State of New Mexico Underground Injection Control Program; Primacy Revisions, 64437-64440 [2020-21487]
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Federal Register / Vol. 85, No. 198 / Tuesday, October 13, 2020 / Proposed Rules
ENVIRONMENTAL PROTECTION
AGENCY
40 CFR Part 147
[EPA–HQ–OW–2020–0154; FRL–10015–00–
OW]
State of New Mexico Underground
Injection Control Program; Primacy
Revisions
Environmental Protection
Agency (EPA).
ACTION: Proposed rule.
AGENCY:
The Environmental Protection
Agency (EPA) proposes to approve an
application from the State of New
Mexico under the Safe Drinking Water
Act (SDWA) to revise the state’s existing
Underground Injection Control (UIC)
program for Class I injection wells
located within the state, except those in
Indian country. New Mexico has revised
the state’s UIC Class I program
regulations to remove the current ban on
Class I injection wells and establish new
permit conditions, oversight, and
enforcement to safely manage Class I
hazardous waste disposal wells.
DATES: Comments must be received on
or before November 27, 2020.
ADDRESSES: You may send comments,
identified by Docket ID No. EPA–HQ–
OW–2020–0154, 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,
Water Docket, Mail Code 28221T, 1200
Pennsylvania Avenue NW, Washington,
DC 20460.
• Hand Delivery or Courier (by
scheduled appointment only): 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. EPA–
HQ–OW–2020–0154 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. Out of an abundance of
caution for members of the public and
our staff, the EPA Docket Center and
Reading Room are closed to the public,
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SUMMARY:
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with limited exceptions, to reduce the
risk of transmitting COVID–19. Our
Docket Center staff will continue to
provide remote customer service via
email, phone, and webform. We
encourage the public to submit
comments via https://
www.regulations.gov/ or email, as there
may be a delay in processing mail and
faxes. Hand deliveries and couriers may
be received by scheduled appointment
only. For further information on EPA
Docket Center services and the current
status, please visit us online at https://
www.epa.gov/dockets.
FOR FURTHER INFORMATION CONTACT: Kyle
Carey, Drinking Water Protection
Division, Office of Ground Water and
Drinking Water (4606M), U.S.
Environmental Protection Agency, 1200
Pennsylvania Ave. NW, Washington, DC
20460; telephone number: (202) 564–
2322; fax number: (202) 564–3754;
email address: carey.kyle@epa.gov, or
Evelyn Rosborough, Region VI Library
(6WD), U.S. Environmental Protection
Agency, 1201 Elm Street, Suite 500,
Dallas, Texas 75270; telephone number:
(214) 665–7515; fax: (214) 665–6490;
email address: rosborough.evelyn@
epa.gov.
SUPPLEMENTARY INFORMATION:
I. Public Participation
A. Written Comments
Submit your comments, identified by
Docket ID No. EPA–HQ–OW–2020–
0154, at https://www.regulations.gov or
other methods identified in the
ADDRESSES section of this document.
Once submitted, comments cannot be
edited or removed from the docket. 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.
Contact EPA if you want to submit CBI;
see FOR INFORMATION CONTACT section of
this document. Multimedia submissions
(audio, video, etc.) must be
accompanied by a written comment.
The written comment is considered the
official comment and should include
discussion of all points you wish to
make. EPA will generally not consider
comments or comment contents located
outside of the primary submission (i.e.,
on the web, cloud, or other file sharing
system). For additional submission
methods, the full EPA public comment
policy, information about CBI or
multimedia submissions, and general
guidance on making effective
comments, please visit https://
www.epa.gov/dockets/commenting-epadockets.
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The EPA is temporarily suspending
its Docket Center and Reading Room for
public visitors, with limited exceptions,
to reduce the risk of transmitting
COVID–19. Our Docket Center staff will
continue to provide remote customer
service via email, phone, and webform.
We encourage the public to submit
comments via https://
www.regulations.gov/ as there may be a
delay in processing mail and faxes.
Hand deliveries or couriers will be
received by scheduled appointment
only. For further information and
updates on EPA Docket Center services,
please visit us online at https://
www.epa.gov/dockets.
The EPA continues to carefully and
continuously monitor information from
the Centers for Disease Control and
Prevention (CDC), local area health
departments, and our Federal partners
so that we can respond rapidly as
conditions change regarding COVID–19.
B. Participation in the Public Hearing
Please note that EPA may deviate
from its typical approach because the
President has declared a national
emergency. Because of current CDC
recommendations, as well as state and
local orders for social distancing to limit
the spread of COVID–19, EPA may not
be able to hold in-person public
meetings at this time.
Confirmation or cancellation of the
public hearing will be announced on
November 27, 2020 and on EPA Region
VI’s website at: https://www.epa.gov/
uic/new-mexico-proposed-uic-programrevision-class-i-injection-wells. For
information regarding the public
hearing, including a request to hold a
hearing, or to speak at the hearing,
please contact Evelyn Rosborough,
Region VI Library (6WD), U.S.
Environmental Protection Agency, 1201
Elm Street, Suite 500, Dallas, Texas
75270; or telephone: (214) 665–7515;
fax: (214) 665–6490; email:
rosborough.evelyn@epa.gov.
If requested, the public hearing may
be held at the Wendell Chino Building
(Porter Hall, 1st floor), 1220 South St.
Francis Drive, Santa Fe, New Mexico
87505 or at the New Mexico State
Capitol, 490 Old Santa Fe Trail, Santa
Fe, NM 87501. EPA may change the
format and the timing of the public
hearing (i.e., a virtual hearing held
during regular business hours) if
appropriate to protect public health in
the face of COVID–19–risks. EPA will
publish notice of any such change at
least seven days prior to the hearing
date exclusively at: https://
www.epa.gov/uic/new-mexicoproposed-uic-program-revision-class-iinjection-wells.
