United States Solid Waste and
Environmental Protection Emergency Response EPA530-F-94-037
Agency (5305) November 1994
&EPA Update on
Implementation of the
Hazardous Waste
Minimization and
Combustion Strategy
Recycled/Recyclable- Printed with Vegetable Oil Based Inks on 100% Recycled Paper (50% Postconsumer) • Please recycle as newsprint
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UPDATE ON IMPLEMENTATION OF DRAFT STRATEGY ON HAZARDOUS
WASTE MINIMIZATION AND COMBUSTION
November 18, 1994
The Draft Strategy specified 5 overall goals and several specific actions. The goals
were: ^
(1) To establish a strong preference for source reduction over waste management, and thereby reduce
the long-term demand for combustion and other waste management facilities.
(2) To better address public participation in setting a national source reduction agenda, in
evaluating technical combustion issues, and in reaching site-specific decisions during the waste
combustion permitting process.
(3) To develop and impose implementable and rigorous state-of-the-art safety controls on hazardous
waste combustion facilities by using the best available technologies and the most current
science.
(4) To ensure that combustion facilities do not pose an unacceptable risk, and use the full extent
of legal authorities in permitting and enforcement.
(5) To continue to advance scientific understanding with regard to waste combustion issues.
The chart below contains the specific commitments made in the Draft Strategy. The chart
details the status of individual projects implementing the goals and commitments of the
Draft Strategy, and future objectives are identified.
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COMMITMENT
WHERE WE ARE
WHERE WE WANT TO BE IN TWO YEARS
WORKING WITH STATES
Establish EPA-State Committee to provide
for a joint federal-state evaluation of
waste minimization and combustion
relationships; improvements to technical
standards; and the alternatives to
combustion.
• EPA-State Hazardous Waste Steering Committee
was established in July 1993. Five meetings via
teleconference have been held.
• Input from states has been sought on
significant Strategy implementation projects,
particularly the public participation rule, use
of a technology-based approach in the emission
standards rulemaking, and approaches to waste
minimization.
• The EPA-State Steering Committee should
continue to be used as a means of upper
management communication on major issues as
they arise.
• Continuing to work with states should still
be a top priority. We should strive for very
direct and effective means of obtaining state
input to RCRA decision-making.
PUBLIC OUTREACH AND DIALOGUE
Conduct broad national dialogue with
stakeholders on all goals and issues,
specifically including the areas of source
reduction, technical standards, and site-
spec i f i c dec i s i ons.
• 4-day National Roundtable held with
stakeholders on waste minimization and
combustion issues.
• 4 Regional Roundtables held with local
citizens and other stakeholders on waste
minimization, combustion, and other issues of
local concern.
• Hundreds of meetings with individual
stakeholders and stakeholder groups held, and
informal dialogue still ongoing.
• Strategy Newsletter created and distributed
to over 3000 individual citizens and other
interested persons/groups to update them on
Strategy developments.
• Key policy and technical documents released
in early draft form for public review.
Documents include: preliminary technical
analysis on achievable dioxin and particulate
matter (PM) emission levels, draft national
waste minimization plan, and draft risk
assessment guidance.
» Continued use of same avenues, but also
investigate whether EPA role should include
more public education (e.g., on risk).
• Fully informed local communities (apart from
permitting process itself).
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COMMITMENT
WHERE WE ARE
WHERE WE WANT TO BE IN TWO YEARS
WASTE MINIMIZATION
Publish final "Waste Minimization Program
in Place" guidelines, and pursue compliance
with waste minimization certification
requirements. Consider publication of
lists of non-compliers.
Ask treatment companies to consider
accepting wastes only from customers in
compliance with waste minimization program
in place guidance. Establish other
partnerships to achieve maximum amount of
source reduction.
Give top waste minimization compliance
priority to facilities driving demand for
waste combustion. Use audits and other
compliance-forcing mechanisms as
appropriate.
Conduct national roundtable on source
reduction opportunities for hazardous
wastes.Maximize public involvement, and
provide public with information on source
reduction of combustible wastes.
• Released interim final "Waste Minimization
Program in Place" guidelines in May 1993.
• In November 1993, Administrator's letter sent
to all large quantity RCRA generators urging
public release of their waste minimization
plans.
• Held national and regional roundtables and
focus group meetings with stakeholders to help
shape waste minimization goals and
implementation options, including identification
of proper roles for waste treatment companies
and potential partnerships.
