# Proposed

State of Kansas Coal Combustion Residuals Part 256 Plan

Draft dated 6/ 30 8/24 /2015

### Table of Contents

Chapter 1

- Introduction

................................ ................................ ................................ ............... 1

Chapter 2

- Compliance with General Part 256 Plan Requirements

................................ ............ 3 4

Chapter 3

- Implementation of the CCR Rule in Kansas

................................ ............................. 8 10

Appendix A

- Referenced Bureau of Waste Management Statutes, Regulations, and Policies

Appendix B

- Referenced Division of Water Resources Statutes and Regulations

Appendix C

- Referenc ed Department of Administr ation Statutes

### Chapter 1 Introduction

Background In the early 1980s, Kansas and other states prepared state solid waste management plans in accordance with the requirements set forth in 40 CFR Part 256

– Guidelines for Dev elopment and Implementation of S tate Solid Waste Management Plans. These plans were primarily to ensure that states would move forward to eliminate open dumps and establish environmentally sound ways to dispose of all types of solid waste and reduce the volume of solid waste disposed of in landfills

. While references to a Kansas plan have been identified, neither the U.S. Environmental Protection Agency (EPA) nor the Kansas Department of Health and Environment (KDHE) has a copy of that pla n , nor a record that EPA approved of that plan.

On April 17, 2015, EPA published recently adopted regulations in 40 CFR Parts 257 and 261 related to the “Disposal of Coal Combustion Residuals from Electric Utilities ” (the CCR rule). These new federal regulations are self

- implementing and will go into effect regardless of state de cisions to adopt and enforce the new requirements. Furthermore, EPA has stated in the preamble to this CCR rule that there is “no explicit mechanism for EPA to officially appro ve a stat e program.” Consequently, the standards set in th e federal CCR rule will gradually become effective in states that may have their own solid waste regulations governing coal combustion facilities. Rather than have two separate sets of regulations a pplicable to these facilities, EPA is strongly encouraging states to adopt these new regulations

. States may maintain or add additional requirements that are more stringent or broader in scope than the minimum standard s set forth in the federal CCR rule

.

EPA has determined that the best available tool to demonstrate that states are regulating coal combustion residuals (CCRs) in a manner consistent with the new CCR regulations is through the state solid waste management plans prepared in accordance with Par t 256. Therefore, EPA is also encourag ing states to revise those plans, if available, or if not available

, prepare a plan to address the basic requirements of Part 256 with emphasis placed on how the state regulatory program will enforce all aspects of the CCR rule and any additional state

- specific requirements.

In the 1970s and then again in the early 1990s, Kansas significantly modified state laws to ensure that all of the requirements of Part 256 were thoroughly addressed and officially codified in
statute. F ollowing the passage of those laws , m ultiple implementing regulations were adopted by KD HE which establish ed applicable permitting, operating, inspection, and enforcement
programs. Th e state laws that fully address the Part 256 plan requirements also direct KDHE to
prepare a state solid waste plan to address emerging issues and priorities inc luding waste reduction, public participation

, local government responsibilities in local planning, and the sustainability of waste management system s. The first such Kansas solid waste management plan was prepared i n the mid

- 1990s and that plan has been updated every five years

. The most recent state plan was adopted in 2010. A plan update is due in 2 015; however, EPA ’s recommendation to update the Part 256 plan has impacted that schedule.

Page 1 of 15 18Purpose and Scope of t his State of Kansas Coal Combustion Residu als Part 256 Plan Based upon the background information presented in the previous section and the combined interests of KDHE, the CCR

- regulated community, elected government officials, and the public, KDHE prepared this new solid waste management plan for review and approval by EPA

. The plan d emonstrate s KDHE ’s intent and approach to assess compliance with and enforce the CCR rule in Kansas. This plan also address es the original requirements of Part 256 solid waste

m anagement plans by explaining how existin g state laws and reg ulations have accomplished the 35

- year

- old goals required in those plans

. This plan cites existing KDHE laws

, regulations , and permit conditions that authorize KDHE to assess compliance and enforcement related to all aspects of the CCR rule

. In addition, it explains the state’s intention to adopt the specific CCR regulations by reference over the next 12 to 18 months to more directly address all requirements.

This plan will not thoroughly address all “sustainability” issues covered by the recent Kansas solid waste management plan; however, since waste reduction and resource recovery is a part of the Part 256 planning scope, there will be some reference to state activities in this area

. T o distinguish t his plan from the more modern sustainability

- focused plan, this plan will be refe rred to as the “State o f Kansas Coal Combustion Residuals Part 256 P l an ” or “Part 256 CCR Plan.” T he sustainability

- focused plan will be called the “State of Kansas Comprehensive Solid Waste Management Plan ” ; this plan can be found on the KDHE Bureau of Waste Management web site
at www.kdheks.gov/waste/

. ”

.

KDHE will review The Part 256 CCR plan will cover no less than a five

- year time period, which will be set to c oincide with the timeframe covered in future updates of the S tate of Kansas Comprehensive Solid Waste Management Plan

. KDHE will review both plans no less frequently than every three years following the date of adoption to determine the need for revision and re

adoption.

Plan revisions, when necessary, will be a public process involving key stakeholders. The procedures will include a notice and public hearing, in accordance with the requirements of 40 CFR 256.03 and 256.60.

