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# |oioo)fPR-3- 3

BACKGROUN D DOCUMEN TFO R TH E PROPOSE D REGULATIO N O N

FEDERALL YPERMITTE D RELEASE S

ARepor tt o th e EMERGENC YRESPONS E DIVISIO N Offic e o fEmergenc yan d Remedia l Respons e U.S

. Environmenta l Protectio n Agenc y

Marc h 198 7

Prepare d b y IC F INCORPORATE D unde rsubcontrac tt o Combustio n Engineering , Inc

. EP AContrac t68-03-318 2

IC FINCORPORATE D Internationa l Squar e 185 0 KStreet , Northwest , Washington , D

. C

. 2000 6P. 2 

# I 1 1 I 

# I

BACKGROUN D DOCUMEN TFO R TH E PROPOSE D REGULATIO N O N FEDERALL YPERMITTE D RELEASE S 

# I ARepor tt o th e EMERGENC YRESPONS E DIVISIO N Offic e o fEmergenc yan d Remedia l Respons e U.S

. Environmenta l Protectio n Agenc y

Marc h 198 7

Prepare d b y IC F INCORPORATE D unde rsubcontrac tt o Combustio n Engineering , Inc

. EP AContrac t68-03-318 2


# I

## TABL E O F CONTENT S P. 3

Pag e CHAPTE R1 : INTRODUCTIONAND BACKGROUN D 1- 1 CHAPTE R2 : PROVISION S O F FEDERAL PERMI T PROGRAM S INCLUDE D IN

SECTION101(10 ) O F CERCLA2- 1 2. 1 Clea nWate r Ac t Program s 2- 2 2.1. 1 Nationa l Pollutan t Discharg e Eliminatio n

System(NPDES ) Permit s 2- 2 2.1. 2 Permit s fo r Dredge d o r Fil l Materia l 2- 3 2.1. 3 Pretreatmen t Standard s 2- 4 2. 2 Resourc e Conservatio nan d RecoveryAc t (RCRA ) 2- 6 2. 3 Marin e Protection , Research , an d Sanctuarie s Ac t (MPRSA ) 2- 7 2. 4 Saf e Drinkin g Wate r Ac t (SDWA ) 2- 8 2. 5 Clea n Ai r Ac t (CAA ) 2- 9 2.5. 1 PS D an

d NS RAi r Permit s 2-1 0 2.5. 2 Ne wSourc e Performanc e Standard s (NSPS ) 2-1 1 2.5. 3 Nationa l Emission s Standard s fo r Hazardou s

Ai r Pollutant s (NESHAP ) 2-1 2 2. 6 Atomi c EnergyAc t 2-1 3 2. 7 Stat e Law s Relate d t o th e Developmen t o f Crud e Oi l o r Natura l Ga s Supplie s 2-1 4 2. 8 TSCA-Regulate d Facilitie s 2-1 5 CHAPTE R3 : RELEASE S T O SECONDARYCONTAINMENT DEVICE S 3- 1P. 4



### CHAPTE R1 INTRODUCTIO N

AN DBACKGROUN D Th e Comprehensiv e Environmenta l Response , Compensation , an d Liabilit yAc t o f 198 0 (CERCLA) , enacte d o nDecembe r 11 , 198 0 an d amende d b

yth e Superfund Amendment s an

d Reauthorizatio nAc t o f 198 6 (SARA) , establishe s broa d Federa l authorit yt o respond t o release s o r threat s o f release s o f hazardou s substance s fro

mvessel s an

d facilities . Th e Ac t define s th e ter m"hazardou s substances " b

yreferenc e t o othe r environmenta l statute s (sectio n101(14) ) wit hauthorit ygrante d t o th e Environmenta l Protectio nAgenc y(EPA ) t o designat e additiona l hazardou s substance s unde r CERCLAsectio n102 . Ther e ar e currentl y71 7 substance s designate d a s hazardou s unde r CERCLA . Section s 103(a ) an

d (b ) o f CERCLArequir e th e perso ni ncharg e o f a vesse l o r facilit yt o notif yth e Nationa l Respons e Cente r immediatel ywhe nther e i s a releas e o f a designate d hazardou s substanc e i nanamoun t equa l t o o r exceeding th e reportabl e quantit y(RQ ) fo r tha t substance . On e o f th e exemption s fro m sectio n10 3 reporting requirement s i s fo r "federall ypermitte d releases. " Th e definitio no f "federall ypermitte d release " i nCERCL Asectio n101(10 ) specificall yidentifie s release s permitte d unde r othe r environmenta l statutes , including :

• Discharge s covere d b ya Nationa l Pollutan t Discharg e Eliminatio nSystem

(NPDES ) permit ;

• Discharge s i ncomplianc e wit ha legall yenforceabl e permi t fo r dredge d o r fil l material s unde r sectio n40 4 o f th e Clea nWate r Ac t (CWA) ;

• Release s i ncomplianc e wit ha legall yenforceabl e Resourc e Conservatio nan d RecoveryAc t (RCRA ) hazardou s wast e managemen t facilit yfina l permit ; 

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• Release s i ncomplianc e wit ha legall yenforceabl e permi t unde r th e Marin e Protection , Research , an d Sanctuarie s Ac t (MPRSA) ;

• Injectio no f fluid s authorize d unde r federall y approve d underground injectio ncontro l program s (including federall yauthorize d stat e programs ) pursuan t t o Par t C o f th e Saf e Drinkin g Wate r Act ;

• Ai r emission s subjec t t o permi t o r contro l regulation s unde r certai nprovision s o f th e CleanAi r Ac t (CAA) ;

• Injectio no f fluid s o r othe r material s authorize d b y applicabl e stat e la wfo r th e purpos e o f stimulating o r treating well s fo r th e productio no f crud e oil , natura l gas , o r water , o r fo r othe r productio no r enhance d recoverypurposes ;

