Opinion ID: 2567145
Heading Depth: 1
Heading Rank: 5

Heading: What materials are encompassed within the definition of mixed waste set forth in RCW 70.105E.030(9)?

Text: ¶ 6 Clearly, we cannot provide a complete answer to this general statement of the question. Creating a comprehensive list of every material encompassed within the CPA definition of mixed waste would be impossible. Given the specificity of the subparts, it appears that this portion of the question is not intended to be answered as phrased; the parties themselves forgo any attempt to do so. Subparts (a)-(c) narrow the scope of the question to specific definitional disputes. Subpart (d) appears to simply require a summation of the conclusions in subparts (a)-(c). Accordingly, we confine our answers to determining whether the CPA definition of mixed waste expands the scope of regulated materials beyond the Hazardous Waste Management Act, chapter 70.105 RCW (HWMA) and the Resource Conservation and Recovery Act of 1976, 42 U.S.C. §§ 6901-6992k (RCRA). a. Specifically, does the definition of mixed waste encompass materials that consist solely of radioactive source, special nuclear, or byproduct materials and, if so, under what circumstances does the CPA apply to such materials? ¶ 7 The parties uniformly agree that the answer to this question is, no. For a material to qualify as mixed waste under the CPA definition, it must have both a nonradioactive component and a radioactive component. See RCW 70.105E.030(9). Materials that consist solely of radioactive source, special nuclear, or byproduct materials are outside the scope of this definition. b. Specifically, does the definition of mixed waste encompass materials that are mixtures of radioactive source, special nuclear, or byproduct materials and other hazardous substances that do not designate as dangerous waste under state laws? If so, under what circumstances does the CPA apply to such materials? ¶ 8 For a material to designate as dangerous waste, it must either be specifically listed as a dangerous waste under WAC 173-303-081 through -082, exhibit one of four characteristics (ignitability, corrosivity, reactivity, or toxicity) under WAC 173-303-090(5)-(8), or meet the criteria of toxicity or persistence under WAC 173-303-100(1). The United States argues that the plain language of the CPA's mixed waste definition includes, as a matter of law, materials that do not designate as dangerous waste. In response, Ecology invites us to ignore the defined terms incorporated within the CPA in favor of a far narrower interpretation of mixed waste. For the reasons that follow, we decline Ecology's invitation. ¶ 9 The United States' position is relatively simple: there is an unbroken chain of cross-references from the CPA definition of mixed waste to the expansive definition of hazardous substances in RCW 70.105.010(14). In turn, RCW 70.105.010(14) incorporates materials that do not designate as dangerous waste under the HWMA. These definitional cross-references in the CPA relate to one another as follows: Mixed waste or mixed radioactive and hazardous waste means any hazardous substance or dangerous or extremely hazardous waste that contains both a nonradioactive hazardous component and a radioactive component, including any such substances that have been released to the environment, or pose a threat of future release, in a manner that may expose persons or the environment to either the nonradioactive or radioactive hazardous substances. RCW 70.105E.030(9) (emphasis added). Hazardous substance has the same meaning as the term is defined in RCW 70.105D.020. RCW 70.105E.030(6) (emphasis added). ¶ 10 Under RCW 70.105D.020(7): Hazardous substance means: (a) Any dangerous or extremely hazardous waste as defined in RCW 70.105.010(5) and (6), or any dangerous or extremely dangerous waste designated by rule pursuant to chapter 70.105 RCW; (b) Any hazardous substance as defined in RCW 70.105.010(14) or any hazardous substance as defined by rule pursuant to chapter 70.105 RCW; (c) Any substance that, on March 1, 1989, is a hazardous substance under section 101(14) of the federal cleanup law, 42 U.S.C. Sec. 9601(14); (d) Petroleum or petroleum products; and (e) Any substance or category of substances, including solid waste decomposition products, determined by the director by rule to present a threat to human health or the environment if released into the environment. (Emphasis added.) ¶ 11 Under RCW 70.105.010(14): Hazardous substances means any liquid, solid, gas, or sludge, including any material, substance, product, commodity, or