United States Solid Waste and
Environmental Protection Emergency Response
Agency (5305W)
EPA530-R-97-051
PB98-108061
November 1997
S.EPA
RCRA, Superfund & EPCRA
Hotline Training Module
Introduction to:
Definition of Solid Waste and
Hazardous Waste Recycling
(40 CFR Parts 261.2 and 261.9)
Updated July 1997
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DISCLAIMER
This document was developed by Booz-Allen & Hamilton Inc. under contract 68-WO-0039 to EPA. It is
intended to be used as a training tool for Hotline specialists and does not represent a statement of EPA
policy.
The information in this document is not by any means a complete representation of EPA's regulations or
policies. This document is used only in the capacity of the Hotline training and is not used as a reference
tool on Hotline calls. The Hotline revises and updates this document as regulatory program areas change.
The information in this document may not necessarily reflect the current position of the Agency. This
document is not intended and cannot be relied upon to create any rights, substantive or procedural,
enforceable by any party in litigation with the United States.
RCRA, Superfund & EPCRA Hotline Phone Numbers:
National toll-free (outside of DC area)
Local number (within DC area)
National toll-free for the hearing impaired (TDD)
(800) 424-9346
(703)412-9810
(800) 553-7672
The Hotline is open from 9 am to 6 pm Eastern Time,
Monday through Friday, except for federal holidays.
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DEFINITION OF SOLID WASTE AND
HAZARDOUS WASTE RECYCLING
CONTENTS
1. Introduction [[[ I
2, Regulatory Summary [[[ 3
2.1 Solid Waste Definition [[[ 3
2.2 Classification of Recycled Materials [[[ 5
2.3 Recycling Solid Waste Exclusions in §261.2(e) [[[ 9
2.4 Hazardous Waste Recycling Requirements ........................... . ............................. 10
3. Special Issues [[[ . ............................ 19
3.1 Military Munitions. [[[ 19
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Definition of Solid Waste and Hazardous Waste Recycling -1
1. INTRODUCTION
As mandated by Subtitle C of the Resource Conservation and Recovery Act (RCRA),
EPA promulgated hazardous waste regulations in 1980 to ensure that wastes which
ppse a threat to human health and the environment Would be managed safely. In
order to be regulated as a hazardous waste under RCRA, a material must first be
classified as a solid waste. After confirming that a material is a solid waste, the
generator of the solid waste must then determine if it is a hazardous waste. The
important concept to remember is that hazardous wastes are a subset of solid wastes.
In other words, a material cannot be classified as a hazardous waste if it is not within
the universe of solid waste.
This module explains the statutory and regulatory definitions of solid waste,
including the standards governing the recycling and management of specific types of
waste.
When you have completed this module, you will be able to explain the definition of
solid waste in 40 CFR §261.2, as well as its relationship to the definition of hazardous
waste in §261.3. You will also become familiar with the regulations governing the
recycling of hazardous wastes, found in §261.6 and Parts 266, 273, and 279.
Use the following list of objectives to check your knowledge of this topic after you
complete the training session:
Explain and cite the regulatory and statutory definitions of solid waste
Cite and use the table in §261.2 and the preamble to the January 4,1985,
Federal Register (50 ER 614)
List and cite three use/reuse scenarios where the materials are not solid
wastes and state the requirement for documentation
List the conditions under which hazardous waste-derived products may be
excluded from regulation
Discuss the special recycling standards for use constituting disposal, precious
metal recovery, and spent lead-acid batteries
Discuss potential regulatory developments affecting the definition of solid
waste and hazardous waste recycling.
The information in this document is not by any means a complete representation of EPA s regulations or policies,
but is an introduction used for Hotline training purposes.
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2 - Definition of Solid Waste and Hazardous Waste Recycling
The information in this document is not by any means a complete representation of EPA s regulations or policies,
but is an introduction used for Hotline training purposes.
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T
Definition of Solid Waste and Hazardous Waste Recycling - 3
2. REGULATORY SUMMARY
Under RCRA Subtitle C, Congress granted EPA the authority to regulate hazardous
wastes. The principle objective of hazardous waste regulation is the protection of
human health and the environment. RCRA regulation is also intended to
encourage the conservation and recovery of valuable materials. The definition of
solid waste under RCRA, which serves as the starting point for the hazardous waste
management system, reflects EPA's effort to obtain the proper balance between these
two underlying objectives.
According to RCRA regulations, a material must be defined as a solid waste before it
can be considered a hazardous waste. The regulatory definition of solid waste,
found in §261.2(a), encompasses: (1) materials that are abandoned; (2) materials that
are recycled; (3) materials that are inherently waste-like; and (4) waste military
munitions. Materials that do not fall within one of these categories are not subject
to Subtitle C regulation.
Materials that are recycled are a special subset of the solid waste universe. When
recycled, some materials may qualify for an exclusion from the definition of solid
waste and fall out of RCRA regulation or be subject to less-stringent regulatory
controls. Based on the material and the type of recycling, the generator of a
recyclable solid waste must determine if it is subject to reduced requirements or full
regulation.
This module discusses the criteria found in the §261.2 definition of solid waste. It
also explains the range of RCRA Subtitle C management management standards for
different types of hazardous waste recycling, as dictated by §261.6 and Parts 266, 273,
and 279. This range of management from no regulation to full regulation is
essentially based on the type of recycling activity involved and the hazards posed,
and demonstrates EPA's intent to encourage recycling while still protecting human
health and the environment.
