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# i DRAF T

ENVIRONMENTA

L PROTECTIO

NAGENC Y 4 0 CFR Part s 110 , 117 , 300 , an d 30 2 [ ] Reportabl e Quantitie s - - Federall yPermitte d Release s AGENCY : Environmenta l Protectio n Agency(EPA ) ACTION : Propose d Rul e

SUMMARY : Section s 103(a ) an d 103(b ) o f th e Comprehensiv e Environmenta l Response , Compensation , an d Liabilit yAc t o f 198 0 (CERCLA ) requir e tha t person s i n charg e o f vessel s o r facilitie s fro mwhic hhazardou s substance s hav e bee n release d i n quantitie s tha t ar e equa l t o o r greate r than the reportabl e quantitie s immediatel ynotif yth e Nationa l Respons e Cente r o f th e release . Sectio n 102(b ) set s a reportabl e quantit yo f on e poun d fo r hazardou s substances , excep t thos e fo r whic hreportabl e quantitie s hav e bee n establishe d pursuan t t o Sectio n 311(b)(4 ) o f th e Clea n Wate r Act . Sectio n 102(a ) authorize s th e Environmenta l Protectio n Agenc yt o adjus t reportabl e quantitie s for hazardou s substance s an d t o designat e a s hazardou s substance s thos e substance s which , whe n release d int o th e environment , ma ypresen t substantia l dange r t o th e publi c healt ho r welfar e o r th e environment . Th e notificatio n requiremen t unde r Section s 103(a ) an d 103(b ) applie s t o an yreleas e o f a hazardou s substanc e "othe r than a federall ypermitte d release. " Sectio n 107(j ) o f CERCL Aals o exempt s a "federall ypermitte d release " fro

mliabilityfo r respons e cost s an d damage s unde r CERCL Aincurre d du e t o th e release . Sectio n 101(10 ) o f CERCL Adefine s "federall ypermitte d release " i n terms o f the discharg e requirement s o f a numbe r o f Stat e an dP. 2 T < • -2

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Federa l programs . Th e purpos e o f thi s rulemaking i s t o clarif ythi s exemptio n fro mCERCL Areleas e reporting an d liabilityprovisions . Th e Agenc yals o propose s i n thi s rul e t o mak e conforming change s t o the languag e o f 4 0 CFR Part s 11 0 an

d 117 . Finally , thi s rulemaking addresse s severa l issue s relate d t o th e definitio n o f "releas e int o th e environment " unde r CERCLA . DATES : Comment s mus t b e receive d o n o r befor e __ . ADDRESSES : Comment s shoul d b e submitte d i n triplicat e to : EmergencyRespons e Division , Docke t Clerk , Attention : Docke t Numbe r , Roo mLG-100 , U.S . Environmenta l Protectio n Agency , 40 1 MStreet , S.W. , Washington , D.C . 20460 . Copie s o f material s relevan t t o thi s rulemaking ar e kep t i n Roo mLG-100 , a t th e abov e address . Th e docke t i s availabl e fo r inspectio n betwee n 8:0 0 a.m . an d 4:0 0 p.m . Monda

ythroug

hFriday , excluding holidays . As provide d i n 4 0 CFR Par t 2 , a reasonabl e fe e mayb e charge d fo r copying services . FOR FURTHE R INFORMATIO NCONTACT : Ms . Barbar a Hostage , Senio r Projec t Office r Respons e Standard s an d Criteri a Branc h Emergenc yRespons e Divisio n (WH-548B ) U.S . Environmenta l Protectio n Agenc y 40 1 MStreet , S.W . Washington , D.C . 2046 0
o r th e RCRA/Superfun

d Hotlin e ' l-(800 ) 424-9356 ; i n Washington , D.C , l-(202 ) 382-300 0 SUPPLEMENTAR

Y INFORMATION : Th e content s o f today' s preambl e ar e listed i n th e following outline : I . Introductio n an d Genera l Comment s II . Element s o f th e Exemptio n III . Release s int o th e Environmen t - - A . I n Genera l B . PCB Wast e Disposa l IV . Summar

yo f Supporting Analyse sP. 3

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I . INTRODUCTIO

NAN D GENERA

L COMMENT S Th e Comprehensive Environmenta l Response , Compensation , an d Liabilit yAc t o f 198 0 (P.L . 96-510) , 4 2 U.S.C . 960 1 e t seg . (CERCL Ao r the Act) , enacte d o n Decembe r 11 , 1980 , establishe s broad federa l authorityt o respon d t o release s o r threat s o f release s o f hazardou s substance s fro mvessel s an

d facilities . Sectio n 101(14 ) o f the Ac t define s the ter m"hazardou s substances " b

yreferenc e t o othe r environmenta l statute s wit hauthorit y furthe r grante d t o the Environmenta l Protectio n Agency(EPA ) t o designat e additiona l hazardou s substance s unde r CERCL ASectio n 102(a) . Th e CERCL Alis t currentl ycontain s 71 7 hazardou s substances . Section s 103(a ) an

d (b ) o f the Ac t requir e that , a s soon a s th e perso n i n charg e o f a vesse l o r facilityha s knowledg e o f a releas e o f a hazardou s substanc e fro

msuc hvesse l o r facilityi n a quantit yequa l t o o r greate r than th e reportabl e quantit y(RQ ) for tha t substance , tha t perso n shal l notif yth e Nationa l Respons e Cente r (1-800-424-8802 ; i n th e Washington , D.C . metropolitan area , 1-202-426-2675) , immediately . Sectio n 102(b ) o f CERCL Aestablishe s RQ s fo r release s o f designate d hazardou s substance s a t on e pound , excep t for thos e substance s fo r whic hRQ s wer e establishe d pursuan t t o Sectio n 31 1 o f the Clean Wate r Ac t (CWA) . Sectio n 10 2 o f CERCL Aauthorize s EP

At o adjus t al l o f thes e RQs . On e o f th e exemption s fro mSectio n 10 3 reporting requirement s i s for "federall ypermitte d releases. " Th e definitio n o f "federall ypermitte d release " i n CERCL

ASectio n 101(10 ) specificall yidentifie s release s permitte d unde r othe r environmenta l statutes , including :P. 4

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

mpermit ;

• Discharge s i n complianc e wit ha legall yenforceabl e permi t fo r dredge d o r fil l material s unde r Sectio n 40 4 o f th e CWA ;

• Release s i n complianc e wit ha legall yenforceabl e Resourc e Conservatio n an d RecoveryAc t (RCRA ) hazardou s wast e managemen t facilityfina l permit ;

• Release s i n complianc e wit ha legall yenforceabl e permi t unde r th e Marin e Protection , Research , an d Sanctuarie s Act ;

• An yinjection s o f fluid s authorize d unde r federall y approve d undergroun d injection contro l program s (includin

g federall yauthorize d stat e programs ) pursuan t t o Par t C o f the Saf e Drinking Wate r Act ;

• An yai r emission s subjec t t o permi t o r contro l regulation s unde r certai n provision s o f the Clean Ai r Ac t (CAA) ;

• An yinjection s o f fluid s o r othe r material s authorize d b yapplicabl e Stat e la wfo r the purpos e o f stimulating o r treating well s fo r th e productio n o f crud e oil , natura l gas , o r water , o r fo r othe r productio n o r enhance d recover

ypurposes ;

• Th e introductio n o f an ypollutan t int o a publicl y owne d treatmen t work s whe n suchpollutan t i s specifie d i n an d i n complianc e wit hpretreatmen t standard s an d a pretreatmen t progra msubmitte d t o EP

Afo r approval ; an

d

• An yreleas e o f source , specia l nuclear , o r byproduc t materia l i n complianc e wit ha legall yenforceabl e license , permit , regulation , o r orde r issued pursuan t t o th e Atomi c Energ

yAct . I n th e Ma

y25 , 198 3 Notic e o f Propose d Rulemaking (NPRM ) (4 8 F R 23552 ) tha t propose d t o adjus t certai n RQs , EPAexplaine d th e Agency' s interpretatio n o f eac ho f th e type s o f release s exempte d b ythe definitio n o f "federall y permitte d release. " EPAha s decide d t o repropos e the rul e fo r federall y permitte d release s toda yrathe r than publis hthi s a s a fina l rul e becaus e o f th e amoun t o f time tha t ha s passe d sinc e th e origina l proposal . EP Areceive dP. 5

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man ycomment s o n variou s aspect s o f th e federall ypermitte d releas e exemption , mos t o f whic hurge d a broade r interpretatio n o f on e o r mor e o f the federall y permitte d releases . Genera l comment s o n th e scop e o f exemptio n ar e discusse d below , followe d b

ydiscussio n o f comment s o n specifi c type s o f federall y permitte d releases . Severa l commenter s discusse d the potentia l duplicatio n betwee n CERCL A reporting requirement s an d reporting requirement s unde r existing permi t program s fo r release s exceeding level s se t b yth e terms o f th e permit . Thes e commenter s suggeste d that , becaus e permi t program s mayalread yrequir e notificatio n o f a regulator yauthorit yi n the even t o f a releas e exceeding permi t levels , suc hrelease s shoul d b e exemp t fro mCERCL Anotificatio n requirements . EP