waste, regardless of quantity, that exhibits any of the characteristics or criteria of hazardous waste as described in rules adopted under this chapter. (Emphasis added.) ¶ 12 The United States notes that the definition of hazardous substances in RCW 70.105.010(14) includes the language regardless of quantity. In contrast, the HWMA includes threshold quantity requirements for certain materials to designate as dangerous waste. See WAC 173-303-090(8)(a)-(c). Thus, a given material could qualify as mixed waste under the CPA (via its status as a hazardous substance under RCW 70.105.010(14)), while that same material could not, as a matter of law, otherwise designate as dangerous waste under the HWMA. ¶ 13 Ecology's interpretation of this statutory regulation is significantly more complicated. Essentially, Ecology asks us to ignore the direct cross-references incorporating the expansive definition of hazardous substances in RCW 70.105.010(14). Instead, Ecology suggests that we construe the [CPA's] reference to `hazardous substances' in conjunction with the language of the definition and the CPA as a whole. Def. State of Washington's Reply Br. at 10. Ecology maintains that, in spite of the unequivocal definitions discussed above, the CPA only refers to those hazardous substances that have been released or pose a threat of future release to the environment. [4] Under applicable regulations, materials that have been released or pose a threat of future release will automatically designate as dangerous waste. See WAC 173-303-016(1)(b)(ii), (3)-(4). Thus, if Ecology were correct that the CPA's reference to hazardous substances is necessarily limited to only those materials that have been released or pose a threat of release, the CPA would be coextensive with the HWMA and the RCRA. ¶ 14 Ecology raises several related arguments in support of its narrow reading of the CPA's reference to hazardous substances. First, Ecology suggests that the term mixed waste, where we find the disputed reference to hazardous substance, is self-limiting. That is, Ecology contends, we should ignore the definition of a defined term of art (mixed waste) in favor of the common usage meaning of waste and read out of the CPA any and all materials that have not been discarded. It is an axiom of statutory interpretation that where a term is defined we will use that definition. See Cowiche Canyon Conservancy v. Bosley, 118 Wash.2d 801, 813, 828 P.2d 549 (1992). Only where a term is undefined will it be given its plain and ordinary meaning. See id. Mixed waste and hazardous substance are both defined terms within the CPA. Thus, Ecology's contention that the word waste limits the application of otherwise clear and unequivocal statutory definitions to circumstances of release or threatened release is wholly without merit. [5] Second, Ecology argues that because the broad definitions of hazardous substances are found in state and federal cleanup regulations (Model Toxics Control Act, chapter 70.105D RCW; and Comprehensive Environmental Response, Compensation, and Liability Act of 1980, 42 U.S.C. §§ 9601-9675 (CERCLA)), the CPA's reference to hazardous substances must be limited to only those materials that have been released or pose a threat of release. This argument is similarly without merit. There is no requirement that the materials defined as hazardous substances under RCW 70.105D.020(7) be released or pose a threat of release. The CPA, which incorporates RCW 70.105D.020 by reference, is also devoid of any such a requirement. ¶ 15 In sum, we are left with a choice between two alternatives. On the one hand, the United States suggests a plain language interpretation based on the statutory definitions of mixed waste and hazardous substance. There is no dispute that, if these definitions are operative, the CPA includes some materials that do not designate as dangerous waste. On the other hand, Ecology asks us to artificially eliminate much of the substance of these definitions in a way that narrows the scope of hazardous substance to materials that have been released or pose a threat of release. Such an artificial limitation would require us to ignore long-held rules of statutory interpretation. Accordingly, the answer to question 1(b) is, yes, to the extent that a hazardous substance, as defined in RCW 70.105.010(14), might fail to designate as dangerous waste because the concentration of dangerous material is insufficient. c. Specifically, does the definition of mixed waste encompass materials that are not solid wastes under the RCRA