Short

- Term Plan to Implement a CCR Regulatory Program through Permits Prior to receiving EPA approval of this new Part 256 CCR P lan and KDHE’s adoption of the specific CCR regulations , KDHE will enforce the CCR rule through ex isting permits held by each CCR

- generating facility

. Through m eetings , site visits, and other correspondence that began in February of 2015, KDHE permit engineers, geologists, and scientists have assessed facility conditions and worked with facility representatives to identify facility upgrades

, changes in operating practic es , and/ or changes to existing permits that are necessary to comply with the CCR rule

. This collaborative effort will prepare facilities to be fully compliant as the new CCR regulatory deadlines arrive . I t will also ensure that KDHE will have had an opport unity to provide important input to facilities prior to establishing official regulatory authority for a ll new requirements. These collaborative efforts will continue as this plan is reviewed and approve d by EPA and as the regulation adoption process takes place through 2016.

Page 2 of 15 18Long

- Term Plan to Adopt the CCR Regulations KDHE is mov ing forward to adopt the federal CCR regulations by reference during late 2015 through 2016. This adoption process will follow or run simultaneous to the EPA review and approval process for this “ State of Kansas Coal Combustio n Residuals Part 256 Plan.” Other existing laws and regulatio ns contain additional state requirements for CCR facilities that are broader in scope or more stringent than the minimum federal standards

. The final ado ption of the CCR regulations should not require updates to the facility permits or associated permit documents because all such requirements will be taken into consideration as permit documents are updated in 2015.

Page 3 of 15 18

### Chapter 2 Compliance with Gener al Part 256 Plan Requirements

History and Approach The State of Kansas established a comprehensive solid waste regulatory program over multiple decades to thoroughly address the objectives of the state solid waste plan required by 40 CFR Part 256

. State laws and implementing regulations accomplish all of the goals and requirements set forth in Part 256.

As explained in Chapter 1, Kansas prepared a plan in the early 1980s in response to the Part 256 federal regulat ion, but a copy or record of that plan cannot be found by either KDHE or EPA. Because state laws and regulations now address all aspects of the plan requirements, a new plan will not be prepared to address each section of Part 256 point by point

. It would be of little value to prepare such a plan at this time because by definition, a plan establishes goal s , objectives and strategies to accomplish th ings yet to be done.

With respect to the original Part 256 requi rements, this Part 256 CCR Plan will explain h ow existing state laws achieve what the original plan would have set as goals and objectives. Some irrelevant parts of the original Part 256 requirements are not addressed, such as federal funding of state planning efforts. The focus of this assessment of state law as it relates to the Part 256 planning requirements will be those areas identified in the preamble to the CCR rule published on April 17, 2015. These minimum requirements set forth by EPA for approval include:

1. Identification of the responsibilities of state

, local, and regional authorities in the implementation of the plan and the means for coordinating regional planning and implementation ; 2. Prohibition on the establishment of new open dumps and the requirement that all solid waste be utilized for resource rec overy or disposed of in landfills meeting the mini m um federal criteria ; 3. Provision for the closing or upgrading of all existing open dumps ; and 4. No prohibition on negotiating or entering into contracts for the supply of solid waste to resource recovery facil ities

. In addition, this plan must address the state approach to enf orcing the new federal CCR rule

. That enforcement strategy is provided in Chapter 3.

Kansas Solid Waste Laws and Regulations In this chapter, the relevant state laws that accomplish the Part 256 goals and requirements are cited and briefly explained. Appendix A contains the cited laws. A detailed review of implementing regulations is not included because state laws adequately establish the system of solid waste planning, permitting, compliance assessment, and enforcement in Kansas. The implementing regulations provide further clarification and detail to help Kansans understand solid waste management requi rements and establish a firm basis for KDHE compliance and enforcement decisions.

Page 4 of 15 18Minimum Requirements of Part 256 Plan

– § 256.01 This section addresses e ach of the four minimum plan requirements

.

1. Identification of the responsibilities of state

, local, and regional authorities in the implementation of the plan and the means for coordinating regional planning and implementation

. State policy recognizing the need for a thorough solid waste planning and regulatory program is set forth in Kansas Sta tutes Annotated ( K.S.A. ) 65

- 3401. This statement of policy includes support for the principles of resource conservation and recovery.

Numerous areas of s tate responsibility are addressed in K.S.A. 65

- 3406 , which relate s to the “d uties and functions of the secretary

. ” This section of law establishes authority for the Secretary of KDHE to adopt rules and regulations with respect to many areas of solid waste management. It addition, it directs KDHE to develop a state solid waste management plan and to assist counties and groups of counties to establish their own local or regional plans.

The state is also authorized by K.S.A. 65

- 3415 to administer a solid waste grant program to pay for part of the local or regional solid waste planning process. This grant program provided millions of dollars in aid to counties and regional planning groups in the 1990s to initially prepare plans.

K.S.A. 65

- 3405 establishes very detailed requirements for counties , designated cities, or regional groups of counties to prepare solid waste management plans. These requirements specify the need for local planning committees, local plan content, annual review and five

- year update requirements, and local plan adoption procedures.

K.S.A 65

- 3410 gives cities and counties the authority to carry out solid waste management practices including the operation of facilities to process and dispose of solid waste. It also authorizes cities and counties to generate revenue to implement solid w aste management plans by assessing fees on waste generators or residents in general.

2. Prohibition on the establishment of new open dumps and the requirement that all solid waste be utilized for resource recovery or disposed of in landfills meeting the min imum federal criteria

.

