United States
Environmental Protection
Agency
EPA/530 SW-91 092
March 1993
Solid Waste and Emergency Response (OS-305)
Safer Disposal
For Solid Waste
The Federal
Regulations for
-Landfills
IV-
Printed on paper that contains at least 50 percent recycled fiber.
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Safer Disposal
For Solid Waste
The Federal
Regulations for
Landfills
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Owners and
operators must
ensure that each
day's waste is
covered with soil
to control litter
and disease
bearing vermin.
It's not news that many communities in America
are faced with a garbage disposal problem. In
1990, Americans generated over 195 million tons of
municipal solid waste, and the annual amount is
expected to increase to more than 220 million tons by
2000. At the same time, some landfills are closing and
the siting of new landfills has become increasingly
difficult because of public opposition.
Past problems sometimes associated with older
landfills might have contributed to this situation.
Landfills that were poorly designed, or were located in
geologically unsound areas, or that might have
accepted toxic materials without proper safeguards,
have contaminated some ground-water sources. Many
communities use ground water for drinking, and
people living where contamination has occurred
understandably worry about its threat to their health
and the cost of cleaning it up. Communities where new
landfills are needed share these concerns.
Consequently, at a time when we need more of them,
there is increasing resistance to building new landfills.
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To ease these worries and to make waste management
work better, federal, state, Indian tribal, and local
governments have adopted an integrated approach to
waste management. This approach involves a mix of
three waste management techniques: decreasing the
amount and/or toxicity of waste that must be disposed
of by producing less waste to begin with (source
reduction); increasing recycling of materials such as
paper, glass, steel, plastics, and aluminum, thus
recovering these materials rather than discarding them;
and providing safer disposal capacity by improving the
design and management of incinerators and landfills.
Source reduction and recycling will keep a lot of waste
out of municipal landfills, but we will still need landfills.
(In 1990, 67 percent of municipal solid waste was sent
to landfills.) The challenge is to make them safe in
order to protect our communities and our environment
— and that requires a strong partnership of federal,
state, and tribal governments; industry; and citizens.
The federal regulations described in this booklet are an
important step in the right direction. They greatly
reduce the possibility that landfills will become sources
The federal
regulations set
minimum
requirements for
final cover of
landfills.
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Landfills may
not be built
in unstable
areas prone to
landslides,
mudslides, or
sinkholes, such
as the one
shown here.
of pollution. We also think the safety and
environmental protection measures they require will
boost public confidence in landfills.
The regulations establish a cost-effective and practical
system for managing the nation's waste by
• Encouraging source reduction and recycling to
maximize landfill life.
• Specifying safe design and management practices
that will prevent releases of contaminants into
ground water.
• Specifying operating practices that will protect
human health.
• Protecting future generations by requiring careful
closure procedures, including monitoring of landfill
conditions and the effects of landfills on the
surrounding environment.
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The regulations also say what measures must be taken
to guard against and cleanup ground-water
contamination and describe the kinds of areas where
landfills may not be built.
The Federal, State, Tribal, and
Citizen Roles
The federal government sets minimum
national standards applicable to municipal
solid waste disposal, but state, tribal, and
local governments are responsible for actually
implementing and enforcing waste programs. States
are required to develop their own programs based
on the federal regulations. EPA is offering the same
opportunity to tribes. EPA's role is to evaluate
states' and tribes' programs and decide if they are
adequate to ensure safe disposal of municipal solid
waste.
States and tribes that apply for and receive EPA
approval of their programs have the opportunity to
provide a lot of flexibility in implementing the
regulations. This added flexibility allows states and
tribes to take local conditions and needs into account,
and can make the costs of municipal solid waste
management more affordable. States and tribes also
may establish requirements that are more stringent
than those set by the federal government.
Private citizens have a role, too. Individuals can
help ensure that adequate landfill capacity exists for
their wastes by supporting the siting and
development of facilities that comply with the
regulations. Individuals can exercise their
responsibility through grassroots activities, such as
participating in public meetings regarding landfill
siting, by taking part in permitting processes, and by
working closely with the responsible state or tribal
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officials. Citizens also have the right to sue landfill
owners/operators who are not in compliance with
the federal regulations.
Some Definitions Under
the Regulations
Municipal solid waste landfill (MSWLF): A discrete
area of land or an excavation that receives household waste, and
that is not a land application unit, surface impoundment,
injection well, or waste pile, as those terms are defined in the
law. (Household waste includes any solid waste, including
garbage, trash, and septic tank waste, derived from houses,
apartments, hotels, motels, campgrounds, and picnic grounds.)