Adoe s no t agre e tha t suc hrelease s shoul d b e considere d "federall ypermitted " o r tha t theyshoul d b e exemp t fro mnotificatio n whe n permitte d level s ar e exceede d b yan RQ o r more . Moreover , CERCL ASectio n 101(10 ) generall ylimit s the federall ypermitte d releas e exemptio n t o thos e release s "i n complianc e with " permitte d o r regulator yrequirements . A straightforwar d interpretatio n o f th e statut e indicate s tha t i f a releas e exceed s permitte d levels , i t i s no t "i n complianc e with " th e permi t an d canno t b e "federall ypermitted. " Ther e ar e significan t difference s betwee n th e purpose s serve d b yCERCL A notificatio n an

d th e purpose s o f permi t programs . Th e permi t notificatio n requirement s an

d th e informatio n tha t i s reporte d unde r permi t program s ma y diffe r fro

mon e progra

mt o another . I f permi t notificatio n requirement s wer e allowe d t o suffic e fo r CERCL Anotification , the informatio n availabl e t o th e CERCL Aprogra

mo n release s mayb e inconsisten t an d incomplete . Permi t program s als o diffe r i n thei r reporting mechanism s an d d o no t alway s requir eP. 6

immediat e notification . I n some cases , release s i n exces s o f permitte d level s nee d onl yb e reporte d a t specifi c interval s (e.g. , monthly) . Moreover , release s i n exces s o f permi t level s ar e reporte d t o differen t federa l an d stat e authorities , depending upo n the permi t involved . CERCL Arequire s immediat e notificatio n t o a centra l office , the Nationa l Respons e Center , a s soo n a s th e perso n i n charg e ha s knowledg e o f a release , s o tha t timel y respons e mayb e initiated i f EP Adetermine s tha t the releas e ma ypresen t substantia l dange r t o publi c healt ho r the environment . EPArecognize s tha t it s interpretatio n mayresul t i n some duplicatio n o f notificatio n requirements . Nevertheless , the Agenc ybelieve s tha t thi s interpretatio n i s require d b yth e plai n languag e o f th e statut e an d i s essentia l t o ensur e adequat e protectio n o f publi c healt han d th e environment . Moreover , EP

Ai s no t convince d tha t requiring person s i n charg e o f a vesse l o r facilityt o mak e on e additiona l phon e cal l t o a toll-fre e numbe r constitute s a n undu e burde n o n th e regulate d community . I n th e Agency' s view , th e benefit s o f immediatel yreporting potentiall yharmfu l release s t o a centra l agencyoutweighan

ymino r additiona l requirement s imposed on releaser s o f hazardou s substances . Severa l commenter s recommende d tha t release s b e considere d federall y permitte d release s (an d therefor e exemp t fro mCERCL Anotificatio n requirements ) i f theyar e exemp t fro mregulatio n b

yth e statute s listed i n CERCL ASectio n 101(10) . However , th e exemptio n o f a typ e o f releas e fro m regulatio n unde r a particula r statut e ma yhav e littl e o r n o bearing o n whethe r a federa l respons e actio n migh t b e neede d regarding a specifi c release . Therefore , th e Agencyha s determine d tha t release s exemp t fro mregulatio n b

y th e statute s listed i n Sectio n 101(10 ) wil l no t b e considere d federall y> * * • - 7 - P. 7

permitte d releases . Fo r example , discharge s o f dredg e o r fil l materia l fro m norma l farming , silvicultur e an d ranching activitie s whic har e exempte d unde r CW ASectio n 404(f ) fro mdredg e an

d fil l permi t requirement s ar e no t "federall y permitted " fo r purpose s o f CERCL Aan d mus t b e reporte d whe n th e discharg e contain s hazardou s substance s whic hhave bee n release d i n amount s equalling o r exceeding th e applicabl e RQs . On e commente r requeste d tha t a releas e stil l b e considere d a federall y permitte d releas e whe n ther e i s onl ya "technical " violatio n o f permi t condition s (i.e. , wher e th e violatio n relate s t o operating procedure s an d doe s no t affec t the characte r o r quantit yo f th e release) . EP Aagree s tha t notificatio n o f the Nationa l Respons e Cente r woul d b e unnecessar yi n suc ha cas e an d shoul d b e addresse d b ythe permi t program s a s a permi t violation . I f th e characteristic s o f a releas e (boththe substanc e involved an d th e quantit y o r concentration ) ar e i n complianc e wit ha permi t describe d i n Sectio n 101(10) , CERCL

Anotificatio n wil l no t b e required . However , t o the exten t tha t a releas e exceed s the permi t limi t wit hregard t o the quantit yo f a substance , i t wil l no t b e considere d a federall ypermitte d releas e an d CERCL A notificatio n wil l b e require d whe n the releas e o f the hazardou s substanc e exceed s it s permitte d leve l b ya n RQ o r more . Fo r thos e federa l permi t program s tha t d o no t includ e specifi c quantitativ e level s fo r hazardou s substance s i n individua l permits , an yreleas e no t i n complianc e wit hthe terms o f the permi t tha t equal s o r exceed s a n RQ mus t b e reporte d t o the Nationa l Respons e Center . Severa l commenter s urge d tha t variou s type s o f release s (suc ha s al l "routine " release s o r release s covere d b yothe r permi t programs ) no t mentione d i n Sectio n 101(10 ) b e considere d federall ypermitte d releases . EP Acanno tP. 8

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suppor t thi s position . Federall ypermitte d release s ar e specificall ylisted i n Sectio n 101(10) . Thi s detaile d lis t clearl yindicate s tha t Congres s di d no t inten

d othe r release s t o b e exemp t unde r thi s provision .

II . ELEMENT S O F TH E EXEMPTIO N Majo r comment s tha t EP Areceive d concerning particula r federall ypermitte d releas e exemption s ar e discusse d below . Fo r severa l issue s discusse d below , EPAha s retaine d an d incorporate d th e positio n se t fort hi n th e May25 , 198 3 NPRM . Release s fro

mPoin t Source s wit hNationa l Pollutan t Discharg e Eliminatio n Syste m(NPDES ) Permits . Sectio n 101(10 ) identifie s thre e type s o f release s fro mpoin t source s wit hNPDE S permit s a s federall ypermitte d releases :

(A ) discharge s i n complianc e wit ha permi t unde r sectio n 40 2 o f the Federa l Wate r Pollutio n Contro l 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 record wit hrespec t t o a permi t issued o r modifie d unde r sectio n 40 2 o f th e Federa l Wate r Pollutio n Contro l Ac t an d subjec t t o a conditio n o f suc hpermit , (C ) continuou s o r anticipate d intermitten t discharge s fro

ma poin t source , identifie d i n a permi t o r permi t applicatio n unde r sectio n 40 2 o f the Federa l Wate r Pollutio n Contro l Act , whic har e caused b yevent s occurring withi n th e scop e o f relevan t operating o r treatmen t systems... . Thi s languag e i s identica l t o tha t use d i n Sectio n 311(a)(2 ) o f th e CW At o exclud e thes e release s fro mth e ter

m"discharge " wit hrespec t t o EPA' s hazardou s substanc e spil l respons e an d preventio n program . Th e Agenc yi s proposing t o revis e certai n provision s o f 4 0 CFR Part s 11 0 an d 11 7 t o mak e the

mconsisten t wit hth e propose d revision s t o 4 0 CF R Par t 30 0 containe d herein . Bot hPart s 11 0 an d 11 7 implemen t Sectio n 31 1 o f the CWA ; Par t 11 0 regulate s oi l discharge s int o navigabl e water s an d Par t 11 7 regulate s th e discharg e o f hazardou s substance s int o navigabl e waters . Th e propose dP. 9

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revisio n t o Par t 11 0 wil l expan d th e definitio n o f "discharge " t o includ e an explanatio n o f th e CW ASectio n 31 1 exemptions . Th e propose d revisio n t o Par t 11 7 wil l clarif yth e Sectio n 31 1 exemption s i n 4 0 CF R §117.12 . Th e propose d revision s wil l mak e Part s 110 , 117 , an d 30 0 consisten t wit heac hothe r an d wit hth e NPDE S regulation s i n 4 0 CFR Par t 122 . Th e mai n departur e i n the propose d Par t 11 7 fro mth e existing Par t 11 7 concern s th e us e o f th e ter m"upset " i n sectio n 117.12(d)(iii) . Specifically , unde r th e existing sectio n 117.12 , i f an upse t result s fro moperato r error , th e resulting discharg e i s exemp t fro mSectio n 311 , whil e unde r the propose d sectio n 117.12 , a discharg e resulting fro man upset , a s define d b ysectio n 122.41(n) , i s no t exemp t fro mSectio n 31 1 i f i t i s th e resul t o f operato r error . Congres s intende d t o "dra wa line betwee n the provision s o f th e [Clea n Water ] [A]c t unde r Sectio n 301 , 304 , an d 40 2 regulating chroni c discharge s an d 31 1 dealing wit hspills " (12 4 Congressiona l Recor d 3768 3 (1978)) , a s explaine d b