2.1 SOLID WASTE DEFINITION
The statutory definition of a solid waste is not based on the physical form of the
material, (i.e., whether or not it is a solid as opposed to a liquid or gas), but on the
fact that the material is a waste. RCRA §1004(27) defines solid waste as:
Any garbage, refuse, sludge from a wastewater 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.
The information in this document is not t>y any means a complete representation or EPA's regulations or policies,
but is an introduction used for Hotline training purposes.
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4 - Definition of Solid Waste and Hazardous Waste Recycling
The regulatory definition of solid waste, found in §261.2, is narrower than the
statutory definition. Under §261.2(a), a solid waste is any discarded material that is
not excluded by §261.4(a) or that is not excluded by a regulatory variance.
Section 261.4(a) specifically excludes certain materials from the definition of solid
waste, such as domestic sewage and special nuclear material covered by the Atomic
Energy Act (see the module entitled Solid and Hazardous Waste Exclusions).
Materials listed in §261.4(a) are not solid wastes and so cannot be further classified as
hazardous waste. Other materials which would normally be classified as solid
wastes may qualify for exclusions from regulation if a generator petitions for a
variance from classification as a solid waste.
If a discarded material is not excluded by §261.4 or by a variance, it meets the
definition of a solid waste. The basis of the solid waste definition is set forth in
§261.2, which defines a solid waste as a material that is discarded by being
abandoned, inherently waste-like, or recycled.
ABANDONED
The term abandoned simply means thrown away. Under §261.2(b), a material is
abandoned if it is disposed of, burned, or incinerated. In addition, a material that is
stored prior to, or in lieu of, one of these activities, is also considered to be abandoned.
In addition to obvious examples of abandonment, such as land disposal, EPA also
includes activities such as incineration within the definition of the term (50 FR 627;
January 4,1985).
INHERENTLY WASTE-LIKE
Some materials are always considered solid wastes under §261.2(d), even if they are
recycled in some manner (i.e., they are considered to be inherently waste-like).
Because these materials may pose a threat to human health and the environment
when they are recycled, they do not qualify for any recycling exemptions. Examples
of inherently waste-like materials are the dioxin-containing listed wastes F020, F022,
F023, F026 and F028. Hazardous waste meeting the F021 listing is also considered
inherently waste-like unless it is used at the site of generation as an ingredient in a
product.
In addition, any secondary materials that are characteristic or listed hazardous
wastes are considered to be inherently waste-like when they are fed to a halogen acid
furnace. This provision was added to ensure that halogen acid furnaces, which burn
some of the most toxic wastes generated in this country, would be regulated when
burning any type of hazardous waste (56 FR 7141; February 21,1991).
The information in this document is not by any means a complete representation of EPA s regulations or policies,
but is an introduction used for Hotline training purposes.
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Definition of Solid Waste and Hazardous Waste Recycling - 5
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RECYCLING
A material is recycled if it is used, reused, or reclaimed (§261.1(c)(7)). These three
terms have specific regulatory definitions. A material is reclaimed if it is processed
to recover a usable product or if it is regenerated (e.g., regeneration of spent
solvents) (§261.1(c)(4)). A material is used or reused if it is either employed as an
ingredient in an industrial process to make a product (e.g., distillation bottoms from
one process used as feedstock in another process) or if it is employed as an effective
substitute for a commercial product (e.g./ spent pickle liquor used as a sludge
conditioner in wastewater treatment) (§261.1(c)(5)).
Some materials that are recycled are classified as solid wastes, while others are
exempt from regulation. Section 261.2(c) designates as solid wastes certain materials
that are recycled in particular manners (i.e., used in a manner constituting disposal,
burned for energy recovery, reclaimed, and speculatively accumulated). Other
materials that are recycled through use or reuse of the material may qualify for
exemptions from the solid waste definition under §261.2(e).
2.2 CLASSIFICATION OF RECYCLED MATERIALS
As stated above, one way a material may meet the definition of a solid waste in
§261.2 is if it is recycled in a certain manner. When a material is recycled, its
regulatory classification (i.e., whether or not it is a solid waste, and potentially a
regulated hazardous waste) depends on two factors: first, what type of secondary
material is being recycled; and second, what type of recycling is occurring. The
following discussion describes the three types of recycling regulated in §261.2(c), and
notes the various exclusions associated with specific types of secondary materials
when they are recycled in certain ways. Depending on these determinations, a waste
destined for recycling may or may not be regulated.
SECONDARY MATERIALS
A secondary material is a material that potentially can be a solid and hazardous
waste when recycled (50 FR 616; January 4,1985). Used or residual waste-like
materials are called secondary materials and are divided into five groups. Table 1 of
§261.2(c) lists five types of secondary materials: spent materials, sludges, by-products,
commercial chemical products, and scrap metal. All waste-like materials fit into
one of these five secondary material categories, which are discussed below.
Spent Materials
Spent materials, as defined in §261.1(c)(l), are those used materials that can no
longer serve the purpose for which they were produced without undergoing
regeneration, reclamation, or reprocessing. Examples include spent solvents, spent
activated carbon, spent catalysts, and spent acids (50 FR 624; January 4,1985).