An MSWLF unit also may receive other types of wastes as
defined under Subtitle D of the Resource Conservation and
Recovery Act (RCRA), such as commercial solid waste,
nonhazardous sludge, small quantity generator waste, and
industrial solid waste. Such a landfill maybe publicly or
privately owned. An MSWLF unit can be a new unit, an existing
unit, or a lateral expansion (see definitions below).
Existing unit: A municipal solid waste landfill unit that is
receiving solid waste as of October 9, 1993. Waste placement in
existing units must be consistent with past operating practices or
modified practices to ensure good management.
Lateral expansion: A horizontal expansion of the waste
boundaries of an existing unit; does not include expansion in the
vertical dimension.
New unit: Any municipal solid waste landfill unit that has not
received waste prior to October 9, 1993.
Small landfill: A landfill serving a community that disposes
of less than 20 tons of municipal solid waste per day, averaged
yearly.
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Exemptions for Small Landfills
Nearly half of the 6,000 municipal landfills
covered by the regulations serve small
communities of generally fewer than 10,000
people. The regulations allow exemptions from some
of the more costly requirements for small landfills that
are less likely to contaminate ground water. To qualify,
a landfill must receive less than 20 tons of waste per
day (averaged yearly), receive less than 25 inches of
rainfall per year, and have no other practical waste
disposal alternative. In addition, there must not be any
evidence of ground-water contamination from the
landfill. Extremely remote communities that have no
ready access to other disposal sites for extended periods
of time also are eligible for an exemption. For example,
some remote Alaskan villages may not be able to reach
larger disposal sites during the winter months.
Some small
landfills serving
small communi
ties, such as this
one in the dry,
western United
States, may
qualify for
exemptions
from some of
the regulations'
requirements.
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Owners
operators must
set up a system
to ensure that
hazardous
wastes are kept
out of municipal
landfills.
Who Is Affected and When?
In general, the federal regulations apply to all mun-
icipal solid waste landfills that are active (receiving
waste) on or after October 9, 1993. If a landfill
owner/operator stops taking waste between October 9,
1991, and October 9,1993, only compliance with the
federal requirements for final cover is required. The
federal requirements do not apply to any landfill that
stopped taking waste before October 9, 1991.
Because of the complex technology needed, the federal
requirement for installing ground-water monitoring
systems is phased in over a period of five years. To
protect drinking water sources, landfills nearest to them
must comply before those that are farther away.
By April 9,1994, landfill owners/operators
also must be able to demonstrate
the ability to pay the costs of
closure, post-closure care, and
cleanup of any known
releases.
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Summary of the Regulations
T
he federal regulations for municipal solid
waste landfills cover the following six basic
areas:
Location
Operation
Design
Ground-water monitoring and corrective action
Closure and post-closure care
Financial assurance
The following discussion explains the federal
regulations. However, states and tribes with EPA-
approved programs have the opportunity to exercise
flexibility in implementing these regulations. Some of
the exceptions described below are only available in
states and tribes with EPA-approved programs.
Location
Airport Safety
Because landfills can attract birds that can interfere with
aircraft operation, owners/operators of sites near
airports must show that birds are not a danger to
aircraft. This restriction applies to new, existing, and
laterally expanding landfills.
Floodplains
Landfills may not be located in areas that are prone to
flooding unless the owner/operator can prove the
landfill is designed to withstand flooding and prevent
the waste from washing out. This restriction applies to
new, existing, and laterally expanding landfills.
Wetlands
Since wetlands are important ecological resources, new
landfills and laterally expanding ones may not be built
in wetlands unless the landfill is in a state or on tribal
lands with an EPA-approved program and the owner/
operator can show that it will not pollute the area. The
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owner/operator must also show that no alternative site
is available. This restriction does not apply to existing
landfills.
Fault Areas and Seismic Zones
To prevent pollution that could be caused by earth-
quakes or other kinds of earth movement, new and
laterally expanding landfills may not be built in areas
prone to them. This restriction does not apply to
existing landfills.
Location Criteria Summary
Location
Airport Safety
Floodplains
Wetlands
Fault Areas
Seismic Impact
Zones
Unstable Areas
Applicability*
N,E,L
N,E,L
N,L
N,L
N,L
N,E,L
Closure
If Demonstration
Cannot Be Met?