• Th e introductio no f pollutant s int o a publicl yowne d treatmen t work s (POTW ) whe nsuc hpollutan t i s specifie d i nan d i ncomplianc e wit hpretreatmen t standard s an d a pretreatmen t progra msubmitte d t o EPAfo r approval ; an d

• Release s o f source , specia l nuclear , o r byproduc t materia l i ncomplianc e wit ha legall yenforceabl e license , permit , regulation , o r orde r issue d pursuan t t o th e Atomi c EnergyAct . Th e purpos e o f th e propose d federall ypermitte d releas e reporting regulatio n i s t o clarif yth e definitio no f federall ypermitte d releas e unde r CERCLAan

d th e reporting requirement s applicabl e t o thos e facilitie s releasing CERCLAhazardou s substance s above permitte d levels . I naddition , th e propose d rulemaking woul d clarif yCERCL Anotificatio nrequirement s fo r release s fro m facilitie s regulate d unde r th e Toxic s Substance s Contro l Ac t (TSCA ) an d fo r release s int o engineere d structure s designe d specificall yt o preven t material s fro mreaching th e lan d surface . Chapte r 2 discusse s briefl yth e Federa l program s enacte d t o contro l hazardou s substanc e release s int o th e environmen t and , t o th e exten t possible , estimate s th e numbe r o f facilitie s tha t ar e regulate d unde r eac ho f th e Federa l program s listed i nsectio n101(10 ) o f CERCLA . I t als o discusse s th e Agency' s positio nregarding release s fro mP. 6

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TSCA-regulate d facilities . Chapte r 3 describe s the Agency' s positio no n release s t o secondarycontainmen t devices .P. 7

CHAPTE R 2 PROVISION S O F FEDERA LPERMI TPROGRAM S INCLUDE D I N SECTIO N 101(10 ) O F CERCL A

CERCL Asectio n10 3 exempt s fro mCERCLAnotificatio nrequirement s release s fro mcertai nfacilitie s whe nsuc hrelease s ar e i ncomplianc e wit hcondition s o f applicabl e permits , standards , regulations , licenses , orders , o r programs . CERCL Asectio n10 7 exempt s al l federall ypermitte d releases , excep t thos e define d b

ysection s 101(10)(B ) an d (C) , fro

mliabilit yfo r cos t recovery . Th e propose d federall ypermitte d releas e regulatio ni s intende d t o clarif yth e definitio no f thi s exemptio nunde r sectio n101(10 ) o f CERCLA . Thi s regulatio n als o clarifie s th e sectio n10 3 reporting exemptio nunde r CERCL At o specif y tha t release s o f CERCL Ahazardou s substance s ar e no t subjec t t o CERCLA notificatio nrequirement s unles s th e releas e exceed s permitte d level s b yanR Q o r more . Th e following section s i nthi s chapte r briefl ydescrib e th e pollutio n contro l program s delineate d i nsectio n101(10 ) o f CERCLA . Sectio n2. 1 discusse s program s establishe d unde r th e Clea nWate r Act ; Sectio n2. 2 discusse s program s unde r th e Resourc e Conservatio nan d RecoveryAct ; Sectio n 2. 3 discusse s program s unde r th e Marin e Protection , Research , an d Sanctuarie s Act ; Sectio n2. 4 discusse s th e Saf e Drinking Wate r Ac t programs ; Sectio n2. 5 discusse s th e Clea nAi r Ac t programs ; Sectio n2. 6 discusse s th e program s establishe d unde r th e Atomi c EnergyAct ; Sectio n2. 7 discusse s th e injectio n o f material s relate d t o the developmen t o f crud e oi l o r natura l ga s supplies ; an d Sectio n2. 8 discusse s release s fro mTSCA-regulate d facilities .P. 8

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### 2. 1 CLEA N

WATE RAC T PROGRAM S Th e Clea nWate r Ac t create d severa l differen t mechanism s fo r controlling pollutio no f surfac e water : sectio n40 2 o f th e CW Aestablishe s th e NPDE S progra mt o regulat e poin t sourc e discharges ; sectio n40 4 control s th e discharg e o f dredge d o r fil l material ; an d section s 307(b ) an d 307(c ) o f th e CW Acontro l discharge s t o POTWs . Eac ho f thes e program s i s discusse d below . 2.1. 1 Nationa l Pollutant Discharg e Eliminatio nSyste m(NPDES ) Permit s Sectio n101(10 ) identifie s thre e type s o f release s fro mNPDE S permitte d poin t source s a s federall ypermitte d releases : (A ) discharge s i ncomplianc e wit ha permi t unde r sectio n40 2 o f th e Clea nWate r Act , (B ) discharge s resulting fro

mcircumstance s identifie d an d reviewe d an

d mad e par t o f th e publi c recor d wit hrespec t t o a permi t issue d o r modifie d unde r sectio n40 2 o f th e Clea nWate r Ac t an d subjec t t o a conditio no f suc hpermit , an d (C ) continuou s o r anticipate d intermitten t discharge s fro ma poin t source , identifie d i na permi t o r permi t applicatio nunde r sectio n40 2 o f th e Clea n Wate r Act , tha t ar e cause d b yevent s occurring withi nth e scop e o f relevan t operating o r treatmen t systems . Sectio n40 2 o f th e CW Arequire s tha t an yperso nwh o discharge s o r propose s t o discharg e pollutant s int o "water s o f th e Unite d States " fro ma "poin t source " obtai nanNPDE S permit . Thes e permit s cove r continuou s an d noncontinuou s discharge s o f al l type s o f pollutants : conventional , toxic , an d nonconventiona l (se e 4 0 CFRPart s 122-125) . NPDE S permit s ar e writte no nth e basi s o f technology-base d requirement s an d mor e stringen t Stat e wate r qualit ystandards . Technology-base d requirement s ar e establishe d i nFedera l effluen t limitation s guidelines , or , i nth e absenc e o f guidelines , th e bes t professiona l judgmen t (BPJ ) o f th eP. 9