The information in this document is not by any means a complete representation of EPA s regulations or policies,
but is an introduction used for Hotline training purposes.
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6 - Definition of Solid Waste and Hazardous Waste Recycling
Sludges
A sludge is any solid, semisolid, or liquid waste generated from a wastewater
treatment plant, water supply treatment plant, or air pollution control device (e.g.,
baghouse dust). Table 1 contains two sludge categories: those sludges listed on the F
or K lists (e.g., F037 petroleum refinery oil/water/solids separation sludge), and
those exhibiting a hazardous characteristic under Part 261, Subpart C.
By-products
A by-product as defined in §261.1(c)(3) is a material that is not one of the primary
products of a production process and is not solely or separately produced by the
production process. An example is a distillation column bottom. A by-product is a
catch-all term, and includes most wastes that are not spent materials or sludges (50
FR 618; January 4,1985). There are two types of by-product categories in Table 1:
those listed (e.g., wood preserving wastewaters), and those exhibiting a hazardous
characteristic (K001).
Commercial Chemical Products
Commercial chemical products (CCPs) include unused chemical intermediates, off-
specification variants, and spill or container residues, as defined in §261.33 (e.g.,
unused sodium cyanide). The definition of CCP, which is also part of the hazardous
waste identification process for P- or U-listed wastes, is expanded for the purposes of
defining a material as a solid waste. For this purpose, the term CCP also includes
chemicals that are not listed in §261.33 but exhibit a hazardous characteristic (e.g.,
off-specification jet fuel) (50 FJL14219; April 11,1985), as well as other unused
commercial products that exhibit a characteristic of hazardous waste, even though
they are not commonly considered chemicals (e.g. unused circuit boards, unused
batteries).
Scrap Metal
Scrap metal is defined as bits and pieces of metal parts that are worn or superfluous
(e.g., scrap turnings and wire) (§261.1(c)(6)). This term also includes products made
of metal that become worn out such as scrap automobiles and radiators (50 FR 624;
January 4,1985).
TYPES OF RECYCLING
There are three types of recycling activities over which EPA currently asserts
jurisdiction: use constituting disposal, burning waste fuels, and reclamation.
As stated previously, to determine whether a material is a solid waste, you
must determine what kind of material is being recycled. Once the type of
secondary material (e.g., spent material, sludge, or scrap metal) is known, the
The information in this document is not by any means a complete representation or EPA s regulations or policies,
but is an introduction used for Hotline training purposes.
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Definition of Solid Waste and Hazardous Waste Recycling - 7'
manner in which it is recycled will determine whether or not the material is
a solid waste and therefore potentially regulated as a hazardous waste.
Use Constituting Disposal
Directly placing wastes or products containing wastes on the land is
considered to be use constituting disposal (§261.2(c)(l) and 50 FR 627; January
4,1985). If, however, direct placement of a CCP on the land is consistent with
its normal use (e.g., pesticides), then the material is not regulated as a solid
waste (§261.2(c)(l)(ii)). For example, heptachlor can potentially be a P-listed
waste. This pesticide is not regulated as a solid waste, however, when it is
used as a pesticide.
Burning Waste Fuels
Burning hazardous waste for energy recovery and using wastes to produce a fuel are
both covered under burning waste fuels (§261.2(c)(2) and 50 FR 630; January 4,1985).
CCPs that are themselves fuels are not considered solid wastes when burned,
however, since burning is consistent with the product's intended use
(§261.2(c)(2)(ii)). For example, off-specification jet fuel is not a solid waste when it is
burned for energy recovery because it is itself a fuel.
Reclamation
As discussed above, reclamation is the regeneration of wastes or recovery of usable
materials from wastes (e.g., regenerating spent solvents in a solvent still). Wastes
are regenerated when they are processed to remove contaminants in a way that
restores them to their usable condition (50 FR 633; January 4, 1985).
Speculative Accumulation
Certain materials are exempt from the definition of solid waste in §261.2 when
destined for recycling (see Table 1). In order to ensure these materials are actually
recycled, EPA established a provision in §261.2 which penalizes facilities that recycle
insufficient amounts of these materials. This provision designates as solid wastes
certain materials that are accumulated speculatively. A material is accumulated
speculatively if it has no viable market (50 FR 634; January 4,1985) or if the person
accumulating the material cannot demonstrate that 75 percent or more of the
material is recycled in a calendar year, commencing on January 1 (§261.1(c)(8)). For
example, on December 15,1991, a facility generates 200 kg of D008 sludge; a
characteristic sludge which is normally excluded from the definition of solid waste
when reclaimed. The facility has this entire quantity of D008 sludge in storage on-
site on January 1,1992. If by the end of that calendar year (December 31,1992), less
than 75 percent (i.e., less than 150 kg) of the sludge has been reclaimed or sent off-
site for reclamation, the sludge has been accumulated speculatively and no longer is
excluded from the definition of solid waste. Once it is a solid waste, it must be
The information in this document is not by any means a complete representation of EPA s regulations or pohcies/
but is an introduction used for Hotline training purposes.
is.
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8 - Definition of Solid Waste and Hazardous Waste Recycling
managed as a hazardous waste since it exhibits a characteristic. In other words,
while providing incentives for recycling by excluding certain hazardous wastes from
the definition of solid waste, EPA is ensuring that legitimate quantities of the waste
are being recycled rather than simply being stored to avoid regulation.
