[Federal Register Volume 60, Number 91 (Thursday, May 11, 1995)]
[Rules and Regulations]
[Pages 25492-25551]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-11143]
[[Page 25491]]
_______________________________________________________________________
Part IV
Environmental Protection Agency
_______________________________________________________________________
40 CFR Part 9, et al.
Universal Waste Rule (Hazardous Waste Management System; Modification
of the Hazardous Waste Recycling Regulatory Program); Final Rule
Federal Register / Vol. 60, No. 91 / Thursday, May 11, 1995 / Rules
and Regulations
[[Page 25492]]
ENVIRONMENTAL PROTECTION
40 CFR Parts 9, 260, 261, 262, 264, 265, 266, 268, 270, and 273
[FRL-5201-3]
RIN 2050-AD19
Universal Waste Rule (Hazardous Waste Management System;
Modification of the Hazardous Waste Recycling Regulatory Program)
AGENCY: Environmental Protection Agency.
ACTION: Final rule.
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SUMMARY: On February 11, 1993, the Environmental Protection Agency
proposed new streamlined hazardous waste management regulations
governing the collection and management of certain widely generated
wastes (batteries, pesticides and thermostats) known as universal
wastes (58 FR 9346). Additional information was noticed for comment on
June 20, 1994 (59 FR 31568). Today's final rule promulgates streamlined
universal waste management regulations which are very similar to the
February 11, 1993 proposal.
The new streamlined hazardous waste management regulations
promulgated today govern the collection and management of certain
widely generated wastes identified as universal wastes. This final rule
will greatly facilitate the environmentally-sound collection and
increase the proper recycling or treatment of hazardous waste nickel
cadmium and other batteries, certain hazardous waste pesticides, and
mercury-containing thermostats. The current RCRA regulations have been
a major impediment to national collection and recycling campaigns for
these wastes. This rule will greatly ease the regulatory burden on
retail stores and others that wish to collect or generate these wastes.
It should greatly facilitate programs developed to reduce the quantity
of these wastes going to municipal solid waste landfills or combustors.
It will, also, assure that the wastes subject to this system will go to
appropriate treatment or recycling facilities pursuant to the full
hazardous waste regulatory controls. It also will serve as a prototype
system to which EPA may add other similar wastes in the future. A
petition process is also included through which additional wastes could
be added to the universal waste regulations in the future. These
regulations are set forth in 40 CFR part 273.
EFFECTIVE DATE: This final rule is effective on May 11, 1995.
ADDRESSES: The official record for this rulemaking is identified as
Docket Numbers F-93-SCSP-FFFFF and F-94-SCSA-FFFFF and is in the EPA
RCRA Docket, located in Room M2616, U.S. EPA (5305), 401 M Street SW.,
Washington, DC. 20460. The docket is open from 9 a.m. to 4 p.m., Monday
through Friday, excluding Federal holidays. To review docket materials,
the public must make an appointment by calling (202) 260-9327. The
public may copy a maximum of 100 pages from any regulatory docket at no
cost. Additional copies cost $0.15 per page.
FOR FURTHER INFORMATION CONTACT: For information concerning this final
rule contact the RCRA Hotline toll free at (800) 424-9346. In the
Washington, DC. metropolitan area, call (703) 412-9810. For further
information regarding specific aspects of this notice, contact the
Office of Solid Waste (5304), U.S. EPA, 401 M Street SW., Washington,
DC. 20460. Additional copies of this rule and supporting documentation
(e.g., fact sheet and summary of requirements) are available by mail by
calling the RCRA Hotline. A supporting document containing the Agencies
response to comments is available for review in the Docket for this
rule.
SUPPLEMENTARY INFORMATION:
Outline
I. Background
II. Relationship to Other Agency Activities
A. Mercury-Containing Lamps
B. Redefinition of Solid Waste
C. Possible Revisions to the Hazardous Waste Characteristics
III. Summary of Final Universal Waste Regulations
A. Structure of Final Rule
B. Summary of Universal Waste Requirements
1. Wastes Covered Under the Universal Waste System
2. Requirements for Participants in the Universal Waste System
a. Small and Large Quantity Handlers of Universal Waste
b. Transporters of Universal Waste
c. Destination Facilities
3. Import Requirements
4. Petitions to Include Other Wastes under part 273
IV. Detailed Discussion of Final Rule
A. Goals of Final Rule
B. Scope of Final Rule
1. Recycling Versus Recycling or Disposal
2. Wastes Included in Final Rule
a. Hazardous Waste Batteries
b. Lead-Acid Batteries
c. Hazardous Waste Pesticides
d. Hazardous Waste Thermostats
e. Other Wastes Suggested By Commenters
f. Used Mercury-Containing Equipment
g. Spent Antifreeze
3. Conditionally Exempt Small Quantity Generator Waste
C. Adding Additional Wastes in the Future
1. Procedures For Adding New Wastes
2. Factors for Evaluating New Wastes
a. Final factor 40 CFR 273.81(a)
b. Final factor 40 CFR 273.81(b)
c. Final factor 40 CFR 273.81(c)
d. Final factor 40 CFR 273.81(d)
e. Final factor 40 CFR 273.81(e)
f. Final factor 40 CFR 273.81(f)
g. Final factor 40 CFR 273.81(g)
h. Final factor 40 CFR 273.81(h)
i. Proposed factors not included in the final rule
D. Participants in the Universal Waste System
1. Small and Large Quantity Handlers of Universal Waste
2. Transporters
3. Destination Facilities
E. Universal Waste Handler Requirements
1. Prohibitions
a. Prohibition on Disposal
b. Prohibition on Treatment
c. Prohibition on Shipments of Universal Wastes
2. Notification
3. Waste Management
a. Universal Waste Batteries
b. Universal Waste Pesticides
c. Universal Waste Thermostats
4. Labeling/Marking
5. Accumulation time requirements
6. Employee Training
7. Response to Releases
8. Off-site Shipments
9. Tracking Universal Waste Shipments
10. Exports
F. Transporter Requirements
G. Destination Facility Requirements
H. Imports of Universal Waste
I. Land Disposal Restrictions
J. Regenerated batteries
V. State Authority
A. Applicability of Rules in Authorized States
B. Effect on State Authorization
C. Comments regarding the proposed rule
D. Universal Waste State Authorization issues
1. Addition of New Universal Wastes to State Programs
2. Authorization for individual universal wastes
3. Interstate Transportation
VI. Executive Order 12866--Regulatory Impacts
VII. Regulatory Flexibility Analysis
VIII. Paperwork Reduction Act
IX. Unfunded Mandates
I. Background
Under Subtitle C of the Resource Conservation and Recovery Act
(RCRA), the Environmental Protection Agency (EPA) has promulgated
regulations setting forth the framework of the nation's hazardous waste
management program. These regulations are found in parts 260 through
279 of title 40 of the Code of Federal Regulations. These regulations
first identify what wastes are considered hazardous and thus are
subject to the hazardous waste regulations. Requirements are then set
forth for hazardous waste generators, transporters, and owners and
operators [[Page 25493]] of treatment, storage, and disposal facilities
(TSDs).
On February 11, 1993, the Environmental Protection Agency proposed
to add to the hazardous waste regulations a set of streamlined
requirements for collecting certain widely-dispersed hazardous wastes
(58 FR 8102), which were called ``universal wastes.'' These wastes
share several characteristics:
--They are frequently generated in a wide variety of settings other
than the industrial settings usually associated with hazardous wastes;
-- They are generated by a vast community, the size of which poses
implementation difficulties for both those who are regulated and the
regulatory agencies charged with implementing the hazardous waste
program; and
-- They may be present in significant volumes in non-hazardous waste
management systems.
In the preamble to the proposal, known as the ``universal waste''
proposal, the Agency explained a number of reasons why it believed that
a streamlined regulatory system was appropriate for these wastes. See
58 FR 8102 for a detailed discussion.
230 comments were received on the proposal from environmental
groups, companies involved in universal waste management, state and
local environmental and agricultural agencies, and trade associations.
Comments received on the proposed rule were in general very supportive
of the basic concepts behind the proposed regulations and of the
proposed regulatory approach. Commenters did suggest numerous specific
changes to the regulatory requirements that they believed would make
them easier to comply with and to implement, more protective of the
environment, and more successful at achieving the goals of the
universal waste program.
Additional information on costs and benefits of the proposal was
made available for public comment on June 20, 1994 (59 FR 31568).
Eleven comments were received on this additional information and the
Agency's responses to these comments are available in the docket for
this rule (See Addresses section above). The Agency's responses to each
of the comments are included here.
This rule finalizes the streamlined universal waste management
system proposed on February 11, 1993 (58 FR 8102). In general, the
final rule is very similar to the proposal. Although some of the
details of the regulatory structure have changed, the basic approach
adopted in the final rule and the majority of the particulars is the
same as that proposed. A summary of the final rule is included in
section III of this preamble. The following sections of the preamble
discuss in detail the major comments received on each of the issues
raised in the proposed rule, any differences between the proposal and
the final rule, and the Agency's reasons for making the changes. The
final regulatory text is set forth at the end of this notice. These
regulatory changes will be codified into the printed version of Title
40 of the Code of Federal Regulations in its next update, which will be
revised as of July 1, 1995.
II. Relationship to Other Agency Activities
II.A. Mercury-Containing Lamps
During development of the proposed universal waste rule it was
suggested that spent fluorescent light bulbs (known as fluorescent
lamps) might be appropriately managed under the universal waste
regulations. Mercury is used in the production of fluorescent lamps,
and as a result, a relatively high percentage of these lamps are
hazardous waste when spent because they exhibit the toxicity
characteristic for mercury. At the time of the proposal, the Agency
decided that further investigation into the issue of mercury-containing
lamps was necessary before proposing changes to the regulations
governing management of these lamps. Thus, in the February 11, 1993
universal waste proposal the Agency explained that it was not proposing
to include fluorescent lamps in the universal waste regulations but
requested comment on several issues (58 FR 8110). First, EPA requested
comment on the risks posed by these lamps in landfills or municipal
waste combustors. Second, EPA requested information on the risks of
current or developing mercury recovery technology.
A number of comments were received addressing the mercury-
containing lamps issue. Many of the commenters argued that these lamps
should be included in the universal waste final rule. Several
commenters also suggested other regulatory alternatives for regulating
management of these lamps. A number of comments also addressed the
questions that the Agency asked in the proposal about the risks of
various management methods.
On July 27, 1994, the Agency published a proposed rule specifically
addressing the management of spent mercury-containing lamps (59 FR
38288). Information received in comments on the universal waste
proposal was used in developing the proposal on lamp management.
Two options for changing the regulations governing mercury-
containing lamps were included in the July 27, 1994 proposal. The
Agency requested comment on a number of issues, including which of the
two options should be implemented. One option was to conditionally
exempt these lamps from regulation as hazardous waste. Under this
option, mercury-containing lamps would not be considered hazardous
waste provided they are disposed of in municipal solid waste landfills
that meet certain requirements, or are recycled at mercury reclamation
facilities that meet certain requirements. In addition, generators
would be required to maintain documentation identifying the disposal or
recycling facility to which the lamps were sent.
The second option proposed was to add mercury-containing lamps to
the universal waste regulations. Under this option, mercury-containing
lamps that fail the toxicity characteristic would continue to be
regulated as hazardous waste, but would be subject to the streamlined
universal waste regulations promulgated today instead of the full
hazardous waste regulations. The July 27, 1994, proposed regulatory
text for including mercury-containing lamps in the universal waste
regulations was based on the February 11, 1993, proposed universal
waste regulations. In the July 27, 1994, proposal the Agency explained
that it expected to promulgate final universal waste regulations prior
to promulgating a final rule on mercury-containing lamps. It was noted
that if the Agency selected the universal waste option for management
of mercury-containing lamps, the final regulations would be consistent
with the final universal waste rule (59 FR 38295).
Thus, if in the future final rule on mercury-containing lamps the
Agency decides to add them to the universal waste regulations, the
requirements proposed on July 27, 1994, would be revised to be
consistent with the universal waste regulations promulgated today. For
example, instead of using the terminology for universal waste handlers
from the proposed rule (generators and consolidation points), the
terminology from today's final rule would be used (small and large
quantity handlers of universal waste). The concepts governing
management of mercury-containing lamps from the proposed universal
waste option (e.g., waste management controls, quantity limits for
notification), revised as appropriate in response to comments, would be
incorporated into the [[Page 25494]] universal waste regulatory
structure promulgated today.
All of the comments submitted on the universal waste proposal that
addressed the issue of how mercury-containing lamps should be regulated
and the questions concerning the risks of managing these wastes have
been included in the docket for the July 27, 1994, proposal on mercury-
containing lamps (docket number F-94-FLEP-FFFFF). The Agency will
respond to those comments in the final rule on mercury-containing lamps
together with comments submitted in response to the July 27, 1994,
proposal.
II.B. Redefinition of Solid Waste
Over the past several years EPA has been exploring ways of
clarifying the ``definition of solid waste'' regulations, which are the
regulations that govern hazardous waste recycling. The goals of this
effort are to eliminate disincentives for hazardous waste recycling,
ensure that hazardous waste recycling is environmentally protective,
address areas of underregulation, and simplify the definition of solid
waste regulations to make them easier to comply with and to implement.
In mid-1992 the Agency formed a Definition of Solid Waste Task Force
which met over the course of a year with representatives of industry,
environmental groups, states, and EPA regional offices to discuss
possible options. The Task Force has published a final report
recommending various regulatory changes that could be made to
accomplish the goals of the project. The report is entitled ``Re-
engineering RCRA for Recycling: The Definition of Solid Waste Task
Force Report and Recommendations,'' EPA publication
# EPA 530-R-94-016, and is available by calling the RCRA Hotline listed
above in the For Further Information section of this notice. It is
expected that the Agency will make decisions on how to act on the Task
Force's recommendations within the next several months.
Today's universal waste rule arises out of some of the same past
Agency efforts as does the redefinition of solid waste project, and has
similar goals. The two projects are not concurrent, however, and each
is now in a different stage of development. While this is the final
rule setting up the structure of the universal waste regulations, the
redefinition of solid waste is a longer term project that has not yet
reached the point of regulatory revisions. Several issues raised by the
universal waste rule and the redefinition project make it important
that the reader understand the interaction between these two projects.
First, the Universal Waste Rule is designed to accomplish three
general goals. These goals consist of encouraging resource conservation
while ensuring adequate protection of human health and the environment,
improving implementation of the current subtitle C hazardous waste
regulatory program, and providing incentives for individuals and
organizations to collect the unregulated portions of these universal
waste streams and manage them using the same systems developed for the
regulated portion, thereby removing these wastes from the municipal
waste stream. As discussed earlier, the goals of the Redefinition of
Solid Waste Force include eliminating disincentives for hazardous waste
recycling, ensuring that hazardous waste recycling is environmentally
protective, addressing areas of underregulation, and simplifying the
definition of solid waste regulations to make them easier to comply
with and to implement. In the universal waste proposal the Agency did
not propose to make any changes to the regulations governing facilities
recycling universal wastes (destination facilities), and has not done
so in this final rule. Facilities recycling universal wastes are thus
subject to the same regulations as any other hazardous waste recycler.
A number of commenters suggested that the Agency should lessen the
regulatory requirements for universal waste recyclers to encourage
recycling. Although the Agency agrees that encouraging safe recycling
of these wastes is an important objective, it would be premature to
make any changes to the recycling regulations at this time.
As part of the redefinition of solid waste project, the Agency and
other interested parties have expended a great deal of effort analyzing
this issue and discussing the best ways to accomplish this goal. It
would not make sense to make any changes to the recycling regulations
now, since the final results of the project are not available. Any
changes made now would not realize the benefit of the efforts put into
the project. In addition, making changes now could be very disruptive,
since it is likely that the recycling regulations will be revised again
shortly after the universal waste regulations are in place (i.e.,
incorporated into state regulations).
The Agency's goals for universal waste recycling are the same as
for all other hazardous waste recycling. Thus, when the Agency makes
changes to the recycling regulations as part of the redefinition of
solid waste project, these changes will also be applied to universal
waste recycling.
Second, the Definition of Solid Waste Task Force recommendations
discuss a category of recycling called ``product stewardship.''
Depending on the direction taken by the Agency in this area there may
be some similarities to, or overlap with, the universal waste
regulations. Any regulatory changes that are made in this area as part
of the redefinition of solid waste will take into account the status of
the universal waste regulations (e.g., what wastes have been added, how
many states have implemented the regulations, and how well the system
is working). The Agency will ensure that the product stewardship
portion of the redefinition effort is coordinated with the universal
waste regulations as necessary and will not disrupt existing programs.
II.C. Possible Revisions to the Hazardous Waste Characteristics
EPA believes the approach in this rulemaking is a useful new
approach to easing the burden while encouraging the proper management
of wastes that pose a hazard if mismanaged. There may be certain
hazardous wastes, however, for which relief beyond that provided by the
universal waste rule may be appropriate. One approach for doing so is
through reexamination of the existing toxicity characteristic. EPA is
going to expeditiously investigate what sort of effort would be
involved in developing modifications to the characteristics, what sort
of resources would be needed to do that, and consider the benefits of
such an effort against the benefits of other regulatory improvements
EPA is considering. A rulemaking to modify the characteristics might
potentially affect a significant quantity of currently regulated and
currently unregulated waste.
III. Summary of Final Universal Waste Regulations
The part 273 regulations for managing universal wastes promulgated
today are substantively very similar to those proposed on February 11,
1993. Thus, the requirements that a person managing universal wastes
must follow under this final rule are very similar to those that they
would have been required to follow under the regulations as proposed.
However, in response to comments from the public on the proposal, the
Agency has made a number of changes to the regulations that the Agency
believes will improve the environmental protectiveness of the rule,
make it easier for the regulated community to comply with the
requirements, and make it easier for [[Page 25495]] implementing
agencies to implement the universal waste program.
III.A. Structure of the Final Rule
Although the final universal waste rule requirements are
substantively very similar to those proposed, the final rule may at
first appear to be quite different from the proposal because two major
structural changes have been made to the universal waste regulations,
40 CFR part 273. First, the terms used to refer to some of the
participants in the universal waste system have been changed in the
final rule. To make the final regulation easier to use and less
repetitive, the basic organization of the regulation has also been
changed from the proposal.
The first major revision to the structure of the regulation is that
the terms used to refer to some of the participants in the universal
waste system have been changed. Specifically, in the proposal there
were four types of regulated persons that manage universal waste:
Generators, consolidation points, transporters, and destination
facilities. In the final rule there are also four types of regulated
persons. The transporter and destination facility categories are
retained as they were proposed. However, the persons who would have
been included in the proposed generator and consolidation point
categories will now fit into either the category of small quantity
handlers of universal waste (SQHUWs) or the category of large quantity
handlers of universal waste (LQHUWs). Under the proposal, the
categories of generator and consolidation point were distinguished by
the way wastes came to be at the facility. Generators generated the
waste themselves on-site, and consolidation points received the waste
from off-site. Under the final rule, the categories of large and small
handlers of universal waste are distinguished by the amount of waste
accumulated on-site at any time. LQHUWs accumulate 5,000 kilograms or
more total of universal wastes. SQHUWs accumulate less than 5,000
kilograms total.