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permitting authority . Th e permit s specif yhowth e effluen t limitation s guideline s (or limit s base d o nBPJ ) an d Stat e wate r qualit ystandard s wil l b e applie d t o a particula r poin t source . Th e limitation s impose d b yth e permi t ar e tailore d t o th e operation s o f th e discharger . I nadditio nt o discharg e limitations , NPDE S permit s prescrib e monitoring procedure s an d th e recordkeeping an

d reporting tha t mus t b e performed . A s o f Jul y1985 , EPAan d delegate d Stat e authoritie s had issue d abou t 64,00 0 NPDE S permits. 1 Depending o nth e manufacturing proces s involved , an NPDE S permi t mayo r mayno t includ e limitation s fo r release s o f CERCLA hazardou s substances . Th e 64,00 0 estimate , therefore , woul d represen t an upperbound numbe r o f poin t sourc e discharger s affecte d b yth e propose d federall ypermitte d releas e reporting regulation . 2.1. 2 Permit s fo rDredge d o rFil l Materia l Unde r sectio n101(10 ) o f CERCLA , discharge s i ncomplianc e wit ha legall y enforceabl e permi t fo r dredge d o r fil l material s unde r sectio n40 4 o f th e CleanWate r Ac t als o ar e considere d federall ypermitte d release s exemp t fro m th e notificatio nrequirement s o f CERCLAsection s 103(a ) an d (b) . Th e Clea nWate r Ac t prohibit s th e discharg e o f dredge d o r fil l materia l t o "water s o f th e Unite d States " excep t i ncomplianc e wit hsectio n404 . Sectio n 40 4 set s up a procedur e fo r issuing permit s tha t mayspecif ydischarg e sites . Sectio n40 4 permit s tha t allowth e discharg e o f hazardou s substance s ar e issue d onl yi f n o significan t degradatio no f th e aquati c environmen t wil l result . Th e discharg e o f dredge d o r fil l materia l mayb e a continuou s o r long

1 Persona l communication . Mik e Mundell , U.S . EPA , Offic e o f Wate r Enforcemen t an

d Permits , an

d Elizabet hDeutsch , ICF . February21 , 1986 ; Lind a Wilbur , U.S . EPA , Offic e o f Wate r Regulation s an d Standards , an

d Elle nWarhit , ICF . May23 , 1986 .P.1 0

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ter mdisposa l method , o r a discret e actio n designe d t o creat e lan d fo r constructio npurpose s (se e 3 3 CFRPart s 320 , 323 , an d 32 5 an

d als o 4 0 CFR Part s 230 , 231 , an

d 233) . Th e Secretaryo f th e Arm yacting throughth e Chie f o f th e Corp s o f Engi

neers , o r anapprove d State , approve s discharge s a t particula r site s through applicatio no f th e sectio n404(b)(1 ) guidelines , tha t ar e th e substantiv e criteri a fo r dredge d an d fil l materia l discharge s unde r th e Clea nWate r Act . Contaminant s o r pollutant s i ndredge d o r fil l materia l mus t b e identifie d an d mayb e discharge d onl y(1 ) i f th e contaminatio ncanb e reduce d t o anacceptabl e leve l a t th e disposa l sit e an d (2 ) i f constraint s ar e availabl e t o preven t th e contaminatio nfro

mtraveling beyond th e boundarie s o f th e site . Ther e ar e n o genera l monitoring , recordkeeping , o r reporting requirement s applicabl e t o al l sectio n40 4 permits . Specifi c permit s may , an d ofte ndo , however , contai nappropriat e monitoring , recordkeeping , o r reporting requirement s tailore d t o th e circumstance s o f th e permitte d discharge . Becaus e ther e ar e n o pollutant-specifi c limitation s i nsectio n40 4 permits , i t i s no t possibl e t o determin e i f release s o f CERCLAhazardou s substance s ar e an R Q o r mor e above permitte d levels . Facilitie s wit hsectio n40 4 permits , therefore , mus t repor t an yhazardou s substanc e release s tha t ar e no t i n complianc e wit hpermi t condition s whe nth e amoun t release d equal s o r exceed s th e applicabl e RQ . 2.1. 3 Pretreatmen tStandard s Pretreatmen t standard s contro l th e discharg e o f pollutant s fro m nondomesti c discharger s t o POTWs . Unde r sectio n101(10)(J) , th e introductio n o f hazardou s substance s int o a POTWi s a federall ypermitte d releas e (exempte d fro mCERCL Areporting an

d liabilit yrequirements ) i f th e pollutan t i sP.1 1

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specifie d i nan

d i ncomplianc e wit hpretreatmen t standard s an d a pretreatmen t progra msubmitte d t o EPAfo r approval . An yfacilit ydischarging int o a POTW withou t anapprove d pretreatmen t progra mdoe s no t fal l unde r thes e tw o condition s an

d i s no t considere d federall ypermitte d fo r purpose s o f CERCLA notification . Pretreatmen t standard s unde r section s 307(b ) an d (c ) ar e o f severa l types : Federa l pollutant-specifi c standard s fo r certai nindustria l categories , a generi c prohibitio nagains t discharge s tha t mayinterfer e wit h o r pas s throughth e POTW , o r specifi c prohibition s (e.g. , pH) . Section s 307(b ) an