ySenato r Stafford . Th e Senato r furthe r stated that : "The concep t can b e summarize d b ystating tha t thos e discharge s o f pollutant s tha t a reasonabl e ma n woul d conclud e ar e associate d wit hpermits , permi t conditions , th e operatio n o f treatmen t technology , an d permi t violation s woul d resul t in 402/30 9 sanctions ; thos e discharge s o f pollutant s tha t a reasonabl e man woul d conclud e ar e episodi c o r classica l spill s no t intende d o r capabl e o f being processe d throughth e permitte d treatmen t syste man d outfal l woul d resul t i n the applicatio n o f sectio n 311 " (Ibid.) . Th e Agencybelieve s tha t operato r erro r i s an episodi c event , mor e closel yassociate d wit ha n episodi c o r classi c spil l situatio n than wit ha chroni c discharg e situation . Therefore , thi s proposa l woul d amen d the third exemptio n t o provid e tha t a discharg e tha t result s fro

moperato r erro r wil l b e regulate d unde r Section 311 . Additiona lP.1 0

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propose d revision s t o 4 0 CFR §117.1 2 provid e clarification s o f al l thre e exemption s t o Sectio n 311 . A s note d above , CERCL ASectio n 101(10)(A ) exempt s thos e discharge s whic h ar e i n complianc e wit ha n NPDE S permi t tha t addresse s the discharg e i n question . I n orde r t o qualif yunde r thi s exemption , the permi t mus t eithe r addres s th e discharg e directl ythroug hspecifi c effluen t limitation s o r throug hthe us e o f indicato r pollutants . I n the cas e o f th e latter , th e factshee t prepare d during permi t developmen t mus t specificall ylis t th e discharg e a s on e o f thos e pollutant s the indicato r i s intended t o represent . CERCL ASectio n 101(10)(B ) exempt s thos e discharge s whic har e bot h foreseeabl e (an

d therefor e raised i n the record o f th e NPDE S permit' s development ) an

d whic hflowint o a facility' s effluen t treatmen t syste mtha t i s capabl e o f adequatel ytreating th e discharge . Thi s secon d CW Aexclusio n shoul d i n n o wayb e read t o preclud e liabilityo r t o provid e an exemptio n fro m CERCL Areporting requirement s wher e a permitte e reroute s a discharg e throug ha treatmen t syste

mtha t i s neithe r designe d t o trea t suchpollutant s no r capabl e o f handling th e volume o f pollutant s discharged . In addition , the secon d exclusio n contemplate s tha t the facility' s NPDE S permi t addresse s thes e chroni c release s throug hreleas e preventio n plan s an d othe r bes t managemen t practice s an

d tha t the permitte e ha s me t thes e requirement s befor e i t i s eligibl e fo r an exemptio n fro mth e Sectio n 10 3 o r Clean Wate r Ac t Section 31 1 requirements . CERCL ASectio n 101(10)(C ) exempt s thos e discharge s wher e the permitte e possesse s a vali d an d effective NPDE S permi t and , althoug hthe permi t limit s wer e exceeded , th e permitte e had previousl yobtaine d the permitting authority' s approva l for the discharg e a s a n anticipate d bypas s a s tha t ter mP.1 1

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i s define d i n 4 0 CF R §122.41(m) ; o r the permitte e ha s acted in suc ha manne r a s t o qualif yth e facilityfo r an "excuse d excursion " unde r th e upse t regulation s i n 4 0 CFR §122.41(n) . Thes e discharge s ar e no t reportabl e unde r CERCL ASectio n 10 3 eve n thoug hth e permitte e ma

yb e technicall you t o f complianc e wit hit s permit . Thus , unde r th e propose d rule , an ydischarg e exceeding th e NPDE S permit' s limitation s mus t b e reporte d i f i t exceed s permi t limit s b

yan RQ o r more , unles s th e permitte e can demonstrat e tha t the requirement s fo r th e defense s o f anticipate d bypas s o r excuse d excursio n describe d above have bee n met . Release s Subjec t t o CW ASectio n 40 4 Permits . Discharge s whic hcompl y wit ha legall yenforceabl e permi t fo r dredg e o r fil l material s unde r Sectio n 40 4 o f th e CW

Aar e als o federall ypermitte d release s exemp t fro mth e notificatio n requirement s o f CERCL ASection s 103(a ) an d (b) . Befor e issuing thes e permits , th e governmen t review s th e substance s t o b e discharged . Permit s allowing the discharg e o f hazardou s substance s ar e issued onl yi f n o significan t degradatio n o f th e aquati c environmen t wil l result . Thi s exemptio n applie s t o discharge s i n complianc e wit hthe terms an d condition s o f eithe r an individua l o r a genera l CW ASectio n 40 4 permit . I n regulation s implementing Sectio n 31 1 o f the CWA , EPAexempte d fro m th e notificatio n requiremen t no t onl ythos e release s whic hwer e in complianc e wit h Sectio n 40 4 permits , bu t als o thos e whic hwer e no t subjec t t o permi t requirement s unde r Sectio n 40 4 o f the CW A(Section s 404(f ) an d 404(r)) . Thes e latte r release s ar e no t "federall ypermitte d releases " fo r purpose s o f CERCLA ; therefore , the

ymus t b e reported . Release s i n complianc e wit ha legall y enforceabl e permi t unde r Sectio n 40 4 o f the CW Anee d no t b e reported .P.1 2

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Release s fro

mFacilitie s wit hFina l RCR APermits . Release s i n complianc e wit ha legall yenforceabl e RCR Atreatment , storage , o r disposa l fina l permi t ar e considere d b

yCERCL ASectio n 101(10)(E ) a s federall ypermitte d release s whe n the hazardou s substance s release d ar e specifie d i n th e permi t an d subjec t unde r th e permi t t o a specifi c limitation , standard , o r contro l procedur e (se e 4 0 CFR Part s 26 4 an d 270) . Identifying release s o n th e record during th e permi t proces s i s insufficien t t o qualif ythe mfo r th e Sectio n 101(10)(E ) exemptio n becaus e i n orde r t o b e exemp t the substance s mus t b e specifie d i n th e permi t an

d subjec t t o some permi t conditio n o r control . Fou r commenter s requeste d tha t facilitie s wit hinteri mstatu s pursuan t t o Sectio n 3005(e ) o f RCR Aan d 4 0 CFR Par t 26 5 b e include d i n the "federall ypermitte d release " definition . Some o f th e commenter s indicate d tha t i t ma yb e some time befor e thes e facilitie s ar e issued fina l permits . However , the issuanc e o f a fina l permi t i s an expres s requiremen t fo r exemptio n unde r Sectio n 101(10)(E) . Th e legislative historyo f CERCL Amake s th e scop e o f thi s exemptio n clear : "Site s o r facilitie s whic hhav e interi mstatu s unde r Sectio n 3005(e ) d o no t adequatel yutiliz e acceptabl e level s o f technology , an d d o no t qualif yfo r thi s exclusion. " (Sen . Rep . 96-848 , 96t hCong. , 2 d Sess . 4 8 (1980)) . Release s Pursuan t t o Marin e Protection , Research , an d Sanctuarie s Ac t Permits . Sectio n 101(10)(F ) o f CERCL Aincludes , i n th e definitio n o f a federall ypermitte d release , release s i n complianc e wit hlegall yenforceabl e permit s issue d unde r Sectio n 10 2 (EP Aocean dumping permits ) an d Sectio n 10 3 (Corp s o f Engineer s permit s fo r ocean dumping o f dredge d materials ) o f th e Marin e Protection , Research , an d Sanctuarie s Act . Pursuan t t o EP A regulations , applicant s fo r ocean dumping permit s mus t identif yth e physica l an d chemica l propertie s o f the material s t o b e discharged , an d the permi t mus tP.1 3

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identif yth e material s whic hma yb e discharge d (se e 4 0 CFR Part s 221 , 223) . Simila r procedure s an d criteri a appl yt o permit s fo r ocean dumping o f dredge d materia l (se e 3 3 CF R Par t 324) . Thes e EP Aan d Corp s o f Engineer s permit s cove r substance s tha t can b e lawfull ydischarged . Dumping o f hazardou s substance s no t specificall yallowe d in thes e permit s i s subjec t t o th e notificatio n requirement s o f CERCL ASection s 103(a ) an d (b) . Undergroun

d Injection s Authorize d Pursuan t t o the Saf e Drinking Wate r Act . CERCL ASectio n 101(10)(G ) exempt s fro mthe notificatio n requirement s "an y injectio n o f fluids " authorize d unde r federa l injection contro 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 Drinking Wate r Ac t (an d no t disapprove d b yEPA ) (Section 101(10)(G)) . EPAha s publishe d regulation s establishing technica l standard s an d criteri a (4 0 CFR Par t 146 ) an d regulation s governing approva l o f stat e program s an

d permi t procedure s (4 0 CFR Part s 122-124) . Unde r the Saf e Drinking Wate r Act , the state s ar e t o tak e th e primaryrol e i n implementing the undergroun

d injectio n contro l program ; EP Ai s t o administe r th e progra m onl yi f th e stat e fail s t o submi t an approvabl e progra mwithi n a specifie d time period . An

yundergroun

d injection o f hazardou s substance s permitte d unde r a stat e progra mapprove d b

yEP Ao r unde r an EPA-administere d progra mar e considere d federall ypermitte d fo r purpose s o f CERCL Anotification . Emission s Subjec t t o Clean Ai r Ac t Controls . Sectio n 101(10)(H ) o f CERCL Aprovide s an exemptio n for hazardou s substanc e emission s tha t ar e subjec t t o a Clean Ai r Ac t (CAA ) permi t o r contro l regulatio n (se e 4 0 CFR Part s 52 , 60 , 61 , an d 62) . As state d i n th e preambl e t o the Ma y25 , 198 3 NPRM , fo r thi s exemptio n t o apply , however , an ysuchCA