The Agency decided to make this change for several reasons. First,
numerous commenters suggested that there should be a third category of
universal waste handler: front-line collectors of universal waste who
collect small quantities of universal waste, largely from consumers and
small businesses. These commenters pointed out that such collectors
would frequently be retail-type operations (e.g., a department or
specialty store that has a spent battery collection box) participating
in national or regional collection programs. Such front-line collectors
would likely accumulate only small quantities of universal waste
because only a minor portion of their business is devoted to managing
waste, and because they would ship wastes frequently using package
shipping services or similar systems set up by the collection programs.
Under the proposal, these front-line collectors would have been subject
to the more stringent consolidation point requirements because they
receive wastes from off-site generators.
These commenters argued that front-line collectors should be
subject to less stringent requirements than the proposed consolidation
point requirements for several reasons. One reason was that the
universal waste they would have on-site would pose limited risk due to
the small quantities involved. Another reason was that some of the
requirements would inhibit the participation of many retail-type
operations (such as the large retail chains), thereby greatly limiting
the success of universal waste collection programs in removing these
wastes from non-hazardous waste management systems.
The Agency agrees with the concept that the activities of persons
such as front-line collectors managing small quantities of universal
waste pose less risk and require less stringent standards than those
managing larger quantities of universal waste. Instead of adding an
additional category of front-line collectors with less stringent
standards, however, the Agency decided to extend this concept to all
persons both generating and collecting universal waste. Thus, under the
final rule, persons accumulating large quantities of universal waste
(5,000 kg or more total of universal waste accumulated on-site) are
called large quantity handlers of universal waste, and are subject to
more stringent requirements than small quantity handlers of universal
wastes, who are persons accumulating less than 5,000 kg total of
universal waste. A handler's designation as a large quantity handler of
universal waste is retained through the end of the calendar year in
which 5,000 kilograms or more total of universal waste is accumulated.
Another reason the Agency decided to restructure the categories of
persons managing universal wastes was in response to comments received
on the issue of recordkeeping for universal waste shipments. The Agency
had proposed that a manifest be required for shipments from final
consolidation points to destination facilities, based on the concept
that such shipments would be larger shipments and thus require closer
tracking. In addition to other issues, a number of commenters pointed
out that it is not necessarily true that shipments from consolidation
points to destination facilities will be larger shipments. For example,
shipments between consolidation points or between generators and
destination facilities may also be large shipments.
The Agency agrees that it does not necessarily make sense from a
risk perspective to require recordkeeping for certain shipments based
solely on the type of universal waste management activity conducted by
the shipper and receiver (i.e., whether the shipper generates or
collects universal waste or whether the receiver collects or disposes
of universal waste) rather than on the quantity of universal waste
handled. Thus, the Agency has decided to require recordkeeping of
LQHUWs but not SQHUWs, and to define the categories by the quantities
of waste managed.
The second major change to the structure of the rule is that it has
been reorganized. Part 273 of the proposed rule included some general
provisions in the first subpart, and then each subsequent subpart
included the regulations applicable to persons managing each specific
type of universal waste. For example, subpart B covered universal waste
batteries, and included requirements for generators, transporters,
consolidation points, and destination facilities. Subpart C covered
universal waste pesticides, and also included requirements for
generators, transporters, consolidation points, and destination
facilities.
A number of commenters pointed out that this organization was
unnecessarily repetitive, particularly since the majority of the
requirements for each type of participant in the universal waste system
was the same. In other words, the requirements for generators of
batteries (or transporters, consolidation points, or destination
facilities) were basically the same as the requirements for generators
of pesticides (or transporters, consolidation points, or destination
facilities). These commenters also noted that the rule would become
even more repetitive if additional wastes were added in the future,
since a new subpart would have to be added for each new universal
waste. These commenters suggested that the rule would be easier to use
if it were structured such that general requirements were presented
together, followed by specific differences for persons managing
particular universal wastes.
The Agency agrees with these commenters and has revised the final
rule accordingly. Subpart A of the final rule includes general
provisions such as [[Page 25496]] applicability and definitions.
Subpart B includes requirements applicable to Small Quantity Handlers
of Universal Waste. Subpart C includes requirements for Large Quantity
Handlers of Universal Waste. Subpart D covers the requirements for
transporters of universal waste. Subpart E sets forth standards for
destination facilities. Subparts F and G, respectively, include
standards for imports of universal waste and petitions to include other
wastes under Part 273.
Subparts B through E of the final rule now include all of the
requirements applicable to one type of universal waste manager,
regardless of what type of universal waste is being managed. Thus, a
universal waste manager who may be handling more than one type of
universal waste need only read the one section applicable to his or her
activities. Requirements that are different for particular waste types
are noted within the regulatory text. For example, the waste management
sections for small and large handlers each include a subsection setting
forth the requirements applicable to management of a particular
universal waste. Subsection (c) addresses batteries, subsection (d)
pesticides, and (e) thermostats.
The Agency believes reorganization makes the final rule more user-
friendly, and thus will encourage participation in universal waste
collection programs. The Agency also believes that the regulatory
sections within the subparts are laid out simply and clearly, making it
easier to find any particular part of the regulation.
Although this reorganization does remove much of the redundancy of
the regulation (and will avoid adding repetition in the future if new
universal wastes are added to the regulations), readers may note that
the small and large quantity handler subparts of the rule remain
somewhat repetitive. This is because, although these two groups share
many of the same requirements, in three sections, the requirements are
different. These sections are notification, tracking, and employee
training. One possibility would have been to have only one handler
subpart, and specify the different requirements for small and large
quantity handlers within each of these three sections. However, the
Agency believes that the regulation will be easier for handlers to
follow if they determine once whether they are small or large handlers,
and then read only the regulations applicable to their category. Thus,
the Agency has decided to retain two different subparts for small and
large quantity handlers.
Figure 1 illustrates the structure of the final universal waste
management system.
BILLING CODE 6560-50-P
[[Page 25497]]
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BILLING CODE 6560-50-C
[[Page 25498]]
III.B. Summary of Universal Waste Requirements
This section provides a summary of the final universal waste
regulations, 40 CFR part 273. Table 1 presents a simplified overview of
the types of participants in the universal waste system and the
requirements applicable to each type of participant. Each of the
universal waste requirements is discussed in more detail in the later
sections of this preamble.
BILLING CODE 6560-50-P
[[Page 25499]]
[GRAPHIC][TIFF OMITTED]TR11MY95.011
BILLING CODE 6560-50-C
[[Page 25500]]
III.B.1. Wastes Covered Under the Universal Waste System
Three types of wastes are covered under the universal waste
regulations: hazardous waste batteries, hazardous waste pesticides that
are either recalled or collected in waste pesticide collection
programs, and hazardous waste thermostats. Other wastes may be added to
the universal waste regulations in the future, but at this time only
these three wastes are included.
III.B.2. Requirements for Participants in the Universal Waste System
As illustrated in Table 1, there are four types of participants in
the universal waste system: Small Quantity Handlers of Universal Waste,
Large Quantity Handlers of Universal Waste, Universal Waste
Transporters, and Destination Facilities. Each of these participants is
described below.
Although there are ten basic universal waste management
requirements, individual participants in the universal waste system are
not subject to all ten requirements. Only those requirements that have
been determined to be appropriate for a given type of participant are
included in the regulations for that participant. Throughout the
universal waste regulations, each of these ten basic requirements is
addressed in regulatory sections using the same section headings. For
example, the same requirements are addressed in the off-site shipments
section for SQHUWs as are addressed in the off-site shipments sections
for LQHUWs, transporters, and destination facilities. In some cases not
all issues within a section were determined to be necessary for each
type of participant, so some sections do not address every issue
addressed in other sections with the same heading.
III.B.2.a. Small and Large Quantity Handlers of Universal Waste
There are two types of handlers of universal waste. The first type
of handler is a person who generates, or creates, universal waste. This
is a person who uses batteries, pesticides, or thermostats and who
eventually decides that they are no longer usable and thus are waste.
Contractors or repair people who decide that batteries or thermostats
are no longer usable and remove them from service also generate
universal waste, and thus are handlers of universal waste. The second
type of handler is a person who receives universal waste from
generators or other handlers, consolidates the waste, and then sends it
on to other handlers, recyclers, or treatment/disposal facilities.
Universal waste handlers accumulate universal waste, but do not treat,
recycle, or dispose of the waste. Each separate location (e.g.,
generating location or collecting location) is considered a separate
universal waste handler. Thus, if one company has several locations at
which universal waste is generated or collected, each location is a
separate handler.
There are two sets of regulations for handlers of universal waste.
Subpart B of part 273 sets forth the requirements that small quantity
handlers of universal waste must follow. SQHUWs do not accumulate 5,000
kilograms or more total (all universal waste categories combined) of
universal waste at their location at any time. Subpart C of part 273
sets forth the requirements that large quantity handlers of universal
waste must follow. LQHUWs accumulate 5,000 kilograms or more total (all
universal waste categories combined) of universal waste at any time.
This designation as a large quantity handler of universal waste is
retained through the end of the calendar year in which 5,000 kilograms
or more total of universal waste is accumulated, at any one time. The
Agency realizes that some handlers of universal waste who would
generally qualify as a small quantity handler may have a one-time, or
infrequent, occasion to accumulate 5,000 kg of universal waste, at any
one time, on-site, thus requiring them to comply with the large
quantity handler regulations in today's rule. The Agency did not intend
to require these handlers to comply with the more stringent large
quantity handler requirements during subsequent years in which they do
not accumulate 5,000 kilograms or greater. The Agency clarifies in the
definition of large quantity handler of universal waste, that this
designation is retained by the handler for the remainder of the
calendar year in which 5,000 kilograms or more of universal waste was
accumulated. A handler may reevaluate his status as a large quantity
handler of universal waste in the following calendar year.
Subparts B and C each include eleven sections (see Table 1; Note:
the ``Applicability'' section is not included in this table). Because
most of the requirements are the same for SQHUWs and LQHUWs, they are
described together. The first sections (40 CFR 273.10 and 273.30) are
called ``applicability,'' and explain who the subpart B and C
requirements apply to. The second sections, ``prohibitions'' (40 CFR
273.11 and 273.31), prohibit handlers from disposing of, diluting, or
treating universal waste except in certain circumstances. The third
sections, ``notification,'' are different for SQHUWs and LQHUWs. 40 CFR
273.12 notes that SQHUWs are not required to notify EPA of their
universal waste activities and are not required to obtain an EPA
identification number. 40 CFR 273.32 requires LQHUWs to notify EPA and
to obtain an EPA identification number.
The fourth sections, ``waste management'' (40 CFR 273.13 and
273.33), explain the requirements SQHUWs and LQHUWs must follow when
handling universal waste. They require that universal waste be managed
in a way that prevents releases to the environment, specify packaging
requirements for universal wastes, and set forth procedures that must
be followed when handling batteries (e.g. sorting battery types, mixing
battery types, disassembling battery packs, removing electrolyte,
etc.), and when removing mercury-containing ampules from thermostats.
The next sections, ``labeling/marking'' (40 CFR 273.14 and 273.34),
require handlers to label or mark universal wastes or containers of
universal waste to identify the type of universal waste (e.g., used
batteries, pesticides). The ``accumulation time limit'' sections (40
CFR 273.15 and 273.35) limit the time that handlers may accumulate
universal waste to one year (with one exception), and require handlers
to be able to demonstrate that wastes are not accumulated for more than
one year. The seventh sections, ``employee training'' (40 CFR 273.16
and 273.36), are somewhat different for SQHUWs and LQHUWs. SQHUWs must
distribute basic handling and emergency information to employees
handling universal waste. LQHUWs must ensure that employees are
familiar with waste handling and emergency procedures as appropriate
based on their responsibilities.
The eighth sections are entitled ``response to releases'' (40 CFR
273.17 and 273.37) and require handlers to immediately contain any
releases of universal waste and to handle residues appropriately. The
``off-site shipments'' sections (40 CFR 273.18 and 273.38) require
handlers to send universal waste only to persons within the universal
waste system and specify procedures to be followed when a shipment is
rejected by the receiving facility. The ninth sections, ``tracking
universal waste shipments'' (40 CFR 273.19 and 273.39), are different
for SQHUWs and LQHUWs. SQHUWs do not have any requirements. LQHUWs must
maintain basic records documenting shipments received at the facility
and shipments sent from the facility. The last sections, ``exports''
(40 CFR 273.20 and 273.40), [[Page 25501]] specify notification
procedures that must be followed when handlers ship universal wastes to
foreign destinations.
III.B.2.b. Transporters of Universal Waste
The requirements for transporters of universal waste are found in
subpart D of part 273. See Table 1. Transporters are persons who
transport universal waste from handlers of universal waste to other
handlers, destination facilities, or foreign destinations. A
transporter may be an independent shipper contracted to transport the
waste, or may be a handler who self-transports the waste. A universal
waste handler who self-transports his waste becomes a transporter for
those self-transportation activities and is subject to the requirements
of subpart D of this rule.
The universal waste rule does include some specific requirements
for transporters. However, the basic approach to transportation under
the universal waste system is that no hazardous waste manifests are
required, and transporters must comply with the Department of
Transportation (DOT) requirements that would be applicable to the waste
if it were being transported as a product. For example, if transporting
universal waste batteries, the transporter must comply with the
appropriate DOT requirements, which are based on whether the particular
battery type is a DOT hazardous material, and if so, which DOT
hazardous material requirements apply to the specific battery type.
The universal waste transporter requirements consist of seven
sections. The first, ``applicability'' (40 CFR 273.50), explains to
whom the transporter requirements apply. ``Prohibitions'' (40 CFR
273.51), prohibits transporters from disposing of, diluting, or
treating universal waste. The third section, ``waste management'' (40
CFR 273.52), explains that transporters must comply with applicable DOT
requirements if the waste they are transporting is a hazardous material
under DOT regulations. The fourth section, entitled ``accumulation time
limits'' (40 CFR 273.53), notes that transporters may store waste for
up to ten days at a transfer facility during the course of
transportation. Transfer facilities are transportation related
facilities such as loading docks, parking areas, and storage areas. If
a transporter stores waste for more than ten days at one location, the
transporter must comply with the appropriate universal waste handler
rules while storing the waste.
The fifth transporter section, ``response to releases'' (40 CFR
273.54), requires transporters to immediately contain any releases of
universal waste and to handle residues appropriately. ``Off-site
shipments'' (40 CFR 273.55) prohibits transporters from transporting
universal waste to any place other than a universal waste handler,
destination facility, or foreign destination. Finally, ``exports'' (40
CFR 273.56), requires transporters to follow certain requirements for
exports of hazardous waste.
III.B.2.c. Destination Facilities
The requirements for destination facilities are found in subpart E
of part 273. See Table 1. Destination facility means a facility that
treats, disposes of, or recycles a particular category of universal
waste, except those management activities described in paragraphs (a)
and (c) of Secs. 273.13 and 273.33. A facility at which a particular
category of universal waste is only accumulated, is not a destination
facility for purposes of managing that category of universal waste.
The universal waste rules include only two specific universal waste
requirements for destination facilities. In general, however, these
facilities are subject to the same requirements that are applicable to
treatment, storage, and disposal facilities under the full hazardous
waste regulations. This includes permitting as well as general facility
standards and unit specific requirements. In addition to the full
hazardous waste requirements, there are three sections specifying
universal waste requirements for destination facilities. For the most
part these requirements simply mirror universal waste handler
requirements for receipt of universal waste, since destination
facilities also receive universal waste.
First, ``standards for destination facilities'' (40 CFR 273.60)
indicates which of the full hazardous waste regulations destination
facilities must follow. These are the same full hazardous waste
regulations these facilities would be subject to if they were handling
non-universal hazardous wastes. Specifically, facilities that treat,
dispose of, and recycle universal wastes, except for those activities
described in paragraphs (a) and (c) of Secs. 273.13 and 273.33, are
subject to the permitting or interim status requirements of 40 CFR
parts 264 or 265. Facilities that recycle universal waste without
accumulating the waste before it is recycled are subject to the
recycling requirements of 40 CFR 261.6(c)(2).
Second, ``off-site shipments'' (40 CFR 273.61) sets forth
procedures for rejecting a shipment of universal waste. Finally,
``tracking universal waste shipments'' (40 CFR 273.62) requires
destination facilities to retain the same records for receipt of
universal waste shipments that LQHUWs are required to retain. By
documenting receipt of universal waste shipments, these records
complete documentation of shipments sent from handlers.
III.B.3. Import Requirements
Subpart F of the universal waste regulations clarifies the
requirements for universal wastes that are imported. In general, once
universal waste enters the United States it is subject to the same
universal waste requirements it would be if it had been generated in
the United States.
III.B.4. Petitions to Include Other Wastes Under Part 273
Subpart G of part 273 includes two sections setting forth the
procedures to be used to petition the Agency to add additional wastes
to the universal waste regulations. Further requirements are specified
in 40 CFR 260.20 and 260.23.
IV. Detailed Discussion of Final Rule
IV.A. Goals of Final Rule
In the proposed part 273 regulations, EPA proposed a set of special
requirements for universal hazardous wastes which were designed to
accomplish three general goals. One goal was to encourage resource
conservation, while ensuring adequate protection of human health and
the environment. Another broad goal defined in the proposal was to
improve implementation of the current subtitle C hazardous waste
regulatory program. And, the final goal, by simplifying the
requirements and encouraging collection of these hazardous wastes, EPA
hoped to provide incentives for individuals and organizations to
collect the unregulated portions of these universal waste streams
(e.g., from households or CESQGs) and manage them using the same
systems developed for the regulated portion, thereby removing these
wastes from the municipal waste stream and minimizing their input of
hazardous constituents to municipal landfills, combustors, and
composting projects. Each of these goals is discussed below.
The first goal for the universal waste rule stated in the proposal
was to encourage resource conservation. EPA believes that today's final
rule serves to stimulate achievement of this goal. While today's final
rule applies to both universal wastes destined for recycling and those
destined for disposal, as proposed, several features of the rule remove
major obstacles faced by persons [[Page 25502]] desiring to recycle
these wastes. Today's final rule reduces the management requirements
for generators, consolidation points (in the final rule referred to as
small and large quantity handlers of universal waste), and
transporters. Destination facilities must continue to meet all
requirements, except manifesting requirements, of the subtitle C
regulations. By relaxing the standards for these handlers, collection
of universal waste is simplified, thereby, encouraging participation in
collection programs. The Agency believes that the ability to access
large quantities of universal waste from central collection centers may
encourage the development and use of safe and effective ways to recycle
these wastestreams. Conversely, limiting the rule to universal waste
destined for recycling only, may discourage the use and development of
recycling technologies as universal waste handlers may be hesitant to
participate in a program that requires knowledge that their universal
waste is recycled.