d 307(c ) requir e th e establishmen t an d enforcemen t o f nationa l pretreatmen t standard s t o contro l th e introductio nint o POTW s o f pollutant s tha t ar e no t treatabl e b ya POTW , tha t contaminat e th e sludg e produce d b ya POTW , o r tha t interfer e with , pas s through , o r ar e otherwis e incompatibl e wit h th e operatio no f a POTW . POTW s ar e require d t o develop loca l limit s t o preven t pas s througho r interference . Generally , POTW s wit ha designflowo f mor e thanfive millio ngallon s pe r dayan d tha t receiv e industria l pollutant s mus t hav e anapprove d loca l pretreatmen t program . Fo r thos e POTW s wit ha flowo f les s tha nfive millio n gallon s pe r day , th e Stat e o r EPAregiona l offic e make s a case-by-cas e determinatio na s t o whethe r a loca l progra mmus t b e develope d (4 0 CF R403.8) . POTW s require d t o develop loca l pretreatmen t program s mus t hav e th e lega l authorit yt o enforc e pretreatmen t standard s tha t ar e applie d t o industria l users . Th e contro l mechanis mfo r regulating industria l user s o f POTW s mayb e i nth e for

mo f a permit , contract , order , o r othe r means , depending o nth e POTW . Industria l user s mus t keep record s o f al l monitoring activitie s an d repor t th e result s t o th e POTWa t leas t twic e a year . Ther e ar e approximatel yP.1 2

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14,00 0 industria l facilitie s discharging int o POTW s wit hpretreatmen t program s tha t ar e covere d b

ypollutant-specifi c industria l pretreatmen t standards. 2


## 2. 2 RESOURC E CONSERVATIONAN D RECOVER YAC T (RCRA ) Release s fro

mhazardou s wast e managemen t facilitie s tha t hav e legall y enforceabl e fina l permit s unde r sectio n300 5 o f RCR Aar e exemp t fro

mCERCLA' s notificatio nrequirement s i f th e permi t specificall yidentifie s th e hazardou s substance s release d an d make s thos e substance s subjec t t o " a standard o f practice , contro l procedur e o r bioassaylimitatio no r condition , o r othe r contro l o nth e hazardou s substance s i nsuc hreleases " (section101(10)(E)) . Release s i ncomplianc e wit hfina l RCR Apermit s issue d b ya Stat e als o ar e considere d federall ypermitte d release s fo r purpose s o f CERCLA . Al l owner s and/o r operator s o f hazardou s wast e treatment , storage , o r disposa l facilitie s ar e require d t o obtai n RCR Apermits . EPAregulation s requir e tha t propose d operating procedure s fo r a facilit yb e describe d i n detai l i nth e RCR

Apermi t application . I f th e permi t i s issued , certai n operating procedure s become permi t condition s an d an ydeviatio nfro

mthos e procedure s mus t b e reporte d t o EPA(se e 4 0 CFRPart s 26 4 an d 270) . Th e owner/operato r o f a hazardou s wast e facilit ymus t submi t anannua l repor t t o th e EPARegiona l Administrato r specifying waste s receive d during th e year . Release s fro mth e facilit yrequir e ora l notificatio nt o th e Nationa l Respons e Cente r withi n2 4 hour s i f huma nhealt ho r th e environmen t woul d b e threatene d beyond th e facilit yboundary .

2 U.S . Environmenta l Protectio nAgency , Repor t t o Congres s o nth e Discharg e o f Hazardou s Waste s t o Publicl yOwne d Treatmen t Works , Offic e o f Wate r Regulation s an d Standards , February1986 , p . 1-4 .P.1 3

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Fe wfina l RCR

Apermit s hav e bee nissue d t o dat e an d therefor e th e federall ypermitte d releas e reporting exemptio nprovide d b ysectio n101(10)(E ) i s no t expecte d t o hav e wid e applicability. 3

2. 3 MARIN E PROTECTION , RESEARCH , AN D SANCTUARIE S AC T(MPRSA ) Release s i ncomplianc e wit hlegall yenforceabl e permit s issue d unde r sectio n10 2 o r sectio n10 3 o f th e Marin e Protection , Research , an d Sanctuarie s Ac t (MPRSA ) ar e considere d federall ypermitte d release s unde r CERCL Asectio n 101(10)(F) . MPRSAprohibit s transportatio nfo r th e purpos e o f dumping materia l int o oceanwater s an d th e dumping o f material s transported , unles s a permi t ha s bee nissue d t o d o so . A nocea ndumping permi t mayb e issue d i f i t canb e establishe d tha t th e propose d dumping "wil l no t unreasonabl ydegrad e o r endanger " th e marin e environment . Ocea ndumping permi t application s ar e evaluate d using th e environmenta l impac t criteri a i nMPRS Aan d i nEPAregulation s (the Corp s o f Engineer s i s responsibl e fo r reviewing application s an d issuing permit s fo r dumping o f dredge d material) . Th e criteri a designat e certai nmaterial s tha t ar e prohibite d fro

mbeing dumpe d an

d othe r material s tha t ar e prohibite d excep t a s trac e contaminants , an d recommend test s an d procedure s t o provid e enough informatio nt o evaluat e a permi t application . Th e MPRS Apermi t progra mevaluate s application s o na case-by-cas e basis . Accordingly , EPAo r th e Corp s o f Engineer s mayrequir e certai ninformatio na s

3 Althoug hno t considere d federall ypermitted , disposa l o f hazardou s substance s a t a facilit yi ncomplianc e wit happlicabl e interi mstatu s standard s i s no t subjec t t o th e notificatio nrequirement s unde r CERCLA section s 103(a ) an

d (b ) (5 0 F R13456 , 13461) . Th e fac t tha t suc hdisposa l nee d no t b e reporte d doe s no t preclud e liabilit yfo r respons e cost s o r natura l resourc e damage s cause d b ysuc hdisposal .P.1 4