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Federal Register / Vol. 85, No. 198 / Tuesday, October 13, 2020 / Proposed Rules
C. Public Outreach
On October 13, 2020, a public notice
announcing this proposed approval,
request for public comment, and notice
of a public hearing to be held on
November 27, 2020, will be published
in the Albuquerque Journal, the Roswell
Daily Record, the Gallup Independent,
and posted to EPA Region VI’s website
at: https://www.epa.gov/uic/newmexico-proposed-uic-program-revisionclass-i-injection-wells. In addition, EPA
will email a link to the document
published in the Federal Register to a
statewide list of interested stakeholders.
II. Introduction
EPA approved the State of New
Mexico’s UIC program as meeting the
requirements for primary enforcement
responsibility (primacy) for Class I, III,
IV, and V injection wells, under Section
1422 of the SDWA, on July 11, 1983.
The State of New Mexico has revised
their UIC Class I program regulations to
remove the current ban on Class I
hazardous waste wells and establish
new permit conditions, oversight, and
enforcement to safely manage Class I
wells, except those in Indian country.
EPA considers this to be a substantial
program revision and therefore subject
to the procedures specified in the Code
of Federal Regulations (CFR) at 40 CFR
145.32(b)(2). EPA is proposing to
approve New Mexico’s revision to its
Class I program. If approved, EPA
would make conforming changes to 40
CFR 147.1601 to reflect New Mexico’s
revised Class I program.
EPA will continue to oversee the State
of New Mexico’s administration of UIC
Class I, III, IV, and V programs as
authorized under the SDWA. Part of
EPA’s oversight responsibility includes
the review of required state quarterly
reports of non-compliance and annual
UIC performance reports pursuant to 40
CFR 144.8.
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III. Legal Authorities
These proposed regulations are being
promulgated under the authority of
Sections 1422 and 1450 of the SDWA,
42 U.S.C. 300h–1 and 300j–9.
A. Revision of State UIC Programs
As required by Section 1421 of the
SDWA, EPA promulgated minimum
requirements at 40 CFR part 145 for
effective state UIC programs to prevent
underground injection activities that
endanger underground sources of
drinking water (USDWs). Under Section
1422 of the SDWA, once EPA approves
a state UIC program, the state has
primary enforcement responsibility for
underground water sources. A state may
revise its UIC program as provided
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under 40 CFR 145.32(a) and by
following the procedures described
under 40 CFR 145.32(b), which require
the state to submit a modified program
description, an Attorney General’s
statement, a Memorandum of
Agreement, or other such
documentation as EPA determines to be
necessary under the circumstances (40
CFR 145.32(b)(1)).
B. Program Revision Effective Date
A program revision becomes effective
upon approval of the Administrator (40
CFR 145.32(b)(4)). All revisions to the
state UIC program would be federally
enforceable as of the effective date of
EPA’s approval of the respective
revision and 40 CFR part 147
codification. Consistent with EPA
Guidance 16,1 EPA considers stateinitiated program revisions to permit a
formerly banned activity under the State
of New Mexico Class I UIC program to
be a substantial program revision. Under
EPA regulations, this means there is an
opportunity for public comment and to
request a public hearing (40 CFR
145.32(b)(2)).
C. Indian Country
EPA’s approval of the State of New
Mexico’s program revision to remove
the prohibition on hazardous waste
injection disposal under the SDWA UIC
Class I program does not extend to
Indian lands. Pursuant to EPA’s UIC
regulations at 40 CFR 144.3, Indian
lands ‘‘means ‘Indian country’ as
defined in 18 U.S.C. 1151.’’ EPA, or
eligible Indian tribes, as appropriate,
will retain responsibilities under the
SDWA UIC program for Class I, III, IV,
and V injection wells in Indian country
in the State of New Mexico.
IV. State of New Mexico’s Application
A. Notice of Completion
On May 2, 2019, EPA determined that
the Agency had received a complete UIC
program revision application from the
State of New Mexico, in which the state
requested approval of its revised UIC
regulations for Class I injection wells.
The full application and supplemental
materials are available electronically at
https://www.regulations.gov in EPA’s
Docket No. EPA–HQ–OW–2020–0154;
and a copy of the application can be
accessed for inspection and copying at:
The U.S. Environmental Protection
Agency Region VI Office, 1201 Elm
Street, Suite 500, Dallas, Texas 75270,
by contacting Evelyn Rosborough,
telephone number: (214) 665–7515; fax:
1 https://www.epa.gov/sites/production/files/
2020-02/documents/attorneygeneralsstatement31july1981.pdf.
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(214) 665–6490; email address:
rosborough.evelyn@epa.gov. Public
comments are requested, and a public
hearing will be held if requests are
received within 45 days of publication
of this document (see the ‘‘Public
Participation’’ heading in the
SUPPLEMENTARY INFORMATION section of
this document for further information
on how to request a public hearing).
The UIC program revision application
package from the State of New Mexico
includes revisions of: (1) The
description of the state’s UIC program
(40 CFR 145.23); (2) all applicable state
statutes, regulations, and forms (40 CFR
145.22(a)(5)); (3) the Attorney General’s
statement that the state has adequate
legal authority to carry out the program
described and to meet the requirements
of 40 CFR part 145; and (4) the
Memorandum of Agreement between
the State of New Mexico and EPA’s
Region VI Administrator (40 CFR
145.25).
