vv EPA
United States
Environmental Protection
Agency
Office of
Solid Waste and
Emergency Response
DIRECTIVE NUMBER:
TITLE: BURNING HAZARDOUS WASTE FUELS
IN CEMENT Ktt'NS ' . . :.
NOV 8 , 1985
'NO* &, lW
"O'sw
APPROVAL DATE:
EFFECTIVE DATE:
ORIGINATING OFFICE
0 FINAL
D DRAFT
STATUS:
REFERENCE (other documents):
OSWER OSWER OSWER
/£ DIRECTIVE DIRECTIVE Di
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&EPA
Umtca States £nv:ro.'.rr>er.iai Prc-ttc'-cn Agency
Washington. DC 20460
OSWER Directive Initiation Reauest
Irtef-rr: C.-tc:ive.'.urntjer
q,J32 6-ilA.
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UNITED STATES ENVIRONMENTAL PROTECTION AGENCY
WASHINGTON. O.C. 20460
NOV 8 '&>*
OFFICE OF
SOLID WASTE AND EMERGENCY RESPONSE
MEMORANDUM OSWER Directive #
SUBJECT: \Burni[ng/ /Hazardous Waste Fuels in Cement Kilns
FROM:
De-pu
uty Assistant Administrator
TO: Thomas Devine, Director
Waste Management Division
Region IV
This is in reply to your letter of November 4, 1985, and
confirms the phone conversation you had with David Sussman on
November 6, 1985. The burning of hazardous waste fuels for
legitimate energy recovery in cement kilns is presently exempt
from RCRA requirements. The enforcement guidance FR 48 11157,
and the enforcement guidance interpretive memoranda of February 28,
1984, and July 5, 1984 are still, in effect. In addition, the
correspondence from Matthew Straus to Dr. John Chadbourne and
from David Sussman to James Scarbrough enclosed with your letter
reflect Agency policy in this matter.
As you know, we are in the process of regulating the burning
of hazardous waste fuels in boilers and industrial furnaces
(including cement kilns). The first phase of this regulatory
program is contained in the waste-as-fuels: administrative
standards final rule making to be signed by the Administrator
on November 8, 1985. The Phase II rules to be proposed in the
spring of 1986 will contain the technical permit standards for
the devices burning the hazardous waste fuels. When those rules
are finally promulgated, the enforcement guidance and interpreta-
tions will no longer be in force, as burning hazardous wastes for
energy recovery will be fully regulated. Until that time, we do
not have RCRA technical standards that are directly applicable to
boilers or industrial furnaces. The RCRA incinerator standards
are inappropriate for many industrial furnaces. Subjecting
cement kilns to the Part 264 Subpart O incinerator standards now
is tantamount to a prohibition on burning hazardous waste. This
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is because it will not be cost effective to add a scrubber for
HC1 removal so as to comply with the incinerator limitation. For
industrial furnaces, we plan to base the HC1 emissions limitations
on health effects rather than on scrubber technology capability.
In addition, some of the monitoring requirements for incinerators
are inappropriate for furnaces.
Should the State of Alabama wish to require boilers and
industrial furnaces that burn hazardous waste to meet the incin-
erator standards at this time, they may so require by State
regulations, as their regulations may be more stringent than
EPA's. They should not, however, interpret our rules in a way
which we never intended.
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OATB NCC-0
85/11/06
REQUEST FOR HERDQOARIERS PQZiCY CN
BURHNG WAS1E RJEi
ASAP - TELEE!AX REPL¥
EPA Form 51 SO-1 (6-72)
REPLACES FWPCA FORM 72 AND
HEW-7 J WHICH MAT NOT BE USED.
* CPOI 1983-418-020
(Remove tht» copy onfy, do not s
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UNITED STATES ENVIRONMENTAL PROTECTION AGENCY
DATE: NQV 4 iS»5
SUBJECT: Request for Headquarters Policy on Burning Waste Fuel in Cement Kilns
/•
Director
FROM: waste Management Division
Region IV
TO:J. Winston Porter, Assistant Administrator > •
Office of Solid Waste and Emergency Response .
Mail Code (WH-562A)
Region IV has previously requested an interpretation of the hazardous waste
rules regarding the regulatory status of waste-derived fuels that are
burned in a cement kiln for energy recovery. A response was received from
David B. Sussman, Manager, Waste Combustion Program on Obtober 11, 1985.
The State of Alabama and General Portland Company, Demopolis, Alabama
have also requested Headquarters interpretation in the matter. Attached
for your reference are:
- Letter from Matthew A. Strauss, Chief, Waste Identification Branch to
John Chadbourne, Director of Environmental Services, General Portland,
dated October 11, 1985.
- Memo from David B. Sussman, Manager, Waste Combustion Program to James
H. Scarbrough, Chief, Residuals Management Branch, Region IV, dated
October 11, 1985.
- Position memo written by the State of Alabama dated October 22, 1985.
The Region is readdressing the issue to assure that this is the Agency's
policy on the matter. Although Mr. Sussman's memo was clear in terms
of his position, he states in the narrative that, "... my thoughts may be
helpful." He also indicates that there seems to be confusion as to the
intent of Congress in the 1984 Hazardous and Solid Waste Amendments on
burning hazardous waste fuel in cement kiln.
The State of Alabama asserts that adverse health and environmental consequences
could result from burning hazardous waste for energy recovery and the practice
should meet incinerator standards.
This is a critical issue which requires a final policy memorandum from your
office. Alabama has scheduled a meeting with Mr. Jack E. Ravan, Regional
Administrator, on November 12, 1985, therefore, we respectfully request a
written response by November 8, 1985.
Thomas W. Devine
cc: Matthew A. Strauss
David B. Sussman
EPA Form 13304 («•». 3-76)
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ALABAMA '.,
DEPARTMENT OF ENVIRONMENTAL MAMAGM.Mf: WT
October 22, 1985
.,3t F.-J.r.i'/r.i"
v. .i.tSf.T,.fv. ii M ." M O R A N D U M
ICi 571 7" . .
lu: D.-mu.'l i~. Coopvr, Cliu.-i
I.-inti Di v i s i oh
li>-rn. i id i-:. Co:-:, .71 . . f'hicl '[•]',-. • •
ll.'i::.inioim W.inre Hi\irn.-!i
SUH.JKCT: Un rii i Mil l!.i;:.1fdou:: W.i:;l,-
As you arc nwuro, th.v llar.ciri'iour' W,i:.« r Ur.iticli !:.i:; r'-c-i.-ni ly rr-c-: i •.•••••:
.1 number of proposal:; to hunt !i.i::.ir.•:•.- .
incJudintj i ni: i nor.itor.-;, boi l.vrs .nul I n fii.n.-< •::. Out- o! il-..- r.u.r.- .••••/r- r.:
prOl'Oii^: 1 :: way iilll.ur. i ( t i.'i! to tin- ln-par t I;M-I,; i .•/ C.-::"i.il |':M Jl.i::1 :'•::••• ::'
Conijiar.y in Domopc.'l i:.;, Alal'.in.i.
This Branch li,i:j m.i i iH.i i no.i i iilc1 ('.>>' bi:.- n i ii'i .1. :•.:<•!.
( .'') ; M.' 1 1 '-•;' l o 1 :; i:i;ni u I ;: l m; •.::;: or i ::L' i;:' .•'.::•;••• -Hii .:•: .• . . :::• ' . ; ::• : •. . :.. .
! rUJt l;CJi. n .. 1 j OV/i.".: tit !u- i>Ufi:.-<: .1:. ;:i..-!:. |M :' '::• :. : : ; .:...
fcnl'orccmi'-nt Policy Cui: i-y i-:!'A <.--\\ .'-'.i--'-!! '.•'., •••• •.