K.S.A. 65

- 3402(j) defines open dumping as any disposal of solid waste in an area which is not permitted by KDHE. Permits for solid waste processing and disposal areas are granted by KDHE based upon a comprehensive set of laws set fo rth in K.S.A. 65

- 3407. K.S.A. 65

- 3409(a)(1) states that i t is unlawful for any person to dispose of any solid waste by open dumping

. In combination, these statutes prohibit the open dumping of solid waste in any unpermitted location

. It is unlawful for solid waste to be delivered to any location that has not received a permit issued by KDHE. Permitted locations can be landfills or processors, including facilities d esigned to recover material and/ or energy from solid waste.

Page 5 of 15 183. Provision for closing or upgr ading of all existing open dumps

. The same statutory provisions listed in item 2, which require all solid waste to go to permitted solid waste processing or disposal facilities

, serve as the basis for closing or upgrading all open dumps. The permitting la ws of Kansas were initially established in the early 1970s. At that time, all old city dumps and industrial landfill s were closed and/or gradually converted to permitted facilities. In 2015, there are no known operating open dumps. If an open du m p is ident ified by KDHE, enforcement to close the facility will be initiated in accordance with K.S.A. 65

- 3409 and other statutes as appropriate. If any open dump has impacted, or threatens to impact, public health or the environment, KDHE can require appropriate co rrective measures under the authority granted by K.S.A. 65

- 3411. Any new open dump that is identified is either cleaned up by the responsible party, cleaned up by the state in cooperation with local government, or closed in place with the approval of local government

.

4. No prohibition on negotiating or entering into contracts for the supply of solid waste to resource recovery facilities

. In the early 1980s, in response to the original Part 256 requirements, Kansas passed laws to

a ddress the implementation of resource recovery operations in the state. Multiple statutes authorize local governments to become directly involved in providing resource recovery practices, to address ownership of collected waste, and to enter long

- term cont racts to recover energy and/or material from solid waste. The statutes that comprehensively address resource recovery include K.S.A. 65

- 3410, 65

- 3418, 65

- 3421, and 65

- 3423.

Other Part 256 Requirements Kansas laws that specifically address other Part 256 p lan requirements fol low

. If no state laws clearly address the requirements, the method that is followed by KDHE to satisfy those requirements is explained.

§ 25 6.02

- Scope of Part 256 Plans: The local county or regional planning process is comprehensively addressed by K.S.A. 65

- 3405 and implementing regulations. All local plans must address all solid waste types and all practices (transportation, processing, and disposal). The local county/regional plans cover ten years and plans must be rev iewed annually and thoroughly updated every five years. The state (KDHE) must report annually to the legislature regarding the status and adequacy of state laws and program revenue and make recommendations for changes to meet program needs.

§ 256.03

– Adoption and Revision of State Plan: K.S.A. 65

- 3406(a)(5) directs KDHE to develop a state solid waste management plan, but does not specify the administrative procedures to be followed to adopt that plan. The steps listed below describe the plan development and public participation processes leading to adoption of the Pa rt 256 CCR Plan by the Secretary of KDHE :

• Notification of anticipated adoption or revision distributed via the KDHE Bureau of Waste Management newsletter or other means ;

• Plan developed based upon federal requirements, sta te needs, and stakeholder input;

• Notice to adopt the plan posted on the KDHE web site , followed by publication and published in the Kansas Register ;
Page 6 of 15 18• P ublic comments received for at least 45 30 days following posting of the notice on the web site , or at least 30 days after and publication in the Kansas Register , whichever is later ;

• Public hearing held at least 45 30 days after posting the notice on the web site , or at least 30 days after and publication in the Kansas Register , whichever is later

. T he reduced notification requirement for this Part 256 CCR Plan was approved by EPA, in accordance with 40 CFR 25.5(b) and 256.60(c), in a letter to KDHE dated August 6, 2015 ;

• R esp onsiveness summary prepared and

, made available on web site , and sent to individu als who submit comments or request a copy . The responsiveness s ummary contains all comments received during the public comment period and hearing as well as KDHE’s response to comments ;

• Plan finalized and adopted by the Secretary of KDHE.

• Adopted plan posted on KDHE web site

. Items noted above and other relevant information will be posted on the KDHE Bureau of Waste Management comprehensive solid and hazardous waste web site: www.kdheks.gov/waste/

. KDHE will issue press releases, if it is deemed appropriate, to solicit comments and /or announce the adoption of plans.

The plan will be reviewed every three years and revised and readopted when necessary.

§§ 256.10 and 256.11

– Responsibilities to Implement Solid Waste Plans Including Services Related to Solid and Hazardous Waste Management: Multiple state laws assign responsibilities related to implementation of waste management p l ans and compliance with relevant laws and regulations. K.S.A. 65

- 3405 assign s local solid waste planning responsibilities to counties or designat ed cities. Those plans must identify needed services and indi cate whether local government or private sector businesses will provide those services. K.S.A. 65

- 3410 authorizes counties to raise revenue to implement local solid waste management plan s

. Solid waste facilities are prohibited from receiving regulated quantities of hazardous waste [K.S.A. 65

- 3402(a)]

. This prohibition does not include household hazardous waste or conditionally exempt small quantity generator waste , which may be disposed of in muni cipal solid waste landfills and pass through a transfer station.