Acontrol s mus t b e "specificall ydesigne d t o limi t o r eliminat e emission s o f a designate dP.1 4

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hazardou s pollutan t o r a criteri a pollutant. " (Sen . Rep . 96-848 , 96t hCong. , 2 d Sess . 4 9 (1980)) . Therefore , the CA

Aexemptio n canno t b e read broadl yt o cove r an yan d al l type s o f ai r emissions . Moreover , a s today' s propose d rul e make s clear , fo r the exemptio n t o apply , the emissio n mus t b e i n complianc e wit hthe applicabl e permi t o r contro l regulation . Severa l commenter s suggeste d tha t the clea r an d unequivoca l natur e o f th e statutor

ylanguag e mad e elaboratio n o n th e CA Aexemptio n unnecessary . Generally , thes e commenter s too k th e viewtha t th e CA Aexemptio n cover s nearl y al l ai r emissions , becaus e suchemission s ar e i n on e wa yo r anothe r controlle d b yth e CA

A- - eithe r directly , becaus e theycontai n substance s specificall y regulate d b

yth e Act , o r indirectly , throug hemissio n permit s grante d a s par t o f stat e implementatio n plan s (SIPs ) approve d unde r Section 11 0 o f th e CAA . Some commenter s eve n claime d tha t becaus e control s coul d b e develope d fo r an y hazardou s substance , an yreleas e t o the ai r i s "subject " t o CA Acontrols . EP

A doe s no t agre e tha t thes e interpretations , unde r whic hvirtuall yal l ai r emission s including dangerou s episodi c release s woul d b e exemp t fro mCERCL A reporting requirements , wer e intende d b yCongres s unde r Sectio n 101(10) . T o the contrary , th e legislative histor ynote d bot habove an d i n the preambl e t o th e May25 , 198 3 NPR Mindicate s tha t CA Acontrol s mus t b e specificall y designe d t o limi t o r eliminat e emission s o f a particula r pollutan t for a releas e o f tha t pollutan t t o b e exempt . Th e purpos e o f notificatio n requirement s unde r Sectio n 10 3 o f CERCL Ai s t o ensur e tha t the governmen t i s informed o f an

ypotentiall ydangerou s release s t o the environmen t o f hazardou s substance s fo r whic htimel yrespons e ma yb e critical . T o establis han interpretatio n o f CA Acontrol s a s requeste d b ythe commenter s woul d virtuall yP.1 5

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eliminat e an

yCERCL Areporting o f ai r emission s and , thus , earl yfedera l responses ; suc han approac hwoul d eviscerat e no t onl ythe Congressiona l inten t bu t als o th e majo r purpos e o f the Sectio n 10 3 notificatio n requirement . I n addition , some commenter s urge d EP At o interpre t the federall y permitte d releas e exemptio n broadl yt o includ e an yai r emissio n fro

ma permitte d source . Man yo f thes e commenter s use d the wor d "reviewed " almos t interchangeabl ywit hth e wor d "permitted. " A"reviewed " releas e i s no t necessaril ya "permitted " releas e o r a controlle d release . Apermitte d releas e i s an allowabl e releas e o f a specifi c substanc e o r emission . A reviewe d releas e generall yi s on e o f man yrelease s fro

ma permitte d sourc e whic hi s being checke d for complianc e wit ha variet yo f laws an d regulations . Th e inclusio n o f a reviewprovisio n i n a SI P doe s no t subjec t al l potentia l release s fro

ma permitte d sourc e t o CA Arequirement s o r control s "designe d specificall yt o limi t o r eliminate " the m(Sen . Rep . 848 , 96t hCong. , 2 d Sess . 4 9 (1980)) . EPA , therefore , canno t conside r release s exemp t simpl ybecaus e theyhav e bee n reviewed . Severa l commenter s advocate d exemption s fo r categorie s o f hazardou s substance s (sucha s volatil e organi c compound s (VOC ) o r tota l suspende d particulate s (TSP) ) regulate d unde r th e CA A(includin

g thos e regulate d unde r approve d stat e programs) . Th e commenter s claime d tha t a permi t o r regulator y limi t o n suc hcategorica l emission s i n effec t constitute s a limi t o n each constituen t i n th e group . EP Aagree s wit hthi s positio n t o the exten t tha t th e constituen t hazardou s substance s have bee n identifie d an d reviewed an

d mad e par t o f th e publi c record during th e permi t issuanc e o r regulatio n developmen t process . Th e exemptio n doe s no t exten d t o release s o f hazardou s substance s tha t ar e no t expressl yidentified o n the record wit hrespec t t o th eP.1 6

-16

- applicabl e permi t o r contro l program . Onc e th e constituen t hazardou s substance s hav e bee n appropriatel yidentifie d an d reviewed , th e limitation o n th e categor

yo f emission s wil l provid e the "permi t o r contro l regulation " neede d fo r applicatio n o f th e Sectio n 101(10)(H ) exemption . Injection s o f Material s Relate d t o Developmen t o f Crud e Oi l o r Natura l Ga s Supplies . Severa l commenter s fel t tha t EPA' s interpretatio n o f th e CERCL ASectio n 101(10)(I ) exemptio n fro mnotificatio n requirement s fo r th e injectio n o f fluid s o r othe r material s relate d t o the developmen t o f crud e oi l o r natura l ga s supplie s i s unnecessaril ynarrow . Becaus e i t i s probabl e tha t al l conceivabl e injection mode s ar e no t considere d i n stat e laws , EPA , i n the preambl e t o the May25 , 198 3 NPRM , interprete d the Sectio n 101(10)(I ) provisio n t o exemp t onl ythos e activitie s o r material s whic har e specificall y authorize d b

ystat e law , rathe r than thos e tha t ar e no t prohibite d b ystat e law . Thi s interpretatio n ensure s tha t th e appropriat e authoritie s hav e consciousl yconsidere d an d intentionall yauthorize d the injectio n activitie s an d material s tha t ar e t o b e exemp t fro mnotificatio n requirements . EP Ainterpret s the Sectio n 101(10)(I ) exemptio n t o appl yonl yt o thos e items use d i n activitie s whos e sol e purpos e i s the productio n o f crud e oil , natura l gas , o r water ; the recover yo f crud e oi l o r natura l gas ; o r the reinjectio n o f fluid s brough t t o th e surfac e fro msuchproduction . Som e commenter s objecte d t o thi s interpretatio n an d instead supporte d a broade r interpretation . However , EP Adoe s no t suppor t an ypositio n tha t woul d allow al l oi l an

d ga s fiel d operation s t o b e unregulate d unde r CERCLA . Th e Nationa l Respons e Cente r shoul d b e notifie d i n an ysituatio n wher e th e us e o f injectio n fluid s o r material s fo r purpose s othe r than thos e describe d i n the statut e result s i n a releas e o f a hazardou s substanc e i n an amoun t tha t equal s o r exceed s th e applicabl e RQ .P.1 7

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Introductio n o f Pollutant s int o Publicl yOwne d Treatmen t Works . A s state d i n th e Ma

y25 , 198 3 NPRM , release s t o publicl yowne d treatmen t work s (POTWs ) wil l b e considere d federall ypermitte d i f tw o condition s ar e satisfied : (1 ) the pollutan t i s specifie d i n pretreatmen t standard s an d i s in complianc e wit hthe standard s o f Sectio n 307(b ) an d (c ) o f the CWA , an d (2 ) th e pollutan t i s specifie d i n an d i s i n complianc e wit henforceabl e requirement s i n a loca l pretreatmen t progra msubmitte d b

ythe stat e o r loca l governmen t fo r EP

Aapproval . Th e "pretreatmen t standards " referre d t o in the firs t conditio n includ e bot hnationa l categorica l standard s an d standard s establishe d b yloca l la

wa s describe d below . I f a POT Wdevelop s a loca l limi t pursuan t t o 4 0 CFR §403.5(c ) t o implemen t th e genera l prohibitio n agains t interferenc e o r pas s through(section 403.5(a)) , o r th e specifi c prohibition s o f sectio n 403.5(b) , release s o f specifi c pollutant s subjec t t o an d i n complianc e wit hsuc hloca l limit s woul d qualif ya s federall ypermitte d release s i f theyar e als o i n complianc e wit han

yapplicabl e categorica l standards . Th e developmen t o f loca l limit s unde r sectio n 403.5(c ) involve s thre e basi c steps . First , a POT W mus t determin e which , i f any , o f the pollutant s discharge d b yit s industria l users 1 hav e a reasonabl e potentia l t o pas s throug ho r interfer e wit hthe POTW . Fo r eac ho f th e pollutant s the POT Wconclude s mayb e o f concern , the POT Wmus t the n determin e th e maximu mloadin

g tha t i t can accep t t o preven t the occurrenc e o f pas s throug ho r interference . Finally , afte r maximu mallowabl e headwork s loading s ar e determine d fo r eacho f the pollutant s o f concern , the

x "lndustria l users, " a s the ter mi s use d i n thi s discussion , mean s no t onl ythos e facilitie s discharging directl yt o a POT Wbu t als o mobil e source s discharging hazardou s substance s t o a POTW .P.1 8