Table 1
Spent Materials
Sludges listed in
40 CFR §§261.31
or 261.32
Sludges
exhibiting a
characteristic
By-products
listed in 40 CFR
§§261.31 or
261.32
By-products
exhibiting a
characteristic
Commercial
Chemical
Products listed in
40 CFR §261.33
Scrap Metal
other than
excluded scrap
metal (see
§261.1 (c)(9))
Use Constituting
Disposal
§261.2(c)(l)
YES
YES
YES
YES
YES
YES*
YES
Energy
Recovery/
Fuel
§261.2(0(2)
YES
YES
YES
YES
YES
YES**
YES
Reclamation
§261.2(0(3)
YES
YES
NO
YES
NO
NO
YES
Speculative
Accumulation
§261.2(0(4)
YES
YES
YES
YES
YES
NO
YES
Once the type of secondary material and the recycling method are known, you can determine whether
the material will be a solid waste according to §261.2(c) and therefore possibly a hazardous waste.
Materials that are solid wastes when recycled in a particular manner are marked with a "YES" in that
column; materials that are not solid wastes when recycled in that manner are marked with a "NO."
* Commercial products are not solid wastes when applied to the land if that is their normal use.
* * Commercial products are not solid wastes when burned for energy recovery if they are already fuels
or normal constituents of fuels.
EPA's reguations or policies,
but is an introduction vised for Hotline training purposes.
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Definition of Solid Waste and Hazardous Waste Recycline - 9
2.3 RECYCLING SOLID WASTE EXCLUSIONS IN §261.2(e)
Under the RCRA regulations, EPA defines recycling broadly. Use constituting
disposal, burning for energy recovery, and reclamation are all forms of recycling.
The direct use or reuse of a secondary material is also a form of recycling. Section
261.2(e)(l) provides exclusions from the definition of solid waste for materials that
are used or reused in one of the following ways: used or reused as an ingredient,
used or reused as a product substitute, or returned to the production process.
USED AS AN INGREDIENT
If a secondary material is directly used as an ingredient in a production process
without first being reclaimed (e.g., carbon tetrachloride still bottoms used in
producing tetrachloroethylene), then that material is not a solid waste
USED AS A PRODUCT SUBSTITUTE
If a secondary material is used as an effective substitute for a commercial product
without first being reclaimed (e.g., hydrochloric acid by-product from chemical
manufacturing used by the steel industry for pickling steel), it is exempt from the
definition of solid waste (§261.2(e)(l)(ii)).
RETURNED TO THE PRODUCTION PROCESS
When a material is returned to the original production process from which it was
generated, it is not a solid waste (§261.2(e)(l)(iii)). When this exclusion was
originally promulgated (50 Fg, 614; January 4, 1985), it applied only to materials
returned to a primary production process. The September 19, 1994, Federal Register
extended this exemption, however, to include materials returned to secondary
processes (59 ES 47982; 48041). This exclusion only applies if the material is used as a
raw material or feedstock in the production process and if it is not reclaimed prior to
its reintroduction into the system (e.g., emission control dust returned directly to a
primary zinc smelting furnace). The material does not have to be returned to the
exact unit, but may be returned to any unit associated with the production of a
particular product (50 FR 619, 640; January 4, 1985). In the case where the original
process to which the material is returned is a secondary process, the material must
be managed such that there is no placement on the land.
EXCEPTIONS
There are certain situations where use or reuse of a material without prior
reclamation is still considered to be management of a solid waste. Section 261.2(e)(2)
designates as solid wastes the following materials, even if they are used or reused
directly: materials used in a manner constituting disposal; materials burned for
The information in this document is not by any means a complete representation of EPA s regulations or policies,
but is an introduction used for Hotline training purposes.
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10 - Definition of Solid Waste and Hazardous Waste Recycling
energy recovery, used to produce a fuel, or contained in fuels; materials
accumulated speculatively; and dioxin-containing wastes considered inherently
waste-like (F020, F021, F022, F023, F026, and F028). For example, an F002 spent
solvent is used in the formulation of a pesticide, without prior reclamation. While
this particular waste is recycled without reclamation (a condition of §261.2(e)(l)), it
would not qualify for the exclusion because the manner in which it is recycled is one
of the activities listed in §261.2(e)(2).
DOCUMENTATION OF CLAIMS
A person claiming that a waste is not a solid waste or that a waste is conditionally
exempt from regulation (e.g., because it is recycled in accordance with §261.2(e))
must be prepared to demonstrate that the conditions for the exclusion are being met.
In the case of an enforcement action, generators must provide documentation
supporting their claim, such as proof the material is being reused in a production
process or that there is a known market for the material (§261.2(f)).
SUMMARY OF SOLID WASTE DEFINITION
A solid waste is a material of any physical form (e.g., contained gas, solid, or liquid)
that is being discarded by meeting any of the following conditions:
The material is abandoned via disposal or incineration
The material is inherently waste-like (e.g., dioxin-containing wastes)
The material is recycled in specific ways that are considered waste
management (i.e., burning for energy recovery, reclamation, use constituting
disposal).
In summary, if a material has been classified as a solid waste (thus not meeting any of
the solid waste exclusions or exemptions), the next step in the hazardous waste
identification process is to determine if the solid waste meets the definition of a
hazardous waste.