The second goal of today's final rule is to improve implementation
of the hazardous waste program. EPA believes that today's rule, as
modified in response to comments, will have significant impacts on
waste management practices nationwide. Implementation of the hazardous
waste program will be improved by the simplified set of requirements
set forth in the rule. The provisions are now written such that they
are more easily understood by handlers of universal wastes. The Agency
believes that today's final rule is protective of human health and the
environment, will be clear and easily understood by the diverse
community which is targeted in this rule, and will not require
expending unreasonable amounts of time and effort to understand the
applicable requirements. The final rule also allows the part 273
regulations to be applied to all universal wastes, regardless of
whether they are destined for recycling or disposal. Thus, compliance
and enforcement procedures are easier to implement. Finally, because
the final rule does not require that universal waste handlers count
those universal wastes managed under part 273 toward their monthly
quantity determination, today's rule will greatly simplify the
procedures used to determine monthly hazardous waste generation rates
for universal waste handlers, thus facilitating the implementation of
the regulations.
The third goal of today's final rule is to separate universal waste
from the municipal waste stream. Under the full subtitle C regulations,
the management of waste differs based on the waste's generation source.
That is, waste generated by consumers in their homes is not regulated
under RCRA Subtitle C when discarded, because it is excluded from the
definition of hazardous waste under 40 CFR 261.4(b)(1). Conversely, the
same waste would be subject to RCRA Subtitle C regulation if generated
by commercial establishments, industries and other non-exempt
generators. Wastes covered under the universal waste regulations
(batteries, pesticides, and mercury thermostats) are examples of wastes
that are generated by both groups. Because the waste itself is the
same, and therefore looks the same to waste handlers, universal waste
that belongs in a hazardous waste system may be entering municipal
solid waste landfills or combustors instead. The Agency believes that
today's rule is practical enough that, as an infrastructure develops
for collecting universal waste, all categories of handlers will manage
their universal waste under the part 273 requirements. Therefore, in
the final rule, management of universal waste is material-specific
rather than source-specific, therefore, universal waste, regardless of
the source of generation, should be easily managed under today's final
rule.
IV.B. Scope of Final Rule
This section discusses the scope of the final universal waste rule.
The first section discusses the question raised in the proposal of
whether the universal waste system should be limited to wastes that are
recycled, or should include both wastes that are recycled and wastes
that are treated and disposed. The second section discusses each of the
wastes that have been included in the final rule, and several wastes
that have not been included. The third section addresses another
question raised in the proposal, whether Conditionally Exempt Small
Quantity Generators (CESQGs) should be required to manage their
universal wastes under the universal waste system or have the option of
managing the waste under the existing CESQG exemption.
IV.B.1. Recycling Versus Recycling or Disposal
The Agency requested comment in the proposed universal waste rule
on whether the streamlined universal waste regulations should cover
wastes that are to be either recycled or disposed of, or whether they
should be limited only to wastes that are to be recycled. The Agency
discussed three options: (1) Limiting the regulations to recycled
wastes only; (2) allowing management of wastes that are to be either
recycled or disposed of; or (3) a hybrid of options 1 and 2 under which
generators and transporters could manage waste that was to be either
recycled or disposed of under the streamlined universal waste
regulations, but the streamlined regulations would be available only to
consolidation points that send wastes on for recycling.
The proposed regulatory text was crafted following option 2: the
streamlined regulations would be applicable to both recycled and
disposed of wastes. Although limiting the regulations to recycled
wastes might encourage recycling, which the Agency supports, the Agency
explained that at the time it believed that not limiting the
regulations was the best option for a number of reasons. The vast
majority of commenters who addressed this issue agreed that the
universal waste regulations should be available for both wastes that
are recycled and wastes that are disposed of. Commenters generally
agreed with the Agency's basis for not limiting the regulations and
also discussed additional supporting factors. Based on these comments,
the Agency has decided to include both recycled and disposed of
universal wastes under the final universal waste regulations of part
273. The main reasons that commenters supported this approach and that
the Agency has chosen this approach for the final rule are discussed
below.
Not limiting the universal waste system to recycled waste makes the
regulations much less complex and more user friendly, thus encouraging
participation in universal waste collection programs. Persons are more
likely to be willing to participate in collection programs if they are
not required to determine whether recycling is available and cost
effective, particularly in situations where recycling markets and
capacity are volatile. In these cases it may not actually be possible
to make such a determination early in the collection system, and the
determination may vary over time, making compliance and enforcement
difficult. The Agency believes, and commenters agreed, that less
complex regulations will increase collection of universal wastes.
Increased collection under the universal waste regulations will result
in increased environmentally protective management of universal wastes
at Subtitle C hazardous waste facilities. The Agency believes that the
environmental benefits to be obtained from improved management of these
wastes, whether it is recycling or treatment and disposal, outweigh the
possible increases in [[Page 25503]] recycling that might occur if the
regulations were limited.
Not limiting the regulations also avoids one problem that the
Agency and the regulated community have had difficulties with in the
past. Regulations that are based on the intent of a person to do
something in the future are very difficult to enforce, and sometimes
even make it difficult for regulated persons to know what regulations
they should be following. The Agency believes, and commenters agreed,
that the compliance and implementation difficulties that are inherent
in requirements that vary depending on a future action (e.g., recycling
or disposal) make distinguishing between wastes to be recycled and
wastes to be disposed of infeasible under the universal waste
regulations.
Several commenters argued that limiting the regulations to recycled
waste might, in fact, discourage collection and recycling. Commenters
believed that persons are not likely to be willing to collect wastes
for potential recycling under the universal waste regulations if they
are vulnerable to liability for full Subtitle C violations, if, at a
later time, they determine that recycling is not available. Given the
volatility of recycling markets and capacities, particularly for
recycling technologies that are under development and not fully
established, this is a real concern. One commenter also pointed out
that some universal wastes are likely to be collected in mixtures of
recyclable wastes and non-recyclable wastes (e.g., mixed batteries).
Such wastes would have to be managed under the full hazardous waste
regulations, thus nullifying the benefits of the universal waste
regulations, inhibiting collection of even the recyclable wastes, and
ultimately limiting recycling. The Agency agrees with these commenters
that the difficulties inherent in having two systems based on the
ultimate disposition of the waste is not practical and may, in some
cases, actually inhibit recycling.
Several commenters argued that providing streamlined regulations
only for recycled wastes would provide an even greater incentive than
already exists for persons managing wastes to claim that they are
recycling, when their operations may be sham rather than legitimate
recycling. This would make it even more difficult for both persons
shipping wastes to recyclers and regulating agencies to determine
whether persons claiming to be recycling (or sending wastes to
recycling), are legitimately recycling. The Agency's experience has
been that it is not an easy task to determine whether an operation is a
legitimate or sham recycler. The added incentive for sham recycling,
and the increased importance of distinguishing legitimate from sham
recycling would further complicate a system limited to recycled wastes,
making it less effective in accomplishing the goals of removing waste
from non-hazardous waste management systems and improving
implementation of the hazardous waste regulations.
Numerous commenters pointed out that there may be a number of
wastes for which the universal waste system would be successful in
greatly improving waste management practices, but for which recycling
is not available because it is not either technologically or
economically feasible. Waste pesticides are a good example. Recycling
is rarely, if ever, an option and incineration is frequently the only
management option available. If the universal waste regulations were
limited to wastes that are recycled, waste pesticides could not be
included. This would greatly limit the environmental benefits to be
obtained from collection and proper management of pesticides, and other
similar wastes, under the universal waste regulations. These
commenters, and the Agency, agree that the benefits of encouraging
proper management for such wastes far outweigh the possible increases
in recycling that might occur if the regulations were limited.
Finally, the Agency notes that the treatment standards of the land
disposal restrictions program specifically require recycling for many
wastes included in the final universal waste rule, including lead-
containing batteries, cadmium-containing batteries, and high
concentration mercury wastes such as high-mercury batteries and
thermostats. Land disposal, and treatment followed by land disposal, is
not allowed for these wastes. Under the final rule, all universal
wastes must go to a destination facility for any treatment, recycling,
or disposal. The land disposal restrictions, including the treatment
standards, are fully applicable to destination facilities. Thus, for
these universal wastes recycling is actually mandatory. The Agency
notes that in cases such as these the land disposal restrictions
program has been used to require recycling for particular hazardous
wastes where it has been determined to be the best demonstrated
available technology (BDAT). These requirements continue to apply under
the universal waste regulations.
IV.B.2. Wastes Included in Final Rule
In the universal waste proposal, hazardous waste batteries and
suspended and/or cancelled pesticides that are recalled were included
as universal wastes in the proposed regulatory text. In the preamble,
the Agency suggested several additional waste types for which it
believed regulation under the universal waste system might be
appropriate. The waste types discussed included spent antifreeze, paint
residues, used thermometers, and used thermostats. The Agency requested
comment on whether these wastes should be included in the universal
waste system, and on what requirements would be appropriate to include
in the regulations to ensure that management under the universal waste
regulations was protective of human health and the environment.
Specific waste management requirements for thermostats were discussed
in some detail. The Agency has decided to include three waste
categories in the final universal waste rule: hazardous waste
batteries, certain hazardous waste pesticides, and hazardous waste
thermostats. These wastes are exempt from 40 CFR parts 262--270, except
as specified in 40 CFR part 273. These wastes are now subject to the
new part 273 regulations and, therefore, are not fully regulated under
the current hazardous waste regulations. The universe of wastes
included in each of these categories is discussed in detail in the
subsections below. Comments received on each of the waste categories
and the Agency's responses to these comments are also discussed. Also
discussed are several waste types for which a number of comments were
received, but that were not included in the final universal waste rule.
IV.B.2.a. Hazardous Waste Batteries
The Agency proposed to include all batteries that are hazardous
waste in the universal waste regulations, to encourage collection and
proper management of these wastes. The main reason for including all
batteries was to simplify the regulations and make them easy to comply
with. The Agency requested comment on several issues, including the
proposed definition of battery, whether the regulation should
distinguish between ``wet'' and ``dry'' batteries, whether the
regulation should distinguish between various sizes of batteries, and
how lead-acid batteries should be addressed. This latter issue is
discussed in detail in the following section of this preamble.
[[Page 25504]]
The Agency has decided to generally retain the proposed approach to
including batteries in the final rule. Thus, all batteries that are
hazardous waste may be managed under the final universal waste
regulations. However, based on comments received, the final definition
of battery has been revised from the proposal. A number of commenters
raised questions concerning the proposed definition and suggested
various revisions. Several commenters also recommended using a standard
definition that is already in use and accepted by major industry
groups. One commenter identified the American National Standards
Institute (ANSI) standard definitions for battery and cell, and
recommended using a combination of the two.
The Agency agrees that a recognized, standard definition for
battery is most likely to properly identify the universe of articles
that should be covered by the universal waste regulations. The Agency's
intent is to include those items commonly understood to be batteries,
without inadvertently including other items or excluding some
particular type of battery. A standard definition is most likely to
accomplish this. Thus, the Agency has chosen to use a combination of
the American National Standards Institute (ANSI) standard definitions
for battery and electrochemical cell to define the term battery in the
final rule. (See ``The New IEEE Standard Dictionary of Electrical and
Electronics Terms,'' Fifth Edition, published by the Institute of
Electrical and Electronics Engineers, Inc., IEEE Standard 1000-1992.)
The definition of battery in the final rule is ``a device consisting of
one or more electrically connected electrochemical cells which is
designed to receive, store, and deliver electric energy. An
electrochemical cell is a system consisting of an anode, cathode, and
an electrolyte, plus such connections (electrical and mechanical) as
may be needed to allow the cell to deliver or receive electrical
energy. The term battery also includes an intact, unbroken battery from
which the electrolyte has been removed.''
As suggested by commenters, the final definition has been revised
to specify that a battery must store electrical energy in addition to
receiving and delivering electrical energy. This distinction is to
ensure that gas-powered or electric generators are not included. The
definition has also been expanded to clarify that the definition of
battery does include batteries from which the electrolyte has been
removed. This was clearly the intent of the proposal, which
specifically allowed removing electrolyte from batteries. Commenters
did not object to electrolyte removal, but were concerned that it be
clear that batteries may not be crushed or broken to remove
electrolyte. Note also that the waste management requirements for
batteries prohibit breaking batteries during electrolyte removal.
With respect to the question of whether the universal waste
regulations should distinguish between ``wet'' and ``dry'' batteries
(batteries with a liquid vs. non-liquid electrolyte), those commenters
who addressed this issue agreed that no distinction should be made. The
Agency has decided to include both types of batteries in the regulation
based on these comments and the argument that including all hazardous
waste batteries greatly simplifies the regulations, making them easier
to comply with and thus encouraging collection and improved management.
Similarly, the Agency has decided to include all sizes of batteries in
the final rule. Few commenters addressed this question, and again the
Agency believes that not limiting the universal waste system will
result in improved management of all batteries, regardless of size.
Finally, a number of commenters raised questions about which types
of batteries exhibit characteristics of hazardous waste and therefore
would be covered under the universal waste system. Several commenters
requested that the Agency specify which battery types are hazardous. A
few commenters provided some data on various types of batteries, but
the Agency did not find the data to be comprehensive enough to make
broad generalizations about whether various battery types are always or
never hazardous. In addition, the Agency found it was not possible to
commit the resources that would be required to conduct sufficient
testing of numerous brands, sizes, and ages of batteries to make any
broad generalizations. Furthermore, even if resources were available,
it would likely not be possible to make definitive determinations in
any case.
As a result, the Agency has decided to retain the proposed approach
of using the term ``hazardous waste batteries'' to identify the
universe of batteries that may be managed under the universal waste
regulations. As is true under all of the hazardous waste regulations,
it remains up to the generator (handler) of batteries to determine
whether they must be managed under the hazardous waste regulations at
all. If so, then the universal waste regulations apply. However, the
Agency continues to believe that the universal waste regulations are
simple and basic enough that it will be easier and more efficient to
manage all kinds of batteries, and particularly mixed batteries, under
the universal waste system rather than making individual determinations
about batteries or battery types.
Of course, where sufficient information is available for a
generator (or other handler) to determine that a particular battery is
not hazardous, then that battery need not be managed under the
universal waste regulations. However, one of the Agency's goals for the
universal waste system has been to reduce the complexity and burden of
complying with the hazardous waste regulations for these wastes. One of
the major difficulties with the hazardous waste regulations has been
hazardous waste determinations in cases where wastes are generated in
small quantities by large numbers of people who are not familiar with
the specific composition of the waste. Batteries are a classic example
of this problem. Thus, the Agency hopes that the universal waste
regulations are sufficiently improved to allow persons to manage
batteries within the universal waste system without placing too much
emphasis on whether they are hazardous or not. Obviously, in cases
where it is known that batteries are not hazardous this is not
necessary. But where it is not known, it is hoped that resources will
be spent on improved management rather than on extensive, initial
analytical work.
The Agency would like to note that the Universal Waste Rule applies
only to hazardous waste batteries as defined in 40 CFR 260.10 and
273.6, and not to the unit or device in which the battery is contained.
There may be a situation in which a regulated business is sending a
device containing a battery to a facility to be repaired. At this
point, the device would not be considered a universal waste as: (1) The
device is still a product, and therefore not yet a solid waste; and (2)
the device does not fall into any of the current categories of
universal waste (hazardous waste batteries, thermostats, and certain
pesticides). If, however, the person (either the original generator or
the repair facility) decides to dispose of the device, he must
determine if the entire device is or is not a hazardous waste.
IV.B.2.b. Lead-Acid Batteries
In the proposed rule, EPA proposed to maintain the current
exemption for lead-acid batteries under subpart G, part 266. Under
these regulations, persons who generate, transport, or collect spent
lead-acid batteries, or who store them but do not reclaim them (other
than spent batteries that are to be regenerated) are not subject to the
[[Page 25505]] hazardous waste regulations. Persons who accumulate
spent lead-acid batteries before reclaiming them (e.g. cracking, and/or
smelting the batteries) must notify EPA and obtain a RCRA permit for
that storage. Under the universal waste proposal, persons had the
option of continuing to manage lead-acid batteries under the part 266,
subpart G exemption or under the part 273 requirements. The existing
recycling program for automotive lead-acid batteries currently in
place, which operates under this exemption, has been extremely
successful, with recycling rates in excess of 90% nationwide. By
retaining the part 266, subpart G exemption, the Agency believes that
this program can continue to operate without unnecessary modifications
nor an adverse effect on the environment. Therefore, in today's final
rule, the subpart G, part 266 exemption has been retained. Therefore,
handlers of spent lead-acid batteries are who are managing them under
the requirements of Sec. 266.80 are not subject to the requirements
under 40 CFR part 273. However, handlers of spent lead-acid batteries
who are not managing them under the Sec. 266.80 requirements are
subject to the requirements under 40 CFR part 273.
In addition, 40 CFR 266.80 (a) and (b) have been revised to clarify
that lead-acid batteries that are regenerated remain exempt from the
hazardous waste regulations throughout the management cycle. Since the
final rule retains the lead-acid battery provisions of 40 CFR 266.80,
it is most appropriate to also include regenerated lead-acid batteries
so that all lead-acid batteries may be managed similarly. However,
since the activities of a regeneration facility are more similar to a
facility that accumulates waste than a facility that processes a waste
to recover a usable product, batteries that are regenerated have also
been exempted from the requirements for lead-acid battery reclamation
facilities (for further discussion of regenerated batteries, see
section IV.J. of today's preamble).
Most commenters agreed that the current exemption for lead-acid
batteries under subpart G of 40 CFR part 266 should be retained.
Commenters agreed that by maintaining this exemption, the current
recycling program for automotive lead-acid batteries can continue to
operate successfully.
A few commenters, however, argued that EPA should consolidate all
requirements applicable to batteries into one set of regulations to
reduce confusion on the part of handlers as to which requirements must
be complied with for proper management. Some commenters stated that
extending the part 266 exemption to all batteries would be the most
appropriate, while others express a desire for all batteries to be
incorporated into part 273. Others recommended a combination of the two
by incorporating the part 266 exemption into the part 273 regulations.
The Agency believes that retaining the exemption under part 266,
subpart G will not make the management of hazardous waste batteries
overly confusing or complex. The part 266, subpart G exemption is
primarily used for the reclamation of automotive lead-acid batteries,
which are easily identifiable. As such, the Agency believes separate
management of this waste stream is simple to accomplish and therefore
does not place a burden on handlers managing these batteries.
It was noted by one commenter that automotive batteries of various
formulations are currently under development for use in electric
vehicles, and thus, in the future, the chemistry of automotive
batteries (eg., lead-acid versus other formulations) may not be as
easily identifiable as it is at this time. The Agency would like to
clarify that under the hazardous waste regulations as revised by
today's addition of part 273, if the handler believes a battery is a
hazardous waste but is not clear whether the battery is lead-acid or
another chemical formulation, the battery should be managed under part
273 regulations. The Agency believes, however, that the final part 273
requirements are simple and straightforward enough that management of
any mixed battery types, including electric vehicle batteries, will not
be overly burdensome.