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POT Wmus t implemen t a syste mo f loca l limit s applicabl e t o industria l user s t o assur e tha t thes e loading s wil l no t b e exceeded . Therefore , i n orde r fo r a releas e t o qualif ya s a federall ypermitte d release , th e existenc e o f a POT W ordinanc e o r othe r loca l limit s tha t resul t i n some leve l o f contro l o f pollutan t discharge s i s no t i n itsel f sufficient ; the limi t mus t hav e bee n develope d i n accordanc e wit h4 0 CF R §403.5(c) . Th e secon

d conditio n require s POTW s t o have loca l pretreatmen t program s approve d b

yan "approva l authority " pursuan t t o 4 0 CFR Par t 403 . Th e ter m "approva l authority " a s define d i n 4 0 CFR §403.3(c) , include s a Stat e tha t ha s i n turn receive d EP Aapprova l t o implemen t the nationa l pretreatmen t progra m withi n th e Stat e pursuan t t o Sectio n 402(b ) o f the Clean Wate r Act , o r EPAi f th e Stat e doe s no t have an approve d Stat e pretreatmen t program . Th e secon d conditio n als o include s industria l user s discharging t o POTW s fo r whic ha Stat e wit han approve d Stat e pretreatmen t progra mha s assume d responsibilit y fo r als o implementing th e loca l pretreatmen t progra mrequirement s pursuan t t o 4 0 CFR §403.10(e) . I n suc hcase , th e municipalit ynee d no t hav e an approve d loca l pretreatmen t progra mbecaus e th e Stat e ha s assume d thos e regulator y obligations . Excep t a s describe d above , othe r industria l user s o f POTW s wil l no t qualif yfo r th e federall ypermitte d releas e exemption . AlthoughCERCL Ause s th e ter m"submitted, " a stric t reading o f th e statut e woul d b e contrar yt o th e expresse d congressiona l inten t tha t discharge s o f hazardou s substance s int o sewe r system s qualif ya s federall ypermitte d release s onl yi f the yar e "authorize d unde r a pretreatmen t program " (Senat e Repor t No . 96-84 8 (1980) , p.48) . Th e fac t tha t a POT Wha s submitte d a progra mfo r approva l doe s no t necessaril ymea n th e progra mi s adequat e t o contro l th e introductio n o fP.1 9

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- pollutant s fro

mnon-domesti c user s o f the POTW . Suc hprogra mma yno t b e approve d b

yth e approva l authorit ydu e t o majo r deficiencies . Therefore , fo r th e discharg e t o b e a federall ypermitte d release , i t mus t b e specificall y regulate d i n an approve d program , a progra mtha t the approva l authorit yha s determine d i s consisten t wit hth e Federall ymandate d minimu mstandard . Similarly , industria l user s o f POTW s subjec t onl yt o a State-administere d pretreatmen t progra mcan onl yqualif yfo r th e federall ypermitte d releas e exemptio n i f th e Stat e ha s bee n approve d t o administe r th e loca l pretreatmen t progra mpursuan t t o 4 0 CFR §403.10(e ) for tha t POTW . Th e fac t tha t a Stat e ha s submitte d a reques t t o administe r sucha loca l progra mwil l no t necessaril yb e sufficient . Adeterminatio n b yEPAtha t a State-ru n loca l progra mi s approvabl e (an d tha t the Stat e can the n therefor e implemen t a pretreatmen t progra mi n lieu o f it s POTWs ) i s a prerequisit e for discharge s b y industria l user s t o suc hPOTW s t o b e authorize d unde r a pretreatmen t program . I f a Stat e progra

munde r sectio n 403.10(e ) doe s no t cove r al l o f it s POTWs , onl ythos e discharge s t o POTW s fo r whic hth e Stat e ha s implemente d the pretreatmen t progra mpursuan t t o sectio n 403.10(e ) woul d qualif ya s federall y permitte d releases . Othe r POTW s woul d hav e t o hav e individuall yapprove d loca l pretreatmen t program s i n orde r fo r th e discharge s o f thei r industria l user s t o qualif ya s federall ypermitte d releases . I n addition , inasmuc ha s Congres s intende d t o requir e an approve d pretreatmen t progra ma s a preconditio n fo r an industria l use r discharg e t o qualif ya s a federall ypermitte d release , approva l o f a Stat e t o implemen t the Stat e pretreatmen t progra mpursuan t t o Sectio n 402(b ) o f the CW Awoul d no t automaticall yqualif ydischarge s t o it s POTW s a s federall ypermitte d releases . AStat e tha t ha s bee n approve d t o ru n the Stat e pretreatmen tP.2 0

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progra mi n lie u o f EP

A(whereb

ythe Stat e become s the approva l authority ) doe s no t thereb

yobtai n authorit yt o operat e th e loca l pretreatmen t progra mi n lieu o f the POTW . Unles s a Stat e ha s implemente d th e loca l pretreatmen t progra m pursuan t t o sectio n 403.10(e) , individua l POTW s woul d stil l have t o develop a loca l pretreatmen t progra mpursuan t t o Par t 40 3 i n orde r fo r discharge s t o th e POTW s t o b e considere d a s federall ypermitte d releases . Release s o f Source , Byproduct , o r Specia l Nuclea r Materials : Radionuclide s (whichinclud e source , byproduct , an d specia l nuclea r material ) ar e genericall ylisted unde r Sectio n 11 2 o f th e CA Aan d therefor e ar e hazardou s substance s unde r CERCLA . However , CERCL ASectio n 101(22)(C ) exclude s fro

mth e definitio n o f a releas e th e discharg e of : source , byproduct , o r specia l nuclea r materia l fro ma nuclea r incident , a s thos e terms ar e define d in the Atomi c Energ yAc t o f 1954 , i f suc hreleas e i s subjec t t o requirement s wit hrespec t t o financia l protectio n establishe d b

yth e Nuclea r RegulatoryCommissio n unde r sectio n 17 0 o f suc hAct , or , fo r the purpose s o f sectio n 10 4 o f thi s titl e [concernin g respons e authorities ] o r an yothe r respons e action , an yreleas e o f source , byproduct , o r specia l nuclea r materia l fro man yprocessing sit e designate d unde r sectio n 102(a)(1 ) o r 302(a ) o f th e Uraniu mMil l Tailing s Radiatio n Contro l Ac t o f 1978... . I n addition , CERCL

ASectio n 101(10)(K ) include s withi n th e definitio n o f federall ypermitte d release , release s o f source , byproduct , o r specia l nuclea r materia l tha t compl ywit hthe condition s o f a legall yenforceabl e license , permit , regulation , o r orde r issued pursuan t t o th e Atomi c Energ yAct . Release s equa l t o o r exceeding th e RQ o f radionuclide s an d no t exclude d b

y Section s 101(10)(K ) o r 101(22 ) mus t b e reporte d t o the Nationa l Respons e Center . Licenses , permits , regulations , an d order s ma

yb e issued b

yth e Nuclea r Regulator

yCommissio n o r b

ystate s grante d the authorityt o regulat e radiation

-P.2 1

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relate d activitie s unde r an agreemen t wit hth e Nuclea r RegulatoryCommission . EP Aan d the Departmen t o f Energ yals o hav e certai n regulator yauthorit yunde r th e Atomi c Energ

yAct . EP

Acan issu e generall yapplicabl e environmenta l standard s fo r protecting the publi c fro mradiatio n an

d recommen

d t o the Presiden t guidanc e fo r al l federa l agencie s t o us e fo r healt hprotectio n fro m radiation . Whe n regulation s ar e promulgate d unde r thes e authoritie s (e.g. , 4 0 CFR Part s 190 , 191 , an d 192) , release s i n complianc e wit hthes e regulation s ar e considere d "federall ypermitted. " Similarly , the Departmen t o f Energ y govern s it s radiatio n protectio n activitie s unde r th e Atomi c Energ yAc t b ya serie s o f interna l orders . Whe n suchorder s ar e issued unde r th e Departmen t o f Energy' s Atomi c Energ yAc t authorit yan

d release s ar e i n complianc e wit h th e applicabl e order(s) , thes e release s ar e als o considere d "federall y permitted. " Th e regulation s o f the Nuclea r RegulatoryCommissio n contai n severa l importan t exemption s fro mthei r provisions , base d generall yo n th e smal l quantitie s o f materia l involve d o r th e lo wlevel s o f radioactivit ythe material s emit . EP Abelieve s tha t release s o f exempte d material s ar e no t subjec t t o "legall yenforceable " requirements , a s require d b yCERCL ASectio n 101(10)(K) , an

d tha t release s o f thes e material s ar e therefor e no t federall y permitte d releases . Al l commenter s o n th e radionuclide s exemptio n fel t tha t a broade r exemptio n i s warranted . Som e commenter s suggeste d tha t report s o f release s currentl yrequire d b ythe Nuclea r RegulatoryCommissio n ar e sufficien t an d comprehensive becaus e the Commissio n woul d determin e the nee d fo r an d th e adequacyo f response ; an yadditiona l report s t o EP Awoul d b e a

n unnecessary burden . EP

Aexpect s tha t mos t release s involving radionuclide s wil l eithe r b eP.2 2

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exclude d fro

mth e definitio n o f release , considere d a federall ypermitte d release , o r wil l b e les s than the RQ . However , EP Abelieve s tha t th e reporting requirement s impose d o n th e remaining release s o f radionuclides , including release s o f radionuclide s whic har e source , byproduct , o r specia l nuclea r materia l tha t ar e exempte d fro mNuclea r Regulator yCommissio n regulations , ar e essentia l t o mitigat e th e ris k t o publi c healt ho r welfar e o r th e environmen t pose d b ysuchreleases .