B. Public Participation Activities
Conducted by the State of New Mexico
On May 15, 2015, the New Mexico
Water Quality Control Commission
(WQCC or Commission) published a
public notice of the Commission’s intent
to adopt amendments to the WQCC
rules governing underground injection
control to authorize the State of New
Mexico to allow the approval of Class I
hazardous waste injection wells, but
only for petroleum refineries disposing
the waste generated at the refinery. The
public notice was published in 15
newspapers across the State of New
Mexico. Written comments on the
proposed rulemaking changes were
accepted between May 15, 2015, and
July 14, 2015. The public hearing was
held on July 14, 2015, before both a
WQCC hearing officer and the full
Commission. Prior to the hearing, five
technical witnesses from the Navajo
Nation and one from New Mexico Oil
Conservation Division pre-filed written
testimony. At the hearing, in addition to
the technical witnesses, several
members of the public, including local
elected officials, provided written or
oral testimony in favor of the proposed
rule changes. There was no testimony,
written or oral, in opposition to the
proposal.
V. Incorporation by Reference
In this action, EPA is proposing to
approve the revisions to the State of
New Mexico’s UIC program to permit
Class I hazardous waste injection wells
in the state, except those in Indian
lands. New Mexico’s statutes and
supporting documentation are publicly
available in EPA’s Docket at EPA–HQ–
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Federal Register / Vol. 85, No. 198 / Tuesday, October 13, 2020 / Proposed Rules
OW–2020–0154. This action proposes to
amend 40 CFR part 147 and incorporate
by reference EPA-approved state
statutes and regulations. EPA will
continue to administer the UIC program
for all well classes within Indian lands.
If EPA approves and finalizes this
action by rule, the provisions of New
Mexico’s statutes and regulations that
contain standards, requirements, and
procedures applicable to owners or
operators of UIC Class I hazardous waste
wells will be incorporated by reference
into 40 CFR 147.1601 as described in
the regulatory text. Provisions of the
New Mexico’s statutes and regulations
that contain standards, requirements,
and procedures applicable to owners or
operators of Class I, III, IV, and V
injection were incorporated by reference
into 40 CFR 147.1601 through prior EPA
rules but are being reapproved for this
new format. Any provisions
incorporated by reference, as well as all
permit conditions or permit denials
issued pursuant to such provisions, will
be enforceable by EPA pursuant to the
SDWA section 1423 and 40 CFR
147.1(e).
In order to better serve the public,
EPA is reformatting the codification of
EPA-approved New Mexico SDWA
section 1422 UIC program statutes and
regulations for well Classes I, III, IV, and
V. Instead of codifying the New Mexico
statutes and regulations as separate
paragraphs, EPA will be incorporating
by reference a compilation that contains
‘‘EPA Approved New Mexico SDWA
§ 1422 Underground Injection Control
Program Statutes and Regulations for
Well Classes I, III, IV, and V,’’ dated July
8, 2020. This compilation is
incorporated by reference into 40
CFR 147.1601 and is available at https://
www.regulations.gov in the docket for
this rule. For information about the
availability of this material at the EPA,
see the FOR FURTHER INFORMATION
CONTACT section of this document.
A complete list of the New Mexico
statutes and regulations contained in the
compilation, titled ‘‘EPA Approved New
Mexico SDWA § 1422 Underground
Injection Control Program Statutes and
Regulations for Well Classes I, III, IV,
and V,’’ dated July 8, 2020, will also be
codified in Table 1 to paragraph (a) at
40 CFR 147.1601.
VI. Statutory and Executive Order
Reviews
Additional information about these
statutes and Executive Orders can be
found at https://www2.epa.gov/lawsregulations/laws-and-executive-orders.
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A. Executive Order 12866: Regulatory
Planning and Review and Executive
Order 13563: Improving Regulation and
Regulatory Review
This action is exempt from review by
the Office of Management and Budget
(OMB) because it proposes to approve
the State of New Mexico’s UIC Program
and state UIC programs are exempt from
review.
B. Executive Order 13771: Reducing
Regulations and Controlling Regulatory
Costs
This action is not an Executive Order
13771 regulatory action because actions
such as state UIC Program revisions are
exempted under Executive Order 12866.
C. Paperwork Reduction Act (PRA)
This action does not impose any new
information collection burden under the
PRA. OMB has previously approved the
information collection activities
contained in the existing regulations
and has assigned OMB control number
2040–0042. Reporting or record-keeping
requirements will be based on the State
of New Mexico UIC Regulations, and the
State of New Mexico is not subject to
the PRA.
D. Regulatory Flexibility Act (RFA)
The agency certifies that this action
will not have a significant economic
impact on a substantial number of small
entities under the RFA. In making this
determination, the impact of concern is
any significant adverse economic
impact on small entities. An agency may
certify that a rule will not have a
significant economic impact on a
substantial number of small entities if
the rule relieves regulatory burden, has
no net burden, or otherwise has a
positive economic effect on the small
entities subject to the rule. This
proposed rulemaking would not impose
any requirements on small entities as
this rule (when finalized) would
approve and codify the State of New
Mexico’s UIC program revisions. We
have therefore concluded that this
action will have no net regulatory
burden for all directly regulated small
entities.
E. Unfunded Mandates Reform Act
(UMRA)
This action does not contain any
unfunded mandate as described in
UMRA, 2 U.S.C. 1531–1538, and does
not significantly or uniquely affect small
governments. The action imposes no
enforceable duty on any state, local, or
Tribal governments or the private sector.
EPA’s approval of the State of New
Mexico’s program revisions will not
constitute a federal mandate because
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64439
there is no requirement that a state
establishes UIC regulatory programs and
because the program is a state, rather
than a 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 does not have Tribal
implications as specified in Executive
Order 13175. This action contains no
federal mandates for Tribal governments
and does not impose any enforceable
duties on Tribal governments. Thus,
Executive Order 13175 does not apply
to this action.
H. Executive Order 13045: Protection of
Children From Environmental Health &
Safety Risks
EPA interprets Executive Order 13045
as applying only to those regulatory
actions that concern environmental
health or safety risks that EPA has
reason to believe may
disproportionately affect children, per
the definition of ‘‘covered regulatory
action’’ in Section 2–202 of the
Executive Order. This action is not
subject to Executive Order 13045
because it proposes to approve existing
the State of New Mexico’s UIC program
requirements.