Another commenter expressed concern regarding the management of
small (non-automotive) lead-acid batteries. The Agency expects that
small, sealed dry cell lead-acid batteries will likely be handled under
the part 273 regulations along with other hazardous waste batteries,
therefore eliminating the need for the handler to separate these
batteries from other hazardous waste batteries. Managing small sealed
lead-acid batteries together with other hazardous waste batteries under
part 273 is acceptable under the final rule.
IV.B.2.c. Hazardous Waste Pesticides
Among the wastes proposed to be included in the universal waste
regulations was a narrowly limited set of hazardous waste pesticides.
Specifically, the proposed rule established streamlined requirements
for the collection of unused pesticides that are suspended or canceled
under section 6 of the Federal Insecticide, Fungicide, and Rodenticide
Act (FIFRA) and recalled, and that are collected for discard. FIFRA
regulates pesticides from initial distribution by producers to ultimate
disposal. As proposed, to meet the applicability criteria of part 273,
the pesticides were required to be: (a) Part of a voluntary or
mandatory recall under FIFRA section 19(b); or (b) owned by a
registrant responsible for conducting a recall under FIFRA section
19(b); or (c) part of a registrant-conducted recall of a canceled or
suspended pesticide under FIFRA section 6. A number of changes have
been made to the universe of pesticides covered in the universal waste
rule and in the corresponding regulatory text, which was proposed to
delineate which pesticides were or were not subject to the requirements
of part 273.
First, in the final rule, the Agency has expanded and organized the
applicability section for pesticides into four subsections, as follows:
(1) Pesticides covered under part 273; (2) pesticides not covered under
part 273; (3) generation of hazardous waste pesticides; and (4)
pesticides that are not wastes. The Agency decided to restructure the
pesticides applicability section in this way because several commenters
stated that it was difficult to determine which pesticides were covered
or which pesticides were not covered under the proposed rule. For
example, the proposal Sec. 273.20(a) included Secs. 273.20(a) (2) and
(3) which both described hazardous waste pesticides not covered under
part 273. Similarly, Sec. 273.21(a) included Sec. 273.21(a)(2) which
described recalled pesticides that never become hazardous wastes and
thus are never generated. The Agency agrees that these and other
sections could confuse readers attempting to determine whether their
pesticides were covered under part 273. The Agency believes that the
restructured applicability section for pesticides, 40 CFR 273.3, will
be much more clear and less cumbersome in that all of the provisions
addressing which pesticides are covered are now located in one section
and the section is clearly organized to assist readers in making this
determination.
Second, the universe of pesticides included under the final
universal waste regulations has been expanded. This expansion is
codified in Sec. 273.3(a), which describes the types of hazardous waste
pesticides that are considered universal wastes and may be managed
under part 273. The first paragraph of this Sec. 273.3(a)(1) rewords,
but essentially retains, the proposed [[Page 25506]] regulatory text
from Sec. 273.20(a)(1) that described the recalled pesticides that are
subject to FIFRA recall procedures and were proposed to be managed as
universal wastes. The second paragraph of this Sec. 273.3(a)(2), has
been added to the final rule and describes the universe of pesticides
that has been added to the universal waste regulations in addition to
the recalled pesticides described above. Specifically, the Agency has
broadened this section to include unused pesticide products that are
collected and managed as part of a waste pesticide collection program.
These unused pesticide products are generally materials that are no
longer useful for their intended purpose. Frequently, they are
agricultural pesticides that have been banned for use on crops or are
obsolete and have been replaced by newer products. They may also be
pesticides that have become damaged (e.g., exposed to temperature
extremes) or that are no longer needed due to factors such as changes
in cropping patterns.
Ultimately, farmers nationwide have accumulated these materials in
their sheds or barns for many years. To encourage the removal of unused
pesticide products from long term accumulation on the farm, a number of
state agricultural departments have implemented programs to collect and
properly dispose of these materials. By including unused pesticide
products under part 273, farmers will be able to ship their universal
waste pesticides to the collection programs without needing to meet the
full requirements under 40 CFR parts 260 through 272.
Several factors prompted the Agency to include unused pesticide
products that are collected and managed as part of waste pesticide
collection programs into the part 273 universal waste management
standards. One factor for including unused pesticide products was that
unused pesticide products are generated by a wide variety of generators
and are present in large amounts in the agricultural community. Another
factor was that potential risks posed by the presence of unused
pesticide products during accumulation and transport are similar to the
risks posed by recalled pesticides during accumulation and transport.
Finally, the inclusion of unused pesticides under part 273 will greatly
facilitate participation and implementation of state programs that are
currently collecting the unused pesticide products found on farms.
Most of the commenters addressing pesticide related portions of the
proposed rule supported including such unused pesticide products in the
final rule. These commenters specifically argued that unused pesticides
posed risks similar to risks posed by pesticides already included under
the proposed regulations. Some commenters, argued that if the proposed
pesticide regulations for recalled pesticides could be expanded to
include stocks of unused pesticide products, state approved programs
currently collecting unused pesticide products could greatly improve
participation by farmers. These commenters indicated that certain
current requirements under 40 CFR parts 260 through 272 had deterred
many farmers from participating in, and benefitting from, waste
pesticide collection programs, and that streamlined requirements under
part 273 would remove many such barriers to participation.
Third, the Agency has developed a subsection under the final rule
which describes the types of pesticides that are not covered under part
273. Paragraph 273.3(b)(1) reiterates that qualifying hazardous waste
pesticides can be regulated in compliance either with 40 CFR parts 260
through 272 or with part 273. For example, farmers managing hazardous
waste pesticides in compliance with 40 CFR 262.70 are not subject to
the regulations of part 273. Under Sec. 273.3(b)(2) of the final rule,
hazardous waste pesticides that do not meet the conditions described in
Sec. 273.3(a) are required to comply with the full hazardous waste
regulations in 40 CFR part 260 through 272. This provision has been
retained from Sec. 273.20(a)(2) of the proposed rule. Similarly,
Secs. 273.3(b) (3) and (4), which describe recalled pesticides that are
not yet solid wastes and therefore are not subject to the hazardous
waste regulations including part 273, have also been retained from the
proposed regulatory text from Sec. 273.21(a)(2). Again, the Agency
recodified these paragraphs in one subsection of the final rule to make
it clearer to the reader which types of hazardous wastes are not
covered under part 273 standards of the final rule.
The text in the applicability section for universal waste
pesticides was complex in the proposed rule. Part 273.21(a)
(``Generation of Hazardous Waste Pesticides), the Agency proposed
criteria to establish the date at which waste pesticides are generated,
but also included criteria to distinguish when pesticides are or are
not solid wastes and, therefore, not subject to the hazardous waste
regulations. To clarify the applicability section of the final rule,
the final rule text separates these criteria into two separate
paragraphs (Secs. 273.3 (c) and (d)), as described below.
Section 273.3(c) will help readers determine the date at which a
recalled or unused pesticide becomes a waste. Understanding this factor
is important since a pesticide that has not become a waste also has not
become a hazardous waste and is not covered under part 273 (see also
preamble discussion on Secs. 273.3 (b) and (d)). The text in
Sec. 273.3(c)(1) simplifies but retains the meaning of text in
Sec. 273.21(a)(1) of the proposed rule. Section 273.3(c)(1) states that
a recalled pesticide becomes a waste on the first date on which two
conditions occur. These conditions are: (1) The generator of the
recalled pesticide agrees to participate in the recall; and, (2) the
person conducting the recall decides to discard the pesticide or burn
the pesticide for energy recovery. For example, if a farmer decides to
participate in a recall and sends the recalled pesticide back to the
registrant for reclamation and reformulation, the pesticide would be
considered an unused commercial chemical product being reclaimed and
therefore would not be a solid waste (or hazardous waste) under RCRA
section 261.1. A recalled pesticide sent by a recall participant to the
recall facility does not become a waste until the registrant makes a
decision to discard the pesticide (e.g., burn for energy recovery).
Once a decision to discard the pesticide or burn the pesticide for
energy recovery is made, both conditions of Sec. 273.3(c)(1) have been
met and the registrant becomes the generator of the universal waste.
Section 273.3(c)(2), describing when an unused pesticide products
becomes a waste, has been added to the final rule to accommodate the
changes mentioned above to the proposed regulatory text from
Sec. 273.20(a).
Section 273.3(d)(1) of the final rule further explains the
decision-making role played by the person conducting the recall of a
pesticide in determining whether the pesticide becomes a waste. The
regulatory language established in the final rule is retained from
Sec. 273.21(a)(2) in the proposed rule. The final rule also adds
Sec. 273.3(d)(2) describing the generator's role in determining whether
a pesticide is a waste. This addition accommodates the expansion of the
applicability section at Sec. 273.3(a)(2), mentioned earlier. This
decision-making process remains as proposed and is specific to
pesticides involved in a recall. Recalled pesticides are covered by
procedures under FIFRA section 19(b) and 6(g). Other situations are
covered generally under Sec. 261.2. [[Page 25507]]
IV.B.2.d. Hazardous Waste Thermostats
In the proposed rule, the Agency requested comment on whether used
mercury-containing thermostats should be added to the universal waste
regulations. The Agency specifically requested comment on whether used
mercury-containing thermostats fit the factors proposed to be used to
evaluate whether new candidate wastes are suitable for inclusion under
part 273. In addition, the Agency asked for comment on whether the
universal waste requirements proposed for universal waste batteries
would be appropriate for managing used mercury-containing thermostats.
Commenters overwhelmingly supported adding mercury-containing
thermostats to the universal waste regulations. Commenters agreed that
mercury-containing thermostats are an appropriate waste type to manage
under the universal waste system and that they meet the criteria
proposed for adding wastes to the part 273 regulations. Commenters
argued that thermostats are generated in a wide variety of settings by
a large number of generators, since they can be generated at almost any
building, including commercial, industrial, agricultural, community,
and household buildings. Commenters asserted that thermostats are
likely to be managed in the municipal waste stream because they are
small, generated infrequently, and usually generated by persons not
familiar with the hazardous waste regulations or hazardous waste
management systems.
Several commenters described a ``reverse distribution'' or ``take
back'' system that is under development by one thermostat manufacturer.
A trade association representing manufacturers of thermostats indicated
that all of the members intend to participate in this collection
system, thus making the system industry-wide and allowing collection of
virtually all brands of thermostats used in the United States. The
``take back'' system will be used to collect used mercury-containing
thermostats to recover the mercury and reuse it in the production of
new thermostats. The manufacturer implementing the ``take back'' system
has developed packaging, marking, and labeling procedures that will be
required for participation in the program that will ensure that the
waste mercury thermostats are appropriately handled. The information
provided indicated that the nation-wide waste mercury thermostat
collection and recycling program would greatly reduce the amount of
mercury that is now being managed in the municipal waste stream across
the United States.
Commenters further argued that mercury-containing thermostats
present relatively low risk during accumulation and transport because
they are designed to protect the ampules that contain mercury from
breakage. One commenter explained that ampules are attached to a bi-
metal strip designed to absorb shocks. The commenter further explained
that ampules are also enclosed within plastic or metal outer casings
that protect them further from breakage. This commenter described
experience with warrantee take back programs and indicated that less
than .01% of new mercury thermostats returned to them are returned due
to breakage of the ampules. Commenters also stated that during
accumulation, waste mercury thermostats are not subject to
deterioration, therefore, the risk of mercury release will not increase
as accumulation time increases. The packaging, marking, and labeling
procedures that will be part of the industry ``take back'' program
provide further evidence that the risks during accumulation and
transport will be low.
The Agency agrees with commenters that used mercury-containing
thermostats meet the proposed (and final) factors for adding new wastes
to the universal waste regulations and that these wastes are
appropriate to be managed under the universal waste system. The Agency
recognizes that due to the administrative burden, costs, and stigma
associated with managing these wastes under the full hazardous waste
regulations, it is not likely that a ``take back'' system such as that
described by commenters will be implemented if compliance with the full
hazardous waste regulations is required of participants. Thus, the
Agency has included mercury-containing thermostats in the final
universal waste regulations promulgated today. It should be noted that
universal wastes, including mercury-containing thermostats, are exempt
from regulation under both the 40 CFR 262-270 and 40 CFR part 273 if
they are household waste (see 40 CFR 261.4(b)(1)), therefore the
possible burden of compliance with the current Subtitle C regulations
lies with generators, transporters and storage facilities currently
regulated under 40 CFR parts 262-270.
One commenter suggested a regulatory definition to identify what
wastes are covered under the universal waste regulations. The Agency
agrees that a definition is necessary, and has included the following
definition in 40 CFR 273.6 of the final rule: ``thermostat means a
temperature control device that contains metallic mercury in an ampule
attached to a bimetal sensing element, and mercury-containing ampules
that have been removed from these temperature control devices in
compliance with the requirements of 40 CFR 273.13(c)(2) or
273.33(c)(2).'' This definition differs slightly from the definition
that was recommended by the commenter. The commenter suggested limiting
the definition to wall-mounted thermostats, rather than extending the
definition to all temperature control devices that contain metallic
mercury in ampules. The commenter expressed concern that difficulties
may arise when managing small wall-mounted thermostats together with
other mercury thermostats. The Agency recognizes the commenter's
concerns, but points out that universal waste handlers are not required
to accept any type of universal waste that they are not prepared to
manage. Thus, if a collection program is designed only to handle a
certain type of thermostat, only that type of thermostat should be
accepted by the operators of the program. The Agency does not want to
limit the possibility that other collection programs may be developed
for other types of thermostats, or that different types of thermostats
could be managed separately (i.e., transport and accumulate wall-
mounted and other thermostats separately). Thus, the definition has not
been limited to wall-mounted thermostats.
In addition, the definition suggested by the commenter has been
expanded in the final rule to include mercury-containing ampules that
have been removed from thermostats. As is discussed in section IV.E.3.c
of this preamble, requirements for managing thermostats under the
universal waste rule have been drafted to allow removal of ampules as
long as certain conditions are met. In order to allow management of the
ampules under the universal waste system once they have been removed
from the thermostat casing, it was necessary to include them in the
definition of thermostat. The definition specifies that the ampules
must be removed following the universal waste handler waste management
conditions set forth in Sec. 273.13(c)(2) or Sec. 273.33(c)(2).
Finally, with the exception of the issue of ampule removal,
commenters overwhelmingly supported applying the requirements proposed
for universal waste batteries to used mercury-containing thermostats.
Thus, in the final rule, persons managing universal waste thermostats
are subject to the same basic requirements as persons managing other
universal wastes: [[Page 25508]] requirements for small and large
quantity handlers, transporters, and destination facilities. Specific
waste management requirements have been added to the small and large
quantity handler sections to address the commenter's concerns about
ampule removal. These requirements are discussed in detail in section
IV.E.3.c of this preamble, entitled waste management.
IV.B.2.e. Other Wastes Suggested by Commenters
A number of commenters suggested additional wastes that they
believed should be added to the universal waste regulations. For
example, wastes suggested included electronic components, photographic
wastes, aerosol cans, solvent contaminated rags and wipers, treated
wood, auto shredder fluff, and a number of others. Several wastes were
suggested by numerous commenters and merit further discussion. These
are spent lamps (lighting waste), used mercury containing equipment,
and antifreeze. Spent lamps are discussed in section II.A, of this
preamble, entitled mercury-containing lamps. Used mercury-containing
equipment and spent antifreeze are discussed in the following sections
of this preamble.
Although many of the wastes suggested may be appropriate candidates
for the universal waste system in the future, the Agency has decided to
include only three wastes in this final rule: hazardous waste
batteries, thermostats, and certain unused pesticides. This decision
was made because, first, with a few exceptions discussed below,
commenters provided only very limited information about the suggested
waste(s), current management of the waste(s), and appropriate waste
management controls that could be used to develop universal waste
regulations for the waste(s). Most commenters did not evaluate how the
suggested waste(s) compared against the factors proposed to add new
wastes to the universal waste regulations. For most suggested wastes,
the Agency did not feel that it had sufficient information to consider
adding the waste to the universal waste regulations at this time.
Unlike unused pesticide products and mercury-containing thermostats on
which we have a body of information, adding other suggested waste types
would require additional research to determine appropriate waste
management practices and other issues related to these wastes. Second,
in this final rule the factors used to evaluate candidate wastes to
determine whether they are appropriate to be added to the universal
waste regulations have been revised from those proposed.
Finally, the universal waste system is a new program. The Agency
believes it is important to begin implementation with a limited number
of waste types, and conduct at least an initial assessment of how the
program is working before adding a great deal of new wastes. Thus, due
to resource constraints, the Agency has decided to add only the above-
named wastes and focus it's efforts on promulgating the basic structure
of the regulations, while initially including only a few wastes in the
program. If determined necessary, revisions to the regulatory structure
could be made at the same time that new wastes are added.
The fact that the Agency has decided not to add a commenter's
suggested waste to the universal waste regulations at this time does
not mean that the Agency will not consider adding the waste at some
time in the future. In fact, commenters are encouraged to assess
whether their suggested wastes fit the final evaluation factors, and if
so, to submit a petition making that demonstration and including
suggested waste management controls that could be used to develop
universal waste regulations for the waste. Petitions should follow the
procedures set forth in 40 CFR 260.20, 260.23, 273.80, and 273.81 as
revised by this final rule.
IV.B.2.f. Used Mercury-Containing Equipment
In addition to supporting the addition of mercury-containing
thermostats to the universal waste regulations, a number of commenters
suggested expanding the scope of this waste type to be a category of
wastes including other mercury-containing equipment. Commenters pointed
out that thermostats are a form of mercury switch, and that there are
many other types of mercury switches that may present issues similar to
those for thermostats. Other items commenters identified as mercury-
containing equipment that should be included were gauges, manometers,
relays, and circuit boards. Commenters also noted that some of these
items may contribute substantial amounts of mercury to non-hazardous
waste management systems.
Although the Agency believes that adding a broader category of
mercury-containing equipment to the universal waste rule may ultimately
be the best way to approach this issue, at this time only mercury-
containing thermostats have been included in the final rule. In
addition to the reasons discussed above for limiting this final rule to
batteries, pesticides, and thermostats, the Agency does not believe
that it has sufficient information at this time to add the broader
category to the universal waste regulations. Specifically, the universe
of wastes that would fit into such a category is not clearly
identified. The Agency does not know exactly what types of wastes would
be included if it were to add such a category. For example, it is not
known how much mercury might be in such equipment. It is possible that
there are some pieces of equipment that have very large amounts of
mercury that may be of more concern for management under the universal
waste regulations than equipment with small amounts of mercury. It is
also not known how various types of mercury-containing equipment are
constructed, and thus it is not known whether the mercury is
sufficiently contained to provide some assurance that the mercury would
not be released during management under the universal waste system.
Similarly, it is not known what type of waste management controls would
be appropriate to include in the universal waste regulations for the
broader category.
The Agency would welcome a petition to add some form of broad
category of mercury-containing equipment to the universal waste rule.