• Draft RCRA National Waste Minimization Plan
released in May 1994 for public review and
comment. Draft Plan focused on combustible
waste streams as top priority (Phase I). Phase
II would address all RCRA wastes, starting with
those persistent, bioaccumulative, and toxic
constituents representing the highest risk.
Emphasis in Plan is on company-by-company
flexibility and voluntary programs, but
requirements are being considered where needed
to ensure action. Draft Plan also indicates
that final plan will have specific percentage
and time frame targets.
• 4-day National Roundtable held with States
and other stakeholders on waste minimization and
combustion issues.
• Focus groups meetings on Draft National Plan
held with States and other stakeholders in Fall
1994.
• Final "Waste Minimization Program in Place"
guidelines issued.
• Good public awareness should exist about
company plans on waste minimization, and public
should be engaged in oversight of company
progress.
• Make good progress towards achieving
national goals for waste reductions through
National Waste Minimization Plan (see below),
with emphasis on partnerships and voluntary
programs.
• Implementation of National Plan in full
swing, with publication (if possible) of
initial results of source reduction and
recycling efforts.
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COMMITMENT
WASTE MINIMIZATION (cont'd)
Develop waste minimization (source
reduction and recycling) program that
integrates waste combustion with waste
management decision-making. Work with
states towards establishing percentage and
time frame targets for reduction of
combustible waste streams.
WHERE WE ARE
• Release of final Hazardous Waste Minimization
National Plan in November 1994. National Plan
addresses all RCRA wastes, starting with those
persistent, bioaccumulative, and toxic
constituents representing the highest risk.
Emphasis in Plan is on company-by-company
flexibility and voluntary programs in initial
implementation, but progress will be reviewed at
a future point to determine if more aggressive
action is warranted. National Plan calls for
reduction of the most persistent,
bioaccumulative, and/or toxic constituents in
hazardous waste by 25% nationally by the year
2000, and by 50% nationally by the year 2005.
Initial EPA implementation focus will be on
metal constituents in combustible waste streams.
WHERE WE WANT TO BE IN TWO YEARS
• Implementation of National Plan in full
swing, with publication (if possible) of
initial results on source reduction and
recycling efforts.
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COMMITMENT
WHERE UE ARE
WHERE WE WANT TO BE IN TWO YEARS
IMPROVED EMISSION STANDARDS AND MONITORING
Upgrade EPA rules on emission controls at
combustion facilities and on continuous
emissions monitoring techniques. Consider
joint RCRA-CAA rulemaking to impose maximum
achievable, technology-based standards.
Continue research into better determining
the emissions from hazardous waste
combustion facilities and into fostering
better emissions monitoring devices.
• OSW studies on HW incinerators and BIFs are
under way to provide sound technical basis for
proposed rule. Some data gaps exist, but plans
to collect data to address these areas have been
made.
• Preliminary maximum achievable, technology-
based levels for dioxin/furan and particulate
matter levels analyzed and released for public
review in May 1994 (draft CETRED document).
• OSW-led workgroup is actively developing
joint RCRA-CAA proposed rule to upgrade emission
standards for combustion facilities. Technical
and policy dialogue between OAQPS and OSW is
ongoing. Proposed rule scheduled for Sept. 1995
and final rule scheduled for Dec. 1996.
• OSW issued guidance on conducting trial burns
and on trial burn failures in. May and July 1994.
• OSWER AA memorandum released in May 1994 that
clarified prohibition against certain metal-
bearing waste streams going to combustion.
• OSW has acted to spur ORD research on
continuous emissions monitors and to foster
private consortium efforts to speed up
development and commercial availability of
continuous emissions monitors for metals, PM,
and organics. OSW/ORD submitted two
Environmental Technology Initiatives (ETI)
proposals for CEM technical development and
validation.
• Build better OSW technical data base.
• Better clarify linkage between waste
minimization and combustion, particularly with
respect to increased removal of metals from
wastes going to incinerators and BIFs.
• Promulgate final rule to impose upgraded
emission controls on HW incinerators and BIFs.
• Implement rule as soon as possible to
achieve immediate reduction in dioxin, furan,
and metal emissions.
• CEMs for metals (and perhaps PM and
organics) have been tested and are on the way
to being commercially available. Some
facilities would have installed CEMs
voluntarily if available.