§§ 256.20 to 256.22

– State Regulatory and Enforcement Powers: The Kansas legislature has empowered KDHE to administer a comprehensive compliance and enforcement program beginning with the establishment of a broad list of unlawful acts [K.S.A. 65

- 3409] , authorization to conduct compliance insp ections [K.S.A. 65

- 3406 (a)(10)] , authorization to issues permits and ensure compliance at all solid waste processing and disposal facilities [K.S.A. 6 5

- 3407] , and authority to develop and enforce a broad range of very specific regulations related to many solid waste management practices [K.S.A. 65

- 3406]

. As mentioned earlier in this chapter, these authorities include KDHE’s directive to close any identi fied open dumps and to administer permitting, inspection, and enforcement options to ensure that no waste is manage d in open dumps

.
§§ 256.30 and 256.31

– Encouragement of Resource Recovery Operations: As explained above under the fourth minimum requirem ent for a Part 256 Plan, Kansas state law establishes policies that encourage local governments to implement resource recovery practices including long

- term contracts to process waste for reuse and recovery. In addition, the statutory statement of policy

Page 7 of 15 18e ncourages the wise use of waste as a resource [K.S.A. 65

- 3401(e)] and other laws facilitate the development of resource recovery projects and practices. For example, K.S.A. 65

- 3415 authorizes KDHE to administer grant programs to assist local governments, n on

- profit organizations, and private businesses to start

- up and enhance projects and programs related to recycling, composting, and household hazardous waste (HHW ) collection. K.S.A. 65

- 3415a(c )(9) authorizes KDHE to expend solid waste management funds collected primarily from a landfill tonnage fee to carry out public education and technical training on solid waste issues, particularly issues related to waste reduction and recovery. KDHE has utilized and will continue
to use this spending authority

, alo ng with a statutory directive in K.S.A. 65

- 3406(a)(9)

, to carry out annual training in a statewide conference on recycling, composting, HHW, and energy recovery from waste. KDHE has also been statutorily directed to carry out research or studies related to solid waste management to enhance state practices including resource recovery [K.S.A. 65

- 3406(a)(7)]

. This has included municipal solid waste compositions studies at landfills. Additional studies will periodically be carried out to assess the changing nat ure of the waste stream and the potential for improved waste recovery activities.

§§ 256.40 to 256.42

– Facility Planning: Kansas state law authorizes counties to plan for the types of solid waste facilities that are needed and that will be established to meet those needs, including both publicly and privately owned and operated facilities. The planning laws and authorities ar e specified in K.S.A. 65

- 3405. Local governments must also verify that any proposed solid waste processing or disposal facility is consistent with their local plan as part of the facility permit applica tion process [K.S.A. 65

- 3407(m)]

. The Kansas Legislature requires KDHE to perform an annual assessment of the state solid waste program including the adequacy of state funding to carry out the responsibilities set forth in state law. This reporting requirement is specified in K.S.A. 65

- 3415a(h). In 2 013, a special assessment of statewide resources and recovery/waste reduction activities was required which involved : 1) the preparation of a written report submitted to the Legislature ; and 2) a Legislative hearing on the adequacy of state wide practices [ K.S.A. 65

- 3410b]

. This report established an ongoing review process for KDHE to annually repeat the assessment of waste reduction adequacy.

§ 256.50

– Coordination with Other Programs: The Kansas solid waste program coordinates fully with the KDHE water a nd air programs. This coordination is specified in statute, regulation, and agency policy. Examples follow:

• It is unlawful to burn solid waste unle ss authorized under the Kansas Air Q uality Act [ K.S.A. 65

- 3409(a)(4) ]

.

• Any solid waste processing or disposal area that has a point sour ce discharge must comply with a National Pollutant Discharge Elimination System ( NPDES ) permit issued pursuant to K.S.A. 65

- 164 et seq

. (Kansas W a ter L aw). This requirement is specified in Kansas Administrative Regulation (K.A.R. ) 28

- 29

- 23 (q).

KDHE coordinates with other agencies and regulatory programs regarding solid waste facility location, design, and operation issues including: wetlands and floodplains ( U.S. Army Corps of Engineers ), t he Kansas historic preservation act (Kansas State Historical Society) , landfill gas (KDHE Bureau of Air) , storm water permitting (KDHE Bureau of Water) , and zoning ( local government planning agencies). Comments on every landfill permit are also sought from : the U.S. Fish and Wildlife S ervic e; the Division of Water Resources within the K ansas Department

Page 8 of 15 18of Agriculture (KDA) ; the Ka nsas Department of Wildlife

, Parks and Tourism ; the Kansas Biological Survey ; the Kansas Corporation Commission; the Kansas Geological Survey; the State Conservatio n Commission within the KDA Division of Conservation ; and Kansas Water Office

.
§§ 256.60 to 256.65

– Public Participation: Public participation related to this state plan was addressed above under § 256.03 on adoption and revision. KDHE maintains a list comprise d of people who have been identified as potentially interested in solid waste issues (e.g. county commissioners) and individuals who have requested to be placed on the list. These people receive a newsletter which includes information on planned up dates to solid waste management plans when appropriate. Co unty commissions are required to hold public hearings regarding county/regional plans prior to new or updated plan adop tion actions [K.S.A. 65

- 3405(d)]

. The state public participation process related to all solid waste permit actions has been established in state regulations based upon the department’s general authority to adopt rules and regulations related to the entire permitting process [ K.S.A. 65

- 3406(a)(12) ]

. Public participation in the s tate regulatory process is established in the Kansas Ru les and Regulations Filing Act [K.S.A. 77

- 415 through 77

- 43 8 ] . Both of these are discussed in more detail in Chapter 3.