III . RELEASE S INTO TH E ENVIRONMEN T A . I n Genera l Thi s sectio n addresse s severa l recurring question s no t specificall y relate d t o th e definitio n o f "federall ypermitte d release " bu t instead relate d t o broade r "release " definitio n issues . On e suc hquestio n involve s release s t o engineere d structure s designe d specificall yt o preven t material s fro m reaching th e lan

d surface . Th e issue s involve bot hinterpretatio n o 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 hsecondar ycontainmen t devices . I n th e preambl e t o th e Apri l 4 , 198 5 fina l rul e adjusting RQ s fo r 34 0 CERCL Ahazardou s substances , EP Astated : Hazardou s substance s ma yb e release d "int o the environment " eve n i f theyremai n o n plan 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 n t o the outsid e air , release s fro mpipe s int o ope n lagoon 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 n a reportabl e quantit y(e.g. , evaporatio n o f a n RQ int o the ai r fro ma dik e o r concret e pad) , mus t b e reporte d unde r CERCLA . On th e othe r hand , hazardou s substance s ma yb e spille d a t a plan t o r installatio n bu t no t ente r th e environment , e.g. , whe n the substanc e spill s ont o the concret e floo r o f an enclose d manufacturing plant . SuchaP.2 3

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- spil l woul d nee d t o b e reporte d onl yi f the substance s wer e i n som e wayt o leave th e building o r structur e i n a 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 the environment. ) 5 0 FR 13462 . Applying the phras e "int o the environment " t o release s t o secondar y containmen t devices , EPAbelieve s tha t a releas e inside a building o r 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 . However , a releas e t o a secondar ycontainmen t devic e outsid e o f a building o r structur e i s pe r s e "int o the environment. " Example s o f release s t o suchdevice s hav e bee n brough t t o the Agency' s attentio n tha t illustrat e bot hth e potentia l fo r a seriou s probleman d an existing seriou s situation . 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 n a heav yrain , an

d radioactive contaminatio n o f wate r supplie s apparentl yresulting fro ma n improperl yfunctioning secondar

ycontainmen t devic e a t a nuclea r facility . Release s t o engineere d structure s ma yinclud e suchoccurrence s a s release s ont o concret e pads , secondar ycontainmen t device s wit hsealed floor s aroun d storag e tanks , o r dri p pan s use d t o catchmino r hos e o r line drainage . I t ha s bee n suggeste d tha t wher e thes e structure s ar e ope n t o the air , release s int o suchstructure s shoul d b e exemp t fro mreporting unles s an RQ o r mor e o f the substanc e reache s an ygroun d o r surfac e water s o r lan d surfac e o r evaporate s int o the ambien t air . Th e Agencyi s intereste d i n receiving comment s an d dat a discussing the circumstance s unde r whic hnotificatio n o f release s int o suc hdevice s woul d no t provid e usefu l informatio n fo r federa l respons e purposes . EP Ai s particularl y intereste d i n informatio n on th e significanc e o f the issue , specifi c example s o f procedure s followed wher e ther e i s a releas e t o a secondar ycontainmen tP.2 4

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devic e an

d technique s use d t o preven t release s fro msuchdevices , dat a discussing th e integrityo f secondar ycontainmen t devices , an d suggestion s o n th e appropriat e mean s o f eliminating an ysuchunnecessaryreporting . I f th e Agenc ydecide s t o allowcertai n release s int o secondar ycontainmen t device s no t t o b e reported , a demonstratio n ma yb e require d t o showtha t th e devic e i s sufficientl yprotectiv e an d reliable . B . PCB Wast e Disposa l Asecon d genera l "release " issue concern s whethe r approve d polychlorinate d bipheny l (PCB ) disposa l b yincineration , landfilling , o r alternat e method s nee d t o b e reporte d a s a releas e unde r Sectio n 103 , o r i f suc hdisposa l i s exemp t fro

mreporting a s a federall ypermitte d release . Becaus e PCB disposa l approval s unde r th e Toxi c Substance s Contro l Ac t ar e no t included i n th e CERCL ASectio n 101(10 ) definitio n o f federall ypermitte d release , EP Adoe s no t believ e tha t i t ha s the authorit yt o appl ytha t exemptio n t o suchapprovals . At th e same time , EPAdoe s no t believ e tha t notificatio n unde r Sectio n 10 3 o f CERCL Aprovide s an

ysignifican t additiona l benefi t s o lon g a s the disposa l facilityi s i n substantia l complianc e wit hal l applicabl e regulation s an d approva l conditions . Therefore , EP Awil l no t requir e reporting o f th e approved , prope r disposa l o f PCB wastes . However , a part yresponsibl e for a releas e o f PC B waste s tha t nee d no t b e reporte d unde r CERCL Aremain s liabl e fo r th e cost s o f cleaning u p th e releas e an

d fo r an

ynatura l resourc e damage s caused b

yth e release . I n addition , wher e the dispose r know s tha t the facilityi s no t i n substantia l complianc e wit happlicabl e regulation s an d approve d conditions , disposa l o f an R Q o r mor e o f PC B wast e mus t b e reporte d t o the Nationa l Respons e Center . Likewise , spill s an d accident s occurring during disposa l tha t resul t in release s o f RQ s o f PCB wast e mus t als o b eP.2 5

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reporte d t o th e Nationa l Respons e Center . Finally , PCB release s o f an RQ o r mor e fro

ma TSC Aapprove d facility(a s oppose d t o disposa l int o sucha facility) , mus t b e reporte d unde r CERCLA .

IV . SUMMAR

Y O F SUPPORTIN

GANALYSE S Rulemaking protoco l unde r Executiv e Orde r 1229 1 require s tha t propose d regulation s b e classifie d a s majo r o r non-majo r fo r purpose s o f reviewb yth e Offic e o f Managemen t an d Budget . According t o E.O . 12291 , majo r rule s ar e regulation s tha t ar e likel yt o resul t in :

(1 ) A n annua l effec t o n th e econom yo f $10 0 millio n o r more ; o r (2 ) Amajo r increas e i n cost s o r price s fo r consumers , individua l industries , federal , state , o r loca l governmen t agencies , o r geographi c regions ; o r (3 ) Significan t advers e effect s o n competition , employment , investment , productivity , innovation , o r o n the ability o f Unite d States-base d enterprise s t o compet e wit h foreign-base d enterprise s i n domesti c o r expor t markets . Today' s regulatio n i s non-major , becaus e adoptio n o f th e rul e wil l resul t i n zer o costs , an

d wil l no t caus e an yo f th e significan t advers e effect s mentione d in (3 ) above . Th e Backgroun d Documen t fo r th e Propose d Regulatio n o n Federall yPermitte d Releases , availabl e fo r inspectio n a t RoomLG-100 , U.S . Environmenta l Protectio n Agency , 40 1 MStreet , S.W. , Washington , D.C . 20460 , show s tha t the propose d rul e i s simpl ya clarificatio n o f existing statutor y requirements . Th e RegulatoryFlexibilit yAc t o f 198 0 require s tha t a Regulator y Flexibilit yAnalysi s b e performe d fo r al l rule s tha t ar e likel yt o have a "significan t impac t o n a substantia l numbe r o f smal l entities. " EP Acertifie s tha t thi s propose d regulatio n wil l no t hav e a significan t impac t o n a substantia l numbe r o f smal l entities .-26

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EP Arequire s an Information Impac t Analysi s t o b e carrie d ou t fo r al l rule s tha t impos e a paperwork burde n o n th e public . Thi s propose d rul e merel y implement s a statutor yreportin

g exemptio n and , therefore , ther e i s n o associated paperwor k burde n o n the public . Ther e ar e n o reporting o r recordkeeping provision s include d i n thi s propose d rul e tha t requir e approva l fro mthe Offic e o f Managemen t an d Budge t unde r Sectio n 3504(h ) o f the Paperwork Reductio n Ac t o f 1980 , 4 4 U.S.C . Sectio n 350 1 e t seq .