! n:'i i v i ti-i.i 1:: I'l-fjii'-st i IK; lli.it i!i. -y !M- >i ! 1 .>•....'.••.; ; . :.,,:, -i .. .
'.-.'.is-it C- wiiu Ul li^iVi.- to i;u-(. t .1 I ! !>• •. i : :..i i y rc.-q'.i l :•••:> :\- •.. • : •••
li.'i/.iU'ii'vJur. w.iiifo. tirofjr .!iv .
::--iMioii <\-:>. JO. Oil (.1) C! . ) (.i-i) il.-liiH':; .1:. .1 li
v.'. i :j I o nsixcil v:it!i !i:; V.M:.I «.• li.Mi-.i i :i :''••.•: i'.:.
•'p-."!.r... S.-i.-f inn <1-.";.ir> a'.' l!i-- ffijn I .'it mn:. !i:;t iis.iiiy :-M t • •:':.:!.
ii..i.\i!'.;ou:; w.i::j.f.« i nr; ] u-J i P.'j m- • t iiy 1 i-ii-.- 'i:h ! i •; !'!••', I:.!::.-IM : . : :•.-.: •':.'.-••••'. •• .
I , 1 , 1 : .ii;'i I ,!,.'.' I r i •:.•)! 1 oroi-i !i..!n- , •. li.l nri • : -. n ;:• , .1 ;;• i '. : i • •• , ! :•••;,. . .• .
'I'li.'^i1 iii.it ::r ; ..i i :; viro Jii.tc-ii ..•; ix>i.!; i .• ! I -.;.•••;;: u-ii i..^. •.• .: : • .•• .
i.r.-jiiu-.-j :; a.'l'.i tu; rombinoii (:r. l :•: !.••.! ) v.-.i:: : i •:: :.u.'!i .;:., '/'.'•''•'., ;•'• : . ., . •
.'•':.i r •. i i ti ] j; wliii-l; ,irc.- .listui: v.Mul'.- ,i:~r <-|ii;ii)!c Jnr I'l-fy.' I ;;••:. :•::..•,
( : i: . , .i.%: JV.T ::.-ct i fin ''i-C?..? '.'I ! In.- Al.ih.iiii., II. ;;•.. ir-Inu:; V.'.i::ii' f-:.:r:.i'|--:-,. :.:
i-i'.-'j.i Iji. i (.Jii:; , pfov i da rt'j lh.it. I In- n:c:yt: I i n>; , ;::•••, of fi.-'.ij.i- i •.; h-cji; !•:.:••
.•ir.-!/o: in-nc!" i i- i ,i ] . WciiStt.- v:;iich .!!"•:• ii::!-"i Must ini-ct i-.-f.;i :':.•
i .••j:;s:;ort >i t. i oc. iiui!. rjtor.'i'jc .•••.•'|i:i ro:':cnt .«. rTi-.^r fi.- ;•.•<.•'/'..• 1 i ficj , »;...•..• , . :
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.';' i <.• -.'
taken the stance that burnir.ij waste with significant concent: rci» i<
of chJorine (greater than .'1") or any Appendix A v/acti.- oon:-'- i • <.i .-r
i r; not legitimate1 recycling but is in t'aci sham recy-v! i :ircvi 01::: I y mentioned hciv- o>:t r^ :.•/.•:
low HTU cor;tr-nts .'jnd tliu.s «vmiujt ai'l in the coirl'iir.t ion i.-ro':'-.:..-.
Thi;; titronijly indicate;:; th»it i in.- purpono lor hurninq tli-:- •.•.•.::•.'.<.• :
th.it o! disposal anij not lh.it f. ! fS'.i.-r'jy rc^-uvry .
Wlii-n ai.ke Ji:;t'.-c! •.•.•.isto. clui'inij tln-ir t r.iri: .P-JI ! ,i '. • or; c
:;:•• i r. :•/..• j-r i <>•' to I«M: i ; i m;-.t ••• r'-r-ycl i rnj . .'1'ii i :. It i v i :; i '-.r . •.-.•!:• :: : ?:• • • • : :
M .'. M, ilvoj cii.-ii to a••".! to aJl';w \i->\. i.-n t l a 1 fecc 1 v i tlij sl.ile:. ;:in. :-|i;!-; : • • :::.:':•• •.:..
:•-'.' i !-. ; on !j-.i:»'.'.! or. llif-ii- re;ji: I a t i J^n:; . '•'.'<.• i;\ rii'' ;..ifi.i ;• i v i :.;•.. r. :..r.
i---e:i . or,:: i s t i-i;( witli I lie i)i;Jic:y out ] i rn •trac!teii_ is _a Icttt/r : rom '.'•'. itr .fit raus.:;. .t_i>. .]ol:n (.'li.!.;].1;.1'.::'.'!--. ,:r. :
me.TO ! r^m David fussnian to Jim fjcarlj/'ouiili IT}, i; iv : •• i :'i:: ::....•
In .1 ; uJ low-up j'horu.- conv«.-r::at ion with Kr. Str.r.!:-., in- •.;:;:.::••: • :
: 'j I lcv;i :nj in format ion:
t:! Ji the I uc] l-,as t-:i:i" .' '. -" i •« '-nt I'-'I'ii roni eni (iji'e.s: • -r : i: ::. •' .
hi'U/Jl.)) then I hi: : •OJiip.-':'. l r i on o: :!i.- v.-.i: [ ••• i: ::;::;•:: :i..::.;
(2) Ri.'.iidui.1 fi'ijjh} from burniii'j v/ast i.» luc!:. wo-.ni! ]>•• a ! i.-.ti- i
•HI:; '.-j. ::.{•• (::iii':e I h< • Iii'-l eonl .1 i n- •• :"eMu J ai >•<', .
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Memo. - L'.urnimj Hazardous '.-.'a.-i; e
?cjtivi« to Imrnin't w.istc lin-1:;. I'.y
definition, onc-ryy rccuvcry/mntur jal recovery is t ruJtmtMiC pi:.-: I:C!e permitted or hiivo ini:orim utiitur;.
lit? alr-o st.iti?d their lie wn:; unsure as" to why Coiujruii:; under KCI-'A
j?c-.:»uthor i r.at ion nuindntccl tli.it. conu«nt kilns burnnui lp.-.-jr«!cnp; v.\u: '•:
tuols in «rtM:: with populations ijrc-iitt.'r th.in liOO.l.'fiO .-c.-ci: i vo a r-.CifA .
i nci ncrjil iun ucrniit prior ro Liciiuj tillowi.-d it» burn .such .•/. i:. i-.•..
1 :i Mr", i'.usiinu'ui' :i inpino, he r.tatei; lliiit v;h.it CIMUMM! i'ortJund purport.;
to do i ^ legitimate resource.; recovery .nid chui; not n.-'jul .•if': n»i I. «.-r i .11:: m.-r-d uor :.•.•
rv«ju]jtc-ij and rhat hum ing in ijoi lcrs/i mlu::t r i,iJ f urndcjc1!: i ^: ::i::>c-r i <.•'.•
to other waste nmnl;tqr.-:iK'>nt proc:ticL%:;.
Mr. Suur.injin ' s iiu:i::o sut;c;c::;t t.'uit Al.jbanui .ind Keyion IV nor r t < j u 1 nre norod roJocivc: t:o Mr. St r.ii ::;.<•: •
.itii! Mr. Suiii-uivHi':; lo:jic. ,'.r~'-
'. \ 'f •*"
. - *• ~ — • ' i
(1) Any Wv'i:.;to ran be blondi/a LJO th.il Ut<.' r,;i:-:iuro h.i:.; .1 BT'J iv-uu-.-n; '•; '.
