RCRA interim status (§ 270.70), UIC authorization by rule (§ 144.21), or any permit which has not yet been the subject of final agency action, such as a ‘‘draft permit’’ or a ‘‘proposed permit.’’ * * * * * Regional Administrator means the Regional Administrator of the appropriate Regional Office of the Environmental Protection Agency or the authorized representative of the Regional Administrator. For RCRA CCR permits, this term shall mean Administrator if the Administrator has not issued a delegation of authority to the Regional Administrator. * * * * * RCRA means the Solid Waste Disposal Act as amended by the Resource Conservation and Recovery Act of 1976 (Pub. L. 94–580, as amended by Pub. L. 95–609, and Pub. L. 114–322, 42 U.S.C. 6901 et seq). RCRA CCR general permit means a RCRA CCR permit containing terms and conditions to require compliance with requirements of part 257, subpart D of this chapter applicable to a specified category of CCR units, which are designated as eligible for coverage under the general permit. General permits in the CCR program are issued in accordance with § 257.127 of this chapter. RCRA CCR permit means a federal permit issued pursuant section 4005(d) of RCRA, 42 U.S.C. 6945(d). RCRA permit means a permit issued pursuant to any section of RCRA, 42 U.S.C. 6901 et seq. * * * * * ■ 6. Amend § 124.3 by revising paragraph (a) to read as follows: lotter on DSKBCFDHB2PROD with PROPOSALS2 § 124.3 Application for a permit. (a) (Applicable to State programs, see §§ 123.25 (NPDES), 145.11 (UIC), 233.26 (404), and 271.14 (RCRA)). (1) Any person who requires a permit under the RCRA, UIC, NPDES, or PSD programs shall complete, sign, and submit to the Director an application for each permit required under §§ 257.130 or 270.1 (RCRA), 144.1 (UIC), 40 CFR 52.21 (PSD), and 122.1 (NPDES). Applications are not required for RCRA permits by rule (§ 257.128 or § 270.60), RCRA CCR general permits (§ 257.127), underground injections authorized by rules (§§ 144.21 through 144.26), NPDES general permits (§ 122.28) and 404 general permits (§ 233.37). (2) The Director shall not begin the processing of a permit until the applicant has fully complied with the application requirements for that permit. See §§ 257.130, 257.131, 270.10, 270.13 (RCRA), 144.31 (UIC), 40 CFR 52.21 (PSD), and 122.21 (NPDES). VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 (3) Permit applications (except for PSD permits) must comply with the signature and certification requirements of §§ 122.22 (NPDES), 144.32 (UIC), 233.6 (404), 257.130 and 270.11 (RCRA). * * * * * ■ 7. Amend § 124.5 by revising paragraphs (a), (c)(1), (3), (d)(1), and (3) to read as follows: § 124.5 Modification, revocation and reissuance, or termination of permits. (a) (Applicable to State programs, see §§ 123.25 (NPDES), 145.11 (UIC), 233.26 (404), and 271.14 (RCRA).) Permits (other than PSD permits) may be modified, revoked and reissued, or terminated either at the request of any interested person (including the permittee) or upon the Director’s initiative. However, permits may only be modified, revoked and reissued, or terminated for the reasons specified in § 122.62 or § 122.64 (NPDES), 144.39 or 144.40 (UIC), 233.14 or 233.15 (404), and 257.150, 257.151, 257.153, 270.41 or 270.43 (RCRA). All requests shall be in writing and shall contain facts or reasons supporting the request. * * * * * (c) * * * (1) If the Director tentatively decides to modify or revoke and reissue a permit under 40 CFR 122.62 (NPDES), 144.39 (UIC), 233.14 (404), or 257.150, 257.151, 257.152, 270.41 (other than § 270.41(b)(3)), or § 270.42(c) (RCRA), he or she shall prepare a draft permit under § 124.6 incorporating the proposed changes. The Director may request additional information and, in the case of a modified permit, may require the submission of an updated application. In the case of revoked and reissued permits, other than under 40 CFR 270.41(b)(3), the Director shall require the submission of a new application. In the case of revoked and reissued permits under 40 CFR 270.41(b)(3), the Director and the permittee shall comply with the appropriate requirements in 40 CFR part 124, subpart G for RCRA standardized permits. * * * * * (3) ‘‘Minor modifications’’ as defined in §§ 122.63 (NPDES), 144.41 (UIC), 233.16 (404), 257.151 and ‘‘Classes 1 and 2 modifications’’ as defined in § 270.42 (a) and (b) (RCRA) are not subject to the requirements of this section. (d) * * * (1) If the Director tentatively decides to terminate: A permit under § 144.40 (UIC) of this chapter, a permit under § 122.64(a) (NPDES) of this chapter, a permit under § 257.153 or 270.43 (RCRA) of this chapter (for EPAissued NPDES permits, only at the request of the permittee), or a permit PO 00000 Frm 00038 Fmt 4701 Sfmt 4702 under § 122.64(b) (NPDES) of this chapter where the permittee objects, he or she shall issue a notice of intent to terminate. A notice of intent to terminate is a type of draft permit which follows the same procedures as any draft permit prepared under § 124.6 of this chapter. * * * * * (3) In the case of EPA-issued permits, a notice of intent to terminate or a complaint shall not be issued if the Regional Administrator and the permittee agree to termination in the course of transferring permit responsibility to an approved State under § 123.24(b)(1) (NPDES) of this chapter, 145.25(b)(1) (UIC) of this chapter, 257.129 or 271.8(b)(6) (RCRA) of this chapter, or 501.14(b)(1) (sludge) of this chapter. In addition, termination of an NPDES permit for cause pursuant to § 122.64 of this chapter may be accomplished by providing written notice to the permittee, unless the permittee objects. * * * * * ■ 8. Amend § 124.6 by revising paragraphs (c), (d)(1), (2), (3), and (4)(i) to read as follows: § 124.6 Draft permits. * * * * * (c) (Applicable to State programs, see §§ 123.25 (NPDES) and 233.26 (404).) If the Director tentatively decides to issue an NPDES, 404, or RCRA CCR general permit, he or she shall prepare a draft general permit under paragraph (d) of this section. (d) * * * (1) All conditions under §§ 122.41 and 122.43 (NPDES), 144.51 and 144.42 (UIC), 233.7 and 233.8 (404), 257.140 and 257.141 (RCRA CCR), or 270.30 and 270.32 (RCRA) (except for PSD permits); (2) All compliance schedules under §§ 122.47 (NPDES), 144.53 (UIC), 233.10 (404), 257.142 or 270.33 (RCRA) (except for PSD permits); (3) All monitoring requirements under §§ 122.48 (NPDES), 144.54 (UIC), 233.11 (404), 257.140(k) or 270.31 (RCRA) (except for PSD permits); and (4) * * * (i) RCRA permits, standards for treatment, storage, and/or disposal and other permit conditions under § 257.140 or 270.30; * * * * * ■ 9. Amend § 124.10 by revising paragraphs (c)(1)(i), (2)(i), (2)(ii), (d)(1)(ii), and (1)(iii) to read as follows: § 124.10 Public notice of permit actions and public comment period. * * * (c) * * * E:\FR\FM\20FEP2.SGM 20FEP2 * * Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules (1) * * * (i) The applicant (except for NPDES, 404, and RCRA CCR general permits when there is no applicant); * * * * * (2) * * * (i) For major permits, NPDES and 404 general permits, and permits that include sewage sludge land application plans under 40 CFR 501.15(a)(2)(ix), publication of a notice in a daily or weekly newspaper within the area affected by the facility or activity; and for EPA-issued NPDES and RCRA CCR general permits, in the Federal Register; Note: The Director is encouraged to provide as much notice as possible of the NPDES, Section 404, or RCRA CCR draft general permit to the facilities or activities to be covered by the general permit. (ii) For all RCRA permits, other than RCRA CCR permits, publication of a notice in a daily or weekly major local newspaper of general circulation and broadcast over local radio stations. For RCRA CCR permits, publication of a notice on a publicly accessible internet website and by any other method the Director determines will effectively provide timely notice to interested persons. * * * * * (d) * * * (1) * * * (ii) Name and address of the permittee or permit applicant and, if different, of the facility or activity regulated by the permit, except in the case of NPDES, 404, and RCRA CCR draft general permits under §§ 122.28, 233.37, and 257.127; (iii) A brief description of the business conducted at the facility or activity described in the permit application or the draft permit, for NPDES, 404 or RCRA CCR general permits when there is no application. * * * * * ■ 10. Amend § 124.12 by revising the introductory text of paragraph (a)(3) to read as follows: lotter on DSKBCFDHB2PROD with PROPOSALS2 § 124.12 Public hearings. (a) * * * (3) For RCRA permits only, other than RCRA CCR permits: * * * * * ■ 11. Amend § 124.15 by revising introductory text paragraph (a) and paragraph (b) to read as follows: § 124.15 permit. Issuance and effective date of (a) After the close of the public comment period under § 124.10 on a draft permit, the Regional Administrator shall issue a final permit decision (or a decision to deny a RCRA CCR permit VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 under § 257.133 or a permit for the active life of a RCRA hazardous waste management facility or unit under § 270.29). The Regional Administrator shall notify the applicant and each person who has submitted written comments or requested notice of the final permit decision. This notice shall include reference to the procedures for appealing a decision on a RCRA, UIC, PSD, or NPDES permit under § 124.19 of this part. For the purposes of this section, a final permit decision means a final decision to issue, deny, modify, revoke and reissue, or terminate a permit. (b) A final permit decision (or decision to deny a RCRA CCR permit under § 257.133 or a permit for the active life of a RCRA hazardous waste management facility or unit under § 270.29) shall become effective 30 days after the service of notice of the decision unless: * * * * * ■ 12. Amend § 124.19 by revising paragraphs (a)(1) and (3) to read as follows: § 124.19 Appeal of RCRA, UIC, NPDES, and PSD Permits. (a) * * * (1) Initiating an appeal. Appeal from a RCRA, UIC, NPDES, or PSD final permit decision issued under § 124.15 of this part, or a decision to deny a RCRA CCR permit under § 257.133 or a permit for the active life of a RCRA hazardous waste management facility or unit under § 270.29 of this chapter, is commenced by filing a petition for review with the Clerk of the Environmental Appeals Board within the time prescribed in paragraph (a)(3) of this section. * * * * * (3) Filing deadline. A petition for review must be filed with the Clerk of the Environmental Appeals Board within 30 days after the Regional Administrator serves notice of the issuance of a RCRA, UIC, NPDES, or PSD final permit decision under § 124.15 or a decision to deny a RCRA CCR permit under § 257.133 or a permit for the active life of a RCRA hazardous waste management facility or unit under § 270.29 of this chapter. A petition is filed when it is received by the Clerk of the Environmental Appeals Board at the address specified for the appropriate method of delivery as provided in paragraph (i)(2) of this section. * * * * * PO 00000 Frm 00039 Fmt 4701 Sfmt 4702 9977 PART 257—CRITERIA FOR CLASSIFICATION OF SOLID WASTE DISPOSAL FACILITIES AND PRACTICES 13. The authority citation for part 257 continues to read as follows: ■ Authority: 42 U.S.C. 6907(a)(3), 6912(a)(1), 6944(a), 6945(d); 33 U.S.C. 1345(d) and (e). 14. Part 257 is amended by adding subpart E to read as follows: ■ Subpart E—Federal Coal Combustion Residuals Permit Program General Information Sec 257.120 Program overview. 257.121 Definitions. 257.122 Considerations under Federal law. 257.123 Applicability. 257.124 Deadlines for application submission. 257.125 Effect of a permit. 257.126 Duration of a permit. 257.127 General permits. 257.128 Permit by rule. 257.129 Transfer of permit program administration. Permit Application 257.130 Permit application requirements. 257.131 Application contents. 257.132 Periodic review of permit applications. 257.133 Permit application denial. Permit Content 257.140 Standard permit conditions. 257.141 Establishment of permit conditions. 257.142 Schedules of compliance. Changes to a Permit 257.150 Modification or revocation and reissuance of an individual permit at EPA’s initiative. 257.151 Permit modifications at the request of the permittee. 257.152 Applications to modify an individual permit. 257.153 Termination of an individual CCR permit. Subpart E—Federal Coal Combustion Residuals Permit Program General Information § 257.120 Program overview. (a) Coverage. (1) These regulations establish provisions for the federal coal combustion residuals (CCR) permit program for the disposal and other solid waste management of CCR pursuant to section 4005(d) of the Solid Waste Disposal Act, as amended by the Resource Conservation and Recovery Act of 1976, as amended (RCRA), (Pub. L. 94–580, as amended by Pub. L. 95– 609, Pub. L. 96–482, and Pub. L. 114– 322; 42 U.S.C. 6901 et seq.). (2) The regulations in this subpart contain federal CCR permit program requirements, such as applications, E:\FR\FM\20FEP2.SGM 20FEP2 lotter on DSKBCFDHB2PROD with PROPOSALS2 9978 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules content, modifications, revocation and reissuance, permit termination. Procedural requirements are found in part 124, subpart A of this chapter. (3) Technical regulations. There are separate regulations in subpart D of this part that contain technical and substantive requirements that will be the basis of the permit requirements. (b) Scope of the CCR permit requirement. (1) RCRA section 4005(d) requires the Administrator to implement a permit program to require each CCR unit, located in a nonparticipating state and in Indian country, to achieve compliance with the applicable criteria in subpart D of this part. This subpart applies to owners and operators of any CCR unit located in a nonparticipating state and in Indian country, including new and existing landfills and surface impoundments and lateral expansions of such units, that dispose or otherwise engage in solid waste management of CCR, regulated under subpart D of this part. (2) Owners and operators of CCR units must continue to comply with all applicable requirements of subpart D of this part until a RCRA CCR permit is in effect. (3) Prior to issuance of a RCRA CCR permit, submittal of a complete and timely permit application serves as compliance with the requirement to obtain a permit, until final disposition of the permit application. A timely permit application includes an individual permit application submitted in accordance with the requirements in §§ 257.124, 257.130, and 257.131, or an application submitted in accordance with procedures established in a general permit issued in accordance with §§ 257.124 and 257.127, or submittal of a Notice of Intent to be covered by the Permit by Rule in accordance with §§ 257.124 and 257.128. (4) Once a permit has been issued, any CCR unit located in a nonparticipating state or in Indian country must continue to have a permit during any stage of operation covered by § 257.123(a). Any such CCR unit without a permit will be considered an ‘‘open dump,’’ as defined in RCRA 4005(d) irrespective of the unit’s compliance with the requirements of subpart D of this part and may no longer receive waste. (5) The owner and operator of a CCR unit must satisfy the requirement to have a RCRA CCR permit through one of three mechanisms: obtaining coverage under an individual permit, under a general permit issued in accordance with § 257.127, or under the permit by rule in accordance with § 257.128. VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 (6) EPA may issue or deny a permit for one or more CCR units at a facility without simultaneously issuing or denying a permit for all the CCR units at the facility. The status of any CCR unit for which a permit has not been issued or denied is not affected by the issuance or denial of a permit to any other CCR unit at the facility. (7) CCR permits issued by EPA will not have an expiration date. Permit terms will remain in effect until modified, or until the permit is revoked and reissued or terminated. (8) A permit may be modified, revoked and reissued, or terminated for cause as set forth in §§ 257.150 through 257.153. § 257.121 Definitions. The following definitions apply to this subpart. Terms not defined in this section have the meaning defined in part 124 of this chapter, subparts A and D of this part, or in RCRA. Applicable requirement means a requirement of subpart D of this part to which a permittee is subject based on applicability criteria in subpart D of this part. Completion of all corrective action means that all activities required by § 257.95(g) through (i), § 257.96, § 257.97, and § 257.98(a) and (b) have been completed in accordance with the requirements of §§ 257.98(c) through (f). General permit means a permit containing terms and conditions to require compliance with requirements of subpart D of this part applicable to a specified category of CCR units, which are designated as eligible for coverage under the general permit. General permits are issued in accordance with § 257.127. Individual permit means a permit containing terms and conditions to require compliance with requirements of subpart D of this part issued for one or more specifically identified CCR units owned and operated by the same entities and located at the same facility. Owner and operator means the owner and operator of any CCR unit or property used for solid waste management of CCR, which is subject to regulation under RCRA. Permit by rule means a provision of these regulations stating that a facility or activity is deemed to have a RCRA CCR permit if it meets the requirements of § 257.128. Responsible official means one of the following: (1) For a corporation: (i) A president, secretary, treasurer, or vice-president of the corporation in charge of a principal business function, or any other person who performs similar policy- or PO 00000 Frm 00040 Fmt 4701 Sfmt 4702 decision-making functions for the corporation; or (ii) The manager of one or more manufacturing, production or operating facilities employing more than 250 persons or having gross annual sales or expenditures exceeding $25 million (in second-quarter 1980 dollars), if authority to sign documents has been assigned or delegated to the manager in accordance with corporate procedures. (2) For a partnership or sole proprietorship: A general partner or the proprietor, respectively; or (3) For a municipality, State, Federal, or other public agency: Either a principal executive officer or ranking elected official. For purposes of this section, a principal executive officer of a Federal agency includes: (i) The chief executive officer of the agency; or (ii) A senior executive officer having responsibility for the overall operations of a principal geographic unit of the agency (e.g., Regional Administrators of EPA). § 257.122 law. Considerations under Federal The following is a list of Federal laws that may apply to the issuance of RCRA CCR permits. When any of these laws is applicable, its procedures must be followed. When the applicable law requires consideration or adoption of particular permit conditions or requires the denial of a permit, those requirements must also be followed. (a) The Wild and Scenic Rivers Act. 16 U.S.C. 1273 et seq. Section 7 of the Act prohibits EPA from assisting by license or otherwise the construction of any water resources project that would have a direct, adverse effect on the values for which a national wild and scenic river was established. (b) The National Historic Preservation Act of 1966. 54 U.S.C. 300101 et seq. Section 106 of the Act and implementing regulations (36 CFR part 800) require EPA, before issuing a license, to adopt measures when feasible to mitigate potential adverse effects of the licensed activity on properties listed or eligible for listing in the National Register of Historic Places. The Act’s requirements are to be implemented in cooperation with State and Tribal Historic Preservation Officers and upon notice to, and when appropriate, in consultation with the Advisory Council on Historic Preservation. (c) The Endangered Species Act. 16 U.S.C. 1531 et seq. Section 7 of the Act and implementing regulations (50 CFR part 402) require EPA to ensure, in E:\FR\FM\20FEP2.SGM 20FEP2 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules consultation with the Secretary of the Interior or Commerce, that any action authorized by EPA is not likely to jeopardize the continued existence of any endangered or threatened species or adversely affect its critical habitat. (d) The Coastal Zone Management Act. 16 U.S.C. 1451 et seq. Section 307(c) of the Act and implementing regulations (15 CFR part 930) prohibit EPA from issuing a permit for an activity affecting land or water use in the coastal zone until the applicant certifies that the proposed activity complies with the State Coastal Zone Management Program, and the State or its designated agency concurs with the certification (or the Secretary of Commerce overrides the State’s nonconcurrence). (e) The Fish and Wildlife Coordination Act. 16 U.S.C. 661 et seq. requires that EPA, before issuing a permit proposing or authorizing the impoundment (with certain exemptions), diversion, or other control or modification of any body of water, consult with the appropriate State agency exercising jurisdiction over wildlife resources to conserve those resources. lotter on DSKBCFDHB2PROD with PROPOSALS2 § 257.123 Applicability. (a) Requirement to obtain a permit. (1) Owners and operators of a CCR unit located in a nonparticipating state or in Indian country, and subject to requirements of subpart D of this part, must obtain and maintain a RCRA CCR permit under this subpart. An owner and operator must apply for a RCRA CCR permit for all CCR units and associated solid waste management operations subject to requirements in subpart D of this part. The requirement to obtain and maintain a RCRA CCR permit applies throughout the following stages of operation: Active life of the CCR unit, the post-closure care period, and until completion of all corrective action. (2) This requirement does not apply to CCR units and associated solid waste management operations, if any, that are subject to permitting under a state permit program approved by EPA pursuant to section 4005(d) of RCRA. In a state with partial approval, the requirement in § 257.123(a)(1) applies only to those CCR units and associated solid waste management operations that are subject to requirements of subpart D of this part for which the state has not been approved (i.e., is a nonparticipating state). (3) The requirements to apply for and obtain a RCRA CCR permit may initially be satisfied by submitting one of the following: VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 (i) A complete and timely permit application in accordance with the requirements in §§ 257.124, 257.130 and 257.131 for an individual permit, (ii) If the CCR unit meets the criteria for a general permit, a complete and timely application in accordance with § 257.127 and procedures established in the general permit, or (iii) A Notification of Intent of eligibility for coverage under a permit by rule in accordance with § 257.128. (4) Submittal of any of these documents constitutes compliance with these obligations only until the final administrative disposition of the permit application. (b) Denial of a permit application. The denial of a permit application to dispose or otherwise manage waste in a CCR unit does not affect the requirement to obtain a federal CCR permit in paragraph (a) of this section to conduct other activities under subpart D of this part (e.g., monitoring, retrofit, closure, post-closure care or corrective action). (c) Exclusions and exemptions. (1) Entities exclusively engaged in the beneficial use of CCR that meets the requirements detailed in § 257.53 are not required to obtain a RCRA CCR permit for those activities. (2) (i) A permit or permit modification is not required for a person engaged in CCR disposal or solid waste management to conduct an immediate response to any of the following situations: (A) A sudden release of CCR; or (B) An imminent and substantial threat of a release of CCR. (ii) Any person who continues or initiates CCR disposal or solid waste management activities after the immediate response is over is subject to all applicable requirements of this part for those activities. § 257.124 Deadlines for application submission. Owners and operators of CCR units located in a nonparticipating state or in Indian country that meet the applicability requirements to obtain a RCRA CCR permit under § 257.123(a) must submit a permit application as described in this section and §§ 257.130 and 257.131 to the Administrator by the following deadlines: (a) First tier deadline. For a facility with CCR units meeting the criteria in (1) or (2) where such unit was subject to the requirements under subpart D of this part prior to [DATE OF PUBLICATION OF FINAL RULE IN THE FEDERAL REGISTER], the permit application must be submitted for all PO 00000 Frm 00041 Fmt 4701 Sfmt 4702 9979 CCR units at the facility subject to this subpart no later than [DATE 18 MONTHS AFTER EFFECTIVE DATE OF THE FINAL RULE]. (1) Located in Indian country, (2) An existing CCR surface impoundment, new CCR surface impoundment or inactive CCR surface impoundment that is classified as a high hazard potential unit under the assessment procedures in § 257.73(a)(2) or § 257.74(a)(2). (b) Future tier deadlines. For a CCR unit that is not required to submit a permit application under paragraph (a) of this section, and where such unit was subject to the requirements under subpart D of this part prior to [DATE OF PUBLICATION OF FINAL RULE IN THE FEDERAL REGISTER], the permit application must be submitted for such CCR unit no later than a date set by the Administrator, whereby such date provides notice of at least 180 days to the owner and operator. (c) Deadlines for newly subject CCR units. For any CCR unit that becomes subject to the requirements under subpart D of this part on or after [ DATE OF PUBLICATION OF FINAL RULE IN THE FEDERAL REGISTER], the permit application must be submitted for such CCR unit in accordance with the following deadlines: (1) For any CCR unit that becomes subject to the requirements under subpart D of this part on or after [DATE OF PUBLICATION OF FINAL RULE IN THE FEDERAL REGISTER], but before [DATE 24 MONTHS AFTER EFFECTIVE DATE OF THE FINAL RULE], the permit application must be submitted for such CCR unit prior to [DATE 24 MONTHS AFTER EFFECTIVE DATE OF THE FINAL RULE]. (2) For any CCR unit that becomes subject to the requirements under subpart D of this part on or after [DATE 24 MONTHS AFTER EFFECTIVE DATE OF THE FINAL RULE], the permit application must be submitted for such CCR unit 180 days prior to placement of waste or other action that renders the unit subject to requirements of subpart D. (d) Deadlines for permit by rule or general permits. For a CCR unit that would otherwise be subject to an application deadline specified in paragraphs (a) through (c) of this section, the owner and operator of the CCR unit are not required to submit a permit application by the deadlines specified in paragraphs (a) through (c) of this section, provided the owner and operator submit a Notice of Intent required by § 257.128(a)(11) or for a general permit issued in accordance with § 257.127 by such deadline. E:\FR\FM\20FEP2.SGM 20FEP2 9980 § 257.125 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules Effect of a permit. (a) Permit shield. (1) Compliance with a CCR permit constitutes compliance, for purposes of enforcement, with the requirements of subpart D of this part. (2) A permit may be modified, revoked and reissued, or terminated during its term for cause as set forth in §§ 257.150 and 257.153, or the permit may be modified upon the request of the permittee as set forth in § 257.151. (b) No property rights. The issuance of a CCR permit does not convey any property rights of any sort, or any exclusive privilege. (c) No additional authorization. The issuance of a CCR permit does not authorize any injury to persons or property or invasion of other private rights, or any infringement of state or local laws or regulations, or any infringement of federal laws or regulations not explicitly considered in this action. § 257.126 Duration of a permit. Any federal CCR permit issued pursuant to this subpart shall be issued without an expiration date and remain in effect until the permit is revoked and reissued or terminated. lotter on DSKBCFDHB2PROD with PROPOSALS2 § 257.127 General permits. (a) General permits. The Administrator may issue general permits in accordance with all of the following: (1) A general permit shall be written to cover one or more clearly identified categories of CCR units or solid waste management practices that are subject to the same requirements of subpart D of this part. (2) Any general permit must clearly identify what types of CCR units are eligible for coverage under the general permit and clearly identify the applicable conditions for each category or subcategory of CCR units or solid waste management practices covered by the permit. A general permit may contain terms and conditions, such as limiting operations, which would ensure continued eligibility for coverage under the general permit, even if those terms and conditions are not requirements of subpart D of this part. (3) The general permit may exclude specified types or categories of CCR units or solid waste management practices from coverage. (b) Administration. (1) Any general permit will be issued, modified, or revoked in accordance with the requirements and procedures of this subpart and the following procedures in part 124 of this chapter: 40 CFR 124.6, 124.7, 124.8, 124.9, 124.10, 124.11, 124.12, 124.13, and 124.14. VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 (2) To obtain coverage under a general permit, an owner or operator of a CCR unit must submit request for coverage under the general permit to the Administrator. All such requests must include all information necessary to demonstrate qualification for coverage under the general permit and must be certified as required in § 257.130(e). (3) If the Administrator makes no objection within 45 days of receiving a request for coverage under a general permit, the owner and operator shall be covered by the general permit, provided the unit remains eligible for coverage. Such an authorization will not be considered a final permit action for purposes of judicial review. (4) The Administrator may, in a general permit, provide further procedures by which an owner and operator of a CCR unit may obtain coverage by the general permit, as well as requirements for information that must be included in a request for such coverage. These procedures may deviate from the requirements of §§ 257.130 and 257.131. (5) Requiring an individual permit. (i) EPA may require any owner or operator covered under a general permit to apply for and obtain an individual CCR permit. Any interested person may petition the Administrator to take action under this paragraph. Cases where an individual CCR permit may be required include the following: (A) The owner and operator are not in compliance with the conditions of the general permit; (B) Circumstances have changed since the time of the request for coverage so that the CCR unit is no longer appropriately controlled under the general permit; or (C) Revised standards for the solid waste management of CCR have been promulgated for the solid waste management or practice covered by the general permit; (D) The Administrator has received information after the general permit has been issued. The Administrator may require an application for an individual permit on this basis if: (1) The information was not available to EPA at the time of the request for coverage and would have justified requiring an individual permit to ensure compliance with subpart D of this part, or (2) The information otherwise shows that requiring an individual permit is necessary to ensure there is no reasonable probability of adverse effects on health or the environment from permitted operations: (ii) EPA may require any permittee(s) to apply for an individual permit by PO 00000 Frm 00042 Fmt 4701 Sfmt 4702 providing a written notification that a permit application is required. This notice shall include a brief statement of the reasons for this decision, a deadline for the owner and operator to submit the application, and a statement that on the effective date of the individual CCR permit any coverage under the general permit for which the permittee has been eligible shall automatically terminate. (iii) Such an action will not be considered a final permit action for purposes of judicial review. § 257.128 Permit by rule. (a) Requirements. Notwithstanding any other provision of this part or of part 124, subpart A of this chapter, a new CCR landfill or lateral expansion of a CCR landfill shall be deemed to have a CCR permit if the following criteria are met: (1) The owner and operator of the new CCR landfill or lateral expansion of a CCR landfill maintain compliance with the following provisions: (i) Section 257.60, Placement above the uppermost aquifer (ii) Section 257.61, Wetlands (iii) Section 257.62, Fault areas (iv) Section 257.63, Seismic impact zones (v) Section 257.64, Unstable areas (vi) Section 257.70(a), (b), and (d) through (g), Design criteria for new CCR landfills and any lateral expansion of a CCR landfill (vii) Section 257.80, Air criteria (viii) Section 257.81, Run-on and runoff controls for CCR landfills (ix) Section 257.84, Inspection requirements for CCR landfills (x) Section 257.90, Applicability (xi) Section 257.91, Groundwater monitoring systems (xii) Section 257.93, Groundwater sampling and analysis requirements (xiii) Section 257.94, Detection monitoring program (xiv) Section 257.95(a), (b), and (d) through (h), Assessment monitoring program (xv) Section 257.105, Recordkeeping requirements (xvi) Section 257.106, Notification requirements (xvii) Section 257.107, Publicly accessible internet site requirements (2) The owner and operator have not detected a statistically significant increase above a groundwater protection standard for any constituent in appendix IV to this part. (3) The owner and operator have not detected a release from the new CCR landfill or lateral expansion of a CCR landfill. (4) The owner had operator have not commenced closure of the new CCR E:\FR\FM\20FEP2.SGM 20FEP2 lotter on DSKBCFDHB2PROD with PROPOSALS2 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules landfill or lateral expansion of a CCR landfill. (5) The new CCR landfill or lateral expansion of a CCR landfill does not have a direct, adverse effect on the values for which a national wild and scenic river was established. (6) The new CCR landfill or lateral expansion of a CCR landfill does not have potential adverse effects on properties listed or eligible for listing in the National Register of Historic Places. (7) The new CCR landfill or lateral expansion of a CCR landfill is not likely to jeopardize the continued existence of any endangered or threatened species or adversely affect its critical habitat. (8) The new CCR landfill or lateral expansion of a CCR landfill does not affect land or water use in the coastal zone. The owner and operator must certify that the new CCR landfill or lateral expansion of a CCR landfill complies with the State Coastal Zone Management program and that the State or its designated agency concurs with the certification (or the Secretary of Commerce overrides the State’s nonconcurrence). The certification must be included in the Notice of Intent submitted in accordance with paragraph (a)(11) of this section. (9) If located in a floodplain, the new CCR landfill or lateral expansion of a CCR landfill does not restrict the flow of the base flood, reduce the temporary water storage capacity of the floodplain, or result in washout of CCR, so as to pose a hazard to human health, wildlife, or land or water resources. (10) The new CCR landfill or lateral expansion of a CCR landfill has not: (i) Caused a discharge of pollutants into waters of the United States in violation of the requirements of the National Pollutant Discharge Elimination System under section 402 of the Clean Water Act, as amended; (ii) Caused a discharge of dredged material or fill materials to waters of the United States in violation of the requirements of the requirements under section 404 of the Clean Water Act, as amended; or (iii) Cause non-point source pollution of waters of the United States in violation of applicable legal requirements implementing an areawide or Statewide water quality management plan that has been approved by the Administrator under section 208 of the Clean Water Act, as amended; (11) The owner and operator of the new CCR landfill, or lateral expansion of a CCR landfill, submit a timely and complete Notice of Intent to the Administrator in accordance with §§ 257.124 and 257.130 and posts the VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 Notice of Intent to the facility’s publicly accessible CCR website. (b) Transition to another permit approach. If a CCR unit operating under this permit by rule becomes ineligible for its coverage, or the owner and operator wish to obtain a general or individual federal CCR permit, an application must be submitted in accordance with §§ 257.130 and 257.131 or established in the general permit. The owner and operator will remain in compliance with the requirement to have a federal CCR permit if a complete application is submitted to the Administrator no later than 60 days after failing to meet one of the conditions listed in paragraphs (a)(1) through (a)(11) of this section, and no later than 180 days prior to initiating closure. § 257.129 Transfer of permit program administration. (a) Transfer from EPA to a state. If a state CCR Permit Program is approved to operate in lieu of the federal CCR program, in part or in whole, after any compliance deadline in § 257.124, EPA will describe provisions for the prompt transfer to the state of pending permit applications and any other relevant information not already in the possession of the State Director (e.g., applications, supporting documentation for issued permits, etc.) in the notice of program approval. Where permits have been issued by EPA, the program approval should contain procedures for transferring the administration of these permits to the state, or for terminating the federal permits once equivalent state permits are issued. (b) Transfer from a state to EPA. If a state CCR permit program has operated in lieu of the federal CCR program after the compliance deadlines in § 257.124, and approval of that state program is withdrawn, in whole or in part, or if the state relinquishes its program approval, EPA will issue a notice regarding transfer of permit program administration from the state to EPA. The notice will contain deadlines for units located in the state to comply with the federal CCR permitting requirements. The notice will also describe procedures for the state to transfer to EPA permit applications and any other information relevant to permit program administration not already in the possession of EPA (e.g., pending applications, supporting documentation for issued permits, etc.). Where CCR permits have been issued by the state, the notice of program withdrawal should contain procedures for transferring the administration of these PO 00000 Frm 00043 Fmt 4701 Sfmt 4702 9981 permits to EPA, or for terminating them once RCRA CCR permits are issued. Permit Application § 257.130 Permit application requirements. (a) Duty to apply. The owner and operator meeting the applicability criteria in § 257.123(a) must submit to the Administrator a complete application for a CCR permit as described in this section and § 257.131, in accordance with the applicable deadlines in § 257.124. When a facility or activity is owned by one person but is operated by another person, the owner may comply with this requirement through one of the following approaches: (1) A single application may be submitted, but both entities must certify the permit application as specified in subsection (e) (e.g., the operator may compile and submit the permit application, which the owner must also sign). (2) In an application submitted by both entities, the owner may provide the following statement: Through this submitted application and the signature on this application, I acknowledge that [name of company/ corporation/owner] is the owner of the facility/units that will be included in the permit this application seeks and is responsible for compliance with the permit requirements, including the requirement to obtain and maintain a permit for this facility/ unit(s). I hereby authorize the facility/unit operator, [enter name of facility operator here], to submit compliance or any other required reports and future permit applications for this facility, including applications for future permit modifications, on my behalf, without my signature. I understand that I am jointly and severally liable for any noncompliance with the terms of any permit issued in response to this application or as modified in the future, and any submitted documents required by the permit and I accept responsibility for any enforcement action resulting from the actions of the operator in submitting compliance or any other required reports or permit applications on my behalf in relation to this facility/unit. Once an owner submits this statement in a permit application, all future permit applications, including modification applications, will not require signature by the owner and may be signed by the operator(s) of the unit(s) and operations to be included in the permit. This does not change the requirement in § 257.123(a) for both the owner and operator to obtain a permit. All RCRA CCR permits will designate both owners and operators as permittees, even where the owner does not sign the application in accordance with this paragraph. E:\FR\FM\20FEP2.SGM 20FEP2 lotter on DSKBCFDHB2PROD with PROPOSALS2 9982 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules (b) Completeness. An application for a permit is complete when the Administrator receives an application form containing the information required by this section and § 257.131, about all CCR units and related solid waste management operations at the facility, which is completed to his or her satisfaction. The Administrator may deny a permit for disposal in a CCR unit without receiving a complete application for a permit. A complete permit application does not require the following information: (1) Information about a CCR unit eligible for the permit by rule in § 257.128, for which a Notice of Intent has been submitted to EPA and posted on its publicly accessible CCR website in accordance with § 257.107. (2) Information about a CCR unit eligible for a general permit issued in accordance with § 257.127, for which the owner and operator have complied with the procedures for obtaining coverage contained in the general permit. If EPA subsequently determines coverage under the general permit is not appropriate, the owner and operator must submit a CCR permit application for that CCR unit or must amend an existing CCR permit application to include that CCR unit, no later than 60 days after EPA makes this determination. (3) Information about a CCR unit that is regulated in accordance with a state CCR permit program which has been submitted to the Administrator for partial approval to operate in lieu of the requirements of subpart D of this part. If the Administrator subsequently denies partial approval of the program, or the state withdraws its program, the owner and operator must submit a CCR permit application for that CCR unit or amend an existing permit application to include that CCR unit no later than 60 days after the denial or withdrawal becomes effective. (c) Duty to supplement or correct application. Any owner or operator who fails to submit any relevant facts or who has submitted incorrect information in a permit application must, upon becoming aware of such failure or incorrect submittal, submit to the Administrator such supplementary facts or corrected information along with any necessary updated certification. (d) Confidential business information. In accordance with 40 CFR part 2, subpart B of this chapter, any information submitted to EPA pursuant to this subpart that is not required to be made publicly available under part 257 may be claimed as confidential by the applicant. Any such claim must be asserted at the time of submittal. If no VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 claim is made at the time of submission, EPA may make the information available to the public without further notice. If a claim is asserted, the information will be treated in accordance with the procedures in 40 CFR part 2, subpart B. Claims of confidentiality for the name and address of any permit applicant or permittee will be denied. (e) Certification of application. Applications for CCR permits, including applications for modifications to CCR permits, must contain the following certification by a responsible official: I certify under penalty of law that I have personally examined and am familiar with the information submitted in this application and all attached documents, and that, based on my inquiry of the person or persons directly responsible for gathering the information, I believe the submitted information is true, accurate, and complete. I am aware that there are significant penalties for submitting false information, including the possibility of fine and imprisonment. (1) Where the owner and operator are different entities, a responsible official from each entity must provide this certification, and the certification must include the following statement: ‘‘I understand that I am jointly and severally liable for the accuracy and completeness of all information provided in this application.’’ (2) This certification must also be provided where a permittee submits a statement that no changes to a CCR permit application are required after a periodic application review is conducted in accordance with § 257.132. (f) Application recordkeeping. The applicant must keep records of all data used to support the permit application and any supplemental information submitted to the Administrator during the application review and permit issuance process for the life of the permit. This information shall be available at the request of the Administrator. § 257.131 Application contents. The owner and operator must provide in the application all of the information necessary for the Administrator to determine the applicability of the technical criteria in subpart D of this part to each CCR unit at the facility, to establish the permit conditions necessary to achieve compliance with these technical criteria, and to ensure there is no reasonable probability of adverse effects on health or the environment from the solid waste management of CCR at such facility. Such information includes, at a minimum: PO 00000 Frm 00044 Fmt 4701 Sfmt 4702 (a) Information about the facility. The owner and operator must provide sufficient information about the facility for the Administrator to establish permit conditions to ensure compliance with, including to assess the applicability of, applicable provisions in subpart D of this part. Such information includes but is not limited to physical location; description; operations; operating history; products; an indication of whether the application is requesting an initial, revised, or modified permit; and publicly accessible CCR website address. (b) Information about the applicant. The owner and operator must provide sufficient information in the application for the Administrator to identify, contact, and communicate with them. Such information includes, but is not limited to contact information, other environmental permits held for the facility, and ownership status (e.g., private, governmental) of each CCR unit and related solid waste management operations at the facility. (c) Information about the CCR unit(s). The owner and operator must provide sufficient technical information about each CCR unit in the application necessary for the Administrator to establish permit conditions to require compliance with, including to assess the applicability of, applicable provisions in subpart D of this part. Such information includes, but is not limited to the location, design, construction, operation, maintenance, closure and retrofit of each CCR unit, as well as liners, controls, monitoring approaches, the groundwater monitoring system, corrective action or remedial measures, and other practices to comply with subpart D of this part and to prevent or clean up releases from the CCR unit. (d) Technical information about subsurface and surrounding features. (1) The owner and operator must provide technical and other information about the geologic and hydrogeologic characteristics and features of the area surrounding the CCR unit, including subsurface characteristics. The owner and operator must provide this information sufficiently to support decisions by the Administrator to establish permit conditions to require compliance with, including to assess the applicability of, applicable provisions in subpart D of this part, and to evaluate the compliance approaches proposed in the permit application. The owner and operator must provide, at a minimum, information about the following in proximity to the CCR unit(s): Floodplains and wetlands, fault lines or unstable areas, groundwater and surface water, soil and subsoil characteristics, E:\FR\FM\20FEP2.SGM 20FEP2 lotter on DSKBCFDHB2PROD with PROPOSALS2 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules groundwater well locations and uses, adjacent land uses, and other similar information. The owner and operator must provide this information for past, present, and planned CCR units, and must provide all information in a manner that can be clearly understood, with appropriate labels. (e) Technical information gathered that characterizes conditions surrounding each CCR unit. The owner and operator must provide sufficient technical and other information about conditions at the CCR unit for the Administrator to establish permit conditions to require compliance with, including to assess the applicability of, applicable provisions in subpart D of this part. This includes but is not limited to groundwater, aquifers, soil, or other sampling data; date and procedures used to characterize background concentrations; well construction diagrams and drill logs; hydrogeologic cross-sections; information about the activities that yielded the sampling data, including quality assurance data; delineation of contaminant plumes; and other relevant information required to make technical assessments to characterize the presence or absence of leakage or releases from the CCR unit. (f) Plans, maps, drawings, diagrams and other documents. The technical information submitted in the CCR permit application must include plans, maps, drawings, diagrams, and other visual information, in addition to narrative information. The applicant must provide the following materials, at a minimum: (1) A site map, depicting the location of the CCR unit(s) and surrounding features representing site conditions, monitoring wells, and other pertinent information. (2) A topographic map, depicting each CCR unit, surrounding geologic and hydrogeologic features, surface water features, access and haul roads, and other pertinent information. Information in these maps must be provided to allow the permit writer to understand site conditions and evaluate compliance strategies proposed by the owner and operator, to draft terms and conditions that will achieve compliance with the requirements of subpart D of this part. (3) Potentiometric maps depicting groundwater flow direction, all CCR units at the facility, any delineated plumes of contamination from releases from CCR units, all groundwater monitoring wells or other monitoring points where water level data were gathered, potable wells on the facility property or nearby property, and other pertinent information. A sufficient VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 number and quality of maps are required to represent seasonal or temporal changes in groundwater flow direction. (4) Other documents, including: Hydrogeologic cross-sections depicting subsurface conditions, drill logs, CCR unit construction diagram(s), and groundwater monitoring well construction diagrams. (5) All site-specific compliance plans and assessments required by subpart D of this part (e.g., fugitive emissions control plan required by § 257.80, emergency action plan required by § 257.73, run-on and run-off control system plan required by § 257.81(c), inflow design flood control system plan required by § 257.82(c), assessment of corrective measures required by § 257.96, closure plan or retrofit plan required by § 257.102, and post-closure care plan required by § 257.104). § 257.132 Periodic review of permit applications. (a) Requirement for periodic review. Once a RCRA CCR permit is issued, the permittee must conduct periodic reviews to determine whether the permit application remains accurate and continues to meet the requirements under § 257.131. The timeframes for conducting periodic permit application reviews are provided in paragraph (d) of this section. (b) Procedures if no changes are needed. If the permittee determines that the permit application remains accurate and meets the requirements under § 257.131, the permittee must submit a certified statement that the application continues to be complete and accurate. The certified statement must be completed by a responsible official in accordance with § 257.130(e). (c) Procedures if changes are needed. If the permittee determines that the permit application is no longer accurate or no longer meets the requirements under § 257.131, the permittee must: (1) Prepare a revised permit application in accordance with the requirements of §§ 257.130 and 257.131, which accurately reflects current operations and any changes since the previous application was submitted; (2) Determine whether the permit must be modified based on any changes to the permit application, and, if so, apply for a permit modification according to the procedures under § 257.152. (d) Review frequency. (1) The permittee must complete the initial permit application review required by paragraphs (a) through (c) of this section no later than ten years after the date of initial permit issuance or after any PO 00000 Frm 00045 Fmt 4701 Sfmt 4702 9983 reissuance or modification of such permit, whichever date is later. (2) The permittee must complete periodic permit application reviews required by paragraphs (a) through (c) of this section no later than ten years after the date of completing the previous permit application review or after any reissuance or modification of the permit, whichever date is later. § 257.133 Permit application denial. (a) Denial for Cause. The Administrator may, pursuant to the procedures in part 124 of this chapter, deny an individual CCR permit application in its entirety, or in part (e.g., for a specific activity or for an individual CCR unit), upon a determination that any of the following causes exist: (1) Any permittee has failed or refuses to correct deficiencies in the application identified in a notice of deficiency issued in accordance with § 124.3(c); (2) Failure by any permittee in the application or during the permit issuance process to disclose fully all relevant facts; (3) Misrepresentation by any permittee of any relevant facts at any time; (4) A determination by the Administrator that the risks arising from disposal or other solid waste management of CCR can only be regulated to acceptable levels by permit denial. (5) The Administrator has received notification under § 124.3 of this chapter of an applicant’s intent to be covered by a general permit issued in accordance with § 257.127 or the permit by rule in § 257.128. (6) EPA has transferred administration of the permit program to a state in accordance with § 257.129, and the state permit is in effect for each CCR unit at the facility. (b) Denial process. The Administrator may deny a permit in accordance with paragraphs (a)(2) through (6) of this section even in the absence of a complete application. Permit Content § 257.140 Standard permit conditions. The following conditions shall be incorporated into all CCR permits either expressly or by reference. If incorporated by reference, a specific citation to these regulations must be provided in the permit. (a) Duty to comply. The permittee must comply with all conditions of this CCR permit, except to the extent and for the duration any noncompliance is authorized by the Administrator. Any unauthorized permit noncompliance E:\FR\FM\20FEP2.SGM 20FEP2 lotter on DSKBCFDHB2PROD with PROPOSALS2 9984 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules constitutes a violation of RCRA and is subject to enforcement action, permit termination, revocation and reissuance, or denial of a permit application. (b) Duty to submit periodic review certification. The permittee must review the application materials submitted for this permit no less frequently than every ten years after the issuance date of this permit. (1) Any information in the original application that is no longer accurate at the time of review, as well as any recent or new information not include in the original application, must be submitted in a revised application in accordance with §§ 257.130 and 257.131. If the changes reflected in the revised application meet the criteria for a permit modification in §§ 257.150 through 257.151, the revised application must specify the type of modification requested and include information required for a modification in accordance with § 257.152. (2) If all information in the original application is still accurate at the time of review and there is no new or additional information relevant to the application, the permittee shall submit a statement that no information in the application has changed, certified in accordance with the requirements in § 257.130(e). (c) Need to halt or reduce activity not a defense. It shall not be a defense for a permittee in an enforcement action that it would have been necessary to halt or reduce the permitted activity in order to maintain compliance with the conditions of this permit. (d) Requirement to mitigate impacts of noncompliance. In the event of noncompliance with this permit, the permittee must take all reasonable steps to minimize releases to the environment and must carry out such measures as necessary to reduce reasonable probability of adverse impacts on health and the environment. (e) New statutory requirements or regulations. If the standards or regulations on which this permit is based change through changes to statute, promulgation of new or amended regulations, or by judicial decision, and this results in failure of the permit terms and conditions to ensure compliance with the revised standard or regulation, the permittee must apply for a permit modification. The permittee shall submit an application to modify this permit to include the revised requirements within 180 days after the change becomes effective. (f) Proper operation and maintenance. The permittee shall ensure the proper operation and maintenance of all units, VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 ancillary equipment and systems of treatment and control, which are installed or used to achieve compliance with the conditions of this permit. Failure to properly operate and maintain such equipment does not excuse failure to comply with requirements in this permit. The term ‘‘Proper operation and maintenance’’ includes effective performance, adequate funding, adequate staffing and training, and adequate laboratory and process controls, including appropriate quality assurance procedures. Operation of back-up or auxiliary equipment or similar systems is required only when necessary to achieve compliance with the conditions of this permit. (g) Permit actions. This permit may be modified, revoked and reissued, or terminated for cause. The application by the permittee for a permit modification, or termination, or anticipated noncompliance, does not stay any permit condition. (h) Property rights. The permit does not convey any property rights of any sort, nor any exclusive privilege. (i) Duty to provide information. The permittee must furnish to the Administrator, within a reasonable time, any relevant information which the Administrator may request to determine whether cause exists for modifying, revoking and reissuing, or terminating this permit, or to determine compliance with this permit. The permittee must also furnish to the Administrator, upon request, copies of records required to be kept by this permit. (j) Inspection and entry. The permittee shall allow the Administrator or an authorized representative, upon the presentation of credentials and other documents as may be required by law, to: (1) Enter at reasonable times upon the permitted premises where a regulated unit or activity is located or conducted, or where records that must be kept under the conditions of this permit are located; (2) Have access to and copy, at reasonable times, any records that must be kept under the conditions of this permit; (3) Inspect at reasonable times any units, equipment (including monitoring and control equipment), practices, or operations regulated or required under this permit; and (4) Sample or monitor at reasonable times, for the purposes of assuring permit compliance or as otherwise authorized by RCRA, any substances or parameters at any location. (k) Monitoring and records. (1) Samples and measurements taken for PO 00000 Frm 00046 Fmt 4701 Sfmt 4702 the purpose of monitoring must be representative of the monitored activity. (2) The permittee must retain records of all monitoring information, including all calibration, maintenance, and quality assurance records; all original monitoring data; copies of all reports and certifications required by this permit; and records of all data for a period of at least ten years from the date of the sample, measurement, report, certification, or application. This period may be extended by request of the Administrator at any time. The permittee must maintain records and data used to support a permit application for the lifetime of the permit. The permittee shall maintain records of all groundwater monitoring, including records of groundwater well construction and groundwater elevation measurements, throughout the active life of the unit, the post-closure care period and until completion of all corrective action. (l) Signatory requirements. All applications, reports, or information required to be submitted to the Administrator by this permit must be signed and certified by the owner and operator of a CCR unit in accordance with the procedures of § 257.130(e). (m) Reporting requirements. (1) Anticipated noncompliance. The permittee shall provide written or electronic notice to the Administrator as soon as possible, but no later than 60 days in advance of any planned changes in the permitted facility or activity which may result in noncompliance with permit requirements. (2) The permittee shall report by phone or electronically any noncompliance or release which has a reasonable probability of adverse effects on health or the environment as soon as possible, and no later than 24 hours after the time the permittee first becomes aware of the circumstances. The notification shall include the following: (i) Information concerning release of any CCR that may endanger public drinking water supplies. (ii) Any information about a release of CCR that could have a reasonable probability of adverse effects on health or the environment outside the facility. (iii) The description of the release and its cause shall include: (A) Name, business address, business email address, and business telephone number of the owner and operator; (B) Name, address, email address, and telephone number of the facility; (C) Date, time, and type of release; (D) Name and quantity of material(s) involved; (E) The extent of injuries, if any; E:\FR\FM\20FEP2.SGM 20FEP2 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules (F) An assessment of actual or potential hazards to the environment and human health outside the facility, where applicable; (G) Estimated quantity and disposition of recovered material that resulted from the release; and (H) Action taken to mitigate the risk, including any preparation in advance of a severe weather event (iv) A narrative shall also be posted on the public CCR website no later than five days after the time the permittee becomes aware of the circumstances. The narrative shall contain a description of the noncompliance and its cause; the period of noncompliance including exact dates and times, and if the noncompliance has not been corrected, the anticipated time it is expected to continue; and steps taken or planned to reduce, eliminate, and prevent reoccurrence of the noncompliance. The Administrator may waive the five-day notice requirement in favor of posting a written report within fifteen days. (3) Where the permittee becomes aware that they failed to submit any relevant facts in a permit application or submitted incorrect information in a permit application or in any report to the Administrator, the permittee must promptly submit such facts or corrected information to the Administrator. (n) Severability. Invalidation of a portion of this permit does not necessarily render the whole permit invalid. EPA’s intent is that this permit is to remain in effect to the extent possible. In the event that any part of this permit is invalidated, the Administrator will advise the permittee as to the effect of such invalidation. lotter on DSKBCFDHB2PROD with PROPOSALS2 § 257.141 Establishment of permit conditions. (a) Case-by-case. In addition to the standard conditions in § 257.140, the Administrator shall establish permit terms and conditions in a CCR permit, on a case-by-case basis, in accordance with the requirements and procedures of this subpart. At a minimum, each CCR permit must include all permit terms and conditions necessary to ensure compliance with subpart D of this part. (b) Incorporation by reference. Each CCR permit must incorporate, either expressly or by reference, all requirements of subpart D of this part that are applicable to the permitted CCR units and associated solid waste management activities. In satisfying this provision, the Administrator may incorporate applicable requirements of subpart D of this part directly into terms and conditions in the permit or incorporate them by reference. If VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 incorporated by reference, a specific citation to the applicable regulations or requirements shall be provided in the permit. (c) Protectiveness. Each CCR permit shall contain such terms and conditions as the Administrator determines are necessary to ensure there is no reasonable probability of adverse effects on health or the environment from the solid waste management of CCR at such facility. § 257.142 Schedules of compliance. When an applicant will not be in compliance with one or more applicable requirement in subpart D of this part at the time of permit issuance, the Administrator may include in the CCR permit a schedule of compliance. The schedule of compliance shall include an enforceable sequence of actions leading to compliance with subpart D of this part. This compliance schedule shall resemble and be at least as stringent as that contained in any judicial consent decree or administrative order to which the permittee is subject. Any such schedule of compliance shall be supplemental to, and shall not sanction noncompliance with, the requirements in subpart D of this part on which it is based. (a) Time for compliance. Any schedule of compliance established in a CCR permit must require compliance as soon as feasible. (b) Interim dates. If a permit establishes a schedule of compliance which exceeds one year from the date of permit issuance, the schedule shall set forth interim requirements and the dates for their achievement. (1) The time between interim dates shall not exceed one year. (2) The permit must require posting on the public CCR website of reports of progress toward completion of the interim requirements and indicate a projected completion date. The time between progress reports shall not exceed six months. (c) Reporting. The permit must require that, no later than 30 days following each interim milestone deadline and the final deadline of the compliance schedule, the permittee must post a notification on the facility’s publicly accessible CCR website of its compliance or noncompliance with the interim or final requirements. Changes to a Permit § 257.150 Modification or revocation and reissuance of an individual permit at EPA’s initiative. When the Administrator receives any information (e.g., inspects the facility, receives information submitted or PO 00000 Frm 00047 Fmt 4701 Sfmt 4702 9985 posted by the permittee, receives a request under § 124.5 of this chapter, or conducts a review of the permit file) and determines one or more causes listed in paragraph (a) of this section exist, the Administrator may modify or may revoke and reissue the permit accordingly, subject to the limitations of paragraph (b) of this section, and may request an updated application, if necessary. When a permit is modified, only the conditions subject to modification are reopened. If a permit is revoked and reissued, the entire permit is reopened and subject to revision. Revocation and reissuance are generally appropriate when the changes are too extensive to be addressed through a permit modification. (a) Causes for modification or revocation and reissuance. The following are causes for modification or for revocation and reissuance of a permit by the Administrator: (1) There are material and substantial alterations, additions, or changes in operation of the permitted facility which occurred after permit issuance and require permit conditions that are different or absent from those in the existing permit or if the permit application becomes inaccurate for the CCR unit and/or associated operations. (2) The Administrator has received information after the permit has been issued. The Administrator may modify or revoke RCRA CCR permits on this basis if: (i) The information was not available to EPA at the time of permit issuance (other than revised regulations, guidance, or test methods) and would have justified the inclusion of different permit conditions at the time of issuance to ensure compliance with subpart D of this part, or (ii) the information otherwise shows that modification is necessary to ensure there is no reasonable probability of adverse effects on health or the environment from permitted operations. (3) Cause exists for termination under § 257.153, but the Administrator determines that modification or revocation and reissuance is appropriate. (4) The Administrator has received notification (as required, see § 257.151(a)(3)) of a transfer of ownership or control of the CCR unit or facility to a new owner or operator. (5) An error or omission is discovered, regardless of whether it was susceptible to correction prior to the permit’s issuance, and the Administrator determines modification is appropriate to conform a permit’s requirements to the applicable regulatory or statutory requirements. E:\FR\FM\20FEP2.SGM 20FEP2 9986 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules (b) Facility siting. Suitability of the existing facility location will not be considered at the time of permit modification or revocation and reissuance unless new information, standards, or regulations indicate that a there is a reasonable probability of adverse effects to health or the environment exists which was unknown to the Administrator at the time of permit issuance. (c) Permitting action list. The Administrator will post all permitting actions, including: Draft and final permits, modifications, revocations, terminations, and reissued permits, on a publicly available website. lotter on DSKBCFDHB2PROD with PROPOSALS2 § 257.151 Permit modifications at the request of the permittee. This section lays out the procedures for a permittee to request a modification to an individual CCR permit. A permittee must apply for a modification to a permit at any time during the life of the permit when there is a change to either a CCR unit or related solid waste management operations, or to subpart D of this part, which would impact either the procedures used to comply with the permit conditions, or the applicability of requirements of subpart D of this part. There are two types of such modifications: minor and major. Minor modifications require prior notification to EPA but do not require public comment. Major modifications require prior EPA approval and an opportunity for public participation. When a permit is modified, only the conditions subject to modification are reopened. (a) Minor modifications. Minor modifications are those that involve only minor or administrative changes that keep the permit current with respect to common changes to the facility or its operations. Minor modifications are changes that do not substantially alter the permit conditions or reduce the capacity of the facility to protect human health or the environment. These include changes necessary to comply with new regulations, where these changes can be implemented without substantially changing design specifications or management practices in the permit or where the revised regulation does not require the application of significant technical judgement or discretion. The following are examples of minor modifications: (1) Administrative and informational changes, including changes to the name or contact information of permittees or other persons or agencies identified as points of contact in the permit or compliance plans. (2) Correction of typographical errors. VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 (3) Transfer of ownership or operational control of a facility. The new owner and operator must submit a revised permit application 30 days prior to the transfer of ownership or operational control or as soon as practicable. If prior notice is impracticable, the revised permit application must be submitted no later than 30 days after the transfer of ownership or operational control. (4) Changes to a permit condition to incorporate a change to a maximum contaminant level (MCL) under §§ 141.62 and 141.66, which serve as the underlying basis for the permit condition. (5) Changes that increase the frequency, duration, or stringency of the requirements or procedures for inspection, monitoring, recordkeeping, reporting, web posting, sampling, analytical methods, or maintenance activities by the permittee. (7) Changes to monitoring, sampling or analysis methods or procedures to conform with EPA guidance or regulations. (8) Replacement of an existing groundwater monitoring well that has been damaged or rendered inoperable, as close as possible to the original location, and of similar design and depth. (9) In the closure plan, increases to estimates of the maximum extent of operations or the maximum inventory of waste. (b) Procedures applicable to minor modifications. (1) Except as provided in § 257.151(a)(3), the permittee must submit an application for a minor modification in accordance with § 257.152 no later than 45 days before making the proposed change, unless otherwise specified. If multiple modifications are requested, only those that meet the definition of a minor modification are eligible to use these procedures. (2) When revisions to subpart D of this part are promulgated that change requirements applicable to a permitted CCR unit to become less stringent than the existing permit conditions, the owner and operator may either continue to operate in accordance with the permit or may apply for a permit modification in accordance with § 257.152. (3) The permittee may apply for either a major modification or a minor modification to the Administrator. Any application for a minor modification must provide the necessary information to support the requested classification for each modification requested in the application. (4) In determining the appropriate modification type, the Administrator PO 00000 Frm 00048 Fmt 4701 Sfmt 4702 shall consider the criteria in paragraph (a) of this section and in § 257.151(c) and the similarity of the modification to examples of modifications listed in those paragraphs. (5) The Administrator may take the following actions in response to an application for a minor modification to a CCR permit: (i) Determine that a proposed minor modification is a major modification that must follow the procedures for approval in § 257.151(d); (ii) Deny for cause the proposed minor modification; (iii) Determine that additional information is needed to evaluate the modification; or (iv) Approve the minor modification. (6) The Administrator will inform the permittee of any of these determinations and provide the reasons for the decision. If a minor modification has been denied, the permittee must comply with the original permit conditions. (7) If the Administrator has not notified the permittee within the 45-day period of any of the determinations listed in paragraph (5) of this section, the permittee may proceed with the minor modification in accordance with the application. (c) Major modifications. Major modifications are all changes to a permit that are not considered a minor modification listed at § 257.151(a). These include changes that materially alter the CCR unit or its operations, changes that impact the applicability of subpart D requirements, changes that could impact the protection of human health and the environment, and changes necessary to comply with new regulations, where these changes can only be implemented by substantially changing design, operational requirements, or compliance approaches in the permit, or where the revised regulation requires the application of significant technical judgement or discretion. The following are examples of major modifications: (1) Changes that reduce the frequency or stringency of requirements for inspection, groundwater monitoring, sampling, analysis, recordkeeping, reporting, web posting, or maintenance activities by the permittee. (2) Changes to remove or relax a permit condition that is based on an underlying requirement that is no longer applicable, but where this change in applicability is not due to a regulatory change that was subject to public notice and a public comment period, a statutory change, or an order from a court. (3) Reduction in the number, or substantial changes in location, depth, E:\FR\FM\20FEP2.SGM 20FEP2 lotter on DSKBCFDHB2PROD with PROPOSALS2 Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / Proposed Rules or design of groundwater monitoring wells required by the permit. (4) Addition of a new CCR unit including a new landfill unit, a lateral expansion, or a new surface impoundment unit not already authorized by a RCRA CCR permit and not covered by a permit by rule in accordance with § 257.128. (5) Modification of a CCR unit, including physical changes or changes in management practices which are not minor modifications under § 257.151(a). (6) Addition of a corrective action program or changes to the corrective action requirements in the permit. (7) Changes to a plan approved in a permit, including reduction in the postclosure care period for any reason. This does not include administrative changes, a change that is a direct incorporation of a change to subpart D, or changes to a closure plan specified in § 257.151(a)(9), (8) Extension of the final compliance date in a schedule of compliance established in accordance with § 257.142. (9) A change to a permit condition that is based on a change in an underlying regulatory or statutory requirement, which requires substantial changes to the design, operation, or compliance strategies established in the permit or which requires the application of significant technical judgement or discretion. (d) Procedures applicable to major modifications. (1) The permittee must submit a revised permit application for a major modification in accordance with § 257.152. In addition to the information required by § 257.152, the application must include the applicable information required by §§ 257.130 and 257.131. (2) When revisions to subpart D of this part are promulgated and requirements applicable to a permitted CCR unit become more stringent than the permit conditions, the owner and operator must apply for a permit modification to incorporate the new requirements, in accordance with §§ 257.151 and 257.152 and no later than 180 days after the effective date of the revisions to subpart D of this part. (3) The permittee must place a copy of the permit modification application and supporting documents on the permitted facility’s publicly available CCR website or other publicly available electronic document storage medium. (4) The Administrator may take the following actions in response to an application for a major modification to a CCR permit: (i) Determine that additional information is needed to evaluate the application; VerDate Sep<11>2014 20:45 Feb 19, 2020 Jkt 250001 (ii) Approve the proposed modification(s); or (iii) Partially approve or deny the requested modification for any of the following reasons: (A) The modification application is incomplete; (B) The requested modification would result in a permit that would not require compliance with the requirements of subpart D of this part or other applicable requirements; or (C) The requested modification would result in a permit that would fail to ensure there will be no reasonable probability of adverse effects on health or the environment. (5) The Administrator shall grant or deny the major modification request according to the permit modification procedures of § 124.5 of this chapter. § 257.152 Application to modify an individual permit (a) Application requirements for all modifications. The permittee must provide all information and supporting documents necessary for the Administrator to evaluate the proposed modification(s) to the permit. Any application for a modification to a CCR permit must include the following: (1) A description of the exact modification(s) requested to the facility or operations and/or supporting documents referenced by the permit application; (2) A description of the exact modification(s) requested to the permit conditions; (3) Identification of the requested modification(s) as minor, in accordance with § 257.151(a), or major, in accordance with § 257.151(c), along with a justification for the classification; and (4) An explanation of why the modification is necessary to ensure that the permit accurately reflects facility conditions or operations. (5) A statement that the facility continues to comply with the currently applicable requirements in subpart D of this part. (6) Corrections or updates to any information in the application that has changed since the most recent submittal of the application. (b) Application for a minor modification. (1) If multiple modifications are requested, only those that meet the definition of a minor modification are eligible to use these procedures. Along with the application, the permittee must provide the applicable information required by §§ 257.130, 257.131 and 257.151, as well as any corrections or updates to any information that has changed since PO 00000 Frm 00049 Fmt 4701 Sfmt 9990 9987 the most recent submittal of the application. (2) The permittee must submit an application for a minor modification to the Administrator no later than 45 calendar days before the permittee wishes to implement the requested change(s). For transfer of ownership or operation, the permittee must submit an application for a minor modification as soon as practicable and no later than 30 days after the transfer occurs. (3) For a minor permit modification, the permittee may instead elect to follow the procedures in paragraph (c) of this section for major modifications. (c) Application for a major modification. The permittee must submit an application for a major modification to the Administrator no later than 180 calendar days before the permittee wishes to implement the requested modification(s). Along with the notice, the permittee must provide the applicable information required by §§ 257.130, 257.131 and 257.151. § 257.153 Termination of an individual CCR permit. (a) Causes. The Administrator may terminate an individual CCR permit for any of the following causes: (1) Significant noncompliance by any permittee with the permit; (2) Failure by any permittee in the application or during the permit issuance process to fully disclose all relevant facts, (3) Misrepresentation by any permittee of any relevant facts at any time; (4) A determination by the Administrator that the permit fails to ensure there is no reasonable probability of adverse effects to health or the environment and the permitted activity can only be regulated to acceptable levels by permit termination. (5) The Administrator has received notification of a permittee’s intent to be covered by a general permit issued in accordance with § 257.127 or the permit by rule in § 257.128. (6) The Administrator has determined that all permitted activities have ceased and the permittee has completed closure, the required post-closure care and any required corrective action. (b) Procedure. The procedures for RCRA CCR permit termination in § 124.5 of this chapter and § 22.44(b) of this chapter will be followed when terminating an individual CCR permit. [FR Doc. 2019–28440 Filed 2–19–20; 8:45 am] BILLING CODE 6560–50–P E:\FR\FM\20FEP2.SGM 20FEP2