There is no routine public notification or participation as part of KDHE’s solid waste program compliance and enforcement procedures b ecause facilities typically come into compliance within 30 to 60 days. When illegal disposal at an open dump is identified, local government officials are involved in the removal or closure decisions, u nless the waste is promptly removed by the responsible party. Compliance and enforcement information is available to the public under the Kansas Open Records Act.

Page 9 of 15 18

### Chapter 3 Implementation of the CCR Rule in Kansas

Introduction This c hapter of the “State of Kansas Coal Combustion Res iduals 256 Plan” addresses the solid waste management p lan requirements of 40 CFR Part 256 with respect to the disposal of CCR from electric utilities. This chapter also describes how Kansas will implement and enforce the
stan dards contained in 40 CFR 257 Subpart D

– Standards for the Disposal of Coal Combustion Residuals in Landfills and Surface Impoundments.

State Legal Authority As described in Chapter 2, Kansas has adequate legal authority to prohibit the establishment of new open dumps and to close or upgrade existing open dumps. K.S.A. 65

- 3409(a) prohibits the disposal of solid waste, including CCR, by “open dumping”, as defined in K.S.A. 65

- 3402(j); K.S.A. 65

- 3419 provides enforcement authority for any violation of K.S.A . 65

- 3409(a). Since surface impoundments temporarily store solid waste, they are classified as solid waste processing facilities and therefore are not considered open dumps.

State Regulatory Powers Kansas currently has authority to enforce disposal and management standards for solid waste, including CCR, which are equivalent to or more stringent than the requirements of 40 CFR 257.

K.S.A. 65

- 3406 authorizes and directs the Secretary of KDHE to: adopt solid waste management regulations and standards nece ssary to protect the public health and environment; issue permits and orders; and conduct inspections.

K.S.A. 6 5

- 3407 states that, with some exceptions: “...no person shall construct, alter or operate a solid waste processing facility or a solid waste disp osal area of a solid waste management system, except for clean rubble disposal sites, without first obtaining a permit from the secretary.” CCR landfills fall under the definition of a solid waste disposal area in K.S.A. 65

- 3402(d) and CCR surface impoundm ents fall under the definition of a solid waste processing facility in K.S.A. 65

- 3402(c); both are subject to the permitting requirement.

K.A.R. 28

- 29

- 7 (a) , regarding conditions of permits, states that the secretary shall stipulate: “...special operating co nditions, procedures, and changes necessary to comply with these and other state or federal laws and regulations.”

In addition, each permit in place for electric utilities that are managing CCR contains the following general condition: This permit is subj ect to modification by the department at the time of any scheduled renewal or: (a) whenever the modification is needed to reflect changed state or federal rules, (b) to incorporate changes in the facility operations or closure plan, (c) to make other modif ications proposed by the permittee and approved by the department, (d) whenever the department determines that modification is necessary to prevent or reduce actual or potential hazard(s) to the public health or safety, or pollution or contamination of the environment or, (e)
Page 10 of 15 18because of changed or unforeseen circumstances. The filing of a request by permittee for a permit modification, or the filing of a notice of anticipat ed noncompliance does not stay any permit condition. Approval from KDHE must be obtai ned prior to any modifications to the landfill design, operational and closure plans approved with this permit or any development of new cells not detailed in those plans. Any minor modifications approved by KDHE are incorporated by reference.
Therefore, u ntil Kansas adopts 40 CFR 257 Subpart D by reference, the state can estab lish standards which are equivalent to or more stringent than th e federal regulations through permit modifications.

Authority to inspect facilities and obtain records and samples is provided by K.S.A. 65

- 3406(a)(10) and K.A.R. 28

- 29

- 16. C ertain reporting requirements are established in K.A.R. 28

- 29

- 23(f)

, which also allows KDHE to establish additional reporting requirements in permit conditions.

Administrative and judicial enforcemen t capabilities to ensure compliance, including enforcement of orders and permit conditions and imposition of penalties , are provided by K.S.A. 65

- 3409 and 65

- 3419.

Kansas will clarify its authority to enforce CCR disposal standards by adopting 40 CFR 257 Subpart D by reference in 2016.

Status of Coal

- Fired Power P lants in Kansas Kansas currently has seven electric utilities that are managing CCR in one or more landfills (LFs) and/or surface impoundments (SIs):

Permit Owner

- Facility County LF(s) SI(s)

413 Kansas City Board of Public Utilities

– Nearman Creek Wyandotte Yes * Yes
210 Kansas City Board of Public Utilities

– Quindaro ** Wyandotte Yes No
420 Holcomb Common Facilities, LLC

– Holcomb Station Finney Yes No
359 Westar Energy, Inc.

– Jeffrey Energy Center Pottawatomie Yes Yes
337 Kansas City Power & Light Company

– La Cygne Linn Yes Yes
847 Westar Energy, Inc.

– Lawrence Energy Center Douglas Yes Yes
322 Westar Energy, Inc.

– Tecumseh Energy Center Shawnee Yes Yes

* This landfill is inactive and it is anticipated that it will not be subject to the requirements of 40 CFR 257 Subpart D.