2.4 HAZARDOUS WASTE RECYCLING REQUIREMENTS
RGRA Subtitle C has jurisdiction over hazardous waste recycling. Hazardous wastes
that are recycled are known as recyclable materials. When a material is classified as
a solid waste because it is recycled (and does not qualify for any exemptions in
§261.2(e)) and it meets the definition of a hazardous waste, §§261.6 and 261.9 are used
to determine the level of regulation placed on the waste and the recycling activity.
These standards range from no regulation to full regulation, with the amount of
regulation depending on the type of material and manner of recycling (see Figure 1).
The information in this document is not by any means a complete representation of EPA s regulations or policies,
but is an introduction used for Hotline training purposes.
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Definition of Solid Waste and Hazardous Waste Recycling -11
Figure 1
ANALYSIS OF HAZARDOUS WASTE RECYCLING REQUIREMENTS
Is hazardous waste
recycling activity listed
in§261.6(a)(2)?
NO
YES
Subject to special
standards under
Part 266,
Subparts C-H
Is hazardous waste
recycling activity listed
5n§261.6(a)(3)?
NO
YES
Recyclable
material
exempt from
regulation
Is hazardous waste
recycling activity listed
in§261.6(a)(4)?
YES
See Part 279,
Used Oil
Standards
NO
I
Fully regulated under
§§261.6(b),(c),(d)
SPECIAL RECYCLING STANDARDS IN §261.6(a)(2)
The recyclable materials listed in §261.6(a)(2) are subject to regulation under Part 266,
which provides special standards for hazardous wastes recycled in certain ways.
These materials include:
Recyclable materials used in a manner constituting disposal (Subpart C)
Recyclable materials from which precious metals are reclaimed (Subpart F)
Spent lead-acid batteries that are being reclaimed (Subpart G)
Hazardous waste burned for energy recovery (Subpart H).
The information in this document is not by any means a complete representation of EFA's regulations or policies,
but is an introduction used for Hotline training purposes.
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12 - Definition of Solid Waste and Hazardous Waste Recycling
Use Constituting Disposal
Part 266, Subpart C, regulates recyclable materials that are placed on the land either
directly or after mixing with other materials. This type of reuse of a recyclable
material is regulated as land treatment or landfilling when the material being
applied to the land is a hazardous waste or contains a hazardous waste. The Agency
regulates the placement of hazardous secondary materials on the land due to the
similarity of this practice to simple land disposal.
Under §266.20(b), commercial hazardous waste-derived products are not regulated
when recycled by application to the land, provided the products: (1) are made for the
general public's use; (2) have undergone a chemical reaction so as to be inseparable
by physical means; and (3) meet applicable Part 268 land disposal restrictions
treatment standards. Examples of such products may include asphalt and cement.
Also, commercial fertilizers produced from mixing recyclable material containing
nutrients or micronutrients with other ingredients are exempt from regulation if
they meet the Part 268 land disposal treatment standards for each recyclable material
they contain. Zinc-containing fertilizers produced from hazardous waste K061 for
the general public's use, however, are not subject to regulation and thus are not
required to meet Part 268 treatment standards. If a material does not meet the
conditions in §266.20(b), it must be managed as a hazardous waste when applied to
the land, a result which effectively prohibits placement on the land in anything but
a hazardous waste landfill.
Under §266.21, the management of these recyclable materials prior to being used in a
manner constituting disposal is fully regulated as hazardous waste management.
Generators and transporters of these materials, therefore, are subject to Part 262
(generator) and Part 263 (transporter) regulations, and to RCRA §3010 notification
procedures for obtaining EPA identification numbers. Under §266.22, facility owners
and operators who are not the ultimate users of the materials are also subject to
notification requirements and applicable Parts 264/265 facility standards.
Owners or operators of facilities that use recyclable materials in a manner
constituting disposal are subject to RCRA §3010 notification and applicable Parts
264/265 facility standards. Products meeting the requirements under §266.20(b) as
described above are the sole exception.
In addition to the above regulations on use constituting disposal, additional
restrictions may apply to the placement of hazardous waste on the land. The
Hazardous and Solid Waste Amendments of 1984 (HSWA) amended RCRA
§3004(1) to prohibit use of waste oil, used oil, or other materials contaminated with
hazardous waste (other than waste hazardous for ignitability only) for dust
suppression or road treatment. This prohibition was effective November 8,1984
(§§266.23(b) and 279.82),
The information in this document is not by any means a complete representation of EPA s regulations or policies,
but is an introduction used for Hotline training purposes.
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Definition of Solid Waste and Hazardous Waste Recycling -13
Precious Metal Reclamation
Subpart F of Part 266 applies to recyclable materials from which precious metals are
recovered (i.e., gold, silver, platinum, palladium, indium, osmium, rhodium, and
ruthenium). Generators, transporters, and storers of recyclable materials intended
for precious metal recovery are subject to notification under RCRA §3010 and
manifest requirements under Part 262, Subpart B (for generators), §§263.20 and
263.21 (for transporters), and §§265.71 and 265.72 (for storers).
While hazardous wastes that will be reclaimed for their precious metal content are
exempt from much of the Subtitle C regulations, these materials lose any applicable
exemptions if they are accumulated speculatively, and become subject to all
applicable requirements under Parts 262 and 264/265. The provisions barring
speculative accumulation are set out in §266.70(c). To document that speculative
accumulation is not occurring, generators must keep records showing the volume
of materials on hand at the beginning of the calendar year, the amount of materials
generated or received during the calendar year, and the amount of waste remaining
at the end of the calendar year.