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RISK ASSESSMENTS
Conduct site-specific risk assessments
(including indirect exposure pathways) as
part of RCRA permitting process.
Develop updated, final guidance on
conducting risk assessments at
combustion facilities.
Make EPA and state technical experts
available to serve on risk assessment teams
to assist regions and states.
OMNIBUS PERMIT CONDITIONS
Use omnibus permit authority if and when
necessary to add permit conditions on
metals and dioxins/furans.
As interim measure, use omnibus authority
if and when necessary to include
technology-based limits of 30 ng/dscm for
dioxins and 0.015 gr/dscf in permits being
issued.
» Approximately 30-40 risk assessments underway
at HW incinerators and BIFs under oversight of
regions or states.
• Two key Headquarters guidance documents
developed and released: (1) Draft Addendum to
1991 ORD Guidance on indirect risk assessments
released in Nov. 1993 (subjected to public and
SAB review and currently being revised); (2) OSW
implementation guidance on trial burns and risk
assessments at RCRA combustion facilities
released in draft in Fall 1993 and revised in
June 1994.
• Headquarters financial support afforded to
regions. Headquarters Risk Assessment Review
Team formed to help regions perform risk
assessments. About 10 HQ reviews completed or
under way. HQ developing risk assessment
training course for regional and state
personnel,
• Regions considering use of omnibus authority
to impose interim limits in individual permit
actions.
• A few individual facilities (e.g., WTI
incinerator) have included the interim limits
for dioxin (30 ng.) and PM (0.015 gr.) in
permits.
WHERE WE WANT TO BE IN TWO YEARS
• Sound risk assessments being conducted at
pace that allows final permit decisions to be
made without delay at interim status combustion
facilities.
• Issue final Addendum.
• Issue updated OSW implementation guidance,
with emphasis on improvements that streamline
the risk screening procedures but that continue
to give sound results without being overly
conservative.
• Risk assessment results fully integrated
with technical standards rulemaking.
• Continued HQ support; deliver training.
• Promulgation of final rulemaking to upgrade
technical standards by Dec. 1996 (with possible
effective date phase-in). As necessary,
omnibus authority will be used to address air
emissions.
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COMMITMENT
WHERE WE ARE
WHERE WE WANT TO BE IN TWO YEARS
PERMITTING PRIORITIES
Establish priority for reaching final
permit decisions on interim status
incinerators and BIFs not yet under permit
controls.
Call in permit applications for all
commercial facilities by May 1994 and all
others by May 1996.
Expedite permit decisions particularly with
respect to bringing interim status
facilities under permit controls as soon as
possible.
• National priority for interim status
combustion facilities established in May 1993 by
Draft Strategy and OSWER memoranda to regions
and states. States and regions have generally
shown consistency with national priority.
• All commercial combustion facility permit
applications were called in by May 1994. Some
still undergoing completeness review, and some
applications returned for further information.
• 3 decisions (denials) made in FY 1994; 20-40
decisions estimated for next few years, taking
into account the need for pre-decision risk
assessments and for better trial burns.
• Less or no work being done in regions and
states on non-commercial facility permits
(unless no commercial facilities exist in the
state or region).
• Higher priority given to permits where
environmental gains would be maximized and
risks minimized by final permit determination.
Priority scheme would also give low priority to
new, non-replacement capacity.
• All commercial permit applications would be
complete and reviewed.
• Trial burns completed or scheduled for 10-20
facilities. Final permit determinations made
if trial burns complete.
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COMMITMENT
PUBLIC PARTICIPATION IN PERMITTING
Enhance public participation in permitting
of incinerators and BIFs.
Direct regions and states to provide
enhanced opportunities for public
involvement prior to finalizing rule
changes.
Provide for public comment on trial burn
plans.
WHERE WE ARE
• RCRA Public Involvement guidance manual
finalized and sent to regions in Sept. 1993.
• In June 1994, Proposed Rule to enhance public
participation published. Comments are now being
reviewed.
• Also in June 1994, OSWER AA memorandum sent
to regions and states directing immediate
implementation of certain provisions of proposed
rule covering enhanced public participation,
including public comment on trial burn plans.
• Going beyond just combust ion-related issues,
the OSWER AA's Environmental Justice and Siting
Task Force was formed in March 1994. This Task
Force examined opportunities for greater public
participation in RCRA decision-making and
addressed specific EJ concerns regarding siting.