Yes
Yes
No
No
No
Yes
*(N=New, E=Existing, L=Lateral Expansion)
Unstable Areas
Landfills cannot be located in areas that are subject to
landslides, mudslides, or sinkholes. This restriction
applies to new, existing, and laterally expanding
landfills.
Operation
Keeping Out Hazardous Waste
EPA and the states have developed regulations
specifically covering the disposal of hazardous wastes
in special landfills. Owners/operators of municipal
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landfills must develop programs to keep these
regulated hazardous wastes out of their units.
Covering Materials and Controlling Vectors
In general, each day's waste must be covered to prevent
the spread of disease by rats, flies, mosquitoes, birds,
and other animals that are naturally attracted to
landfills.
Controlling Explosive Gases
Methane gas, which occurs naturally at landfills, must
be monitored routinely. If emission levels at the landfill
exceed a certain limit, 'the proper authorities must be
notified and a plan must be developed to solve the
problem.
Restricting Access
Owners/operators must restrict access to their landfills to
prevent illegal dumping and other unauthorized activities.
Controlling Storm Water and Protecting
Surface Water
So that no pollutants are swept into lakes, rivers, or
streams, landfills must be built with ditches and levees
to keep storm water from flooding their active areas
and to collect and control storm-water run-off.
Restricting Liquids
Landfills cannot accept liquid waste from tank trucks or
in 55-gallon drums. This restriction helps reduce both
the amount of leachate (liquids that have passed
through the landfill) and the concentrations of
contaminants in the leachate.
Controlling Air Emissions
Landfills must be operated so they do not violate
state and federal clean air laws and regulations.
This means, among other things, that the burning of
waste is prohibited at landfills, except under certain
conditions.
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Leachate collection
systems, such as the
one shown here, are
designed to collect
any fluids that seep
down through the
landfill. The fluids
can be recycled in
the landfill or
treated for disposal
elsewhere.
Design
New and expanding landfills must be designed for
ground-water protection by making sure that levels of
contaminants do not exceed federal limits for safe
drinking water. In states and tribes with EPA-
approved programs, landfill owners/operators have
flexibility in designing their units to suit local circums-
tances, providing the state or tribal program director
approves the design. This allows owners/operators to
ensure environmental protection at the lowest possible
cost to citizens served by the landfill. This flexibility
means, for example, that the use of a liner, and the
nature and thickness of the liner system, may vary from
state to state, and perhaps from site to site.
Instates and tribal areas without EPA-approved
programs, owners/operators must build their landfills
according to a design developed by EPA, or seek a
waiver. The EPA design lays out specific requirements
for liners and leachate collection systems. Liners must be
composite, that is, a synthetic material over a 2-foot layer
of clay. This system forms a barrier that prevents
leachate from escaping from the landfill into ground
water. The design also requires leachate collection
systems that allow the leachate to be captured and
treated.
•Mill
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Ground-Water Monitoring
and Corrective Action
Generally, landfill owners/operators must install
monitoring systems to detect ground-water
contamination. Sampling and analysis must be
conducted twice a year. States and tribes with EPA-
approved programs have the flexibility to tailor facility
requirements to specific local conditions. For example,
they may specify different frequencies for sampling
ground water for contaminants, or phase in the
deadline for complying with the federal ground-water
monitoring requirements.
If the ground water becomes contaminated, owners/
operators in approved states and tribal areas must clean
it up to levels specified by the state or tribal director. In
states and tribes without EPA-approved programs, the
federal regulations specify that contaminants must be
reduced below the federal limits for safe drinking
water.
Closure and Post-Closure Care
When a landfill owner/operator stops accepting waste,
the landfill must be closed in a way that will prevent
problems later. The final cover must be designed to
keep liquid away from the buried waste. For 30 years
after closure, the owner/operator must continue to
maintain the final cover, monitor ground water to
ensure the unit is not leaking, collect and monitor
landfill gas, and perform other maintenance activities.
(States and tribes with approved programs may vary
this period based on local conditions.)
Financial Assurance
To ensure that monies are available to correct possible
environmental problems, landfill owners/operators are
required to show that they have the financial means to
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cover expenses for site closure, post-closure
maintenance, and cleanups. The regulations spell out
ways to meet this requirement, including (but not
limited to) surety bonds, insurance, and letters of credit.