Although the storage of recyclable materials that will be reclaimed for their precious
metal content is not normally subject to Subtitle C regulation, under §§260.40 and
260.41, the Regional Administrator may regulate storage of precious metal wastes on
a case-by-case basis if the wastes are not being stored safely. This case-by-case
regulation subjects the generator or storer/recycler to §§261.6(b) and (c) (full
regulation) rather than Part 266, Subpart F.
In addition, if precious metal reclamation takes place in an industrial furnace, then
Part 266, Subpart H, standards may apply to the unit. If, however, a series of
conditions in §266.100(f) are met, the unit is exempt from full Subpart H regulation.
This is discussed further in the module entitled Boilers and Industrial Furnaces.
Spent Lead-Acid Battery Reclamation
Part 266, Subpart G, covers spent lead-acid batteries that will be reclaimed. These
provisions apply only to spent lead-acid batteries. Under Subpart G, the
requirements focus on storage of the batteries by persons who reclaim the batteries.
Persons who generate, transport, regenerate, collect, and/or store spent lead-acid
batteries without reclaiming them are not subject to hazardous waste regulation.
According to §266.80(b), owners or operators of facilities that store spent batteries
before recycling are subject to §§266.80(b)(l)-(4). Storers must comply with §3010
notification, and all applicable provisions in Parts 264/265, Subparts A through L.
The exceptions are §264.13 (waste analysis plan) and §§264.71 and 264.72 (use of the
manifest requirements). The permitting requirements of Parts 270 and 124 are also
applicable.
The information in this document is not by any means a complete representation of EPA s regulations or policies,
but is an introduction used for Hotline training purposes.
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14 - Definition of Solid Waste and Hazardous Waste Recycling
Burning Hazardous Waste
Part 266, Subpart H, governs hazardous waste burned for energy recovery in boilers
and industrial furnaces as defined in §260.10. Originally, these units were
considered to be exempt recycling units (50 £R 614, 631; January 4,1985). EPA
determined, however, that there was a need for regulatory action to control this type
of burning. The Agency promulgated these regulations on February 21,1991 (56 FR
7134). These requirements are presented in the module entitled Boilers and
Industrial Furnaces.
EXEMPT RECYCLABLE MATERIALS IN §261.6(a)(3)
Certain recyclable materials are exempt from hazardous waste regulation under
§261.6(a)(3) when recycled in specific ways. These materials are exempt from the
notification requirements of RCRA §3010,40 CFR Parts 262 through 266, and Parts
268, 270, and 124. All of these materials meet the definition of a solid waste and
hazardous waste, but are not required to be managed as hazardous wastes if recycled
according to the provisions in §261.6(a)(3).
Industrial Ethyl Alcohol
Industrial ethyl alcohol that is reclaimed is exempted from RCRA Subtitle C
regulation because the Bureau of Alcohol, Tobacco and Firearms already regulates it
from the point of generation to redistillation (§261.6(a)(3)(i) and 50 FR 649; January 4,
1985).
Scrap Metal
Scrap metal that is disposed of or reclaimed is a solid waste under the definition of
hazardous waste (§261.2); however, it is exempted from Subtitle C regulation when
it is reclaimed (§261.6(c)(3)(ii)). As was mentioned earlier, scrap metal is defined as
products made of metal that become worn out (or are off-specification) or metal
pieces that are generated from machining operations. Examples of scrap metal are
scrap automobiles, machine turnings, pieces of wire, sheets of metal, and scrap
radiators (50 FR 624; January 4,1985). When these materials are recycled to recover
their metal content, they are exempted from regulation.
Waste-Derived Fuels from Refining Processes
Fuels produced by refining oil-bearing hazardous wastes, along with normal process
streams at a petroleum refining facility, are exempt under §261.6(a)(3)(iii) if such
wastes resulted from normal petroleum refining, production, and transportation
practices. For these wastes to be considered to be "refined," they must be inserted
into a part of the process designed to remove contaminants; this would typically
mean insertion prior to distillation. Consequently, if a facility takes an oil-bearing
The information in this document is not by any means a complete representation of EPA s regulations or policies,
but is an introduction used for Hotline training purposes.
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Definition of Solid Waste and Hazardous Waste Recycling -15
T
hazardous waste and processes it without distillation to produce a fuel, the resulting
fuel is not covered by this exemption.
Waste-Derived Fuels and Oils That Are Not Refined
Fuels produced at a petroleum refinery from oil-bearing hazardous wastes that are
introduced into the refining process after the distillation step, or that are
reintroduced in a process that does not include distillation, may also be exempt
under §§261.6(a)(3)(iv)(A) and (B). Since these hazardous waste do not undergo a
distillation step that would ensure contaminant removal, the resulting fuel must
meet the used oil specifications in §266.40(e) to fall within this exemption.
Oil that is reclaimed from oil-bearing hazardous wastes generated by petroleum
refining, production, and transportation practices is exempted under §261.6(a)(3)(iv)(C).
This exemption applies to oil that is burned as a fuel without reintroduction into the
refining process, provided it meets the used oil specifications in §266.40(e).