I. Executive Order 13211: Actions
Concerning Regulations That
Significantly Affect Energy Supply,
Distribution, or Use
This action is not subject to Executive
Order 13211, because it is not a
significant regulatory action under
Executive Order 12866.
J. National Technology Transfer and
Advancement Act
This rulemaking does not involve
technical standards.
K. Executive Order 12898: Federal
Actions To Address Environmental
Justice in Minority Populations and
Low-Income Populations
EPA has determined that this action is
not subject to Executive Order 12898 (59
FR 7629, February 16, 1994) because it
does not establish an environmental
health or safety standard. This action
would approve the State of New
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Federal Register / Vol. 85, No. 198 / Tuesday, October 13, 2020 / Proposed Rules
§ 147.1601 State-administered program—
Class I, III, IV, and V wells.
Mexico’s revisions to its UIC Class I
program.
List of Subjects in 40 CFR Part 147
Environmental protection,
Incorporation by reference, Indian
lands, Intergovernmental relations,
Reporting and recordkeeping
requirements, Water supply.
Andrew Wheeler,
Administrator.
For the reasons set out in the
preamble, the Environmental Protection
Agency is proposing to amend 40 CFR
part 147 as follows:
PART 147—STATE, TRIBAL, AND EPAADMINISTERED UNDERGROUND
INJECTION CONTROL PROGRAMS
1. The authority citation for part 147
continues to read as follows:
■
Authority: 42 U.S.C. 300f et seq.; and 42
U.S.C. 6901 et seq.
2. Amend § 147.1601 by:
a. Revising the introductory text and
paragraphs (a) and (b);
■ b. Adding a paragraph heading to
paragraph (c) and adding paragraph
(c)(3); and
■ c. Revising paragraph (d).
The revisions and additions read as
follows:
■
■
The UIC Program for Class I, III, IV,
and V wells in the State of New Mexico
except for those located on Indian lands,
as defined under 40 CFR 144.3, is the
program administered by the New
Mexico Water Quality Control
Commission, the New Mexico
Environment Department (formerly the
New Mexico Environmental
Improvement Division), and the Oil
Conservation Division of the New
Mexico Energy, Minerals and Natural
Resources Department and approved by
EPA pursuant to section 1422 of the
Safe Drinking Water Act (SDWA). The
effective date of this program is August
10, 1983. A subsequent program
revision application for Class I
hazardous waste wells was approved by
EPA pursuant to section 1422 of the
SDWA; the effective date of this
program [will be contingent on
publication of the final rule]. The Stateadministered UIC programs for Classes
I, III, IV, and V consist of the following
elements, as submitted to EPA in the
State’s program applications.
(a) Incorporation by reference. The
requirements set forth in the State
statutes and regulations approved by
EPA for inclusion in ‘‘EPA-Approved
New Mexico SDWA § 1422 Underground
Injection Control Program Statutes and
Regulations for Well Classes I, III, IV,
and V,’’ dated July 8, 2020, and listed
in the Table 1 to this paragraph (a) of
this section are hereby incorporated by
reference and made a part of the
applicable UIC program under the
SDWA for the State of New Mexico. The
Director of the Federal Register
approves this incorporation by reference
in accordance with 5 U.S.C. 552(a) and
1 CFR part 51. Copies of the State of
New Mexico’s regulations that are
incorporated by reference may be
inspected at the U.S. Environmental
Protection Agency, Water Docket, EPA
Docket Center (EPA/DC), EPA WJC
West, Room 3334, 1301 Constitution
Ave. NW, Washington, DC 20004, or the
Region VI, Library, U.S. Environmental
Protection Agency, 1201 Elm Street,
Suite 500, Dallas, Texas 75270. If you
wish to obtain materials from the EPA
Headquarters Library, please call the
Water Docket at (202) 566–2426 or from
the EPA Regional Office, please call
(214) 665–8326. You may also inspect
the materials at the National Archives
and Records Administration (NARA).
For information on the availability of
this material at NARA, email
fedreg.legal@nara.gov or go to https://
www.archives.gov/federal_register/
code_of_federal_regulations/ibr_
locations.html.
TABLE 1 TO PARAGRAPH (a)—EPA-APPROVED STATE OF NEW MEXICO SDWA § 1422 UNDERGROUND INJECTION
CONTROL PROGRAM STATUTES AND REGULATIONS FOR WELL CLASSES I, III, IV, AND V
State citation
Title/subject
State effective date
WQCC 82–1Sections 1–100 through 5–300 ...
New Mexico Water Quality Control Commission Regulations.
Ground and Surface Water Protection ...........
September 20, 1982 ..
July 11, 1983.
December 21, 2018 ...
[Date of publication
and FR citation of
the final rule].
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New Mexico Administrative Code, Title 20,
Chapter 6, Part 2.
(b) Other laws. The following statutes
and regulations, although not
incorporated by reference, are also part
of the approved State-administered UIC
program:
(1) Water Quality Act, New Mexico
Statutes Annotated Sections 74–6–1
through 74–6–13 (1978 and Supp.
1982);
(2) Geothermal Resources
Conservation Act, New Mexico Statutes
Annotated Sections 71–5–1 through 71–
5–24 (1978 and Supp. 1982); and
(3) Surface Mining Act, New Mexico
Statutes Annotated Sections 69–25A–1
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through 69–25A–35 (1978 and Supp.
1980).
(c) Memorandum of Agreement.
*
*
*
*
*
(3) Amendment No. 1, Underground
Injection Program Substitute
Memorandum of Agreement Between
the State of New Mexico and United
States Environmental Protection Agency
Region VI, signed by the EPA Regional
Administrator on May 2, 2019.