..ihovo (ifJOO IJTU/.1!), thus; potent i .11 1 y ,i I lov.-1 nij l.h'? :.-iir:s i :if; o: ,- .
.my i-.-jyt..- in uncont roJ Ji-d uniti;.
(2) T!' tho rcaidur- from the burniny in listc.-cl why i;;n't t n-:- •.•.•;:^;-
tii-jl listed?
' ') Why doi.-sii ' t Kl'A l:'t;ad> |ua r rc.-j's plv' :; t r i ii«,•(.•;! i :-i .nid.i i •> ii. -i.-: :
l.ilcr r•::/ i ndu::t r i a I I ;i rn.i •••:•• ::
not i;(.'iv!-.;d V Mr. y-juiiiisiin ..id mil:; v.-.u;ti.- IIK.-IL'. v/iJI in.- r w'ju!«:" •••:
but to w!:.-jf doyroo ii-: the quo.'it i on.
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Memo - Burriiny Hazardous-Waste
Page 4 . > •
October 22, 1085-
(-1) Under Mr. Strauss .and..Mr. Suysin.in' s .loyic tiny waste could bo "•'*'
blended and burned in a non RCIVi facility with rr. i n i .T.;. 1 rr.-c:u- ~
latory control. This completely negates the intent of KC.r"''
it is recommended that they be required to have a Part H Incinerator .»"*•
Pormit prior to such burning. Failure to require this could have a i ,-,.•>•' *"
:> igni f i cant adverse impact on tho rosifionts of DcmopoJis and v:ouid .•'' '
- ^
Establish an unbc-i'irab.lc prccetience of all future c;i^Oi'.. ••_ •'•''
«
LiKC/sjw
\t V
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SB
\
$
UNITED STATES ENVIRONMENTAL PROTECTION AGENCY
WASHINGTON. D.C. 20460
OCT
BBS
OFFICE OF
SOLID WASTE ANO EMERGENCY RESPONSE
Dr. John F. Chadbourne
Director of Environmental Services
General Portland, Inc.
P.O. Box 324
Dallas, Texas 75221
• t
Dear Dr. Chadbourne:
It was a pleasure meeting with you and Art H&Ins tetter
last week. As we discussed, you requested an interpretation
of the hazardous waste rules regarding the regulatory status
of waste-derived fuels (that are produced by waste fuel
blenders and processors) that are burned in a cement kiln for
energy recovery. As I understand, the following are the
facts you described to me: '
* ••> •
0 Waste-derived fuels will be used to replace Isoal
which is currently burned in a cement kiln (cement
kilns are defined as industrial furnaces);
• These waste-derived fuels will be received only from
intermediate waste fuel blenders and processors;
0 The waste-derived fuels have a heat content greater than
10,000 BTU's/lb.; in addition, each waste stfeam used
to prepare these waste-derived fuels have a heat
content greater than 6,000 BTU's/lb.;_!/ and
0 Varying amounts of "Appendix VIII hazardous constituents"
are expected to be present in the waste-derived fuels.
In addition, General Portland plans to build a 150,000
gallon tank to store the waste-derived fuel prior to :its use
as a fuel.
I/ Under the statement of Enforcement policy issued on January 18
~ 1983 (printed at 48 PR 11157; March 16, 1983) and guidance
provided to EPA Region IV on February 28 and July 5, 1984
(attached), if it can be shown that each hazardous waste
that is blended into the fuel has a substantial heat value
as generated, the waste is a legitimate fuel regardless of
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Under these circumstances, the waste-derived fuels to be
received by General Portland are currently exempt from
regulation.J2/ In particular, under the January 4, 1985
recycle/reuse regulations, we decided, as an interim measure,
to retain the distinction that existed in the May 19»• 1980,
hazardous waste regulations between listed wastes and sludges
and unlisted hazardous waste fuels with only the former being '
regulated. The January 4 rules also exempts from regulation
all waste-derived fuels that are produced by a person other
than the wastes generator or burner. Thus, hazardous waste
fuels leaving intermediate waste fuel blenders and processors
are exempt from regulation at this time. See 40 CFR $266.30
and 266.36; see also 50 FR 632, January 4, 1985. Consequently,
the waste-derived fuels to be sent to your proposed site in
Demopolis, Alabama would not need-to be manifested; in addition,
the 150,000 gallon storage tank that will be used to store
the waste-derived fuel does not need to be permitted under
RCEA.3/
As you are aware, however, these exemptions are temporary.
On January 11, 1985, EPA proposed to modify its regulations
with regard to waste and waste-derived fuels that are used as
a fuel or used to produce a fuel. See 50 FR 1684. This .
proposal is expected to be finalized this fall; once it is,
these waste-derived fuels may be subject to some regulation.
footnote 1 cont.
the> concentration of low energy constituents (i .e.,
halogenated compounds like chlorinated solventslTn each
waste or in the blended fuel. To determine which hazardous
wastes have a substantial heat value, EPA will use as a
benchmark those wastes with a heating value greater than
low 'energy commercial fuels such as wood (5,000 to 8,000
BTU/lb) or low grade subbituminous coal (8,300 BTU/lb).
2/ Although these waste-derived fuels are currently exempt
from; regulation, these waste-derived fuels are solid and
hazardous wastes (if they themselves are hazardous) and
potentially subject to EPA's control.
3/ Although these wastes are currently exempt under the
Federal hazardous waste rules, the State of Alabama is
free to establish policies and write regulations which
are more stringent than the federal requirements.
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Please feel free to give me a call if I can be of any
further assistance; my telephone number is (202) 475-8551*
Sincerely yours,
Matthew A. Straus, Chief
Waste Identification Branch
cc: Beverly Spagg (EPA Region IV)
Joseph Broadwater (ADEM)
Bernard Cox* Jr. (ADEM)
David Sussman
Attachment
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Faderaf Register / Vol 43, No. 52 /
March 18. 1683 / Nonces
11157
r.Uniroyal Chemical EPA
i a notice published ia the Federal
Ugietar of April 13.1979 (44 FR 22175)
lorp, had submitted pesticide petitioa
iFas? to thirAiency proposing to
imend 40 CER 18O301 by establishing
olaraacea forth* combined residuee of
bt fungicide carboxin in or on th»
emmoditiee peaanta, peanut seeds, and
mils at &0ppm..
UBiroyal o»««it*fej Cora. %^p
mended the petitioa by decreasing the
alarance ia peaauta from &0 to 10 ppm.
at propOMd analytical method far
ttermiaiBft; residuea ia by hydrolysia-to-
niline fnttnod •«*> color test with p^
for
ssue), and by hydrolysis aad gma
hromatogrephy of the libcnttd aniline .
(ing • aitrogea-epetific detector (for
ted). (PM-a. Hearx Jacoby 709-557-
iec, *08{d)(tt M Stat OX (7 U3.C. 136); .
BOiMS), 72 SUL iraa. (a IL&C jou
DeJed; reunify a,
Ptttitidt Ayamag.
•nd T Owniemta, (no; Approval of
?pllcatk« to Contftfenatfy R*gt*tw a
»rte«« Ptoduct mvoMng A
?«Bey(EPAF).
> EPA hcfe cpprortd tfao
'plication by M and T Qanicala. be.
register tb« aatifbolant BioMot ** 204
M4 Red Anttfoollat Pu°t ^»
jiitrattoa iarohrn a dung ad ua>
:ttam pnnuaat to the proviaiona of
etioa 3(c)(4) of tha Ftdaral laaatidd*.
Agicida. •nd' R?d IflBa.