Lis t o f Subject s i n 4 0 CFR Par t 11 0 Administrativ e practic e an d procedure , Coasta l zone , Continenta l Shelf , Environmenta l protection , Fisheries , Hazardou s substances , Intergovernmenta l relations , Liabilities , Marin e resources , Natura l resources , Oi l pollution , Penalties , Petroleum , Publi c health , Reporting an d recordkeeping requirements , Rivers , Treaties , Vessels , Wate r pollutio n control , Wate r resources , Waterways .

Lis t o f Subject s i n 4 0 CF R Par t 11 7 Hazardou s Substances , Penalties , Reporting an d recordkeeping requirements , Wate r pollutio n control .

Lis t o f Subject s i n 4 0 CFR Par t 30 0 Ai r pollutio n control , Chemicals , Hazardou s materials , Hazardou s substances , Intergovernmenta l relations , Natura l resources , Occupationa l safetyan

d health , Oi l pollution , Reporting an d recordkeeping requirements , Superfund , Wast e treatmen t an d disposal , Wate r pollutio n control , Wate r supply .P.2 7

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Lis t o f Subject s i n 4 0 CFR Par t 30 2 Ai r pollutio n control , Chemicals , Hazardou s material s transportation , Hazardou s substances , Intergovernmenta l relations , Natura l resources , Nuclea r materials , Pesticide s an d pests , Radioactiv e materials , Reporting an d recordkeeping requirements , Superfund , Wast e treatmen t an d disposal , Wate r pollutio n control .

Dat e Le e M . Thoma s Administrato rP.2 8

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Fo r the reason s se t ou t i n the preamble , i t i s propose d tha t 4 0 CFR Chapte r I b e amende d a s follows :

PART 11 0 - DISCHARGE O F OI L 1 . Th e authorit ycitatio n fo r Par t 11 0 continue s t o read a s follows : Authority : Section s 31 1 an d 501(a) , Federa l Wate r Pollutio n Contro l Ac t Amendment s o f 197 2 (3 3 U.S.C . 125 1 e t seg . a s amended) ; Sectio n 18(m)(3 ) o f th e Deepwate r Por t Ac t o f 197 4 (3 3 U.S.C . 1517(m)(3)) ; Sectio n 12(b ) o f th e Ac t t o Preven t Pollutio n fro mShip s (3 3 U.S.C . 190 1 e t seq.) . 2 . 4 0 CFR 110. 1 i s amende d b yrevising the definitio n o f "Discharge " containe d therei n t o read a s follows :

110. 1 Definitions . "Discharge " includes , bu t i s no t limited to , an yspilling , leaking , pumping , pouring , emitting , emptying , o r dumping , bu t exclude s (a ) Discharge s i n complianc e wit ha permi t issued unde r Sectio n 40 2 o f th e Ac t i f the permi t contain s an effluen t limitatio n applicabl e t o the oi l discharge d o r a n effluen t limitatio n applicabl e t o anothe r wast e paramete r tha t ha s bee n specificall yidentifie d i n the permi t a s intende d t o limi t suchoil , an d the discharg e i s i n complianc e wit h th e effluen t limitation . (b ) Discharge s resulting fro mcircumstance s identified an d reviewe d an

d mad e a par t o f the publi c record wit hrespec t t o a permi t issued o r modifie d unde r Sectio n 40 2 o f the Act , an d subjec t t o an

d i n complianc e wit ha conditio n in suchpermit , where :P.2 9

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(1 ) Th e publi c record contain s document s tha t specificall yidentify : (A ) Th e typ e an

d the amoun t o f oil ; an d (B ) Th e origi n an

d sourc e o f the oil ; an d (C ) Th e treatmen t tha t i s t o b e provide d fo r the discharg e eithe r by : (i ) A n on-sit e treatmen t syste mseparat e fro

man ytreatmen t syste mtreating the permittee' s norma l discharge ; o r (ii ) Atreatmen t syste mdesigne d t o trea t bot hthe permittee' s norma l discharg e an d th e identifie d amoun t o f th e oil ; o r (iii ) An ycombinatio n o f th e above ; an d (2 ) Th e permi t contain s a requiremen t tha t the typ e o f oi l an d amount s o f oi l b e treate d i n the even t o f a n on-sit e release ; an d (3 ) Th e treatmen t t o b e provide d i s i n place . (c ) Continuou s o r anticipate d intermitten t discharge s fro ma poin t source , identifie d i n a permi t o r permi t applicatio n unde r Sectio n 40 2 o f th e Ac t an d cause d b

yevent s occurring withi n the scop e o f relevan t operating o r treatmen t systems , whethe r o r no t th e discharg e i s i n complianc e wit hthe permit , where : (1 ) Th e oi l i s discharge d fro ma poin t sourc e fo r whic ha vali d permi t exist s o r fo r whic ha permi t applicatio n ha s bee n submitted ; an d (2 ) Th e discharg e o f oi l result s from : (A ) Acontinuou s o r anticipate d intermitten t discharg e wher e th e discharg e originate s withi n the manufacturing o r treatmen t systems ; o r-30

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(B ) A n upse t o f a treatmen t syste mwher e the upse t result s fro ma syste mfailur e o r malfunctio n provide d tha t the malfunctio n i s no t cause d b

yoperationa l error , improperl ydesigne d o r constructe d treatmen t systems , lack o f preventativ e maintenanc e o r imprope r operation , an d provide d tha t suc h upse t i s no t cause d b ya n on-sit e spil l o f oil .

PART 11 7 - DESIGNATION , REPORTABL E QUANTITIE S AN D NOTIFICATIO

N 3 . Th e authorit ycitatio n fo r Par t 11 7 continue s t o rea d a s follows : Authority : Section s 31 1 an d 501(a) , Federa l Wate r Pollutio n Contro l Ac t (3 3 U.S.C . 125 1 e t s_eq.) , an d Executiv e Orde r 11735 . 4 . 4 0 CFR 117.1 2 i s amende d t o read a s follows : Sectio n 117.1 2 Applicabilit yt o discharge s fro mfacilitie s wit hNPDE S permits . Thi s regulatio n doe s no t appl yto : (a ) Discharge s i n complianc e wit ha permi t issued unde r Sectio n 40 2 o f the Ac t i f th e permi t contain s an effluen t limitation applicabl e t o th e substanc e discharge d o r an effluen t limitation applicabl e t o anothe r wast e paramete r tha t ha s bee n specificall yidentifie d i n th e permi t a s intende d t o limi t suchsubstance , an d the discharg e i s i n complianc e wit hth e effluen t limitation . (b ) Discharge s resulting fro mcircumstance s identifie d an d reviewe d an

d mad e a par t o f the publi c record wit hrespec t t o a permi t issued o r modifie d unde r Sectio n 40 2 o f th e Act , an d subjec t t o an

d i n complianc e wit ha conditio n i n suc hpermit , where : (1 ) Th e publi c record contain s document s tha t specificall yidentify : (A ) Th e typ e an

d the amoun t o f substance ; an dP.3 1

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(B ) Th e origi n an

d sourc e o f the substance ; an d (C ) Th e treatmen t tha t i s t o b e provide d fo r the discharg e eithe r by : (i ) A n on-sit e treatmen t syste mseparat e fro

man ytreatmen t syste mtreating th e permittee' s norma l discharge ; o r (ii ) Atreatmen t syste mdesigne d t o trea t bot hthe permittee' s norma l discharg e an d the identifie d amoun t o f th e identifie d substance ; o r (iii ) An ycombinatio n o f th e above ; an d (2 ) Th e permi t contain s a requiremen t tha t the substance s an d the amount s o f the substanc e b e treate d in the even t o f an on-sit e release ; an

d (3 ) Th e treatmen t t o b e provide d i s i n place . (c ) Continuou s o r anticipate d intermitten t discharge s fro ma poin t source , identifie d i n a permi t o r permi t applicatio n unde r Sectio n 40 2 o f the Ac t an d cause d b

yevent s occurring withi n the scop e o f relevan t operating o r treatmen t systems , whethe r o r no t the discharg e i s i n complianc e wit hthe permit , where : (1 ) Th e hazardou s substanc e i s discharge d fro ma poin t sourc e for whic ha vali d permi t exist s o r fo r whic ha permi t applicatio n ha s bee n submitted ; an

d (2 ) Th e discharg e o f the hazardou s substanc e result s from : (A ) Acontinuou s o r anticipate d intermitten t discharg e wher e th e discharg e originate s withi n th e manufacturing o r treatmen t systems ; o r•32

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(B ) A n upse t o f a treatmen t syste mwher e th e upse t result s fro ma syste mfailur e o r malfunctio n provide d tha t the malfunctio n i s no t cause d b

yoperationa l error , improperl ydesigne d o r constructe d treatmen t systems , lack o f preventativ e maintenanc e o r imprope r operation , an d provide d tha t such upse t i s no t caused b ya n on-sit e spil l o f a hazardou s substance .

PART 30 0 - NATIONA

L OI L AN

D HAZARDOU S SUBSTANCE S POLLUTIO NCONTINGENCY PLA

N 5 . Th e authorit ycitatio n fo r Par t 30 0 continue s t o rea d a s follows : Authority : Sec . 105 , Pub . L . 96-510 , 9 4 Stat . 2764 , 4 2 U.S.C . 960 5 an d sec . 311(c)(2) , Pub . L . 92-50 0 a s amended , 8 6 Stat . 865 , 3 3 U.S.C . 1321(c)(2) ; E.O . 12316 , 4 6 FR 4223 7 (Augus t 20 , 1981) ; E.O . 11735 , 3 8 FR 2124 3 (Augus t 1973) . 6 . 4 0 CFR 300. 6 i s amende d b yrevising the definitio n o f federall y permitte d releas e t o read a s follows : Sectio n 300. 6 Definitions .