and, if so, under what circumstances does the CPA apply to such materials? ¶ 16 Under the RCRA, solid waste is defined as: any garbage, refuse, sludge from a waste treatment plant, water supply treatment plant, or air pollution control facility and other discarded material, including solid, liquid, semisolid, or contained gaseous material resulting from industrial, commercial, mining, and agricultural operations, and from community activities, but does not include solid or dissolved material in domestic sewage, or solid or dissolved materials in irrigation return flows or industrial discharges which are point sources subject to permits under section 1342 of title 33, or source, special nuclear, or byproduct material as defined by the Atomic Energy Act of 1954. 42 U.S.C. § 6903(27) (emphasis added). See also 40 C.F.R. § 261.2 (further defining solid waste). As the phrase and other discarded material suggests, every material that qualifies as solid waste must be in some way discarded. The United States contends that the CPA's definition of mixed waste includes materials that do not fall within the RCRA definition of solid waste. As described above, the CPA definition of mixed waste includes hazardous substances; hazardous substances has the same meaning as provided in RCW 70.105D.020(7); and RCW 70.105D.020(7) includes the following expansive definition: Hazardous substance means: (a) Any dangerous or extremely hazardous waste as defined in RCW 70.105.010(5) and (6), or any dangerous or extremely dangerous waste designated by rule pursuant to chapter 70.105 RCW; (b) Any hazardous substance as defined in RCW 70.105.010(14) or any hazardous substance as defined by rule pursuant to chapter 70.105 RCW; (c) Any substance that, on March 1, 1989, is a hazardous substance under section 101(14) of [ CERCLA ], 42 U.S.C. Sec. 9601(14); (d) Petroleum or petroleum products; and (e) Any substance or category of substances, including solid waste decomposition products, determined by the director by rule to present a threat to human health or the environment if released into the environment. (Emphasis added.) The United States relies on RCW 70.105D.020(7)(b)-(d) to support its argument that the CPA includes materials that are not solid waste under the RCRA. First, under RCW 70.105D.020(7)(b), hazardous substance includes any material, substance, product, commodity, or waste. See RCW 70.105.010(14). A commodity is not discarded and, therefore, not solid waste. Moreover, the items at issue (material, substance, product, commodity, or waste) are listed disjunctively, meaning the first four may be distinct from the last  waste. Second, RCW 70.105D.020(7)(c) adopts the CERCLA definition of hazardous substances. The broad CERCLA definition of hazardous substances includes some materials that are not discarded under the RCRA. See 42 U.S.C. § 9601(14). Finally, RCW 70.105D.020(7)(d) references petroleum and petroleum products, which may or may not be discarded (i.e., not necessarily solid waste). ¶ 17 Ecology agrees that a number of the materials incorporated by the RCW 70.105D.020(7)(b)-(d) definition of hazardous substances do not qualify as solid waste. However, not to give up without a fight, Ecology again relies on those arguments discussed in subpart (b) above  that the CPA definition should be limited to hazardous substances that have been released or pose a threat of release. The arguments are no more persuasive the second time around. Consequently, we answer this question as follows: Yes, to the extent that a hazardous substance, as defined in RCW 70.105D.020(7)(b)-(d), fails to qualify as a solid waste for lack of being discarded or otherwise abandoned, recycled, or inherently wastelike under 42 U.S.C. § 6903(27) and 40 C.F.R. § 261.2. d. In light of the court's answers to subparts (a)-(c) above, does the definition of mixed waste expand the scope of materials regulated as mixed waste under the HWMA and the RCRA? ¶ 18 Under the foregoing analysis of subparts (a)-(c), the answer to this subpart of question 1 is, yes. Under subpart (a), the CPA definition of mixed waste does not apply to purely radioactive Atomic Energy Act of 1954, 42 U.S.C. §§ 2011-2297g-4, materials. However, the CPA encompasses materials that do not designate as dangerous waste through the cross-reference to RCW 70.105.010(14) and encompasses materials that are not solid waste through the cross-reference to RCW 70.105D.020(7)(b)-(d). Thus, the CPA does expand the scope of materials currently subject to regulation as mixed waste beyond the HWMA and the RCRA.