Agencies

ENVIRONMENTAL PROTECTION AGENCY

[Federal Register Volume 85, Number 34 (Thursday, February 20, 2020)]
[Proposed Rules]
[Pages 9940-9987]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2019-28440]



[[Page 9939]]

Vol. 85

Thursday,

No. 34

February 20, 2020

Part II





Environmental Protection Agency





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40 CFR Parts 22, 124, and 257





Hazardous and Solid Waste Management System: Disposal of Coal 
Combustion Residuals From Electric Utilities; Federal CCR Permit 
Program; Proposed Rule

Federal Register / Vol. 85, No. 34 / Thursday, February 20, 2020 / 
Proposed Rules

[[Page 9940]]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Parts 22, 124, and 257

[EPA-HQ-OLEM-2019-0361; FRL-10003-82-OLEM]
RIN 2050-AH07


Hazardous and Solid Waste Management System: Disposal of Coal 
Combustion Residuals From Electric Utilities; Federal CCR Permit 
Program

AGENCY: Environmental Protection Agency (EPA).

ACTION: Proposed rule.

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SUMMARY: In December 2016, Congress passed, and the President signed 
the Water Infrastructure Improvements for the Nation (WIIN) Act, 
amending section 4005 of the Resource Conservation and Recovery Act 
(RCRA). The WIIN Act, among other things, requires the Environmental 
Protection Agency (EPA or the Agency) to implement a federal coal 
combustion residuals (CCR) permit program in Indian country and, 
subject to the availability of appropriations specifically provided to 
carry out a program, to implement a federal CCR permit program in 
nonparticipating states. The Fiscal Year 2018 and 2019 Omnibus 
Appropriations Acts provided appropriations to EPA to develop and 
implement a federal permit program for the regulation of CCR in 
nonparticipating states. In this action, the Agency is proposing to 
establish a federal CCR permit program in accordance with the 
requirements of the WIIN Act.

DATES: Comments. Comments must be received on or before April 20, 2020. 
Public Hearing: The EPA will hold a virtual public hearing on April 15, 
2020.

ADDRESSES: The EPA has established a docket for this action under 
Docket ID No. EPA-HQ-OLEM-2019-0361. The EPA has previously established 
a docket for the April 17, 2015, CCR final rule under Docket ID No. 
EPA-HQ-RCRA-2009-0640. All documents in the docket are listed in the 
https://www.regulations.gov index. Publicly available docket materials 
are available either electronically at https://www.regulations.gov or 
in hard copy at the EPA Docket Center. The Public Reading Room is open 
from 8:30 a.m. to 4:30 p.m., Monday through Friday, excluding holidays. 
The telephone number for the Public Reading Room is (202) 566-1744, and 
the telephone number for the EPA Docket Center is (202) 566-1742. You 
may send comments, identified by Docket ID No. EPA-HQ-OLEM-2019-0361, 
by any of the following methods:
     Federal eRulemaking Portal: https://www.regulations.gov/ 
(our preferred method). Follow the online instructions for submitting 
comments.
     Mail: U.S. Environmental Protection Agency, EPA Docket 
Center, Office of Land and Emergency Management Docket, Mail Code 
28221T, 1200 Pennsylvania Avenue NW, Washington, DC 20460.
     Hand Delivery/Courier: EPA Docket Center, WJC West 
Building, Room 3334, 1301 Constitution Avenue NW, Washington, DC 20004. 
The Docket Center's hours of operations are 8:30 a.m.-4:30 p.m., 
Monday-Friday (except Federal Holidays).
    Instructions: All submissions received must include the Docket ID 
No. for this rulemaking. Comments received may be posted without change 
to https://www.regulations.gov/, including any personal information 
provided. For detailed instructions on sending comments and additional 
information on the rulemaking process, see the ``Public Participation'' 
heading of the SUPPLEMENTARY INFORMATION section of this document.
    A virtual hearing will be held. The hearing will convene on April 
15, 2020, at 9:00 a.m. (Eastern time zone) and will conclude at 6:00 
p.m. (Eastern time zone). Please note that any details and updates made 
to any aspect of the hearing will be posted online at EPA's CCR website 
(https://www.epa.gov/coalash). While the EPA expects the hearing to go 
forward as set forth above, please monitor our website or contact the 
person listed in the FOR FURTHER INFORMATION CONTACT section to 
determine if there are any updates. See Section I.B. below for more 
details regarding the virtual hearing.

FOR FURTHER INFORMATION CONTACT: If you have questions on the proposed 
requirements of the federal CCR permit program, contact Stacey Yonce, 
Office of Resource Conservation and Recovery, Environmental Protection 
Agency, 5304P, Washington, DC 20460; telephone number: (703) 308-8476; 
email address: [email protected]. For more information on this 
rulemaking please visit https://www.epa.gov/coalash.

SUPPLEMENTARY INFORMATION: 

Table of Contents

I. Public Participation
    A. Written Comments
    B. Participation in Public Hearing
II. General Information
    A. Does this action apply to me?
    B. What action is the Agency taking?
    C. What is the Agency's authority for taking this action?
    D. What are the incremental costs and benefits of this action?
III. Background
    A. CCR Regulatory Overview
    B. Water Infrastructure Improvements for the Nation Act
    C. Approach To Developing This Proposal
    D. Other EPA Permit Programs
    1. RCRA Hazardous Waste Permitting
    2. CAA Title V Permitting
    3. SDWA UIC Permitting
    4. CWA NPDES Permitting
IV. What is EPA proposing?
    A. Part 22 Amendments
    B. Proposal To Use the Part 124 Procedures for Decision-Making 
for Individual CCR Permits
    C. Addition of Part 257 Subpart E
    1. General Information
    a. Program Overview
    b. Definitions
    c. Considerations Under Federal Law
    d. Applicability
    e. Deadlines for Application Submissions
    f. Effect of a Permit
    g. Duration of a Permit
    h. General Permit Provisions
    i. Permit by Rule
    j. Transfer of Permit Program Administration
    2. Permit Applications
    a. Permit Application Requirements
    b. Permit Application Contents
    c. Periodic Review of Permit Applications
    d. Permit Denial
    3. Permit Content
    a. Standard Conditions in All Permits
    b. Establishment of Permit Conditions
    c. Schedule of Compliance
    4. Changes to a Permit
    a. Modification or Revocation and Reissuance of an Individual 
Permit at EPA's Initiative
    b. Permit Modifications at the Request of the Permittee
    c. Application To Modify a Permit
    d. Termination of a Permit
V. Electronic Permitting
VI. The Projected Economic Impacts of This Action
VII. Statutory and Executive Orders Reviews
Regulatory Text

I. Public Participation

A. Written Comments

    Submit your comments, identified by Docket ID No. EPA-HQ-OLEM-2019-
0361, at https://www.regulations.gov (our preferred method), or the 
other methods identified in the ADDRESSES section. Once submitted, 
comments cannot be edited or removed from the docket. The 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

[[Page 9941]]

official comment and should include discussion of all points you wish 
to make. The 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 https://www.epa.gov/dockets/commenting-epa-dockets.

B. Participation in Public Hearing

    EPA will begin pre-registering speakers for the hearing upon 
publication of this document in the Federal Register. To register to 
speak at the hearing, please use the online registration form available 
at EPA's CCR website (https://www.epa.gov/coalash) or contact Michelle 
Long, Office of Resource Conservation and Recovery, Environmental 
Protection Agency, 5304P, Washington, DC 20460; telephone number: (703) 
347-8953; email address: [email protected] to register to speak at 
the hearing. The last day to pre-register to speak at the hearing will 
be April 13, 2020. On April 14, 2020, the EPA will post a general 
agenda for the hearing at EPA's CCR website (https://www.epa.gov/coalash).
    EPA will make every effort to follow the schedule as closely as 
possible on the day of the hearing; however, please plan for the 
hearings to run either ahead of schedule or behind schedule. 
Additionally, requests to speak will be taken the day of the hearing at 
the hearing registration desk. The EPA will make every effort to 
accommodate all speakers who arrive and register, although preferences 
on speaking times may not be able to be fulfilled.
    Each commenter will have 5 minutes to provide oral testimony. The 
EPA encourages commenters to provide the EPA with a copy of their oral 
testimony electronically (via email) or in hard copy form. The EPA 
encourages commenters to provide the EPA with a copy of their oral 
testimony electronically (via email) or in hard copy form. If EPA is 
anticipating a high attendance, the time allotment per testimony may be 
shortened to no shorter than 3 minutes to accommodate all those wishing 
to provide testimony and have pre-registered. All comments and 
materials received at the public hearing will be placed in the docket 
for this rule, as well as a transcript from this hearing.
    The EPA may ask clarifying questions during the oral presentations 
but will not respond to the presentations at that time. Written 
statements and supporting information submitted during the comment 
period will be considered with the same weight as oral comments and 
supporting information presented at the public hearing. Verbatim 
transcripts of the hearings and written statements will be included in 
the docket for the rulemaking.
    Please note that any updates made to any aspect of the hearing is 
posted online EPA's CCR website (https://www.epa.gov/coalash). While 
the EPA expects the hearing to go forward as set forth above, please 
monitor our website or contact the person listed in the FOR FURTHER 
INFORMATION CONTACT section to determine if there are any updates. The 
EPA does not intend to publish a document in the Federal Register 
announcing updates.
    If you require the service of a translator please pre-register for 
the hearing and describe your needs by April 1, 2020. If you require 
special accommodations such as audio description or closed captioning, 
please pre-register for the hearing and describe your needs by April 8, 
2020. We may not be able to arrange accommodations without advanced 
notice. Commenters should notify the person listed in the FOR FURTHER 
INFORMATION CONTACT section and indicate on the registration form of 
any such needs when they pre-register to speak.

II. General Information

A. Does this action apply to me?

    This rule applies to all facilities in Indian country \1\ and in 
nonparticipating states subject to requirements of 40 CFR part 257 
subpart D (``subpart D''). This generally includes electric utilities 
and independent power producers generating coal combustion residuals 
(CCR) that fall within the North American Industry Classification 
System (NAICS) code 221112. The term ``nonparticipating state'' is 
defined in the Water Infrastructure Improvements for the Nation (WIIN) 
Act and excludes states that have approved CCR programs where the 
approval has not been withdrawn, or who have submitted evidence of a 
state CCR program to EPA and approval is pending. This discussion is 
not intended to be exhaustive, but rather provides a guide for readers 
regarding entities likely to be regulated by this action. This 
discussion lists the types of entities that EPA is now aware could 
potentially be regulated by this action. To determine whether your 
entity is regulated by this action, you should carefully examine the 
applicability criteria found in Sec.  257.123 of this proposal, as well 
as Sec.  257.50 of title 40 of the Code of Federal Regulations. If you 
have questions regarding the applicability of this action to a 
particular entity, consult the person listed in the FOR FURTHER 
INFORMATION CONTACT section.
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    \1\ Indian Country is defined at 18 U.S.C. 1151: (a) All land 
within the limits of any Indian reservation under the jurisdiction 
of the United States Government, notwithstanding the issuance of any 
patent, and, including rights-of-way running through the 
reservation, (b) all dependent Indian communities within the borders 
of the United States whether within the original or subsequently 
acquired territory thereof, and whether within or without the limits 
of a state, and (c) all Indian allotments, the Indian titles to 
which have not been extinguished, including rights-of-way running 
through the same.
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B. What action is the Agency taking?

    EPA is proposing to establish a federal CCR permit program in 
Indian country and in nonparticipating states. EPA is proposing to 
establish requirements and procedures to issue federal permits for 
disposal and other solid waste management of CCR in 40 CFR part 257 
subpart E. The proposed permit requirements in subpart E include 
definitions, compliance deadlines, application requirements, content 
and duration, and modification requirements and procedures.
    EPA is also proposing to rely on the general administrative 
procedures applicable to several EPA permit programs. These procedures, 
which are found in 40 CFR parts 22 and 124, apply to all other RCRA 
permits, as well as to certain EPA permits issued under the Clean Water 
Act (CWA), the Safe Drinking Water Act (SDWA), and the Clean Air Act 
(CAA). EPA is proposing to rely on these general procedures without 
substantive modification and is proposing only to modify provisions in 
parts 22 and 124 to the extent necessary to ensure they apply to the 
federal CCR permit program.
    All the substantive and technical requirements currently applicable 
to CCR units would remain in 40 CFR part 257 subpart D. EPA is not 
proposing to amend or otherwise reopen any of the provisions in 40 CFR 
part 257 subpart D through this rulemaking. EPA will not respond to any 
comments that suggest revisions, or that otherwise raise issues with 
respect to the technical requirements, and such comments will not be 
considered as part of the administrative record for this rulemaking. 
However, this is not intended to prevent commenters from identifying 
any inconsistencies between the existing regulations and the proposals 
in this notice.

[[Page 9942]]

C. What is the Agency's authority for taking this action?

    These regulations are established under the authority of sections 
1008(a), 2002(a), 4004, and 4005(a) and (d) of the Solid Waste Disposal 
Act of 1970, as amended, RCRA, as amended by the Hazardous and Solid 
Waste Amendments of 1984 (HSWA) and the WIIN Act of 2016, 42 U.S.C. 
6907(a), 6912(a), 6944, and 6945(a) and (d).

D. What are the incremental costs and benefits of this action?

    This action is expected to result in annualized net costs amounting 
to between $0.09 million and $0.85 million per year when discounting at 
7%. Further information on the economic effects of this action can be 
found in Unit VI of this preamble.

III. Background

A. CCR Regulatory Overview

    In 2015, EPA published minimum criteria for CCR disposal and 
management as solid waste under subtitle D of RCRA titled, ``Hazardous 
and Solid Waste Management System; Disposal of Coal Combustion 
Residuals from Electric Utilities,'' (80 FR 21302, April 17, 2015). The 
rule established national minimum criteria for existing and new CCR 
landfills and existing and new CCR surface impoundments (``CCR units'') 
and all lateral expansions of CCR units, as codified subpart D.\2\ The 
criteria consist of location restrictions, design and operating 
criteria, groundwater monitoring and corrective action requirements, 
closure and post-closure care requirements, and recordkeeping, 
notification and internet posting requirements. Subpart D also requires 
that CCR units failing to meet certain criteria in the rule stop 
receiving waste and retrofit or close, in some circumstances.
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    \2\ Unless otherwise specified, all references to parts 2, 22, 
71, 122, 124, 144, and 257 in this preamble are to Title 40 of the 
Code of Federal Regulations (CFR).
---------------------------------------------------------------------------

    Subtitle D of RCRA generally establishes a framework for federal, 
state, and local government cooperation in controlling the management 
of non-hazardous solid waste. Within this framework, the federal role 
has typically been to establish the overall regulatory direction, by 
providing minimum nationwide standards that will protect human health 
and the environment, and to provide technical assistance to states for 
planning and developing their own programs. Implementation or 
enforcement of federal criteria established under RCRA subtitle D, 
however, remained primarily a state and local function outside of 
Indian country. In Indian country, tribes can develop a subtitle D 
program under their own authorities.
    The requirements established in subpart D were designed to be self-
implementing, because states were not required to develop their own CCR 
programs and because EPA, at that time, had no role in direct 
implementation or enforcement authority. In subpart D, EPA developed 
regulatory requirements, with which facilities could comply without the 
need to interact with a regulatory authority. The protectiveness of the 
technical requirements was strengthened through additional 
requirements, such as certifications of compliance by a qualified 
professional engineer, state and public notifications, and required 
posting of relevant compliance information on a publicly accessible 
website maintained by the facility. Since subpart D was finalized, 
litigation and subsequent rulemakings have resulted in changes to its 
requirements. Some of those changes have been finalized \3\ and others 
are still pending.
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    \3\ Partial vacatur ordered by the United States Court of 
Appeals for the District of Columbia Circuit (D.C. Circuit) on June 
14, 2016, and August 21, 2018, known as the USWAG decision.
---------------------------------------------------------------------------

B. Water Infrastructure Improvements for the Nation Act

    In December 2016, the WIIN Act was passed by Congress and signed by 
the President. The WIIN Act amended RCRA section 4005, creating a new 
subsection (d). It provided authority for EPA to review and approve 
programs submitted by states to permit CCR units, which would then 
operate in lieu of the federal requirements. 42 U.S.C. 6945(d)(1)(A). 
The WIIN Act requires EPA to implement a federal permit program in 
Indian country and nonparticipating states, that will require each CCR 
unit to achieve compliance with applicable criteria established in 
subpart D, or in successor regulations promulgated pursuant to sections 
1008(a)(3) and 4004(a). 42 U.S.C. 6945(d)(2)(B), (5). In the case of 
nonparticipating states, this requirement is subject to the 
availability of appropriations specifically provided to carry out this 
requirement. 42 U.S.C. 6945(d)(2)(B). In fiscal years 2018 and 2019, 
Congress provided appropriations to EPA for the purpose of developing 
and implementing a federal permit program for the regulation of CCR 
under section 2301 of the WIIN Act. Public Law 115-141 and 116-6.
    The WIIN Act defines ``nonparticipating state'' as a state (1) 
without an approved CCR program, (2) which has not submitted evidence 
of a CCR program for approval, (3) which has provided notice of intent 
to relinquish approval of a CCR program, or (4) for which EPA has 
withdrawn previously granted approval of a CCR program. 42 U.S.C. 
6945(d)(2)(A). The WIIN Act does not provide detailed requirements for 
a federal CCR permitting program and delegated significant discretion 
to EPA to craft a federal permitting approach appropriate to implement 
subpart D. The WIIN Act expressly provides that facilities are to 
continue to comply with applicable provisions of subpart D until a 
permit (issued either by an approved state or by EPA) is in effect. 42 
U.S.C. 6945(d)(3), (6).
    The legislation also authorized EPA to use information gathering 
and enforcement authorities in RCRA Sections 3007 and 3008 to enforce 
subpart D or permit provisions, in nonparticipating and in states with 
approved CCR programs, subject to certain conditions. 42 U.S.C. 
6945(d)(4).
    States may submit a program to EPA for approval and, once the state 
program is approved, permits or other prior approvals \4\ issued 
pursuant to the approved state permit program operate in lieu of the 
federal requirements. 42 U.S.C. 6945(d)(1)(A). To be approved, a state 
program must require each CCR unit to achieve compliance with subpart D 
(or successor regulations) or alternative State criteria that EPA 
determines are ``at least as protective as'' subpart D (or successor 
regulations). State permitting programs may be approved in whole or in 
part. 42 U.S.C. 6945(d)(1)(B).
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    \4\ See 42 U.S.C. 6945(d)(1)(A), ``Each State may submit to the 
Administrator, in such form as the Administrator may establish, 
evidence of a permit program or other system of prior approval and 
conditions under State law . . .''
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C. Approach To Developing This Proposal

    The WIIN Act requires the Administrator to ``implement a permit 
program,'' to require compliance with criteria established by 
regulation under RCRA sections 1008(a)(3) and 4004(a), but otherwise 
provides few requirements on the content of the permit program and no 
direction on the specific procedures to be used to implement the 
program. This is different than, for example, section 3005 of RCRA and 
sections 402 and 404 of the CWA, each of which provide greater 
specificity.
    The WIIN Act authorized the use of subtitle C enforcement 
authorities in sections 3007 and 3008 of RCRA to

[[Page 9943]]

enforce the established criteria as well as federal CCR permits. 
However, Congress did not expressly reference the permitting provisions 
in subtitle C, strongly suggesting that Congress did not preclude EPA 
from considering regulatory approaches of other permit programs as 
well.
    In the absence of more explicit Congressional direction, EPA has 
chosen to rely on its collective experience implementing the existing 
regulations under the various permit programs across the Agency to 
develop this proposal. As discussed below, EPA has incorporated 
elements from permit programs established under the CWA, RCRA, SDWA, or 
CAA, where the elements seemed well-suited to implement the 
requirements in subpart D or to particular circumstances associated 
with CCR units. Finally, several elements are common across EPA permit 
programs; EPA considers that these common elements also fall squarely 
within the parameters of what Congress considered to be ``a permit 
program.''