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par t o f a particula r permit , suc ha s tes t results , additiona l information , o r monitoring o f eithe r th e materia l being dumpe d o r the receiving waters . EPA , along wit hth e Coas t Guard , monitor s an d manage s eac hdesignate d dumpsite . I f th e dumping endanger s th e marin e environment , EPAha s the authorit yt o modif y o r revok e permit s a s necessary . Th e permitte e mus t keep historica l record s o f th e physica l an

d chemica l characteristic s o f th e materia l dumpe d an d the time s an d location s o f dumping . Thi s informatio nmus t b e reporte d t o th e Regiona l Administrato r everysi xmonth s b yth e permittee . Th e MPRS Apermi t programbroadl yregulate s dumping int o ocea nwaters , including hazardou s substances . Permit s specif yth e site , times , an d quantitie s o f materia l t o b e dumped .
2. 4 SAF E DRINKIN G WATE R AC T(SDWA ) Anothe r typ e o f federall ypermitte d releas e i s "an yinjectio no f fluid s authorize d unde r Federa l underground injectio ncontro l program s o r Stat e program s submitte d fo r Federa l approva l pursuan t t o Par t C o f the Saf e Drinkin g Wate r Act " (an d no t disapprove d b yEPA ) (section101(10)(G)) . Th e SDW Aauthorize s EPAt o promulgat e regulation s fo r Stat e Underground Injectio nContro l (UIC ) programs . Suc hregulation s ar e require d t o contai n "minimu mrequirement s fo r effectiv e program s t o preven t underground injectio n whic hendanger s drinking water. " Th e statut e require s Federa l o r Stat e authorizatio nfo r al l underground injections . Th e regulation s tha t describ e minimu mStat e requirement s fo r UI C program s divid e underground injectio nwell s int o five categories . Clas s I an d Clas s IV well s dea l wit hinjectio no f hazardou s waste s an d requir e permits .P.1 5

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Monitoring requirement s varyfro mpermi t t o permit , bu t mayinclud e a numbe r o f differen t analyses . Requirement s fo r Clas s I well s includ e

* i • * * • quarterl yreport s t o th e permitting authority . Unde r th e EPAregulation s fo r th e underground injectio ncontro l progra m(4 0 CFR144.51(k)(6)) , an yowne r o r operato r o f aninjectio nwel l mus t repor t withi n2 4 hour s t o th e Regiona l Administrato r o r Stat e Directo r a s appropriate , a violatio no f th e permi t tha t mayendange r healt ho r th e environment . 2. 5 CLEA NAI RAC T (CAA ) Sectio n101(10)(H ) o f CERCL Ainclude s withi nth e definitio no f federall y permitte d releas e "an yemissio nint o th e ai r subjec t t o a permi t o r contro l regulatio nunde r sectio n111 , 112 , Titl e I Par t C , Titl e I Par t D , o r Stat e Implementatio nPlan s submitte d i naccordanc e wit hsectio n11 0 o f th e Clea nAi r Ac t (an d no t disapprove d b ythe Administrato r o f th e Environmenta l Protectio n Agency) , including an yschedul e o r waive r granted , promulgated , o r approve d unde r thes e sections. " EPAregulate s th e following two type s o f ai r pollutant s unde r th e CAA : Criteri a Ai r Pollutant s unde r sectio n109 , an d Hazardou s Ai r Pollutant s unde r sectio n112 . Th e Clea nAi r Ac t als o establishes , unde r sectio n111 , performanc e standard s fo r ne wstationarysource s o f ai r pollutio n(se e 4 0 CF R Part s 52 , 60 , 61 , an d 62) . Pursuan t t o sectio n10 9 o f th e Clea nAi r Act , EPAha s establishe d nationa l ambien t ai r qualit ystandard s fo r th e protectio no f publi c healt han d welfare . Ambien t ai r qualit ystandard s hav e bee nestablishe d fo r th e seve n criteri a pollutants : tota l suspende d particulates , sulfu r dioxide , photo

chemica l oxidants , nitroge ndioxide , carbo nmonoxide , hydrocarbons , an d lead .P.1 6

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Lead i s th e onl ycriteri a ai r pollutan t tha t i s als o a CERCL Ahazardou s substance. 4 Th e vas t majorit y(8 6 percent ) o f th e tota l amoun t o f lea d discharge d int o the ai r come s fro mgasolin e combustion. 5 Th e remainde r (abou t 5,00 0 ton s pe r year ) come s fro m1 7 othe r sourc e categories . Thes e sourc e categorie s varyfro mthos e wit ha larg e numbe r o f smal l unit s (e.g. , wast e oi l combustion) , t o thos e wit ha smal l numbe r o f larg e source s (e.g. , smelters) . Muc ho f th e authorit yfo r implementing ai r pollutio ncontro l program s necessaryt o compl ywit hth e ambien t ai r qualit ystandard s ha s bee ndelegate d t o th e State s vi a Stat e Implementatio nPlan s (SIPs) , subjec t t o EPAoversigh t an d approval . Source s o f ai r pollutio nregulate d b ySIP s ar e divide d int o tw o categories : Clas s A"major " source s ar e thos e tha t generat e ove r 10 0 ton s pe r yea r o f th e pollutant s regulate d unde r the CAA , an d Clas s B "minor " source s ar e thos e tha t generat e les s than10 0 ton s pe r yea r o f regulate d pollutants . Presently , ther e ar e 27,05 5 Clas s A"major " sources . Dat a o nClas s B "minor " source s ar e no t available , bu t th e numbe r i s considere d t o b e large. 6 2.5. 1 PS D an d NS R Ai rPermit s Th e CA Adivide s th e countryint o tw o statu s classifications , attainmen t area s an

d nonattainmen t areas . Attainmen t area s ar e thos e wher e th e ai r i s

4 0the r CERCLAhazardou s substance s ar e ofte ncomponent s o f othe r criteri a ai r pollutants . Fo r example , toluen e an d xylen e ar e typicall y component s o f hydrocarbons . Hence , release s o f toluen e an d xylen e als o woul d b e regulate d whe nhydrocarbon s ar e regulate d unde r sectio n10 9 o f th e CAA . 5 U.S . EPAEnvironmenta l Criteri a an d Assessmen t Office , Ai r Qualit y Criteri a fo r Lead . EPA . 600/8-83-028 A(Octobe r 1983) . Volume II . p . 58 . 6 Persona l communication . Howar d Wright , U.S . EPA , Complianc e Analysis , Ai r Program s Branch , an d Elizabet hDeutsch , ICF . February28 , 1986 .P.1 7