(d) Statement of legal authority.
(1) ‘‘Attorney General’s Statement,’’
signed by the Assistant Attorney
General for the Environmental
Improvement Division, the Assistant
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EPA approval date
Attorney General for Oil Conservation
Division, and the Deputy Attorney
General, Civil Division, Counsel for the
Mining and Minerals Division, undated,
submitted December 8, 1982;
(2) Attorney General’s Statement for
Program Revision of New Mexico UIC
Program, signed by Bill Brancard,
Special Assistant Attorney General,
State of New Mexico Energy, Minerals
and Natural Resources Department,
submitted December 12, 2018.
*
*
*
*
*
[FR Doc. 2020–21487 Filed 10–9–20; 8:45 am]
BILLING CODE 6560–50–P
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[Federal Register Volume 85, Number 198 (Tuesday, October 13, 2020)]
[Proposed Rules]
[Pages 64437-64440]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2020-21487]
[[Page 64437]]
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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 147
[EPA-HQ-OW-2020-0154; FRL-10015-00-OW]
State of New Mexico Underground Injection Control Program;
Primacy Revisions
AGENCY: Environmental Protection Agency (EPA).
ACTION: Proposed rule.
-----------------------------------------------------------------------
SUMMARY: The Environmental Protection Agency (EPA) proposes to approve
an application from the State of New Mexico under the Safe Drinking
Water Act (SDWA) to revise the state's existing Underground Injection
Control (UIC) program for Class I injection wells located within the
state, except those in Indian country. New Mexico has revised the
state's UIC Class I program regulations to remove the current ban on
Class I injection wells and establish new permit conditions, oversight,
and enforcement to safely manage Class I hazardous waste disposal
wells.
DATES: Comments must be received on or before November 27, 2020.
ADDRESSES: You may send comments, identified by Docket ID No. EPA-HQ-
OW-2020-0154, 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, Water Docket, Mail Code 28221T, 1200 Pennsylvania Avenue NW,
Washington, DC 20460.
Hand Delivery or Courier (by scheduled appointment only):
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. EPA-HQ-OW-2020-0154 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. Out of an abundance of caution for members of
the public and our staff, the EPA Docket Center and Reading Room are
closed to the public, with limited exceptions, to reduce the risk of
transmitting COVID-19. Our Docket Center staff will continue to provide
remote customer service via email, phone, and webform. We encourage the
public to submit comments via https://www.regulations.gov/ or email, as
there may be a delay in processing mail and faxes. Hand deliveries and
couriers may be received by scheduled appointment only. For further
information on EPA Docket Center services and the current status,
please visit us online at https://www.epa.gov/dockets.
FOR FURTHER INFORMATION CONTACT: Kyle Carey, Drinking Water Protection
Division, Office of Ground Water and Drinking Water (4606M), U.S.
Environmental Protection Agency, 1200 Pennsylvania Ave. NW, Washington,
DC 20460; telephone number: (202) 564-2322; fax number: (202) 564-3754;
email address: [email protected], or Evelyn Rosborough, Region VI
Library (6WD), U.S. Environmental Protection Agency, 1201 Elm Street,
Suite 500, Dallas, Texas 75270; telephone number: (214) 665-7515; fax:
(214) 665-6490; email address: [email protected].
SUPPLEMENTARY INFORMATION:
I. Public Participation
A. Written Comments
Submit your comments, identified by Docket ID No. EPA-HQ-OW-2020-
0154, at https://www.regulations.gov or other methods identified in the
ADDRESSES section of this document. Once submitted, comments cannot be
edited or removed from the docket. 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. Contact EPA if
you want to submit CBI; see FOR INFORMATION CONTACT section of this
document. Multimedia submissions (audio, video, etc.) must be
accompanied by a written comment. The written comment is considered the
official comment and should include discussion of all points you wish
to make. EPA will generally not consider comments or comment contents
located outside of the primary submission (i.e., on the web, cloud, or
other file sharing system). For additional submission methods, the full
EPA public comment policy, information about CBI or multimedia
submissions, and general guidance on making effective comments, please
visit https://www.epa.gov/dockets/commenting-epa-dockets.
The EPA is temporarily suspending its Docket Center and Reading
Room for public visitors, with limited exceptions, to reduce the risk
of transmitting COVID-19. Our Docket Center staff will continue to
provide remote customer service via email, phone, and webform. We
encourage the public to submit comments via https://www.regulations.gov/ as there may be a delay in processing mail and
faxes. Hand deliveries or couriers will be received by scheduled
appointment only. For further information and updates on EPA Docket
Center services, please visit us online at https://www.epa.gov/dockets.
The EPA continues to carefully and continuously monitor information
from the Centers for Disease Control and Prevention (CDC), local area
health departments, and our Federal partners so that we can respond
rapidly as conditions change regarding COVID-19.
B. Participation in the Public Hearing
Please note that EPA may deviate from its typical approach because
the President has declared a national emergency. Because of current CDC
recommendations, as well as state and local orders for social
distancing to limit the spread of COVID-19, EPA may not be able to hold
in-person public meetings at this time.
Confirmation or cancellation of the public hearing will be
announced on November 27, 2020 and on EPA Region VI's website at:
https://www.epa.gov/uic/new-mexico-proposed-uic-program-revision-class-i-injection-wells. For information regarding the public hearing,
including a request to hold a hearing, or to speak at the hearing,
please contact Evelyn Rosborough, Region VI Library (6WD), U.S.
Environmental Protection Agency, 1201 Elm Street, Suite 500, Dallas,
Texas 75270; or telephone: (214) 665-7515; fax: (214) 665-6490; email:
[email protected].