D. Other EPA Permit Programs

    The Agency has experience implementing and overseeing federal 
environmental permitting programs.\5\ EPA has modeled many of these 
proposals on provisions in environmental permit programs developed 
under other statutory authorities. In developing this proposal, EPA 
considered experience gained in the RCRA Subtitle C hazardous waste 
permitting program, CAA Title V permitting program, SDWA Underground 
Injection Control (UIC) permitting for Class VI wells, and CWA National 
Pollutant Discharge Elimination System (NPDES) permitting. EPA 
identified a variety of approaches, considering best practices and 
lessons learned, that have been incorporated into this proposed federal 
CCR permitting program, which is streamlined, efficient, and effective 
at requiring each CCR unit to achieve compliance with the requirements 
of subpart D.
---------------------------------------------------------------------------

    \5\ The hazardous waste permitting regulations were initially 
published in 1980 in the Consolidated Permit Regulations, (45 FR 
33290, May 19, 1980) along with regulations for SDWA Underground 
Injection Control, CWA National Pollutant Discharge Elimination 
System (NPDES), CWA Section 404 Dredge or Fill Programs, and CAA 
Prevention of Significant Deterioration permits. On April 1, 1983, 
EPA published the Environmental Permit Regulations: RCRA Hazardous 
Waste; SDWA Underground Injection Control; CWA National Pollutant 
Discharge Elimination System; CWA Section 404 Dredge or Fill 
Programs, and CAA Prevention of Significant Deterioration in the 
Federal Register (48 FR 14146, April 1, 1983). These regulations 
deconsolidated the Consolidated Permit Regulations but did not make 
any substantive changes to any of the affected sections. The 
relevant sections to this proposed rule are the creation of parts 
124 and 270.
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1. RCRA Hazardous Waste Permitting
    EPA relied on provisions in the hazardous waste permitting program, 
codified at part 270, in a number of different ways in developing this 
proposal. First, in select instances in which the part 270 requirements 
were equally relevant or applicable to CCR facilities, EPA is proposing 
to adopt the provision nearly verbatim. This includes the proposed 
provisions at Sec.  257.122, which were taken directly from Sec.  
270.3. These provisions list federal laws, such as the Endangered 
Species Act, that may apply to any EPA-issued permit under RCRA. 
Similarly, many of the standard permit terms and conditions proposed in 
Sec.  257.140 are found in Sec.  270.30.
    More commonly, EPA modeled its proposals on aspects or particular 
wording of part 270 that seemed well-suited to the current 
circumstance, with modifications to address differences in statutory 
authority or in the nature of the CCR units or facilities. 
Modifications were generally considered appropriate where the part 270 
regulations reflect statutory provisions applicable exclusively to 
permitted hazardous waste facilities; the most significant of these for 
purposes of part 257 are ``facility-wide'' corrective action under 
sections 3004(u) and (v), the land disposal restrictions (LDRs) in 
sections 3004(d), (m) and 3005(j), and the 10-year permit term in 
section 3005(c)(3). Because there are no analogous requirements in RCRA 
section 4005(d) or in part 257, EPA is not proposing to include any 
provisions in part 270 designed to implement those requirements. For 
example, Sec.  257.125 largely mirrors Sec.  270.4, but omits the 
exceptions in Sec.  270.4(a)(i) through (iii) that reflect the LDR 
requirements, the provision in Sec.  3006(c)(4), and particular 
``interim status'' requirements. Similarly, EPA relied heavily on Sec.  
270.1 in drafting the proposals in Sec. Sec.  257.120 and 257.122 that 
would establish the basic parameters of the CCR permit program.
    Modifications were also considered appropriate to reflect the more 
homogenous nature of CCR facilities. In comparison to many hazardous 
waste management facilities, CCR facilities handle fewer types of waste 
with a limited range of constituents, and typically involve a more 
limited range of waste management activities. One example of this is 
the permit modification proposals. Reflecting the more limited range of 
activities, EPA is proposing to establish two categories of permit 
modifications along with two sets of streamlined procedures that 
permittees are to use to request modifications, rather than the three 
classes of permit modifications under part 270. In essence, EPA modeled 
its proposals for major and minor modifications largely on class I and 
class III procedures under Sec.  270.42. However, many of the elements 
of Sec.  270.42 were retained: For example, EPA is proposing that CCR 
permittees would have a duty to report all relevant changes in the 
physical facility, and all other changes that may result in 
noncompliance. EPA is also proposing to establish a non-exclusive list 
of specific modifications as major or minor.
    In yet other cases, EPA simply modeled the general approach in this 
proposed rule after an approach in part 270. For example, EPA is 
proposing to use a permit by rule approach for new CCR landfills 
(including lateral expansions of a CCR landfill) in Sec.  257.128; this 
is modeled after the permit by rule provisions found in Sec.  270.60. 
Although all of the requirements differ, the permit by rule is employed 
in both cases as an approach to meet the requirement to have a permit 
for a regulated unit or facility that does not require any site-
specific operational flexibility and can comply with underlying 
requirements without site-specific tailoring. Similarly, in Sec.  
257.124, EPA is proposing tiered deadlines for the submittal of permit 
applications by classes of facilities, which is one of the general 
elements in the comparable provisions in Sec.  270.10(e).
    All told, EPA relied on part 270 to some extent in developing the 
following sections in this proposal: Sec. Sec.  257.120, 257.122-
257.125, 257.128, 257.133, 257.140, 257.141, and 257.150-257.153.
2. CAA Title V Permitting
    In the development of this rulemaking, EPA also examined the 
federal CAA Title V (40 CFR part 71) permitting provisions to identify 
permitting approaches that may be appropriate for federal CCR permits. 
Although statutory authorities for enforcement are different in RCRA 
and the CAA, fundamental enforcement activities, such as information 
gathering and gaining access for facility inspections, are similar in 
all environmental programs. Some standard permit conditions EPA is 
proposing in Sec.  257.140 are reflected in standard conditions 
required in Sec.  71.6.
    EPA also considered the permit modification procedures found in 
Title

[[Page 9944]]

V. The part 71 regulations establish three categories of permit 
modifications: Administrative permit amendments, minor modifications, 
and major modifications. Administrative permit amendments in Sec.  
71.7(d) are those needed to accommodate changes that would otherwise 
violate terms and conditions of the permit. These include typographical 
errors, change in information of any person identified in the permit, 
an increase in monitoring or reporting frequency, change in ownership, 
and a few other administrative changes. Minor permit modifications in 
Sec.  71.7(e)(1) do not violate any applicable requirement; are not 
significant changes to monitoring, reporting, or recordkeeping 
requirements in the permit; do not require a case-by-case determination 
for the permit, and do not establish or change a permit term or 
condition for which there is no corresponding underlying applicable 
requirement. To obtain a minor permit modification, the permittee must 
submit an application for a permit modification, which describes the 
change and any applicable requirements that may change, as well as 
submit forms to notify affected states and certification from a 
responsible official. Minor modifications do not require public 
participation under the part 71 regulations. In turn, the permitting 
authority can either issue the permit modification as proposed, deny 
the permit modification application, determine the requested 
modification does not meet minor permit modification criteria and 
should be reviewed, or revise the draft permit modification.
    All changes that are not minor modifications qualify as major 
modifications under the part 71 regulations. Major modifications 
include changes to monitoring permit terms or conditions and relaxation 
of reporting or recordkeeping permit terms and conditions. Major 
modifications follow procedures such as: Applications, public 
participation, review by affected states, and review by EPA. The Agency 
relied on some of these requirements and procedures to develop its 
proposals for modifications to RCRA CCR permits.
3. SDWA UIC Permitting
    In the part 144 regulations for SDWA UIC permits, Sec.  144.36, 
Class VI wells are issued permits for the operating life of the 
facility and the post-injection site care period. Similar to this 
provision, EPA is proposing to issue federal RCRA CCR permits without 
an expiration date and to require the permit be maintained through the 
active life of the CCR unit, during the post-closure care period, and 
until any required corrective action is completed. This approach 
ensures permit coverage for as long as the permittee is subject to the 
substantive, underlying requirements.
    Other provisions in the part 144 regulations are also reflected in 
this proposal. Causes for modification in the UIC program include 
alterations, information, and new regulations, which are all proposed 
as causes to modify a RCRA CCR permit. If cause exists, in the UIC 
program, the Director must determine if the change meets the minor 
modification criteria in Sec.  144.41, or if it is outside the scope of 
those criteria and is considered major. Another example of similarity 
between the UIC permit program and this proposal is that minor 
modifications do not require a draft permit or public review, but major 
modifications must follow procedures in part 124.
4. CWA NPDES Permitting
    Additionally, EPA reviewed the part 122 regulations for CWA NPDES 
permits, particularly for information and processes for issuing general 
permits. In the NPDES program, individual or general permits may be 
issued. An individual permit is written to reflect site-specific 
conditions of a single discharger based on information submitted by 
that discharger in a permit application and is unique to that 
discharger. An NPDES general permit is issued to a category of 
facilities with similar operations, but no one in particular. Multiple 
dischargers may obtain coverage under that general permit after it is 
issued, consistent with the permit eligibility and authorization 
provisions. This is similar to the approach proposed in Sec.  257.127 
for the federal CCR program to establish procedures to issue general 
permits.
    The benefits of CCR general permits are expected to be similar to 
the benefits of NPDES general permits, resulting in clarity and 
efficiency. CCR general permit applicants would know their permit 
requirements before applying for coverage under that permit. 
Furthermore, obtaining coverage under a general permit is expected to 
be quicker than for an individual permit, with coverage under a general 
permit occurring within 45 days. General permits would allow the Agency 
to provide timely permit coverage for a potentially large number of 
similar CCR units subject to the same requirements of subpart D.

IV. What is EPA proposing?

    EPA is proposing to create a new subpart E in part 257, which would 
establish the general requirements and many of the procedures that EPA 
would use to issue federal CCR permits. As discussed in more detail 
throughout this preamble, many of the proposals are similar to EPA's 
existing regulations in part 270, which establish the general 
requirements applicable to RCRA hazardous waste permits. EPA has also 
modeled some of its proposals on regulations in environmental permit 
programs developed under other statutory authorities, such as the CWA 
NPDES, SDWA UIC, and CAA Title V programs.
    EPA is also proposing to rely on the general, administrative 
procedures applicable to EPA environmental permit programs found in 
parts 22 and 124 without substantive modification. These procedures 
apply to RCRA hazardous waste permits, as well as to EPA permits issued 
under other statutory authorities. EPA is proposing only to modify 
those provisions in parts 22 and 124 to the extent necessary to ensure 
they apply to the federal CCR permit program.
    With the exception identified in Unit IV.C.3.b of this preamble, 
EPA is not proposing to amend or otherwise reopen any of the 
requirements applicable to CCR units in subpart D. EPA will not respond 
to any comments that suggest revisions, or that otherwise raise issues 
with respect to subpart D requirements, and such comments will not be 
considered as part of the administrative record for this rulemaking. 
However, this is not intended to prevent commenters from identifying 
any inconsistencies between the existing regulations and the proposals 
in this notice.

A. Part 22 Amendments

    40 CFR part 22 contains the Consolidated Rules of Practice. These 
are procedural rules for the administrative assessment of civil 
penalties, issuance of compliance or corrective action orders, and the 
revocation, termination or suspension of permits, under most 
environmental statutes. In this action, EPA is proposing to amend only 
the provision in part 22 related to termination of a permit.
    In Sec.  124.5(d)(2), there is a reference to ``. . . Such 
termination of NPDES and RCRA permits shall be subject to the 
procedures of part 22 of this chapter.'' EPA is proposing a Termination 
of a Permit provision in part 257 and is proposing to amend Sec.  22.44 
to add a reference to Sec.  257.153 into the regulatory text.

[[Page 9945]]

B. Proposal To Use the Part 124 Procedures for Decision-Making for 
Individual CCR Permits

    Part 124 establishes the procedural requirements for issuing, 
modifying, revoking and reissuing, denying, and terminating EPA-issued 
permits under several federal programs, including under RCRA for 
hazardous waste management facilities. Part 124 also establishes 
procedures applicable to certain state-administered permit programs. 
This Unit of the preamble first describes generally how part 124 works 
and then presents the Agency's proposal to follow the decision-making 
procedures in part 124, subpart A, when issuing individual federal CCR 
permits under part 257, subpart E. This overview is presented solely 
for the reader's convenience. EPA is proposing only to modify 
provisions in part 124 to the extent necessary to ensure they apply to 
the federal CCR permit program. EPA is not proposing to amend or 
otherwise reopen any of the substantive obligations in these 
regulations. EPA will not respond to any comments that suggest 
revisions, or that otherwise raise issues with respect to these 
requirements, and such comments will not be considered as part of the 
administrative record for this rulemaking.
1. Overview of Part 124, Subpart A
    Subpart A of part 124 (Subpart A) is codified in Sec. Sec.  124.1 
through 124.21 and contains general procedural requirements applicable 
to several EPA permit programs, including RCRA permits issued under the 
hazardous waste program. Subpart A describes the steps EPA will follow 
in receiving permit applications, preparing draft permits, issuing 
public notice, inviting public comment, and holding public hearing on 
draft permits. Subpart A also includes requirements for assembling an 
administrative record, responding to comments, issuing a final permit 
decision, and allowing for administrative appeal of a final permit 
decision.
    Under the procedures of part 124, a facility must apply for a 
permit based on the requirements of a federal program (e.g., part 270 
for RCRA hazardous waste management facilities). EPA \6\ reviews the 
application and notifies the permit applicant when the application is 
complete as required under Sec.  124.3. EPA then decides whether to 
issue a notice of intent to deny the application or to prepare a draft 
permit as specified under Sec.  124.6. Either of these decisions would 
be supported by a statement of basis required by Sec.  124.7 or a fact 
sheet required by Sec.  124.8 that becomes part of the official 
administrative record for the permit as specified under Sec.  124.9.
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    \6\ This background discussion assumes that the facility is 
obtaining an EPA-issued permit and therefore it uses the term 
``Regional Administrator.'' Alternatively, in instances where the 
state has an approved program, the State Director would have the 
authority to issue the permit. As discussed elsewhere in this Unit, 
the agency is proposing to revise the current definition of 
``Regional Administrator'' in subpart A for RCRA CCR permits.
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    Decisions to revoke and reissue, to terminate a permit, and some 
decisions to modify a permit would also follow the above procedures. 
See generally Sec.  124.5. EPA may commence any of these actions on its 
own initiative or may act in response to a request submitted by any 
interested person that meet the requirements of Sec.  124.5(a). Denials 
of such requests for modification, revocation and reissuance, or 
termination, unlike denials of applications, are not subject to public 
comment or public hearings. Sec.  124.5(b). If EPA decides to deny the 
request, a notice briefly stating the reasons for the denial is sent to 
the requester. Such a notice is not accompanied by a statement of basis 
or a fact sheet. In addition, an administrative record is not assembled 
pursuant to Sec.  124.9. Denials of requests for modification, 
revocation and reissuance, or termination cannot be formally appealed 
to the Administrator under the appeal procedures specified in under 
Sec.  124.19; however, such an action can be informally appealed under 
the procedures specified in Sec.  124.5(b).
    All draft permits prepared under Sec. Sec.  124.5 and 124.6 are 
subject to public notice pursuant to Sec.  124.10, public comment under 
Sec.  124.11, and, in suitable cases, public hearings pursuant to Sec.  
124.12. These processes allow any interested person to bring forward 
comments or questions concerning the draft permit or its supporting 
materials. After the close of the comment period, including any public 
hearing, EPA issues a final decision on the permit following the 
procedures under Sec.  124.15. The final permit decision is accompanied 
by a response to all significant comments in accordance with Sec.  
124.17 which, together with additional supporting material, completes 
the final administrative record. See, Sec.  124.18.
    Whenever commenters on a draft permit ask that changes be made, the 
final permit will not become effective until 30 days after notice is 
served under Sec.  124.15(a). This 30-day gap between the date of 
issuance and the effective date of a final permit allows for time to 
appeal a decision on a permit. If no such comments are received, the 
final permit is issued and effective the same day.
2. Proposal To Apply Procedural Requirements of Part 124 When Issuing 
CCR Permits
    The Agency is proposing to apply the existing decision-making 
procedures in part 124 subpart A without modification, when issuing 
federal CCR permits. These procedures are common to several EPA permit 
programs, and EPA considers them to be generally applicable. By 
contrast, EPA is not proposing to adopt any of the requirements in 
subparts B, C, D, or G of part 124 as part of the federal CCR 
permitting program because these subparts contain procedures specific 
to individual federal programs, i.e., RCRA hazardous waste management 
facilities, CAA prevention of significant deterioration (PSD) permits, 
and SDWA UIC permits.\7\
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    \7\ Subparts E and F of part 124 are currently reserved and 
contain no requirements.
---------------------------------------------------------------------------

    Some requirements in subpart A as currently written would apply to 
the federal CCR permit program without modification. For example, Sec.  
124.3(e) allows for site visits by the Agency when determined necessary 
during the processing of a permit application; this provision applies 
to all federal permitting programs covered by subpart A (i.e., this 
provision is not limited to certain federal permitting programs). In 
this proposal, EPA intends for provisions that are not currently 
limited to another federal permitting program to apply to the federal 
RCRA CCR permitting program. Put another way, unless the provision is 
explicitly written to limit applicability only to other federal 
permitting programs or the provision is proposed to be exempt from 
applying to federal CCR permits, such part 124 requirements would apply 
to the federal RCRA CCR permitting program. For other requirements in 
subpart A, EPA is proposing to revise a provision to make clear whether 
the requirement would apply to the federal CCR permit program.
    EPA is proposing: (1) New and revising several existing definitions 
to cover the CCR permit program; (2) amendments to particular 
requirements in subpart A to make clear whether the provision would 
apply to the federal CCR permitting program (e.g., the addition of 
references or citations to specific provisions in the proposed CCR 
permit program regulations). Many of the proposed amendments to subpart 
A would simply make explicit whether a given requirement would be 
applicable to RCRA CCR permits. These proposed

[[Page 9946]]

amendments are discussed in this preamble and are presented in the 
proposed regulatory text. Furthermore, these proposed revisions do not 
change substantively the decision-making procedures of part 124, nor 
are they intended to. In proposing these minor revisions, EPA is not 
soliciting comments on and will not respond to comments on the existing 
regulatory provisions which underlie the revisions as they apply to 
other federal permitting programs.
a. Definitions
    In addition to amending the introductory text of Sec.  124.2(a), 
EPA is proposing to add three new definitions and revise five current 
definitions in this section. When used in Sec. Sec.  124.1 through 
124.21 as proposed, these new and revised definitions would allow for 
the proper interpretation and understanding of how the existing 
decision-making procedures of subpart A would apply to the federal RCRA 
CCR permitting program. The Agency is proposing to amend the 
introductory text of Sec.  124.2(a) by adding a reference to Sec.  
257.121 in the first sentence. Section 257.121 is a new section 
containing proposed definitions under the regulations for the federal 
RCRA CCR permit program. Adding this new reference to Sec.  257.121 
will allow these key definitions to apply within subpart A without the 
need to recodify them in subpart A.
    The Agency is proposing to add several new definitions to Sec.  
124.2(a) of subpart A.
    RCRA CCR general permit. EPA is proposing this term to mean a RCRA 
CCR permit containing terms and conditions to ensure compliance with 
requirements of subpart D applicable to a specified category of CCR 
units, which are designated as eligible for coverage under the general 
permit. General permits in the CCR program would be issued in 
accordance with the proposed provision under Sec.  257.127. This 
definition is needed to identify those provisions of subpart A 
applicable to general permits that may apply to CCR general permits.
    RCRA CCR permit. This term would mean a permit issued pursuant to 
section 4005(d) of RCRA (42 U.S.C. 6945(d)). Section 4005(d) is the new 
section of RCRA established by the WIIN Act of 2016 that provides EPA 
with the authority to establish a federal CCR permit program. EPA is 
proposing to add this term to subpart A to identify those provisions 
that would only apply within the federal CCR permitting program. Put 
another way, the use of this term would help distinguish between types 
of RCRA permits. For example, this term would not apply to permits for 
RCRA hazardous waste management facilities because section 4005(d) does 
not apply to these facilities.
    RCRA permit. The Agency is proposing that this term means a permit 
issued pursuant to any section of RCRA. This term would apply to CCR 
permits as well permits for hazardous waste management facilities. EPA 
is proposing to add this term (and RCRA CCR permit) to facilitate 
proper interpretation of the subpart A provisions.
    In addition, EPA is proposing to revise several existing 
definitions in Sec.  124.2(a) of subpart A. The Agency is proposing 
these revisions to incorporate the concept of CCR permits into the 
existing definitions. EPA is not proposing to revise or reopen the 
existing definitions as they apply to other federal permitting programs 
covered by subpart A. Accordingly, the Agency will not respond to any 
comments on these definitions as they apply to other federal permitting 
programs.
    Director and Regional Administrator. EPA is proposing to revise the 
term Regional Administrator to indicate that this term includes the 
Administrator within the context of the CCR permitting program if the 
Administrator has not issued a delegation of authority to the Regional 
Administrator. Because of the proposed change to the definition of 
Regional Administrator, the Agency is proposing to revise the current 
definition of Director by adding the Administrator to the list of 
persons included in the definition. These proposed changes are 
necessary to properly interpret the requirements of subpart A that 
would include the CCR permitting program.
    Facility. While this term is already defined in subpart A for other 
federal permitting programs, the Agency is proposing to revise the 
definition in subpart A to make clear that, for purposes of only the 
federal CCR permitting program, the definition of facility as codified 
in Sec.  257.53 applies to CCR permits.
    Permit. The Agency is proposing to revise this definition to simply 
incorporate the concept of RCRA CCR permits into the existing 
definition. This would be accomplished by adding a reference to part 
257 to the first sentence and including citations to Sec.  257.127 for 
RCRA CCR general permits and Sec.  257.128 for CCR permit by rule to 
the second sentence. These proposed changes are necessary to properly 
interpret the requirements of subpart A that would include the CCR 
permitting program.
    RCRA. The Agency is proposing to revise the current definition of 
RCRA in subpart A by adding a reference to Public Law 114-322 to the 
definition. This public law is the WIIN Act of 2016 that provides EPA 
with the authority to establish a federal CCR permit program. When used 
in subpart A as proposed, the term RCRA would apply to the CCR 
permitting program as well as other permitting programs under RCRA 
(e.g., hazardous waste management facilities). EPA is proposing to 
revise this term to facilitate proper interpretation of the subpart A 
provisions that would include a permitting program for CCR units.
b. Other Revisions to Subpart A
    EPA is proposing several minor revisions to certain provisions of 
subpart A to harmonize it with the proposed CCR permit program 
requirements. Many of the proposed revisions to subpart A simply make 
clear whether a given requirement would be applicable to federal CCR 
permits issued by EPA. One example of these minor proposed changes 
includes adding references or regulatory citations to the new proposed 
federal CCR permitting provisions. Another example would be those 
subpart A provisions that are affected by use of the new definitions. 
Any provision of subpart A that would be amended is presented in the 
regulatory text accompanying this action. In addition, the Agency has 
placed a memorandum in the docket that shows each of these amendments 
in redline and strikeout format.

C. Addition of Part 257 Subpart E

    EPA is proposing to create a new subpart E to part 257 to contain 
federal CCR permit program regulations.
1. General Information
a. Program Overview
    EPA is proposing in Sec.  257.120 to provide a general overview of 
the federal RCRA CCR permit program. Paragraph (a)(1) specifies that 
these regulations have been established to implement the mandate 
pursuant to section 4005(d) of RCRA, and paragraph (a)(2) specifies 
that subpart E would contain requirements for permit applications, 
content, modifications, revocation and reissuance, and termination. 
Consistent with RCRA 4005(d)(2)(B), EPA is proposing at Sec.  
257.120(a)(3) that the requirements in subpart D will be the basis of 
the permit content.
    EPA is proposing at Sec.  257.120(b) to require owners and 
operators of CCR units that are located in

[[Page 9947]]

nonparticipating states and in Indian country, and that are subject to 
requirements in subpart D, to obtain a federal CCR permit. EPA intends 
this to mean that permits are mandatory for all CCR units in these 
locations. This would also mean that once a permit has been issued or a 
permit application has been finally adjudicated, a facility could no 
longer operate the permitted CCR units under the self-implementing 
program. Further, compliance with the applicable requirements in 
subpart D alone would no longer mean that a CCR unit (or regulated 
entity) would be in compliance with the requirements of RCRA subtitle 
D.
    This proposal is based on both legal and practical considerations. 
First, EPA considers this to flow directly from the requirement in RCRA 
section 4005(d)(2)(B) for EPA ``to implement a permit program to 
require each [CCR] unit . . . to achieve compliance with applicable 
criteria established by the Administrator.'' Second, any other approach 
would effectively deprive the permit of any real legal or practical 
effect. An individual CCR permit will be the result of an adjudication 
that will clarify how the subpart D requirements apply to the specific 
facility operations and site conditions at issue to ensure that the 
statutory protectiveness standard in section 4004(a) of RCRA has been 
met. If the facility could at any time return to alternative compliance 
approaches it had previously developed under the self-implementing 
criteria, the permit effectively would become unenforceable. Moreover, 
if the record created through the permit process showed that particular 
permit conditions were necessary to meet the statutory standard, EPA 
would have no basis to allow the facility to operate without those 
conditions. It is implausible that this is the outcome Congress 
intended.
    EPA is proposing that subpart E would apply jointly and severally 
to both owners and operators of a CCR unit that dispose of or otherwise 
engage in solid waste management of CCR. This reflects the joint and 
several liability established under subpart D for each of these 
entities. Therefore, this proposed rule would also require owners and 
operators of CCR units subject to requirements in subpart D, located in 
nonparticipating states and in Indian country, to obtain a federal CCR 
permit.
    At Sec.  257.120(b)(2), EPA is proposing to codify the statutory 
requirement that the owner and operator of a CCR unit must continue to 
comply with all applicable requirements of subpart D until a CCR permit 
is in effect. Consistent with RCRA section 4005(d)(6), once a permit 
has become effective for a CCR unit, compliance with the permit terms 
will constitute compliance with subpart D for enforcement purposes. 
This permit shield provision is discussed further in Unit IV.C.1.f of 
this preamble.
    EPA is proposing at Sec.  257.120(b)(3) that, before a permit is 
issued, submittal of a complete and timely permit application in 
accordance with the requirements in Sec. Sec.  257.124, 257.130, and 
257.131 serves as compliance with the requirement to obtain a permit, 
unless and until EPA takes final action on the application (i.e., to 
issue or deny a permit). This proposal is based on the rationale that 
once the owner and operator have submitted a timely and complete permit 
application, the action is out of their hands until the Administrator 
acts on the application. The owner and operator should not be deemed 
out of compliance if they have done everything possible to obtain a 
permit and are awaiting action by EPA. This does not affect the 
applicant's obligation to continue to comply with all applicable 
requirements in subpart D.
    EPA is proposing at Sec.  257.120(b)(4) that any CCR unit located 
in a nonparticipating state or in Indian country must have a permit 
during each stage of operation listed in Sec.  257.123(a). The 
requirement to obtain and maintain a permit would apply throughout all 
stages of operation during which solid waste management of CCR occurs 
at the facility, including the active life of the CCR unit (i.e., 
during active placement of waste in the unit and until closure 
activities are completed), the post-closure care period and until 
completion of all corrective action. This corresponds with the 
statutory mandate that a permit program require each CCR unit to 
achieve compliance with the requirements in subpart D. As these 
requirements apply at all stages of operation, it is likewise necessary 
to require the CCR unit to have a permit throughout all stages of 
operation.
    After the Administrator has issued a permit, the permittee must 
continue to have a permit. Any CCR unit without either a permit or a 
timely, complete permit application in accordance with proposed 
Sec. Sec.  257.124, 257.130 and 257.131 will be considered an ``open 
dump,'' as defined in 42 U.S.C. 6903(14), irrespective of the unit's 
compliance with the requirements of subpart D and may no longer receive 
waste. This flows from the prohibitions on open dumps and ``open 
dumping'' in RCRA Sec. Sec.  4004(a) and 4005(a).
    EPA is proposing three permitting approaches at Sec.  
257.120(b)(5). These are a general permit (see Sec.  257.127 and Unit 
IV.C.1.h of this preamble), a permit by rule (see Sec.  257.128 and 
Unit IV.C.1.i), or an individual permit. In most cases, EPA intends to 
issue a single individual permit to each regulated facility, which 
implements all applicable requirements of subpart D for all CCR units 
at the facility. However, in some cases, a single federal CCR permit 
for all CCR units at a facility may not be feasible. This could occur, 
for example, in situations where one CCR unit is eligible for the 
permit by rule or a general permit, but the other CCR units at the 
facility require an individual CCR permit. This could also occur in 
instances where a state program is approved to operate in lieu of the 
federal program to issue permits for only some of the requirements in 
subpart D (i.e., a partial state program approval) and other subpart D 
requirements must be implemented through a federal CCR permit. Thus, a 
single individual permit would be issued to a facility only when 
feasible. The default approach for a CCR permit is an individual 
permit, but if there is a CCR unit that meets the eligibility criteria 
for a permit by rule or general permit, then those approaches would 
satisfy the requirement to obtain a permit for those CCR units that 
meet the respective eligibility criteria.
    Additionally, EPA is proposing at Sec.  257.120(b)(6) that the 
Administrator may issue or deny a permit for one or more CCR units at a 
facility without simultaneously issuing or denying a permit to all the 
CCR units at the facility. The status of any CCR unit for which a 
permit has not been issued or denied would not be affected by the 
issuance or denial of a permit to any other CCR unit at the facility, 
even if multiple units were included in the same permit application. 
The compliance status of each unit should normally be evaluated 
individually.
    EPA is proposing at Sec.  257.120(b)(7) that CCR permits issued by 
EPA will not have an expiration date. This provision is discussed in 
detail in Unit IV.C.1.g of this preamble. Permit terms will remain in 
effect until modified, revoked and reissued, or terminated. EPA is 
proposing at Sec.  257.132 that a permittee must review and resubmit 
each permit application, or each notice of intent to be covered by the 
permit by rule, no less frequently than every 10 years. This is 
intended to ensure that EPA will have current information about 
operations at each permitted facility, which would alternatively be 
gained through a permit renewal process if permits had an expiration 
date.

[[Page 9948]]

    EPA is proposing in Sec.  257.120(b)(8) that a federal CCR permit 
may be modified, revoked and reissued, or terminated for cause by the 
Administrator as set forth in Sec. Sec.  257.150 through 257.153. This 
provision and the rationale for it are described in Units IV.C.4.a and 
IV.C.4.d of this preamble.
b. Definitions
    EPA is proposing to establish the following definitions at Sec.  
257.121.
i. Applicable Requirement
    EPA is proposing to create a definition of ``applicable 
requirement'' to establish criteria for CCR permit content. For the 
Administrator to issue federal CCR permits consistent with RCRA section 
4005(d), to require each CCR unit to achieve compliance with applicable 
criteria established in subpart D, the permit must contain those 
requirements. Therefore, EPA is proposing to define applicable 
requirement as a requirement in subpart D to which the permittee is 
subject. A definition of this term provides clarity regarding 
requirements in this proposal pertaining to applicability, application 
requirements, content, modification application requirements, and 
schedules of compliance, in a manner consistent with the statutory 
language of RCRA section 4005(d).
ii. Completion of All Corrective Action
    EPA is proposing to define the term ``completion of all corrective 
action'' as completion of activities required by Sec.  257.95(g) 
through (i), Sec.  257.96, Sec.  257.97, and Sec.  257.98(a) and (b) in 
accordance with the requirements of Sec.  257.98(c) through (f). 
Because permits must require permittees to achieve compliance with 
applicable criteria established in subpart D, EPA is proposing that the 
term ``completion of all corrective action'' correspond to all required 
corrective action activities in subpart D. This definition is for use 
in subpart E only and is not intended to modify any provision in 
subpart D.
iii. General Permit
    For clarity, EPA is proposing to define the term ``general permit'' 
in a manner consistent with how the term is used in other federal 
permitting programs. General permit regulations in other federal permit 
programs provide for issuance to categories of facilities or processes 
based on criteria relevant to the specific program (e.g., the 
definition of general permit in the NPDES program in Sec.  122.2 
includes geographic area as a criterion for categorization.) The 
definition of general permit is necessarily different in this proposal 
than in other permit programs, in that it contains language unique to 
the RCRA 4005(d) for a federal CCR permit program and references 
subpart D. The categorization of CCR units eligible to be covered by a 
general permit would be based on criteria defined by operating 
parameters unique to CCR units, such as wet or dry operation (i.e., 
landfills or surface impoundments) and which determine applicability of 
requirements of subpart D. General permits would be issued to a 
category of CCR units, which would be defined in the general permit 
itself and would contain all subpart D requirements applicable to that 
category of units.
iv. Individual Permit
    EPA is proposing a definition of the term ``individual permit,'' to 
distinguish permits issued for CCR units at a single facility from 
general permits or permit by rule. An individual permit can be tailored 
to the site-specific conditions at the facility (i.e., by establishing 
unique terms and conditions to require compliance with the applicable 
requirements of subpart D, based on site-specific approaches, which may 
be proposed in the permit application or otherwise developed in the 
permit writing process).
v. Owner and Operator
    EPA is proposing to adopt the definition of ``owner or operator'' 
that is consistent with part 270. A permitting program, by definition, 
regulates interaction between applicants and permitting authorities, 
and legal obligations and procedures governing those interactions. 
Therefore, EPA is proposing to align this definition more closely with 
part 270 than with subpart D. Because this proposal utilizes approaches 
and provisions from existing federal permitting programs, using the 
definition from the federal RCRA hazardous waste permitting program 
seems more appropriate.
vi. Permit by Rule
    EPA is proposing a definition of the term ``permit by rule,'' 
consistent with how the term is used in other federal permitting 
programs. The permit by rule is a permitting approach, which is 
established in Sec.  257.128. Compliance with the permit by rule 
procedures and requirements satisfies the requirement in Sec.  
257.123(a) to have a CCR permit as long as the conditions in Sec.  
257.128(a) are met. No subsequent or facility-specific permit is 
issued.
vii. Responsible Official
    EPA is proposing to use a definition of ``responsible official'' 
that is based on the definition of that term found in Sec.  71.2, which 
is similar to the definition found in Sec.  270.11, to describe the 
appropriate signatories to permit applications and reports. This 
language is standard across environmental programs and defines the 
level of responsibility, within various organizational structures, from 
which EPA will accept formal communications and certifications for 
permitting and compliance purposes. The organizational structures 
included in the definition are: Corporations, partnerships (a partner 
may be a corporation), sole proprietorship, and municipalities. Because 
the appropriate level of responsibility at an organization for legal 
purposes is not dependent upon the details of a particular 
environmental program, EPA believes there is no basis to define this 
level of responsibility differently in this proposal.
c. Considerations Under Federal Law
    When issuing federal permits, EPA may be subject to obligations 
under other federal laws that may impact the permits. If any of these 
laws is applicable to issuance of a particular permit, then its 
procedures must be followed. Furthermore, these laws may require EPA to 
include certain conditions in the CCR permit or to deny a CCR permit. 
The five federal laws relevant to the issuance of CCR permits are 
proposed at Sec.  257.122: The Wild Scenic Rivers Act, the National 
Historic Preservation Act of 1966, the Endangered Species Act, the 
Coastal Zone Management Act and the Fish and Wildlife Coordination Act. 
These same federal laws are also included in part 270 and part 144 
permitting regulations. These laws are included in this proposed 
regulation because they impose obligations on EPA's permit issuance 
process; other federal laws may impose requirements on a permitted 
facility that are not listed here. The public, the Corps of Engineers, 
the Fish and Wildlife Service, the National Marine Fisheries Service, 
and other interested Federal agencies, all have the opportunity to 
comment on any draft CCR permit. EPA seeks comment on whether the list 
of Federal laws is appropriate or whether any should be added or 
removed.
d. Applicability
    RCRA section 4005(d) provides that the Administrator is to 
administer a permit program to require each CCR unit located in 
nonparticipating states or in Indian country to achieve compliance with 
applicable requirements established by the

[[Page 9949]]

Administrator under part 257 (subpart D). See 42 U.S.C. 6945(d)(2)(B) 
and (d)(5). Therefore, EPA is proposing that the applicability criteria 
of the CCR permit program would mirror the applicability criteria found 
in Sec.  257.50. Owners and operators not subject to the requirements 
of subpart D would not be subject to requirements of this proposal.
    EPA is proposing at Sec.  257.123(a)(1) to require all owners and 
operators of CCR units (i.e., CCR landfills and CCR surface 
impoundments, including any lateral expansions of such units) who are 
subject to the requirements of subpart D to submit a CCR permit 
application. This requirement would apply whenever the CCR unit is 
subject to requirements of subpart D, including throughout the active 
life, post-closure care period, and until completion of all corrective 
action. Depending on the stage of operation of the CCR unit, only a 
portion of these requirements may remain applicable, for example if the 
CCR unit is undergoing closure or is in post-closure care. Any CCR unit 
subject to any requirements in subpart D would require a permit for any 
of these stages of operation. These requirements would apply to CCR 
units and associated solid waste management activities located offsite 
of an electric utility or independent power producer, as long as the 
CCR unit is subject to requirements of subpart D. To comply with the 
requirement to obtain a CCR permit, the owner and operator of a CCR 
unit must jointly (when they are separate entities) submit a complete 
and timely permit application in accordance with Sec. Sec.  257.124, 
257.130, 257.131 and any subsequent Federal Register notice or other 
notification establishing a deadline for a CCR permit application.
    EPA is proposing at Sec.  257.123(a)(2) that the owner and operator 
of a CCR unit and associated solid waste management activities need not 
apply for a federal CCR permit if it is subject to requirements of a 
Participating State CCR Permit Program, or a State CCR Program that has 
been submitted to EPA and approval is pending, as EPA only has the 
authority to issue permits in nonparticipating states and Indian 
country. RCRA section 4005(d) provides that states may submit a CCR 
permit program, or other system of prior approval, to the Administrator 
for approval to operate in lieu of the federal program. See Unit III.B 
of this preamble. In addition to state CCR permit program approval in 
whole, state CCR permit programs may be approved by the Administrator 
in part. A partial program approval would result in a state CCR permit 
program that operates in lieu of the federal program for only a subset 
of subpart D requirements. For example, if a state submits for approval 
a CCR permit program that only regulates certain types of CCR units 
(e.g., landfills) or does not require compliance with all elements of 
the CCR regulations (i.e., does not contain requirements for structural 
stability), EPA could grant a ``partial approval'' that would approve 
the state's permit program to operate in lieu of only certain 
provisions in the federal CCR program. For any subpart D requirements 
not covered by the approved state program, the state is considered a 
nonparticipating state and the owner and operator of such CCR units 
would be required to apply for and obtain a federal CCR permit.
    EPA is proposing at Sec.  257.123(a)(3) that the owner and operator 
could meet this obligation by submitting an application (or in one 
case, a notification) for any of the following three kinds of CCR 
permits. The first is an individual permit. An individual permit would 
be issued to one or more CCR units at the same facility and would 
contain terms and conditions tailored to the site-specific 
circumstances at the facility, such as controls and procedures to 
achieve compliance with applicable requirements of subpart D. In the 
second approach, the owner and operator may apply for coverage under a 
general permit. EPA is proposing at Sec.  257.127 to establish 
provisions under which EPA may issue one or more general permits. The 
Administrator could issue a general permit for a category of similar 
CCR units, which would contain all requirements of subpart D applicable 
to that category of CCR units and associated solid waste management 
operations. See Unit IV.C.1.h of this preamble for more discussion on 
general permits. The third is compliance with the terms of the permit 
by rule proposed in Sec.  257.128. See Unit IV.C.1.i for more 
discussion on the permit by rule. This approach would only be available 
to new landfills or lateral expansions that meet the eligibility 
criteria and other requirements proposed in Sec.  257.128. If the owner 
and operator do not meet the criteria for, or choose not to pursue, a 
general permit or permit by rule for a CCR unit, they must apply for an 
individual permit. EPA expects most CCR units subject to this program 
would be issued an individual CCR permit.
    The permit by rule and general permit approaches are proposed to 
streamline the CCR permit program. EPA believes they would result in 
more timely permitting actions that meet the statutory mandate to issue 
permits requiring each CCR unit to comply with applicable requirements 
in subpart D. The permit by rule or general permit approaches are 
protective alternatives that will allow the Administrator to focus on 
issuance of permits to those units whose greater risks, or more 
complicated operations or site conditions, warrant the level of 
oversight associated with an individual permit. These streamlined 
approaches would be available only to certain CCR units with less 
complex operations or site conditions and more straightforward 
requirements in subpart D. Both the permit by rule and the general 
permits would contain eligibility criteria to ensure that coverage is 
available only to CCR units appropriately regulated through these 
alternatives. Consistent with this proposal, states would be able, but 
not required, to incorporate general permits and permits by rule into 
their programs submitted for approval to the Administrator. This could 
be considered as an option for permitting CCR units when developing 
state programs.
    A facility could utilize more than one permitting mechanism. For 
example, at a facility with multiple CCR units, each unit could operate 
under a different type of permit. Thus, one unit that is a new landfill 
and its associated solid waste management activities could operate 
under a permit by rule, while another CCR unit and its associated solid 
waste management activities may meet the eligibility criteria for a 
general permit established in accordance with Sec.  257.127, and an 
individual permit could be issued for the remaining CCR units and their 
associated solid waste management activities at the facility.
    As discussed in Unit IV.C.2.d of this preamble, if EPA receives a 
permit application that does not meet the requirements in Sec. Sec.  
257.130 through 257.131, the procedures in Sec.  124.3 would apply 
without modification. However, EPA is proposing at Sec.  257.123(b) 
that this would not affect the requirement for the owner and operator 
of a CCR unit to obtain a permit. If the Administrator determines an 
application is incomplete, the owner and operator must re-apply for a 
CCR permit. If the owner and operator fail to re-apply for a CCR 
permit, the CCR unit will be considered an open dump, subject to an 
enforcement action, and must cease placing waste in the unit. In such 
cases, the owner and operator would nevertheless be required to 
continue to conduct other required activities under subpart D, 
including, but not limited to fugitive dust control, groundwater 
monitoring, retrofit, closure, post-closure care, or corrective action. 
Any owner and operator that

[[Page 9950]]

does not continue to conduct these activities under subpart D would 
also be subject to enforcement action for open dumping under RCRA Sec.  
4005(a).
    EPA expects that the deadline to re-apply for a permit will be 
established in the notification of the final adjudication of the 
original permit application (denial for incompleteness) and would be 
based on the scope of the missing information. Alternatively, EPA is 
considering establishing a single deadline in the regulation for an 
applicant to re-apply after a permit is denied based on an incomplete 
application. EPA is taking comment on these approaches and alternative 
approaches and timeframes for an applicant to remedy a permit denial 
based on an incomplete application.
    EPA is not proposing to require entities who are exclusively 
engaged in the beneficial use of CCR, consistent with the requirements 
in Sec.  257.53 to obtain a federal CCR permit. This exemption is 
proposed at Sec.  257.123(c)(1). The beneficial use of CCR is not 
regulated under subpart D; therefore, EPA would have no basis to 
require entities who only engage in beneficial use to apply for and 
obtain a permit. If owners and operators of a CCR unit are subject to 
other requirements under subpart D and also engage in beneficial use of 
CCR, they would be required to apply for a CCR permit for only the 
regulated activities.
    In addition to the exemptions from subpart D, EPA is proposing to 
adopt at Sec.  257.123(c)(2) a provision similar to Sec.  270.1(c)(3) 
that owners and operators are not required to obtain or modify CCR 
permits in order to conduct an immediate response. An immediate 
response is a response action taken when there is a release, or an 
imminent and substantial threat of a release, of CCR that poses a 
reasonable probability of adverse effects on health or the environment. 
EPA is proposing this exemption to avoid delays, due to permit 
applications or processing, in response activities necessary to address 
a health or public safety concern that is urgent or potentially urgent.
    EPA is not proposing a definition of immediate response to give the 
Administrator and the facility flexibility to assess individual 
situations on a case-by-case basis and to coordinate with state, and 
local emergency responders. However, EPA envisions that immediate 
responses are those that are conducted as quickly as feasible. In 
evaluating whether an individual situation constitutes an immediate 
response, the Administrator and the facility should consider any 
indications of urgency with which the response is conducted to assess 
eligibility for this exemption. These indications could include, for 
example, conducting the response activities on a continuous basis 
(i.e., 24-hour days, 7 days per week), short-term rental of equipment 
to increase the pace of the response, procurement of response 
contractors, or other levels of effort above and beyond staffing and 
resources used during normal operations. Once the immediate response is 
over, the owner and operator would be required to obtain or modify a 
permit as needed to conduct any long-term response actions or address 
any changes to the unit or operations resulting from the release or 
response.
e. Deadlines for Application Submissions
    As previously stated, all owners and operators of a CCR unit in 
nonparticipating states and in Indian country must apply for and obtain 
a federal CCR permit in accordance with Sec.  257.123(a). In 
determining when the owner and operator of a CCR unit should be 
required to submit a permit application to the Administrator, EPA 
considered many factors. To determine how to prioritize applications in 
a timely and orderly fashion, EPA analyzed the number of CCR units 
located in nonparticipating states and in Indian country based on 
information posted on each facility's publicly accessible CCR website 
in accordance with Sec.  257.107, so that CCR permits for all regulated 
units may be issued as expeditiously as possible. EPA also looked at 
application deadlines established in other permitting programs, 
described in Unit III.C of this preamble, and how those programs 
prioritized application submittal.
    To prioritize the processing of individual permit applications for 
existing CCR units, EPA is proposing at Sec.  257.124(a)(1) and (2) to 
establish tiers of deadlines when permit applications must be sent to 
the Administrator. Tiering application deadlines for owners and 
operators of CCR units will help EPA review each permit application 
thoroughly and act on each permit application in a timely manner. 
Tiering applications may avoid a situation where EPA would receive a 
large number of applications at the same time. This could result in 
poor quality permits or in permit appeals that could have been avoided 
if EPA had sufficient time to review each application and draft permit 
content, or it could result in the need for facilities to update 
pending permit applications if information in them becomes out of date 
by the time EPA acts on them. In addition, tiering applications will 
allow EPA to address the highest priority CCR units first.
    If a CCR facility has multiple CCR units and one or more of the CCR 
units at the facility triggers an application deadline, the permit 
application must include all CCR units at the facility that are not 
covered by a permit by rule or general permit. The compliance deadlines 
proposed at Sec.  257.124(a) would require permit applications for 
either a general permit issued in accordance with Sec.  257.127, the 
permit by rule proposed at Sec.  257.128, or an individual permit. The 
compliance deadlines in the proposed rule would not prevent owners and 
operators from submitting applications early.
    EPA is proposing at Sec.  257.124(a)(1) that the first tier of 
permit applications would be due 18 months after the effective date of 
the final rule for several reasons. This timeframe would allow owners 
and operators sufficient time to prepare applications and document 
compliance strategies they wish to propose in their permit 
applications, with supporting documentation to justify these 
approaches. Eighteen months will also allow EPA sufficient time to 
develop any necessary implementation materials, such as permit 
applications and instructions or technical guidance documents, as well 
as an electronic system for federal CCR permitting. Finally, this time 
will also provide states with an opportunity to develop and submit for 
approval CCR State Permit Programs in light of the requirements that 
will be established in this federal permitting program. EPA considers 
this approach to be protective and otherwise consistent with RCRA 
4005(d). Facilities must continue to comply with the rule during this 
time, and the statute contemplates that facilities will continue to 
operate during this period. Section 4005(d)(3) expressly provides that 
facilities must continue to comply with the federal rule until a state 
or federal permit is effective; this would be unnecessary if they had 
to stop operating.
    To determine which CCR units should comprise the first tier of 
applications, EPA decided to prioritize the issuance of permits to CCR 
units that present higher acute risks. Accordingly, EPA looked to the 
hazard potential classification system for CCR surface impoundments. 
The hazard potential ratings refer to the potential for loss of life or 
damage if there is a dam or embankment failure. The ratings do not 
refer to the current structural stability of the dam or embankment. 
Subpart D requires owners and operators of CCR impoundments to conduct 
periodic hazard potential classification