Idwaii.1 ir \t;. %
Dinctor. OffitrefPttt\\ fdi jimjinmi
[OOC-WC
Enferewn
AOfNCv: Environmental Protection
Agency. . . . •
ACTIOIC Enforcement guidance. _
SUMMAMV; The Environmental Protectioa
Agency ia publishing a memonadno
providing t"^T"j"'"Tt* goidaaca)
regarding whether burning low energy'
hazardous wastes for oetensible energy
recovery purposes aa be considered to
be legitimate recycling activity within .
the meaaias of 40 OH 2BLe(aXl).
Application of the gtddance will vary hi
individual casee eccordmg to specific
ACTt
Dated: VUna a. 1963.
leUrtU.PBBy.
AMoa'at* AdmituMtfetafaod GtneraJ
(The memorandum containing the
enforcement guidance ia set out below)
Jaasanr la. 1883. . •
Snbieet RCRA EnforeemtBt
Bomini Low Entrgy Kssardouc WtttM
Ostensibly for Eawr^y Rtcoviry PiupoMt
fntK Rjts LsveDa. Assisuiat Adntnittntas
far Solid Waste sad Emergency .
labart M. Peny, Aesodate Adaau*soetar
aad Ctaenl Coa&sel
To: JUgioaal AdaaiBistratora. R«cjoaal
Cauasela. Oirecton, Air aad Haaaidow
MaierisJs Olvisiaaa
AAtipose 'x
'. This aemoraadoa provides luidaaes to
dtttnuna wata bwninf hazardous wutv or
aaardoua wwte^rrnd Avis tn boilers will
be ooDsidcnd lefjOmato neydiat onder 40
CPU 28UKs)(l). the Ncuiadaoa tepleautodna
Subtitle C of the Reftmrce CoBMrvaOon tad
lecovery Act (RCRAt TJus mtaana&m
elso providn fuidaaee rafaroutf the poenble
eblicatiaa of ecoentore. fuel biodcra,
distnbuiors sad ^^^1^*^ UMCS of tfaf ut
•vatcriak la eoaipry with meaiaaaas
promalBsud oadsr SKboas JOOOOOB of
ROIA. While this luidtoei Mts oat enml
nles. they suy wry ta pmrtcaitr eas*»
depending spaa iadrridaml CBc&autaact«> •
A Jlfftlatmr BacJcgmsod
OB }^sy 18. 19oa as part of the final sad
toterta fiasJ itfulsdoos onplcmtnUng ROIA.
EPA pramalgsttd ta wumpdon from
rsffu2stio& ^"f ceruds hazardous w%stes ^**^g
bcatfldally oitd. rvussd rscydsd or
rselaimsd (nftrrtd to cofltcflvtly throughout
this memoraadum as "tecydtd'T. Tbis
exeaptioa. coataiatdia 40 dl 2S1A appUrs
te two catsforits. First carttia hszsrdous
wastss are totally exempt from rvfulaooa If
Bty ars to be rtcydsd. Thsse sn hszsrdous
wastes that ars not sludges, that exhibit a
charsctuwac el hazardous waste, and that
are not listed ia 40 CTH 281J1 or 281 JZ. (SM
1 281.6(s).) SKond listed wastes and
hazardous itadfes are rabject to ntulatto .
aatil they are recycled (See 1 281 J(bJ.J In
either category, hazardous wastes are not
sabfect to_nguladoa during the actaal
" lie preamble to the reeniatlaa explained
mat the axenptlao "Is-oooniMd to bone fide
•• sre not wlthta its scope sad, tf
condretsd fa vtoladoa of SobttUe C
, win be eubfeet to
•£ (U FR at
MM.)
It Ceoenl Dbt
May ia
Steven Silverman. Saq, Attorney. Offloe
of General Counsel (202-382-7708).
Burning of hazardous wastee ' as fuels can
be e type of recycling activity exempted from
-------
FaxkraJ
.
/ Vol 4ft, NV. K / Wednetdsy. Majch IS. 188? / Nsttee*
iadoa provide me bleasisj end bumfcg
feaite togiamate, and not taa&j
'tarmTaadoa~oTwaan
ing depend* ultimately oa weighing a,-
bf^ffacton presented by the
a*aVncMofapa£ttcularjoa*e/Tba
PCValua ot ttYaaxarqou* waataa betog
aed or burned, however, to likely to beat!
aqr •icfla'canee to meet osee. '"Tr-
a figniUfMtif^ /»f « •«««««Y •"•••j value) /
Ideat if the waate* being burned have >
oe1 mining energy value, thebonstog .;
ot nuuvsi tuffiocnt tmrgy to '
ictartoa the practice aa legitimate
diag. la other word*, energy recovery to
lary. and the waataa, far practical
aeea. an being burned to ba destroyed.
ie Agency *aid oa May 18. Wea "burning
lie waataa that bare Uttla or BB haat
i to mduatrial boilen under taa guiae of
y reoovary" to aorwithia the —Trr**^
(cycling (45 PR at J3083). Consequently.
ordinarUy view* taa practice of direct
ag of haxardoua waataa with Uttla or BO •
value aa "faato" u aot being legmmato
13«r»osaei should u*e *t a
.Baachman. waatea with a heating value Ieea .
thaa law eaergy commercial fuel* such a*
wood or low grade enbbituminmu coal*
bample* of haxardom* waata having Uttla or
ao heating vatae an discarded carbon
ehJorlda,«chJaro«tbyl«aa. 14.1-and ll-
i of hazardona waataa as
or burning mlxtane of waste? •»"* agp-
LfoeJLwnen one or mon at the
•dou* wait** to mTTuel ha* little or BO
raJue may likewise aot'Sa legittmato
Itng. 0*ie^H|HaTioM a* to 'vhT^^r *^fc^*'
iiag to legitimate wtO ba baaed oa
latioa of particular drcumstaneeefl
plenhe"iattuar6ricw~energy waata to
1 aad the drcumataaoea of It* addittoB to
tel could ba nlevant. aa could taa aature
jateatr to which the waate to burned.
•pa. aixa. openting oonditiona. eta.
idea when waata* with Uttla or ao baat
• an knowingly added to a material
dad to be burned u a foal an likely to
ntldand sham recycling aad not
«d by tha exemption contained to
4(a). avf.. mixing of low aad high energy
t streams by a blender or waata burning
*••
Uttla or no heating value. EPA
der a» tegulettea*. *J shidies, aad
bipbenyl*. end each pestidde* aa ttxapheae,
calordaaa •*"* haptachlor. Attached aa
Appendix A to a partial Uat of taa aazardoua _
oon*tituent* to appendix VHI to Part an that •
•wveheetingvaluee well below thoee of •
eommerdal faala.4 Waataa with the**
caaractarUtica an usually aot being ncycled
legitimatehr because their energy value to ao
low when burned, Tbi* remain* true whether
or aot theee waatee an fint blended with
Btaar material* before burning.