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cleane r tha nnationa l ambien t ai r qualit ystandards , an d ar e subjec t t o "preventio no f significan t deterioration " (PSD ) standard s tha t limi t th e allowabl e degradatio no f ai r quality . Th e PS D progra mrequire s bot hne wmajo r source s an

d majo r modification s i n2 8 industria l categorie s t o underg o preconstructio nreviewprio r t o obtaining a permi t t o build . I naddition , ne w o r modifie d source s no t include d i non e o f the 2 8 industria l categorie s ar e subjec t t o PS D requirement s i f theyhav e th e potentia l t o emi t 25 0 ton s pe r yea r o f an

ypollutan t regulate d b yth e CAA . Nonattainmen t area s ar e thos e wher e th e ai r doe s no t mee t th e nationa l ambien t ai r qualit ystandard s fo r on e o r mor e o f the criteri a ai r pollutants . T o achiev e ai r qualit ystandards , SIP s establis hemissio nlimit s an d complianc e schedule s fo r existing source s an d requir e ne wsourc e review s (NSR ) fo r al l ne wmajo r source s o r majo r modification s befor e constructio ncan occur , afte r whic ha permi t i s issue d i f th e reviewi s favorable . I t ha s bee nestimate d tha t 10 0 t o 40 0 PS D an d NS Rpermit s ar e issue d eac h year. 7 Approximatel ytwo-third s o f al l NS Ran d PS D permit s issue d ar e fo r majo r modifications . 2.5. 2 Ne w

Sourc e Performanc e Standard s (NSPS ) I nadditio nt o nationa l ambien t ai r qualit ystandards , sectio n11 1 o f th e CA Amandate s th e establishmen t o f ne wsourc e performanc e standard s (NSPS ) fo r 6 3 industria l categorie s o f ne wan d modifie d stationarysource s o f ai r pollutan t emission s establishe d sinc e Augus t 1971 . Th e numbe r o f currentl y

7 Persona l communication . GaryMcCutchen , U.S . EPA , Offic e o f Ai r Qualit yPlanning an d Standards , Pollutan t Assessmen t Branch , an d Elizabet h Deutsch , ICF . Marc h10 , 1986 .P.1 8

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operating NSP S source s i s 2,800. 8 Ther e i s n o permitting systemunde r NSPS , however . Instead , designstandard s for particula r sourc e categorie s ar e promulgated . 2.5. 3 Nationa l Emission s Standard s fo rHazardou s Ai rPollutant s

(NESHAP ) Sectio n11 2 o f th e CA Arequire s EPAt o lis t an d regulat e hazardou s ai r pollutant s throughNationa l Emission s Standard s fo r Hazardou s Ai r Pollutant s (NESHAP) . T o date , eigh t substance s hav e bee nlisted unde r sectio n112 ; emissio nstandard s hav e bee npromulgate d fo r seve no f thes e (mercury , beryllium , asbestos , viny l chloride , inorgani c arsenic , benzene , an d radionuclides). 9 EPAi s i nth e proces s o f developing propose d standard s fo r th e remaining liste d pollutant , cok e ove nemissions . A s o f mid-1985 , abou t 1,26 5 source s wer e regulate d b yNESHAP. 1 0 I t shoul d b e note d tha t becaus e source s mayb e subjec t t o mor e tha non e sectio no f th e CAA , ther e i s a likelihoo d o f significan t overlap i nth e numbe r o f source s regulate d unde r eac hsection . Fo r example , mos t NSP S source s ar e probabl ysubjec t t o SI P reviewprocesse s an d therefor e ar e include d i nth e SI P majo r sourc e estimate . Likewise , i t wa s estimate d tha t abou t one-hal f o f th e SI P source s tha t ar e require d t o underg o majo r ne wo r majo r modifie d sourc e reviewals o mus t compl ywit hNSPS. 1 1 8 Persona l communication . Brend a Riddle , U.S . EPA , Offic e o f Ai r Qualit y Planning an

d Standards , Pollutan t Assessmen t Branch , an d Elizabet hDeutsch , ICF . February27 , 1986 . 9 Fo r benzene , standard s hav e bee npromulgate d fo r fugitive emission s fro mmanufacturing an d petroleu

mrefining facilities ; standard s ar e pending fo r benzen e emission s fro mcok e by-produc t recoveryplants . 10 Wasserman , Cheryl . Improving th e Efficienc yan d Effectivenes s o f Complianc e Monitoring an d Enforcemen t o f Environmenta l Policies . (1985) . p . VI-5 . ^Persona l communication . Brend a Riddle , U.S . EPA , Offic e o f Ai r Qualit yPlanning an d Standards , Pollutan t Assessmen t Branch , an d Elizabet h Deutsch , ICF . February27 , 1986 .P.1 9