In developing such a broad category, the Agency would be particularly
interested in several issues. First, suggestions on how to define the
category to limit it to wastes appropriate for the universal waste
system would be useful. Second, the Agency would need a listing of the
types of equipment that would be included in the category, and general
information about the amounts of mercury contained in each and how the
equipment is constructed to protect the mercury from release. Third, it
would be helpful to know whether there is some mercury quantity limit
that might be used to ensure that the risks of managing the wastes
under the universal waste rule are low (relative to other hazardous
wastes), while at the same time including as many of these wastes as is
appropriate. Fourth, the Agency would appreciate suggested waste
management requirements that, taking into account the construction of
the mercury-containing equipment, would minimize the risks of managing
these wastes under the universal waste regulations. Finally, any
available information about systems that are used or could be used to
collect these wastes would be useful (e.g., reverse distribution
systems). [[Page 25509]]
IV.B.2.g. Spent Antifreeze
In the preamble to the universal waste rule the Agency suggested
that used antifreeze might be a good candidate for addition to the
universal waste regulations. Comment was requested on whether spent
antifreeze fit the factors for addition to the universal waste rule,
and on what specific management requirements would be appropriate if
spent antifreeze were added. Numerous comments were received addressing
this issue, but commenters disagreed on both whether used antifreeze
should be added to the universal waste system at this time and on what
requirements would be appropriate.
A number of commenters argued that spent antifreeze did fit the
proposed factors and should be added to the rule. Several commenters
addressed each of the proposed factors in turn and maintained that
antifreeze fit them all. A number of other commenters, however,
questioned how frequently spent antifreeze actually fails the toxicity
test and is thus hazardous waste. They noted that one of the factors
proposed to be used to evaluate new wastes for addition to the
universal waste system was whether or how frequently the waste was
hazardous. They argued that regulation under the universal waste rule
would imply a presumption that used antifreeze is hazardous, making
management of that portion of spent antifreeze that is not hazardous
more difficult. Several of these commenters also predicted that the
lead levels in used vehicle antifreeze will diminish over time as more
and more vehicles are produced with cooling systems that have little or
no exposed lead solder. They thus believe that less and less antifreeze
will fail the toxicity characteristic over time.
Commenters also recommended a wide range of management requirements
for spent antifreeze if it were to be added to the universal waste
system. Some commenters believed that the requirements proposed for
batteries and pesticides were generally appropriate. A number of
commenters also maintained that the antifreeze recycling pattern is
very different from the limited recycling or treatment and disposal
options available for wastes such as batteries and pesticides. They
described antifreeze recycling as requiring less sophisticated
technology and being practiced at many dispersed locations rather than
a few centralized facilities. They did not believe that the universal
waste regulatory structure was appropriate to accommodate this type of
waste management pattern.
Several commenters argued that because antifreeze is a high volume
liquid, the management requirements should be somewhat different than
those included in the proposal. Some commenters argued that
requirements for used antifreeze should be based on the small quantity
generator regulations. Many others suggested requirements similar to
the used oil management standards of 40 CFR part 279. Some commenters
suggested specific sets of requirements that they believed were
appropriate for used antifreeze management.
Spent antifreeze is not included in the final universal waste rule.
The Agency made this decision for several reasons. First, because the
Agency did not request specific comments on issues related to spent
antifreeze, the comments received were not focussed on any particular
issues and provide little clear direction for the Agency to move
forward with this issue at this time. As suggested by several
commenters, the Agency does not believe it would be wise to add spent
antifreeze to the universal waste regulations without first proposing
and accepting comment on specific management standards.
Second, commenters opinions on whether spent antifreeze should be
added to the universal waste regulations ranged so widely that it is
clear that more investigation into this issue is necessary before
promulgating final regulations. Specifically, some additional
information on the frequency with which used antifreeze exhibits the
toxicity characteristic may be available and should be reviewed prior
to making a decision on how to address antifreeze. In addition, the
Agency should also investigate further suggestions that improved
handling by generators (e.g., managing antifreeze only in dedicated
containers) could reduce the rate at which antifreeze exhibits the
toxicity characteristic. Similarly, opinions on appropriate management
standards also varied so greatly that the Agency recognizes it would
not be possible, based on the information available at this time, to
develop management requirements that adequately address the issues
raised by commenters.
Third, many commenters argued that the question of how antifreeze
recycling is regulated is central to the development of appropriate
management standards. As explained in section II.B of this preamble,
entitled Redefinition of Solid Waste, the general question of how
recycling should be regulated is being addressed in a larger forum and
is outside the scope of today's final rule. The Agency believes that it
may be necessary to proceed somewhat further with this effort before it
will be possible to determine how best to address the issue of
antifreeze management.
Finally, for this initial final rule, the Agency decided to focus
its efforts and available resources on wastes for which commenters
demonstrated more agreement about the major issues of whether to
include the waste and appropriate management requirements. Once the
basic structure of the universal waste system is in place, it may be
more clear whether and how more controversial wastes such as antifreeze
may fit into the system. Thus, spent antifreeze has not been included
in this final rule, but the Agency has not ruled out adding it in the
future if it seems appropriate and if it appears possible to develop
requirements that would improve management of used antifreeze.
IV.B.3. Conditionally Exempt Small Quantity Generator Waste
In the proposed part 273 regulations, the Agency proposed to retain
the 261.5 CESQG conditional exemption from the hazardous waste
regulations for universal wastes. Under this approach, CESQGs would
have the option of managing universal wastes under either part 273 or
Sec. 261.5. Thus, CESQGs would not be required to manage their
universal waste under part 273. However, the Agency requested comment
on whether this approach should be retained, or whether CESQGs should
be required to manage their universal wastes under part 273. In the
final rule, the Agency has decided to retain the approach proposed and
is allowing CESQGs the option of handling their universal wastes under
part 273 or under the CESQG exemption in Sec. 261.5.
Most commenters responding to this request for comment argued that
CESQGs should be allowed flexibility in managing their universal
wastes. Commenters stated that CESQGs should have the option of
managing these wastes as universal wastes under part 273 if they so
choose, or to continue to handle these wastes in compliance with the
requirements of the CESQG exemption under Sec. 261.5. Commenters argued
that this option would allow each CESQG the flexibility to select the
disposal method that is least costly and best meets the needs of its
business. They also argued that CESQGs often do not have ready access
to new information and markets for their wastes and therefore should
not be required to manage their universal wastes under part 273 to the
exclusion of other existing waste management options. Many commenters
pointed out that as [[Page 25510]] an infrastructure develops for the
universal waste collection systems, CESQGs are likely to voluntarily
participate in such programs. Other commenters stated that management
under part 273 should be mandatory in order to reduce confusion related
to how these waste types should be handled and to ensure protection of
the environment.
The Agency believes that allowing individual CESQGs to choose the
regulatory option that best meets their circumstances will aid in
assuring effective collection, management and disposal of universal
wastes. Requiring compliance with part 273 would be an added
administrative and cost burden for CESQGs, many of whom may be small
businesses and small organizations. In addition, compliance with some
aspects of the program may be difficult for these generators. The
Agency believes that as an infrastructure develops for protectively
handling these wastes, CESQG waste is most likely to be incorporated
into the universal waste system through voluntary efforts, state or
local programs, and the availability of convenient collection systems
rather than through additional regulatory requirements. Therefore, in
the final rule, the Agency has retained the opportunity for CESQGS to
manage their wastes under either the CESQG exemption or under part 273.
The option for CESQGs to send their universal wastes to a universal
waste handler or destination facility has been added to 40 CFR
261.5(f)(3)(vi) and 261.5(g)(3)(vi) as was proposed. As was proposed at
40 CFR 273.10(b)(1)(ii) and 40 CFR 273.20(b)(1)(ii), 40 CFR 273.5(a)(2)
has been added to the final rule to clarify that CESQGs may, at their
option, manage their universal wastes under part 273.
Further, the Agency is retaining the intent of the proposed
requirement that if universal wastes from CESQGs are commingled with
universal wastes from larger, regulated hazardous waste generators, and
the commingled waste is a hazardous waste under 40 CFR 261.3 (i.e., is
listed or exhibits a characteristic), the commingled waste must be
managed under the part 273 requirements. As explained in the proposal,
this provision is included to clarify this point for persons managing
universal waste, but is actually merely a restatement of existing
hazardous waste requirements.
In the proposed universal waste rule, the Agency also proposed not
to require hazardous waste generators to count those universal wastes
managed under the part 273 requirements toward the monthly quantity
calculation used to determine generator regulatory status (i.e., CESQG,
SQG, LQG). Today's final rule retains the approach as proposed. Section
261.5 has been redrafted to clarify this point.
One commenter was concerned that this exclusion would cause more
hazardous waste to be sent to non-subtitle C facilities because more
generators would be CESQGs if universal wastes are not counted. The
remainder of the commenters agreed with excluding universal wastes
managed under part 273 from the generator's calculation of monthly
generation rates to determine generator status.
The Agency does not believe that excluding universal wastes from
the generator's calculation of monthly generation rates will have a
significant impact on the amount of hazardous waste sent to non-
subtitle C facilities. The volume of universal wastes typically
generated by any one generator is not large. Thus, the Agency believes
that the number of generators that will move from the regulated SQG
category to the conditionally exempt SQG category will be small.
More importantly, the Agency believes that on balance, encouraging
generators to manage their wastes under part 273 by allowing generators
not to count those universal wastes managed under part 273 will likely
increase the overall quantity of hazardous waste recycled or disposed
of at Subtitle C facilities. Excluding universal hazardous wastes that
are managed under part 273 from the generator's monthly quantity
determination will encourage generators to manage wastes under the
universal waste rule, and therefore maximize the benefits to the
environment by redirecting these hazardous wastes from non-hazardous
waste management to more protective management. The Agency strongly
believes that the benefits of capturing these universal wastes for safe
handling outweighs the potential risks of small quantities. Therefore
today's final rule retains this exclusion.
In addition, as other waste types are considered for inclusion in
part 273, they will be evaluated according to the criteria in
Sec. 273.81. Part 273.81(d) states that ``systems to be used for
collecting the waste (including packaging, marking, and labeling
practices) would ensure close stewardship of the waste.'' EPA believes
that this criterion, the other criteria included under Sec. 273.81(a)-
(h), and the petition and rulemaking procedures for adding new wastes
to the universal waste system will ensure that any wastes added in the
future will be managed in an environmentally protective manner.
One commenter stated that it is not clear that SQGs and LQGs should
use the same procedures for determining generator status as that used
by CESQGs since the regulatory language explaining the calculation is
located in Sec. 261.5, which applies to CESQGs. Although the language
in Sec. 261.5(c) makes it clear that the counting procedures apply to
all generators (``the quantity determination of this part and parts 262
through 266, 268, and 270''), the Agency agrees that it might be easier
for SQGs and LQGs to find the counting procedures if they were
referenced in part 262. Thus, this rule revises Sec. 262.10 by adding a
new paragraph (b) to read ``40 CFR 261.5 (c) and (d) must be used to
determine the applicability of provisions of this part that are
dependent on calculations of the quantity of hazardous waste generated
per month.''
Finally, as proposed, the final rule adds part 273 to the list of
parts in Sec. 262.11(d) where exclusions or restrictions for hazardous
waste management are found. In addition, to clarify that Sec. 261.5
provides additional exclusions as discussed above, the final rule also
adds part 261 to this list. Thus, Sec. 262.11(d) now reads ``If the
waste is determined to be hazardous, the generator must refer to parts
261, 264, 265, 266, 269, and 273 of this chapter for possible
exclusions or restrictions pertaining to management of the specific
waste.''
IV.C. Adding Additional Wastes in the Future
The proposed universal waste rule included a process for adding
additional waste types to the universal waste system in the future. The
process consisted of procedures for persons to petition the Agency
requesting the addition of new waste types, procedures for the Agency
to use in responding to petitions, and factors to be used to evaluate
whether a new waste type is appropriate to be added to the system. The
final rule includes a similar process, but based on the comments
addressing this issue some changes have been made to both the
procedures and the factors. In addition, the Agency has decided to
allow states the flexibility to add additional wastes to their state
list of universal wastes without requiring the waste to be added at the
federal level. The following two sections discuss changes made to the
petition procedures and the factors. [[Page 25511]]
IV.C.1. Procedures for Adding New Wastes
In the proposed universal waste rule, EPA proposed that any person
may petition to have additional hazardous wastes added to the part 273
universal waste regulations. Proposed regulations governing the
petition process were found in Secs. 260.20, 260.34, and 273.2.
Detailed procedures for submitting and reviewing petitions, however,
are set forth in existing 40 CFR 260.20 and were only referenced in the
proposed regulatory text. These procedures are the same procedures that
are used for submitting and reviewing all petitions for regulatory
amendments to the hazardous waste regulations.
The proposed rule indicated that in order for a petitioner to be
successful, it must be demonstrated that regulation under the universal
waste system is appropriate and that the part 273 requirements will
improve waste management practices for the waste. This demonstration
was to be made by submitting information to support the factors listed
in Sec. 273.2 (a) and (b).
In today's final rule, the procedures for submitting petitions
remain substantially unchanged, although several minor revisions have
been made. First, the requirements for petitions for inclusion of other
wastes under part 273 have been moved from Sec. 273.2 in the proposal
to subpart G of part 273 in today's final rule. The Agency believes
that putting the petition requirements in a separate subpart makes them
easier to locate, and thus makes the entire regulation easier to
follow. In addition, the proposed Sec. 260.34, entitled ``Petitions to
amend part 273 to include additional hazardous wastes'' has been
renumbered to be Sec. 260.23 in the final rule. This change has been
made to keep the sections of part 260 that discuss regulatory
amendments together.
Second, the petition procedures have been revised to allow
petitions to add categories of waste as well as individual wastes to
the universal waste system. This revision was made in response to
comments. It was suggested that the term ``waste'' may be more limiting
than the Agency intended. Use of the term ``waste category'' will allow
petitioners to submit a group of wastes such as ``hazardous waste
batteries'' instead of petitioning for each type of hazardous waste
battery individually (hazardous waste nickel-cadmium batteries,
hazardous waste lithium batteries, etc.). One commenter also suggested
that a category of wastes such as unused products in original packaging
might be appropriately managed under the universal waste system. The
Agency agrees with these comments and has incorporated this suggestion
into the final rule.
Third, to clarify the Agency's goals for the universal waste
program (which the petition factors are designed to address) and to
clarify the standard that will be used to make decisions on petitions,
the final rule has been revised to read: ``the decision will be based
on the weight of evidence showing that regulation under part 273 is
appropriate for the waste or category of waste, will improve management
practices for the waste or category of waste, and will improve
implementation of the hazardous waste program.'' This language merely
reflects more closely the goals discussed in the proposal for the
universal waste system than did the language in the proposed rule.
Fourth, many commenters expressed concern that petitions seeking a
regulatory amendment to add new hazardous wastes to part 273 must
contain quantitative information on each of the factors outlined in the
proposed rule under Sec. 273.2 (found in Sec. 273.81 in the final
rule). Commenters believed that the proposed rule was not clear on
whether or not information must be submitted to address every one of
the factors or only some of the factors. The Agency agrees that the
proposal was confusing on this point. As suggested by several
commenters, the Agency also agrees that it may not be possible or
appropriate to address each of the factors for any particular waste or
waste category. Thus, the petition process regulations (found in both
Secs. 273.80 and 260.23 of the final rule) have been revised to clarify
that: (1) A petition should address as many of the factors as are
appropriate for the waste or waste category addressed in the petition;
and (2) the decision to grant or deny a petition will be based on the
weight of evidence showing that regulation under part 273 is
appropriate for the waste or category of waste, will improve management
practices for the waste or category of waste, and will improve
implementation of the hazardous waste program.
Thus, the Agency clarifies in the final rule that an individual
waste would not be disqualified from inclusion under part 273 merely
because every factor was not addressed. Rather, the Agency will
consider the overall weight of the evidence demonstrating that the
goals of the universal waste system would be met by adding the
particular waste or waste category to the universal waste system. Thus,
a waste that several of the factors demonstrate very strongly would
accomplish the Agency's goals may be more likely to be added to the
universal waste system than a waste that all of the factors weakly
support.
In addition to concern about the number of factors that must be
addressed, commenters also expressed concern that the proposal was
vague with regard to the quality and quantity of data that must be
submitted regarding each of the factors. In response, the Agency
reiterates that decisions will be made based on the weight of the
evidence demonstrating, using the listed factors, that the Agency's
goals for the universal waste system will be met. Thus, the quantity of
data submitted is not as critical as how strongly the data supports
these goals. Of course, the more complete the data are, the more likely
it is that they will demonstrate that the Agency's goals would be met.
The Agency also notes that although quantitative data are desirable,
due to the nature of the wastes likely to be appropriate for the
universal waste system the Agency recognizes that direct quantitative
data about these wastes and their management may not be available.
Thus, quantitative data are not necessarily required for a successful
petition. Any information that can be extrapolated from available
related quantitative data is recommended, as would be any estimates
that can be developed based on available qualitative information. In
addition, as discussed in the proposal, the Agency will take into
consideration the quality and completeness of the data submitted by the
petitioner as a way to set priorities among the many various waste
streams that may be suggested for this program. If a petitioner's
request is complete and supporting data are adequate, EPA is likely to
evaluate the request and determine whether to propose a regulatory
amendment sooner than if a request has only minimal information.
Fifth, commenters expressed confusion concerning the process for
submitting a petition. In Sec. 273.80 of today's final rule, the Agency
more fully details the process for submitting a petition. The substance
of the requirements have not changed. Section 273.80(b) reiterates that
the petitioner must follow the requirements in Sec. 260.20(b) (Subpart
C--Rulemaking Petitions), which sets forth general requirements which
apply to all such rulemaking petitions. As proposed, the regulatory
language in Sec. 260.20(a) also has been amended to add reference to
the part 273 requirements. As discussed above, Sec. 273.80(b) also
specifies that the petition should address as many of the factors
listed in Sec. 273.81 as are appropriate for the waste or waste
category addressed in the petition. It should also be noted that the
procedures [[Page 25512]] for submitting petitions and for the Agency's
review of and response to petitions for regulatory amendments are
described in detail in Sec. 260.20.
In response to some confusion expressed by commenters,
Sec. 273.80(c) clarifies that the Administrator will evaluate petitions
using the factors listed in 40 CFR 273.81 and that the Administrator
will grant or deny a petition using these same factors. This
clarification reiterates the procedures proposed in Sec. 260.34 of the
proposal and included in Sec. 260.23 of the final rule. As discussed
above, Sec. 273.80(c) also explains that the Administrator's decision
will be based on the weight of evidence showing that regulation under
part 273 is appropriate for the waste or category of waste, will
improve management practices for the waste or category of waste, and
will improve implementation of the hazardous waste program.