If requested, the public hearing may be held at the Wendell Chino
Building (Porter Hall, 1st floor), 1220 South St. Francis Drive, Santa
Fe, New Mexico 87505 or at the New Mexico State Capitol, 490 Old Santa
Fe Trail, Santa Fe, NM 87501. EPA may change the format and the timing
of the public hearing (i.e., a virtual hearing held during regular
business hours) if appropriate to protect public health in the face of
COVID-19-risks. EPA will publish notice of any such change at least
seven days prior to the hearing date exclusively at: https://www.epa.gov/uic/new-mexico-proposed-uic-program-revision-class-i-injection-wells.
[[Page 64438]]
C. Public Outreach
On October 13, 2020, a public notice announcing this proposed
approval, request for public comment, and notice of a public hearing to
be held on November 27, 2020, will be published in the Albuquerque
Journal, the Roswell Daily Record, the Gallup Independent, and posted
to EPA Region VI's website at: https://www.epa.gov/uic/new-mexico-proposed-uic-program-revision-class-i-injection-wells. In addition, EPA
will email a link to the document published in the Federal Register to
a statewide list of interested stakeholders.
II. Introduction
EPA approved the State of New Mexico's UIC program as meeting the
requirements for primary enforcement responsibility (primacy) for Class
I, III, IV, and V injection wells, under Section 1422 of the SDWA, on
July 11, 1983. The State of New Mexico has revised their UIC Class I
program regulations to remove the current ban on Class I hazardous
waste wells and establish new permit conditions, oversight, and
enforcement to safely manage Class I wells, except those in Indian
country. EPA considers this to be a substantial program revision and
therefore subject to the procedures specified in the Code of Federal
Regulations (CFR) at 40 CFR 145.32(b)(2). EPA is proposing to approve
New Mexico's revision to its Class I program. If approved, EPA would
make conforming changes to 40 CFR 147.1601 to reflect New Mexico's
revised Class I program.
EPA will continue to oversee the State of New Mexico's
administration of UIC Class I, III, IV, and V programs as authorized
under the SDWA. Part of EPA's oversight responsibility includes the
review of required state quarterly reports of non-compliance and annual
UIC performance reports pursuant to 40 CFR 144.8.
III. Legal Authorities
These proposed regulations are being promulgated under the
authority of Sections 1422 and 1450 of the SDWA, 42 U.S.C. 300h-1 and
300j-9.
A. Revision of State UIC Programs
As required by Section 1421 of the SDWA, EPA promulgated minimum
requirements at 40 CFR part 145 for effective state UIC programs to
prevent underground injection activities that endanger underground
sources of drinking water (USDWs). Under Section 1422 of the SDWA, once
EPA approves a state UIC program, the state has primary enforcement
responsibility for underground water sources. A state may revise its
UIC program as provided under 40 CFR 145.32(a) and by following the
procedures described under 40 CFR 145.32(b), which require the state to
submit a modified program description, an Attorney General's statement,
a Memorandum of Agreement, or other such documentation as EPA
determines to be necessary under the circumstances (40 CFR
145.32(b)(1)).
B. Program Revision Effective Date
A program revision becomes effective upon approval of the
Administrator (40 CFR 145.32(b)(4)). All revisions to the state UIC
program would be federally enforceable as of the effective date of
EPA's approval of the respective revision and 40 CFR part 147
codification. Consistent with EPA Guidance 16,\1\ EPA considers state-
initiated program revisions to permit a formerly banned activity under
the State of New Mexico Class I UIC program to be a substantial program
revision. Under EPA regulations, this means there is an opportunity for
public comment and to request a public hearing (40 CFR 145.32(b)(2)).
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\1\ https://www.epa.gov/sites/production/files/2020-02/documents/attorneygeneralsstatement-31july1981.pdf.
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C. Indian Country
EPA's approval of the State of New Mexico's program revision to
remove the prohibition on hazardous waste injection disposal under the
SDWA UIC Class I program does not extend to Indian lands. Pursuant to
EPA's UIC regulations at 40 CFR 144.3, Indian lands ``means `Indian
country' as defined in 18 U.S.C. 1151.'' EPA, or eligible Indian
tribes, as appropriate, will retain responsibilities under the SDWA UIC
program for Class I, III, IV, and V injection wells in Indian country
in the State of New Mexico.
IV. State of New Mexico's Application
A. Notice of Completion
On May 2, 2019, EPA determined that the Agency had received a
complete UIC program revision application from the State of New Mexico,
in which the state requested approval of its revised UIC regulations
for Class I injection wells. The full application and supplemental
materials are available electronically at https://www.regulations.gov
in EPA's Docket No. EPA-HQ-OW-2020-0154; and a copy of the application
can be accessed for inspection and copying at: The U.S. Environmental
Protection Agency Region VI Office, 1201 Elm Street, Suite 500, Dallas,
Texas 75270, by contacting Evelyn Rosborough, telephone number: (214)
665-7515; fax: (214) 665-6490; email address:
[email protected]. Public comments are requested, and a public
hearing will be held if requests are received within 45 days of
publication of this document (see the ``Public Participation'' heading
in the SUPPLEMENTARY INFORMATION section of this document for further
information on how to request a public hearing).
The UIC program revision application package from the State of New
Mexico includes revisions of: (1) The description of the state's UIC
program (40 CFR 145.23); (2) all applicable state statutes,
regulations, and forms (40 CFR 145.22(a)(5)); (3) the Attorney
General's statement that the state has adequate legal authority to
carry out the program described and to meet the requirements of 40 CFR
part 145; and (4) the Memorandum of Agreement between the State of New
Mexico and EPA's Region VI Administrator (40 CFR 145.25).