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2. 6 ATOMI C ENERG YAC T Sectio n101(10)(K ) o f CERCL Adefine s a federall ypermitte d releas e t o als o includ e "an

yrelease s o f source , specia l nuclear , o r byproduc t material, " a s define d b

yth e Atomi c EnergyAc t o f 1954 , i ncomplianc e wit ha legall y enforceabl e license , permit , regulation , o r orde r issue d pursuan t t o th e authorit yo f th e Atomi c EnergyAct . Nuclea r material s ar e regulate d o r controlle d primaril yb yth e Nuclea r RegulatoryCommissio nan d b yth e Departmen t o f Energ y(DOE) . EPAan

d th e Departmen t o f Defens e (DOD ) als o hav e certai nregulatoryauthorit yunde r th e Atomi c EnergyAct . Th e Nuclea r RegulatoryCommission' s jurisdictio ni s limite d t o certai ntype s o f nuclea r material s an d t o certai npartie s wh o may handl e thes e materials . First , th e Commissio nonl ylicense s source , byproduct , an

d specia l nuclea r materia l a s define d b yth e Atomi c EnergyAct . I ngeneral , th e Commissio ndoe s no t licens e naturall yoccurring an d accelerator-produce d radioactiv e material s (NARM) , althoughnaturall y occurring radioactiv e material s mayb e subjec t t o Commissio nregulatio nwhe n theyar e associate d wit hsource , byproduct , o r specia l nuclea r materia l being use d unde r anactiv e license . Second , certai nactivitie s o f DO E an d DO D - - eve nthoughthes e activitie s involv e source , byproduct , an d specia l nuclea r material s - - ar e exemp t fro mCommissio nlicens e requirements . Th e Nuclea r RegulatoryCommissio nrequire s tha t record s b e kep t o f al l receipts , transfers , an d disposal s o f source , byproduct , an d specia l nuclea r material . Monitoring i s require d fo r al l activitie s involving nuclea r material , excep t fo r certai nuse s o f smal l quantitie s o f enclose d byproduc t material . Beside s genera l monitoring o f personne l area s an d nuclea r facilities , licensee s mus t repor t t o th e Commissio neverysi xmonth s o nth e quantitie s an

d natur e o f al l release s beyond th e facilit yboundaries .2-1 4

According t o regulation s tha t describ e genera l requirement s fo r al l use s o f radioactiv e substances , licensee s mus t notif ythe Commissio no f al l "nuclea r incidents" . Depending o nth e leve l o f exposure , th e amoun t o f radioactiv e materia l released , an d othe r criteria , th e license e mus t repor t nuclea r incident s o r excessiv e level s o f radioactivit yimmediately , withi n2 4 hours , o r withi n3 0 days . Licensee s als o mus t repor t al l defect s i n facilitie s an

d noncomplianc e wit hth e licens e withi ntw o days . Ther e ar e approximatel y8,90 0 Nuclea r RegulatoryCommissio nlicensee s an d anadditiona l 13,00 0 licensee s i nagreemen t States. 1 2 Agreemen t State s hav e bee ndelegate d authorit yb yth e Commissio nt o licens e source , byproduct , an d specia l nuclea r materia l fo r facilitie s withi nthei r boundaries . DO E control s man

ygovernment-owned , contractor-operate d facilitie s tha t mayreleas e radionuclide s t o th e environment , including facilitie s engage d i n researc han

d development , nuclea r weapon s production , enrichmen t o f uraniu m fo r nuclea r reactors , an d facilitie s tha t process , store , an d dispos e o f radioactiv e waste . Man yo f th e researc hfacilitie s controlle d b yDO E ar e accelerators , tha t generat e accelerator-produce d radioisotope s (include d withi nth e definitio n o f NARM) . 

## 2. 7 STAT E LAW S RELATE D T O DEVELOPMENT O F CRUD E OI L O RNATURA L GA S SUPPLIE S CERCLAsectio n101(10)(I ) consider s "injectio no f fluid s o r othe r material s authorize d unde r applicabl e Stat e la w(i ) fo r th e purpos e o f stimulating o r treating well s fo r th e productio no f crud e oil , natura l gas , o r water , (ii ) fo r th e purpos e o f secondary , tertiary , o r othe r enhance d recovery

12 U.S . Nuclea r RegulatoryCommission , 198 4 Nuclea r RegulatoryCommissio n Annua l Report , p . 73 .P.2 1

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o f crud e oi l o r natura l gas , o r (iii ) whic har e brough t t o th e surfac e i n conjunctio nwit hth e productio no f crud e oi l o r natura l ga s an d whic har e reinjected " t o b e federall ypermitte d releases . Federall ypermitte d release s includ e onl ythos e release s tha t ar e specificall yauthorize d b yth e Stat e rathe r tha nsimpl yno t prohibited . _We hav e n o informatio no nthe numbe r o f federall ypermitte d release s a s define d b ysectio n101(10)(I ) o f CERCLA .
2. 8 TSCA-REGULATE D FACILITIE S Release s associate d wit happrove d polychlorinate d bipheny l (PCB ) disposa l b yincineration , landfilling , o r alternat e method s ar e no t include d i nth e federall ypermitte d releas e definitio nunde r sectio n101(10 ) o f CERCLA . EPA doe s no t believe , however , tha t notificatio nunde r sectio n10 3 o f CERCL A provide s an

ysignifican t additiona l benefi t s o lon g a s th e disposa l facilit y i s i ncomplianc e wit hal l applicabl e TSCAregulation s an d approva l conditions . Therefore , EPAwil l no t requir e reporting o f th e approved , prope r disposa l o f PC B wastes . Th e fac t tha t reporting i s no t require d doe s no t preclud e liabilit yfo r respons e cost s o r natura l resourc e damage s cause d b y suc hdisposal . I naddition , PC B release s o f anR Q o r mor e fro ma TSCA
approve d facilit y(a s oppose d t o disposa l int o suc ha facility ) mus t b e reporte d unde r CERCLA .P.2 2