AOrierCrrterid ' . -
Other oaaaidantioaa alao are likely to ba
ieJavaat%datarmtoiag Ifparttcular burning
operation* an within the scope of tha
recycling exemption "even if low energy"
waataa an not involved. Factor* each aa
whether uMble beat to recovered from the
•Bit. or whathar recovered beat to need only
to preheat oombuatioa air. certainly an •
partiaaat Tha netun of tha device to which
waataa an burned alao could ba aajaificaat
For instance, if a oombuauoa'uait pnvioualf
bald out aa aa tadaantor to aubaaquaatiy
described a* a boiler, there to a •ttong
suggestion that any energy raumaiy to
ancillary to the central purpoee of the unit la
addition, the degree to which waatea ware
eaaaumed during the burning, the net oast or
saving* resulting from a bom allegedly for
energy recovery purpose*, aad evidence, such
aa correspondence, or other record*, which
toad* tt show that a company'* purpoee to
conducting a bum was tt dispose of, ntber
than ncyde. haxardou* waataa. may alao
affect EPA'a aaforoamast raspoase to a
particular i
ny an-wii4 wmstM'. aad eo OB be
iou* wwtM. Ai* to tMcauM tludBM. ead
• wm*te •atarltl*,- art defined at seild ti
K ttUU)). "Other wittt Mtertaia.* to t
fiaed M spent aatoul* 4ad brpiwluca that
aoMttaM • •. dj.eart.d- (| mjfb) 0) aa4
«t U. toatOBM thrown awi* tad aot
•d (I anj(e)J. Tfce -tenMtlaef di*caidetT
>pUe§ to tfl PCTMB* audllai a tpeat eu
roduct M that tf eee ef those auteriak to
ded by partealar fiaentan. H to a aeiid
i wheaneyclt
IB h*T»i«"'"*'tf''t ***** guidance, enforcaseot
panoasal ahould direct their enforcement
effort* oa hazazdooa waata-dettved fuel
blender* who anpply aoa-toduatrial i
Fuel blender* ara a logical focal point
ineycledbyeCber
ttiit in m bitni tmiiml
utaly ta be buned far the priBwy porpew af
cttoo. within the BMataf of 40 C3H aniOia)
iaoa of -tndamtoO T>» fifer.ee .*•••••
iiy poipeee* to (hat praridee, aw* eppilea
•ftrd to Mdb iadMoBal fced tapm to a
il eea>ba*floB aft. ff the pemeoUr tnpel aea
r ao ftiel valoe. tt to beta* bwwd far the
• or deteueBea. Coo*equeatly. tte devtea to' •'
jfA| foeto' an boned to *a tnrlneninr
aVUat to (ubfeet ID nevlatlaa ooder
rtTTaf Pane M aad W of (a* ftOM
•Wood* eeed a* feel bar* e ruee efbietiat
value* b**ad oo tte type ef weed, it* physical fora
aad tt* Btetstuiv eoatsaL Tbese veiae* naae tact
•pprojoauuhr UOO to too Btu per peoad.
gubeitoaiaeu* C ootl ha* a beattBt vaia* ef
appraadaauly 4JOO Bta per pooad (Ia oantnat
aoeM tasttaj oil ha* a heatta*. Talaa ef iwojhiy
laeoa 8m per ponad. aad biteffliaoa eeel* have
keettBg vJue* nafta« from ltO»-i4Jao ta per
pound.) U A BPA. APTI Com* 40 CimJHmtiim
Mnluetio* OA 430/>-lft-OB3 (Febraaiy. uaov
«B matt ba iWAcabersd that the heaaag vatae ef
ch haurdeva -.ejotat that la boned or to \
pradvea e fuel to nlevaat aM the aeat&« valee ef a
• aefttcaier eoBtaasisejBf to eeeh waste SOMBI (tf&leea
BM *—•—'"•' itself to a huardeu* waste). Thua,
V.MehleraethylcBe tttU betteoj* an boned far
enerDr neeverf or o*^ es aa taandieDt to e faaL
the aeattai van* ef the sflll boneoa to B» .
•Apertaat flfun. aot the bseBog V*JM ef pan
•jtehlenedurtoaa.. •- ' • ;• -
besaose they satl freqs*Et)y oumrjl tha
ccnunt aad aetnaation of waatanienved
rael*. Ia addition, many of theee blender* an
eubfect to regulation a* ROIA storage
fadlitte* because they ara recycling listed
aaurdoua waate* (see 40 CFR 2BLA(b]]. aad
are therefore nadlly idaatifiabla.
Moat of EPA'* enforcement effartwrm be
directad toward fuel* daattoad for ue to BOB-
todustrUl (L*. reetdanttaL oommardal and
teatitudOBal) bollan. Theee boUan typically
an of relatively small atoa. achieve relatively
low fuel efficiency, tampentore, aad
raaidaaca ttmea. lack cmtoaioB oontroU. and
receive limited p*"*"*""""* Operator* of
tae*e bollan rarely tatt their fuel* for
aazardooa waata contaminant* since they an
often not mformed they ara receiving
haxardou* waate-darhred fuel*. Theee factor*
aH contribute to a reduced likelihood that
these boiler* can dartre oaeful baat from hard
to bum haxardou* waataa •••»«-«««••« to a fuel.
(T&ey alao tocreaea taa likelihood that theee
BoUan will ba damaged by oorfoetoD from
aydrochloric acid amiaaioaa neulttng from
chlorinated ~Ti«»'""'f ••»*• )
Thua, tha waata eoatamiaaata to dM mala
going to theae boilen ara likely to be vented
to the atmoephen aa nnbnmed or partially
Domed oombu»0on producta. Ia •«m«i'^t
taaee boilen an often located todeaaeiy
populated ana* whan axpoeunt to
BBbumed contaminant* an probable. The
heiith aad thar aBVtroBmaBt
oould be ooaaidarabla becauaa many waataa
added to faala an acutely aad chronically
toxic, Burning chlorinated contaminant* also
can fora other haxardou* maierud* tuch a* .
bydrochlotic add, pacegeae. or chloriaatud
Jeea burning occ&n at high
temperature* aad for long naidaao* '
mcnaaing tha potentUl for harm.
It sssms dear that foal* contaminated with
low energy haxardou* waatea do aot present
me same level of danger when burned la
higher efficiency iaduttrial boilen. Theee
boilen typically an designed to •«*««•»••
very, through ^g** tamperet&n
oombusttoa aad long feed naidaace time.
Operaton generally an mon *ophi*ttcatad
and technically knowledgeable thaa
aoaiaduitzial boiler operator*.
According]/; EPA to directing Ba
enforcement effort* to deal with what
appean to ba me greater CBviroame&ul
threat. Thi* to aot to *ay that partcalar ,
toduaMal boilen burning haurdoua waata-
darived fusl* aeceuarily an ear gad to
legitimate recycling. Rather. EPA to amply
directing the primary focaa of it* enforcement
activity at the more dear-cot viol* Hm
A. How EPA WOlDtttmJM
Foil* Contain Law futl Value Haardout
Wottm
EPA1! authority ondcr RC31A Sobtltla C to
limited to haxardou* waataa. Thaa. to
determining if a waite-darlwd fuel to bmg
ncyded leglttmauly or illegitimataly tt to
bit aaeeeearv to ahow that tha fuel contain*
a haxardou* waata.
Haxardou* weitee burned without prior
blending can ba aaalyzed directly for energy
value (a^d when appropriata. for jna .
-------
Fwfera! K^ebfc* / VcL 4?, ?To. SZ f Wcdaesdev. March 18. 15*3 /
11353
.•cuBstjaees of buraing) to determine if the
tycOagialegitimau.£ieaded fuels. .
jwever. present a lets clear-cut situation, at
•tennteing if these mala contain low energy
•j^f omtamlnant eenteat g mala contain
si^Bcant VITIH intran*iBia of low caerejr
jsnic f***i"ri**r<** not ordinarily present
.virgin or unadulterated secondary fuels,
s should be tuffldrnt to determine that
r*e toxicants wen added ea wastes.
ipectan f fr^ruld aiao examma records and
nple incoming waste shipmeata at
rndlng faculties to ascertain tha identity of
i wastes included hi the fuels. -
Investigative activities should face*
rticnleriy on tha chlormated solvents Bated
(0 CFT< 2BU1 aad 2BUS (othar then
orofluorocarbonei which an tmme
ileten aad aot otherwise toxic).* For these
teriala, the«""«-"«""»«itself ia the seme
att that ia bstad. Chlorinated solvents aiao
> act ordiaarity present in virgin malsc •anr
they typically present iawaaia oik. or
er waatea normally seed a waste-derived
y have been added to the waste oil as a
ante wast* mem.'