[[Page 9951]]

assessments and rate the units as either a high hazard potential CCR 
surface impoundment, a significant hazard potential CCR surface 
impoundment, or a low hazard potential CCR surface impoundment. See 
Sec. Sec.  257.73(a)(2) and 257.74(a)(2). The high hazard potential CCR 
surface impoundments are among the highest priority for EPA because the 
high hazard classification means a diked surface impoundment where 
failure or mis-operation of these surface impoundments will probably 
cause loss of human life. Each hazard potential classification 
assessment is required to be certified by a qualified professional 
engineer and contain documentation to provide the basis for the current 
hazard potential rating. The initial hazard potential assessment was 
required by October 19, 2016, for existing units and prior to the 
initial receipt of CCR in the unit for new units or lateral expansions. 
Several of these units are in states that EPA has been working with to 
develop a CCR State Permit Program, so EPA assumes that these units 
would be in Participating states and would consequently not be subject 
to federal CCR permitting requirements, by the time a final rule is 
effective. Therefore, the first proposed tier would include any CCR 
facility with at least one existing CCR surface impoundment, new CCR 
surface impoundment, or inactive CCR surface impoundment that is 
classified as high hazard potential under Sec.  257.73(a)(2) or Sec.  
257.74(a)(2) and located in a nonparticipating state or in Indian 
country. Furthermore, all CCR units at such a facility would be 
required to be included in this initial permit application at this 
time, or to apply for a general permit or permit by rule. EPA considers 
this subset of CCR units to be the highest priority to submit a permit 
application and should therefore constitute the first tier.
    EPA is also proposing to require owners and operators of CCR units 
in Indian country to submit applications in the first tier. RCRA 
provides no option other than a federal CCR permit for these CCR units, 
regardless of state program approval status or appropriations. EPA has 
no reason to delay submittal of applications for these CCR units. EPA 
is aware of three facilities in Indian country with CCR units that 
would be subject to this rule; this relatively small number of permits 
also would not delay issuance of other CCR permits to units with 
potentially higher risks.
    EPA is not proposing to define subsequent tiers of applications at 
this time. EPA is proposing at Sec.  257.124(a)(2) that the 
Administrator will notify owners and operators of CCR facilities by a 
notice in the Federal Register at least 180 days before the application 
submission is required. This timeframe is similar to the requirement 
established in the RCRA hazardous waste permitting program at Sec.  
270.1(b) for part B applications. The proposed CCR permit application 
requirements, described in Unit IV.C.2 of this preamble, will not 
include a part A and part B, as was done in part 270, because 
submission of a separate part A would serve no useful purpose. As 
noted, Congress has already effectively granted currently operating 
units the equivalent of interim status in RCRA 4005(d)(3) by requiring 
compliance with subpart D until a permit is in effect. The CCR units 
that would be covered by subsequent tiers must comply with subpart D 
until they are covered by an effective federal or Participating State 
CCR permit.
    EPA believes that 180 days is sufficient time for the owner and 
operator to prepare the permit application. As described in Unit 
IV.C.2, the information required in the permit application will be 
information about the facility, information about the applicant, 
technical information about the CCR units at the facility, site 
conditions, plans, maps, drawings, and other documents. Since the CCR 
units are already subject to subpart D, most of the information 
required in the application has already been developed by the owner and 
operator in accordance with subpart D, and in many cases is posted on 
the facility's publicly accessible website.
    EPA is considering several approaches to prioritizing the permit 
applications in subsequent tiers. Examples are provided here in no 
particular order:
     CCR units located in states that affirmatively declare to 
EPA that they do not intend to pursue program approval;
     CCR units located at specific facilities;
     CCR surface impoundments with significant hazard potential 
for structural stability;
     CCR surface impoundments that are in assessment of 
corrective measures or corrective action after an exceedance of a 
groundwater protection standard or after experiencing a release;
     CCR units that are undergoing closure;
     CCR units that are undergoing closure with CCR remaining 
in the unit;
     CCR units that are in the post-closure care period;
     CCR landfills;
     CCR landfills that are in assessment of corrective 
measures or corrective action after an exceedance of a groundwater 
protection standard or after experiencing a release;
     New CCR landfills or lateral expansions that are not 
covered by a permit by rule under Sec.  257.128;
     CCR units that have not met the location restriction 
requirement for placement above the uppermost aquifer demonstration 
under Sec.  257.60; or
     CCR units that have not met the location restriction 
requirement for wetlands (Sec.  257.61), fault areas (Sec.  257.62), 
seismic impact zones (Sec.  257.63), or unstable areas (Sec.  257.64).
    EPA requests comment on approaches to prioritizing applications, 
including how many tiers of permit application deadlines there should 
be for this permitting program. In the development of this proposed 
rule, EPA has considered having two, three, or more tiers of permit 
application deadlines to space out the applications so that EPA may act 
on them in a timely manner. The number of tiers will depend on whether 
owners and operators choose to submit permit applications early, the 
number of CCR facilities that meet the different criteria, and the time 
needed for EPA review of permit applications and drafting of permits in 
this new program. EPA also solicits comment on the method of deciding 
which units must apply, and the timeframe, as there are many ways that 
CCR units can be prioritized based on the criteria listed above or 
using other methods.
    EPA is proposing at Sec.  257.124(a)(3) to establish deadlines for 
the submittal of a permit application for any CCR unit that becomes 
subject to the requirements of subpart D on or after the promulgation 
of the federal CCR permit program final rule. For CCR units that become 
subject to subpart D, and therefore this rule, after this rule is 
finalized, the deadlines to submit a permit application are phased in. 
For CCR units that become subject to federal permitting requirements 
after promulgation of the final permitting rule, but prior to 24 months 
after the effective date of the rule, permit applications would be due 
24 months after the effective date of the final rule. This is six 
months after the first tier of applications under the prioritization 
approach discussed above, and this deadline reflects the fact that the 
first tier of applications would be the highest priority for EPA to act 
on. For CCR units that become subject to federal permitting 
requirements after that date, the owner and operator would submit a 
permit application for such a CCR unit no less than 180 days prior to 
becoming subject to the requirements of subpart D.
    CCR units that become subject to federal permitting requirements 
after

[[Page 9952]]

this rule is finalized would include units that are constructed before 
promulgation of the final federal CCR permit program rule but that 
initially receive waste after that date. It would also include new CCR 
units that begin construction after the final federal CCR permit 
program promulgation date. EPA believes that 180 days is a sufficient, 
but not excessive, amount of time before receipt of waste is expected 
to begin for an owner and operator to submit a permit application. If 
the new CCR unit is a CCR surface impoundment, or if for any reason the 
owner and operator choose not to apply for a permit by rule for a new 
CCR landfill or lateral expansion in accordance with Sec.  257.128, 
they will need to apply for an individual permit following the 
requirements of Sec. Sec.  257.130 and 257.131. If the owner and 
operator submitted a permit application to the Administrator at least 
180 days before becoming subject to the requirements of subpart D, this 
would fulfill the requirement to obtain a permit, and after 180 days 
they may begin to operate the unit in compliance with applicable 
requirements of subpart D, even if a permit has not been issued by the 
Administrator. EPA considers this approach to be protective as 
facilities must comply with the rule until a permit is in effect, which 
will be sufficient in the interim. Consistent with EPA's interest in 
prioritizing the issuance of permits based on risk, EPA intends to 
initially focus on issuing permits for existing units, which generally 
pose higher risks than newly-constructed units.
    CCR units that become subject to federal permitting after this rule 
is finalized would also include CCR units (located in nonparticipating 
states or in Indian country) that ceased receipt of CCR before the 
effective date of subpart D, October 19, 2015, but begin receiving 
waste in the CCR unit again. For example, consider a CCR landfill 
(``Landfill A'') that contained CCR before 2015 and then ceased receipt 
of waste. If Landfill A becomes subject to the requirements of subpart 
D because it begins receipt of CCR again, the proposed provisions in 
Sec.  257.124(a)(3) would require the owner and operator of Landfill A 
to apply for a CCR permit no less than 180 days before becoming subject 
to the requirements of subpart D. This requirement would ensure that 
all CCR units meeting the applicability criteria proposed at Sec.  
257.123(a) would be required to obtain a federal CCR permit.
    EPA is also proposing at Sec.  257.124(a)(4) that requests for 
coverage under a general permit or Notification of Intent (NOI) to be 
covered by the permit by rule are due at the same time applications for 
individual permits. If the new CCR unit is a CCR landfill and it meets 
the criteria for a permit by rule under Sec.  257.128, the obligation 
to apply for a CCR permit may be met by submitting an NOI to be covered 
by the permit by rule. Submittal of the NOI would be required on or 
before the deadline for other CCR units at a facility to apply for an 
individual permit or submit a request for coverage under a general 
permit, as specified in Sec.  257.124(a)(1) through (3). This proposal 
would give the owner and operator of a new landfill sufficient time to 
obtain coverage under a permit by rule by the date a permit application 
for other CCR units at the facility would be required, or to obtain 
coverage under a general permit.
    In the course of developing this proposed rulemaking, EPA also 
considered requiring all permit applications to be submitted with the 
same deadline. EPA decided not to propose that all applications be 
submitted at the same time due to concerns about the potential for a 
backlog of permit applications, as discussed previously in this Unit. 
If, after receiving comments, the Agency decides that all applications 
should be required by the same date (e.g., 24 months after the 
promulgation of the final CCR permitting regulation), EPA would 
prioritize issuance of the permits using one or a combination of the 
approaches discussed above.
f. Effect of a Permit
    EPA is proposing at Sec.  257.125(a) that compliance with the terms 
and conditions of an issued and effective CCR permit would constitute 
compliance with the requirements of subpart D for the CCR units and 
operations covered by the permit. This provision, known as a ``permit 
shield,'' would implement sections 4005(d)(3) and 4005(d)(6) of RCRA. 
Section 4005(d)(3) provides that the applicable criteria in subpart D 
apply to each CCR unit unless a permit issued under an approved state 
program or a federal CCR permit is in effect for the unit. Section 
4005(d)(6) provides that a CCR unit shall be considered a sanitary 
landfill for purposes of RCRA only if it is operating in accordance 
with the requirements of a CCR permit, issued by a state with an 
approved program or by EPA, or in accordance with the applicable 
criteria in subpart D.
    The wording of proposed Sec.  257.125(a) is generally similar to 
permit shield provisions in other federal permit programs, such as 
Sec. Sec.  270.4(a)(1) and 71.6(f). Consistent with those provisions, 
the proposed permit shield provision expressly provides that compliance 
wth a permit shields the permittee from any claim in an enforcement 
proceeding (including a citizen suit proceeding brought pursuant to 
RCRA section 7002) that the permittee was or is not in compliance with 
any subpart D requirement not specified in the permit.
    The proposed permit shield provision does not prevent EPA from 
modifying the permit to make changes or incorporate additional 
requirements on its own initiative. EPA is also proposing in Sec.  
257.150(a)(5) that it may initiate a modification to correct any error 
in a permit. EPA is proposing to include an express statement to this 
effect in Sec.  257.125(a) to avoid any confusion about the 
relationship between these two regulatory provisions and about the 
effect of the provisions in RCRA sections 4005(d)(5) and (6).
    Establishing these regulatory provisions to implement the statutory 
permit shield provision would generally provide certainty regarding a 
permittee's legal obligations under subpart D and reaffirms that the 
permit will provide a clear determination of the actions that the 
permittee must take to be in compliance with those requirements. A 
permit shield would not apply prior to the effective date of a permit 
or any permit modification, even for those modifications that do not 
require prior approval. Under the express wording of RCRA 4005(d)(6) a 
permit shield is only available through compliance with requirements in 
an effective permit. In Sec.  257.125(b) and (c), language is proposed 
to clarify that issuance of a CCR permit does not convey any property 
rights of any sort, nor any exclusive privilege, and that a CCR permit 
does not authorize injury, invasion of private rights, or violations of 
local or state law. EPA is also proposing to specify that a CCR permit 
does not authorize violations of federal laws not explicitly considered 
and addressed in the permitting action. These provisions are consistent 
with other EPA permit programs under RCRA, the CWA, and the CAA, which 
provide neither property rights, nor any other special privilege under 
State or Federal law. Further, there is no indication on the face of 
RCRA 4005(d) that Congress intended to grant CCR permittees any greater 
rights or privileges than were provided to permittees under these other 
federal permit programs. The language that EPA has proposed here is 
generally consistent with the comparable regulatory provisions in other 
federal

[[Page 9953]]

permitting programs (see Sec. Sec.  270.4(b), 270.4(c), 
71.6(a)(6)(iv)).
g. Duration of a Permit
    EPA considered durations of permits in other federal permitting 
programs when evaluating whether to establish a specific term or 
limited duration for federal CCR permits (e.g., to require that all 
permits expire after a specific time). For example, CAA Title V permits 
expire five years after the date of issuance, in accordance with Sec.  
71.6(a)(11). Under RCRA Sec.  3005(c)(3) hazardous waste permits are 
effective for a fixed term not to exceed ten years. By contrast, 
permits issued in the UIC program for Class VI carbon dioxide geologic 
sequestration wells do not expire and are issued for the operating life 
of the facility and the post-injection site care period. See Sec.  
144.36(a). Federal permitting programs have various and unique 
statutory mandates, which may determine the effective permit term in 
any given program. Congress did not direct EPA to issue CCR permits for 
a particular term.
    EPA is proposing at Sec.  257.126 that RCRA CCR permits would be 
issued without expiration and would remain in effect throughout the 
active life of the CCR unit, the post-closure care period, until 
completion of all corrective action, and until the permit is 
terminated. A permittee could request termination of the permit in 
accordance with the requirements proposed in Sec.  257.153 when all 
applicable requirements of subpart D have been satisfied. EPA is 
proposing to adopt this approach because it best ensures sustained 
regulatory oversight of the facility throughout the full cycle of solid 
waste management activities regulated under subpart D, as well as until 
completion of all corrective action and post-closure care. EPA is 
proposing other mechanisms to ensure the permit is periodically updated 
as necessary to accurately reflect current operations and regulatory 
requirements.
    To require a CCR unit to achieve compliance with subpart D, a CCR 
permit must be effective and enforceable. Permitting programs that 
issue permits with expiration dates often face challenges issuing 
timely permit renewals. While there are mechanisms to allow for 
enforcement of an expired permit, such as administrative continuance, 
these mechanisms can frequently result in a very similar outcome to the 
proposed approach of issuing CCR permits with no expiration date. The 
benefit of the proposed approach is that permitting actions will occur 
only when needed, to address changes at a facility or in applicable 
requirements,
    Based on EPA's experience issuing permits under part 270, permit 
expiration can also result in situations in which the permit has 
expired before the cleanup or other post-closure activities have been 
completed. In practice, it can be difficult to ensure permittees submit 
timely and complete applications before the expiration date, once 
active waste management has ceased and only corrective action or post-
closure activities remain. Although EPA has authority to issue an order 
to compel compliance, these situations highlight potential challenges 
of expired permits.
    In general, permit expiration serves several important functions. 
It provides a mechanism for regular review of the existing permit and 
its terms and conditions, and for incorporation of any new information 
and, if necessary, new conditions into the permit through a public 
process. It also helps to ensure sufficient opportunities for public 
participation during the life of the CCR unit. The Agency believes the 
proposal to issue federal CCR permits without an expiration will also 
provide these same functions, albeit through other mechanisms, as 
discussed below.
    If a permit is issued with an expiration date, renewal must occur 
at that time, even if no changes have occurred at a facility or if a 
permit had been recently modified and was up-to-date. EPA could not 
identify one timeframe for the expiration of all CCR permits that would 
anticipate a single time for a permitting action that would capture all 
changes in operations or underlying requirements at a particular CCR 
unit or facility. Re-issuance of a CCR permit at a specified frequency 
in addition to the proposed modification requirements would not 
reasonably be expected to improve the permit or provide valuable 
opportunity for oversight or public participation. Renewing CCR permits 
without changes could divert facility resources or Agency resources 
away from higher priority permitting actions, such as applying for and 
issuing major modifications or ensuring that minor modification 
procedures are being implemented properly.
    EPA believes that the goal of ensuring that permits continue to 
require compliance with all applicable requirements of subpart D and 
accurately reflect current operations is best accomplished through 
appropriate modification requirements and periodic permit application 
reviews. The proposed modification requirements in Sec. Sec.  257.150 
through 257.152 are intended to address all situations where changes to 
a permit are needed. Additionally, if a permit remains unmodified for 
ten years, the Agency is proposing to require permittees to review and 
resubmit CCR permit applications by that date to ensure that the 
Administrator has current information about the CCR units. See proposed 
Sec.  257.132 and Unit IV.C.2.c of this preamble. These requirements 
provide mechanisms for timely incorporation of any new information or 
requirements into the permit, or corrections to errors or omissions 
that might render the permit at odds with regulatory or statutory 
requirements. Combined with the ability of citizens to petition EPA to 
modify a permit (see Unit IV.C.4.a of this preamble and the existing 
procedures in Sec.  124.6), these mechanisms provide sufficient 
opportunities for public participation throughout the life of the CCR 
unit.
    In sum, the Agency believes the proposed approach to issue federal 
CCR permits without expiration will result in permits that are 
effective and enforceable and provide appropriate mechanisms to require 
permits be kept up-to-date, while ensuring adequate transparency and 
public engagement.
h. General Permit Provisions
    EPA is proposing at Sec.  257.127 to establish procedures for 
issuance of one or more general permits, as an alternative to 
individual permits. The EPA is proposing that the Administrator could 
issue a general CCR permit to an identified category of CCR units 
involving the same, or substantially similar, operations, which are all 
subject to the same applicable requirements of subpart D and would 
require the same permit terms and conditions to achieve compliance with 
subpart D. See proposed Sec.  257.127(a). A general permit would be 
issued when, in the opinion of the Administrator, it would be more 
appropriate to regulate those units under a general CCR permit than 
under individual CCR permits. A general CCR permit would be proposed in 
the Federal Register and finalized in accordance with the applicable 
requirements of part 124. Once a general permit is final, it would be 
available for eligible CCR units to seek coverage to satisfy the 
requirement to obtain a federal CCR permit.
    Each general permit would be written for a defined category of CCR 
units (e.g., a surface impoundment closing with waste in place, 
undergoing corrective action implementing a pump and treat system). EPA 
is proposing at Sec.  257.127(b) that each general permit would 
identify criteria indicating which

[[Page 9954]]

CCR units are eligible for coverage. The general permit would contain 
all requirements necessary to achieve compliance with the requirements 
of subpart D applicable to those CCR units, and it would contain 
eligibility criteria limiting its availability only to those CCR units, 
as well as procedures to obtain coverage under the general CCR permit.
    Requirements in a general permit would also include liner design 
criteria, unit design criteria, structural stability requirements, 
location restrictions, inspections, groundwater monitoring, and posting 
information to a publicly accessible CCR website. A general permit 
could contain limitations not specifically found in subpart D, but 
which would be necessary for the general permit to require compliance 
with subpart D for each CCR unit covered by it. These terms and 
conditions could include operating limitations necessary to ensure the 
completeness and appropriateness of the terms and conditions in the 
general CCR permit. For example, if a general permit was issued for a 
category of CCR units that includes existing surface impoundments but 
excludes CCR units subject to the requirements Sec.  257.73(c) through 
(e), the general CCR permit would not contain terms and conditions 
requiring compliance with Sec.  257.73(c) through (e) (i.e., a compiled 
history of construction, periodic structural stability assessments, or 
periodic safety factor assessments). Such a general permit would 
instead contain limitations, derived from the applicability criteria in 
Sec.  257.73(b), on the height (20 feet) or storage area and height (20 
acre-feet and 5 feet) of CCR units covered by it. By including 
eligibility criteria in the general permit, which would limit its 
availability to CCR units operating at a height no greater than 20 
feet, or a storage area no greater than 20 acre-feet and a height no 
greater than 5 feet, the general permit in this example would satisfy 
the statutory mandate to require compliance with subpart D, even though 
it would not include terms incorporating requirements in Sec.  
257.73(c) through (e).
    In addition to requirements in subpart D and operational 
limitations inherent to ensuring appropriateness of the terms and 
conditions, general permits would also include requirements regarding: 
Criteria for eligibility to be covered by the general permit, 
procedures to apply for coverage under the general permit, monitoring, 
reporting and notifications, and posting information to a publicly 
accessible CCR website. EPA intends that a general permit will 
proscribe clearly what types of CCR units are eligible for coverage and 
will require compliance with those criteria. A general permit would 
contain clear procedures, with deadlines, for an owner and operator of 
a CCR unit to follow if, after obtaining coverage under the general 
permit, the CCR unit becomes ineligible for the general permit and must 
satisfy the requirement to have a CCR permit through another mechanism.
    EPA is proposing that coverage under a general permit would be 
optional. Even if a CCR unit is eligible for coverage under a general 
permit, the owner and operator could elect to apply for an individual 
permit instead. To obtain coverage under a general permit, an owner and 
operator must submit a request to be covered, in accordance with 
procedures provided in the general permit, and coverage would be 
effective 45 days after receipt of a complete and accurate request, in 
the absence of any objection from the Administrator. EPA intends that a 
request for coverage under a general permit will require more detailed 
information than an NOI for coverage under the permit by rule, but less 
than what would be required in an application for an individual CCR 
permit. Once a request for coverage has been submitted in accordance 
with the requirements in Sec.  257.127(c) and the general permit, the 
permittee need take no further action to obtain a permit, provided the 
CCR unit meets the eligibility criteria.
    If the Administrator determines the CCR unit does not meet the 
eligibility criteria established in the general permit, the 
Administrator would notify the owner or operator in writing that an NOI 
or individual permit application is required, and will include a brief 
statement of the reasons for this decision and a deadline for the owner 
and operator to submit an NOI or individual permit application, and a 
statement that on the effective date of the individual CCR permit the 
general permit as it applies to the individual permittee shall 
automatically terminate. The determination that a permittee must apply 
for an individual permit would not be subject to judicial review as it 
is not a final permitting action. If an owner and operator requests 
coverage under a general permit for which a CCR unit is not eligible, 
they would be potentially subject to enforcement action for failure to 
apply for and obtain a CCR permit. The owner and operator would be 
required to comply with all applicable requirements of subpart D until 
an effective federal or Participating state CCR permit has been issued.
    EPA believes general permits may be an appropriate permitting 
mechanism in this program because the permitting universe has a limited 
number of types of CCR units, the waste management practices are 
relatively common among CCR units, and compliance monitoring and 
notification provisions are already generally established in subpart D. 
It is also possible that, as the corrective action portion of the 
program matures, there could be certain commonly used cleanup 
approaches, due to the limited number of regulated constituents, which 
are primarily the same chemical class (metals). The relative uniformity 
of CCR units and the focused regulatory requirements may make general 
permits an efficient and effective permitting approach for CCR units. 
If there are categories of CCR units with similar permitting needs, 
issuance of general permits could result in improved clarity about 
applicable regulatory requirements through quicker permitting of CCR 
units with enforceable and effective CCR permits.
    In exchange, a general permit would not be tailored to site-
specific conditions and would not provide the specificity an individual 
permit could provide. Instead, it would be somewhat tailored to a 
category of CCR units (e.g., a general permit only available to certain 
types of surface impoundments would not contain subpart D requirements 
that are only applicable to landfills). A general permit would be 
issued without site-specific considerations and could not be modified 
for an individual permittee.
    EPA is proposing that only the following procedures in part 124 
would apply to the issuance of a general permit: Sec. Sec.  124.6-
124.14. By contrast, requests for coverage under a general permit would 
not be subject to any of the part 124 procedures for applications 
because they are not applications for permits. The part 124 procedures 
applicable to the denial, termination, and modification of permits 
would not apply either to the issuance of a general permit or to the 
process of requesting coverage under a general permit; instead EPA is 
proposing routes for revocation or termination of coverage.
    EPA is requesting comment on the appropriate use of general 
permits, including categories of CCR units for which general permits 
may be appropriate, requirements for content in the streamlined 
application, whether public comment on individual applications for a 
general permit is appropriate, and whether EPA should be required to 
issue a determination that coverage under a general permit is 
appropriate for a particular CCR unit.

[[Page 9955]]

i. Permit by Rule
    A permit by rule is proposed in Sec.  257.128, which would deem the 
owner and operator of a new landfill or lateral expansion of a landfill 
to have a CCR permit as long as certain conditions are met. No 
subsequent or facility-specific permit would be issued and the owner 
and operator of a CCR unit eligible for the permit by rule would not be 
required to submit an application for EPA to review in order to 
qualify. However, a notification requirement is included in the 
proposed permit by rule, to allow EPA to track the universe of CCR 
units regulated under the federal CCR permitting program for purposes 
of program oversight and enforcement.
    The proposed permit by rule would only be available to new CCR 
landfills (which includes lateral expansions of CCR landfills) that 
meet the criteria in Sec.  257.128 (e.g., the CCR unit must be in 
compliance with the applicable technical requirements of subpart D). 
The proposed permit by rule would only be available to new CCR 
landfills that meet the design criteria at Sec.  257.70(a) or (b). A 
new CCR landfill constructed with an alternate composite liner, as 
provided at Sec.  257.70(c), would not be eligible for the permit by 
rule. See proposed Sec.  257.128(a)(1)(vi). In addition, groundwater 
monitoring of the uppermost aquifer must show no detections of 
constituents in Appendix IV at a statistically significant level above 
a groundwater protection standard, which would trigger corrective 
action requirements. See proposed Sec.  257.128(a)(1)(vi). There must 
also be no non-groundwater releases from the CCR unit; the proposal 
would require the owner and operator to apply for a general permit or 
individual CCR permit if a leak or release is detected. See proposed 
Sec.  257.128(a)(10) and Sec.  257.128(b). Similarly, EPA is proposing 
that, no less than 180 days prior to initiating closure of any unit 
covered by the permit by rule, the owner and operator must apply for 
either a general or individual permit. See proposed Sec.  257.128(a)(4) 
and Sec.  257.128(b). If a CCR unit is designed or operated in any way 
that deviates from the criteria in Sec.  257.128(a), it would no longer 
be eligible for the permit by rule and the owner and operator would be 
required to apply for an individual or general CCR permit within 60 
days of becoming ineligible; e.g., if an owner or operator completes a 
statistical analysis and identifies a statistically significant 
increase in the monitoring data above a groundwater protection standard 
for any constituent in Appendix IV. These restrictions on eligibility 
for the permit by rule are necessary to ensure that compliance with the 
requirements of the permit by rule will result in compliance with 
applicable requirements in subpart D. Additionally, EPA believes that 
the subpart D requirements which would be applicable when any of these 
conditions are not met are more appropriately addressed by a general or 
individual CCR permit.
    EPA is proposing the permit by rule for new CCR landfills based on 
the risks these types of units present and the nature of the technical 
requirements. EPA's 2014/2015 risk assessment \8\ shows that CCR 
landfills meeting the liner requirements in subpart D present 
significantly lower risks than the other types of units regulated under 
subpart D, generally by an order of magnitude. Furthermore, the 
proposed criteria in Sec.  257.128 are designed to ensure that these 
units continue to operate safely. This provision is limited to units 
constructed with a composite liner and a leachate collection and 
removal system that meet the requirements in Sec.  257.70(a), (b) and 
(d). The unit must also comply with all location restrictions 
standards.
---------------------------------------------------------------------------

    \8\ US EPA, ``Human and Ecological Risk Assessment of Coal 
Combustion Residuals'', December 2014. This document is available at 
www.regulations.gov as docket item EPA-HQ-RCRA-2009-0640-11993.
---------------------------------------------------------------------------

    The design and operating standards applicable to the new CCR 
landfills eligible for the permit by rule at Sec.  257.70(a), (b), and 
(d) through (g) are generally both less extensive and more prescriptive 
than for other CCR units. Consequently, these units have few options 
for compliance and operational practices are not expected to vary 
widely to account for site specific conditions; the requirements should 
therefore be relatively uniform. To ensure this remains the case, EPA 
is proposing to restrict eligibility for permit by rule in Sec.  
257.128 to units that have not initiated corrective action or closure. 
The compliance options for closure can vary substantially in response 
to site conditions, and EPA therefore considers that these activities 
warrant the oversight and ability to more precisely tailor the 
requirements that comes from an individual permit. Newly constructed 
landfills are expected to operate for a significant time before either 
closure of the unit or corrective action becomes necessary. If the 
owner and operator is operating a CCR unit in accordance with the 
permit by rule and a change occurs that makes the unit ineligible for 
the permit by rule, EPA is proposing at Sec.  257.128(b) a requirement 
to apply for an individual or general permit within 60 days of the 
change, e.g., within 60 days of completing statistical analysis that 
identifies a statistically significant increase above a groundwater 
protection standard for any Appendix IV constituent. An application for 
an individual or general permit would also be required no less than 180 
days prior to initiating closure.
    Because the requirements in subpart D applicable to the CCR units 
meeting the proposed criteria in Sec.  257.128(a) are fairly 
straightforward, EPA does not believe issuance of an individual CCR 
permit would add significant value as far as clarifying applicable 
requirements, Agency review of an application, or public comment. The 
permit by rule would require compliance with applicable requirements of 
subpart D until a more complex determination of applicable requirements 
and appropriate compliance strategies is needed, such as when the unit 
begins closure.
    The permit by rule would allow the Agency to focus on issuing 
individual CCR permits to other facilities and CCR units facing complex 
applicability issues and compliance strategies. Individual CCR permits 
remain appropriate in these circumstances, where the permit issuance 
process may provide more value in terms of clarification to the 
permittee, the Agency, and the public regarding applicable requirements 
and acceptable compliance approaches. EPA is requesting comments on 
this approach, and whether there are other categories of units that 
could be appropriately permitted by rule.
j. Transfer of Permit Program Administration
    EPA anticipates that after federal CCR permit applications have 
been submitted, or possibly after federal CCR permits have been issued, 
one or more states may obtain CCR State Permit Program approval and 
begin permitting CCR units in lieu of the federal program. 
Alternatively, after a state has been operating an approved CCR State 
Permit Program, the state could relinquish the program or EPA could 
withdraw the approval, and the CCR units in that state would need to be 
permitted by EPA under the federal program. These situations would 
require close coordination between the state and EPA to clarify 
permittee compliance obligations, as well as each agency's 
responsibilities, during such a transition.
    RCRA Sec.  4005(d)(2)(B) provides authority to implement a federal 
CCR permit program only in Indian country

[[Page 9956]]

and in nonparticipating states. EPA is proposing at Sec.  257.129 
procedures to transition between federal and state CCR permit programs 
when approvals of state CCR permit programs are issued or withdrawn. 
Because each state has its own regulatory procedures (usually 
established by statute and/or regulation) EPA anticipates that the 
procedures necessary to transfer administration of a permit program 
between a state and EPA will necessarily vary. Based on its specific 
circumstances, a state might prefer, for example, to revoke and reissue 
all permits immediately, or the state might prefer to have EPA continue 
to administer a small subset of permits for some period of time (e.g., 
where the facility is in the final stages of corrective action). To 
allow for this, EPA is not proposing to establish uniform procedures 
for transferring documents and responsibilities associated with CCR 
permit program administration. Instead, the procedure to be used would 
be specified in the proposed and final notices announcing the change in 
CCR State Permit Program approval status. Further details could be 
specified in a Memorandum of Agreement (MOA), a letter, or a Federal 
Register notice.
    If a program is being transferred to EPA from a state and the 
application deadlines established in Sec.  257.124 and subsequent 
Federal Register notices have passed, alternative deadlines will need 
to be established for CCR units previously regulated by the state to 
apply for a federal permit. EPA is proposing language that would 
require these alternative compliance deadlines to be proposed and 
finalized in a Federal Register notice.
    EPA envisions that during a transition period when administration 
of a CCR permitting program is being transferred between EPA and a 
state, any CCR permits that have been issued by one agency would remain 
in effect until a new CCR permit issued by the agency receiving the 
program is effective. Details about this and other issues would be 
clarified in a notice provided by EPA, or in a MOA between EPA and the 
state agency.
2. Permit Applications
    EPA is proposing at Sec.  257.130 to require the owner and operator 
of one or more CCR units subject to subpart D meeting the applicability 
criteria in Sec.  257.123(a) to submit a timely and complete 
application for a federal CCR permit. The deadlines for the submission 
of applications would be established as proposed in Sec.  257.124, and 
requirements for content of an application are proposed in Sec.  
257.131. An application would be considered timely and complete when it 
meets the requirements proposed in Sec.  257.124, Sec.  257.130, and 
Sec.  257.131 and when the applicant(s) submit any supplemental 
information requested by the Administrator that is necessary to 
establish permit conditions to require compliance with subpart D, 
including to assess the applicability of subpart D.
a. Permit Application Requirements
    EPA is proposing at Sec.  257.130(a)(1) that a CCR permit 
application must contain information about each CCR unit at the 
facility, as well as operations beyond the CCR units related to the 
solid waste management of CCR. All portions of the CCR permit 
application relevant to the CCR units must be completed, except as 
discussed in the next two paragraphs. While subpart D primarily 
regulates CCR units, solid waste management activities which occur 
beyond the unit boundary may be subject to requirements in subpart D 
(e.g., fugitive dust control along roadways that are used to transport 
CCR beyond the unit). Information about solid waste management 
activities could also be necessary for the Administrator to establish 
permit conditions to ensure compliance with the requirements, or 
determine applicability, of subpart D. One example of this is where 
non-CCR waste streams are managed in CCR units. A CCR permit 
application could require information about those waste streams, such 
as volumes or water content.
    There may be cases where there are multiple CCR units at a facility 
subject to federal CCR permit requirements, and one or more has already 
met this requirement through the permit by rule provision in Sec.  
257.128, or through coverage obtained in a general permit issued in 
accordance with Sec.  257.127. In these cases, EPA is proposing at 
Sec.  257.130(a)(2) that detailed information about the CCR unit(s) 
that have already satisfied the federal permitting requirements would 
not be required in a permit application for the remaining CCR units at 
the facility in order for that permit application to be complete. 
However, EPA may request some limited information on these units, for 
identification purposes or as needed to assess applicability and draft 
permit terms for other CCR units at the facility, in the application.
    There may also be cases where one or more CCR units at a facility 
are subject to federal CCR permitting requirements and one or more 
other CCR units at the facility are not. This could happen if the state 
is partially nonparticipating (i.e., a partially-approved state 
program). In these cases, only detailed information about CCR units or 
related solid waste management activities subject to regulation under 
the federal CCR permit program would need to be included in the federal 
CCR permit application. EPA may request identification of state-
regulated CCR units or related solid waste management activities at the 
facility in the permit application, but the content requirements in 
Sec.  257.131 would not apply to these CCR units, which are excluded 
from the federal CCR permitting requirements by RCRA section 
4005(d)(2)(B).
    As discussed in Unit IV.B.2 of this preamble, EPA is proposing to 
rely on the existing procedural requirements in part 124 for CCR 
permits. This would include the provisions at Sec.  124.3 requiring EPA 
to determine that the applicant(s) has fully complied with the CCR 
permit application requirements before beginning to process an 
application. Consistent with Sec.  124.3(c) EPA would review the 
application for completeness, and if the application is found to be 
incomplete, EPA will notify the applicant(s) in writing and will list 
the information necessary to make the application complete. In 
practice, EPA has frequently informally requested additional 
information from the applicant or provided an opportunity to supplement 
their application prior to triggering a formal notification that an 
application is incomplete. EPA generally expects to adopt a similar 
practice for CCR permit applications.
    The requirement at Sec.  257.130(a) for both the owner and the 
operator to submit the permit application, and to be joint permittees, 
reflects the joint and several liability established under subpart D 
for the owner and operator. In addition, based on EPA's experience 
implementing the part 270 regulations, it is important that both the 
owner and operator be permittees. When the facility or unit owner is 
not the operator, he or she may be removed from daily activities. A 
requirement to certify the permit application ensures that the owner 
has at least some familiarity with the facility operations for which he 
or she will be liable. It also ensures that the owner is aware of and 
acknowledges this potential liability.
    EPA recognizes some owners may believe this transparency is 
unnecessary and may be willing to accept joint and several liability 
for submittals and permit applications signed and certified solely by 
the operator. EPA is proposing an option in Sec.  257.130(a)(2) to 
allow the owner to defer to the operator's signature and certification 
of posted documents, submittals and applications, while remaining a 
permittee and accepting joint and several liability for

[[Page 9957]]

those submittals and compliance with the federal CCR permit, as 
modified. EPA believes this acknowledgment of liability, and the 
issuance of all federal CCR permits to both owners and operators, would 
result in permits which are as effective and enforceable as they would 
be if an owner signed and certified each posted document, submittal, or 
application individually. After a permit is issued, the owner would 
remain a permittee, subject to civil or criminal enforcement, as 
appropriate, for any violations of the permit conditions or these 
regulations. With respect to transparency about the requirements, each 
permit or permit modification would be issued to both permittees, and 
the owners would be aware of requirements in the permits. Owners would 
have the right to comment on any draft permit or appeal any final 
permit if he or she did not believe the permit conditions were in 
accordance with regulatory or statutory requirements. EPA is requesting 
comment on this approach.
    EPA is proposing at Sec.  257.130(b) that an application is 
complete when the Administrator receives the information required by 
Sec. Sec.  257.130 and 257.131, including any supplemental information 
requested during review of the application, about all CCR units and 
related solid waste management operations at the facility, and the 
application is completed to the Administrator's satisfaction. For 
example, the Administrator could determine an application to be 
incomplete under these provisions where portions of the permit 
application are not sufficiently detailed to allow the Administrator to 
determine the specific requirements in subpart D that apply to the 
facility or to draft the terms and conditions necessary to require 
compliance with the regulatory requirements or the statutory standard. 
The breadth of this requirement corresponds to the statutory mandate 
that federal CCR permits must require each CCR unit to achieve 
compliance with the requirements of subpart D; EPA must be able to 
require sufficient information to issue permits that meet those 
standards.
    The proposed standard for completeness would include any 
supplemental information requested by the Administrator during the 
review of the application (i.e., before the application is determined 
to be complete). After the application is determined to be complete, 
consistent with Sec.  124.3(c), EPA may request additional information 
from the applicant(s) but only when necessary to clarify, modify, or 
supplement previously submitted material. Requests for such additional 
information will not render an application incomplete.
    Any notice of incompleteness or request for supplemental 
information issued pursuant to this process would clearly state the 
information that is missing and provide a deadline for submittal, to 
avoid delays in permit issuance. If the applicants fail to respond to a 
notice of incompleteness or to correct the identified application 
deficiencies, EPA may deny the permit and initiate enforcement action 
under RCRA section 3008. See Sec.  124.3(d).
    EPA is proposing at Sec.  257.130(c) to require the applicant(s) to 
submit any information determined to be missing from or inaccurate in 
the permit application to the Administrator as soon as the applicant 
becomes aware of the missing, new or corrected information. This 
requirement would apply even without a request from the Administrator. 
As operations continue after the application is submitted, changes to 
the facility or operations may occur or new information may become 
available through monitoring that would result in a different CCR 
permit application than the application previously submitted. Proposed 
Sec.  257.130(c) would also require submittal of inadvertently omitted 
information and revisions to incorrect information, as soon as the 
applicant becomes aware of it. EPA believes this requirement comports 
with RCRA section 4005(d). In order to correctly determine 
applicability and appropriate permit terms EPA must have correct, up-
to-date information about the CCR units and facility operation. 
Consistent with the requirements of subpart D (which apply to both 
owners and operators), and with the proposal to require both operators 
and owners to obtain a permit, EPA is proposing that this requirement 
would apply independently to the owner and operator where they are not 
the same person, and that either would be required to submit corrected 
or updated information when it becomes available.
    EPA is proposing in Sec.  257.130(d) to allow CBI claims in a 
federal CCR permit application for any information that is not required 
to be made publicly available under part 257. An applicant would be 
required to claim information in the permit application as CBI at the 
time of submittal. The applicant would be required to provide 
supporting documentation of the validity of the claim. If EPA 
determined the information to be CBI, it would be treated in accordance 
with requirements in part 2, which would limit public availability of 
the information. This proposed provision would ensure compliance with 
requirements in part 2 regarding proper treatment of CBI. EPA is not 
aware of any information that would be required in the permit 
application which would qualify as CBI and is requesting comments on 
this provision and on inclusion of CBI procedures in the proposal. The 
Agency specifically requests comments providing examples of information 
to be required in a CCR permit application that might be claimed as 
CBI.
    All CCR permit applications would require certification for truth, 
completeness and accuracy, based on reasonable inquiry, by a 
responsible official in accordance with proposed Sec.  257.130(e). The 
language proposed to be required in the certification is similar to 
certification language required by other federal environmental permit 
programs in parts 71, 122 and 270. The level of responsibility held by 
a responsible official within various organizational structures is 
provided in the proposed definition of responsible official in Sec.  
257.121. EPA believes the proposed requirement for certification of the 
application is appropriate to fully implement the WIIN Act and issue 
CCR permits which require compliance with subpart D, in light of the 
permit shield provision. Certification by a responsible official of the 
truth, accuracy and completeness of the application, upon which the 
permit will be based, would ensure a level of care in preparation of 
the application. This certification demonstrating that a responsible 
official has taken adequate care in the preparation of the application 
can help to prevent any failure on the part of CCR unit owner and 
operator to meet the requirements of RCRA through error or omission, or 
by carelessness or deliberate act. The certification language also 
would provide the responsible official with clear notice of enforcement 
liability for any such lack of due care. See also proposed Sec.  
257.130(e)(1).
    EPA is proposing in Sec.  257.130(f) to require that records of 
data and information supporting the application for the federal CCR 
permit be maintained for the life of the permit. Because EPA is 
proposing that CCR permits be issued without an expiration date, the 
application for a CCR permit would also be a lifetime application, 
through the active life of the unit, post-closure care, and until 
completion of all corrective action. However, EPA anticipates the 
permit application will be revised as operations or regulations change, 
when inadvertently omitted, new or corrected information becomes 
available or when the applicant applies for a modification. EPA is 
proposing