Sixth, petitioners expressed concern about the length of time it
may take for the Agency to evaluate petitions. Many commenters
suggested that a time limit be set for such evaluations and that, in
addition, petitions be released for public comment. While the Agency
agrees that it is important for petitions to be considered in a timely
manner, the Agency has decided to continue to follow the general
procedures for responding to petitions for regulatory amendments set
forth in Sec. 260.20 of the hazardous waste regulations. As with all
petitions submitted under Sec. 260.20, a specific time limit is not
defined for the review process. Although the Agency expects to review
and respond to petitions within a reasonable timeframe, due to
competing priorities and other statutory and court ordered mandates the
Agency is not able to commit to a definitive review schedule.
Committing to such a schedule would also not be possible because the
Agency has no previous experience with this program and is not able to
predict the number and depth of petitions that may be submitted, and
thus the workload that will be required to respond to them.
With respect to public comment on the Agency's response to
petitions and on proposals to add new wastes to the universal wastes
system, Sec. 260.20 specifies that the Agency will make a tentative
decision to grant or deny a petition and publish that determination in
the Federal Register for written public comment. Any persons who have
additional information relevant to a particular petition would be able
to submit the information for the Agency's review. The Agency may also
hold an informal public hearing to consider oral comments on the
tentative decision.
For any waste or waste category that the Agency tentatively decides
to add to the universal waste system, the Agency will propose
regulatory requirements that would apply to management of the waste
under the universal waste system. Comments would be solicited on the
tentative decision to add the waste or waste category, and on the
appropriateness and practicality of the requirements. After reviewing
and responding to any comments submitted, the Agency would publish a
final rule amending the universal waste regulations to include the new
waste unless the tentative decision was reversed (in which case a
denial would be published). For any waste or waste category the Agency
tentatively decides not to add to the universal waste system, the
Agency would publish a tentative decision to deny the petition and
request comment. A public hearing may be held. After reviewing and
responding to comments, the Agency would publish a final denial, unless
the tentative decision was reversed (in which case a subsequent
proposal to add the new waste would be required).
Finally, as is discussed in detail in Section V of this preamble,
entitled ``State Authority,'' it should be noted that States may apply
for and be granted authorization to implement any part of today's
amendments to the hazardous waste regulations. This includes the
petition process for inclusion of additional wastes in the universal
waste program. Thus, in States authorized for the universal waste
regulations and the petition process, petitions may be submitted to the
State agency to regulate management of a waste or waste category under
the universal waste regulations within that State. The State agency
would then grant or deny petitions, using the criteria established for
evaluating wastestreams for inclusion in the program. If a petition is
granted, the waste would be managed under the streamlined universal
waste requirements within that state. However, the full hazardous waste
regulations would apply once the waste is transported out of the state
in which it is considered universal waste into other states that have
not included the waste in their universal waste programs (or states
that are not authorized for or do not have universal waste programs).
Thus, manifests and hazardous waste transporters would be required for
the shipment out of the state, and all subsequent management must be at
RCRA treatment, storage, and disposal facilities.
IV.C.2. Factors for Evaluating New Wastes
The proposed universal waste rule included two sets of factors to
be used to evaluate whether candidate wastes are appropriate to be
added to the part 273 universal waste regulatory system. The first set
of factors was designed to determine whether the waste presents a
problem to human health and the environment due to its presence in the
municipal waste stream or due to other, widespread management
practices. The second set of factors was designed to determine whether
the universal waste system would satisfactorily address the problem
presented by the hazardous waste.
In response to a number of issues raised by commenters concerning
the proposed factors, the Agency has substantially revised the factors
for the final rule. Major issues raised by commenters and the changes
made to the factors are discussed below.
First, in the final rule, the two sets of proposed factors have
been consolidated into one set of factors. This change was made in
response to several comments pointing out that having two separate sets
of factors was potentially confusing, particularly because the content
of the two sets seemed to overlap. The Agency agrees with these
commenters, and believes that having only one set of factors will
eliminate possible confusion, making it easier for the regulated
community and regulating agencies to implement the evaluation factors.
In addition, as discussed further below, the Agency has revised the
factors to focus more on a positive showing that regulation under the
universal waste system would improve waste management practices rather
than a negative showing that a waste is being managed improperly.
Combining the two sets of factors assists with this change of focus.
Second, the Agency has added text to the general introduction to
the final petition factors (40 CFR 273.80) and revised 40 CFR 260.34(b)
to clarify that not all of the factors must be either addressed or
demonstrated in a petition in order for an individual waste to be added
to part 273. The text clarifies that the Agency will consider the
overall weight of evidence presented in determining whether regulation
under the universal waste system is appropriate for the waste, and
whether the part 273 regulations will further the Agency's goals of
improving management practices for the waste and improving
implementation of the hazardous waste program. [[Page 25513]]
This change was made in response to several commenters who
indicated that there was some confusion regarding whether all factors
must be addressed for inclusion under part 273. In addition, the text
of proposed 40 CFR 260.34, which indicated that all factors must be
addressed, contradicted the preamble which suggested that not all
factors must be addressed. The Agency chose this approach because it
does not believe that each and every factor must be met in order for a
waste to be appropriate for the universal waste system, and for
regulation of the waste under part 273 to improve waste management and
implementation. Thus, the Agency will make decisions based on the
weight of evidence showing that regulation of a particular waste under
part 273 will further the Agency's goals for the program. It seems
likely, however, that the more factors a petition addresses the more
likely it is that there will be a substantial amount of supporting
evidence.
The Agency notes, however, that resources for making changes to the
hazardous waste regulations are limited, and that these resources must
be focused on areas where the most improvement can be made. In fact,
the Agency does not expect to have the resources to add great numbers
of wastes to the universal waste system. Therefore, the Agency will
prioritize addition of new wastes to the universal waste system based
on the strength of the case made that addition of a particular waste
will further the goals discussed above. For example, as suggested by
one commenter, the Agency would give priority to a waste that is
generated in higher volumes nationally, that a greater percentage of
the waste is hazardous, or that are generated by a larger number of
generators. Priority would be given because addition of such a waste to
the universal waste system is likely to improve overall waste
management and implementation more than addition of a waste that does
not meet these factors. In addition to adding to the strength of such a
case, the completeness and quality of supporting data submitted by a
petitioner may also affect the Agency's prioritization in that the
Agency may not itself be able to expend a great deal of resources
gathering additional data.
Third, the Agency notes that the final rule has been revised to
allow petitions to add, and the addition of, categories of waste to the
universal waste system as well as individual waste types (see 40 CFR
273.80, 273.81, 260.20, and 260.23). This change was made at the
suggestion of one commenter who pointed out that there may be broad
categories of waste that could fit well into the universal waste system
but that are identified by characteristics other than a single waste
classification. For example, wastes that remain in their original
product packaging (e.g., unused products) are easily identifiable, and
presumably the packaging provides protection since it was designed to
protect the product during storage and transportation. The Agency
agrees with the commenter that some categories of waste may be
appropriate for addition to the universal waste system and thus has
made this change. It should be noted that a petition to add any
category of waste would have to make the same demonstration for the
category that a petition would have to make for an individual waste
type.
The following sections discuss each of the factors included in the
final rule and any changes made from the proposal. The final section
discusses proposed factors that are not included in the final rule.
IV.C.2.a. Final Factor 40 CFR 273.81(a)
The Agency has revised proposed Sec. 273.2(a)(1), which addressed
the idea that a waste should either be a listed hazardous waste, or
that a proportion of the waste should exhibit one or more
characteristics of hazardous waste in order to be considered for
addition to the universal waste system. In the final rule, this factor,
which is now Sec. 273.81(a), has been revised by adding a parenthetical
statement discussing wastes that are hazardous due only to exhibiting
characteristics. Numerous commenters expressed concern that the Agency
would be adding wastes to the universal waste system that are not
already hazardous. The Agency is clarifying, and would like to
emphasize, that only wastes that are hazardous (i.e., are listed or
exhibit one or more characteristics of hazardous waste) are subject to
the universal waste regulations. This is because the universal waste
regulations are part of the RCRA hazardous waste regulations, under
which only wastes that are hazardous are regulated. This has been
further clarified by adding a definition of the term ``universal
waste'' (see 40 CFR 273.6 and 260.10), specifically identifying only
hazardous wastes as universal wastes (e.g., hazardous waste batteries).
The Agency understands that this may be confusing in cases where a
waste added to the universal waste system is identified using a generic
name (e.g., battery, thermostat), but only a portion of the waste
stream actually exhibits a characteristic and is thus hazardous. For
example, some battery types exhibit one or more characteristics and are
hazardous, while others may not. The Agency has used the generic term
hazardous waste battery in the universal waste regulation for several
reasons. One reason is that, when appropriate, the Agency wishes to
encourage persons to manage both regulated waste and unregulated waste
in the same collection systems, to eliminate duplication of collection
systems, and to eliminate excess effort identifying, documenting, and
keeping separate regulated waste and unregulated waste. As long as all
commingled waste is managed in a system that meets the requirements of
the universal waste regulations, such efforts are not necessary.
Another reason for using a generic term is to make the system
flexible, so that the regulation does not have to be revised every time
a waste (such as a particular battery type) either becomes hazardous or
is no longer hazardous due to changes in manufacturing practices or
technology. A final reason is that the Agency will likely not be able
to make across the board hazardous waste determinations for entire
categories of waste and must leave that responsibility to individual
waste generators. For example, as the chemistry in a type of battery
changes over time and varies from manufacturer to manufacturer, some
older batteries may exhibit characteristics while some newer batteries
do not. Given such a situation, it would not be possible for the Agency
to identify individually which batteries are hazardous and which are
not. Thus, the Agency stresses that although generic terms may be used
in some cases, the term will be modified with the phrase ``hazardous
waste'' and only those wastes that are hazardous (are listed or exhibit
characteristics) are subject to hazardous waste regulation, including
the universal waste rule.
IV.C.2.b. Final Factor 40 CFR 273.81(b)
To retain and expand on the concept included in proposed
Sec. 273.2(a)(2) and discussed in the proposal preamble that universal
wastes are typically generated by a wide variety of types of
generators, the Agency has added another factor to the final rule.
Final Sec. 273.81(b) indicates that wastes that are good candidates for
the universal waste system would not be exclusive to a specific
industry or group of industries, and would commonly be generated by a
wide variety of types of establishments (including, for example,
households, retail and commercial businesses, service businesses,
office complexes, conditionally exempt small quantity generators, small
businesses, government organizations, as well as [[Page 25514]] large
industrial facilities). This factor is also similar to one proposed by
a commenter who suggested that positive demonstrations, such as this
one, should be utilized in place of negative showings that wastes are a
``problem'' or pose risks because such negative factors will inhibit
persons from petitioning to add their wastes or products. This factor
will assist petitioners and the Agency in determining whether a waste
is appropriate to be added to the universal waste system.
This new factor also addresses an issue raised by several
commenters; whether industrial wastes could be added to the universal
waste system. As was discussed in the preamble to the proposal, the
Agency does not believe that wastes that are generated primarily in an
industrial setting are appropriate for the universal waste system. In
this context, the term industrial setting, however, is used to describe
locations where large production-type operations are conducted and
where large quantities of waste are generated. The Agency believes that
wastes that are primarily generated in such settings can be managed
under the current hazardous waste regulations because such facilities
are usually set up to comply with the applicable requirements. The new
factor makes it clear that wastes appropriate for addition to the
universal waste system should be generated by a wide variety of types
of establishments, which could include, but should not be exclusively,
large industrial operations. One of the problems the universal waste
rule is designed to address is that a relatively large portion of some
waste types are exempt from the hazardous waste regulations (i.e., are
generated by households and CESQGs) and are indistinguishable from the
regulated portion of the waste. This ``look alike'' problem makes
implementation of the program for these wastes extremely difficult. For
example, batteries are probably the classic example of a waste type
that is generated by all types of establishments, including large
industrial operations. The Agency points out that some wastes
commenters described as ``industrial'' might be appropriate for the
universal waste system as indicated by the new factor. For example, a
large percentage of antifreeze is generated by do-it-yourselfer
households, while other portions are generated by CESQGs, small
businesses, service businesses, government organizations, as well as
large industrial facilities. The Agency envisions that most wastes that
meet the new factor would be post-user wastes rather than residues from
production or other industrial operations.
IV.C.2.c. Final Factor 40 CFR 273.81(c)
The Agency has essentially retained the proposed factor,
Sec. 273.2(a)(3), which addressed the number of generators of a
candidate waste, as final factor 273.81(c). This factor will assist in
identifying wastes that are appropriate for addition to the universal
waste system. The text of the factor has been revised to indicate that
universal wastes should be generated by a large number of generators,
but that the number 1,000 is an example rather than a hard and fast
number. In fact, the Agency believes that in general universal wastes
should be generated by many more than 1,000 generators. The goal of the
universal waste program is to capture wastes that due to their
widespread nature are difficult to manage under the current hazardous
waste regulations. The Agency believes that a waste must be generated
by a large number of generators in order for regulation under the
universal waste system to contribute largely to improving management
practices and to improving implementation of the hazardous waste
program. Because of this, the Agency does not anticipate adding wastes
to the universal waste system that are generated by a small number of
generators (e.g., less than 1,000) in large volumes, as was suggested
by one commenter.
In fact, to further assist in identifying wastes that are
appropriate for the universal waste system, the Agency has added a
qualifier to the final factor clarifying that wastes that are
appropriate to be added to the universal waste system are frequently
generated in relatively small quantities by each generator. This
concept comes from proposed Sec. 273.2(a)(4)(iv), which was generally
interpreted by commenters to mean that only wastes generated by small
quantity hazardous waste generators would be considered for addition to
the universal waste system. The revised Sec. 273.81(c) should clarify
that the Agency would consider wastes that are generated in relatively
small quantities by each generator, regardless of the total quantity of
all hazardous wastes generated by the generator. For example, even a
very large industrial generator of large volumes of hazardous waste may
generate relatively small quantities of batteries. It should be
clarified that this factor is intended only as a gross indicator of
quantities generated. Specifically, the term ``relatively'' is used to
contrast small quantities of universal wastes with the quantities in
which large volume industrial hazardous wastes can sometimes be
generated, e.g., tens of thousands of pounds or gallons per month.
The Agency also confirms, as was suggested by one commenter, that
the factor concerning number of generators could be applied
prospectively in cases where newly developed products are likely to be
appropriate for the universal waste system. Thus, if a newly developed
product (or redesigned product) can be shown to be likely to be
produced and disposed of in such a way as to be appropriate for the
universal waste system, a petition could be submitted even before there
are actually a large number of generators of the waste.
IV.C.2.d. Final Factor 40 CFR 273.81(d)
The final rule retains as Sec. 273.81(d) the factor proposed as
Sec. 273.2(b)(2) which indicates that collection systems that ensure
close stewardship would make a waste a more likely candidate for
addition to the universal waste system. All of the comments addressing
this factor were positive. The Agency emphasizes, however, that this
factor is not intended to be biased toward collection systems run by
product manufacturers. Although manufacturers may have easy access to
information about products that may assist them in developing
collection programs, the goal of this factor is to facilitate addition
of wastes to the universal waste system that are most likely to be
collected, and to be collected in a manner that ensures good management
of the waste. Thus, any collection system that would ensure good
stewardship would be a favorable factor, regardless of what
organizations run the program. The Agency also notes that the economics
of collecting and recycling or disposing of a waste can provide some
insight into the stewardship that may be provided a waste. For example,
if a waste can be recycled at profit, it may be more likely that
collectors will maintain close stewardship of the waste.
IV.C.2.e. Final Factor 40 CFR 273.81(e)
Proposed factor 273.2(b)(1), which addressed the risk posed by the
waste during accumulation and transport, has been retained largely as
it was proposed. The final factor, Sec. 273.81(e), has been revised to
clarify that good candidate wastes for the universal waste system would
pose relatively low risks compared to other hazardous wastes during
accumulation and transport. This revision should clarify that, although
it is possible that a candidate universal waste may pose more risk than
other non-hazardous wastes during [[Page 25515]] accumulation and
transport (since they are identified as hazardous), wastes appropriate
for the universal waste system should pose relatively less risk than
other hazardous wastes since the universal waste accumulation and
transport requirements are relatively less stringent than the existing
hazardous waste regulations. Examples of reasons a waste might pose
relatively low risk during accumulation and transport include the
construction or physical form of the product or waste, packaging of the
waste, chemical characteristics of the waste, ease of containment, and
standard handling procedures for the waste.
The final factor (Sec. 273.81(e)) also addresses, as did the
proposed version, the concept that waste management requirements
appropriate for the universal waste regulations can be used to mitigate
risks posed by accumulation and transport of the waste. This part of
the factor has been clarified to indicate that petitioners should
suggest or reference waste management requirements specific for the
candidate waste that could be added to the universal waste regulations
(or that are independently applicable, e.g., DOT requirements) that
would protect human health and the environment from risks posed by the
waste during accumulation and transport. Such waste management
requirements may include volume reduction incident to collection
activities. The activities should be designed to ensure that these
management practices do not dilute the hazardous constituents or
release them to the environment. For example, if mercury-containing
lamps were considered for addition to the universal waste system,
crushing might be allowed as appropriate management if the crushing
process was performed in a controlled unit which did not allow any
releases of mercury or other hazardous constituents to the environment.
IV.C.2.f. Final Factor 40 CFR 273.81(f)
The Agency has revised and combined proposed Sec. 273.2(b)(3) and
part of proposed Sec. 273.2(a)(2), which addressed, respectively,
whether addition to the universal waste system would facilitate removal
of the waste from the municipal waste stream and the presence of the
waste in the municipal waste stream. The revised factor,
Sec. 273.80(f), addresses whether ``regulation of the waste under part
273 will increase the likelihood that the waste will be diverted from
non-hazardous waste management systems (e.g., the municipal waste
stream, non-hazardous commercial or industrial waste stream, municipal
sewer or stormwater systems) to recycling, treatment, or disposal in
compliance with Subtitle C of RCRA.''
The Agency combined the two proposed factors to reduce the
duplication that several commenters pointed out existed in the two sets
of factors. The revised factor encompasses the concepts included in
both the proposed factors, in that it would be necessary to show that
some portion of a waste is being managed in non-hazardous waste
management systems in order to argue that regulation under part 273
would increase the likelihood of diversion from these systems.
The revised final factor also addresses diversion of waste from
non-hazardous waste management systems generally, rather than
specifically from the municipal waste stream. This revision was made in
response to a number of commenters who pointed out that the goal of the
universal waste system should be to improve management of wastes that
are managed in any type of non-hazardous waste system, such as, for
example, disposal through municipal sewer systems. These commenters
suggested that the term implied that the only waste management system
the agency was interested in removing hazardous wastes from was the
municipal solid waste stream. The Agency agrees that the term
``municipal waste stream'' was too specific and could have been
interpreted to prevent addition of wastes to the universal waste system
that may be primarily managed in non-hazardous waste systems other than
the municipal solid waste system. This was not the Agency's intent.
Thus, the revised factor uses the term ``non-hazardous waste management
systems'' and provides some examples to clarify this point.