i addttf on. chlorinated seiventa typically
•» very low heating value. Such widely
d solvents aa carbon ara-achiotida,
jrofonn. metbyleae qhl^t^'i
hJoroethyleaa aad UJ- aad 1* *-
hloroatfaaaa bava baadag raJaaa
«r tfaaa wood Of tba ehloriaatad tohranta
t an haardooi wutn wftan dtoeardad
1 40 CFR 28U3); or ara hazardon wuta*
m ip«nt (EPA Haardooa Waatoa Km
, Urtad ia 40 CfR «Lttl ail axevpt
bhariana havo haatlng-TaJnaa iaaa
oQa coaL
Jthcrafh foal hfandan Cor othar poneu)
' nuintiln. in dttedisf a drfl actioa
• v9 |O^ tDRffff TQVl OOBt^nuUflti CTV ttOt
lataaarMoJtafadaltBmtt&ft&cftMi •
j a haatdou wwta. it ia thafr bvdan ID
lUatiata neh a daia. Tha aoaroa o?
taa in tha fua] an aartcniariy within the
hlandaft ioowladga, and 10 tt ia,
nopriau that tbarhavo thia bordaa.
Utv+to DfUgauat if TJtmir
indfumb Can £» Atcydid
tneretonafUstsdwasteasndihidgeeen
•eatly subject to the natanmeaia of Part
of tha regulations when they tend that*
tea to reel blenders or wen (aor
l-aftD. Theee notiinaaaut epofr'
BEBSXI e ewfeeleJ BsMl It 4B OK
leriaet
i of (aicvdiB« then (ses~4P C7I
-diseeitiedTJ. These
v&atkcr or aot tha wmctaa
Caaaraton who daim that their oaaV.-~-
ahtdta. oaliatad waataa ara axanpt from
Nfulitiaa baeauH tha waataa will ba^buraad
far aaaror racovaiy ordiaarily aaat WabJa:-,
to •abauatiata that tba waataa havo valua aa-
feala in order to protect themaairaa aw . ^
Bability. Coaaaqaantly. ttaaratan aaad'to^>
know the heatiaf Valua of ^waJwiataa.^Blii ^
vahaa eaa ba dateraiBed by a relatively
aiaala laboratory taat la maay eaaaa, v •.-•-•'
geaaraton alao wiQ kaow fraalexperiaaoa
that their waataa have laptimate fui TaJoa;
Spent baneaa aad fpeat acatoaa. far
example, have high Awl vmlaa. aa do Boat
other ig&iUbie waataa.
Waata-dertred foal blendan en
mpoaaible for enaaring that low-eaeriy
vmioa haxardona waataa an oot bleadad into
fcala. Ia addidea, hleaden noil»iug liatad
kaardou waataa aad ahtdgaa an pnaeatiy
aabfact to ngolatSon aa itoraga o^littaa.
Coaaaqueatljr, they craat oompty win the
•dauaietnttw aad *** *'"'^** ttandarda tot **
atonre fadlitiaa ooataiaad avPvta 25* aad
)5& CTheaa nquinauata appjy, of ooona.
if the weatea en being recycled
*
fca
We note that thia requirement doea aot
igniflrant bordeaa on reel bteaden.
B moat oaaa*. thay an ROCA fadildea
haTutilng liatad haxardoaa waataa (aoat often
Batad Mhreati^ They anat coaixrarBBy
nodra theae waataa ia ahtpaaati
•ooompaaiad by a aaaifeat (MO i 2BLA(b) (4)
aad (S]]> aad an thanfon oa aodoa taat they
an bleeding thaaa wmataa into fnala. Thay
Bkawiae an aab|act to waste aaalyaia
nojainmaaiB (aae II 2&4J3 aad 25US). They
aiao caa aaaJyia their iaeoaiag weatn end
fc}f»i«4««j. foala for total halogea crretant— a
•impla proeedun that caa be perfonaad OA> •
rite lo oaaon that weat»4arived fbela do
aofcoBum high Javeia of low eaorgy
ohlooaatad waataa,
Waata-dexrrad nala th«t eeaaot be-
Itgitfaataiy racydad ramaia tablet to
ngalation aa haurdona waataa throogh tha-
an ad to ooaplUaoi wltb tat taraa «f OM
aMBfltr famtor euBptlaB mttm tfaa neydarle
afrMdy • Sobtttto C bdttty. or to ••thonacd by a
•law to B«wei BHBBdpai oriadiielal nM vMta>
Ita CBafl qottflty f«ae*iarwmit* !• MM la •.•OOP
aanforaEtae fcohty (La, a ttoaty «k*t 1am •at-
l aB of
iemai&t Mbfcet to nrolatl
•SM I asuft}. ft ihoold te'aotad taat
IioU&M ««T ba aUaihla te 1
aw AMoey «* tB* MMBM or
PM A MOB< tp»tiaia«b Ahaooab tat
' —iirtMi frW ml rtn hr-»t •"-*f
dV-«od load tte Mapte la
BMility; er mflowtaf te hdiiiy »
t, a
Its* thry an bcraed. A* a rwrolL thrr ao»t
ttvvci with a swatftti (MJO 40 OH 282.:o(n.
2B4.n(c). aad M3 Jl(c)). be avuponad by a
Part 283 transporter aad be teat to a Snbatle
C fadlity. Tha panoaa wbo aldmattiy bora
the BatariaJ an hiuardoaa waata taciaantor
fadlitiaa bacauaa their hala oenaot be-
recydad legitimately ia their boilen.
^;; Aa ftatad.abdte. 0A ia dinetiag it»
en/orc«mcnt tfforti to eoacaatnta oa low
.energy weata-derivad foala need la aoa»
' adiuttiaJ boilen. EPA doea not iatead to
require that theae aaen iaaadlattly obtaia
Jadntratof peradta. lUthtr. we wtH teek
throogb aagotiatioa that they cad the
practice. If the oaer content* horning thne
wette-derirvd reela after mitfal waniat EPA
will then initiate appropriate enforcement
C Sxomflm-efUam Ttit GuHaact Conid
i* Company 0 ganantea a diatulation
bottom that ia lifted aa a haxerdooa weaai. 8
boms thia waeta ta ita oo-d» boiler. The
waate baa a fleeting veJae of 2000 Bta per
B la aabfect to regulation e»a genentor. aa
• ttorsge facility (if it stona the waste far
men than 00 days prior to burning it), and aa
ia indnantioa facility. Tha waata ia not
being burned AY energy recovery, but to be
Bdaentad, because it* hasting vahte ia watt
below that of low-grade commercial fuai A
does aot matter whether B boras other
material m the boiler far legitimate energy
recovery. B still la not engaged a legitimate
neydiag activity when it bums a material
with little or no feel value. (Inddentaily. this
nmltla the sow if the hypothetical
distillation bottom exhibited a chsn.cienatfc'
of hazardous waste instead of being listed.)