[[Page 9958]]

that the permittee must maintain these records until the contents of 
the application change such that the records no longer support the 
application, or until the permittee no longer has compliance 
obligations in subpart D and the CCR permit is terminated. If the 
applicant revises or modifies the application, old records which no 
longer support the revised or modified application would no longer need 
to be maintained, unless they were subject to other recordkeeping 
requirements in this rule (e.g., a groundwater well construction 
diagram). Because the application will be a living document and CCR 
permits will be issued with no expiration date, it is important that 
the applicant maintain all records and supporting documentation used to 
support the application for the permit.
b. Permit Application Contents
    The proposed application requirements in Sec.  257.131 envision the 
application would contain sufficient site-specific information that 
permit terms could be drafted to include all applicable requirements of 
subpart D and incorporate site-specific approaches to compliance, 
considering factors such as local geology, hydrogeology and ecology as 
well as the design, construction, operation, maintenance, and 
monitoring of the CCR unit. Applications would be required to contain 
information about the facility, the owner and operator, CCR unit(s), 
features surrounding the unit(s), and operating conditions at the 
unit(s). The proposed regulatory text describes types of information 
that would be required in each of these categories, with examples that 
are intended to be clarifying but not limiting. EPA is proposing 
specific language to require an applicant to provide site-specific 
plans and non-narrative information, such as maps, drawing, figures, or 
other visual information, as appropriate in any of the categories 
listed above. EPA intends to provide an electronic permit application 
form, as discussed in Unit V of this preamble.
    EPA is proposing in Sec.  257.131(a)(1) to require information 
about the facility in the CCR permit application. While subpart D 
primarily regulates CCR units, some requirements apply to property or 
operations beyond the boundaries for the CCR unit, such as fugitive 
dust control criteria or corrective action requirements; EPA may 
therefore request information directly related to those requirements. 
Information about the operating history of the facility may be 
necessary to determine applicability of requirements in subpart D to 
certain units (e.g., the date when a CCR unit began receiving waste). 
In Sec.  257.131(a)(1) the proposal describes types of information 
about the facility which would be required in the CCR permit 
application, including the facility's physical location and a 
description of the facility and its operations. This could include a 
description of the number of CCR disposal units at the facility, 
production rates, how CCR are handled at the facility (e.g., dry 
handling, sluicing), and how the CCR are transported to the unit after 
generation. Information about what the facility produces in addition to 
electricity, if anything, and how long the facility has operated would 
also be required, in addition to identification of the publicly 
accessible CCR website the applicants intend to use to comply with 
information posting requirements. The application would also require an 
indication of whether an initial, revised, or modified permit is 
requested. EPA believes all this information is necessary to draft 
permit terms and conditions to require compliance with subpart D, 
including to assess applicability. To the extent the Administrator 
needs the information to issue a CCR permit that meets the requirements 
in RCRA section 4005(d), additional information about the facility not 
specifically listed may be requested in the CCR permit application.
    EPA is proposing to require sufficient information about the 
applicant(s) to contact them during and after the process of issuing 
the permit in Sec.  257.131(b). Information about the ownership status 
would be needed to issue the permit to the correct person(s) and to 
review the required certification by an appropriate responsible 
official. Information in other environmental permits held by the owner 
and operator is potentially relevant to the issuance of the CCR permit, 
such as state-issued permits for construction of the CCR unit, air 
permit requirements for fugitive dust control, or environmental permits 
related to other federal considerations (e.g., scenic rivers). 
Additional information about the applicant(s) not specifically listed 
in Sec.  257.131(b) may be requested by the Administrator, insofar as 
the Administrator needs the information to issue a CCR permit that 
meets the requirements in RCRA section 4005(d).
    EPA is proposing at Sec.  257.131(c) to require information about 
CCR unit(s) in a permit application. The CCR permit application would 
require sufficient information about each CCR unit at the facility to 
allow the Administrator to issue a permit to require compliance with, 
including to assess the applicability of, subpart D. EPA is proposing 
to require information in the application about the location, design, 
construction, operation, maintenance, closure and retrofit of each CCR 
unit to be permitted (e.g., design of liner, description of run-on/
runoff controls, design of structural stability controls and monitoring 
procedures, construction and placement of groundwater monitoring wells, 
statistical methods used to evaluate groundwater data, procedures and 
methods used to take samples and ensure data quality, any remedial 
measures in place, any closure activities conducted, and type of 
monitoring conducted such as detection, assessment, or corrective 
action). The application must describe site-specific compliance 
approaches the applicants are proposing to use to meet applicable 
requirements. Some of this information may be provided in plans, maps, 
drawings or diagrams attached to the permit application.
    EPA intends to use this information to assess applicability of 
requirements of subpart D, and to draft terms and conditions to require 
compliance with those applicable requirements. For example, information 
about the design of the liner in a CCR unit would allow the 
Administrator to draft a permit requiring compliance with a particular 
liner design requirement, where the applicant has selected one design 
alternative from multiple options. In another example, information 
about run-on and run-off controls used at a CCR landfill would allow 
the Administrator to draft permit terms and conditions requiring the 
permittee implement those controls, and monitoring their effectiveness, 
to meet these requirements in subpart D.
    A substantial amount of the information that would be required by 
Sec.  257.131(c) for each CCR unit in a permit application would 
already have been developed and posted on a publicly accessible CCR 
website in accordance with subpart D, which requires site-specific 
plans for compliance on issues like run-on and runoff control, fugitive 
dust control, groundwater monitoring, etc. These plans must contain 
maps, drawings, and other documents that would satisfy many of the 
proposed application requirements. EPA is requiring submittal of this 
information in the permit applications, rather than allowing applicants 
to refer the Administrator to download documents from the public 
websites, for several reasons. The nature of web posting allows 
potentially frequent changes or amendments to posted documents, and 
submittal of these documents ensures

[[Page 9959]]

that EPA is reviewing the version the applicant intends EPA to use in 
the permitting action. Additionally, the proposed requirement for the 
CCR permit application to be certified for truth, completeness and 
accuracy, consistent with other federal permitting programs, requires 
submittal of all supporting information in the application. EPA 
believes that electronic submittal of CCR permit applications will 
minimize any burden associated with submittal of materials that may be 
available on publicly accessible CCR websites, and that the minimal 
effort associated with electronic submittal of those documents is 
warranted by the benefits of receiving a certified application directly 
from the applicants.
    EPA is proposing in Sec.  257.131(d) and (e) that the CCR permit 
applications would be required to contain information about the natural 
conditions and features surrounding each CCR unit to be permitted. The 
applicants would be required to provide technical and other information 
about the geologic, hydrogeologic and ecologic characteristics and 
features of the area surrounding the CCR unit, including assessment of 
subsurface characteristics. At a minimum, this would include 
information about the locations of any floodplains, wetlands, 
endangered species, fault lines or unstable areas, measured and modeled 
groundwater elevations, subsurface lithology including any confining 
units, surface water features, soil and subsoil characteristics, 
groundwater well locations and uses and adjacent land uses. This 
information would be provided for the areas underlying and in proximity 
to the CCR unit. These features have the potential to impact every 
aspect of the CCR unit and the effectiveness of the compliance 
approaches to be incorporated in the CCR permit. These include impacts 
to the effectiveness of the liner, stability of the unit, operation of 
the unit and its control structures, the effectiveness of proposed 
monitoring approaches and well locations, determination of background 
concentration of regulated contaminants, the appropriateness of 
proposed closure procedures, considerations of other applicable federal 
requirements listed in proposed Sec.  257.122, and the appropriateness 
or effectiveness of any corrective action remedy, including monitoring 
to assess the effectiveness of that remedy. The owner and operator must 
provide this information for all past, present, and planned CCR units 
to be included in the permit.
    The information required in a CCR permit application in Sec.  
257.131(f) would include attachments, such as site-specific compliance 
plans required by subpart D, and visual representation of information, 
such as maps and drawings. This information is necessary to allow the 
permit writer to understand site conditions and evaluate applicability 
of requirements and compliance strategies proposed by the owner and 
operator and to draft terms and conditions that will ensure compliance 
with the requirements of subpart D. For example, potentiometric maps 
indicating groundwater flow direction are necessary for the permit 
writer to establish requirements in the permit pertaining to 
groundwater monitoring and site-specific background concentrations. The 
attachments required will depend upon the type of CCR unit--not all 
items listed would be required for all units. Similarly, additional 
documents not specifically listed may be needed in a permit application 
for certain units. For example, if a CCR unit is operating under the 
terms of a compliance order which requires an operating plan for a 
corrective action remedy, that plan should be included in the CCR 
permit application.
    The listed examples of plans include those required by subpart D 
(e.g., emergency action plan required by Sec.  257.73, fugitive dust 
control plan required by Sec.  257.80, run-on and run-off control 
system plan required by Sec.  257.81(c), inflow design flood control 
system plan required by Sec.  257.82(c), assessment of corrective 
measures required by Sec.  257.96, closure plan or retrofit plan 
required by Sec.  257.102, and post-closure care plan required by Sec.  
257.104). The examples of maps required in a CCR permit application 
include a site map; a topographic map; and a sufficient number of 
potentiometric maps, illustrating the direction of groundwater flow, to 
capture temporal and seasonal changes in flow direction. These examples 
are provided for clarity and are not intended to be limiting. Other 
maps may be required in the CCR permit application, depending on site-
specific circumstances at the CCR unit. The standard for completeness 
regarding plans, maps, drawing, and other documents is the same as the 
standard proposed for all other application elements; the information 
must be sufficiently complete for the Administrator to issue a permit 
to require compliance with subpart D, including to assess the 
applicability of subpart D.
    The proposal requires minimum elements to be included in each type 
of map so that multiple pieces of information may be viewed on the same 
page. Elements to be required in maps, drawings, and diagrams include 
minimum elements necessary for someone reading them to understand 
information in the permit application holistically, in the context of 
the requirements of subpart D. For example, when reviewing monitoring 
well data, it is helpful to have a map that indicates all the 
following: The location of the CCR units, the location of each 
groundwater monitoring well with its identification noted and the 
direction of groundwater flow. When evaluating a proposed schedule for 
conducting corrective action activities, for example, it would be 
helpful to have a map with the location of the CCR unit, the direction 
of groundwater flow, the location(s) of groundwater monitoring wells 
where detections above background or groundwater protection standards 
have occurred and the detections, and the location of any downgradient 
potable wells. These are simply examples of situations where a well-
designed map or drawing will depict multiple pieces of information 
together to facilitate understanding of the situation at, around, and 
below the CCR unit. It may be appropriate to provide additional 
elements on these maps for some CCR units, depending on site-specific 
conditions. EPA believes that, generally, permit applicants have 
developed maps, drawings, and diagrams required by subpart D in a 
manner consistent with the requirements proposed here. To the extent 
that owners and operators of CCR units have not done so, EPA is 
proposing to require such appropriate representation of data in the CCR 
permit applications.
    All information in the application must be presented in a manner 
that is organized and clearly labeled, so it can be understood by 
another person. EPA is proposing this requirement explicitly based on 
experience reviewing information posted on the publicly accessible CCR 
websites. In some instances, information posted on these websites has 
been disorganized and not labeled, making it difficult for a reader to 
identify, for example, the date and sampling location of posted 
groundwater sampling results, or the type of groundwater monitoring 
wells (i.e., background or downgradient) depicted on a groundwater 
monitoring system map. To avoid delays in permit issuance associated 
with potentially lengthy review of unclear permit application materials 
and incompleteness determinations, and to minimize the potential for 
erroneous

[[Page 9960]]

permitting actions, EPA is proposing to establish this requirement for 
clarity and organization. EPA may implement this standard through 
incompleteness letters, incompleteness determinations, or ultimately 
permit denials, if a permit application contains such lack of clarity 
or disorganization that the Administrator cannot draft a permit and the 
applicants do not correct the application.
    EPA is proposing to require information necessary to evaluate the 
appropriateness of compliance strategies proposed in the application. 
Such strategies may include, but are not limited to, establishing the 
minimum number of downgradient wells needed to characterize groundwater 
quality, design of a run-on control system, establishing background 
concentration of constituents in groundwater upgradient of the CCR 
unit, establishing buffer zones to protect wetlands or sensitive 
ecosystems, or delineating of the nature and extent of releases when 
assessing corrective action measures. One example of this would be 
sampling data used to calculate hydraulic conductivity of a liner 
designed to comply with Sec.  257.70(c). The examples included in the 
proposed regulatory text are intended to be clarifying but not 
limiting, and EPA is proposing at Sec.  257.131(a) that the standard of 
completeness for the application with respect to these materials be 
what is sufficient to support decisions by the Administrator to draft 
permit conditions to require compliance with, including to assess the 
applicability of, the requirements of subpart D.
    One type of document required by subpart D that is not included in 
the application requirements listed in Sec.  257.131(f) is third-party, 
or Professional Engineer (P.E.), certifications required by subpart D. 
An applicant may include these in the CCR permit application, but EPA 
is not proposing to require them. The P.E. certifications are based on 
information required in the permit application, which EPA will review 
in the process of writing the permit. Also, based on cursory review of 
some of the P.E. certifications posted on publicly accessible CCR 
websites, they may not contain any substantive information that would 
be helpful in drafting a permit. Finally, a review of a P.E. 
certification to determine whether it meets the requirements of subpart 
D would be a compliance assurance function, rather than a permitting 
function. For these reasons, P.E. certifications are not included in 
the proposed requirements for a CCR permit application.
    EPA envisions that all applications for CCR permits would be 
submitted electronically (e-permitting). Discussion on e-permitting 
approaches is found below in Unit V of this preamble. EPA intends to 
provide an electronic CCR permit application form to owners and 
operators. EPA envisions that some of the information required in the 
application would be submitted by responding to questions on the 
electronic form in various formats (e.g., typing in narrative 
responses, selection from a multiple-choice list, selecting true or 
false). Other information would need to be attached to the application 
electronically (e.g., maps, drawings, diagrams, or site-specific plans 
describing compliance strategies). EPA intends to make the application 
a living document, to be updated and amended, and submitted and 
certified for truth and accuracy, throughout the life of the permit. 
EPA believes this approach may improve the accuracy of the permit 
application and the quality of federal CCR permits, while minimizing 
the regulatory burden to applicants by eliminating the need to re-
submit information the Agency has already received in an application.
c. Periodic Review of Permit Applications
    EPA is proposing that CCR permits would be issued without an 
expiration date, as discussed in Unit IV.C.1.g, and it is 
hypothetically possible that a CCR permit could be based on a permit 
application that is many years old. EPA does not believe this situation 
will occur frequently, based on EPA's proposal at Sec.  257.151 to 
require owners and operators to seek to modify their permit whenever 
any of their solid waste management operations involving CCR no longer 
reflect the operations described in their permit or permit application 
and to require that the owner and operator update the entire 
application whenever any permit modification is sought. Consequently, 
EPA expects that most CCR permits would be modified throughout the life 
of the permit (i.e., evergreen permits) and the CCR permit application 
would be modified by the permittee(s) at those times, providing EPA 
with current information about permitted activities.
    To address potential situations where many years could pass with no 
changes to the permit or the application, and to ensure that CCR 
permits remain up-to-date, EPA is proposing at Sec.  257.132 to require 
that each permit application be reviewed by the permittee no less 
frequently than every ten years after the date of permit issuance or 
the last modification. At the ten-year review, the permittee(s) would 
be required to review the permit application and either submit 
necessary revisions to the application to ensure that it continues to 
meet the CCR application requirements of Sec. Sec.  257.130 and 257.131 
or submit a statement that the application continues to meet those 
requirements and remains accurate and complete. Responsible officials 
for the owner and operator would be required to certify for truth, 
completeness, and accuracy either a statement that the permit 
application remains current or an amended permit application.
    If the permittee determines during a periodic review that the 
permit application is no longer accurate or no longer meets the 
proposed application requirements under Sec. Sec.  257.130 and 257.131, 
the Agency is proposing at Sec.  257.132(c) that the permittee must 
take certain actions. First, the permittee would be required to revise 
the permit application to meet the proposed requirements in Sec. Sec.  
257.130 and 257.131 and accurately reflect current operations and 
changes that may have occurred since the previous application was 
submitted. If changes to the application warrant a modification to the 
CCR permit, the permittee would be required to apply for a permit 
modification according to the proposed procedures in Sec.  257.152. The 
permit application would need to be certified for truth, accuracy and 
completeness by a responsible official in accordance with proposed 
requirements in Sec.  257.130(e) and submitted to the Administrator.
    A major modification would invoke the public participation 
requirements in part 124. For example, draft permits are subject to 
public notice, public comment, and in some cases, a public hearing. 
These procedures would allow the public to bring forward comments 
concerning any draft permit or its supporting materials prior to permit 
issuance.
    EPA is proposing at Sec.  257.132(d) that permittees complete 
periodic reviews of their most recent CCR permit application no later 
than ten years after the date of permit issuance or after any 
reissuance or modification of such permit, whichever date is later. For 
all subsequent permit application reviews, the review would need to be 
completed no later than ten years after the date of the submittal 
resulting from the previous permit application review or after the date 
such permit is reissued or modified, whichever date is later. If the 
permit is modified or otherwise issued with a new date, the ten-year 
review period would begin on that new date in the permit. For example, 
if the initial CCR permit was issued on October 20,

[[Page 9961]]

2022, the permittee would be required to complete the permit 
application review no later than October 20, 2032. Alternatively, if 
the initial CCR permit was issued on October 20, 2022, and the permit 
was modified on February 21, 2025, the permittee would be required to 
complete the periodic permit application review no later than February 
21, 2035. In the second example, the permit modification during the 
third year after permit issuance would have the effect of resetting the 
ten-year period during which the application review must be conducted.
    EPA anticipates that facilities with operating CCR units or that 
are in the midst of corrective action will seek to modify their permits 
at least once in any ten-year period; based on the proposal to reset 
the clock with every modification, it is therefore likely that the ten-
year periodic review will never be triggered for most facilities. 
Instead, for these facilities, the equivalent of this review will occur 
in the context of each modification, based on EPA's proposal at Sec.  
257.151(b)(1) and (d)(1) to require a facility to update the entire 
application whenever any permit modification is sought. By contrast, 
the proposed ten-year review is intended to address those situations in 
which the permit has not been modified in the last decade--which are 
expected to be the exception and are most likely to be facilities with 
CCR units exclusively in post-closure, with no corrective action 
requirements.
    For the CCR permitting program, EPA believes that an application 
review that occurs no less frequently than once every ten years will 
provide an appropriate level of review and attention to maintaining an 
updated CCR permit application. A ten-year timeframe is consistent with 
the effective term of a RCRA hazardous waste permit. See RCRA 3005 
(c)(3). The ten-year application review requirement is a complement to, 
and does not replace, the requirements for permit modifications 
proposed in Sec. Sec.  257.150 through 257.152 and the requirement to 
submit new or changed information in Sec.  257.130(c). If the ten-year 
application review identifies a modification that has occurred at the 
CCR unit without a required permit modification, the permittee may be 
subject to enforcement for failure to comply with modification 
procedures in Sec. Sec.  257.150 through 257.152.
    As discussed in Unit IV.C.1.i of this preamble, EPA is proposing a 
permit by rule for certain CCR units. The Notification of Intent 
required by Sec.  257.128 does not contain detailed information about 
the CCR unit, but a periodic review of the Notice of Intent would 
provide EPA with current information from the owner and operator about 
the eligibility of the CCR unit for the permit by rule. EPA believes 
that CCR units operating in accordance with the permit by rule may 
update the Notice of Intent infrequently if at all, and it is expected 
that a new landfill or lateral expansion of a landfill may operate for 
many years without detecting a groundwater contaminant in part 257 
Appendix IV above a groundwater protection standard. A CCR unit 
operating in accordance with the permit by rule could reasonably be 
expected to do so for longer than 10 years. To ensure that all CCR 
permits are kept up-to-date, the Agency is proposing that CCR units 
operating under a permit by rule would be subject to the periodic 
permit application review requirements for the Notice of Intent.
    EPA is proposing in Sec.  257.127 procedures to issue one or more 
general permits applicable to categories of similar CCR units subject 
to the same requirements in subpart D. Because a general permit would 
be drafted to accommodate a narrow set of circumstances, the 
application for a general permit would be streamlined and less detailed 
than an application for an individual CCR permit. Until a general 
permit is established with its own eligibility criteria, the potential 
frequency with which a CCR unit might either meet those criteria and 
apply for the general permit or might cease to meet the eligibility 
criteria and submit an application for a different type of CCR permit 
is unknown. However, periodic review and recertification of the 
application submitted would provide the same value for a general permit 
application as it would for an individual permit application. EPA has 
identified no reason to exclude CCR units operating under a general 
permit from a requirement to review and resubmit an application no less 
frequently than every ten years. Consequently, EPA is proposing that 
CCR units operating under a general permit would be subject to the 
periodic application review requirements proposed at Sec.  257.132.
d. Permit Denial
    The proposed language in Sec.  257.133 would establish the grounds 
for which EPA may deny an application for an individual CCR permit. 
Denial of a permit could have significant consequences, including the 
requirement that the facility cease receipt of waste into the CCR unit. 
Based on experience under other federal permitting programs, EPA 
expects that denial of a CCR permit would occur rarely; however, it is 
important to establish the circumstances under which EPA would exercise 
this authority, to ensure that permit applicants are fully apprised of 
the legal standards that will apply to their applications.
    The grounds for denial of a permit application, which are set forth 
at proposed Sec.  257.133(a), largely mirror those EPA is proposing to 
establish for termination of a permit in Sec.  257.153. Specifically, 
EPA is proposing that any of the following would be grounds for denial: 
(1) Failure by the permittee in the application or during the permit 
issuance process to disclose fully all relevant facts; (2) 
Misrepresentation by the permittee of any relevant facts at any time; 
(3) A determination by the Administrator that the reasonable 
probability of adverse effects arising from disposal or other solid 
waste management of CCR can only be regulated to acceptable levels by 
permit denial; (4) The Administrator has received notification of an 
applicant's intent to be covered by a general permit issued in 
accordance with Sec.  257.127 or the permit by rule in Sec.  257.128; 
and (5) EPA has transferred administration of the permit program to a 
state in accordance with Sec.  257.129, and the state permit is in 
effect for each CCR unit at the facility. The latter two situations may 
be cases where a facility would prefer to withdraw its application. EPA 
considers that withdrawal of the application may be an equally 
appropriate mechanism to close out the federal action, but requests 
comment on whether there are competing considerations.
    One ground that is unique to this section specifies that denial may 
be appropriate when an applicant fails to respond to an incompleteness 
determination with submittal of a complete permit application. This 
ground corresponds to the procedures under Sec.  124.3 that are 
discussed in Unit IV.B.1 of this preamble.
    The provisions proposed at Sec.  257.133 would also specify that 
EPA may deny an application in whole or in part. As previously 
discussed, EPA is proposing to require a permit not only for disposal, 
but also to conduct all activities subject to requirements in subpart D 
(e.g., monitoring, retrofit, closure, post-closure care and corrective 
action). The proposal at Sec.  257.133(a) specifies that EPA may deny a 
CCR permit for certain activities (e.g., to dispose of waste in a CCR 
unit), but issue a permit to conduct other activities at that unit 
(e.g., closure, post-closure care, or corrective action).

[[Page 9962]]

Or, as a further example, EPA may deny a permit for waste disposal at 
one CCR unit at a facility but may permit disposal at a different CCR 
unit at the same facility. For the same reasons, EPA seeks public 
comment on its proposal that the Administrator may partially deny a 
permit for any of the enumerated grounds even if the application is 
incomplete; for example, EPA may deny a permit to operate one unit if 
information is lacking for that unit but grant the remainder of the 
application if the information is otherwise complete. See proposed 
Sec.  257.133(b).
    As noted earlier, EPA is proposing to rely on the existing 
procedures in part 124, which include procedures to deny a permit 
application (e.g., procedures applicable to issuing a notice of intent 
to deny at Sec.  124.6(b)). Under those procedures, the applicant may 
correct the deficiencies identified in a notice of intent to deny at 
any time by submitting a new (corrected) permit application. If the 
deficiencies are not corrected and a final decision to deny a permit is 
issued and becomes effective (see Sec.  124.15(b)), the applicant would 
be subject to enforcement. Moreover, after a CCR permit is denied, the 
CCR unit(s) would be an open dump, and the owner and operator would be 
required to cease placing waste in the unit. See RCRA Sec.  4005(a). 
The applicant would also remain subject to the applicable requirements 
of subpart D. Note that even after a denial has been issued, a revised 
application correcting the deficiency can be submitted.
    If a permit application is denied, which is expected to occur 
rarely, the owner and operator would still be required to obtain a CCR 
permit for activities that remain subject to requirements in subpart D, 
such as closure. Additionally, an enforcement action may be taken to 
bring the facility into compliance with subpart D.
    EPA believes a procedure to deny a permit is one of the necessary 
components of the authority delegated to EPA as part of the directive 
to implement a federal permit program. Without it, EPA would have no 
option other than to issue a CCR permit after an application is 
received, even in situations where that would be contrary to 
Congressional intent. For example, EPA lacks the authority to issue a 
permit that does not meet the statutory standard in RCRA sections 
4005(d)(2)(B) and (d)(5). Furthermore, such a provision is consistent 
with other federal environmental permit programs implemented by EPA, 
which have the authority to deny an application for a permit on 
comparable grounds. See, e.g., Sec. Sec.  71.11 and 270.29.
3. Permit Content
a. Standard Conditions in All Permits
    Proposed language at Sec.  257.140 would establish standard terms 
and conditions, which would be included in each CCR permit. Many of 
these standard terms and conditions contain legal requirements inherent 
to permits and are consistent with standard terms utilized in other 
federal permitting programs. EPA is proposing standard terms and 
conditions to improve the efficiency and enforceability of CCR permits. 
These conditions could be either written expressly into a CCR permit or 
incorporated by specific references to paragraphs in Sec.  257.140.
    i. Duty to Comply--This standard permit term would require 
compliance with the permit terms and clarify that failure to comply may 
result in enforcement, revocation and reissuance, termination, or 
denial of a permit. While it is unlikely that EPA would terminate or 
deny a permit to remedy noncompliance without issuing a new CCR permit, 
EPA is proposing to preserve these options to maintain flexibility to 
resolve case-by-case situations as they arise, in the most appropriate 
manner. This term is standard in other federal permitting programs, 
including part 270.
    ii. Duty to submit periodic review of application--This standard 
permit term would implement the requirement proposed in Sec.  257.132 
for the permittee to review the application submitted for the permit no 
less frequently than every ten years from the date of issuance. If no 
information in the application has changed, the permittee must submit a 
statement to that effect with a certification by a responsible official 
of truth, completeness and accuracy. If information in the application 
has changed, the permittee must modify the application and resubmit it. 
If a modification to the permit is needed, the permittee would be 
required to submit the updated information as part of an application 
for such a modification in accordance with Sec.  257.152.
    EPA is striving to develop an electronic CCR permit application 
system, which would allow the permittee to review the previous 
application and amend only the portions that require revision 
electronically. EPA intends to implement such a system to facilitate 
implementation of this proposed provision, by allowing the permittee to 
focus efforts only on information that must be updated.
    Once a CCR permit is modified or reissued, it will have a new 
issuance date and the ten-year review period would begin anew. If a CCR 
permit is modified more frequently than every ten years, then the 
permittee would not have to conduct any periodic application reviews. 
However, the permittee would always be obligated to evaluate changes at 
the facility and changes in the regulatory requirements, and to apply 
for permit modifications as needed.
    iii. Need to Halt or Reduce Activity Not a Defense--This standard 
term would clarify that the permittee may not use as a defense in an 
enforcement action that the only way to maintain compliance with the 
permit was to halt or reduce the permitted activity. This term is 
standard in other federal permitting programs, including part 270. It 
is also consistent with the underlying regulations in subpart D, as 
well as the prohibition against open dumps in RCRA section 4005.
    iv. Requirement to mitigate impacts of noncompliance--This standard 
term would require a permittee to take steps to mitigate the impacts of 
noncompliance, should any occur, where the noncompliance results in a 
reasonable probability of adverse impacts to human health and the 
environment. This provision is similar to requirements in other federal 
permitting programs, including part 270. EPA believes it is consistent 
with RCRA Sec.  4004(a) to require the facility to take appropriate 
actions after noncompliance to minimize impacts, particularly actions 
that may be most effective immediately after a catastrophic event such 
as a natural disaster. These actions could range in scope and 
complexity from providing immediate notification to a public water 
system about a release before it reaches a public water system intake, 
to cleaning up CCR released due to a dam failure.
    v. New statutory requirements or regulations--This standard term 
would implement requirements proposed at Sec.  257.151 that, if the 
underlying statutory or regulatory requirements become more stringent 
than the corresponding CCR permit conditions, the permittees must apply 
for a permit modification to reflect the updated requirements. This 
term is intended to ensure that the federal CCR permitting program will 
satisfy the statutory requirement for CCR permits to require CCR units 
to achieve compliance with applicable criteria established in subpart 
D.
    This term would apply to changes in underlying requirements that 
result from a change in the statute, a change to subpart D, or a 
judicial order. This

[[Page 9963]]

term only requires action by the permittee if the permit is less 
protective than the underlying requirement after the change. If the 
permit is more stringent than the underlying requirement, then the 
permittees would not be required by this standard condition to apply 
for a modification to the permit to incorporate the change and could 
continue to comply with the more stringent permit conditions.
    vi. Proper operation and maintenance--This proposed standard term 
would require that the permittee must at all times properly operate and 
maintain all CCR units, ancillary equipment and systems of treatment or 
control to achieve compliance with the conditions of the permit. The 
proposed language includes a variety of activities considered part of 
proper operation and maintenance: Performance, funding, staffing, 
training, and quality assurance. This proposal does not intend to 
create an independent technical requirement separate from subpart D, 
but rather to clarify that failure to properly operate or maintain 
equipment would not excuse failure to comply with requirements or 
standards in the permit. This would be required throughout the active 
life of the unit, the post-closure care period and until all corrective 
action is complete. Proper operation and maintenance would require the 
operation of back-up or auxiliary systems when needed to comply with 
the permit.
    EPA believes this standard term is necessary to require the 
permittee to take reasonable actions to ensure that all controls, 
monitoring, and other requirements of the CCR permit are implemented as 
intended. While many permittees may already properly operate and 
maintain the CCR units, ancillary equipment, and treatment or control 
systems, failure to do so can result in malfunctions or catastrophic 
releases. This could also result in noncompliance with requirements in 
subpart D, or a reasonable probability of harm to health and the 
environment. EPA believes an independently enforceable requirement to 
properly operate and maintain this equipment is consistent with RCRA 
4005(a) and may serve to prevent accidents or noncompliance before they 
happen. This term is required in other federal permitting programs, 
including part 270.
    The Agency proposes to apply this requirement to both owners and 
operators of CCR units, consistent with their respective joint and 
several liability and responsibility for compliance. Where there are 
concerns that operators would have primary control over compliance with 
this proposed provision, owners may undertake efforts to ensure that 
operators comply with the proposed standard through private agreements 
that protect landowners when CCR units are operated by another entity.
    vii. Permit actions--This proposed standard term clarifies that a 
permit may be modified, revoked and reissued, or terminated for cause. 
It also stipulates that applying for a permit modification or 
termination, or notifying the Administrator of planned changes or 
anticipated noncompliance, does not stay any permit condition. This 
standard term would implement the modification procedures in Sec. Sec.  
257.150 through 257.152. This proposed standard term is consistent with 
other federal permitting programs, including part 270.
    EPA does not believe this standard term would conflict with the 
proposed minor modification provisions in Sec.  257.151. Specifically, 
Sec.  257.151(b)(7) would provide that if a permittee applies to modify 
the permit and the modification qualifies as minor, and if EPA does not 
respond to the request to modify the permit within 45 days, the 
permittee can proceed with the modification. While the permittee may go 
ahead with the minor modification, all permit terms would remain 
effective until EPA issues a modified permit. EPA does not anticipate 
conflict between these provisions, because the criteria for minor 
modifications generally include changes which increase the stringency 
of the CCR permit.
    viii. Property Rights--EPA is proposing that each CCR permit 
include a term that clarifies the permit does not convey any property 
rights. This standard term would implement provisions proposed at Sec.  
257.125(c). EPA does not have the authority to convey property rights 
in a CCR permit. This proposed standard term is consistent with permit 
terms used in other federal permitting programs, including part 270.
    ix. Duty to Provide Information--EPA is proposing that each CCR 
permit include a term that establishes the permittee's duty to provide 
information requested by the Administrator to determine whether cause 
exists for modifying, revoking and reissuing, or terminating this 
permit, or to determine compliance with this permit. The term would 
also require the permittee to furnish to the Administrator, upon 
request, copies of records required to be kept by this permit. This 
standard term would implement provisions in the WIIN Act that provided 
EPA information gathering authority under RCRA section 3007. This 
proposed standard term is consistent with other federal permitting 
programs, including part 270.
    x. Inspection and Entry--EPA is proposing that each CCR permit 
include a term that clarifies the permittee's duty to allow EPA access 
to inspect, collect samples, and access records at the permitted 
facility. These activities are necessary elements of any permitting 
program and are common in federal permitting programs. The authority 
for EPA to conduct these activities under section 3007 of RCRA was 
provided in the WIIN Act.
    The proposed language includes provisions that inspection, sample 
collection, and access to records must be conducted at reasonable 
times, which would generally be during normal business hours. It also 
specifies that presentation of credentials would be required to gain 
access for these purposes.
    xi. Monitoring and Records--EPA is proposing that each CCR permit 
include a term that establishes the permittee's duty to maintain 
certain types of records related to monitoring. This standard term 
would require that records of monitoring information, including all 
supporting data and quality assurance records, be maintained for a 
period of at least ten years, or longer if requested by the 
Administrator. Records used to support the permit application would be 
required to be maintained for the lifetime of the permit. The standard 
term would require that all groundwater monitoring records be 
maintained throughout the active life of the unit, the post-closure 
care period and until completion of all corrective action.
    These recordkeeping provisions are consistent with the underlying 
CCR rule. Most of the information included in the proposed standard 
terms is required to be posted to a facility publicly accessible CCR 
website. The posting requirements do not allow for removing information 
from the publicly accessible CCR websites, and so information posted 
there is maintained throughout the life of the unit. Because CCR 
permits are proposed to be issued without expiration, EPA believes the 
records used to develop the permit application would remain relevant 
throughout the lifetime of the permit and should be maintained.
    xii. Signatory requirements--EPA is proposing that each CCR permit 
include a term that requires applications, reports, or information 
required to be submitted to the Administrator by the permit be signed 
and certified in accordance with the procedures of proposed Sec.  
257.130(e). A CCR permit is not likely to require many submittals of 
information. The primary mechanism

[[Page 9964]]

for reporting information in the CCR program is by posting on a 
publicly accessible CCR website. Reporting requirements in the CCR 
permit are most likely to pertain to permit modifications or reports of 
noncompliance. For both types of submittals, EPA is proposing to 
require the permittees to include the same certification as to the 
truth, completeness and accuracy of the contents as is required for the 
original permit application. Applications for major permit modification 
would require certification according to other proposed requirements in 
Sec.  257.152(b).
    xiii. Reporting requirements--These standard terms would be placed 
in each CCR permit, and they require reporting of certain information 
within specified timeframes. These provisions are commonly found in 
other federal permitting programs, including parts 270 and 71.
    (A) Anticipated noncompliance--This proposed standard term would 
require reporting to the Administrator in advance of anticipated 
noncompliance. If, for any reason, the permittee will be unable to 
comply with any terms or conditions, the permittee would be required to 
provide notice to the Administrator as soon as possible and at least 60 
days prior to any planned changes in the permitted facility that may 
result in permit noncompliance. If the permittee applies for a 
modification to the permit to accommodate these changes, and the 
anticipated noncompliance is explained in the application, that 
application could serve as compliance with this notification 
requirement.
    (B) Twenty-four-hour reporting--This proposed standard term would 
require reporting as soon as possible, but no later than 24 hours after 
any noncompliance that could impact health or the environment. EPA 
anticipates this reporting requirement will be used infrequently, such 
as after sudden releases of CCR to the environment beyond the facility 
property boundary or to a waterway. A requirement to report such 
incidents within 24 hours is appropriate, so that EPA can respond, if 
needed, to oversee cleanup or take other action to ensure any impacts 
to health or the environment are mitigated.
    (C) Other information--This proposed standard term would require 
the permittee to supplement or correct previously submitted information 
if the permittee realizes later that it was incorrect or incomplete. 
This would help EPA to ensure that CCR permits continue to meet the 
requirements of RCRA Sec.  4005(d)(2)(B) by providing the Agency the 
opportunity to evaluate the submitted information and determine whether 
any changes to the permit are needed.
    xiv. Severability--EPA is proposing a standard term to establish 
severability of the CCR permit. This would mean that if a term in the 
permit was invalidated through an appeal process or other mechanism, 
the rest of the permit would remain in effect. Severability is a common 
element in federal permitting programs. It would allow a permittee or 
other affected party to pursue appeal of a permit term without risking 
loss of other portions of the permit. It would also avoid the 
administrative burden of having to re-issue an entire permit to 
accommodate changes to address invalidation of only a part of the 
permit.
b. Establishment of Permit Conditions
    EPA is proposing to establish three provisions to guide a permit 
writer's discretion in developing individual permit conditions. Each of 
these provisions borrow heavily from Sec.  270.30.
    First, EPA is proposing in Sec.  257.141(a) to include the 
direction that in addition to the standard conditions in Sec.  257.140, 
the Administrator is to establish terms and conditions in a CCR permit, 
on a case-by-case basis, in accordance with the requirements and 
procedures of this subpart and with the mandate in section 
4005(d)(2)(B) of RCRA. EPA is also proposing to codify the statutory 
mandate by specifying that the permit must include all permit terms and 
conditions necessary to ensure that each CCR unit will achieve 
compliance with subpart D of this part.
    Second, EPA is proposing in Sec.  257.141(b) to clarify that a 
permit writer may either incorporate the applicable requirements of 
subpart D by re-writing them into the permit or incorporating them by 
reference. Any incorporation by reference must include a citation to 
the specific provision or requirement. Allowing incorporation by 
reference could streamline the permit writing process or reduce the 
length of a permit, while maintaining clarity about which CCR rule 
requirements apply to the CCR unit and what the permittee must do to 
comply with them. Incorporation by reference could also reduce the need 
for permit modifications, if the permit references portions of subpart 
D that are subsequently amended through rulemaking. If the reference to 
the amended subpart D requirement in the permit continues to require 
compliance with the applicable requirements in subpart D, then no 
permit modification would be needed. EPA expects that incorporation by 
reference may be most effective when the reference is specific and the 
requirements of subpart D are straightforward, and do not require site-
specific tailoring in a permit.
    Third, EPA is proposing in Sec.  257.141(c) to provide that the 
permit is to include such terms and conditions as the Administrator 
determines necessary to ensure there is no reasonable probability of 
adverse effects on health or the environment from the solid waste 
management of CCR at the permitted facility. This proposal is modeled 
on the RCRA ``omnibus'' provision at Sec.  270.30(b)(2). It would 
authorize the permit writer to establish terms and conditions not 
expressly found in subpart D, but which the Administrator determines, 
after review of the CCR permit application materials and operations at 
the facility, to be necessary to meet the protectiveness standard in 
section 4004(a) of RCRA. Based on its experience implementing the 
subtitle C permit program, EPA considers this authority to be a key 
component of an effective permit program
    A permit reflects the result of an adjudication in which the permit 
authority determines how the technical criteria in subpart D apply to 
the facility's specific operations and site conditions. During this 
process questions can arise as to how particular requirements apply to 
unique or anomalous situations that are not explicitly resolved by the 
text of the regulation (and likely could not be given the nature of 
these regulations, which establish generally applicable national 
requirements). ``Omnibus'' provides a kind of bridging or supplemental 
authority that allows permit writers to clarify how the technical 
criteria apply in a specific context, and to draft terms and conditions 
approving site-specific approaches, that are appropriate for the on-
the-ground conditions at the facility, to achieve compliance with 
applicable requirements in subpart D. To be clear, this provision would 
not allow the Administrator to waive, amend, or alter any requirement 
in subpart D in a CCR permit, as that can only be accomplished through 
rulemaking.
    Evaluating compliance approaches proposed by the applicant in site-
specific plans or reports and incorporating them into the permit, 
either directly or by reference, is expected to be a large and critical 
part of the CCR permit writing process. A permit writer would review 
these documents in the application and draft permit conditions, which 
may be based on proposed compliance approaches found in the site-
specific plans or reports that elaborate on the technical

[[Page 9965]]

criteria in subpart D. For example, an applicant who has triggered 
corrective action requirements for a CCR unit would develop a site-
specific corrective measures assessment to comply with the requirements 
of Sec.  257.96. The applicant would also select a corrective action 
remedy based on the findings of that assessment, in accordance with 
requirements in Sec.  257.97. The corrective measures assessment would 
be submitted as part of the CCR permit application, and the applicant 
would provide documentation to support selection of the remedy. The 
permit writer would review these application materials and develop 
enforceable permit terms and conditions to require compliance with 
subpart D, reflecting specific approaches proposed in the application. 
These terms could include requirements to sample specific wells 
according to specific procedures, methods and schedules. They could 
also include requirements to design and implement specified remedial 
technologies in accordance with milestone deadlines. For example, ``The 
permittee shall complete design of an in-situ treatment system to 
contain and control releases of chromium from the CCR unit to a 
concentration no greater than 1 mg/l. The design shall be completed no 
later than December 1, 2019, and construction of the remedy shall begin 
within six months of completing the design.''
    This adjudication of subpart D requirements would result in permit 
conditions interpreting those requirements, but which, consistent with 
the direction in RCRA Sec.  4005(d)(2)(B), would be necessary to issue 
an enforceable CCR permit. The proposed language in Sec.  257.141(a) 
and (c) is intended to provide the permit writer the authority and 
flexibility to develop such terms and conditions. It would also provide 
the permit writer, in the event that proposed approaches in the permit 
application are not sufficient to achieve compliance with the 
requirements of subpart D, with the authority to develop terms and 
conditions that will require the permittee to achieve such compliance.
    Just as under the omnibus clause, EPA would bear the burden of 
demonstrating that the factual prerequisites to exercise the authority 
under Sec.  257.141(c) have been met. EPA would present these findings 
in the Statement of Basis and Purpose accompanying both the draft and 
final permit.
    Finally, because Sec.  257.141(c) is both a procedural and 
substantive provision, EPA is proposing it pursuant to RCRA Sec. Sec.  
1008(a)(3) and 4004(a) as well as RCRA Sec.  4005(d). As such, EPA 
considers it to be, at least in part, a technical criterion. EPA 
requests comment on whether it would therefore be appropriate to 
include a corresponding provision with the other technical criteria in 
subpart D.
c. Schedule of Compliance
    EPA is proposing at Sec.  257.142(a) that if a CCR unit is not in 
compliance with one or more applicable requirements of subpart D and 
will still be out of compliance at the time of permit issuance, a 
permit may be issued which includes a schedule of compliance. The 
schedule of compliance would consist of a series of enforceable 
actions, each with a deadline, which will result in compliance with 
subpart D as soon as is feasible. In cases where the applicant is 
subject to a judicial consent decree or administrative order, the 
compliance schedule would not deviate from the specific requirements in 
the consent decree or administrative order and would be no less 
stringent but may be more detailed (e.g., may include interim 
milestones).
    If the final compliance deadline in the compliance schedule is more 
than one year after the CCR permit becomes effective, then EPA is 
proposing that interim milestones with compliance deadlines would be 
established, each lasting no longer than one year. EPA is proposing a 
one-year timeframe to maintain effective oversight of compliance 
efforts, while recognizing that some work required to achieve 
compliance may take months or more, and that seasonal or inclement 
weather may impact the feasibility of accomplishing major construction 
or earth-moving activities more quickly.
    In addition, EPA is proposing at Sec.  257.142(a)(3) to require 
that no later than 30 days after each interim milestone deadline or the 
final deadline for compliance, the permittee must post a notification 
on the public CCR website of its compliance or noncompliance with the 
interim milestone or final requirements. EPA believes 30 days is 
sufficient time to prepare and post this notification, which is 
essentially a statement of actions taken or not taken. If the permittee 
fails to comply with deadlines in a schedule of compliance in a CCR 
permit, the permittee would be subject to enforcement, modification of 
the permit to incorporate additional requirements or restrictions, or 
potentially termination of the CCR permit.
    An example of a situation where a compliance schedule may be 
appropriate would be where a CCR unit does not meet an applicable 
location standard but has not yet ceased receiving waste, even though 
the deadline to do so has passed. The facility may have failed to 
comply with the requirement to cease receiving waste due to delays in 
making the operational changes needed to cease sending non-CCR waste 
streams to the CCR unit. EPA could issue a CCR permit to require 
compliance with closure requirements in subpart D by establishing 
enforceable deadlines for project milestones in the CCR permit, as well 
as any applicable corrective action requirements. If the CCR unit is 
being operated under an enforcement order (i.e., a federal consent 
decree or an administrative order) the Administrator could establish a 
schedule of compliance to incorporate the enforcement order in the CCR 
permit. If the CCR unit is not operating under an enforcement order, 
the Administrator could develop a schedule of compliance to ensure the 
fastest closure feasible and require the permittee to come into 
compliance with subpart D using a site-specific compliance approach, 
with milestones, in an enforceable permit. These milestones could 
include, for example: Completion of process change drawings no later 
than three months after permit issuance, ordering necessary equipment 
no later than one month after drawings are complete, and installing new 
equipment at the first scheduled shutdown of the unit or no later than 
120 days after the new equipment is received.
4. Changes to a Permit
    During the active life of a CCR unit, through post-closure care and 
until completion of all corrective action, changes to a permit are 
inevitable to keep pace with evolving business practices, technology, 
cleanup decisions, and changes in applicable regulatory requirements. 
It is likely that all CCR permits will need to be changed multiple 
times throughout the operation and closure of the unit, and EPA is 
proposing to establish procedures at Sec. Sec.  257.150 through 257.152 
to accomplish this.
    EPA is proposing two basic categories of modifications: (1) Those 
which are initiated by EPA, including in response to a citizen petition 
submitted in accordance with Sec.  124.5, and (2) those which are 
initiated by the permittee. The procedures EPA is proposing at 
Sec. Sec.  257.150 through 257.152 would establish the factual findings 
and criteria applicable to all modifications. These procedures would 
distinguish between two types of permittee-initiated changes, 
categorizing them as either major or minor, along with a streamlined 
process for a facility to