** BPU

- Quindaro has phased out coal combustion and is now using natural gas to produce electricity. The facility has no surface impoundments and plans to cease disposal of CCR in the landfill before October 19, 2015

. It is anticipated, therefore, that th is facility will not be subject to the requirements of 40 CFR 257 Subpart D.

Kansas has solid waste permits in place at all electric utilities in the s tate that are subject to the CC R rule. These permits primarily address the CCR landfills at each facility, but will be modified to include CCR surface impoundments , as necessary

. Each solid waste permit contains:

Page 11 of 15 18• General conditions

• A design plan

• An enginee ring report

• An operating plan

• A groundwater monitoring plan

• A sampling and analysis plan

• A closure plan

• A post

- closure plan

• Evidence of financial assurance

Priority Facilities Kansas has no priority facilities. No facilities have been identified as posing an exceptional risk to public health or the environment and all should be in compliance with 40 CFR Subpart D regulations by the relevant deadlines.

Compliance Schedules Kansas does not anticipate that any facility will be classified as an “open dump” requiring a compliance schedule. However, if a facility requests an extension to any of the compliance dates in the CCR rule, Kansas will evaluate the request in accordance with federal guidelines including consideration of the following:

• Whether other disposal units can be used ;

• Whether the facility has made a good faith effort to meet compliance deadline s;

• Whether there are factors beyond the facility’s control that have m ade it unable to meet the compliance deadlines ;

• Documentation from the facility supporting their claims and/or the results of an independent investigation ;

• The technical complexity of the requirements, the activities that remain to be completed, the

reason s for the lack of compliance, and other site

- specific factors such as geology, geography, weather, and engineering considerations. Any approved compliance schedule would identify the specific activities that remain to be completed, along with clear and enf orceable deadlines for each , and follow the public participation requirements of 40 CFR 256.64

.

Short

- T erm Implementation of CCR Rule through Permit s The six coal

- fired electric utilities in Kansas that will be subject to the 40 CFR 257 Subpart D regulati ons will modify their solid waste permits to address the new CCR rule . In general the modifications will address the following items, which have initial Subpart D deadlines in 2015 and 2016:

• Documentation of whether existing CCR SIs are lined or unlined pe r 40 CFR 257.71

• Documentation of construction history, initial hazard potential classification assessment, initial structural stability assessment, and initial safety factor assessment for all existing SIs per 40 CFR 257.73

• Installation of a permanent identification marker at each SI per 40 CFR 257.73

• Preparation/update of the fugitive dust control plan per 40 CFR 257.80

• Preparation/update of a run

- on/run

- off control system plan for all LFs per 40 CFR 257.81

Page 12 of 15 18• Preparation/update of an inflow design flood control system plan for all SIs per 40 CFR 257.82

• Monthly monitoring of CCR SI instrumentation per 40 CFR 257.83

• Weekly and annual inspections of CCR units per 40 CFR 257.83 and 257.84

• Preparation/update of the closure plan for each CCR unit per 40 CFR 257 .102

• Preparation/update of the post

- closure care plan per 40 CFR 257.104

• Recordkeeping per 40 CFR 257.105

• Notifications to KDHE per 40 CFR 257.106

• Creation of a CCR website web site per 40 CFR 257.107

In addition, these facilities will:

• Update the “Plat” or “Certificate of Survey” to delineate and label the facility boundary and the limits of all existing and proposed CCR units within the facility boundary.

• Identify all the “uniquely associated wastes” listed in 40 CFR 261.4(b)(4), provide the quantities that are generated by the facility, and describe how and at what location these wastes are managed.

• Define the curren t groundwater monitoring system and propose a system that meets the requirements of 40 CFR 257.91.

• Update the Sampling and Analysis Plan to mee t the requirements of 40 CFR 257.93 and 257.94.

Facility permits will continue to be updated a s necessary to ensure compliance with requirements of the CCR rule that have deadlines after 2016.

Applicable Kansas Statutes (K.S.A.) and Regulations (K.A.R.) Kansas already has regulations in place that apply to CCR landfills and surface impoundments. (Existing requirements that are more stringent or broader in scope than 40 CFR 257 Subpart D are indicated with an asterisk.) These include the following:

KDHE Bureau of Waste Management (BWM) The following can be found in Appendix A:

• K.S.A. 65

- 3407, which contains permitting requirements including: background investigations of permit applicants * ; permit fees * ; plans and data; permit conditions*; financial a ssurance * ; liability insurance * ; requirements for transferring permits; location restriction (would only apply to a new permit for an off

- site CCR landfill)*; zoning certification * ; and proof of land ownership * ;

• K.A.R. 28

- 29

- 6, which requires permits for s olid waste disposal areas and processing facilities * ;

• K.A.R. 28

- 29

- 6a and BWM Policies 98

- 05 an d 04

- 02 , which require public participation for new permit s and major modifications to permits*;

• K.A.R. 28

- 29

- 7 through 28

- 29

- 10, which address conditions, modification, suspension, denial, and revocation of permits*;

• K.A.R. 28

- 29

- 12, which requires permitted facilities to have a closure plan and, where wastes remain on

- site, to have a post

- closure care plan and conduct post

- closure care of the si te for at least 30 years;

Page 13 of 15 18• K.A.R. 28

- 29

- 16, which gives KDHE the authority to conduct inspections ;

• K.A.R. 28

- 29

- 19, which gives KDHE the authority to require environmental monitoring;