OSWER is currently following up on Task Force
recommendations, including efforts related to
providing better public access to information
and developing a proposed rule to upgrade RCRA
technical location standards.
WHERE WE WANT TO BE IN TWO YEARS
• Community-based public involvement is
improved.
• Final Rule providing for enhanced public
participation in RCRA permitting released on
schedule in July 1995 and being implemented.
• Improve opportunities for EJ communities to
participate in decision-making.
• Develop and publish proposed rule to upgrade
RCRA technical location standards.
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COMMITMENT
WHERE WE ARE
WHERE WE WANT TO BE IN TWO YEARS
ENFORCEMENT
Enhance inspection and enforcement for
incinerators and BIFs.
• Inspections of all commercial combustion
facilities given high priority in regions and
states in FY 1994 and FY 1995.
• Over 255 combustion facilities inspected
between 3/1/94 and 9/30/94, and many more than
once.
• Three EPA-state enforcement initiatives
undertaken, involving 51 complaints and 43
settlements with over $31.5 million in proposed
new penalties and over $6 million collected in
settlements.
• Compliance-oriented activities have included:
(1) compliance workshops with affected
industries; (2) preparation of compliance
guidance documents on trial burns, trial burn
failure, and waste analysis plans.
• Enhanced compliance and enforcement training
for Regional and state personnel.
• Increased compliance rates.
• Increased levels of inspections and higher
public confidence in agency oversight
activities and facility compliance. Explore
avenues to enhance and promote public
involvement in compliance and enforcement
activities where appropriate.
• Provide increased level of compliance and
enforcement training for regional and state
personnel.
• Prepare and release user-friendly guidance
on waste analysis plans, EPA penalty policy,
and other important aspects of compliance and
enforcement program.
• CEMs for metals (and perhaps PM and
organics) tested and on way to being
commercially available. Some facilities
install CEMs voluntarily if available.
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WHERE WE ARE
WHERE WE WANT TO BE IN TWO YEARS
INNOVATIVE TREATMENT TECHNOLOGIES
Enhance efforts to foster innovate
technologies for safe and effective
treatment of hazardous waste and for
reduction of hazardous waste, including an
investigation of the feasibility and risks
associated with alternative technologies.
• TIO engaged in ongoing work to spur
development of alternative treatment and
innovative technologies with respect to
remediation wastes. TIO has developed and
released series of monographs on alternative
treatment technologies.
• OSW engaged in survey of alternative
treatment technologies, particularly with
respect to level of commercial availability and
risks associated with technologies.
• Private sector would have started to adapt
current technologies or begun to develop new
technologies to treat RCRA wastes to reduce
volume, toxicity, and/or mobility.
• Structural barriers in RCRA program that
might interfere with alternative treatment
technology development have been identified and
options to remove those barriers have been
explored.
• Develop sufficient data on emissions and
risks from alternative treatment technologies.
PERMIT APPEALS REFORM
Explore rulemaking to reform permit appeal
process to prevent the continued burning of
waste during administrative appeal process
where permit was denied at regional level.
• In March 1994, Administrator's memorandum
sent to EAB directing expedited treatment for
appeals of permit denials by regions.
• Proposed rule to enhance public participation
(published June 1994) contains provisions that
would require combustion units immediately to
cease operations under any conditions for which
the unit failed a trial burn.
• Separate, additional rulemaking not needed.
• Finalize proposed rule as scheduled for July
1995.
EXCESS CAPACITY
Explore usefulness of national capacity
reduction goal.
• Internal and external discussions held with
stakeholders. Certain environmental and citizen
groups want a phase out of combustion capacity.
Industry argues that marketplace should be left
to reduce overcapacity without EPA interference.
• Market forces have had significant impact on
waste management business, and corrections for
overcapacity (e.g., through lowering of prices)
are evident. HW combustion permit applications
are being withdrawn at greater pace than new
applications being filed.
• EPA regulations ensure that treatment and
disposal of HW is done in an environmentally
sound manner.
• Individual company and market response to
EPA standards drive combustion capacity and
demand for combustion services.
• Market forces sufficient to accommodate
short-term bursts in demand for combustion
services (e.g., due to increased site
remediations, new waste listings, shutdowns of
existing units, etc.)
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