[[Page 9966]]

request minor modifications. EPA is also proposing to rely on the 
existing procedures in part 124 or part 22 whenever EPA modifies or 
revokes and reissues a permit at its own initiative, terminates a 
permit, or acts on a permittee's request for a major modification.
a. Modification or Revocation and Reissuance of an Individual Permit at 
EPA's Initiative
    EPA is proposing that the Administrator may modify or revoke and 
reissue an individual permit if one or more of the causes listed in 
Sec.  257.150(a) exist. EPA is proposing explicitly that the 
Administrator may make this determination based on information from any 
source, such as through a facility inspection, information submitted or 
posted by the permittee, a petition under Sec.  124.5 of this chapter, 
or whenever EPA reviews the permit file. When a permit is modified, 
only the conditions subject to modification would be reopened. By 
contrast, if a permit is revoked and reissued, the entire permit would 
be reopened and subject to revision. Revocation and reissuance would 
generally be appropriate when the changes are too extensive to be 
addressed through a permit modification. For example, revocation and 
reissuance may be appropriate when permitting authority is partially 
transferred to a state that has received a partial program approval. In 
this example, if a federal permit includes multiple CCR units, and some 
of them become subject to permit requirements under an approved state 
program, the federal permit may be revoked and reissued to include only 
the CCR units which remain subject to federal permitting requirements. 
This structure is consistent with procedures in other federal 
permitting programs and with the standard terms for severability 
proposed in Sec.  257.140. See, e.g., Sec. Sec.  122.62, 144.39, and 
270.41.
    EPA is proposing to limit the Agency's authority to initiate a 
modification only to situations in which EPA determines that one or 
more of the causes listed in Sec.  257.150(a) exist. These are 
generally similar to those found in several EPA programs including 
NPDES, UIC, and RCRA. See, Sec. Sec.  122.62, 144.39, and 270.41.
    The first cause listed in Sec.  257.150(a)(1) would be if there are 
alterations or additions to the facility that would be materially and 
substantially different from those specified in the existing permit 
conditions or permit application, or that could otherwise impact the 
ability of the permit to require compliance with any of the 
requirements in subpart D. This type of modification could include 
changes to operations beyond the CCR unit but that could affect the 
measures the facility has adopted to comply with subpart D, such as a 
change to a process or operation that affects fugitive dust control or 
run-on runoff control. The EPA authority to initiate a permit 
modification to address this situation is necessary to ensure that CCR 
permits continue to require the permittee to achieve compliance with 
subpart D.
    The second cause listed in Sec.  257.150(a)(2) would be where EPA 
has received information since the time of permit issuance that 
demonstrates the need for modified permit conditions. EPA is proposing 
that it could modify a permit on this basis in two situations. The 
first situation is where the information was not available to EPA at 
the time of permit issuance, and the information would have justified 
the inclusion of different permit conditions at the time of issuance to 
require compliance with subpart D. The second situation would not hinge 
on whether the information was available at the time of permit issuance 
but would authorize modification whenever any information shows that 
modification is necessary to include requirements in the permit which 
ensure there will continue to be no reasonable probability of adverse 
effects on health or the environment from permitted operations.
    EPA recognizes that this latter provision is broader than the 
comparable provisions under other EPA regulations (e.g., Sec.  270.42) 
but this was intentional. In contrast to other programs, EPA is 
proposing that CCR permits be issued without an expiration date, which 
means that there will be no routine opportunity to reexamine the permit 
as a whole or to rectify mistakes. Thus, for example, if an inspection 
reveals deterioration of a cap over a closed CCR landfill, the 
Administrator should be able to extend the post-closure care period in 
the CCR permit to ensure continued compliance with the performance 
standards in Sec.  257.102, without regard to whether those conditions 
existed at the time of permit issuance, and therefore such information 
might have been available to EPA. The Agency considers such a provision 
to be an essential component of the program to ensure that any permit 
continues to meet the standard in RCRA section 4005(d)(2)(B) throughout 
the entire life of the permit. This authority is particularly critical 
in light of the permit shield provided by RCRA 4005(d)(6) and the 
corresponding provision proposed in Sec.  257.125(a).
    In accordance with proposed Sec.  257.150(a)(3), if the 
Administrator has cause to terminate a permit under Sec.  257.153 but 
determines that modification or revocation and reissuance is more 
appropriate, the Administrator may change the permit to incorporate 
updated permit terms to require compliance with subpart D. For example, 
if a CCR unit is out of compliance, rather than terminate the permit in 
accordance with Sec.  257.153(a), the Administrator may initiate a 
modification to incorporate a schedule of compliance into the permit in 
accordance with Sec.  257.142. This approach could minimize any 
interruption in the effectiveness of an enforceable CCR permit and may 
be appropriate if a permit modification could result in quicker 
compliance with subpart D requirements than other alternatives, such as 
an enforcement action. For example, in the context of a permittee that 
is not in compliance with the requirements for an ongoing, complex 
corrective action, EPA may decide to modify the permit to establish 
more prescriptive interim milestones, rather than terminating the 
permit and relying on a RCRA section 3008(a) compliance order to govern 
the cleanup.
    The fourth cause listed in Sec.  257.150(a)(4) for EPA to initiate 
a permit modification is if EPA becomes aware of transfer of ownership 
or operation of a permitted CCR unit. If the new owner and operator 
have not submitted a timely permit application to update the name(s) of 
the permittee(s), EPA may initiate modification of the permit. EPA 
views this as a necessary provision, given that a permit issued in the 
name of an entity which no longer has control of the CCR unit would be 
less effective and enforceable than a permit issued to the owner and 
operator currently in control of the CCR unit. Failure of the new owner 
and operator to apply in a timely manner for a permit modification to 
reflect the transfer of control should not preclude EPA from 
transferring the permit, where EPA has information verifying that the 
transfer has occurred.
    An additional basis for EPA to initiate a permit modification under 
Sec.  257.150(a)(5) is where modification is appropriate to correct any 
error, mistake or omission, so as to conform a permit's requirements to 
the applicable requirements of subpart D. EPA believes this requirement 
is necessary to meet the standard in RCRA section 4005(d), particularly 
in light of the proposed permit shield. To ensure the inclusion of all 
appropriate permit terms and conditions, EPA is proposing the 
Administrator may initiate modification

[[Page 9967]]

of a permit to correct errors, mistakes or omissions in order to 
conform CCR permits to subpart D.
    EPA is proposing to include a reference in Sec.  257.150(a) to the 
existing provision in Sec.  124.5(a) that lays out the procedure by 
which any interested person may petition the Administrator to modify or 
revoke and reissue a permit. A corresponding reference to petitions to 
terminate a permit is proposed in Sec.  257.153. As specified in Sec.  
124.5, such a petition can only be granted if EPA determines that one 
or more of the grounds in paragraph (a) of this section have been 
established. Also, as specified Sec.  124.5, the petition must be in 
writing and contain reasons or factual information or evidence.
    An interested party might obtain such information through personal 
observation (e.g., observation of unpermitted or non-compliant CCR 
management activities at a facility subject to a permit issued under 
these proposed requirements; observation of excessive releases from a 
facility, such as fugitive dust, uncontrolled runoff, or seepage of 
CCR). An interested party could also obtain information by reviewing 
compliance information submitted to EPA or posted on a publicly 
accessible CCR website. If any member of the public believes that a CCR 
permit should be modified based on such information, EPA is proposing 
to provide the same opportunity to request that the Administrator 
modify, revoke and reissue, or terminate a CCR permit that is available 
for NPDES, UIC, and RCRA hazardous waste permits. EPA requests comment 
on whether this provision is appropriate in the context of a RCRA 
subtitle D permit program.
    EPA is proposing at Sec.  257.150(b) a provision modeled after 
Sec.  270.41(c), which would provide that the suitability of the siting 
of a previously permitted unit will not be considered at the time of 
permit modification or revocation and reissuance unless new information 
or regulations indicate there is a reasonable probability of adverse 
effects to health or the environment that was unknown at the time of 
permit issuance. This provision is intended to confirm that the 
Administrator will not routinely require the owner and operator to 
evaluate whether an existing CCR facility or existing CCR unit 
continues to be properly sited during routine permit modifications. 
Such an action is not within the current scope of subpart D, which 
requires a single demonstration of compliance with the location 
criteria. However, if information becomes available demonstrating that 
the CCR unit presents a reasonable probability of adverse effects to 
health or the environment, the permit would fail to meet the 
protectiveness standard in RCRA section 4004(a). As an example, this 
provision might be triggered if the elevation of the aquifer beneath 
the unit had significantly and permanently increased over time, e.g., 
as a result of intersecting surface water or aquifer deformation, such 
that the CCR unit located above the aquifer would no longer meet the 
requirements of Sec.  257.60. The proposed provision at Sec.  
257.150(b) would clarify that in such a case EPA could modify or revoke 
and reissue the CCR permit with updated permit terms, under the omnibus 
provision proposed at Sec.  257.141, to address the risks. This 
provision is similar to Sec.  270.41(c), which is limited to situations 
in which the risk was unknown at the time of permit issuance. EPA is 
proposing to retain this limitation, even though, as discussed above, 
EPA is otherwise proposing to adopt more expansive bases for Agency-
initiated modifications in this program. EPA believes that there should 
be a higher bar to impose further conditions on the siting of a unit, 
given that it may be technically difficult to address issues once the 
unit has been built and is operating. EPA is proposing to adopt 
language in Sec.  257.150(b) that reflects the RCRA section 4004(a) 
standard and to clarify that the risk was unknown to the Administrator, 
rather than merely ``unknown.''
    In fact, EPA expects that the likelihood that a unit's compliance 
with the location criteria would change over time is low, and because 
this will be a rare occurrence, would be properly addressed under 
omnibus authority. However, EPA requests comment on whether this could 
occur with sufficient frequency that it would be best addressed by 
amending the criteria at Sec. Sec.  257.60 through 257.64 to reflect 
these circumstances rather than the approach proposed in this action. 
Note that the language under Sec.  257.150(b) would not preclude 
routine application of the subpart D location criteria to lateral 
expansions. In subpart D, lateral expansions are considered new CCR 
units that must be permitted and must comply with all the requirements 
applicable to new units, including the location criteria.
    To ensure adequate public notice and transparency, EPA is proposing 
at Sec.  257.150(c) that the Administrator will post all EPA permitting 
actions on a publicly available website. This would include: Draft 
permits, permit modifications, revocations, terminations, and reissued 
permits. This is discussed further in Unit V of this preamble.
b. Permit Modifications at the Request of the Permittee
    After an individual CCR permit is issued, the permittees are 
obligated to evaluate changes at the facility and changes in the 
regulatory requirements, and to apply for permit modifications as 
needed to maintain a permit which accurately reflects operations at the 
facility and requires compliance with the applicable requirements of 
subpart D and the protectiveness standard in RCRA section 4004(a). An 
individual CCR permit modification could be requested by the permittee 
at any time during the life of the permit, which is how EPA expects 
most modifications will be initiated.
    To obtain a modification, EPA is proposing that the permittee would 
submit an application for a permit modification to EPA, in accordance 
with Sec.  257.152, which would describe the type of permit 
modification requested and would specify the requested changes to 
permit provisions. In all applications for permit modifications, the 
permittees would submit information to EPA that describes the exact 
change requested to the permit conditions, proposes whether the change 
is a major or minor modification, and provides a permit application 
that contains the information required in the relevant provisions in 
Sec. Sec.  257.130 and 257.131. All applications must also include the 
certification required under Sec.  257.130(e), attesting to 
completeness, truth and accuracy of the application.
    In addition, as part of seeking a modification to a permit, the 
owner and operator must review the previously submitted permit 
application in its entirety to determine whether it continues to 
accurately reflects solid waste management of CCR at the facility. If 
the permit application no longer completely and accurately describes 
these operations, the facility must submit an amended application that 
reflects its current operations, even if the facility believes that no 
modification of existing permit conditions is necessary in light of 
these changes.
    EPA is proposing two types of modifications, major and minor, for 
many reasons. EPA examined several other environmental permitting 
programs to inform this proposed rule, as discussed in Unit III.C of 
this preamble. Some of these programs have more than two types of 
modifications, including the RCRA hazardous waste permitting program. 
However, based on the nature and complexity of the scope

[[Page 9968]]

of CCR disposal and waste management EPA is proposing that only two 
categories of modifications are necessary to capture all reasonably 
anticipated modification scenarios. CCR are generally managed in only 
two types of units: A landfill or a surface impoundment; in contrast, 
there are many more types of hazardous wastes which are typically 
managed in a wide variety of ways (e.g. treated, stored, or disposed 
of) in a variety of units (i.e., landfills, surface impoundments, 
tanks, incinerators). Further, the modifications necessary for CCR 
units are anticipated to generally be similar for landfills and surface 
impoundments.
i. Minor Modifications at the Request of the Permittee
    Minor modifications would be minor or administrative changes that 
keep the permit current with respect to common changes to the facility 
or its operations. These changes would not substantially alter the 
permit conditions or reduce the ability of the facility to operate in a 
manner that is protective of health and the environment. These criteria 
for minor modifications, which are proposed in Sec.  257.151(a), were 
modeled on the criteria for class I modifications under Sec.  270.42 
and minor modifications in Sec.  71.7(e)(1). The proposed criteria are 
intended to exclude any change that could decrease the effectiveness of 
the permit at either requiring compliance with subpart D, or otherwise 
ensuring that the facility continues to meet the protectiveness 
standard in RCRA section 4004(a). Because of their administrative 
nature, simplicity, routine nature, and lack of impact on the operation 
or protectiveness of the CCR unit and related waste management 
practices, such modifications should be implemented quickly and do not 
warrant public comment.
    A list of examples of minor modifications is provided in Sec.  
257.151(a)(1) through (a)(10), but any modification that meets the 
criteria proposed in Sec.  257.151(a) would be processed as a minor 
modification. EPA included the examples on the list largely because 
they are expected to be routine changes that can be quickly reviewed, 
and that should have little potential to impact human health or the 
environment, and consequently do not necessitate an opportunity for 
public comment.
    Among the listed examples of minor modifications are any 
administrative or informational changes in the permit application, such 
as changes to the name or contact information of coordinators or other 
persons or agencies identified in the permit or compliance plans. 
Another example is any correction of typographical error in the permit, 
as long as these revisions do not substantively or materially impact 
any of the permit terms.
    An example of a minor permit modification that EPA is proposing to 
include at Sec.  257.151(a)(3) is the transfer of ownership or 
operational control of a CCR unit or facility. EPA understands that a 
change in ownership or operational control of a CCR unit or facility 
can sometimes happen quickly or may be uncertain until the transfer 
occurs. In that case, it may not be feasible for the permittee to apply 
for a permit modification 45 days prior to the transfer. Therefore, the 
proposal would require the new owner or operator to submit a revised 
permit application as soon as practicable, but no later than 30 days 
after the transfer of ownership or operational control occurs. The new 
permittee would also provide contact information to the Administrator.
    In addition, EPA is proposing at Sec.  257.151(a)(4) to consider 
any changes necessary to comply with new or amended regulations as 
minor modifications, when these changes can be incorporated directly 
into the permit without requiring a significant exercise of technical 
judgement or discretion and without substantially changing design or 
operational restrictions or compliance approaches required by the 
existing permit. EPA is proposing that public input is not needed for 
the kind of ministerial modification that merely implements the change 
in the regulation. This is also the case for any changes in statutory 
requirements. Since a change in the regulation underlying the permit 
condition would go through public notice and a public comment, further 
opportunity for public comment on effectuating that change is not 
needed. Similarly, when the statute changes, EPA has no discretion to 
revise Congress's mandate, and updating the permit to reflect that 
mandate is merely a ministerial exercise that does not warrant public 
comment.
    In these circumstances, permittees will be expected to initially 
determine the changes that are applicable to their CCR units and the 
changes to the permit conditions that are needed. The permittees would 
to submit an application for a minor modification if those changes can 
be incorporated directly, without requiring discretion regarding 
applicability or any changes to site-specific compliance approaches. If 
the change in regulatory or statutory requirements requires a permit 
modification that is complex or requires changes to compliance 
approaches or other decisions in the permit that relied on any 
significant judgment or discretion, then the modifications would be 
considered major. See proposed Sec.  257.151(c)(9).
    EPA is proposing in Sec.  257.151(a)(6) that minor modifications 
can include any changes that increase the stringency of permit 
requirements, such an increase in the frequency or duration of the 
procedures for inspection, monitoring, recordkeeping, web posting, 
sampling, analytical methods, or maintenance activities. If the 
permittee wants to inspect the CCR unit more often than required by the 
existing permit, conduct more groundwater samples or increase the 
frequency of sample collection, or use any equivalent analytical 
methods, this provision allows the permittee to make these changes 
using the minor modification procedures. Also, if there are changes to 
monitoring, sampling, or analysis methods or procedures that are 
appropriate to conform permit conditions to updated agency guidance or 
regulations, these would be considered minor modifications. EPA will 
review the proposed modifications to make sure the changes are 
equivalent to or more stringent than the permit terms, but EPA believes 
that, on balance, an opportunity for public comment would unnecessarily 
delay implementation of clearly desirable changes.
    Another minor modification at Sec.  257.151(a)(8) would be if an 
existing groundwater monitoring well needs to be replaced because it 
has been damaged or rendered inoperable. As long as the well 
replacement does not significantly change the location, design, or 
depth of the sampling interval of the well, this can be considered a 
minor modification, but if it does change any of those criteria, it 
would be considered a major modification. The last example of a minor 
modification in the proposed rule would be a change to the closure plan 
to adjust the estimates of the maximum extent of operations or the 
maximum inventory of waste onsite at any time during the active life of 
the facility. This is proposed at Sec.  257.151(a)(9). These would be 
considered minor modifications as long as all of the other monitoring 
and reporting requirements are conducted in accordance with the permit 
and as long as these changes continue to ensure there is no reasonable 
probability of adverse effects to health and the environment.
    The procedures to obtain a modification are proposed at Sec.  
257.151(b) and would differ for minor modifications and major 
modifications. In either case, the owner and operator

[[Page 9969]]

would submit a permit modification application to EPA in accordance 
with Sec.  257.152 and indicate whether the permittee considers the 
proposed change to be a major or minor modification. All minor permit 
modification applications must contain sufficient information to 
justify treating the modification as minor. The Administrator would 
review the application and determine if that characterization is 
accurate. This is an important step, because the major and minor 
procedures differ significantly in several respects. For example, the 
minor modification procedures proposed at Sec.  257.151(b) would not 
require a public comment period or public meeting as they are changes 
that do not substantially alter the permit conditions. Any 
modifications that meet the criteria at Sec.  257.151(a) would be 
considered as minor; if multiple modifications are requested in a 
single application, the permittee would be required to demonstrate that 
all of them meet the criteria. Any that do not would be considered 
major modifications and processed according to the procedures proposed 
at Sec.  257.151(d).
    EPA is proposing two provisions that specify the timing for 
requesting a minor modification; first at Sec.  257.151(b)(1), which 
would apply to most requests, EPA is proposing to require the permittee 
to submit an application no less than 45 days before making a change to 
the CCR unit. This deadline would be excepted for minor modifications 
requested due to the transfer of ownership or operational control of a 
CCR unit or facility, where it is often not feasible to apply 45 days 
in advance, as provided in Sec.  257.151(a)(3).
    Second, EPA is proposing at Sec.  257.151(b)(2) that if there are 
revisions to subpart D, such as a final rule promulgation or court 
order, which makes the underlying requirements less stringent than the 
existing permit conditions, the owner and operator may continue to 
operate in accordance with the permit or may apply for a minor permit 
modification in accordance with Sec.  257.152. All regulatory revisions 
will be posted in the Federal Register, and it will be the permittee's 
responsibility to be aware of any new or more stringent applicable 
requirements. Whenever the underlying requirements in subpart D change 
to be more restrictive, such that compliance with the permit no longer 
results in compliance with subpart D, the permittee would be required 
to apply for a permit modification. EPA believes that the permittee 
should initiate these modifications because an owner and operator is 
best able to identify the impact of any regulatory changes on 
operations at a facility. Moreover, these modifications will be put 
into effect faster if the permittee initiates the modification than if 
EPA initiated the modification.
    After a permit application for a minor modification is submitted, 
EPA is proposing in Sec.  257.151(d)(4) and (d)(5) that the 
Administrator would determine whether the modification is appropriate 
and protective. The Administrator may take a number of actions in 
response; first EPA may determine that the proposed modification does 
not meet the criteria for a minor modification and therefore must 
follow the procedures for a major modification in Sec.  257.151(d). The 
Administrator could also determine that additional information is 
needed to evaluate the modification; for example, if the application 
does not contain enough supporting information to demonstrate that the 
change is necessary or that it meets the conditions for a minor 
modification. The Administrator may also deny the request if it does 
not contain enough supporting information or if the requested 
modification would result in a permit that does not require compliance 
with subpart D or otherwise fails to meet the statutory protectiveness 
standard. If the Administrator takes any of these actions, the 
permittee may update the application and submit it again to the 
Administrator. In this case, the permittee must continue to comply with 
the original permit conditions.
    Finally, the Administrator may approve the minor modification and 
update the permit accordingly, including a new permit issuance date. 
EPA is proposing at Sec.  257.151(b)(7) that if EPA has not responded 
within 45 days after the permittee submits the application for the 
modification, the application will be considered to be approved and the 
permittee may make the change as described in the permit modification 
application. Since minor modifications do not substantially alter the 
permit conditions, EPA believes that 45 days provides sufficient notice 
of the proposed change. This ensures that minor, unsubstantial changes 
are made in a timely manner and keeps the permit application up to 
date. Note that minor modifications would not be subject to the 
requirements in Sec.  124.5, which is consistent with the approach 
under the NPDES, UIC, 404 programs, as well as the RCRA hazardous waste 
program, which excludes both Class 1 and 2 modifications. See Sec.  
124.5(c)(3).
ii. Major Modifications at the Request of the Permittee
    In contrast to minor modifications, major modifications are those 
changes that materially alter the facility, its operation, or 
compliance approaches required in the existing permit, or changes to 
address regulatory revisions that will require a significant exercise 
of technical judgement or discretion to implement. EPA is proposing at 
Sec.  257.151(c) that any modification that does not meet the criteria 
proposed at Sec.  257.151(a) to be a minor modification would be a 
major modification. Major modifications would include physical or 
operational changes, changes to compliance approaches, or any other 
changes that could impact the protection of health and the environment. 
If a CCR unit transitions into a new operating phase and becomes 
subject to requirements in subpart D not included in the permit, a 
major modification application must be submitted to the Agency to 
update the permit. However, if a CCR unit transitions into a new 
operating phase and all requirements in subpart D applicable to the 
unit in the new operating phase are already included in the permit, no 
permit modification would be required. Examples of major modifications 
that meet the above criteria are proposed in Sec.  257.151(c)(1) 
through (9). EPA requests comment on whether the criteria proposed in 
Sec.  257.151(c) is sufficiently comprehensive to include all potential 
modifications that should be treated as major, and on the 
appropriateness of the listed examples of major modifications.
    The first example of a major modification that EPA is proposing at 
Sec.  257.151(c)(1) is any change that reduces the frequency or 
stringency of requirements for inspection, monitoring, sampling, 
analysis, recordkeeping, reporting, web posting, or maintenance 
activities by the permittee. These would be considered major 
modifications because there is a possibility that the change would make 
the newly revised permit conditions less stringent than the existing 
requirements in the permit, which warrants careful review and, because 
it could impact the public, an opportunity for public comment. The 
Administrator will not approve changes that make the permit conditions 
less protective than the underlying requirements in subpart D. For 
example, a facility might be required to conduct daily inspections 
following a structural stability failure at the CCR surface impoundment 
to monitor the progress of remediating the issue. After the structural 
stability issue is resolved, a

[[Page 9970]]

major modification could be requested to allow the facility to instead 
comply with the weekly inspection requirements in Sec.  257.83(a)(i). 
This modification would be less stringent than the original permit 
term, but not than the technical criteria in subpart D, and could be 
approved because the permit would continue to meet the statutory 
standard that each permit requires compliance with subpart D.
    Removing a permit condition because the underlying regulatory 
requirement is no longer applicable would be considered to be a major 
modification, if the change in the applicable requirement was not 
merely incorporating a regulatory revision, a statutory change, or a 
court order (e.g., vacatur of a requirement). See Sec.  257.151(c)(2). 
For example, this could include a change based on completion of an 
operating phase (e.g., completion of closure activities). Another 
example could be a change in the applicability of emergency action plan 
(EAP) requirements for existing and new CCR surface impoundments, in 
response to a change in the unit's hazard potential classification. See 
Sec. Sec.  257.73(a)(3) and 257.74(a)(3), respectively. The EAP is a 
document that identifies potential emergency conditions at a CCR 
surface impoundment and specifies actions to be followed to minimize 
loss of life and property damage. The requirement for an owner and 
operator of a CCR surface impoundment to prepare an EAP applies to non-
incised \9\ surface impoundments classified as either high- or 
significant hazard potential.\10\ A hazard potential classification 
provides an indication of the potential for danger to human life, 
economic loss, environmental damage, disruption of lifeline facilities, 
or other impacts in the event of a release of CCR from a surface 
impoundment due to failure or mis-operation. If subject to the 
requirement, owners and operators must conduct periodic (i.e., every 
five years) hazard potential re-assessments. The CCR regulations 
address situations where the hazard potential classification of a CCR 
unit changes over time (e.g., the circumstances presenting the 
potential for loss of life no longer exist). In the situation relevant 
to this example, if the CCR unit is determined to be no longer 
classified as either a high hazard potential unit or significant hazard 
potential unit, then the CCR unit is no longer subject to the EAP 
requirements. See Sec.  257.73(a)(3)(iii). Once this determination is 
made, it would be appropriate to modify the permit to remove the EAP 
requirements from the permit because the EAP provisions are no longer 
applicable to the CCR surface impoundment. EPA is proposing this would 
be a major modification to a CCR permit.
---------------------------------------------------------------------------

    \9\ The CCR regulations define an ``incised'' surface 
impoundment as a CCR surface impoundment which is constructed by 
excavating entirely below the natural ground surface, holds an 
accumulation of CCR entirely below the adjacent natural ground 
surface, and does not consist of any constructed diked portion.
    \10\ A ``high hazard potential'' impoundment is a diked surface 
impoundment where failure or mis-operation will probably cause loss 
of human life. A ``significant hazard potential'' impoundment is a 
diked surface impoundment where failure or mis-operation results in 
no probable loss of human life, but can cause economic loss, 
environmental damage, disruption of lifeline facilities, or impact 
other concerns.
---------------------------------------------------------------------------

    EPA is also proposing at Sec.  257.151(c)(3) that any reduction in 
the number, or substantial changes in location, depth, or design of 
groundwater monitoring wells required by the permit would be considered 
a major modification. This is considered a major modification because 
there is a possibility that the change would make the requested permit 
conditions less stringent than the existing permit, which warrants 
careful review and, because it could impact the public, an opportunity 
for public comment.
    EPA is also proposing at Sec.  257.151(c)(4) that the addition of a 
new CCR unit, including a lateral expansion, would be considered a 
major modification, provided the new unit did not qualify for and opt 
for coverage by either a general permit or the permit by rule (proposed 
at Sec.  257.128). Such an addition would be a significant change to 
the CCR facility; it may allow a higher volume of CCR to be managed at 
the facility, and the new CCR unit may be subject to different 
requirements than the other unit(s) at the facility, which may have 
predated the 2015 rule. This would mean that new permit terms would be 
required, and, because these changes could significantly impact the 
public, EPA would consider public notice and an opportunity for comment 
not only appropriate, but necessary.
    EPA is also proposing at Sec.  257.151(c)(5) that any modification 
of a CCR unit, including physical changes or changes in management 
practices which are not minor modifications under Sec.  257.151(a) will 
be considered a major modification. This would include any change to 
the CCR unit or CCR management operations that would require a material 
revision to the permit terms as written.
    EPA is also proposing at Sec.  257.151(c)(6) that initiation of a 
corrective action program, in accordance with Sec.  257.96, or any 
substantive revision to the corrective action requirements in the 
permit would be considered a major modification. A site-specific 
compliance approach to corrective action is required when there is a 
statistically significant increase (SSI) above a groundwater protection 
standard for any constituent listed on Appendix IV of part 257, which 
indicates that there is a reasonable probability of adverse effects on 
health and the environment. Since corrective action will require 
discretion and professional judgment to determine an appropriate 
compliance approach and could impact the public, this would be 
considered a major modification.
    EPA is proposing in Sec.  257.151(c)(7) that changes to an approved 
plan required by subpart D, such as a closure plan required by Sec.  
257.102(b) or post-closure care plan required by Sec.  257.104(d), and 
any reduction in the post-closure care period for any reason would also 
be examples of major modifications. The closure and post-closure 
requirements are found in Sec. Sec.  257.100 through 257.104. 
Development of a site-specific plan for a CCR unit involves many 
decision points. For example, when developing a closure plan, the 
permittee must decide whether to close by removal or close by leaving 
CCR in place and how to design a final cover system. Moreover, the 
performance standards in the regulations allow for a variety of 
engineering approaches and can involve complex technical issues. These 
decisions also involve a certain degree of long-term risk, all of which 
warrants the greater degree of oversight and public involvement that 
comes with a major modification. These same considerations would apply 
equally to any other plans, such as a groundwater monitoring plan, a 
run-on run-off control plan, or a post-closure care plan. These plans 
serve to establish maintenance and monitoring procedures to ensure the 
continued effectiveness of controls to prevent releases, monitoring to 
evaluate effectiveness of controls or corrective measures, or of 
closure requirements. Therefore, EPA is proposing that these also be 
considered major modifications.
    EPA is also proposing at Sec.  257.151(c)(8) that an extension of 
the final date in a schedule of compliance established in accordance 
with Sec.  257.142 would be an example of a major modification. A 
compliance schedule would be included in a CCR permit if the permittee 
is out of compliance with one or more provisions of subpart D. A 
modification to extend a compliance schedule would extend its period of 
noncompliance. Because this could increase the probability of adverse 
effects on health or the environment,

[[Page 9971]]

default approval of the proposed modification is inappropriate and 
public input is warranted.
    EPA is proposing at Sec.  257.151(c)(9) that if there is a change 
in underlying regulatory requirements, which requires substantial 
changes to the design, operation, or compliance strategies established 
in the permit, or that requires the application of significant 
technical judgement or discretion, this type of change would be 
considered a major modification. This would include, for example, the 
establishment or revision of a performance standard or applicability 
determination that is complex or relies on significant judgment or 
discretion to account for site-specific considerations. Public input on 
EPA's determinations regarding the requirements of that revised 
standard in the site-specific context at the particular CCR unit or 
facility would be warranted.
    EPA is proposing to rely on the existing decision-making procedures 
in part 124 when issuing RCRA CCR permits, consistent with procedures 
followed in other federal permitting programs. The procedures for 
approving a major modification are the same as those that must be 
followed to issue the initial permit. Specifically, EPA must issue a 
draft permit (or tentative denial) in accordance with Sec.  124.6 
accompanied by a statement of basis or fact sheet, as appropriate. See 
Sec. Sec.  124.7 and 124.8. The draft must be publicly noticed and made 
available for public comment. See Sec. Sec.  124.9 through 124.11. EPA 
would provide notice of an opportunity for a public hearing and would 
hold one if EPA determines there is significant public interest and a 
public hearing is warranted. See Sec.  124.12. EPA's final decision 
will include a response to comments and may be appealed under Sec.  
124.19. See also, Sec. Sec.  124.15, 124.17. Unlike minor 
modifications, for major modifications, EPA is not proposing to 
establish a default approval if EPA does not take action within a 
certain number of days after the application for the modification is 
received.
c. Application To Modify a Permit
    Whenever a permittee needs to make a change to a CCR permit, EPA is 
proposing that the permittee will update the permit application and 
submit it to the Administrator for review. EPA is anticipating that the 
permit application will be the same for initial permit issuance, as 
proposed at Sec. Sec.  257.130 and 257.131 and in Unit IV.C.2, as it 
would be for a modification, through an electronic permitting process 
(see Unit V of this preamble). When the permittees need to make a 
change to the permit application, they would be able to access the 
permit application from the electronic permitting system and make any 
necessary changes throughout the entire permit application. Then, the 
permittees will be required to certify the amended permit application 
for truth, completeness and accuracy. The timelines for applications 
that EPA is proposing would be no less than 180 days in advance of the 
proposed change for a major modification, and for minor modification no 
less than 45 days in advance of the proposed change. See proposed Sec.  
257.152(c) and (b)(2), respectively. EPA anticipates more time would be 
needed to process major modifications to CCR permits, because the 
operational or regulatory changes would be more complex, and to follow 
the required public participation procedures.
    EPA is proposing at Sec.  257.152(a) that for either type of 
modification, major or minor, a complete permit application must 
contain sufficient information about the specific change anticipated, 
the modification type that is requested, and the reason why the permit 
modification is necessary. EPA is proposing that the permittee must 
give a detailed description of the exact modification or modifications 
requested for the facility or operations as well as any supporting 
documentation referenced by the permit. Since some requirements in 
subpart D pertain to the entire facility, such as the Fugitive Dust 
Control Plan required in Sec.  257.80, any proposed changes to the 
facility-wide requirements must address any impacts that the 
modification could have around the facility. The permittee must also 
identify which permit condition(s) it is requesting to modify. The 
application must also identify whether the change meets the criteria 
for either a major or a minor permit modification, with sufficient 
information to support that classification. In addition, the permit 
modification application must contain an explanation of why the 
modification is necessary to ensure that the permit accurately reflects 
the current facility conditions and operations. In many cases, this 
explanation will include a written description of exactly why the 
change must be made, any technical justifications, along with 
supporting data, and any other applicable information required by 
Sec. Sec.  257.130, 257.131, or 257.152. EPA believes that all of this 
information is necessary to completely understand and evaluate the 
requested modification, as well as how to draft modified permit terms 
that will require compliance with subpart D.
    Consistent with the procedures for initial permit applications and 
Sec.  124.3(c) EPA would review the application for a permit 
modification for completeness. If it is found to be incomplete, EPA 
will notify the applicant(s) in writing and will list the information 
necessary to make the application complete. In practice, EPA has 
frequently informally requested additional information from the 
applicant or provided an opportunity to supplement their application 
prior to triggering a formal notification that an application for a 
permit modification is incomplete. EPA generally expects to adopt a 
similar practice for CCR permit modification applications.
    Prior to submitting the permit modification application, the owner 
and operator must review and update the previously submitted permit 
application in its entirety. The owner and operator would need to 
certify, as proposed at Sec.  257.130(e), that both the updated 
sections to support the requested modification, and all other sections 
of the previously submitted permit application, truthfully, accurately, 
and completely describe all CCR units and solid waste management 
operations regulated by this program. If, the applicant, during this 
review, determines that any information in the prior application is no 
longer accurate, complete, or true, then that information must be 
updated in the modification application. This requirement is proposed 
because a modified permit would be issued with a new effective date, 
which would begin anew the periodic application review period proposed 
in Sec.  257.132. In order to avoid a situation where a portion of a 
permit application could remain unreviewed for many years, this 
application review should occur each time an application for a 
modification is submitted.
    EPA requests comment on whether these application procedures are 
sufficient and if the time periods identified for minor and major 
modifications are feasible for making these changes to a permit.
d. Termination of an Individual Permit
    Establishing the circumstances under which a permit is no longer 
necessary or can be revoked is a key component of any permit program. 
The grounds for permit termination are specified in EPA regulations in 
several permit programs, including CWA, SDWA and RCRA hazardous waste 
permitting. See Sec. Sec.  122.64, 144.40, 233.36, 270.43. These 
regulations share several common elements; generally, permits can be 
terminated under these regulations to address a significant risk, or in 
response to a permittee's malfeasance. See, Id. Some of these programs 
include

[[Page 9972]]

additional grounds that would be relevant in this context; allowing for 
termination when the permitted activity ceases, or to transition to 
some other regulatory mechanism, See Sec. Sec.  122.64(b), 233.36(a)(3) 
and (4).
    Accordingly, EPA is proposing at Sec.  257.153(a) that an 
individual CCR permit could be terminated for limited, specified 
reasons. Consistent with the programs discussed above, a permit could 
be terminated by: Significant noncompliance; failure to fully disclose 
all relevant facts in an application or during the permit issuance 
process; misrepresentation of relevant facts at any time; or a 
determination that there is reasonable probability of adverse effects 
on human health or the environment from the permitted activity, which 
can only be addressed by permit termination. EPA is also proposing to 
adopt provisions that would authorize permit termination to allow 
transition to coverage by a general permit under Sec.  257.127; permit 
by rule at Sec.  257.128; to a permit issued under an approved State 
CCR Permit Program; or in response to cessation of the permitted 
activity with no remaining compliance obligations in subpart D.
    EPA does not anticipate that CCR permit termination to address 
permittee malfeasance or a significant risk will occur often. While 
there is a future date where a CCR unit may no longer be subject to 
requirements in subpart D, and may not need a permit, these units 
typically operate for decades. After a CCR unit is closed, post-closure 
care is conducted over 30 years, and corrective action measures can 
take decades to achieve all cleanup goals. Closure, post-closure care 
and any required corrective action would be conducted under the terms 
of a CCR permit. Even if serious noncompliance leads EPA to deny a CCR 
permit for disposal, a new or modified CCR permit would be issued to 
require other activities to be conducted in compliance with the 
requirements of subpart D. Thus, in the overall scheme of the CCR 
permit program, permit termination should happen infrequently as the 
result of a unit no longer having compliance obligations, or if 
transitioning to a different CCR permitting mechanism, such as a 
general CCR permit.
    EPA is proposing at Sec.  257.153(b) that any termination of a CCR 
permit would follow the procedures in part 124 or part 22. Part 22 
contains the Consolidated Rules of Practice Governing Administrative 
Assessment of Civil Penalties and the Revocation/Termination or 
Suspension of Permits and EPA proposes to amend it by adding Sec.  
257.153 to the list of provisions by which EPA may terminate a permit 
for cause in Sec.  124.5. This would make the requirements of Sec.  
22.44 applicable to termination of a CCR permit, including requirements 
for public notice and comment.

V. Electronic Permitting

    The Agency is proposing to use electronic permitting (e-permitting) 
for as much of the permitting process as possible. E-permitting would 
improve the effectiveness and efficiency by streamlining the permitting 
process for both the permitting authority and the permittee, reducing 
time between application and permit issuance as well as improving the 
permit modification process. For each applicable CCR unit or facility, 
e-permitting could include the:
     Submittal of the initial permit application,
     Public notice of draft permitting actions,
     Issuance of final permitting actions,
     Submittal of an application for a permit modification,
     Public notice on draft permits and draft major 
modifications,
     Permittee access to the permit application for the 
periodic application review,
     Correspondence between EPA and the permittee or interested 
parties, and
     Termination of a permit.
    To accomplish electronic permitting, EPA proposes to develop a CCR 
module in the RCRAInfo system using the Central Data Exchange (CDX) for 
owners and operators of CCR units to create a profile and submit 
information in this system. RCRAInfo allows for the creation of an EPA 
Identifier number if the facility does not already have one through the 
system. EPA envisions the system to include fillable forms with 
different options based on CCR unit type. For example, existing CCR 
surface impoundments would have different requirements to enter in the 
system than existing CCR landfills, and both would have different 
requirements in the permit application than new CCR units (i.e., 
landfills, lateral expansions, and surface impoundments). Since EPA is 
proposing to ideally issue one individual CCR permit per facility, the 
basic information about the facility, owner, operator, and operations 
would be entered once in the permit application; separate information 
about each CCR unit at the facility would be entered based on the 
number and type of CCR units. The electronic system would also include 
the ability for the permit applicant to submit plans, drawings, and 
other documents into the system for review as part of the permit 
application.
    Another option that EPA is considering for e-permitting is the use 
of a secure email box or another electronic method to reduce the use of 
paper but follow a streamlined permitting process. EPA requests comment 
on the use of electronic permitting. Are there other electronic 
information collection methods that should be considered, what would 
those entail and why should the Agency consider them? In addition, what 
type of information collection would be the most effective for this 
industry?
    Regardless of the permit submission method that is developed for 
the CCR permit program, all the information submitted by the permit 
applicant must be certified for truth and accuracy, and then must be 
reviewed by a permit writer for compliance with both the technical 
requirements in subpart D and the permitting requirements in this 
proposed rule.

VI. The Projected Economic Impacts of This Action

A. Costs of the Proposed Rule

    EPA estimated the costs associated with this action in an Economic 
Analysis (EA) which is available in the docket for this action. The EA 
considers two general categories of costs: Costs to regulated entities 
to prepare, submit, and revise initial permit applications, and to 
prepare, submit, and revise anticipated major and minor permit 
modifications; and costs to EPA to review and assess permit 
applications and permit modifications. The proposed permit application 
contents align with information already required by Subpart D to be 
developed and posted on publicly accessible CCR websites. Therefore, 
the EA estimates the incremental costs attributable to the provisions 
of this action against the baseline costs and practices in place as a 
result of the 2015 CCR final rule. The EA estimates that the net 
annualized impact of this proposed rule over a 20-year period of 
analysis will be annual costs of between $0.09 million and $0.85 
million. This action is not considered an economically significant 
action under Executive Order 12866.

B. Affected Universe

    This proposed rule affects facilities subject to EPA's 2015 CCR 
final rule, which generally includes electric utilities and independent 
power producers who fall within the North American Industry 
Classification System (NAICS) code 221112, and who generate CCR. The EA 
estimates that between 86 and 271 facilities will be affected by the 
proposed rule.

[[Page 9973]]

VII. Statutory and Executive Orders Reviews

    Additional information about these statutes and Executive Orders 
can be found at https://www2.epa.gov/laws-regulations/laws-and-executive-orders.

A. Executive Order 12866: Regulatory Planning and Review and Executive 
Order 13563: Improving Regulation and Regulatory Review

    This action is a significant regulatory action that was submitted 
to the Office of Management and Budget (OMB) for review. While this is 
not an economically significant action, it is expected to raise novel 
legal or policy issues. Any changes made in response to OMB 
recommendations have been documented in the docket. The EPA prepared an 
analysis of the potential costs and benefits associated with this 
action. This Economic Assessment (EA), entitled Economic Assessment; 
Hazardous and Solid Waste Management System: Disposal of Coal 
Combustion Residuals from Electric Utilities; Federal CCR Permit 
Program; Proposed Rule is summarized in Unit VI of this preamble and is 
available in the docket.

B. Executive Order 13771: Reducing Regulation and Controlling 
Regulatory Costs

    This action is expected to be an Executive Order 13771 regulatory 
action. Details on the estimated costs of this proposed rule can be 
found in EPA's analysis of the potential costs and benefits associated 
with this action.