In addition, the revised factor focuses more on a positive showing
that regulation under the universal waste system will improve waste
management, rather than a negative showing that the waste is being
managed improperly. Several commenters argued that requiring such a
negative showing would discourage potential petitioners from seeking
the benefits of the universal waste system. For example, commenters
argued that manufacturers and generators would not want to develop and
submit data that demonstrate that their used products or wastes are
``problem'' wastes that are managed illegally and pose significant
risks to human health or the environment. Requiring submission of such
data would force petitioners to stigmatize their wastes, and could
potentially subject them to significant liabilities in the future.
It should also be noted that diversion of unregulated portions of a
waste, such as household waste and CESQG waste, from non-hazardous
waste management systems could be a reason to add a waste to the
universal waste system. For example, in some cases it may be likely
that facilitating the collection of commingled regulated and
unregulated waste would encourage development of collection systems
that could divert significant quantities of the waste, including
unregulated waste, from non-hazardous waste management systems. Such a
showing would not require petitioners to focus on management of
regulated waste in non-hazardous waste management systems.
IV.C.2.g. Final Factor 40 CFR 273.81(g)
Proposed factor 273.2(b)(5) addressing improved implementation of
the hazardous waste program has been essentially retained in the final
rule as Sec. 273.81(g). Commenters supported the factor as proposed.
The final factor has been revised only to clarify that improving
compliance with the hazardous waste program is an important facet of
improving implementation of the program. Thus, the final factor
specifies that if regulation of a waste under the universal waste
system is likely to improve both implementation and compliance, a waste
would be a stronger candidate for addition to the system.
IV.C.2.h. Final Factor 40 CFR 273.81(h)
Finally, one commenter requested additional guidance on what other
factors might be addressed under the proposed factors that discussed
``other appropriate information'' and ``such other factors as may be
appropriate'' (proposed Secs. 273.2(a)(6) and 273.2(b)(6)). These
factors have been combined in the final rule as Sec. 273.81(h), which
addresses ``such other factors as may be appropriate.'' In response,
there is no list of specific subjects that the Agency expects might be
addressed under this factor. The Agency retained this factor because it
believes that it is likely that for any particular waste or waste
category there may be unique factors which would demonstrate that
regulation under the universal waste system is: Appropriate for the
waste or category of waste; will improve management practices for the
waste or category of waste; and will improve implementation of the
hazardous waste program. These unique factors might result from
physical or chemical characteristics of the waste, characteristics of
waste generators (e.g., [[Page 25516]] organization or distribution of
generators), characteristics of collection programs, or other aspects
of the waste or its management. The Agency does not mean to imply that
petitioners must address other factors, but believes that it is
important to be able to take unique factors into account if such
factors exist.
IV.C.2.i. Proposed Factors Not Included in the Final Rule
First, the proposed factor 273.2(a)(4), which addressed typical
generation sites, is not included in the final rule. Commenters
overwhelmingly argued that the proposed factor would unintentionally
limit universal wastes because there are few wastes generated at such
locations, and would limit universal wastes to wastes generated by
small businesses, many of which would be CESQGs anyway. The Agency had
intended that this factor would assist in identifying wastes that are
generated in situations that make them more difficult to manage and
thus the universal waste system could improve management. However, the
Agency agrees that the proposed factor was overly restrictive, and that
many wastes appropriate for the universal waste system may not be
generated primarily at the types of locations described. The Agency
recognizes that although universal wastes may frequently be generated
by large organizations, due to the small quantity and type of waste
generated at any one location, regulation under the universal waste
system may be appropriate if the goals of the system would be advanced.
Thus, the Agency decided to delete this factor. However, as discussed
above, one concept from the proposed factor has been clarified and
added to another final factor. Specifically, the idea that universal
wastes are frequently generated in relatively small quantities by any
one generator has been added to final Sec. 273.81(c).
Second, the proposed factor 273.2(a)(5), which addressed the risk
posed by management of the waste in the municipal waste stream (e.g.,
municipal waste combustors or landfills), is also not included in the
final rule. The Agency agrees with numerous commenters who pointed out
that any waste that has been identified as hazardous waste (i.e., is
either listed or exhibits one or more characteristics), by definition
could pose a risk to human health or the environment under non-
hazardous waste management scenarios. The purpose of identifying wastes
as hazardous waste is to identify those that pose such risks. Since
only hazardous wastes are eligible for the universal waste system, the
Agency decided it is not necessary to require any additional
demonstration of risk for typical management scenarios. The Agency also
agrees with commenters who argued that requiring such a demonstration
of risk would inhibit petitioners because they would be unwilling to
stigmatize their products or wastes or increase future liabilities by
highlighting the risks posed by the products or wastes in non-hazardous
management systems.
Third, the proposed factor 273.2(b)(4), which addressed the
availability of recycling technologies, is also not included in the
final rule. Commenters were divided on this issue, but the Agency
agrees with several points made by commenters opposing the use of this
factor. Several commenters argued that recycling technology is quickly
developing and that the availability of volumes of input material is a
major factor in driving this development. Thus, using the prior
existence of recycling technology as a factor for adding wastes to the
universal waste system may inhibit collection of volumes of potentially
recyclable wastes and thus may actually inhibit development of
technologies for recycling. The Agency thus believes it is appropriate
to evaluate wastes for addition to the universal waste system based on
other factors, such as whether waste management practices for a waste
will be improved, regardless of whether the waste is recycled or
treated and disposed of under existing Subtitle C requirements.
Other commenters argued that the environmental benefits of removing
hazardous wastes from non-hazardous waste management systems should not
be lost only because a recycling technology has not yet been developed
for a particular waste type. Although the Agency encourages
environmentally protective recycling of hazardous wastes, this argument
is convincing. The Agency would prefer to get hazardous wastes out of
non-hazardous waste management systems as soon as possible, rather than
waiting for a recycling technology to develop, which in some cases may
be technologically or economically unlikely.
IV.D. Participants in the Universal Waste System
The following three sections describe the four regulatory
categories of participants in the final universal waste management
system: Small quantity handlers of universal waste, large quantity
handlers of universal waste, transporters, and destination facilities.
The differences between these categories and the proposed categories of
generators, consolidation points, transporters, and destination
facilities are also described.
IV.D.1. Small and Large Quantity Handlers of Universal Waste
In the proposed rule, regulated persons managing universal waste
were categorized into four categories: Generators, consolidation
points, transporters, and destination facilities. In the final rule
there are also four types of regulated persons. The transporter and
destination facility categories are retained essentially as they were
proposed. The persons who would have been included in the proposed
generator and consolidation point categories will now fit into either
the category of small quantity handlers of universal waste (SQHUWs) or
the category of large quantity handlers of universal waste (LQHUWs).
Under 40 CFR 273.6 of the final rule, a Universal Waste Handler is
defined to mean a generator of universal waste or the owner or operator
of a facility, including all contiguous property, that receives
universal waste from other universal waste handlers, accumulates
universal waste, and sends universal waste to another universal waste
handler, to a destination facility, or a foreign destination. The
Agency further clarifies the definition of Universal Waste Handler by
stating that a Universal Waste Handler does not mean: (1) A person who
treats (except under the provisions of Sec. 273.13 (a) or (c), or
273.33 (a) or (c)), disposes of, or recycles universal waste; or (2) a
person engaged in the off-site transportation of universal waste by
air, rail, highway, or water, including a universal waste transfer
facility (see preamble discussion under sections IV.E.8 of today's
rule).
In the final rule, the term Universal Waste Handler is subdivided
into two categories: Small Quantity Handler of Universal Waste (SQHUW)
and Large Quantity Handler of Universal Waste (LQHUW). Part 273.6
defines a Small Quantity Handler of Universal Waste to mean a universal
waste handler, as defined above, who does not accumulate 5,000
kilograms or more total of universal waste (batteries, pesticides, or
thermostats, calculated collectively) at any time. A Large Quantity
Handler of Universal Waste is defined in Sec. 273.6 to mean a universal
waste handler (as defined above) who accumulates 5,000 kilograms or
more total of waste (batteries, pesticides, or thermostats, calculated
collectively) at any time. The 5,000 kg accumulation cut-off level does
not refer to any one category of universal waste, calculated separately
but refers to the total quantity [[Page 25517]] of universal waste
accumulated on-site. Thus, a universal waste handler who accumulates
one or more categories of universal waste (batteries, pesticides, or
thermostats) must determine their status as a small or large quantity
handler of universal waste by calculating the total quantity of all
universal waste categories accumulated on-site.
The Agency decided to make this change for several reasons. First,
numerous commenters suggested that there should be a third category of
universal waste handler: front-line collectors of universal waste who
collect small quantities of universal waste, largely from consumers and
small businesses. These commenters pointed out that such collectors
would frequently be retail-type operations (e.g., a department or
specialty store that has a spent battery collection box) participating
in national or regional collection programs. Such front-line collectors
would likely accumulate only small quantities of universal waste
because they are not principally in the business of managing waste and
because they would ship wastes frequently using package shipping
services or similar systems set up by the collection programs.
These commenters argued that front-line collectors should be
subject to less stringent requirements than the proposed consolidation
point requirements for several reasons. One reason was that the
universal waste they would have on-site would pose limited risk due to
the small quantities involved. Another reason was that some of the
requirements would inhibit the participation of many retail-type
operations (such as the large retail chains) which would greatly limit
the success of universal waste collection programs in removing these
wastes from the solid waste stream.
The Agency agrees with the concept that the activities of persons
such as front-line collectors managing small quantities of universal
waste pose less risk and require less stringent standards than those
managing larger quantities of universal waste. Therefore, instead of
adding an additional category of front-line collectors with less
stringent standards, the Agency decided to extend this concept to all
persons both generating and collecting universal waste. Thus, under the
final rule, persons accumulating large quantities of universal waste
(5,000 kilograms or more accumulated on-site) are subject to more
stringent requirements than persons accumulating small quantities.
The second reason the Agency decided to restructure the categories
of persons managing universal wastes was in response to comments
received on the issue of recordkeeping for universal waste shipments.
The Agency had proposed that a manifest be required for shipments from
final consolidation points to destination facilities, based on the
concept that such shipments would be larger shipments and thus require
closer tracking. In addition to other issues, a number of commenters
pointed out that it is not necessarily true that shipments from
consolidation points to destination facilities will be larger
shipments. For example, shipments between consolidation points or
between generators and destination facilities may also be large
shipments.
The Agency agrees that it does not necessarily make sense from a
risk perspective to require recordkeeping for certain shipments based
solely on the type of universal waste management activity conducted by
the shipper and receiver (i.e., whether the shipper generates or
collects universal waste or whether the receiver collects or disposes
of universal waste). The Agency believes that the appropriate variable
for applying more stringent requirements is the quantity of waste
managed, not whether waste is generated or received from off-site.
Therefore, under the final rule the level of requirements applied to
any handler (i.e., small or large quantity handler requirements) is
based purely on how much universal waste is managed at the location.
Requirements for SQHUWs and LQHUWs, including notification requirements
are found in subparts B and C, respectively, of today's final rule.
These requirements are discussed in detail in this preamble under
section IV.E., Universal Waste Handler Requirements.
IV.D.2. Transporters
In the final rule, transporter is defined as ``a person engaged in
the off-site transportation of universal waste by air, rail, highway,
or water.'' This definition remains substantially unchanged from the
proposed definition, except that the term ``universal waste'' has
replaced the term ``hazardous waste.'' Persons meeting the definition
of transporter are subject to the universal waste transporter
requirements of subpart D of part 273. Using the term ``universal
waste'' merely clarifies that the part 273 transporter requirements
apply only to shipments of universal waste.
The universe of persons covered by the transporter definition is
the same as that covered by the proposed definition, and includes those
persons who transport wastes from one universal waste handler to
another, to a destination facility, or to a foreign destination. In
response to several commenters' questions about self-transportation of
universal waste by generators, the final rule also clarifies in 40 CFR
273.18(b) and 273.38(b) that any handler who self-transports universal
waste from his facility to another handler, a destination facility, or
a foreign destination, becomes a universal waste transporter for those
self-transportation activities and is subject to the requirements of
subpart D of this rule. The purpose of this language is simply to
clarify, for any handlers who might be unsure, that a handler
transporting his or her own universal waste off-site is regulated the
same as anyone else would be transporting that universal waste off-
site.
IV.D.3. Destination Facilities
In the proposed part 273 regulations, a destination facility was
defined as ``a hazardous waste treatment, storage, recycling, or
disposal facility which: (1) Has received a permit (or interim status)
in accordance with the requirements of parts 270 and 124 of this
chapter, (2) has received a permit (or interim status) from a state
authorized in accordance with part 271 of this chapter, or (3) is a
recycler regulated under 40 CFR 261.6 (c)(2). If a waste is destined
for a facility in an authorized state which has not yet obtained
authorization to regulate that particular waste as hazardous, then the
designated facility must be a facility allowed by the receiving state
to accept such waste.''
Many commenters argued that this definition should be revised to
include only facilities that are actually recycling or disposing of
universal wastes. For example, they argue that a facility that only
receives shipments of used hazardous waste batteries, consolidates
them, and then ships them to a recycling facility should not be defined
to be a ``destination facility'' just because it is already a RCRA
permitted or interim status facility due to other activities conducted
at the facility. Commenters pointed out that non-permitted facilities
conducting the exact same universal waste management activities would,
under the proposed rule, be defined as consolidation points and would
be subject to the less stringent consolidation point requirements.
Commenters argued that it does not make sense to regulate facilities
differently that are conducting the same universal waste management
activities.
Commenters further noted that defining a destination facility in
terms of whether or not it has a RCRA permit would require any facility
operating under a RCRA Part B permit to manage this waste under the
full Subtitle C [[Page 25518]] regulations instead of the less
stringent requirements contained in the proposed part 273 regulations,
whether or not they are actually treating or recycling the universal
waste. Commenters also pointed out that this definition would provide
an incentive for managing universal waste at unpermitted facilities
with less experience in hazardous waste management and would inhibit
management at permitted facilities that have hazardous waste management
experience as well as oversight from regulating agencies. Commenters
stated that although the proposed rule provided flexibility for most
managers of universal waste, the proposed definition of destination
facility would restrict the ability of permitted facilities to manage
universal wastes.
The Agency agrees with these commenters and did not intend for the
destination facility requirements under part 273 to apply to permitted
hazardous waste facilities serving solely as consolidation areas for a
particular category of universal waste. The Agency agrees that the more
stringent destination facility requirements should apply only to those
facilities that actually treat, recycle and/or dispose of a particular
category of universal waste. Permitted facilities that only consolidate
a particular category of universal waste, but do not treat, recycle,
and/or dispose of this particular category of waste, should be subject
to the small or large quantity handler of universal waste requirements
under part 273, as appropriate. Thus these facilities would be subject
to the same requirements as any other facility that conducts the same
universal waste management activities.
Thus, in today's Final Rule, the definition of destination facility
has been revised to clarify this point. In Sec. 273.6 of the final
rule, destination facility is defined as ``* * *a facility that treats,
disposes of, or recycles a particular category of universal waste
except those management activities described in paragraphs (a) and (c)
of Secs. 273.13 and 273.33. A facility at which a particular category
of universal waste is only accumulated, is not a destination facility
for purposes of managing that category of universal waste.'' By
defining a destination facility based on the universal waste management
activity conducted at the facility rather than by whether the facility
has a RCRA permit for other waste management activities, the final rule
indicates that only facilities that actually treat, dispose of, or
recycle a particular category of universal waste must comply with the
destination facility requirements at Sec. 273.60. The universal waste
handler definition (Sec. 273.6) has also been structured to conform to
this change and includes all facilities that accumulate a particular
category of universal waste but do not treat, dispose of, or recycle
them. Thus, such facilities must comply with only the appropriate
universal waste handler requirements for managing that particular
category of universal waste regardless of whether they have a permit
for management of other hazardous wastes or other categories of
universal waste which they do treat, recycle, and/or dispose.
Therefore, a facility which only accumulates a particular category of
universal waste is a universal waste handler for that particular
category of universal waste. However, if this facility also treats,
recycles, and/or disposes of another category of universal waste, that
facility is a destination facility for that particular category of
universal waste and must comply with the destination facility
requirements for that category of waste.
IV.E. Universal Waste Handler Requirements
As described in Section III, Summary of Final Universal
Regulations, subparts B and C of part 273 set forth the final
requirements for small and large quantity handlers of universal waste.
Each of these subparts consists of ten sections. All but three of the
sections include requirements that are the same for both small and
large quantity handlers of universal waste. However, the notification
and tracking sections for LQHUWs include regulatory requirements, while
these same sections for SQHUWs merely explain that small quantity
handlers are not subject to notification and tracking requirements.
Also, the employee training section for large quantity handlers of
universal waste includes more extensive requirements than does the
employee training section for small quantity handlers of universal
waste.
The requirements included in the final rule for each of the ten
universal waste handler sections are discussed in detail in the
following subsections of this preamble. Any changes made from the
proposed rule, comments received on the proposed requirements, and the
Agency's responses to these comments are also discussed.
IV.E.1. Prohibitions
In the proposed rule, the Agency proposed three prohibitions that
were applicable to generators, transporters, and consolidation points
managing universal waste. First, these handlers were prohibited from
diluting or disposing of universal waste, except that the existing
Sec. 262.70 provision allowing farmers to dispose of waste pesticides
from their own use on their own farms was retained. Second, handlers
were prohibited from treating waste, except by removing electrolytes
from batteries or responding to releases. Third, handlers were
prohibited from sending or taking universal waste to a place other than
a consolidation point, destination facility, or foreign destination. In
the final rule, the three prohibitions have been revised in response to
comment as discussed below, and are applied to small quantity handlers
of universal waste, large quantity handlers of universal waste, and
transporters of universal waste. The final prohibitions for small and
large quantity handlers of universal waste are found, respectively, in
Secs. 273.11 and 273.31 of this final rule. The handlers to which the
prohibitions apply under the final rule are the same as under the
proposal since the universe of small and large quantity handlers of
universal waste under the final rule is the same as the universe of
generators and consolidation points under the proposal. (See section
IV.D.1 of today's preamble for a full discussion of universal waste
handlers).
IV.E.1.a. Prohibition on Disposal
The first proposed prohibition is related to dilution and disposal
of universal waste and has essentially been retained in the final rule,
although dilution has been moved and included in the second prohibition
concerning treatment. Thus, the first prohibition now simply prohibits
handlers from disposing of universal waste. In the proposal, farmers
disposing of waste pesticides from their own use on their own farms, in
compliance with 40 CFR 262.70 were exempted from the part 273
management standards. In the final rule, management under 40 CFR 262.70
is still permissible, however it is not written as an exemption. Part
273.3(b)(1) states that farmers using this exemption are not covered
under part 273. As proposed, the 40 CFR 262.70 provision allowing
farmers to dispose of waste pesticides from their own use on their own
farms has been retained. Commenters generally did not disagree with the
prohibition on disposal. A number of commenters added that the proposed
prohibition on disposal is reasonable. Thus the Agency has retained the
prohibition essentially as proposed at Secs. 273.11 and 273.31 of
today's final rule.