Recovered Oils
Until July 28,1994, §261.6(a)(3)(v) contained a recycling exemption for oil recovered
from petroleum refining hazardous wastes that was subsequently reintroduced into
the refining process. This exemption was deleted from the recycling regulations and
superseded by a newly created exclusion in §261.4(a)(12) (59 FR 38537). Essentially,
these wastes are still excluded from regulation. This exclusion is discussed further
in the module Solid and Hazardous Waste Exclusions.
Petroleum Coke Fuels
Petroleum coke produced from petroleum refinery hazardous waste containing oil
is exempted from Subtitle C regulation if (1) the coke is produced by the same person
that generated the hazardous waste; and (2) the coke does not exhibit a characteristic
of hazardous waste (§261.6(a)(3)(v) and 59 ER 38545; July 28,1995). Note that recycled
coke by-products are also exempt under §261.4(a)(10).
MANAGEMENT STANDARDS FOR RECYCLING IN §§261.6(b) AND (c)
Recyclable materials that do not meet an exemption or that are not subject to special
requirements are regulated under §§261.6(b), (c), and (d). Generators and
transporters of recyclable materials that are solid and hazardous wastes are subject to
the same regulations as other generators and transporters of hazardous waste.
Facilities that store these materials prior to recycling are subject to the applicable
TSDF standards. As discussed below, however, the recycling process itself is not
subject to regulation.
The information in this document is not by any means a complete representation or EPA s regulations or policies,
but is an introduction used for Hotline training purposes.
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16 - Definition of Solid Waste and Hazardous Waste Recycling
Generators and Transporters
Generators of recyclable hazardous wastes are required to follow all the applicable
requirements of Part 262 (§261.6(b)). Likewise, transporters of recyclable materials
must comply with Part 263 standards.
Treatment, Storage, and Disposal Facilities
Owners or operators of facilities that store hazardous materials prior to recycling are
subject to all of the requirements of treatment, storage, and disposal facilities
(§261.6(c)). In other words, storage is fully regulated. Pursuant to §261.6(c)(2),
however, if the recyclable material is not stored before reuse or recycling but put
immediately into the reuse/recycling unit, a storage permit or interim status is not
necessary. The facility must only obtain an EPA ID number and comply with the
manifest requirements under §§265.71-265.72 and §265.76.
An important component to §261.6(c) is that while storage of a hazardous waste is
regulated, the recycling process itself is generally exempt from RCRA regulation,
including permitting requirements. (The one exception is that the unit may have to
comply within some air emission regulations which are discussed below.) State
hazardous waste regulations and other federal or state environmental laws or
regulations may be applicable.
As mentioned above, the recycling units are potentially subject to air emission
standards, if located at a permitted or interim status treatment, storage, or disposal
facility (§261.6(d). Parts 264/265, Subparts AA and BB require air emission controls
for specific units that manage waste with a minimum organic content. If recycling
units meet these criteria, the units would need to comply with the appropriate
regulations. The Subpart CC air emissions standards do not apply to recycling units.
MANAGEMENT STANDARDS FOR USED OIL AND UNIVERSAL WASTE
There are two additional categories of wastes that have special recycling regulations.
The first category is used oil sent for recycling. When recycled, used oil is subject to
the standards found in Part 279 (§261.6(a)(4)). Universal wastes comprise the second
category of wastes subject to special standards. Hazardous waste batteries, hazardous
waste pesticides that are recalled or sent to a collection program, and hazardous
waste thermostats are subject to the standards of Part 273 (§261.9) when recycled
and/or disposed.
Used Oil
Used oil represents a rather unusual case. Because EPA introduced a new used oil
management program in 1992 to replace the existing standards, there are
overlapping sets of regulations. Under the existing program, which EPA
promulgated in 1985, used oil burned for energy recovery is subject to the standards
"^TMmrornwtionintKsaocument is not oyanymeans a complete representation of EPA's regulations or policies,
but is an introduction used for Hotline training purposes.
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Definition of Solid Waste and Hazardous Waste Recycling -17
of Part 266, Subpart E. Under the new program, used oil being recycled in any
manner is subject to the standards of Part 279 (§261.6(a)(4)). The relationship
between these two programs and the used oil management requirements are
discussed in detail in the module entitled Used Oil.
Universal Waste
On May 11,1995 (60 ER 25492), EPA promulgated regulations which streamline the
collection of certain hazardous wastes. The rule, known as the "Universal Waste
Rule/' creates special management standards in Part 273 for hazardous waste
batteries, hazardous waste pesticides that are either recalled or collected in waste
pesticide collection programs, and hazardous waste thermostats. Section 261.9
requires that these wastes be managed under Part 273, regardless of whether they are
sent for disposal or for recycling. The rule also contains provisions for adding other
wastes to the universal waste system.
The information in this document is not by any means a complete representation of EPA s regulations or policies,
but is an introduction used for Hotline training purposes.
ii
i -LA.. A
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18 - Definition of Solid Waste and Hazardous Waste Recycling
The information in this document is not by any mSans a complete representation of EPA s regulations or policies,
but is an introduction used for Hotline training purposes.
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Definition of Solid Waste and Hazardous Waste Recycling -19
3. SPECIAL ISSUES
Some areas of the solid and hazardous waste recycling regulations can be difficult to
master. The topics discussed below are often misunderstood by callers and should
be thoroughly understood by Information Specialists.