• K.A.R. 28

- 29

- 20 , which gives KDHE the authority to require a restrictive covenant and/or
easement * ;

• K.A.R. 28

- 29

- 20a, which requires monitoring analyses to be conducted by a KDHE

- certified laboratory * ;

• K.A.R. 28

- 29

- 2 3 , which very generally addresses: methods of disposal and processing, planning and design, location restrictions , access roads * , recordkeeping and reports * , air quality, facility communications * , fire protection * , access control * , signage * , safety
program * , disease vector control * , odor and particulate control, gas control, water pollution, maps, disposal of hazardous waste, and adoption of 40 C FR 257.3

- 5 and 257.3

- 6;

• K.A.R. 28

- 29

- 25 (b) , which requires plans and specifications for solid waste disposal areas and processing facilities not otherwise provided for in the solid waste regulations;

• K.A.R. 28

- 29

- 84 and KDHE Division of Environment Policy “Permit Renewal Fees for Generator Owned/Operated Industrial Waste Landfills,” which set permit fees* ;

• BWM Policy 02

- 02, which requires a 5

- foot separation from groundwater at all new solid waste disposal facilitie s;

• BW M Policy 05

- 01, which requires applicants for new solid waste landfills and significant modifications of an existing solid waste landfill to notify the following agencies*: Kansas Biological Survey; Kansas Corporation Commission; K DA

- Division of Water Reso urces; Kansas Department of Wildlife, Parks and Tourism ; Kansas Geological Survey; K DA

- State Conservation Commission; Kansas State Historical Society; Kansas Water Office; U.S. Army Corps of Engineers; and U.S. Fish and Wildlife Service ; and

• BWM Policy 2014

- P1, which addresses post

- closure permit r enewal and financial

assurance

. *

KDHE Bureau of Water (BOW)

• K.A.R. 28

- 16

- 160 et seq. , which regulate industrial wastewater lagoons if not permitted as a solid waste processing facility or solid waste landfill [K.A.R. 28

- 16

- 160(ii)] . Because these regulations will not apply to CCR units that are permitted by BWM, they are not considered more stringent or broader in scope than the CCR regulations, and are not included in the Appendices.

K DA

- Division of Water Resources (DWR) The following can be found in Appendix B:

• K.S.A. 82a

- 301 et seq

. and implementing regulations at K.A.R. 5

- 40

- 1 et seq. , which regulate dams

. Compliance Assessments and Enforcement Strategy KDHE believes that existing state laws, regulation s, and landfill permit conditions already authorize KDHE to enforce the standards set forth in the April 17 , 2015 CCR rule. Pending the adoption of the specific CCR regulations, KDHE will ensure that facility permits are modified as necessary along with facility op erating plans and other permit documents to fully conform to the CCR requirements. The existing solid waste permits for CCR disposal contain general permit conditions that authorize KDHE to modify the permit whenever necessary to conform to new or revised state or federal laws and regulations. Those permits and all associated design and
Page 14 of 15 18operating plans are enforceable documents under Kansas state law [K.S.A. 65

- 3409(a)(3)]

. Compliance with the updated permit conditions and associated documents will be asses sed by KDHE inspectors and permitting staff. These facilities are inspected by KDHE district staff at least once each year.

Since current conditions at coal combustion facilities differ, updates needed to facility design, operating, and closure plans will also differ. At a minimum, KDHE will ensure that permits are updated to address all CCR

- regulated units and that facilities complete modifications to all permit documents in accordance with all new federal deadlines. With these changes to permits and othe r permit documents, KDHE will have clear au thority to enforce the new CCR rule whenever operations are assessed through compliance inspections or when permits are annually renewed. KDHE’s enforcement authority does not require the adoption of the new regul ations because all requirements will be enforced through permits. Nevertheless, for purposes of clarity and consistency, KDHE will move forward to adopt the federal CCR regulations by reference

.

KDHE’s short

- term approach to assess compliance and carry ou t enforcement as necessary will depend heavily upon the revised permit documents and conditions; however, it should be emphasized that Kansas’ existing laws and regulations address many of the requirements in the CCR rule, though in a general way. These la ws and regulations provide additional basis and authority to require permit modifications before the adoption of the CCR regulations.

Because the initial regulatory deadlines arrive in October 2015, six months after the CCR rule was published in the Fede ral Register, it is possible that some permit documents will not be modified and approved by KDHE to address the new rule before that date. In those cases, the rule will still be in effect because the regulations are self

- implementing, but KDHE’s enforceme nt authority could lag behind the regulatory deadline s for a brief period of time. Since the CCR rule will be in effect regardless of whether the facility permits and other documents have been revised, KDHE expects facilities to move forward with plan modi fications in an expedited manner.

Long

- T erm Plan to Adopt CCR Regulations As discussed in Chapter 1, KDHE will be adopting 40 CFR Subpart D by reference. Certain modifications and substitution of terms Kansas will be necessary to make follow EPA guidelines for the adoption of r egulations applicable to Kansas. However

, b y r eference and will consult with EPA while drafting the regulations to ensure that modifications are consistent with the federal criteria

. T he regulations will not be modified to make them any more or less stringent than the Federal regulations and existing state re quirements

. After the proposed regulations are drafted by KDHE, they go through multiple reviews and a
two

- month public comment period ; t he regulation adoption process is described in more detail in a subsequent section entitled “ Public Participation. ” Th e adoption process takes a minimum of six months after the proposed regulations have been approved by the Secretary of KDHE. The Bureau of Waste Management plans to have proposed regulations approved by the Secretary by the end of 2015 and in effect someti me in 2016.