## CHAPTE R3 RELEASE S T O SECONDAR YCONTAINMENT DEVICE S

Question s hav e arise no nanissu e no t specificall yrelate d t o th e definitio no f "federall ypermitte d release " bu t rathe r t o th e broade r questio n o f th e definitio no f th e environment . On e commo nquestio nwit hrespec t t o thi s issu e concern s release s o f hazardou s substance s int o engineere d structure s designe d specificall yt o preven t material s fro mreaching th e lan d surface . Thi s questio ninvolve s bot hinterpretatio no f th e phras e "releas e int o th e environment " an d the appropriatenes s o f reporting requirement s fo r release s t o suc hsecondarycontainmen t devices . I nth e preambl e t o th e Apri l 4 , 198 5 fina l rul e adjusting reportabl e quantitie s fo r 34 0 CERCL Ahazardou s substances , EPAstated : Hazardou s substance s mayb e release d "int o the environment " eve ni f theyremai no nplan t o r installatio n grounds . Example s o f suc hrelease s ar e spill s fro mtank s o r valve s ont o concret e pad s o r int o lined ditche s ope nt o the outsid e air , release s fro mpipe s int o ope nlagoon s o r ponds , o r an yothe r discharge s tha t ar e no t wholl ycontaine d withi n building s o r structures . Suc ha release , i f i t occur s i na reportabl e quantit y(e.g. , evaporatio no f anR Q int o th e ai r fro ma dik e o r concret e pad) , mus t b e reporte d unde r CERCLA . O nth e othe r hand , hazardou s substance s mayb e spille d a t a plan t o r installatio nbu t no t ente r th e environment , e.g. , whe nth e substanc e spill s ont o th e concret e floo r o f an enclose d manufacturing plant . Suc ha spil l woul d nee d t o b e reporte d onl yi f th e substance s wer e i nsome wayt o leave th e building o r structur e i na reportabl e quantity . (Note , however , tha t th e Federa l governmen t maystil l respon d an d recove r cost s wher e ther e i s a threatene d releas e int o th e environment. ) 5 0 F R13462 . Applyin g th e phras e "int o th e environment " t o release s t o secondary containmen t devices , EPAbelieve s tha t a releas e insid e a building o r3- 2

structur e i s no t a releas e "int o th e environment " unles s th e spille d substanc e leave s th e building . Onon e hand , a releas e t o a secondarycontainmen t devic e outsid e o f a building o r structur e i s pe r s e "int o th e environment. " Example s o f release s t o suc hdevice s tha t illustrat e bot hth e potentia l fo r a seriou s probleman d anexisting seriou s situatio nhav e bee nbrough t t o th e Agency' s attention . Thes e includ e a releas e o f hydrochlori c aci d t o a dik e tha t woul d hav e overflowe d i na heav yrain , an

d radioactiv e contaminatio no f wate r supplie s apparentl yresulting fro manimproperl yfunctioning secondarycontainmen t devic e a t a nuclea r facility . Onth e othe r hand , i t ha s bee nsuggeste d tha t wher e engineere d structure s ar e ope nt o th e air , release s int o suc hstructure s shoul d b e exemp t fro m reporting unles s anR Q o r mor e o f th e substanc e reache s an yground o r surfac e water s o r lan

d surfac e o r evaporate s int o th e ambien t air . Release s t o suc h structure s mayinclud e suc hoccurrence s a s release s ont o concret e pads , secondarycontainmen t device s wit hseale d floor s aroun d storag e tanks , o r dri p pan s use d t o catc hmino r hos e o r lin e drainage . T o bette r understand the experienc e o f regiona l On-Scen e Coordinator s (OSCs) , th e Agenc yconducte d some informa l polling t o determin e whethe r release s t o secondarycontainmen t device s ar e o f concer nan d whethe r OSC s ar e intereste d i ncontinuing t o receiv e report s o f thes e type s o f releases . Mos t EPAregiona l personne l state d tha t theybelieve d i t wa s importan t t o continu e t o receiv e report s o f release s t o secondarycontainmen t devices . Th e basi s fo r thei r positio nwa s tha t secondarycontainmen t device s di d no t alway s functio nproperl yan d wer e no t alway s abl e t o contai nth e release . Immediat e notificatio no f a releas e wa s desirabl e becaus e secondarycontainmen t device sP.2 4

3- 3

ar e simpl ya contro l mechanis man d canno t handl e al l situation s tha t migh t arise . Man yo f th e Region s pointe d ou t tha t some secondarycontainmen t device s maywor k wel l fo r some type s o f release s an d no t wel l fo r others . Fo r example , a secondarycontainmen t devic e maywor k wel l fo r nonvolatil e substance s bu t no t wel l fo r volatil e substances , o r a releas e t o a secondary containmen t devic e maypos e differen t hazard s depending upo nth e meteorologica l condition s a t th e time . Th e following i s on e o f severa l example s tha t wer e presente d t o illustrat e Regiona l concerns :

Approximatel y10,00 0 t o 15,00 0 gallon s o f hydrochlori c aci d wer e release d int o a dik e an d a da yo r two passe d befor e the substanc e evaporated . I f i t had raine d befor e th e substanc e evaporated , th e overflowwoul d hav e create d a "violen t situation. " EPAi s concerne d tha t exempting thes e type s o f release s fro mreporting woul d no t b e appropriat e becaus e ther e ar e to o man yvariable s tha t canlea d t o uniqu e problems . I f EPAi s give nimmediat e notificatio no f a release , th e OS C canofte nadvis e th e facilit yowne r o r operato r o f prope r cleanu p step s an

d potentia l hazards . EPAis , however , intereste d i nspecifi c example s o f procedure s followe d whe nther e i s a releas e t o a secondarycontainmen t devic e an d technique s use d t o preven t release s fro msuc hdevices , a s wel l a s dat a discussing th e integrit yo f secondarycontainmen t devices .