Conclusion
The main emphasis of the federal regulations is
to protect ground water and prevent pollution
from inadequately designed and operated
landfills. Landfills are an important part of our nation's
system for managing garbage, and we all have an
important stake in their safe operation. We encourage
you to learn more about those in your community.
For More Information
This pamphlet provides an overview of the
federal regulations. For more information
about specific requirements for solid waste
landfills in your area, contact your state solid waste
agency. If you don't know how to reach them, call one
of the resources listed at right. The Resource
Conservation and Recovery Act (RCRA) Hotline
maintains current lists of all state solid and hazardous
waste management officials. While these information
centers are the best place to start collecting information,
it may still be useful to ask these contacts if some other
source may be able to give you additional help. In
addition, you can order a copy of the federal
regulations or the booklet "Criteria for Solid Waste
Disposal Facilities A Guide for Owners/Operators"
(EPA 530/SW-91-089).
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RCRA Hotline
Provides information about RCRA regulations and policies, and takes
document requests.
Hours: Monday-Friday, 8:30 a.m. to 730 p.m., EST
Telephone Toll-free — (800) 424-9346
TDD (hearing impaired) — (800) 553-7672
Washington metro area — (703) 412-9810
TDD — (703) 412-3323
EPA RCRA Information Center (Docket)
Maintains and tracks policy and guidance documents; provides
nontechnical assistance and written reference services; develops and
disseminates public information materials.
Hours Monday-Friday, 9:00 a.m. to 4:00 p.m., EST
Telephone: (202) 260-9327
Address: RCRA Information Center
U.S. Environmental Protection Agency
401 M Street, SW. (OS-305)
Washington, DC 20460
Solid Waste Assistance Program
Collects and distributes information on all aspects of municipal solid
waste management.
Hours: Monday-Friday, 8:30 a.m. to 5:00 p.m., EST
Telephone: Toll-free — (800) 677-9424
Address: Solid Waste Assistance Program
P.O. Box 7219
Silver Spring, MD 20910
National Response Center
Accepts reports of oil and chemical spills or any other environmental
incident.
Hours: 24 hours a day, 365 days a year.
Telephone: Toll-free — (800) 424-2675
Washington metro area — (202) 426-2675
EPA Small Business Ombudsman
Helps small businesses comply with environmental laws and EPA
regulations.
Hours: Monday-Friday, 8:30 a.m. to 5:00 p.m., EST
Telephone: Toll-free — (800) 368-5888
Washington metro area — (703) 305-5938
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EPA Regional Contacts
U.S. EPA Region 1
Waste Management Division
(HEE-CAN 6)
JFK Federal Building
Boston, MA 02203
(617) 573-9656
U.S. EPA Region 2
Air & Waste Management
Division (2AWM-SW)
26 Federal Plaza
New York, NY 10278
(212) 264-0002
U.S. EPA Region 3
RCRA Solid Waste Program
(3HW53)
841 Chestnut Street
Philadelphia, PA 19107
(215) 597-7936
U.S. EPA Region 4
Waste Management Division
(4WD-RCRA-FF)
345 Courtland Street, NE
Atlanta, GA 30365
(404) 347-2091 *
U.S. EPA Region 5
Waste Management Division
(H-7J)
77 West Jackson Blvd.
Chicago, IE 60604
(312) 353-4686
U.S. EPA Region 6
RCRA Programs Branch
First Interstate Bank Tower
1445 Ross Avenue,
Suite 1200
Dallas, TX 75202
(214) 655-6655
U.S. EPA Region 7
Waste Management Division
726 Minnesota Avenue
Kansas City, KS 66101
(913) 551-7666
U.S. EPA Region 8
Hazardous Waste
Management Branch
(HWM-WM)
999 18th Street, Suite 500
Denver, CO 80202-2466
(303) 293-1661
EPA Region 9
Hazardous Waste
Management Division
(H-3-1)
75 Hawthorne Street
San Francisco, CA 94105
(415) 744-2074
U.S. EPA Region 10
Hazardous Waste Division
(W-114)
1200 Sixth Avenue
Seattle, WA 98101
(206) 553-2857
U.S. GOVERNMENT PRINTING OFFICE: 1993 719-117/61150
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The information in this document has been funded
wholly or in part by the United States Environmental
Protection Agency (EPA) under assistance agreement
#X820495-01-0 to the Solid Waste Association of North
America. It has been subjected to the Agency's peer
and administrative review and has been approved for
publication as an EPA document. Mention of trade
names or commercial products does not constitute
endorsement or recommendation for use.
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