1A fuel oil dealer. Company C obtain*
waate oil from a number of different
fenerstcn. C obtains hazardous wmsta spent
torrents carbon tatnchkride. metaylene
chloride, and trichJoroethyiene from other
gaaenton tnd mixea these wastes with the
wests oil. Theae wastes contain very high
ooacentrations-of chlonnattd solvents, and
these solvents f if*r en pnseat in the blended
foals. C then sells the wasta-deRved fuel ta
apartment buildiaga and hospitals, Theec
•ten burathe reel m than* boilen,
Generator* of the spent solvents an
•abiect to regulation under Put 2S2. aad the
aolveota must be *easported to Cs fsdJttty
by a Part 283 transporter. C la a storage
facility. •""""•«g it ttona tha solvents before
^-^H^g them with the waste eU. The
blending operation oonatitataa haxudooa
vasea ovatiaant* •
The waste-derived mel that CesCs i
'aabject ta regulation aa a haxardoua i
^^^•"M it contains hazardoue weal*.
chlorinated totveata that have bait raei
t«h». (Tie b^tiiajveioee of these soktntt •
an even lower than wood.) Coaeeaueatiy.
ita-dadved fuelc mart tnvel with •
•aaifeiC be tnaaported by a Part 203
tauaperter. aad be teat to Sobtttla C
feoiUtiea, Dlstributun h-i«flt»»g theae waatea
•n P.CRA storage fedlitfea. aad an tabject
to manifesting ntjuifemeuta when they
aittata thipmeata to altimata aten. Tha
-------
/ Vol 48. No. ET / Wednesday. Mards 16. 1963 / Natiws
thafaei
aivhaaafdoua waata
itH waste ofl ead •
tchioriaand
UCT1D w 40 CFR 281.
Vltt-ConlnMd
•t at* liatad haiardoua wastes. D
a tha apmt aotvenar with the waste oil
«ada tha fflixtare of a foal blaadmf
ty, & which preoesaa* the waata oil and
• it with rtrjlB foal oil E thaa aei)s the
kid auxtar* a* a fuel
•« feaantar. opantaa a hazardous •
• tovatmaat facility, aad aiao may be a
f« facility it if aocamulataa the spaat
ad for over 90 days.
jlaarily tha mixture of spent saJvaats
vaate oil that 0 ftaarataa ranaias a
•dona waata. for tha aaau reaaoa as in
revtoua example. Tha fact that 0 la a
ftaf rather thaa * fuel blender aukea aa
wee. 0 la-rtll bJaadlm haaaidous
•a with d»auuaii foal value tato foala.
ias tubfact to refulatioa aa shaMrdoas
i ia the foal bleadar's (Fa) haada aad in
tada of tha ultimata aaan (aa waU as
/caiai distributors). The ultimata
I.W
nttoo.
rUBff* LJBTD •« 40 CFR 201,
HOJL.
tan
ant
4.1*
4.1ft
4.7M
4*71
4J§7«
4JTI
1JL4.TK
. KOJL.
us COM- copies of purchaser adaowledgment
' statements submitted under section.
17[»] of FIFRA. Some of the information
contained in these documents has been .
claimed as confidential by the exporten.
OATC These docamenUwill be provided
to the
s.iae
S.1
•JK
S.7T4
lT»C*l«O*rTAiCT:
C«tle«n Mclnerney. Office of '
International Activities (A-108J.
Environmental Protection Agency. Rm. •
W-611.401 M SL SW, Washington. O.C
20460 (202 382 4MB). Outside ma USA:
(Operator 302 882 4688).
&11S
cm
SJIl
naot
S.74S
tan
tier
r.ioa
T.10I
T.14I
T.17«
T.1T1
7.14*
T.14»
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7JOJ
7JO)
7JOJ
r^aa
TJH
rjw
7J87
100003? m-«u.ai»-n
Expert Nottrleatloft; Oisdowr* of,
ConfldtntUi Bu«in«M Inf omtation to
AOiNCn Eovlranm«nUl Protcctloa
Agency (EPA).
Acnotc Nottca. . •
•UMiAirr: Tht Subcommltte* on labor
Standards of the Committee os
Education and Labor of ttu HOOM of
Representatives baj reqotstad
information from EPA concerning
notification of the export of unregistered
pesticides under-section 17(a) of the
Federal Insecticide. Fungidde, and
Rodentidde Act (FIFRA). To comply
with this request EPA will provide
TIOM: In a
February 10.1983 lettarto EPA. the
Coairman of the Subcommittee on Labor
.Standard* of the House Committee on
Education and Labor stated that mare is
underway an inquiry into the sale
abroad of pesticides, device*, active
ingredients or H«MMM i« whose sale or
•OM is prohibited within the United
Statea. As part of the inquiry, the
Chmimmm requested a copy of each
notice filed with the EPA to comply with
section 17(a) of FIFRA. All documents
filed from the effective date of the 1978
FIFRA legislation to the present were
requested. ' _. •
Under section 17(a) of FIFRA.
exporters of unregistered pesticides are
. required to obtain a statement by the
foreign purchaser acknowledging that
the pesticide in question is not
regii tared for UM in the United States
and cannot be sold in the United States.
Under EPA's policy statement
implementing the requirements of
section 17(a). the exporter is required to
submit tha acknowledgment statement
to EPA together with a certification that
shipment did not occur prior to receipt
of the acknowledgment statement. EPA
then provides a copy of the
acknowledgment statement to the
government of the importing country.
The documents which EPA will
providir . the Subcommittee may
contain confidential business
information. Exporters have been given
the opportunity to claim information
confidential in the notices submitted to
EPA under section 17(aJ of FIFRA and
_hayfijnade.iucb claims. Pursuant to 40 _
CFR U09(b). which applies to
'information submitted under-'FffRA by
40-CFR 2J07(n); EPA must provide
confidential business information to a
Congressional subcommittee in response
to a written request by the Chairman*c;
Before providing the information. EPA is
required by 40 CFR ZJ08(b] to notify the
submitters of the information at least 10
days la advance of disclosure.
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*&- -. —
28 198*
• *•.-—• **•* f I
***? v*.<*^'
MEMORANDUM
DATES
SUBJECTI
FROM:
TO
Guidance on Determining When a Hazardous Waste is a
Legitimate Fuel That May Be Burned for Energy Recovery
in a Boiler or Industrial Furnace
John H. Skinner, Director
Office of Solid Waste '(WH-562)
Thomas W. Devine
Director, Air and Waste Management Division
Region IV
This is in response to your January 13 memo requesting guidate*
on allowable concentrations of halogenated solvents in waste fuelf**
burned in high-efficiency boilers and rotary kiln incinerators. "• '
This issue is understandably creating some confusion in your
Region and others as well. I believe that clarification of the
following three points can clear up the confusion: (1) the types
of combustion devices that can legitimately recover energy; (2) the
hazardous wastes that are legitimate fuels; and (3) the status of
our efforts to regulate burning in boilers and industrial furnaces.
Legitimate energy recovery can occur only when a legitimate
fuel is burned in a legitimate energy recovery device. The enforce-
ment guidance you referenced (48 FR 11157 (March 16, 1-983)) and
the subsequent proposed amendments to the solid waste definition
(48 FR 14507-511 (April 4, 1983)) provide guidance to identify
legitimate energy recovery combustion devices and legitimate fuels.
A'fyy&imate'-jjuirgy recovery device must be a boiler that
recover*'usable tteatXi.e., not just to preheat combustion air) or
an indtfrtria.1 "fara«e*. (e.g., process kiln, smelter, or blast fur-
nace) «&ere titf-v**te replaces other fuels. An incinerator cannot
burn hazardous waste without a RCRA permit.
A hazardous waste is a legitimate fuel if it has substantial
heat value, as generated. A blended hazardous waste is a legitimate
fuel if the mixture has substantial heat value, provided that the
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OFFICIAL FILE COFY
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a hazardous waste that does not have sub-
The enforcement guidance indicates that a
heat value if it has a heat value of 5,000
>,w; •,^-.«yu:«;.'.*.«.>« rule of thumb. Thus, a hazardous waste with
less *^L Si^rLfi."JA^">'JfiSrK heat value as generated is not considered
to be a legitimate fuel, and any waste that is intentionally mixed
with such a low heat value waste is not a legitimate fuel. For
enforcement purposes, if a waste fuel contains high concentrations
(say, >5%) of low heat value hazardous wastes, the Agency would
.have good reason to assume that intentional mixing has occurred,
and should request documentation to the contrary from the party
claiming the exemption. If it can be shown that each hazardous
waste in the mixture has substantial heat value as generated, i.e.,
>5,000 BTU/lb, the waste is a legitimate fuel regardless'of the
concentration of low energy constituents (e.g., halogenated compounds
like chlorinated solvents) in each waste or in the blended fuel.