C. Paperwork Reduction Act (PRA)

    The information collection activities in this proposed rule have 
been submitted for approval to the Office of Management and Budget 
(OMB) under the PRA. The Information Collection Request (ICR) document 
that the EPA prepared has been assigned EPA ICR number 2610.01, OMB 
control number 2050-NEW. The ICR for this proposed rule will serve is 
an amendment to the ICR approved by OMB for the Final Rule: Hazardous 
and Solid Waste Management System; Disposal of Coal Combustion 
Residuals from Electric Utilities published in the Federal Register at 
80 FR 21302, April 17, 2015. You can find a copy of the ICR in the 
docket for this action, and it is briefly summarized here.
    Respondents/affected entities: Coal-fired electric utility plants 
that will be affected by the rule.
    Respondent's obligation to respond: The recordkeeping, 
notification, and posting are mandatory as part of the minimum national 
criteria being promulgated under Sections 1008, 4004, and 4005(a) of 
RCRA.
    Estimated number of respondents: 62.
    Frequency of response: The frequency of response varies.
    Total estimated burden: EPA estimates the total annual burden to 
respondents to be an increase in burden of approximately 2,288 hours 
from the currently approved burden. Burden is defined at 5 CFR 
1320.3(b).
    Total estimated cost: The total estimated annual cost of this rule 
is a cost increase of approximately $136,312. This cost increase is 
composed of approximately $135,690 in annualized labor costs and $622 
in capital or operation and maintenance costs.
    An agency may not conduct or sponsor, and a person is not required 
to respond to, a collection of information unless it displays a 
currently valid OMB control number. The OMB control numbers for the 
EPA's regulations in 40 CFR are listed in 40 CFR part 9.
    Submit your comments on the Agency's need for this information, the 
accuracy of the provided burden estimates and any suggested methods for 
minimizing respondent burden to the EPA using the docket identified at 
the beginning of this rule. You may also send your ICR-related comments 
to OMB's Office of Information and Regulatory Affairs via email to 
[email protected], Attention: Desk Officer for the EPA. Since 
OMB is required to make a decision concerning the ICR between 30 and 60 
days after receipt, OMB must receive comments no later than March 23, 
2020. The EPA will respond to any ICR-related comments in the final 
rule.

D. Regulatory Flexibility Act (RFA)

    I certify that this action will not have a significant economic 
impact on a substantial number of small entities under the RFA. The 
small entities subject to the requirements of this action are generally 
electric utilities and independent power producers who fall within the 
NAICS code 221112, and who generate CCR. The Agency has determined that 
no small entities are affected at or above one percent of annual 
revenues, thus, determining that there is not a significant economic 
impact on any small entities. Estimated costs to regulated entities 
rely on information in prior Information Collection Requests (ICRs) 
prepared for similar permitting programs, including costs to prepare, 
submit, and revise initial permit applications, and to prepare, submit, 
and revise anticipated major and minor permit modifications. Estimates 
of annual revenues are calculated using reported generation figures and 
average annual power costs. Details of this analysis are presented in 
Unit VI of this preamble and in the Economic Assessment, which is 
available in the docket for this action. This action does not change 
the existing regulatory requirements associated with the 2015 CCR rule, 
which EPA previously determined would not have a SISNOSE.

E. Unfunded Mandates Reform Act (UMRA)

    This action does not contain an unfunded mandate of $100 million or 
more as described in UMRA, 2 U.S.C. 1531-1538, and does not 
significantly or uniquely affect small governments. This action imposes 
no enforceable duty on any state, local or tribal governments or the 
private sector. The costs involved in this action are imposed only by 
participation in a voluntary federal program. UMRA generally excludes 
from the definition of ``federal intergovernmental mandate'' duties 
that arise from participation in a voluntary federal program.

F. Executive Order 13132: Federalism

    This action does not have federalism implications. It 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.

G. Executive Order 13175: Consultation and Coordination With Indian 
Tribal Governments

    This action has tribal implications because it would impose 
requirements on facilities located in Indian country. However, it will 
neither impose substantial direct compliance costs on federally 
recognized tribal governments, nor preempt tribal law.
    The EPA will engage with tribal officials under the EPA Policy on 
Consultation and Coordination with Indian Tribes concurrent with the 
public comment process for this regulation to permit them to have 
meaningful and timely input into its development.
    For the ``Final Rule: Hazardous and Solid Waste Management System; 
Disposal of Coal Combustion Residuals from Electric Utilities'' 
published April 17, 2015, in the Federal Register at 80 FR 21302 (the 
2015 CCR Rule), EPA identified three of the 414 coal-fired electric 
utility plants (in operation as of 2012) which are located on tribal 
lands. That rulemaking and the CCR rules and proposed rules that 
followed all

[[Page 9974]]

concluded however, that these facilities are not owned by tribal 
governments. The Agency is correcting that analysis today for the 
following three facilities: (1) The Navajo Generating Station in 
Coconino County, Arizona, which is operated by the Arizona Salt River 
Project and owned by the Navajo Nation; (2) the Bonanza Power Plant in 
Uintah County, Utah, which is operated by the Deseret Generation and 
Transmission Cooperative and owned by the Ute Indian Tribe; and (3) the 
Four Corners Power Plant in San Juan County, New Mexico, which is 
operated by the Arizona Public Service Company and owned by the Navajo 
Nation. The Navajo Generating Station and the Four Corners Power Plant 
are on tribal trust lands belonging to the Navajo Nation, while the 
Bonanza Power Plant is located on tribal trust lands within the Uintah 
and Ouray Reservation of the Ute Indian Tribe. Because CCR units are 
land-based units, the fact that these CCR facilities are located on 
tribal trust land means that the facility owners within the meaning of 
the CCR Rule are the tribal trust beneficial landowner tribes. The 
Agency continues to believe that the facility operators will bear all 
direct compliance costs associated with the above-mentioned rules and 
this proposal. However, to the extent that an operator fails to comply 
with a federal CCR requirement, CCR facility owners may also be held 
liable.

H. Executive Order 13045: Protection of Children From Environmental 
Health Risks and Safety Risks

    This action is not subject to Executive Order 13045 because it is 
not economically significant as defined in Executive Order 12866, and 
because the EPA does not believe the environmental health or safety 
risks addressed by this action present a disproportionate risk to 
children. This action's health and risk assessments are contained in 
the document titled ``Human and Ecological Risk Assessment of Coal 
Combustion Residuals'' which is available in the docket for the final 
rule as docket item EPA-HQ-RCRA-2009-0640-11993.
    As ordered by E.O. 13045 Section 1-101(a), for the ``Final Rule: 
Hazardous and Solid Waste Management System; Disposal of Coal 
Combustion Residuals from Electric Utilities'' published April 17, 2015 
in the Federal Register at 80 FR 21302, EPA identified and assessed 
environmental health risks and safety risks that may disproportionately 
affect children in the revised risk assessment. The results of the 
screening assessment found that risks fell below the criteria when 
wetting and run-on/runoff controls required by the rule are considered. 
Under the full probabilistic analysis, composite liners required by the 
rule for new waste management units showed the ability to reduce the 
90th percentile child cancer and non-cancer risks for the groundwater 
to drinking water pathway to well below EPA's criteria. Thus, EPA 
believes that this rule will be protective of children's health.

I. Executive Order 13211: Actions Concerning Regulations That 
Significantly Affect Energy Supply, Distribution or Use

    This action is not a ``significant energy action'' because it is 
not likely to have a significant adverse effect on the supply, 
distribution or use of energy. This rule is not economically 
significant and is not expected to have a significant effect on the 
production, use or supply of energy commodities. Additionally, it is 
narrowly tailored such that no novel legal or policy issues adversely 
affecting the supply, distribution or use of energy arising out of 
legal mandates, the President's priorities or the principles set forth 
in Executive Orders 12866 and 13211 will occur.

J. National Technology Transfer and Advancement Act (NTTAA)

    This rulemaking does not involve technical standards.

K. Executive Order 12898: Federal Actions To Address Environmental 
Justice in Minority Populations and Low-Income Populations

    The EPA believes that this action does not have disproportionately 
high and adverse human health or environmental effects on minority 
populations, low-income populations and/or indigenous peoples, as 
specified in Executive Order 12898 (59 FR 7629, February 16, 1994). The 
documentation for this decision is contained in EPA's Regulatory Impact 
Analysis (RIA) for the CCR rule which is available in the docket for 
the 2015 CCR final rule as docket item EPA-HQ-RCRA-2009-0640-12034.
    EPA's risk assessment did not separately evaluate either minority 
or low-income populations. However, this rule creates a permitting 
framework that implements the CCR rule, which is risk-reducing with 
reductions in risk occurring largely within the surface water catchment 
zones around, and groundwater beneath, coal-fired electric utility 
plants. Since the CCR rule is risk-reducing and this action does not 
add to risks, this action will not result in new disproportionate risks 
to minority or low-income populations.
    Additionally, EPA evaluated the demographic characteristics of 
communities that may be affected by the CCR rule. In the analysis 
contained in the RIA the demographic characteristics of populations 
surrounding coal-fired electric utility plants are compared with 
broader population data for two geographic areas: (1) One-mile radius 
from CCR management units (i.e., landfills and impoundments) likely to 
be affected by groundwater releases from both landfills and 
impoundments; and (2) watershed catchment areas downstream of surface 
impoundments that receive surface water run-off and releases from CCR 
impoundments and are at risk of being contaminated from CCR impoundment 
discharges (e.g., unintentional overflows, structural failures, and 
intentional periodic discharges).
    For the population as a whole 24.8 percent belong to a minority 
group and 11.3 percent falls below the Federal Poverty Level. For the 
population living within one mile of plants with surface impoundments 
16.1 percent belong to a minority group and 13.2 percent live below the 
Federal Poverty Level. These minority and low-income populations are 
not disproportionately high compared to the general population. The 
percentage of minority residents of the entire population living within 
the catchment areas downstream of surface impoundments is 
disproportionately high relative to the general population, i.e., 28.7 
percent, versus 24.8 percent for the national population. Also, the 
percentage of the population within the catchment areas of surface 
impoundments that is below the Federal Poverty Level is 
disproportionately high compared with the general population, i.e., 
18.6 percent versus 11.3 percent nationally.
    Comparing the population percentages of minority and low-income 
residents within one mile of landfills to those percentages in the 
general population, EPA found that minority and low-income residents 
make up a smaller percentage of the populations near landfills than 
they do in the general population, i.e., minorities comprised 16.6 
percent of the population near landfills versus 24.8 percent nationwide 
and low-income residents comprised 8.6 percent of the population near 
landfills versus 11.3 percent nationwide. In summary, although 
populations within the catchment areas of plants with surface 
impoundments appear to have disproportionately high percentages of 
minority and low-income residents relative to the nationwide average, 
populations surrounding plants with landfills do not. Because landfills 
are less likely than impoundments to

[[Page 9975]]

experience surface water run-off and releases, catchment areas were not 
considered for landfills.

List of Subjects

40 CFR Part 22

    Environmental protection, Administrative practice and procedure, 
Air pollution control, Hazardous substances, Hazardous waste, 
Penalties, Pesticides and pests, Poison prevention, Water pollution 
control.

40 CFR Part 124

    Environmental protection, Administrative practice and procedure, 
Air pollution control, Hazardous waste, Indians--lands, Reporting and 
recordkeeping requirements, Water pollution control, Water supply.

40 CFR Part 257

    Environmental protection, Beneficial use, Coal combustion products, 
Coal combustion residuals, Coal combustion waste, Disposal, Hazardous 
waste, Landfill, Surface impoundment.

    Dated: December 19, 2019.
Andrew R. Wheeler,
Administrator.

    For the reasons set out in the preamble, title 40, chapter I, of 
the Code of Federal Regulations is proposed to be amended as follows:

PART 22--CONSOLIDATED RULES OF PRACTICE GOVERNING THE 
ADMINISTRATIVE ASSESSMENT OF CIVIL PENALTIES AND THE REVOCATION/
TERMINATION OR SUSPENSION OF PERMITS

0
1. The authority citation for part 22 continues to read as follows:

    Authority:  7 U.S.C. 1361; 15 U.S.C. 2615; 33 U.S.C. 1319, 1342, 
1361, 1415 and 1418; 42 U.S.C. 300g-3(g), 6912, 6925, 6928, 6991e 
and 6992d; 42 U.S.C. 7413(d), 7524(c), 7545(d), 7547, 7601 and 
7607(a), 9609, and 11045.

0
2. Amend Sec.  22.44 by revising paragraph (b) introductory text to 
read as follows:


Sec.  22.44  Supplemental rules of practice governing the termination 
of permits under section 402(a) of the Clean Water Act or under section 
3008(a)(3) of the Resource Conservation and Recovery Act.

* * * * *
    (b) In any proceeding to terminate a permit for cause under Sec.  
122.64, Sec.  257.153, or Sec.  270.43 of this chapter during the term 
of the permit:
* * * * *

PART 124--PROCEDURES FOR DECISIONMAKING

0
3. The authority citation for part 124 continues to read as follows:

    Authority:  Resource Conservation and Recovery Act, 42 U.S.C. 
6901 et seq.; Safe Drinking Water Act, 42 U.S.C. 300f et seq.; Clean 
Water Act, 33 U.S.C. 1251 et seq.; Clean Air Act, 42 U.S.C. 7401 et 
seq.

0
4. Amend Sec.  124.1 by revising paragraphs (a) and (d) to read as 
follows:


Sec.  124.1  Purpose and scope.

    (a) This part contains EPA procedures for issuing, modifying, 
revoking and reissuing, or terminating all RCRA, UIC, PSD and NPDES 
``permits'' (including ``sludge-only'' permits issued pursuant to Sec.  
122.1(b)(2) of this chapter). The latter kinds of permits are governed 
by part 270. RCRA interim status and UIC authorization by rule are not 
``permits'' and are covered by specific provisions in parts 144, 
subpart C, and 270. This part also does not apply to permits issued, 
modified, revoked and reissued or terminated by the Corps of Engineers. 
Those procedures are specified in 33 CFR parts 320-327. The procedures 
of this part also apply to denial of a permit for a RCRA CCR unit under 
Sec.  257.133 or for the active life of a RCRA hazardous waste 
management facility or unit under Sec.  270.29.
* * * * *
    (d) This part is designed to allow permits for a given facility 
under two or more of the listed programs to be processed separately or 
together at the choice of the Regional Administrator or the 
Administrator, in the case of RCRA CCR permits. This allows EPA to 
combine the processing of permits only when appropriate, and not 
necessarily in all cases. The Regional Administrator may consolidate 
permit processing when the permit applications are submitted, when 
draft permits are prepared, or when final permit decisions are issued. 
This part also allows consolidated permits to be subject to a single 
public hearing under Sec.  124.12. Permit applicants may recommend 
whether or not their applications should be consolidated in any given 
case.
* * * * *
0
5. Amend Sec.  124.2 by:
0
a. Revising paragraph (a) introductory text;
0
b. Adding in alphabetical order the definitions of ``RCRA CCR General 
Permit'', ``RCRA CCR Permit'', ``RCRA Permit''; and
0
c. Revising the definitions of ``Director'', ``Facility or activity'', 
``Permit'', ``Regional administrator'', and .
    The additions and revisions read as follows:


Sec.  124.2  Definitions.

    (a) In addition to the definitions given in Sec. Sec.  122.2 and 
123.2 (NPDES), 501.2 (sludge management), 144.3 and 145.2 (UIC), 233.3 
(404), and 257.121, 270.2 and 271.2 (RCRA), the definitions below apply 
to this part, except for PSD permits which are governed by the 
definitions in Sec.  124.41. Terms not defined in this section have the 
meaning given by the appropriate Act.
* * * * *
    Director means the Administrator, Regional Administrator, the State 
director or the Tribal director as the context requires, or an 
authorized representative. When there is no approved State or Tribal 
program, and there is an EPA administered program, Director means the 
Regional Administrator, except for RCRA CCR permits where Director 
means the Administrator. When there is an approved State or Tribal 
program, ``Director'' normally means the State or Tribal director. In 
some circumstances, however, EPA retains the authority to take certain 
actions even when there is an approved State or Tribal program. (For 
example, when EPA has issued an NPDES permit prior to the approval of a 
State program, EPA may retain jurisdiction over that permit after 
program approval; see Sec.  123.1) In such cases, the term ``Director'' 
means the Regional Administrator and not the State or Tribal director.
* * * * *
    Facility or activity means any ``HWM facility,'' UIC ``injection 
well,'' NPDES ``point source'' or ``treatment works treating domestic 
sewage'' or State 404 dredge or fill activity, or any other facility or 
activity (including land or appurtenances thereto) that is subject to 
regulation under the RCRA, UIC, NPDES, or 404 programs. For RCRA CCR 
permits, facility means facility as that term is defined in Sec.  
257.53 of this chapter.
* * * * *
    Permit means an authorization, license or equivalent control 
document issued by EPA or an ``approved State'' to implement the 
requirements of this part and parts 122, 123, 144, 145, 233, 257, 270, 
and 271 of this chapter. ``Permit'' includes RCRA ``permit by rule'' 
(Sec.  270.60), RCRA standardized permit (Sec.  270.67), UIC area 
permit (Sec.  144.33), NPDES or 404 ``general permit'' (Sec. Sec.  
270.61, 144.34, and 233.38), RCRA CCR general permit (Sec.  257.127), 
and RCRA CCR permit by rule (Sec.  257.128). Permit does not include

[[Page 9976]]

RCRA interim status (Sec.  270.70), UIC authorization by rule (Sec.  
144.21), or any permit which has not yet been the subject of final 
agency action, such as a ``draft permit'' or a ``proposed permit.''
* * * * *
    Regional Administrator means the Regional Administrator of the 
appropriate Regional Office of the Environmental Protection Agency or 
the authorized representative of the Regional Administrator. For RCRA 
CCR permits, this term shall mean Administrator if the Administrator 
has not issued a delegation of authority to the Regional Administrator.
* * * * *
    RCRA means the Solid Waste Disposal Act as amended by the Resource 
Conservation and Recovery Act of 1976 (Pub. L. 94-580, as amended by 
Pub. L. 95-609, and Pub. L. 114-322, 42 U.S.C. 6901 et seq).
    RCRA CCR general permit means a RCRA CCR permit containing terms 
and conditions to require compliance with requirements of part 257, 
subpart D of this chapter applicable to a specified category of CCR 
units, which are designated as eligible for coverage under the general 
permit. General permits in the CCR program are issued in accordance 
with Sec.  257.127 of this chapter.
    RCRA CCR permit means a federal permit issued pursuant section 
4005(d) of RCRA, 42 U.S.C. 6945(d).
    RCRA permit means a permit issued pursuant to any section of RCRA, 
42 U.S.C. 6901 et seq.
* * * * *
0
6. Amend Sec.  124.3 by revising paragraph (a) to read as follows:


Sec.  124.3  Application for a permit.

    (a) (Applicable to State programs, see Sec. Sec.  123.25 (NPDES), 
145.11 (UIC), 233.26 (404), and 271.14 (RCRA)). (1) Any person who 
requires a permit under the RCRA, UIC, NPDES, or PSD programs shall 
complete, sign, and submit to the Director an application for each 
permit required under Sec. Sec.  257.130 or 270.1 (RCRA), 144.1 (UIC), 
40 CFR 52.21 (PSD), and 122.1 (NPDES). Applications are not required 
for RCRA permits by rule (Sec.  257.128 or Sec.  270.60), RCRA CCR 
general permits (Sec.  257.127), underground injections authorized by 
rules (Sec. Sec.  144.21 through 144.26), NPDES general permits (Sec.  
122.28) and 404 general permits (Sec.  233.37).
    (2) The Director shall not begin the processing of a permit until 
the applicant has fully complied with the application requirements for 
that permit. See Sec. Sec.  257.130, 257.131, 270.10, 270.13 (RCRA), 
144.31 (UIC), 40 CFR 52.21 (PSD), and 122.21 (NPDES).
    (3) Permit applications (except for PSD permits) must comply with 
the signature and certification requirements of Sec. Sec.  122.22 
(NPDES), 144.32 (UIC), 233.6 (404), 257.130 and 270.11 (RCRA).
* * * * *
0
7. Amend Sec.  124.5 by revising paragraphs (a), (c)(1), (3), (d)(1), 
and (3) to read as follows:


Sec.  124.5  Modification, revocation and reissuance, or termination of 
permits.

    (a) (Applicable to State programs, see Sec. Sec.  123.25 (NPDES), 
145.11 (UIC), 233.26 (404), and 271.14 (RCRA).) Permits (other than PSD 
permits) may be modified, revoked and reissued, or terminated either at 
the request of any interested person (including the permittee) or upon 
the Director's initiative. However, permits may only be modified, 
revoked and reissued, or terminated for the reasons specified in Sec.  
122.62 or Sec.  122.64 (NPDES), 144.39 or 144.40 (UIC), 233.14 or 
233.15 (404), and 257.150, 257.151, 257.153, 270.41 or 270.43 (RCRA). 
All requests shall be in writing and shall contain facts or reasons 
supporting the request.
* * * * *
    (c) * * * (1) If the Director tentatively decides to modify or 
revoke and reissue a permit under 40 CFR 122.62 (NPDES), 144.39 (UIC), 
233.14 (404), or 257.150, 257.151, 257.152, 270.41 (other than Sec.  
270.41(b)(3)), or Sec.  270.42(c) (RCRA), he or she shall prepare a 
draft permit under Sec.  124.6 incorporating the proposed changes. The 
Director may request additional information and, in the case of a 
modified permit, may require the submission of an updated application. 
In the case of revoked and reissued permits, other than under 40 CFR 
270.41(b)(3), the Director shall require the submission of a new 
application. In the case of revoked and reissued permits under 40 CFR 
270.41(b)(3), the Director and the permittee shall comply with the 
appropriate requirements in 40 CFR part 124, subpart G for RCRA 
standardized permits.
* * * * *
    (3) ``Minor modifications'' as defined in Sec. Sec.  122.63 
(NPDES), 144.41 (UIC), 233.16 (404), 257.151 and ``Classes 1 and 2 
modifications'' as defined in Sec.  270.42 (a) and (b) (RCRA) are not 
subject to the requirements of this section.
    (d) * * * (1) If the Director tentatively decides to terminate: A 
permit under Sec.  144.40 (UIC) of this chapter, a permit under Sec.  
122.64(a) (NPDES) of this chapter, a permit under Sec.  257.153 or 
270.43 (RCRA) of this chapter (for EPA-issued NPDES permits, only at 
the request of the permittee), or a permit under Sec.  122.64(b) 
(NPDES) of this chapter where the permittee objects, he or she shall 
issue a notice of intent to terminate. A notice of intent to terminate 
is a type of draft permit which follows the same procedures as any 
draft permit prepared under Sec.  124.6 of this chapter.
* * * * *
    (3) In the case of EPA-issued permits, a notice of intent to 
terminate or a complaint shall not be issued if the Regional 
Administrator and the permittee agree to termination in the course of 
transferring permit responsibility to an approved State under Sec.  
123.24(b)(1) (NPDES) of this chapter, 145.25(b)(1) (UIC) of this 
chapter, 257.129 or 271.8(b)(6) (RCRA) of this chapter, or 501.14(b)(1) 
(sludge) of this chapter. In addition, termination of an NPDES permit 
for cause pursuant to Sec.  122.64 of this chapter may be accomplished 
by providing written notice to the permittee, unless the permittee 
objects.
* * * * *
0
8. Amend Sec.  124.6 by revising paragraphs (c), (d)(1), (2), (3), and 
(4)(i) to read as follows:


Sec.  124.6  Draft permits.

* * * * *
    (c) (Applicable to State programs, see Sec. Sec.  123.25 (NPDES) 
and 233.26 (404).) If the Director tentatively decides to issue an 
NPDES, 404, or RCRA CCR general permit, he or she shall prepare a draft 
general permit under paragraph (d) of this section.
    (d) * * *
    (1) All conditions under Sec. Sec.  122.41 and 122.43 (NPDES), 
144.51 and 144.42 (UIC), 233.7 and 233.8 (404), 257.140 and 257.141 
(RCRA CCR), or 270.30 and 270.32 (RCRA) (except for PSD permits);
    (2) All compliance schedules under Sec. Sec.  122.47 (NPDES), 
144.53 (UIC), 233.10 (404), 257.142 or 270.33 (RCRA) (except for PSD 
permits);
    (3) All monitoring requirements under Sec. Sec.  122.48 (NPDES), 
144.54 (UIC), 233.11 (404), 257.140(k) or 270.31 (RCRA) (except for PSD 
permits); and
    (4) * * *
    (i) RCRA permits, standards for treatment, storage, and/or disposal 
and other permit conditions under Sec.  257.140 or 270.30;
* * * * *
0
9. Amend Sec.  124.10 by revising paragraphs (c)(1)(i), (2)(i), 
(2)(ii), (d)(1)(ii), and (1)(iii) to read as follows:



Sec.  124.10  Public notice of permit actions and public comment 
period.

* * * * *
    (c) * * *

[[Page 9977]]

    (1) * * *
    (i) The applicant (except for NPDES, 404, and RCRA CCR general 
permits when there is no applicant);
* * * * *
    (2) * * *
    (i) For major permits, NPDES and 404 general permits, and permits 
that include sewage sludge land application plans under 40 CFR 
501.15(a)(2)(ix), publication of a notice in a daily or weekly 
newspaper within the area affected by the facility or activity; and for 
EPA-issued NPDES and RCRA CCR general permits, in the Federal Register;

    Note: The Director is encouraged to provide as much notice as 
possible of the NPDES, Section 404, or RCRA CCR draft general permit 
to the facilities or activities to be covered by the general permit.

    (ii) For all RCRA permits, other than RCRA CCR permits, publication 
of a notice in a daily or weekly major local newspaper of general 
circulation and broadcast over local radio stations. For RCRA CCR 
permits, publication of a notice on a publicly accessible internet 
website and by any other method the Director determines will 
effectively provide timely notice to interested persons.
* * * * *
    (d) * * *
    (1) * * *
    (ii) Name and address of the permittee or permit applicant and, if 
different, of the facility or activity regulated by the permit, except 
in the case of NPDES, 404, and RCRA CCR draft general permits under 
Sec. Sec.  122.28, 233.37, and 257.127;
    (iii) A brief description of the business conducted at the facility 
or activity described in the permit application or the draft permit, 
for NPDES, 404 or RCRA CCR general permits when there is no 
application.
* * * * *
0
10. Amend Sec.  124.12 by revising the introductory text of paragraph 
(a)(3) to read as follows:


Sec.  124.12  Public hearings.

    (a) * * *
    (3) For RCRA permits only, other than RCRA CCR permits:
* * * * *
0
11. Amend Sec.  124.15 by revising introductory text paragraph (a) and 
paragraph (b) to read as follows:


Sec.  124.15  Issuance and effective date of permit.

    (a) After the close of the public comment period under Sec.  124.10 
on a draft permit, the Regional Administrator shall issue a final 
permit decision (or a decision to deny a RCRA CCR permit under Sec.  
257.133 or a permit for the active life of a RCRA hazardous waste 
management facility or unit under Sec.  270.29). The Regional 
Administrator shall notify the applicant and each person who has 
submitted written comments or requested notice of the final permit 
decision. This notice shall include reference to the procedures for 
appealing a decision on a RCRA, UIC, PSD, or NPDES permit under Sec.  
124.19 of this part. For the purposes of this section, a final permit 
decision means a final decision to issue, deny, modify, revoke and 
reissue, or terminate a permit.
    (b) A final permit decision (or decision to deny a RCRA CCR permit 
under Sec.  257.133 or a permit for the active life of a RCRA hazardous 
waste management facility or unit under Sec.  270.29) shall become 
effective 30 days after the service of notice of the decision unless:
* * * * *
0
12. Amend Sec.  124.19 by revising paragraphs (a)(1) and (3) to read as 
follows:


Sec.  124.19  Appeal of RCRA, UIC, NPDES, and PSD Permits.

    (a) * * * (1) Initiating an appeal. Appeal from a RCRA, UIC, NPDES, 
or PSD final permit decision issued under Sec.  124.15 of this part, or 
a decision to deny a RCRA CCR permit under Sec.  257.133 or a permit 
for the active life of a RCRA hazardous waste management facility or 
unit under Sec.  270.29 of this chapter, is commenced by filing a 
petition for review with the Clerk of the Environmental Appeals Board 
within the time prescribed in paragraph (a)(3) of this section.
* * * * *
    (3) Filing deadline. A petition for review must be filed with the 
Clerk of the Environmental Appeals Board within 30 days after the 
Regional Administrator serves notice of the issuance of a RCRA, UIC, 
NPDES, or PSD final permit decision under Sec.  124.15 or a decision to 
deny a RCRA CCR permit under Sec.  257.133 or a permit for the active 
life of a RCRA hazardous waste management facility or unit under Sec.  
270.29 of this chapter. A petition is filed when it is received by the 
Clerk of the Environmental Appeals Board at the address specified for 
the appropriate method of delivery as provided in paragraph (i)(2) of 
this section.
* * * * *

PART 257--CRITERIA FOR CLASSIFICATION OF SOLID WASTE DISPOSAL 
FACILITIES AND PRACTICES

0
13. The authority citation for part 257 continues to read as follows:

    Authority: 42 U.S.C. 6907(a)(3), 6912(a)(1), 6944(a), 6945(d); 
33 U.S.C. 1345(d) and (e).
0
14. Part 257 is amended by adding subpart E to read as follows:
Subpart E--Federal Coal Combustion Residuals Permit Program

General Information

Sec
257.120 Program overview.
257.121 Definitions.
257.122 Considerations under Federal law.
257.123 Applicability.
257.124 Deadlines for application submission.
257.125 Effect of a permit.
257.126 Duration of a permit.
257.127 General permits.
257.128 Permit by rule.
257.129 Transfer of permit program administration.

Permit Application

257.130 Permit application requirements.
257.131 Application contents.
257.132 Periodic review of permit applications.
257.133 Permit application denial.

Permit Content

257.140 Standard permit conditions.
257.141 Establishment of permit conditions.
257.142 Schedules of compliance.

Changes to a Permit

257.150 Modification or revocation and reissuance of an individual 
permit at EPA's initiative.
257.151 Permit modifications at the request of the permittee.
257.152 Applications to modify an individual permit.
257.153 Termination of an individual CCR permit.

Subpart E--Federal Coal Combustion Residuals Permit Program

General Information


Sec.  257.120  Program overview.

    (a) Coverage. (1) These regulations establish provisions for the 
federal coal combustion residuals (CCR) permit program for the disposal 
and other solid waste management of CCR pursuant to section 4005(d) of 
the Solid Waste Disposal Act, as amended by the Resource Conservation 
and Recovery Act of 1976, as amended (RCRA), (Pub. L. 94-580, as 
amended by Pub. L. 95-609, Pub. L. 96-482, and Pub. L. 114-322; 42 
U.S.C. 6901 et seq.).
    (2) The regulations in this subpart contain federal CCR permit 
program requirements, such as applications,

[[Page 9978]]

content, modifications, revocation and reissuance, permit termination. 
Procedural requirements are found in part 124, subpart A of this 
chapter.
    (3) Technical regulations. There are separate regulations in 
subpart D of this part that contain technical and substantive 
requirements that will be the basis of the permit requirements.
    (b) Scope of the CCR permit requirement. (1) RCRA section 4005(d) 
requires the Administrator to implement a permit program to require 
each CCR unit, located in a nonparticipating state and in Indian 
country, to achieve compliance with the applicable criteria in subpart 
D of this part. This subpart applies to owners and operators of any CCR 
unit located in a nonparticipating state and in Indian country, 
including new and existing landfills and surface impoundments and 
lateral expansions of such units, that dispose or otherwise engage in 
solid waste management of CCR, regulated under subpart D of this part.
    (2) Owners and operators of CCR units must continue to comply with 
all applicable requirements of subpart D of this part until a RCRA CCR 
permit is in effect.
    (3) Prior to issuance of a RCRA CCR permit, submittal of a complete 
and timely permit application serves as compliance with the requirement 
to obtain a permit, until final disposition of the permit application. 
A timely permit application includes an individual permit application 
submitted in accordance with the requirements in Sec. Sec.  257.124, 
257.130, and 257.131, or an application submitted in accordance with 
procedures established in a general permit issued in accordance with 
Sec. Sec.  257.124 and 257.127, or submittal of a Notice of Intent to 
be covered by the Permit by Rule in accordance with Sec. Sec.  257.124 
and 257.128.
    (4) Once a permit has been issued, any CCR unit located in a 
nonparticipating state or in Indian country must continue to have a 
permit during any stage of operation covered by Sec.  257.123(a). Any 
such CCR unit without a permit will be considered an ``open dump,'' as 
defined in RCRA 4005(d) irrespective of the unit's compliance with the 
requirements of subpart D of this part and may no longer receive waste.
    (5) The owner and operator of a CCR unit must satisfy the 
requirement to have a RCRA CCR permit through one of three mechanisms: 
obtaining coverage under an individual permit, under a general permit 
issued in accordance with Sec.  257.127, or under the permit by rule in 
accordance with Sec.  257.128.
    (6) EPA may issue or deny a permit for one or more CCR units at a 
facility without simultaneously issuing or denying a permit for all the 
CCR units at the facility. The status of any CCR unit for which a 
permit has not been issued or denied is not affected by the issuance or 
denial of a permit to any other CCR unit at the facility.
    (7) CCR permits issued by EPA will not have an expiration date. 
Permit terms will remain in effect until modified, or until the permit 
is revoked and reissued or terminated.
    (8) A permit may be modified, revoked and reissued, or terminated 
for cause as set forth in Sec. Sec.  257.150 through 257.153.


Sec.  257.121  Definitions.

    The following definitions apply to this subpart. Terms not defined 
in this section have the meaning defined in part 124 of this chapter, 
subparts A and D of this part, or in RCRA.
    Applicable requirement means a requirement of subpart D of this 
part to which a permittee is subject based on applicability criteria in 
subpart D of this part.
    Completion of all corrective action means that all activities 
required by Sec.  257.95(g) through (i), Sec.  257.96, Sec.  257.97, 
and Sec.  257.98(a) and (b) have been completed in accordance with the 
requirements of Sec. Sec.  257.98(c) through (f).
    General permit means a permit containing terms and conditions to 
require compliance with requirements of subpart D of this part 
applicable to a specified category of CCR units, which are designated 
as eligible for coverage under the general permit. General permits are 
issued in accordance with Sec.  257.127.
    Individual permit means a permit containing terms and conditions to 
require compliance with requirements of subpart D of this part issued 
for one or more specifically identified CCR units owned and operated by 
the same entities and located at the same facility.
    Owner and operator means the owner and operator of any CCR unit or 
property used for solid waste management of CCR, which is subject to 
regulation under RCRA.
    Permit by rule means a provision of these regulations stating that 
a facility or activity is deemed to have a RCRA CCR permit if it meets 
the requirements of Sec.  257.128.
    Responsible official means one of the following:
    (1) For a corporation: (i) A president, secretary, treasurer, or 
vice-president of the corporation in charge of a principal business 
function, or any other person who performs similar policy- or decision-
making functions for the corporation; or
    (ii) The manager of one or more manufacturing, production or 
operating facilities employing more than 250 persons or having gross 
annual sales or expenditures exceeding $25 million (in second-quarter 
1980 dollars), if authority to sign documents has been assigned or 
delegated to the manager in accordance with corporate procedures.
    (2) For a partnership or sole proprietorship: A general partner or 
the proprietor, respectively; or
    (3) For a municipality, State, Federal, or other public agency: 
Either a principal executive officer or ranking elected official. For 
purposes of this section, a principal executive officer of a Federal 
agency includes:
    (i) The chief executive officer of the agency; or
    (ii) A senior executive officer having responsibility for the 
overall operations of a principal geographic unit of the agency (e.g., 
Regional Administrators of EPA).



Sec.  257.122  Considerations under Federal law.

    The following is a list of Federal laws that may apply to the 
issuance of RCRA CCR permits. When any of these laws is applicable, its 
procedures must be followed. When the applicable law requires 
consideration or adoption of particular permit conditions or requires 
the denial of a permit, those requirements must also be followed.
    (a) The Wild and Scenic Rivers Act. 16 U.S.C. 1273 et seq. Section 
7 of the Act prohibits EPA from assisting by license or otherwise the 
construction of any water resources project that would have a direct, 
adverse effect on the values for which a national wild and scenic river 
was established.
    (b) The National Historic Preservation Act of 1966. 54 U.S.C. 
300101 et seq. Section 106 of the Act and implementing regulations (36 
CFR part 800) require EPA, before issuing a license, to adopt measures 
when feasible to mitigate potential adverse effects of the licensed 
activity on properties listed or eligible for listing in the National 
Register of Historic Places. The Act's requirements are to be 
implemented in cooperation with State and Tribal Historic Preservation 
Officers and upon notice to, and when appropriate, in consultation with 
the Advisory Council on Historic Preservation.
    (c) The Endangered Species Act. 16 U.S.C. 1531 et seq. Section 7 of 
the Act and implementing regulations (50 CFR part 402) require EPA to 
ensure, in

[[Page 9979]]

consultation with the Secretary of the Interior or Commerce, that any 
action authorized by EPA is not likely to jeopardize the continued 
existence of any endangered or threatened species or adversely affect 
its critical habitat.
    (d) The Coastal Zone Management Act. 16 U.S.C. 1451 et seq. Section 
307(c) of the Act and implementing regulations (15 CFR part 930) 
prohibit EPA from issuing a permit for an activity affecting land or 
water use in the coastal zone until the applicant certifies that the 
proposed activity complies with the State Coastal Zone Management 
Program, and the State or its designated agency concurs with the 
certification (or the Secretary of Commerce overrides the State's 
nonconcurrence).
    (e) The Fish and Wildlife Coordination Act. 16 U.S.C. 661 et seq. 
requires that EPA, before issuing a permit proposing or authorizing the 
impoundment (with certain exemptions), diversion, or other control or 
modification of any body of water, consult with the appropriate State 
agency exercising jurisdiction over wildlife resources to conserve 
those resources.


Sec.  257.123  Applicability.

    (a) Requirement to obtain a permit. (1) Owners and operators of a 
CCR unit located in a nonparticipating state or in Indian country, and 
subject to requirements of subpart D of this part, must obtain and 
maintain a RCRA CCR permit under this subpart. An owner and operator 
must apply for a RCRA CCR permit for all CCR units and associated solid 
waste management operations subject to requirements in subpart D of 
this part. The requirement to obtain and maintain a RCRA CCR permit 
applies throughout the following stages of operation: Active life of 
the CCR unit, the post-closure care period, and until completion of all 
corrective action.
    (2) This requirement does not apply to CCR units and associated 
solid waste management operations, if any, that are subject to 
permitting under a state permit program approved by EPA pursuant to 
section 4005(d) of RCRA. In a state with partial approval, the 
requirement in Sec.  257.123(a)(1) applies only to those CCR units and 
associated solid waste management operations that are subject to 
requirements of subpart D of this part for which the state has not been 
approved (i.e., is a nonparticipating state).
    (3) The requirements to apply for and obtain a RCRA CCR permit may 
initially be satisfied by submitting one of the following:
    (i) A complete and timely permit application in accordance with the 
requirements in Sec. Sec.  257.124, 257.130 and 257.131 for an 
individual permit,
    (ii) If the CCR unit meets the criteria for a general permit, a 
complete and timely application in accordance with Sec.  257.127 and 
procedures established in the general permit, or
    (iii) A Notification of Intent of eligibility for coverage under a 
permit by rule in accordance with Sec.  257.128.
    (4) Submittal of any of these documents constitutes compliance with 
these obligations only until the final administrative disposition of 
the permit application.
    (b) Denial of a permit application. The denial of a permit 
application to dispose or otherwise manage waste in a CCR unit does not 
affect the requirement to obtain a federal CCR permit in paragraph (a) 
of this section to conduct other activities under subpart D of this 
part (e.g., monitoring, retrofit, closure, post-closure care or 
corrective action).
    (c) Exclusions and exemptions. (1) Entities exclusively engaged in 
the beneficial use of CCR that meets the requirements detailed in Sec.  
257.53 are not required to obtain a RCRA CCR permit for those 
activities.
    (2) (i) A permit or permit modification is not required for a 
person engaged in CCR disposal or solid waste management to conduct an 
immediate response to any of the following situations:
    (A) A sudden release of CCR; or
    (B) An imminent and substantial threat of a release of CCR.
    (ii) Any person who continues or initiates CCR disposal or solid 
waste management activities after the immediate response is over is 
subject to all applicable requirements of this part for those 
activities.



Sec.  257.124  Deadlines for application submission.

    Owners and operators of CCR units located in a nonparticipating 
state or in Indian country that meet the applicability requirements to 
obtain a RCRA CCR permit under Sec.  257.123(a) must submit a permit 
application as described in this section and Sec. Sec.  257.130 and 
257.131 to the Administrator by the following deadlines:
    (a) First tier deadline. For a facility with CCR units meeting the 
criteria in (1) or (2) where such unit was subject to the requirements 
under subpart D of this part prior to [DATE OF PUBLICATION OF FINAL 
RULE IN THE FEDERAL REGISTER], the permit application must be submitted 
for all CCR units at the facility subject to this subpart no later than 
[DATE 18 MONTHS AFTER EFFECTIVE DATE OF THE FINAL RULE].
    (1) Located in Indian country,
    (2) An existing CCR surface impoundment, new CCR surface 
impoundment or inactive CCR surface impoundment that is classified as a 
high hazard potential unit under the assessment procedures in Sec.  
257.73(a)(2) or Sec.  257.74(a)(2).
    (b) Future tier deadlines. For a CCR unit that is not required to 
submit a permit application under paragraph (a) of this section, and 
where such unit was subject to the requirements under subpart D of this 
part prior to [DATE OF PUBLICATION OF FINAL RULE IN THE FEDERAL 
REGISTER], the permit application must be submitted for such CCR unit 
no later than a date set by the Administrator, whereby such date 
provides notice of at least 180 days to the owner and operator.
    (c) Deadlines for newly subject CCR units. For any CCR unit that 
becomes subject to the requirements under subpart D of this part on or 
after [ DATE OF PUBLICATION OF FINAL RULE IN THE FEDERAL REGISTER], the 
permit application must be submitted for such CCR unit in accordance 
with the following deadlines:
    (1) For any CCR unit that becomes subject to the requirements under 
subpart D of this part on or after [DATE OF PUBLICATION OF FINAL RULE 
IN THE FEDERAL REGISTER], but before [DATE 24 MONTHS AFTER EFFECTIVE 
DATE OF THE FINAL RULE], the permit application must be submitted for 
such CCR unit prior to [DATE 24 MONTHS AFTER EFFECTIVE DATE OF THE 
FINAL RULE].
    (2) For any CCR unit that becomes subject to the requirements under 
subpart D of this part on or after [DATE 24 MONTHS AFTER EFFECTIVE DATE 
OF THE FINAL RULE], the permit application must be submitted for such 
CCR unit 180 days prior to placement of waste or other action that 
renders the unit subject to requirements of subpart D.
    (d) Deadlines for permit by rule or general permits. For a CCR unit 
that would otherwise be subject to an application deadline specified in 
paragraphs (a) through (c) of this section, the owner and operator of 
the CCR unit are not required to submit a permit application by the 
deadlines specified in paragraphs (a) through (c) of this section, 
provided the owner and operator submit a Notice of Intent required by 
Sec.  257.128(a)(11) or for a general permit issued in accordance with 
Sec.  257.127 by such deadline.

[[Page 9980]]

Sec.  257.125  Effect of a permit.

    (a) Permit shield. (1) Compliance with a CCR permit constitutes 
compliance, for purposes of enforcement, with the requirements of 
subpart D of this part.
    (2) A permit may be modified, revoked and reissued, or terminated 
during its term for cause as set forth in Sec. Sec.  257.150 and 
257.153, or the permit may be modified upon the request of the 
permittee as set forth in Sec.  257.151.
    (b) No property rights. The issuance of a CCR permit does not 
convey any property rights of any sort, or any exclusive privilege.
    (c) No additional authorization. The issuance of a CCR permit does 
not authorize any injury to persons or property or invasion of other 
private rights, or any infringement of state or local laws or 
regulations, or any infringement of federal laws or regulations not 
explicitly considered in this action.


Sec.  257.126  Duration of a permit.

    Any federal CCR permit issued pursuant to this subpart shall be 
issued without an expiration date and remain in effect until the permit 
is revoked and reissued or terminated.


Sec.  257.127  General permits.