B. Public Participation Activities Conducted by the State of New Mexico
On May 15, 2015, the New Mexico Water Quality Control Commission
(WQCC or Commission) published a public notice of the Commission's
intent to adopt amendments to the WQCC rules governing underground
injection control to authorize the State of New Mexico to allow the
approval of Class I hazardous waste injection wells, but only for
petroleum refineries disposing the waste generated at the refinery. The
public notice was published in 15 newspapers across the State of New
Mexico. Written comments on the proposed rulemaking changes were
accepted between May 15, 2015, and July 14, 2015. The public hearing
was held on July 14, 2015, before both a WQCC hearing officer and the
full Commission. Prior to the hearing, five technical witnesses from
the Navajo Nation and one from New Mexico Oil Conservation Division
pre-filed written testimony. At the hearing, in addition to the
technical witnesses, several members of the public, including local
elected officials, provided written or oral testimony in favor of the
proposed rule changes. There was no testimony, written or oral, in
opposition to the proposal.
V. Incorporation by Reference
In this action, EPA is proposing to approve the revisions to the
State of New Mexico's UIC program to permit Class I hazardous waste
injection wells in the state, except those in Indian lands. New
Mexico's statutes and supporting documentation are publicly available
in EPA's Docket at EPA-HQ-
[[Page 64439]]
OW-2020-0154. This action proposes to amend 40 CFR part 147 and
incorporate by reference EPA-approved state statutes and regulations.
EPA will continue to administer the UIC program for all well classes
within Indian lands.
If EPA approves and finalizes this action by rule, the provisions
of New Mexico's statutes and regulations that contain standards,
requirements, and procedures applicable to owners or operators of UIC
Class I hazardous waste wells will be incorporated by reference into 40
CFR 147.1601 as described in the regulatory text. Provisions of the New
Mexico's statutes and regulations that contain standards, requirements,
and procedures applicable to owners or operators of Class I, III, IV,
and V injection were incorporated by reference into 40 CFR 147.1601
through prior EPA rules but are being reapproved for this new format.
Any provisions incorporated by reference, as well as all permit
conditions or permit denials issued pursuant to such provisions, will
be enforceable by EPA pursuant to the SDWA section 1423 and 40 CFR
147.1(e).
In order to better serve the public, EPA is reformatting the
codification of EPA-approved New Mexico SDWA section 1422 UIC program
statutes and regulations for well Classes I, III, IV, and V. Instead of
codifying the New Mexico statutes and regulations as separate
paragraphs, EPA will be incorporating by reference a compilation that
contains ``EPA Approved New Mexico SDWA Sec. 1422 Underground
Injection Control Program Statutes and Regulations for Well Classes I,
III, IV, and V,'' dated July 8, 2020. This compilation is incorporated
by reference into 40 CFR 147.1601 and is available at https://www.regulations.gov in the docket for this rule. For information about
the availability of this material at the EPA, see the FOR FURTHER
INFORMATION CONTACT section of this document.
A complete list of the New Mexico statutes and regulations
contained in the compilation, titled ``EPA Approved New Mexico SDWA
Sec. 1422 Underground Injection Control Program Statutes and
Regulations for Well Classes I, III, IV, and V,'' dated July 8, 2020,
will also be codified in Table 1 to paragraph (a) at 40 CFR 147.1601.
VI. Statutory and Executive Order 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 exempt from review by the Office of Management and
Budget (OMB) because it proposes to approve the State of New Mexico's
UIC Program and state UIC programs are exempt from review.
B. Executive Order 13771: Reducing Regulations and Controlling
Regulatory Costs
This action is not an Executive Order 13771 regulatory action
because actions such as state UIC Program revisions are exempted under
Executive Order 12866.
C. Paperwork Reduction Act (PRA)
This action does not impose any new information collection burden
under the PRA. OMB has previously approved the information collection
activities contained in the existing regulations and has assigned OMB
control number 2040-0042. Reporting or record-keeping requirements will
be based on the State of New Mexico UIC Regulations, and the State of
New Mexico is not subject to the PRA.
D. Regulatory Flexibility Act (RFA)
The agency certifies that this action will not have a significant
economic impact on a substantial number of small entities under the
RFA. In making this determination, the impact of concern is any
significant adverse economic impact on small entities. An agency may
certify that a rule will not have a significant economic impact on a
substantial number of small entities if the rule relieves regulatory
burden, has no net burden, or otherwise has a positive economic effect
on the small entities subject to the rule. This proposed rulemaking
would not impose any requirements on small entities as this rule (when
finalized) would approve and codify the State of New Mexico's UIC
program revisions. We have therefore concluded that this action will
have no net regulatory burden for all directly regulated small
entities.
E. Unfunded Mandates Reform Act (UMRA)
This action does not contain any unfunded mandate as described in
UMRA, 2 U.S.C. 1531-1538, and does not significantly or uniquely affect
small governments. The action imposes no enforceable duty on any state,
local, or Tribal governments or the private sector. EPA's approval of
the State of New Mexico's program revisions will not constitute a
federal mandate because there is no requirement that a state
establishes UIC regulatory programs and because the program is a state,
rather than a 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 does not have Tribal implications as specified in
Executive Order 13175. This action contains no federal mandates for
Tribal governments and does not impose any enforceable duties on Tribal
governments. Thus, Executive Order 13175 does not apply to this action.
H. Executive Order 13045: Protection of Children From Environmental
Health & Safety Risks
EPA interprets Executive Order 13045 as applying only to those
regulatory actions that concern environmental health or safety risks
that EPA has reason to believe may disproportionately affect children,
per the definition of ``covered regulatory action'' in Section 2-202 of
the Executive Order. This action is not subject to Executive Order
13045 because it proposes to approve existing the State of New Mexico's
UIC program requirements.
I. Executive Order 13211: Actions Concerning Regulations That
Significantly Affect Energy Supply, Distribution, or Use
This action is not subject to Executive Order 13211, because it is
not a significant regulatory action under Executive Order 12866.
J. National Technology Transfer and Advancement Act
This rulemaking does not involve technical standards.