Page 15 of 15 18Coordination with O ther Environmental Programs Most of the requirements of 40 CFR Subpart D will be regulated by BWM , however

, certain requirements will be regulated under or in coordination with other State programs.

Title V Ai r Quality permits issued by the KDHE Bureau of Air ( BOA ) contain dust control measures at coal

- fired power plants. The fugitive dust control requirements of 40 CFR 257.80 will be addressed in the BWM solid waste permit in coordination with BOA

. The requir ements of 40 CFR 257.82(b), concerning the outflow of surface impo undments, will be regulated by BOW under NPDES permits. BOW will also issue NPDES construction stormwater permits for any construction sites of one acre or more.

DWR regulates the construct ion, op eration, and maintenance of dam s that: 1) have a height of 25 feet or more; or 2) have a height of six feet or more and a storage volume of 50 acre

- feet or more. Dams in the higher DWR hazard classes are inspect ed by the State every three years or every five years. Some CCR facilities have dams that are on the DWR inspection schedule. These DWR inspections will not replace the annual inspections required under 40 CFR 257.83(b), however information from the annual inspections will be shared with the DWR. Siting of new facilities will be approved in coordination with other agencies, as described in Chapter 2.

Public Participation

Permits New CCR permits and significant modifications of CCR permits for solid waste disposal and processing facilities are subject to the public participation process. K.A.R. 28

- 29

- 6a sets forth the public notice and hearing requirements for municipal solid waste landfill permits, and Bureau of Waste Management policy 98

- 05 extends this requirement to other soli d waste facilities, including industrial landfills and solid waste processing facilities.

For all new permits and significant modifications of permits, public meetings are held in accordance with BWM Policy 04

- 02 , after which a public notice of the permit is posted in the Kansas Register . There is a 30

- day public comment period and, if there is sufficient public interest, a public hearing. A response to comments is made available to the public when the final permit decision is issued. Two examples of signi ficant modifications are: 1) the addition of a new CCR management unit; and 2) the lateral expansion of an existing unit into a previously unpermitted area.

There is no public participation process for the annual permit renewals , because ther e is not a significant degree of public interest

. The annual permit renewal is an administrative process, only requiring submission of the following:

• The renewal fee, if applicable;

• Proof of liability insurance;

• Current closure and post

- closure care cost estimates; and

• Proof of financial assurance for closure and post

- closure care.

Page 16 of 15 18CCR permit s that are modified to incorporate all existing CCR units (such as surface impoundments and CCR piles)

, rather than add new disposal units or surface impoundments, will be subj ect to a modified public participation process. Full public disclosure of how all CCR will be managed at the facility will be accomplished through a public notice and public comments will be accepted , however there will be no public meetings or public hear ing. This modified public participation approach is justified because these units were already in operation under the oversight of the KDHE Bureau of Water; the only change is the permit and regulations under which these units will be regulated.

Regulatio ns Stakeholder input is routinely sought in the development of new and amended regulations. The Bureau of Waste Management has already held stakeholder meetings to discuss implementation of the CCR rule in Kansas.

In accordance with the Kansas R ules and R egulations Filing Act, K.S.A. 77

- 415 through 77

- 43 8 which can be found in Appendix C, the State regulatory development process includes:

• Preparation of an Economic and Environmental Impact Statement;

• Consultation with the League of Kansas Municipalities, the Kansas Association of Counties, and the Kansas Association of School Boards, as appropriate;

• Approval by the Secretary of Administration ;

• Approval by the Attorney General;

• Publication of a public hearing notice, which includes a summary of the proposed regulations, in the Kansas Registe r

. The hearing notice, proposed regulations, and regulatory impact statement are posted on the KDHE web site ;

• Submission of the public hearing notice, proposed regulations, and Economic and Environmental Impact Statement to the Citizens Regulatory Review Board;

• A public comment period of at least 60 days;

• Review and comment by the Joint Committee on Administrative Rules and Regulations;

• A public hearing;

• Revisions to regulations if required;

• Preparation and distribution of a responsiveness summ ary . The responsiveness summary contains all comments received during the public comment period and hearing as well as KDHE’s response to comments

. It is made available on the KDHE web site, and s ent to individuals who submit comments or request a copy ;

• Adoption by the Secretary;

• Publication of the adopted regulations in the Kansas Register

. The process, from the time the regulations are submitted to the Secretary of Administration to publication in the Kansas Register takes a minimum of six months; the process can take significantly longer depending on the time needed for the review by the Secretary of Administration and the Attorney General.

During In addition to the required notifications listed above, the KDHE Bureau of Waste Management informs the public comment period

, the public hearing notice, proposed and key stakeholders of regulat ions , and Economic that are being drafted, regulations proposed for

Page 17 of 15 18adoption

, and Environmental Impact Statement are made available to all interested parties regulations that have been adopted, though one or more of the following, as appropriate:

• The KDHE Division of Environment Regulatory Agen da, which is posted on the KDHE web site at www.kdheks.gov/befs

. ;

• T he KDHE Bureau o f Waste Management newsletter ;

• Letters and emails to stakeholders; and

• Stakeholder meetings

.

Page 18 of 15 18