* t
The distinction between legitimate and illegitimate waste
fuels is, at this point, a temporary necessity. We are regulating
the burning of waste fuel in boilers and industrial furnaces under
a two-phased approach. We will propose a rule this summer thajL*;
prohibits burning in nonindustrial boilers of any hazardous
and used oils that exceed a specification for toxic contamii
Marketers and burners of hazardous waste fuels burned in industjC-tl .
boilers and furnaces (and utility boilers)-would be subject *.'*&#*' '•:+?
notification, transportation, and storage requirements. Marketers
and burners of off-specification used oil fuel would be subject to
notification requirements and an invoice system to track shipments.
• •
Technical controls on burning waste fuels in industrial boilers
and furnaces will be proposed in spring 1985. We are now looking
at regulatory alternatives for these units.. When these regulations
are promulgated, we will have controls for burning* of hazardous
wastes in these units regardless of purpose (i.e., regardless of
whether the waste is a legitimate fuel burned for energy recovery
or a low energy waste burned for destruction).
If you have comments or questions,, please contact Dave Sussman
of our Waste Treatment Branch at 382-7917.
cc: Has)u^p^Vifut4(VJDivi8ion Directors, Regions I-X
Waste Enforcement
Counsel
bcc: Steve Lingle, Waste Treatment Branch
Bob Holloway, Waste Treatment Branch
Dave Sussman, Waste Treatment Branch
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go
ii
JUL
i n
•O 3D
M ••
I
PJCTOtJUIDCH "M
•UBJICTi KOtl Slwdge Use as • Boiler Fuel f °
U* Ul
to a • **
ntQfii John B. flkisner
Director, Office of Solid Vaete (VB-5C2) <£
m1*"
TO i Thomas V, Devine < w
Director. Air tad Halt* Management Division * an
•PA legion XT . »§
C rr
• n
{O
jr
«r fcooi siuago qu*iin«« •• a Icgltlut* fa«l. A •••ovr'
wood pr«««rv«rs around tho eovntry ar« routinely buraiaf KOOt9
aludgo aloog with wood wasto in tb«ir proocaa at«a« voilora*
aludg« eontaina a nu*b«r of oonatituanta, aoaa of which (auch aa
^•ntachloropbanol ) hava littla or no haat valua* othara may
wava high haat valuaf bringing tha avaraga BTU ot tb« aludga
laval that would eonatituta lagitiMita recycling, i«a.» .appro
5000 BTTJ par pound. In ordar to ataka tha determination aa to
whathar burning a apaoific KMi aludga ia legitiaate raoyoling« it
•uat be determined that tha aladge haa not been mixed with high
BTU waataa to upgrade ita haat value in ordar to circuweat tha
policy aat forth in tha Maroa 1C, 1M3, federal Register, page
111SI« aacond paragraph*
Aa you, know, we are dare lop ing atandarda to regulate the
burning of haiardoua waatac ia industrial boiler a and industrial
proceaa fumacaa* Whan thoae atandarda are in place, w'e will
regulate thai bvminy of haiardoua waata in theaa devicee regardlees
of p«rtpe«wy f^a>*>;4»ergy re core ry or dee t ruction. The: perfomance
require a«u>tJ will iba baaically tha atme aa for hazardous waate
inci aerators mdar 40 CPR J44.34J. At that time, tha policy
etataeT-ia ia« Jwkrali 1«, 1M3, Federal Keqiater will become moot aa
burning for 'energy recovery* or 'beneficial usage* will no longer
be the iaaua. *•
When these regulation* are in place, burning K001 sludge in a
wood fired boiler that generates proceaa stea*> will require a
RGBA permit and probably a trial burn^'ftiovever, should we decide
to change the listing of K001 to include? the dioxins and require
•apecial management standards* aa we have propoeed tor- -the P020
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to 02$ series of wastes, wa would probably sot allow combustloa of
thia vastai !• m seUlar. Until all these regulations ara ia place
you ma«t art^.ta*1 guidance la t*« March l«,lti), aad February 28,
1914, majIJCT , - •'
process steam boilers will be regulated under a fortto* "
cominj EPA rula and that they will likely be required ۥ
obtain a RCRA permit when that rule becostea effective.
(1) In addition, they will probably have to meet performance
atandarda aimilar to hasardous waste incinerators and
probably perform a trial burn. • -
(4) we atill have the authority to regulate thia activity
under Subpart O, if appropriate. The decision of using
thia course of action will be clarified with tha new
•definition of solid waste" to be promulgated this fall.
(S) There ia a possibility of changing the K001 Hating to
include dloxin and tha possibility of "special management
atandarda" that may preclude the burning of .the waata in
* boilers if the performance necessary to protect public
mealth aaonot ba assured in these devlcea. ,
(i) Tha storage of these wastes prior to burning is
• ' auejeet to full regulation for storage over 90 days.
(7) The residue from burning these listed wastes, is alao
presently regulated underSubtitle. .C and requires disposal
in a Subtitle C facility or Bust be dellated. Likewise,
characteristic waste residue must be disposed in a subtitle
C facility unless it no longer meets the criteria in
40 CFR 241.21 through 261.24.
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on
«Mnt Divlflion Dlr«ctor«
talent I-ni and V-x
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f _ \ UNITED STATES ENVIRONMENTAL PROTECTION AGENCY
WASHINGTON. O.C. 20460
oar nw
oe':-;-; :•- -
SOLID WASTE AND EMERGENCY RESPONSE
MEMORANDUM
SUBJECTS Burning Hazardous Waste Fuel in Cement Kilns
FROM: David B. Sussman, Manager
Waste Combustion Program
TOs James H. Scarbrough, Chief
Residuals Management Branch, Region ZV
I have received a great deal of correspondence and many phone
calls concerning the hazardous waste fuel burning proposal of
General Portland for their cement plant in Demopolis, Alabama. As*
there seems to be some confusion as to the intent of Congress in
the 1984 amendments/ and our policy oil implementing the amendments,
I beleive my thoughts may be helpful. Under current EPA regulations,
what General Portland has proposed is legitimate resource recovery.
At this time, a permit for hazardous waste fuel storage is not re-
quired, provided they receive only third party waste-derived fuels.
In addition, the proposed project is not considered incineration and
a permit for incineration is not required.
As you know, EPA is developing administrative and technical
standards for combustion of wastes in boilers and industrial furnaces.
These regulations are being developed to protect human health and the
environment as mandated by HSWA. The legitimate use of waste-derived
fuels to replace conventional fuels is not incineration. The technical
standards for incinerators are not appropriate for fuel replacement
in boilers and industrial furnaces. Consequently, EPA is developing*
specific standards for boilers and industrial furnaces which will be
somewhat different from the standards which apply to incinerators.
EPA continues to support the legitimate use of waste-derived
fuels in boilers and industrial furnaces as a superior alternative
to other waste management practices. We would encourage Region .VI •..
and the State of Alabama to approve the use of waste-derived fuels
as proposed by General Portland at their Demopolis cement plant at
this time, and to complete RCRA permitting after all the burning
regulations are in place. This approach will reduce the potential
permitting overload caused by the final burning regulations becoming
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effective at the same time as the land disposal bans start, and
additional hazardous waste burning capacity becomes critical.
cc: John Chadbourne— General Portalnd
Arthur Helmstetter—-Systech Corporation
Bernard E. Cox, Jr.— Alabama Department of
Environmental Management
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