K. Executive Order 12898: Federal Actions To Address Environmental
Justice in Minority Populations and Low-Income Populations
EPA has determined that this action is not subject to Executive
Order 12898 (59 FR 7629, February 16, 1994) because it does not
establish an environmental health or safety standard. This action would
approve the State of New
[[Page 64440]]
Mexico's revisions to its UIC Class I program.
List of Subjects in 40 CFR Part 147
Environmental protection, Incorporation by reference, Indian lands,
Intergovernmental relations, Reporting and recordkeeping requirements,
Water supply.
Andrew Wheeler,
Administrator.
For the reasons set out in the preamble, the Environmental
Protection Agency is proposing to amend 40 CFR part 147 as follows:
PART 147--STATE, TRIBAL, AND EPA-ADMINISTERED UNDERGROUND INJECTION
CONTROL PROGRAMS
0
1. The authority citation for part 147 continues to read as follows:
Authority: 42 U.S.C. 300f et seq.; and 42 U.S.C. 6901 et seq.
0
2. Amend Sec. 147.1601 by:
0
a. Revising the introductory text and paragraphs (a) and (b);
0
b. Adding a paragraph heading to paragraph (c) and adding paragraph
(c)(3); and
0
c. Revising paragraph (d).
The revisions and additions read as follows:
Sec. 147.1601 State-administered program--Class I, III, IV, and V
wells.
The UIC Program for Class I, III, IV, and V wells in the State of
New Mexico except for those located on Indian lands, as defined under
40 CFR 144.3, is the program administered by the New Mexico Water
Quality Control Commission, the New Mexico Environment Department
(formerly the New Mexico Environmental Improvement Division), and the
Oil Conservation Division of the New Mexico Energy, Minerals and
Natural Resources Department and approved by EPA pursuant to section
1422 of the Safe Drinking Water Act (SDWA). The effective date of this
program is August 10, 1983. A subsequent program revision application
for Class I hazardous waste wells was approved by EPA pursuant to
section 1422 of the SDWA; the effective date of this program [will be
contingent on publication of the final rule]. The State-administered
UIC programs for Classes I, III, IV, and V consist of the following
elements, as submitted to EPA in the State's program applications.
(a) Incorporation by reference. The requirements set forth in the
State statutes and regulations approved by EPA for inclusion in ``EPA-
Approved New Mexico SDWA Sec. 1422 Underground Injection Control
Program Statutes and Regulations for Well Classes I, III, IV, and V,''
dated July 8, 2020, and listed in the Table 1 to this paragraph (a) of
this section are hereby incorporated by reference and made a part of
the applicable UIC program under the SDWA for the State of New Mexico.
The Director of the Federal Register approves this incorporation by
reference in accordance with 5 U.S.C. 552(a) and 1 CFR part 51. Copies
of the State of New Mexico's regulations that are incorporated by
reference may be inspected at the U.S. Environmental Protection Agency,
Water Docket, EPA Docket Center (EPA/DC), EPA WJC West, Room 3334, 1301
Constitution Ave. NW, Washington, DC 20004, or the Region VI, Library,
U.S. Environmental Protection Agency, 1201 Elm Street, Suite 500,
Dallas, Texas 75270. If you wish to obtain materials from the EPA
Headquarters Library, please call the Water Docket at (202) 566-2426 or
from the EPA Regional Office, please call (214) 665-8326. You may also
inspect the materials at the National Archives and Records
Administration (NARA). For information on the availability of this
material at NARA, email [email protected] or go to https://www.archives.gov/federal_register/code_of_federal_regulations/ibr_locations.html.
Table 1 to Paragraph (a)--EPA-Approved State of New Mexico SDWA Sec. 1422 Underground Injection Control
Program Statutes and Regulations for Well Classes I, III, IV, and V
----------------------------------------------------------------------------------------------------------------
State citation Title/subject State effective date EPA approval date
----------------------------------------------------------------------------------------------------------------
WQCC 82-1Sections 1-100 through 5- New Mexico Water Quality September 20, 1982.... July 11, 1983.
300. Control Commission
Regulations.
New Mexico Administrative Code, Ground and Surface Water December 21, 2018..... [Date of publication
Title 20, Chapter 6, Part 2. Protection. and FR citation of
the final rule].
----------------------------------------------------------------------------------------------------------------
(b) Other laws. The following statutes and regulations, although
not incorporated by reference, are also part of the approved State-
administered UIC program:
(1) Water Quality Act, New Mexico Statutes Annotated Sections 74-6-
1 through 74-6-13 (1978 and Supp. 1982);
(2) Geothermal Resources Conservation Act, New Mexico Statutes
Annotated Sections 71-5-1 through 71-5-24 (1978 and Supp. 1982); and
(3) Surface Mining Act, New Mexico Statutes Annotated Sections 69-
25A-1 through 69-25A-35 (1978 and Supp. 1980).
(c) Memorandum of Agreement.
* * * * *
(3) Amendment No. 1, Underground Injection Program Substitute
Memorandum of Agreement Between the State of New Mexico and United
States Environmental Protection Agency Region VI, signed by the EPA
Regional Administrator on May 2, 2019.
(d) Statement of legal authority.
(1) ``Attorney General's Statement,'' signed by the Assistant
Attorney General for the Environmental Improvement Division, the
Assistant Attorney General for Oil Conservation Division, and the
Deputy Attorney General, Civil Division, Counsel for the Mining and
Minerals Division, undated, submitted December 8, 1982;
(2) Attorney General's Statement for Program Revision of New Mexico
UIC Program, signed by Bill Brancard, Special Assistant Attorney
General, State of New Mexico Energy, Minerals and Natural Resources
Department, submitted December 12, 2018.
* * * * *
[FR Doc. 2020-21487 Filed 10-9-20; 8:45 am]
BILLING CODE 6560-50-P