    (a) General permits. The Administrator may issue general permits in 
accordance with all of the following:
    (1) A general permit shall be written to cover one or more clearly 
identified categories of CCR units or solid waste management practices 
that are subject to the same requirements of subpart D of this part.
    (2) Any general permit must clearly identify what types of CCR 
units are eligible for coverage under the general permit and clearly 
identify the applicable conditions for each category or subcategory of 
CCR units or solid waste management practices covered by the permit. A 
general permit may contain terms and conditions, such as limiting 
operations, which would ensure continued eligibility for coverage under 
the general permit, even if those terms and conditions are not 
requirements of subpart D of this part.
    (3) The general permit may exclude specified types or categories of 
CCR units or solid waste management practices from coverage.
    (b) Administration. (1) Any general permit will be issued, 
modified, or revoked in accordance with the requirements and procedures 
of this subpart and the following procedures in part 124 of this 
chapter: 40 CFR 124.6, 124.7, 124.8, 124.9, 124.10, 124.11, 124.12, 
124.13, and 124.14.
    (2) To obtain coverage under a general permit, an owner or operator 
of a CCR unit must submit request for coverage under the general permit 
to the Administrator. All such requests must include all information 
necessary to demonstrate qualification for coverage under the general 
permit and must be certified as required in Sec.  257.130(e).
    (3) If the Administrator makes no objection within 45 days of 
receiving a request for coverage under a general permit, the owner and 
operator shall be covered by the general permit, provided the unit 
remains eligible for coverage. Such an authorization will not be 
considered a final permit action for purposes of judicial review.
    (4) The Administrator may, in a general permit, provide further 
procedures by which an owner and operator of a CCR unit may obtain 
coverage by the general permit, as well as requirements for information 
that must be included in a request for such coverage. These procedures 
may deviate from the requirements of Sec. Sec.  257.130 and 257.131.
    (5) Requiring an individual permit.
    (i) EPA may require any owner or operator covered under a general 
permit to apply for and obtain an individual CCR permit. Any interested 
person may petition the Administrator to take action under this 
paragraph. Cases where an individual CCR permit may be required include 
the following:
    (A) The owner and operator are not in compliance with the 
conditions of the general permit;
    (B) Circumstances have changed since the time of the request for 
coverage so that the CCR unit is no longer appropriately controlled 
under the general permit; or
    (C) Revised standards for the solid waste management of CCR have 
been promulgated for the solid waste management or practice covered by 
the general permit;
    (D) The Administrator has received information after the general 
permit has been issued. The Administrator may require an application 
for an individual permit on this basis if:
    (1) The information was not available to EPA at the time of the 
request for coverage and would have justified requiring an individual 
permit to ensure compliance with subpart D of this part, or
    (2) The information otherwise shows that requiring an individual 
permit is necessary to ensure there is no reasonable probability of 
adverse effects on health or the environment from permitted operations:
    (ii) EPA may require any permittee(s) to apply for an individual 
permit by providing a written notification that a permit application is 
required. This notice shall include a brief statement of the reasons 
for this decision, a deadline for the owner and operator to submit the 
application, and a statement that on the effective date of the 
individual CCR permit any coverage under the general permit for which 
the permittee has been eligible shall automatically terminate.
    (iii) Such an action will not be considered a final permit action 
for purposes of judicial review.


Sec.  257.128  Permit by rule.

    (a) Requirements. Notwithstanding any other provision of this part 
or of part 124, subpart A of this chapter, a new CCR landfill or 
lateral expansion of a CCR landfill shall be deemed to have a CCR 
permit if the following criteria are met:
    (1) The owner and operator of the new CCR landfill or lateral 
expansion of a CCR landfill maintain compliance with the following 
provisions:
    (i) Section 257.60, Placement above the uppermost aquifer
    (ii) Section 257.61, Wetlands
    (iii) Section 257.62, Fault areas
    (iv) Section 257.63, Seismic impact zones
    (v) Section 257.64, Unstable areas
    (vi) Section 257.70(a), (b), and (d) through (g), Design criteria 
for new CCR landfills and any lateral expansion of a CCR landfill
    (vii) Section 257.80, Air criteria
    (viii) Section 257.81, Run-on and run-off controls for CCR 
landfills
    (ix) Section 257.84, Inspection requirements for CCR landfills
    (x) Section 257.90, Applicability
    (xi) Section 257.91, Groundwater monitoring systems
    (xii) Section 257.93, Groundwater sampling and analysis 
requirements
    (xiii) Section 257.94, Detection monitoring program
    (xiv) Section 257.95(a), (b), and (d) through (h), Assessment 
monitoring program
    (xv) Section 257.105, Recordkeeping requirements
    (xvi) Section 257.106, Notification requirements
    (xvii) Section 257.107, Publicly accessible internet site 
requirements
    (2) The owner and operator have not detected a statistically 
significant increase above a groundwater protection standard for any 
constituent in appendix IV to this part.
    (3) The owner and operator have not detected a release from the new 
CCR landfill or lateral expansion of a CCR landfill.
    (4) The owner had operator have not commenced closure of the new 
CCR

[[Page 9981]]

landfill or lateral expansion of a CCR landfill.
    (5) The new CCR landfill or lateral expansion of a CCR landfill 
does not have a direct, adverse effect on the values for which a 
national wild and scenic river was established.
    (6) The new CCR landfill or lateral expansion of a CCR landfill 
does not have potential adverse effects on properties listed or 
eligible for listing in the National Register of Historic Places.
    (7) The new CCR landfill or lateral expansion of a CCR landfill is 
not likely to jeopardize the continued existence of any endangered or 
threatened species or adversely affect its critical habitat.
    (8) The new CCR landfill or lateral expansion of a CCR landfill 
does not affect land or water use in the coastal zone. The owner and 
operator must certify that the new CCR landfill or lateral expansion of 
a CCR landfill complies with the State Coastal Zone Management program 
and that the State or its designated agency concurs with the 
certification (or the Secretary of Commerce overrides the State's 
nonconcurrence). The certification must be included in the Notice of 
Intent submitted in accordance with paragraph (a)(11) of this section.
    (9) If located in a floodplain, the new CCR landfill or lateral 
expansion of a CCR landfill does not restrict the flow of the base 
flood, reduce the temporary water storage capacity of the floodplain, 
or result in washout of CCR, so as to pose a hazard to human health, 
wildlife, or land or water resources.
    (10) The new CCR landfill or lateral expansion of a CCR landfill 
has not:
    (i) Caused a discharge of pollutants into waters of the United 
States in violation of the requirements of the National Pollutant 
Discharge Elimination System under section 402 of the Clean Water Act, 
as amended;
    (ii) Caused a discharge of dredged material or fill materials to 
waters of the United States in violation of the requirements of the 
requirements under section 404 of the Clean Water Act, as amended; or
    (iii) Cause non-point source pollution of waters of the United 
States in violation of applicable legal requirements implementing an 
areawide or Statewide water quality management plan that has been 
approved by the Administrator under section 208 of the Clean Water Act, 
as amended;
    (11) The owner and operator of the new CCR landfill, or lateral 
expansion of a CCR landfill, submit a timely and complete Notice of 
Intent to the Administrator in accordance with Sec. Sec.  257.124 and 
257.130 and posts the Notice of Intent to the facility's publicly 
accessible CCR website.
    (b) Transition to another permit approach. If a CCR unit operating 
under this permit by rule becomes ineligible for its coverage, or the 
owner and operator wish to obtain a general or individual federal CCR 
permit, an application must be submitted in accordance with Sec. Sec.  
257.130 and 257.131 or established in the general permit. The owner and 
operator will remain in compliance with the requirement to have a 
federal CCR permit if a complete application is submitted to the 
Administrator no later than 60 days after failing to meet one of the 
conditions listed in paragraphs (a)(1) through (a)(11) of this section, 
and no later than 180 days prior to initiating closure.


Sec.  257.129  Transfer of permit program administration.

    (a) Transfer from EPA to a state. If a state CCR Permit Program is 
approved to operate in lieu of the federal CCR program, in part or in 
whole, after any compliance deadline in Sec.  257.124, EPA will 
describe provisions for the prompt transfer to the state of pending 
permit applications and any other relevant information not already in 
the possession of the State Director (e.g., applications, supporting 
documentation for issued permits, etc.) in the notice of program 
approval. Where permits have been issued by EPA, the program approval 
should contain procedures for transferring the administration of these 
permits to the state, or for terminating the federal permits once 
equivalent state permits are issued.
    (b) Transfer from a state to EPA. If a state CCR permit program has 
operated in lieu of the federal CCR program after the compliance 
deadlines in Sec.  257.124, and approval of that state program is 
withdrawn, in whole or in part, or if the state relinquishes its 
program approval, EPA will issue a notice regarding transfer of permit 
program administration from the state to EPA. The notice will contain 
deadlines for units located in the state to comply with the federal CCR 
permitting requirements. The notice will also describe procedures for 
the state to transfer to EPA permit applications and any other 
information relevant to permit program administration not already in 
the possession of EPA (e.g., pending applications, supporting 
documentation for issued permits, etc.). Where CCR permits have been 
issued by the state, the notice of program withdrawal should contain 
procedures for transferring the administration of these permits to EPA, 
or for terminating them once RCRA CCR permits are issued.

Permit Application


Sec.  257.130  Permit application requirements.

    (a) Duty to apply. The owner and operator meeting the applicability 
criteria in Sec.  257.123(a) must submit to the Administrator a 
complete application for a CCR permit as described in this section and 
Sec.  257.131, in accordance with the applicable deadlines in Sec.  
257.124. When a facility or activity is owned by one person but is 
operated by another person, the owner may comply with this requirement 
through one of the following approaches:
    (1) A single application may be submitted, but both entities must 
certify the permit application as specified in subsection (e) (e.g., 
the operator may compile and submit the permit application, which the 
owner must also sign).
    (2) In an application submitted by both entities, the owner may 
provide the following statement:

    Through this submitted application and the signature on this 
application, I acknowledge that [name of company/corporation/owner] 
is the owner of the facility/units that will be included in the 
permit this application seeks and is responsible for compliance with 
the permit requirements, including the requirement to obtain and 
maintain a permit for this facility/unit(s). I hereby authorize the 
facility/unit operator, [enter name of facility operator here], to 
submit compliance or any other required reports and future permit 
applications for this facility, including applications for future 
permit modifications, on my behalf, without my signature. I 
understand that I am jointly and severally liable for any 
noncompliance with the terms of any permit issued in response to 
this application or as modified in the future, and any submitted 
documents required by the permit and I accept responsibility for any 
enforcement action resulting from the actions of the operator in 
submitting compliance or any other required reports or permit 
applications on my behalf in relation to this facility/unit.


Once an owner submits this statement in a permit application, all 
future permit applications, including modification applications, will 
not require signature by the owner and may be signed by the operator(s) 
of the unit(s) and operations to be included in the permit. This does 
not change the requirement in Sec.  257.123(a) for both the owner and 
operator to obtain a permit. All RCRA CCR permits will designate both 
owners and operators as permittees, even where the owner does not sign 
the application in accordance with this paragraph.

[[Page 9982]]

    (b) Completeness. An application for a permit is complete when the 
Administrator receives an application form containing the information 
required by this section and Sec.  257.131, about all CCR units and 
related solid waste management operations at the facility, which is 
completed to his or her satisfaction. The Administrator may deny a 
permit for disposal in a CCR unit without receiving a complete 
application for a permit. A complete permit application does not 
require the following information:
    (1) Information about a CCR unit eligible for the permit by rule in 
Sec.  257.128, for which a Notice of Intent has been submitted to EPA 
and posted on its publicly accessible CCR website in accordance with 
Sec.  257.107.
    (2) Information about a CCR unit eligible for a general permit 
issued in accordance with Sec.  257.127, for which the owner and 
operator have complied with the procedures for obtaining coverage 
contained in the general permit. If EPA subsequently determines 
coverage under the general permit is not appropriate, the owner and 
operator must submit a CCR permit application for that CCR unit or must 
amend an existing CCR permit application to include that CCR unit, no 
later than 60 days after EPA makes this determination.
    (3) Information about a CCR unit that is regulated in accordance 
with a state CCR permit program which has been submitted to the 
Administrator for partial approval to operate in lieu of the 
requirements of subpart D of this part. If the Administrator 
subsequently denies partial approval of the program, or the state 
withdraws its program, the owner and operator must submit a CCR permit 
application for that CCR unit or amend an existing permit application 
to include that CCR unit no later than 60 days after the denial or 
withdrawal becomes effective.
    (c) Duty to supplement or correct application. Any owner or 
operator who fails to submit any relevant facts or who has submitted 
incorrect information in a permit application must, upon becoming aware 
of such failure or incorrect submittal, submit to the Administrator 
such supplementary facts or corrected information along with any 
necessary updated certification.
    (d) Confidential business information. In accordance with 40 CFR 
part 2, subpart B of this chapter, any information submitted to EPA 
pursuant to this subpart that is not required to be made publicly 
available under part 257 may be claimed as confidential by the 
applicant. Any such claim must be asserted at the time of submittal. If 
no claim is made at the time of submission, EPA may make the 
information available to the public without further notice. If a claim 
is asserted, the information will be treated in accordance with the 
procedures in 40 CFR part 2, subpart B. Claims of confidentiality for 
the name and address of any permit applicant or permittee will be 
denied.
    (e) Certification of application. Applications for CCR permits, 
including applications for modifications to CCR permits, must contain 
the following certification by a responsible official:

    I certify under penalty of law that I have personally examined 
and am familiar with the information submitted in this application 
and all attached documents, and that, based on my inquiry of the 
person or persons directly responsible for gathering the 
information, I believe the submitted information is true, accurate, 
and complete. I am aware that there are significant penalties for 
submitting false information, including the possibility of fine and 
imprisonment.

    (1) Where the owner and operator are different entities, a 
responsible official from each entity must provide this certification, 
and the certification must include the following statement: ``I 
understand that I am jointly and severally liable for the accuracy and 
completeness of all information provided in this application.''
    (2) This certification must also be provided where a permittee 
submits a statement that no changes to a CCR permit application are 
required after a periodic application review is conducted in accordance 
with Sec.  257.132.
    (f) Application recordkeeping. The applicant must keep records of 
all data used to support the permit application and any supplemental 
information submitted to the Administrator during the application 
review and permit issuance process for the life of the permit. This 
information shall be available at the request of the Administrator.


Sec.  257.131  Application contents.

    The owner and operator must provide in the application all of the 
information necessary for the Administrator to determine the 
applicability of the technical criteria in subpart D of this part to 
each CCR unit at the facility, to establish the permit conditions 
necessary to achieve compliance with these technical criteria, and to 
ensure there is no reasonable probability of adverse effects on health 
or the environment from the solid waste management of CCR at such 
facility. Such information includes, at a minimum:
    (a) Information about the facility. The owner and operator must 
provide sufficient information about the facility for the Administrator 
to establish permit conditions to ensure compliance with, including to 
assess the applicability of, applicable provisions in subpart D of this 
part. Such information includes but is not limited to physical 
location; description; operations; operating history; products; an 
indication of whether the application is requesting an initial, 
revised, or modified permit; and publicly accessible CCR website 
address.
    (b) Information about the applicant. The owner and operator must 
provide sufficient information in the application for the Administrator 
to identify, contact, and communicate with them. Such information 
includes, but is not limited to contact information, other 
environmental permits held for the facility, and ownership status 
(e.g., private, governmental) of each CCR unit and related solid waste 
management operations at the facility.
    (c) Information about the CCR unit(s). The owner and operator must 
provide sufficient technical information about each CCR unit in the 
application necessary for the Administrator to establish permit 
conditions to require compliance with, including to assess the 
applicability of, applicable provisions in subpart D of this part. Such 
information includes, but is not limited to the location, design, 
construction, operation, maintenance, closure and retrofit of each CCR 
unit, as well as liners, controls, monitoring approaches, the 
groundwater monitoring system, corrective action or remedial measures, 
and other practices to comply with subpart D of this part and to 
prevent or clean up releases from the CCR unit.
    (d) Technical information about subsurface and surrounding 
features. (1) The owner and operator must provide technical and other 
information about the geologic and hydrogeologic characteristics and 
features of the area surrounding the CCR unit, including subsurface 
characteristics. The owner and operator must provide this information 
sufficiently to support decisions by the Administrator to establish 
permit conditions to require compliance with, including to assess the 
applicability of, applicable provisions in subpart D of this part, and 
to evaluate the compliance approaches proposed in the permit 
application. The owner and operator must provide, at a minimum, 
information about the following in proximity to the CCR unit(s): 
Floodplains and wetlands, fault lines or unstable areas, groundwater 
and surface water, soil and subsoil characteristics,

[[Page 9983]]

groundwater well locations and uses, adjacent land uses, and other 
similar information. The owner and operator must provide this 
information for past, present, and planned CCR units, and must provide 
all information in a manner that can be clearly understood, with 
appropriate labels.
    (e) Technical information gathered that characterizes conditions 
surrounding each CCR unit. The owner and operator must provide 
sufficient technical and other information about conditions at the CCR 
unit for the Administrator to establish permit conditions to require 
compliance with, including to assess the applicability of, applicable 
provisions in subpart D of this part. This includes but is not limited 
to groundwater, aquifers, soil, or other sampling data; date and 
procedures used to characterize background concentrations; well 
construction diagrams and drill logs; hydrogeologic cross-sections; 
information about the activities that yielded the sampling data, 
including quality assurance data; delineation of contaminant plumes; 
and other relevant information required to make technical assessments 
to characterize the presence or absence of leakage or releases from the 
CCR unit.
    (f) Plans, maps, drawings, diagrams and other documents. The 
technical information submitted in the CCR permit application must 
include plans, maps, drawings, diagrams, and other visual information, 
in addition to narrative information. The applicant must provide the 
following materials, at a minimum:
    (1) A site map, depicting the location of the CCR unit(s) and 
surrounding features representing site conditions, monitoring wells, 
and other pertinent information.
    (2) A topographic map, depicting each CCR unit, surrounding 
geologic and hydrogeologic features, surface water features, access and 
haul roads, and other pertinent information. Information in these maps 
must be provided to allow the permit writer to understand site 
conditions and evaluate compliance strategies proposed by the owner and 
operator, to draft terms and conditions that will achieve compliance 
with the requirements of subpart D of this part.
    (3) Potentiometric maps depicting groundwater flow direction, all 
CCR units at the facility, any delineated plumes of contamination from 
releases from CCR units, all groundwater monitoring wells or other 
monitoring points where water level data were gathered, potable wells 
on the facility property or nearby property, and other pertinent 
information. A sufficient number and quality of maps are required to 
represent seasonal or temporal changes in groundwater flow direction.
    (4) Other documents, including: Hydrogeologic cross-sections 
depicting subsurface conditions, drill logs, CCR unit construction 
diagram(s), and groundwater monitoring well construction diagrams.
    (5) All site-specific compliance plans and assessments required by 
subpart D of this part (e.g., fugitive emissions control plan required 
by Sec.  257.80, emergency action plan required by Sec.  257.73, run-on 
and run-off control system plan required by Sec.  257.81(c), inflow 
design flood control system plan required by Sec.  257.82(c), 
assessment of corrective measures required by Sec.  257.96, closure 
plan or retrofit plan required by Sec.  257.102, and post-closure care 
plan required by Sec.  257.104).


Sec.  257.132  Periodic review of permit applications.

    (a) Requirement for periodic review. Once a RCRA CCR permit is 
issued, the permittee must conduct periodic reviews to determine 
whether the permit application remains accurate and continues to meet 
the requirements under Sec.  257.131. The timeframes for conducting 
periodic permit application reviews are provided in paragraph (d) of 
this section.
    (b) Procedures if no changes are needed. If the permittee 
determines that the permit application remains accurate and meets the 
requirements under Sec.  257.131, the permittee must submit a certified 
statement that the application continues to be complete and accurate. 
The certified statement must be completed by a responsible official in 
accordance with Sec.  257.130(e).
    (c) Procedures if changes are needed. If the permittee determines 
that the permit application is no longer accurate or no longer meets 
the requirements under Sec.  257.131, the permittee must:
    (1) Prepare a revised permit application in accordance with the 
requirements of Sec. Sec.  257.130 and 257.131, which accurately 
reflects current operations and any changes since the previous 
application was submitted;
    (2) Determine whether the permit must be modified based on any 
changes to the permit application, and, if so, apply for a permit 
modification according to the procedures under Sec.  257.152.
    (d) Review frequency. (1) The permittee must complete the initial 
permit application review required by paragraphs (a) through (c) of 
this section no later than ten years after the date of initial permit 
issuance or after any reissuance or modification of such permit, 
whichever date is later.
    (2) The permittee must complete periodic permit application reviews 
required by paragraphs (a) through (c) of this section no later than 
ten years after the date of completing the previous permit application 
review or after any reissuance or modification of the permit, whichever 
date is later.


Sec.  257.133  Permit application denial.

    (a) Denial for Cause. The Administrator may, pursuant to the 
procedures in part 124 of this chapter, deny an individual CCR permit 
application in its entirety, or in part (e.g., for a specific activity 
or for an individual CCR unit), upon a determination that any of the 
following causes exist:
    (1) Any permittee has failed or refuses to correct deficiencies in 
the application identified in a notice of deficiency issued in 
accordance with Sec.  124.3(c);
    (2) Failure by any permittee in the application or during the 
permit issuance process to disclose fully all relevant facts;
    (3) Misrepresentation by any permittee of any relevant facts at any 
time;
    (4) A determination by the Administrator that the risks arising 
from disposal or other solid waste management of CCR can only be 
regulated to acceptable levels by permit denial.
    (5) The Administrator has received notification under Sec.  124.3 
of this chapter of an applicant's intent to be covered by a general 
permit issued in accordance with Sec.  257.127 or the permit by rule in 
Sec.  257.128.
    (6) EPA has transferred administration of the permit program to a 
state in accordance with Sec.  257.129, and the state permit is in 
effect for each CCR unit at the facility.
    (b) Denial process. The Administrator may deny a permit in 
accordance with paragraphs (a)(2) through (6) of this section even in 
the absence of a complete application.

Permit Content


Sec.  257.140  Standard permit conditions.

    The following conditions shall be incorporated into all CCR permits 
either expressly or by reference. If incorporated by reference, a 
specific citation to these regulations must be provided in the permit.
    (a) Duty to comply. The permittee must comply with all conditions 
of this CCR permit, except to the extent and for the duration any 
noncompliance is authorized by the Administrator. Any unauthorized 
permit noncompliance

[[Page 9984]]

constitutes a violation of RCRA and is subject to enforcement action, 
permit termination, revocation and reissuance, or denial of a permit 
application.
    (b) Duty to submit periodic review certification. The permittee 
must review the application materials submitted for this permit no less 
frequently than every ten years after the issuance date of this permit.
    (1) Any information in the original application that is no longer 
accurate at the time of review, as well as any recent or new 
information not include in the original application, must be submitted 
in a revised application in accordance with Sec. Sec.  257.130 and 
257.131. If the changes reflected in the revised application meet the 
criteria for a permit modification in Sec. Sec.  257.150 through 
257.151, the revised application must specify the type of modification 
requested and include information required for a modification in 
accordance with Sec.  257.152.
    (2) If all information in the original application is still 
accurate at the time of review and there is no new or additional 
information relevant to the application, the permittee shall submit a 
statement that no information in the application has changed, certified 
in accordance with the requirements in Sec.  257.130(e).
    (c) Need to halt or reduce activity not a defense. It shall not be 
a defense for a permittee in an enforcement action that it would have 
been necessary to halt or reduce the permitted activity in order to 
maintain compliance with the conditions of this permit.
    (d) Requirement to mitigate impacts of noncompliance. In the event 
of noncompliance with this permit, the permittee must take all 
reasonable steps to minimize releases to the environment and must carry 
out such measures as necessary to reduce reasonable probability of 
adverse impacts on health and the environment.
    (e) New statutory requirements or regulations. If the standards or 
regulations on which this permit is based change through changes to 
statute, promulgation of new or amended regulations, or by judicial 
decision, and this results in failure of the permit terms and 
conditions to ensure compliance with the revised standard or 
regulation, the permittee must apply for a permit modification. The 
permittee shall submit an application to modify this permit to include 
the revised requirements within 180 days after the change becomes 
effective.
    (f) Proper operation and maintenance. The permittee shall ensure 
the proper operation and maintenance of all units, ancillary equipment 
and systems of treatment and control, which are installed or used to 
achieve compliance with the conditions of this permit. Failure to 
properly operate and maintain such equipment does not excuse failure to 
comply with requirements in this permit. The term ``Proper operation 
and maintenance'' includes effective performance, adequate funding, 
adequate staffing and training, and adequate laboratory and process 
controls, including appropriate quality assurance procedures. Operation 
of back-up or auxiliary equipment or similar systems is required only 
when necessary to achieve compliance with the conditions of this 
permit.
    (g) Permit actions. This permit may be modified, revoked and 
reissued, or terminated for cause. The application by the permittee for 
a permit modification, or termination, or anticipated noncompliance, 
does not stay any permit condition.
    (h) Property rights. The permit does not convey any property rights 
of any sort, nor any exclusive privilege.
    (i) Duty to provide information. The permittee must furnish to the 
Administrator, within a reasonable time, any relevant information which 
the Administrator may request to determine whether cause exists for 
modifying, revoking and reissuing, or terminating this permit, or to 
determine compliance with this permit. The permittee must also furnish 
to the Administrator, upon request, copies of records required to be 
kept by this permit.
    (j) Inspection and entry. The permittee shall allow the 
Administrator or an authorized representative, upon the presentation of 
credentials and other documents as may be required by law, to:
    (1) Enter at reasonable times upon the permitted premises where a 
regulated unit or activity is located or conducted, or where records 
that must be kept under the conditions of this permit are located;
    (2) Have access to and copy, at reasonable times, any records that 
must be kept under the conditions of this permit;
    (3) Inspect at reasonable times any units, equipment (including 
monitoring and control equipment), practices, or operations regulated 
or required under this permit; and
    (4) Sample or monitor at reasonable times, for the purposes of 
assuring permit compliance or as otherwise authorized by RCRA, any 
substances or parameters at any location.
    (k) Monitoring and records. (1) Samples and measurements taken for 
the purpose of monitoring must be representative of the monitored 
activity.
    (2) The permittee must retain records of all monitoring 
information, including all calibration, maintenance, and quality 
assurance records; all original monitoring data; copies of all reports 
and certifications required by this permit; and records of all data for 
a period of at least ten years from the date of the sample, 
measurement, report, certification, or application. This period may be 
extended by request of the Administrator at any time. The permittee 
must maintain records and data used to support a permit application for 
the lifetime of the permit. The permittee shall maintain records of all 
groundwater monitoring, including records of groundwater well 
construction and groundwater elevation measurements, throughout the 
active life of the unit, the post-closure care period and until 
completion of all corrective action.
    (l) Signatory requirements. All applications, reports, or 
information required to be submitted to the Administrator by this 
permit must be signed and certified by the owner and operator of a CCR 
unit in accordance with the procedures of Sec.  257.130(e).
    (m) Reporting requirements. (1) Anticipated noncompliance. The 
permittee shall provide written or electronic notice to the 
Administrator as soon as possible, but no later than 60 days in advance 
of any planned changes in the permitted facility or activity which may 
result in noncompliance with permit requirements.
    (2) The permittee shall report by phone or electronically any 
noncompliance or release which has a reasonable probability of adverse 
effects on health or the environment as soon as possible, and no later 
than 24 hours after the time the permittee first becomes aware of the 
circumstances. The notification shall include the following:
    (i) Information concerning release of any CCR that may endanger 
public drinking water supplies.
    (ii) Any information about a release of CCR that could have a 
reasonable probability of adverse effects on health or the environment 
outside the facility.
    (iii) The description of the release and its cause shall include:
    (A) Name, business address, business email address, and business 
telephone number of the owner and operator;
    (B) Name, address, email address, and telephone number of the 
facility;
    (C) Date, time, and type of release;
    (D) Name and quantity of material(s) involved;
    (E) The extent of injuries, if any;

[[Page 9985]]

    (F) An assessment of actual or potential hazards to the environment 
and human health outside the facility, where applicable;
    (G) Estimated quantity and disposition of recovered material that 
resulted from the release; and
    (H) Action taken to mitigate the risk, including any preparation in 
advance of a severe weather event
    (iv) A narrative shall also be posted on the public CCR website no 
later than five days after the time the permittee becomes aware of the 
circumstances. The narrative shall contain a description of the 
noncompliance and its cause; the period of noncompliance including 
exact dates and times, and if the noncompliance has not been corrected, 
the anticipated time it is expected to continue; and steps taken or 
planned to reduce, eliminate, and prevent reoccurrence of the 
noncompliance. The Administrator may waive the five-day notice 
requirement in favor of posting a written report within fifteen days.
    (3) Where the permittee becomes aware that they failed to submit 
any relevant facts in a permit application or submitted incorrect 
information in a permit application or in any report to the 
Administrator, the permittee must promptly submit such facts or 
corrected information to the Administrator.
    (n) Severability. Invalidation of a portion of this permit does not 
necessarily render the whole permit invalid. EPA's intent is that this 
permit is to remain in effect to the extent possible. In the event that 
any part of this permit is invalidated, the Administrator will advise 
the permittee as to the effect of such invalidation.


Sec.  257.141  Establishment of permit conditions.

    (a) Case-by-case. In addition to the standard conditions in Sec.  
257.140, the Administrator shall establish permit terms and conditions 
in a CCR permit, on a case-by-case basis, in accordance with the 
requirements and procedures of this subpart. At a minimum, each CCR 
permit must include all permit terms and conditions necessary to ensure 
compliance with subpart D of this part.
    (b) Incorporation by reference. Each CCR permit must incorporate, 
either expressly or by reference, all requirements of subpart D of this 
part that are applicable to the permitted CCR units and associated 
solid waste management activities. In satisfying this provision, the 
Administrator may incorporate applicable requirements of subpart D of 
this part directly into terms and conditions in the permit or 
incorporate them by reference. If incorporated by reference, a specific 
citation to the applicable regulations or requirements shall be 
provided in the permit.
    (c) Protectiveness. Each CCR permit shall contain such terms and 
conditions as the Administrator determines are necessary to ensure 
there is no reasonable probability of adverse effects on health or the 
environment from the solid waste management of CCR at such facility.


Sec.  257.142  Schedules of compliance.

    When an applicant will not be in compliance with one or more 
applicable requirement in subpart D of this part at the time of permit 
issuance, the Administrator may include in the CCR permit a schedule of 
compliance. The schedule of compliance shall include an enforceable 
sequence of actions leading to compliance with subpart D of this part. 
This compliance schedule shall resemble and be at least as stringent as 
that contained in any judicial consent decree or administrative order 
to which the permittee is subject. Any such schedule of compliance 
shall be supplemental to, and shall not sanction noncompliance with, 
the requirements in subpart D of this part on which it is based.
    (a) Time for compliance. Any schedule of compliance established in 
a CCR permit must require compliance as soon as feasible.
    (b) Interim dates. If a permit establishes a schedule of compliance 
which exceeds one year from the date of permit issuance, the schedule 
shall set forth interim requirements and the dates for their 
achievement.
    (1) The time between interim dates shall not exceed one year.
    (2) The permit must require posting on the public CCR website of 
reports of progress toward completion of the interim requirements and 
indicate a projected completion date. The time between progress reports 
shall not exceed six months.
    (c) Reporting. The permit must require that, no later than 30 days 
following each interim milestone deadline and the final deadline of the 
compliance schedule, the permittee must post a notification on the 
facility's publicly accessible CCR website of its compliance or 
noncompliance with the interim or final requirements.

Changes to a Permit


Sec.  257.150  Modification or revocation and reissuance of an 
individual permit at EPA's initiative.

    When the Administrator receives any information (e.g., inspects the 
facility, receives information submitted or posted by the permittee, 
receives a request under Sec.  124.5 of this chapter, or conducts a 
review of the permit file) and determines one or more causes listed in 
paragraph (a) of this section exist, the Administrator may modify or 
may revoke and reissue the permit accordingly, subject to the 
limitations of paragraph (b) of this section, and may request an 
updated application, if necessary. When a permit is modified, only the 
conditions subject to modification are reopened. If a permit is revoked 
and reissued, the entire permit is reopened and subject to revision. 
Revocation and reissuance are generally appropriate when the changes 
are too extensive to be addressed through a permit modification.
    (a) Causes for modification or revocation and reissuance. The 
following are causes for modification or for revocation and reissuance 
of a permit by the Administrator:
    (1) There are material and substantial alterations, additions, or 
changes in operation of the permitted facility which occurred after 
permit issuance and require permit conditions that are different or 
absent from those in the existing permit or if the permit application 
becomes inaccurate for the CCR unit and/or associated operations.
    (2) The Administrator has received information after the permit has 
been issued. The Administrator may modify or revoke RCRA CCR permits on 
this basis if:
    (i) The information was not available to EPA at the time of permit 
issuance (other than revised regulations, guidance, or test methods) 
and would have justified the inclusion of different permit conditions 
at the time of issuance to ensure compliance with subpart D of this 
part, or
    (ii) the information otherwise shows that modification is necessary 
to ensure there is no reasonable probability of adverse effects on 
health or the environment from permitted operations.
    (3) Cause exists for termination under Sec.  257.153, but the 
Administrator determines that modification or revocation and reissuance 
is appropriate.
    (4) The Administrator has received notification (as required, see 
Sec.  257.151(a)(3)) of a transfer of ownership or control of the CCR 
unit or facility to a new owner or operator.
    (5) An error or omission is discovered, regardless of whether it 
was susceptible to correction prior to the permit's issuance, and the 
Administrator determines modification is appropriate to conform a 
permit's requirements to the applicable regulatory or statutory 
requirements.

[[Page 9986]]

    (b) Facility siting. Suitability of the existing facility location 
will not be considered at the time of permit modification or revocation 
and reissuance unless new information, standards, or regulations 
indicate that a there is a reasonable probability of adverse effects to 
health or the environment exists which was unknown to the Administrator 
at the time of permit issuance.
    (c) Permitting action list. The Administrator will post all 
permitting actions, including: Draft and final permits, modifications, 
revocations, terminations, and reissued permits, on a publicly 
available website.


Sec.  257.151  Permit modifications at the request of the permittee.

    This section lays out the procedures for a permittee to request a 
modification to an individual CCR permit. A permittee must apply for a 
modification to a permit at any time during the life of the permit when 
there is a change to either a CCR unit or related solid waste 
management operations, or to subpart D of this part, which would impact 
either the procedures used to comply with the permit conditions, or the 
applicability of requirements of subpart D of this part. There are two 
types of such modifications: minor and major. Minor modifications 
require prior notification to EPA but do not require public comment. 
Major modifications require prior EPA approval and an opportunity for 
public participation. When a permit is modified, only the conditions 
subject to modification are reopened.
    (a) Minor modifications. Minor modifications are those that involve 
only minor or administrative changes that keep the permit current with 
respect to common changes to the facility or its operations. Minor 
modifications are changes that do not substantially alter the permit 
conditions or reduce the capacity of the facility to protect human 
health or the environment. These include changes necessary to comply 
with new regulations, where these changes can be implemented without 
substantially changing design specifications or management practices in 
the permit or where the revised regulation does not require the 
application of significant technical judgement or discretion. The 
following are examples of minor modifications:
    (1) Administrative and informational changes, including changes to 
the name or contact information of permittees or other persons or 
agencies identified as points of contact in the permit or compliance 
plans.
    (2) Correction of typographical errors.
    (3) Transfer of ownership or operational control of a facility. The 
new owner and operator must submit a revised permit application 30 days 
prior to the transfer of ownership or operational control or as soon as 
practicable. If prior notice is impracticable, the revised permit 
application must be submitted no later than 30 days after the transfer 
of ownership or operational control.
    (4) Changes to a permit condition to incorporate a change to a 
maximum contaminant level (MCL) under Sec. Sec.  141.62 and 141.66, 
which serve as the underlying basis for the permit condition.
    (5) Changes that increase the frequency, duration, or stringency of 
the requirements or procedures for inspection, monitoring, 
recordkeeping, reporting, web posting, sampling, analytical methods, or 
maintenance activities by the permittee.
    (7) Changes to monitoring, sampling or analysis methods or 
procedures to conform with EPA guidance or regulations.
    (8) Replacement of an existing groundwater monitoring well that has 
been damaged or rendered inoperable, as close as possible to the 
original location, and of similar design and depth.
    (9) In the closure plan, increases to estimates of the maximum 
extent of operations or the maximum inventory of waste.
    (b) Procedures applicable to minor modifications. (1) Except as 
provided in Sec.  257.151(a)(3), the permittee must submit an 
application for a minor modification in accordance with Sec.  257.152 
no later than 45 days before making the proposed change, unless 
otherwise specified. If multiple modifications are requested, only 
those that meet the definition of a minor modification are eligible to 
use these procedures.
    (2) When revisions to subpart D of this part are promulgated that 
change requirements applicable to a permitted CCR unit to become less 
stringent than the existing permit conditions, the owner and operator 
may either continue to operate in accordance with the permit or may 
apply for a permit modification in accordance with Sec.  257.152.
    (3) The permittee may apply for either a major modification or a 
minor modification to the Administrator. Any application for a minor 
modification must provide the necessary information to support the 
requested classification for each modification requested in the 
application.
    (4) In determining the appropriate modification type, the 
Administrator shall consider the criteria in paragraph (a) of this 
section and in Sec.  257.151(c) and the similarity of the modification 
to examples of modifications listed in those paragraphs.
    (5) The Administrator may take the following actions in response to 
an application for a minor modification to a CCR permit:
    (i) Determine that a proposed minor modification is a major 
modification that must follow the procedures for approval in Sec.  
257.151(d);
    (ii) Deny for cause the proposed minor modification;
    (iii) Determine that additional information is needed to evaluate 
the modification; or
    (iv) Approve the minor modification.
    (6) The Administrator will inform the permittee of any of these 
determinations and provide the reasons for the decision. If a minor 
modification has been denied, the permittee must comply with the 
original permit conditions.
    (7) If the Administrator has not notified the permittee within the 
45-day period of any of the determinations listed in paragraph (5) of 
this section, the permittee may proceed with the minor modification in 
accordance with the application.
    (c) Major modifications. Major modifications are all changes to a 
permit that are not considered a minor modification listed at Sec.  
257.151(a). These include changes that materially alter the CCR unit or 
its operations, changes that impact the applicability of subpart D 
requirements, changes that could impact the protection of human health 
and the environment, and changes necessary to comply with new 
regulations, where these changes can only be implemented by 
substantially changing design, operational requirements, or compliance 
approaches in the permit, or where the revised regulation requires the 
application of significant technical judgement or discretion. The 
following are examples of major modifications:
    (1) Changes that reduce the frequency or stringency of requirements 
for inspection, groundwater monitoring, sampling, analysis, 
recordkeeping, reporting, web posting, or maintenance activities by the 
permittee.
    (2) Changes to remove or relax a permit condition that is based on 
an underlying requirement that is no longer applicable, but where this 
change in applicability is not due to a regulatory change that was 
subject to public notice and a public comment period, a statutory 
change, or an order from a court.
    (3) Reduction in the number, or substantial changes in location, 
depth,

[[Page 9987]]

or design of groundwater monitoring wells required by the permit.
    (4) Addition of a new CCR unit including a new landfill unit, a 
lateral expansion, or a new surface impoundment unit not already 
authorized by a RCRA CCR permit and not covered by a permit by rule in 
accordance with Sec.  257.128.
    (5) Modification of a CCR unit, including physical changes or 
changes in management practices which are not minor modifications under 
Sec.  257.151(a).
    (6) Addition of a corrective action program or changes to the 
corrective action requirements in the permit.
    (7) Changes to a plan approved in a permit, including reduction in 
the post-closure care period for any reason. This does not include 
administrative changes, a change that is a direct incorporation of a 
change to subpart D, or changes to a closure plan specified in Sec.  
257.151(a)(9),
    (8) Extension of the final compliance date in a schedule of 
compliance established in accordance with Sec.  257.142.
    (9) A change to a permit condition that is based on a change in an 
underlying regulatory or statutory requirement, which requires 
substantial changes to the design, operation, or compliance strategies 
established in the permit or which requires the application of 
significant technical judgement or discretion.
    (d) Procedures applicable to major modifications. (1) The permittee 
must submit a revised permit application for a major modification in 
accordance with Sec.  257.152. In addition to the information required 
by Sec.  257.152, the application must include the applicable 
information required by Sec. Sec.  257.130 and 257.131.
    (2) When revisions to subpart D of this part are promulgated and 
requirements applicable to a permitted CCR unit become more stringent 
than the permit conditions, the owner and operator must apply for a 
permit modification to incorporate the new requirements, in accordance 
with Sec. Sec.  257.151 and 257.152 and no later than 180 days after 
the effective date of the revisions to subpart D of this part.
    (3) The permittee must place a copy of the permit modification 
application and supporting documents on the permitted facility's 
publicly available CCR website or other publicly available electronic 
document storage medium.
    (4) The Administrator may take the following actions in response to 
an application for a major modification to a CCR permit:
    (i) Determine that additional information is needed to evaluate the 
application;
    (ii) Approve the proposed modification(s); or
    (iii) Partially approve or deny the requested modification for any 
of the following reasons:
    (A) The modification application is incomplete;
    (B) The requested modification would result in a permit that would 
not require compliance with the requirements of subpart D of this part 
or other applicable requirements; or
    (C) The requested modification would result in a permit that would 
fail to ensure there will be no reasonable probability of adverse 
effects on health or the environment.
    (5) The Administrator shall grant or deny the major modification 
request according to the permit modification procedures of Sec.  124.5 
of this chapter.


Sec.  257.152  Application to modify an individual permit

    (a) Application requirements for all modifications. The permittee 
must provide all information and supporting documents necessary for the 
Administrator to evaluate the proposed modification(s) to the permit. 
Any application for a modification to a CCR permit must include the 
following:
    (1) A description of the exact modification(s) requested to the 
facility or operations and/or supporting documents referenced by the 
permit application;
    (2) A description of the exact modification(s) requested to the 
permit conditions;
    (3) Identification of the requested modification(s) as minor, in 
accordance with Sec.  257.151(a), or major, in accordance with Sec.  
257.151(c), along with a justification for the classification; and
    (4) An explanation of why the modification is necessary to ensure 
that the permit accurately reflects facility conditions or operations.
    (5) A statement that the facility continues to comply with the 
currently applicable requirements in subpart D of this part.
    (6) Corrections or updates to any information in the application 
that has changed since the most recent submittal of the application.
    (b) Application for a minor modification. (1) If multiple 
modifications are requested, only those that meet the definition of a 
minor modification are eligible to use these procedures. Along with the 
application, the permittee must provide the applicable information 
required by Sec. Sec.  257.130, 257.131 and 257.151, as well as any 
corrections or updates to any information that has changed since the 
most recent submittal of the application.
    (2) The permittee must submit an application for a minor 
modification to the Administrator no later than 45 calendar days before 
the permittee wishes to implement the requested change(s). For transfer 
of ownership or operation, the permittee must submit an application for 
a minor modification as soon as practicable and no later than 30 days 
after the transfer occurs.
    (3) For a minor permit modification, the permittee may instead 
elect to follow the procedures in paragraph (c) of this section for 
major modifications.
    (c) Application for a major modification. The permittee must submit 
an application for a major modification to the Administrator no later 
than 180 calendar days before the permittee wishes to implement the 
requested modification(s). Along with the notice, the permittee must 
provide the applicable information required by Sec. Sec.  257.130, 
257.131 and 257.151.


Sec.  257.153  Termination of an individual CCR permit.

    (a) Causes. The Administrator may terminate an individual CCR 
permit for any of the following causes:
    (1) Significant noncompliance by any permittee with the permit;
    (2) Failure by any permittee in the application or during the 
permit issuance process to fully disclose all relevant facts,
    (3) Misrepresentation by any permittee of any relevant facts at any 
time;
    (4) A determination by the Administrator that the permit fails to 
ensure there is no reasonable probability of adverse effects to health 
or the environment and the permitted activity can only be regulated to 
acceptable levels by permit termination.
    (5) The Administrator has received notification of a permittee's 
intent to be covered by a general permit issued in accordance with 
Sec.  257.127 or the permit by rule in Sec.  257.128.
    (6) The Administrator has determined that all permitted activities 
have ceased and the permittee has completed closure, the required post-
closure care and any required corrective action.
    (b) Procedure. The procedures for RCRA CCR permit termination in 
Sec.  124.5 of this chapter and Sec.  22.44(b) of this chapter will be 
followed when terminating an individual CCR permit.

[FR Doc. 2019-28440 Filed 2-19-20; 8:45 am]
 BILLING CODE 6560-50-P

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