3.1 MILITARY MUNITIONS
Over the years, the applicability of RCRA to military munitions has been subject to
some controversy. On February 12,1997, EPA finalized a rule that specified when
unused and used military munitions are considered discarded and become solid
wastes (62 FR 6622). Unused military munitions become solid wastes when the
munitions are removed from storage for disposal or treatment prior to disposal;
when the munitions are leaking or deteriorated so that they cannot be recycled or
reused; or when declared a solid waste by an authorized military official. Unused
munitions that are repaired, recycled, or reclaimed, are not considered solid wastes,
nor are they considered solid wastes while in storage in demilitarization accounts
(e.g., scheduled for treatment or disposal). Only when these munitions are finally
removed from storage for the purposes of disposal do they become solid wastes.
Used military munitions become solid wastes when they are buried or landfilled on-
site, or when they are removed from their landing spot for subsequent management
(storage, reclamation, treatment, or disposal) off-range. Note that munitions that
have been used for their intended purpose (e.g., fired munitions or munitions used
in training exercises) are not considered solid wastes when they land on a firing
range, because landing on the ground is part of their intended use (rather than
disposal). Once these military munitions are collected and sent off-site for further
management, however, they become solid and potentially hazardous wastes.
3.2 REFINING VERSUS RECLAMATION
There is often uncertainty about when a reclamation process is complete and when
the recycled material is a final product rather than a partially reclaimed material.
Sometimes a product must be further purified to be sold or used, and this is viewed
as refining or purification of the product, and not reclamation. When in doubt, the
generator must consult the appropriate EPA Regional or authorized state personnel.
3.3 RECYCLING PROCESS NOT REGULATED
In general, the actual recycling activity and treatment prior to recycling are not
regulated. Thus, only storage prior to such recycling is regulated. If the waste is not
The information in this document is not by any means a complete representation of EPA s regulations or policies,
but is an introduction used for Hotline training purposes.
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20 - Definition of Solid Waste and Hazardous Waste Recycling
stored prior to recycling, the recycler only needs to notify of the activity and comply
with the use of the manifest when receiving shipments of recyclable materials from
off-site (§261.6(c)(2)).
3.4 SHAM RECYCLING
For all recycling activities, the premise is that legitimate reclamation or reuse is
taking place. To encourage recycling, EPA subjects these activities to reduced
regulation. Some facilities, however, may claim that they are "recycling" a material
in order to avoid being subject to RCRA regulation, when in fact the activity is not
legitimate recycling. Therefore, EPA has established guidelines for what constitutes
legitimate recycling and has described activities it considers to be "sham recycling."
Considerations include whether the secondary material is effective for the claimed
use, the secondary material is used in excess of the amount necessary, and whether
or not the facility has maintained records of the recycling transactions.
The informatton in this document is not by any means a complete representation of EPA s regulations or policies,
but is an introduction used for Hotline training purposes.
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Definition of Solid Waste and Hazardous Waste Recycling - 21
4. REGULATORY DEVELOPMENTS
The definition of solid waste has changed substantially since the promulgation of
the original RCRA regulations in 1980, and continues to evolve as EPA gathers
more information about solid waste management and recycling. Currently, EPA is
considering amending several aspects of the solid waste regulatory scheme.
4.1 MERCURY-CONTAINING LAMPS
Data suggest that while mercury-containing lamps are highly energy efficient, they
often fail the TCLP for mercury and thus must be managed as hazardous waste. In
an effort to reduce the regulatory burden associated with the disposal of mercury-
containing lamps, EPA proposed a rule for the management of these wastes on July
27,1994 (59 FR 38288). The rule outlined two regulatory options: (1) a conditional
exclusion from Subtitle C; or (2) inclusion in the universal waste system. As
mentioned above, states also have the option of adding wastes, such as fluorescent
lamps, to their universal waste programs, thus subjecting these wastes to the
reduced regulations of Part 273. EPA is expecting to finalize a mercury lamp rule
addressing some of these issues by early 1998.
4.2 USE CONSTITUTING DISPOSAL: AMENDMENTS
On August 24,1994, EPA promulgated a final rule which amended §266.20 by
prohibiting anti-skid/deicing uses of slag residues produced from the treatment of
the listed wastes K061, K062, and F006 (59 PR 43496). Currently, these waste residues
are conditionally exempt from hazardous waste regulation under §261.3(c)(2). On
December 29,1994, EPA proposed to further amend §266.20 with respect to these
wastes (59 FR 67256). Specifically, these slags would be prohibited from any use
constituting disposal unless they meet the conditions of the exemption under
§261.3(c)(2). EPA is presently reevaluating the proposed rule due to significant
issues raised by public comment.
In addition, EPA proposed on May 12,1997, (62 FR 26041) to ban the use of
prohibited hazardous waste as fill material unless the waste meets LDR treatment
standards and either of two conditions are satisfied: (a) the placement occurs
exclusively in a regulated unit (e.g., Subtitle C landfill); or (b) the user is able to
make a demonstration to the implementing agency that placement will be
protective of human health and the environment as set out in RCRA §3004(d)(l).
Use as a fill material involves placement of hazardous waste on the land in a
manner which fills in significant levels of depression in the land, such as gullies or
ditches.
The information in this document is not by any means a complete representation of EPA s regulations or policies,
but is an introduction used for Hotline training purposes.
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