Federall ypermitte d releas e means : (1 ) Discharge s i n complianc e wit ha federa l o r stat e permi t issued unde r Sectio n 40 2 o f the Clean Wate r Ac t i f the permi t contain s an effluen t limitation applicabl e t o the hazardou s substanc e discharge d o r a n effluen t limitatio n applicabl e t o anothe r wast e paramete r tha t ha s bee n specificall yidentifie d i n th e permi t a s intende d t o limi t such hazardou s substance , an d the discharg e i s i n complianc e wit hthe effluen t limitation .P.3 3

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(2 ) Discharge s resulting fro mcircumstance s identifie d an d reviewe d an

d mad e a par t o f th e publi c record wit hrespec t t o a federa l o r stat e permi t issued o r modifie d unde r Sectio n 40 2 o f the Clean Wate r Act , an d subjec t t o an

d i n complianc e wit ha conditio n i n suc hpermit , where : (a ) Th e publi c record contain s document s tha t specificall yidentify : (i ) Th e name an

d amoun t o f th e hazardou s substance ; an d (ii ) Th e origi n an

d sourc e o f th e hazardou s substance ; an d (iii ) Th e treatmen t tha t i s t o b e provide d fo r th e discharg e eithe r by : (A ) A n on-sit e treatmen t syste mseparat e fro

man ytreatmen t systemtreating th e permittee' s norma l discharge ; o r (B ) Atreatmen t syste mdesigne d t o trea t bot hth e permittee' s norma l discharg e an d th e identifie d amoun t o f th e hazardou s substance ; o r (C ) An ycombinatio n o f th e above ; an d (b ) Th e permi t contain s a requiremen t tha t the hazardou s substanc e b e treate d i n th e even t o f an on-sit e release ; an d (c ) Th e treatmen t t o b e provide d i s in place . (3 ) Continuou s o r anticipate d intermitten t discharge s fro ma poin t source , identifie d i n a federa l o r stat e permi t o r permi t applicatio n unde r Sectio n 40 2 o f th e Clean Wate r Ac t an d cause d b

yevent s occurring withi n the scop e o f relevan t operating o r treatmen t systems , whethe r o r no t th e discharg e i s i n complianc e wit hth e permit , where : (a ) Th e hazardou s substanc e i s discharge d fro ma poin t sourc e fo r whic ha vali d permi t exist s o r fo r whic ha permi t applicatio n ha s bee n submitted ; an

d-34

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(b ) Th e discharg e o f th e hazardou s substanc e result s from : (i ) Acontinuou s o r anticipate d intermitten t discharg e wher e th e discharg e originate s withi n th e manufacturin g o r treatmen t systems ; o r (ii ) A n upse t o f a treatmen t syste mwher e th e upse t result s fro m a syste mfailur e o r malfunctio n provide d tha t th e malfunctio n i s no t cause d b yoperationa l error , improperl y designe d o r constructe d treatmen t systems , lac k o f preventativ e maintenanc e o r imprope r operation , an d provide d tha t suc hupse t i s no t cause d bya n on-sit e spil l o f a hazardou s substance . (4 ) discharge s i n complianc e wit ha legall yenforceabl e federa l o r stat e individua l o r genera l permi t unde r Sectio n 40 4 o f th e Clea n Wate r Act ;

(5 ) release s i n complianc e wit ha legall yenforceabl e federa l o r stat e fina l permi t issue d pursuan t t o Sectio n 3005(a ) throug h(d ) o f th e Soli d Wast e Disposa l Act fro ma hazardou s wast e treatment , storage , o r disposa l facilit y whe n suc hpermit specificall yidentifie s th e hazardou s substance s and make s suc hsubstance s subjec t t o a standar d o f practice , contro l procedur e o r bioassa ylimitatio n o r condition , o r othe r contro l o n th e hazardou s substance s i n suc hreleases ;

(6 ) an yreleas e i n complianc e wit ha legall yenforceabl e permi t issue d unde r Sectio n 10 2 o r Sectio n 10 3 o f th e Marin e Protection , Research , an d Sanctuarie s Ac t o f 1972 ;

(7 ) anyinjectio n o f fluid s authorize d unde r federa l undergroun d injectio n contro l program s o r stat e program s submitte d fo r federa l approva l (and no t disapprove d byth e Administrator ) pursuant t o Par t C o f th e Saf e Drinkin g Wate r Act ;P.3 5

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(8 ) an yemissio n o f a substanc e int o the ai r whic hi s name d specificall yo r i s included i n a specificall yname d grou p o f substance s subjec t t o an

d i n complianc e wit ha permi t o r contro l regulatio n unde r Section 111 , Sectio n 112 , Titl e I Par t C , Titl e I Par t D , o r Stat e implementatio n plan s submitte d i n accordanc e wit hSectio n 11 0 o f the Clean Ai r Ac t (an d no t disapprove d b

ythe Administrator ) whe n suc hpermi t o r contro l regulatio n i s specificall ydesigne d t o limi t o r eliminat e suchemissio n o f a designate d hazardou s pollutan t o r a criteri a pollutant , includin g an yschedul e o r waive r granted , promulgated , o r approve d unde r thes e sections ;

(9 ) an yinjectio n o f fluid s o r othe r material s specificall yauthorize d unde r applicabl e Stat e la w(i ) solel yfo r the purpos e o f stimulating o r treating well s fo r the productio n o f crud e oil , natura l gas , o r water , (ii ) solel yfor th e purpos e o f secondary , tertiary , o r othe r enhance d recover yo f crud e oi l o r natura l gas , o r (iii ) whic har e brough t t o the surfac e i n conjunctio n wit hthe productio n o f crud e oi l o r natura l ga s an d whic har e reinjected ;

(10 ) the introductio n o f an ypollutan t int o a publicl yowne d treatmen t work s whe n suc hpollutan t i s specifie d i n an d i n complianc e wit h(i ) applicabl e pretreatmen t standard s o f Sectio n 307(b ) o r (c ) o f the Clean Wate r Ac t an d (ii ) enforceabl e requirement s i n a pretreatmen t progra msubmitte d b

ya Stat e o r municipalit yan d approve d unde r Sectio n 40 2 o f suchAct ; an d (11 ) an yreleas e o f source , specia l nuclear , o r byproduc t material , a s thos e terms ar e define d i n the Atomi c Energ yAc t o f 1954 , in complianc e wit ha legall yenforceabl e license , permit , regulation , o r orde r issued pursuan t t o the Atomi c Energ

yAc t o f 1954 . (12 ) An yreleas e - -P.3 6

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(i ) exemp t fro mregulatio n unde r th e authorit yo f on e o f th e statute s liste d i n paragraph s (l)-(ll) ; (ii ) no t i n complianc e wit hth e applicabl e permit , license , regulation , order , standard , o r program ; o r (iii ) t o a mediu mothe r tha n tha t covere d i n th e applicabl e permit , license , regulation , order , standard , o r program , i s no t a federall ypermitte d release .

PAR T 30 2 - DESIGNATION , REPORTABL E QUANTITIES , AN D NOTIFICATIO N 7 . Th e authorit ycitatio n fo r Par t 30 2 continue s t o rea d a s follows : Authority : Sec . 10 2 o f th e Comprehensiv e Environmenta l Response , Compensation , and Liabilit yAc t o f 1980 , 4 2 U.SiC . 9602 ; sees . 31 1 and 501(a )
o f th e Federa l Wate r Pollutio n Contro l Act , 3 3 U.S.C . 132 1 an d 1361 . 8 . 4 0 CF R 302. 3 i s amende d byaddin g a definitio n o f federall ypermitte d releas e a s follows : Sectio n 302. 3 Definitions .

"Federall ypermitte d release " mean s anyreleas e whic hmeet s th e definitio n o f federall ypermitte d releas e i n sectio n 300.6 . 9 . 4 0 CF R 302. 6 i s amende d byaddin g a ne wparagrap h(d ) a s follows : Sectio n 302. 6 Notificatio n requirements .

(d ) Wheneve r a releas e o f a hazardou s substanc e exceed s it s federall y permitte d leve l a s define d unde r sectio n 300. 6 ("federall ypermitte d release" ) bya reportabl e quantit yo r more , notificatio n shal l b e mad e fo r suc hreleas e i n accordanc e wit hth e requirement s o f thi s sectio n or , i f applicable , sectio n 302.8 . Wher e numerica l level s fo r hazardou s substance s ar e no t specified , anyP.3 7 *

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releas e no t i n complianc e wit hth e terms o f th e applicabl e permit , license , regulation , order , standard o r progra mtha t equal s o r exceed s a reportabl e quantit ymus t b e reporte d t o the Nationa l Respons e Cente r i n accordanc e wit h thi s sectio n or , i f applicable , sectio n 302.8 .