IV.E.1.b. Prohibition on Treatment
The second proposed prohibition on treatment of universal waste has
been retained in the final rule, but several [[Page 25519]] revisions
have been made. As mentioned above, the dilution prohibition was moved
from the first prohibition and combined with the second treatment
prohibition. This change clearly separates disposal activities from
treatment activities, since dilution is a form of treatment. Further,
by combining the treatment and dilution prohibitions into the same
provision it is further clarified that exceptions identified to the
treatment prohibition also apply to the dilution prohibition. Also, the
proposed treatment prohibition included one exception allowing the
removal of electrolyte from batteries as long as certain requirements
were met. (See proposed Secs. 273.11(d)(2) and 273.11(e)(1)).
Commenters generally supported the exception on electrolyte removal.
Thus, the substance of this exception has been retained. In the final
rule, however, the electrolyte removal exception has been made part of
a more general exception for routine battery management activities,
which has been added for small and large quantity handlers of universal
waste under sections 273.13(a)(2)(vii) and 273.33(a)(2)(vii). This more
general exception allows handlers of universal waste batteries to
conduct routine battery management activities as long as the casing of
each individual battery is not breached and remains closed and intact.
Routine battery management activities include sorting batteries by
type, mixing battery types in one container, discharging batteries,
regenerating used batteries, disassembling battery packs, removing
batteries from discarded consumer products, or removing electrolyte
from batteries. The types of battery management activities that are
allowed under the exception and the requirements that must be met are
referenced in the prohibitions section and detailed in the waste
management section. (See, for example, 40 CFR 273.11(b), 273.13(a)(2)
and (3), and 273.33(a)(2) and (3) of the final rule.) The requirements
for battery management are discussed further in section IV.E.3.a of the
preamble, waste management.
Numerous commenters argued that the treatment prohibition could be
construed to preclude persons collecting batteries from performing
activities that are necessary and essential to battery collection and
management. Second, commenters believed that such management activities
do not pose an appreciable risk to the environment because the battery
casings remain intact and thus there is no increase risk of exposure or
release of battery contents to the environment. Finally, commenters
argued that these activities are necessary to facilitate proper
recycling. Therefore, the Agency has added text to the prohibitions
section under Sec. 273.11(b) which prohibits treatment of universal
waste batteries except in response to releases or management of
batteries as provided in Secs. 273.13(a)(2) and 273.33(a)(2). These
sections allow certain battery management activities provided that the
casing of each individual battery is not breached and the battery
remains closed and intact.
In response to comment, another exception to the treatment
prohibition has been added to the final rule that allows certain
thermostat management activities. This exception allows handlers to
remove mercury-containing ampules from thermostats. As with the battery
management exception, these activities must meet certain requirements
referenced in the prohibitions section and detailed in the waste
management section. (See, for example, 40 CFR 273.11(b), 273.13(c)(2)
and (3), and 273.33(c)(2) and (3). The requirements for ampule removal
are discussed further in section, IV.E.3.c, waste management, of
today's preamble.
This exception for ampule removal has been added to the final rule
in response to a comment. The commenter argued that all the mercury is
located within the ampule not the entire thermostat and, therefore,
only the mercury ampule, not the entire used mercury containing
thermostat, should be regulated. The commenter also argued that removal
of used mercury ampules from the thermostats will be done by trained
personnel in a setting where appropriate health and safety measures
have been instituted. The Agency agrees with the commenter and has
included a thermostat management exception for small and large quantity
handlers of universal waste, 40 CFR 273.13(c) and 40 CFR 273.33(c), who
conduct mercury ampule removal activities, provided that they meet the
regulatory provisions of part 273 for mercury ampule removal. For
further discussion regarding mercury ampule removal, please refer to
section IV.E.3.c, waste management.
Finally, some commenters were concerned that the proposed treatment
prohibition, for all universal waste types, unfairly limited universal
waste management activities of generators. These commenters stated that
under full Subtitle C regulation, generators are allowed to treat
hazardous waste in accumulation containers (Sec. 262.34(a) and (d)),
therefore, compliance with full Subtitle C requirements is less
restrictive for generators than the streamlined part 273 standards. The
Agency disagrees with the commenters and revises the prohibition
provisions of today's final rule with the modifications mentioned
above. The Agency points out that the existing accumulation provisions
are available only to regulated generators who have EPA identification
numbers and are complying with the full part 262 requirements including
90- or 180-day accumulation time limits (and permitting for exceeding
these limits), 40 CFR 262.34 accumulation unit standards, biennial
reports, and manifests. The Agency does not believe it is appropriate
to allow a similar provision for generators who are not required to
comply with the part 262 controls, but are instead following the
streamlined requirements of the universal waste regulations.
IV.E.1.c. Prohibition on Shipments of Universal Wastes
The third proposed prohibition on sending or taking universal waste
to a place other than specifically identified locations (e.g.,
generators could take their universal waste only to a consolidation
point, destination facility, or foreign destination) has been
substantially retained in the final rule, with minor modifications. In
the final rule, this prohibition has been moved to new sections
entitled off-site shipments. (See 40 CFR 273.18(a) and 273.38(a).) In
the final rule, this provision has been revised to fit the categories
of universal waste handlers used in the final rule. (See section IV.D.1
of today's preamble for a full discussion on universal waste handlers).
The prohibition has been substantially retained in the final rule, but
has been modified to allow shipment to any universal waste handler. The
off-site shipment prohibition is discussed in detail in section IV.E.8
of this preamble entitled off-site shipments.
IV.E.2. Notification
In the proposed rule, the Agency required generators and
consolidation points accumulating more than 20,000 kg of hazardous
waste batteries at any time to notify EPA of their waste management
activities. EPA requested comment on the proposed approach not to
require generators of universal waste pesticides to notify, and the
proposed notification quantity limits.
The notification requirement in the proposed rule consisted of a
letter to the EPA Regional Administrator identifying the generator's
facility. Specifically, generators and consolidation points
accumulating more than 20,000 kg of hazardous waste batteries at any
one [[Page 25520]] time were required to send a one-time written
notification to the EPA Regional Administrator describing their
hazardous waste battery accumulation activities. EPA would then assign
an EPA identification number. Information required in the written
notification included: (1) The generator's or consolidation point's
name and mailing address; (2) the name and business telephone number of
the person at the generator's or consolidation point's site who should
be contacted regarding the battery accumulation activity; (3) the
address or physical location of the battery accumulation activity; and
(4) a statement indicating that the generator or consolidation point
accumulates more than 20,000 kilograms of hazardous waste batteries.
Alternately, a generator or consolidation point could apply to the EPA
Regional Administrator using EPA Form 8700-12, ``Notification of
Regulated Waste Activity,'' and checking the appropriate box indicating
that they are a hazardous waste generator or consolidation point.
The Agency did not propose notification requirements for generators
and consolidation points handling only hazardous waste pesticides that
are suspended and/or canceled and recalled. As discussed in the
preamble to the proposed rule (58 FR 8121), the Agency considered the
requirements for identifying recall participants and recordkeeping,
authorized by FIFRA section 19(b), to provide sufficient information
concerning the identity and location of persons managing these
pesticides. In addition, FIFRA section 6(g) requires notice to EPA and
appropriate state and local officials of the location, quantities, and
possession of pesticides that are suspended or canceled under FIFRA
section 6.
Based on commenters' support for the Agency's decision not to
require the part 273 notification requirements for generators or
consolidation points accumulating recalled pesticides, the Agency has
decided to retain this exemption. Thus, under the final rule a person
who handles only (e.g., does not manage other universal waste) recalled
universal waste pesticides as described in 40 CFR 273.3(a)(1) and who
has sent notification to EPA as required under FIFRA section 19(b) and
6(g) is not required to notify under Sec. 273.32 of today's rule.
In the final rule, the Agency has also decided to retain the
notification provisions for hazardous waste batteries found in the
proposed rule, with some minor revisions. In the final rule, the
notification requirements have been modified by: (1) Expanding the
notification requirements to accommodate additions to the applicability
section of the rule; (2) incorporating the revisions made in the final
rule regarding the categorization of generators and consolidation
points; (3) reducing the 20,000 kilogram cut-off level for
notification; and (4) clarifying that cut-off for the notification
requirements apply on a ``site-by-site'' basis. These modifications are
discussed below.
First, the Agency has broadened the applicability of the final rule
to include, along with hazardous waste batteries, unused pesticide
products and used mercury-containing thermostats. Thus, in the final
rule, notification requirements previously required only for hazardous
waste batteries also apply to unused pesticide products and used
mercury-containing thermostats under Secs. 273.3 and 273.4
respectively. A full discussion regarding the expansion of the
universal waste rule to unused pesticides products and used mercury-
containing thermostats can be found in sections IV.E.3.b and IV.E.3.c,
respectively, of today's preamble.
Second, the final rule has been revised from the proposed rule such
that generators and consolidation points are now designated as
universal waste handlers. The persons who would have been included in
the proposed generator and consolidation point categories will now fit
into either the category of small quantity handlers of universal waste
(defined in Sec. 273.6 as a universal waste handler who accumulates
less than 5,000 kilograms total of universal waste (batteries,
pesticides, or thermostats, calculated collectively) at any time) or
the category of large quantity handlers of universal waste (defined as
in Sec. 273.6 as a universal waste handler who accumulates 5,000
kilograms or more total of universal waste (batteries, pesticides, or
thermostats, calculated collectively) at any time). Thus, under the
final rule, universal waste handlers accumulating large quantities of
universal waste are subject to more stringent requirements than persons
accumulating small quantities.
The Agency believes that the appropriate variable for applying more
stringent requirements is the quantity of waste managed, not whether
the waste is generated or collected. The Agency selected 5,000
kilograms of accumulated waste as the cutoff for this notification
requirement (i.e., as the cut-off between small and large quantity
handlers of universal waste) because the universal waste rule is
designed for wastes that present a relatively low risk during
collection (compared to other hazardous waste), and thus it is
appropriate to have a higher cut off limit for this notification
requirement than applies under the full hazardous waste regulations
(i.e., the conditionally exempt small quantity generator limit of 1,000
kg). Further information regarding small and large quantity handlers of
universal waste, can be found in section IV.D.1 of the preamble.
A third modification made to the notification requirements reduces
the notification cut-off level from 20,000 kilograms to 5,000 kilograms
total of universal waste. In the proposal, as stated above, generators
or consolidation points accumulating more than 20,000 kilograms of
universal waste batteries would have been required to notify EPA. Under
today's final rule, the applicability of part 273 has been expanded to
also include unused pesticide products and thermostats. Thus, under the
final rule, universal waste handlers accumulating 5,000 kilograms or
more total of universal waste (batteries, pesticides, or thermostats)
at any one time are required to notify EPA of this activity. Therefore,
a universal waste handler who accumulates 5,000 kilograms or more total
of universal waste at any one time is designated a large quantity
handler of universal waste and is subject to the notification
requirements of 40 CFR 273.32. However, a universal waste handler who
does not accumulate 5,000 kilograms total of universal waste (e.g.,
batteries, pesticides, or thermostats, calculated collectively, at any
one time) is designated a small quantity handler of universal waste and
is not subject to any notification requirements under part 273. The
Agency points out that since the universe for generators and
consolidation points and universal waste handlers are the same, the
only difference between the proposed notification requirements and the
notification requirements of this final rule is the cut-off level.
Thus, the notification provisions in today's rule have not changed
substantially. In addition, as explained previously, handlers of
recalled pesticides only need notify if they have not already notified
under FIFRA.
The Agency's decision to reduce the cut-off level was based on
recommendations by a number of commenters. Although some commenters
generally supported the 20,000 kilogram cut-off level, several
commenters recommended that EPA reduce the level because the 20,000
kilogram cut-off was excessive and that most generators or
consolidation points would not accumulate such large amounts of
universal waste. These commenters suggested reducing the
[[Page 25521]] notification quantity limit to 1,000 kilograms. Another
commenter recommended reducing the 20,000 kilogram notification limit
to 5,000 kilograms total because the reduction eliminates the small
one-time collections and average size generators while ensuring that
regulatory agencies are aware of the larger generators and more
permanent consolidation points. The Agency agrees with the commenter
and believes that such a quantity level is appropriate. EPA believes
that the amount of universal waste that a facility is accumulating is a
good indicator of the quantities of waste that the facility is
handling, is easily verified by regulating agencies through an
inspection of the facility, and is a good indicator of the risk posed
by management of universal waste at the facility.
The Agency also believes that the 5,000 kilogram quantity limit
will not obstruct people managing universal waste from participating in
the universal waste collection program because the recordkeeping
requirements for large quantity handlers of universal waste is basic
enough to be fulfilled by standard business records. Thus, handlers
will arrange universal waste management activities to achieve
efficiency rather than to avoid regulatory requirements. To achieve
efficiency, those facilities handling large quantities in short periods
of time will naturally accumulate these large quantities in order to
take advantage of the economies of scale available from making fewer
large shipments of universal waste, as opposed to numerous small
shipments. The Agency, however, would like to emphasize that all
handlers who anticipate accumulating 5,000 kilograms or more total of
universal hazardous waste at any one time must send written
notification to the Regional Administrator, and receive an EPA
Identification Number before exceeding the 5,000 kg quantity limit.
Finally, the Agency has clarified in the final rule that the
notification requirement is a one-time notification for facilities
accumulating 5,000 kilograms or more total of universal waste,
calculated collectively on-site. The Agency believes clarification is
necessary because a number of commenters raised the question of whether
or not notification is necessary only when a particular site exceeds
the cut-off limit or if notification is required if an entire company
accumulates greater than the cut-off limit at all of its sites
combined. Commenters specifically recommended that the cut-off figure
apply on a location, or ``site-by-site'' basis and not on a company-
wide basis. The Agency agrees with commenters' recommendation to
require notification on a ``site-by-site'' basis only. The Agency
believes the notification requirement in the proposed rule, and in
today's final rule, already addresses this concern. In addition, the
Agency clarifies that renotification is not required for large quantity
handlers who have previously notified. This means that if a large
quantity handler of universal waste has already notified EPA of his
hazardous waste management activities and has received an EPA
identification number, he is not required to re-notify under 40 CFR
273.32.
The final rule maintains the notification requirements of the
proposal, but has reduced the 20,000 kilogram cut-off level to 5,000
kilograms as discussed previously. The notification requirements of
Sec. 273.32 recognize that a person may own several non-contiguous
properties which accumulate universal waste independently of each
other. The notification requirement under Sec. 273.32 does not require
a company owning non-contiguous properties to add together the total
quantity of universal waste accumulated at each non-contiguous property
and subsequently notify EPA if the total quantity of universal waste
for all non-contiguous properties equals or exceeds 5,000 kilograms.
As written, the 5,000 kilogram cut-off level applies only to the
total amount of all categories of universal waste accumulated at one
site. Non-contiguous property is viewed as a separate site. Thus, a
person who owns or operates two or more universal waste management
facilities located on pieces of property which are non-contiguous
should not add together the quantities of all universal waste
accumulated at all of his facilities to determine if he exceeds the
5000 kilogram cut-off level. Owners or operators should consider each
facility separately and is responsible for calculating the quantity of
universal waste at each facility separately. If the 5,000 kg cut-off
level is exceeded for the universal waste accumulated at one facility,
he would be required to notify EPA of his universal waste activities.
If the quantity of universal waste at this facility is less than the
5,000 kg cut-off, notification would not be necessary. In other words,
the owner or operator of a facility, including all contiguous property,
that accumulates 5,000 kilograms or more total of universal waste, is
subject to the notification requirements of Sec. 273.32.
On the other hand, non-contiguous properties owned by the same
person but connected by a right-of-way which he controls and to which
the public does not have access, are considered on-site property. Thus,
a person who owns or operates two or more universal waste management
facilities located on pieces of property which are connected by a
right-of-way which he controls and to which the public does not have
access, should add together the quantities of all universal waste
accumulated at these facilities to determine if he exceeds the 5000
kilogram cut-off level. If the quantity of universal waste at his on-
site facilities is greater than the 5,000 kg cut-off, notification
would be necessary, if the owner has not already notified. The Agency
believes that this clarification will redress any further confusion
caused by the proposed notification requirements.
IV.E.3. Waste Management
The final waste management requirements for small and large
handlers of universal waste are found in Secs. 273.13 and 273.33 of
this final rule. The subsections of Secs. 273.13 and 273.33 address
waste management issues specific to each waste category. Subsection (a)
consists of requirements for universal waste battery management,
subsection (b) consists of requirements for universal waste pesticide
management, and subsection (c) consists of requirements for universal
waste thermostat management. The three waste category-specific
provisions are discussed in the following three subsections of this
preamble.
Each of the subsections set forth a general performance standard
requiring that handlers ``manage universal waste in a way that prevents
releases of any universal waste or component of a universal waste to
the environment.'' The universal waste proposal included a similar
provision, which was proposed for management of universal waste
batteries. The proposed provision, however, required that persons
manage batteries ``in a way that minimizes releases* * *'' Several
commenters argued that the requirement to minimize releases was too lax
and in essence allowed releases. They pointed out that such a standard
implied that releases could occur, as long as the handler attempted to
minimize them. These commenters suggested that the standard should be
changed to require management in such a way that prevents releases. The
Agency agrees with this point, and stresses that releases of universal
waste or universal waste components to the environment are not allowed
under the universal waste [[Page 25522]] regulations. For example,
management in a container that has signs of visible leakage would
unquestionably be out of compliance. The standard of performance for
universal waste management is to prevent any release and therefore,
leakages that are not visible are also not permissible. Thus, the
Agency has revised the text of the provision to clarify that universal
waste batteries, pesticides and thermostats are to be managed in such a
way as to prevent releases.
In the final rule, this performance standard is applied to all
universal waste rather than only to batteries. Thermostats are included
because the Agency had discussed applying the proposed requirements for
battery management to thermostats and commenters generally supported
this approach. Pesticides are included simply to make it clear that
releases are to be prevented, although this requirement is actually
redundant.
IV.E.3.a. Universal Waste Batteries
Subsection (a) of the small and large quantity handlers of
universal waste management sections sets forth requirements for the
management of universal waste batteries. Three provisions are included.
The first provision of Secs. 273.13(a)(1) and 273.33(a)(1) address
containment of leaking or damaged batteries. The Agency added this
provision to the final rule after reviewing comments on the issue of
waste management requirements for batteries. Commenters disagreed on
this subject. A number of commenters argued that the management
requirements proposed for batteries were sufficient to ensure that
universal waste battery management will be protective of human health
and the environment. They believed that the general performance
standard concerning releases and the prohibitions were sufficient and
urged the Agency not to impose additional waste management
requirements. In fact, several commenters argued that batteries should
be subject to regulations like those of subpart G of 40 CFR part 266,
which includes no requirements for handlers other than recyclers.
Several other commenters, however, argued that more stringent
controls should be imposed on battery waste management. They believed
that the proposed general performance standard and other requirements
were inadequate to protect against environmental damage. These
commenters recommended various additional requirements including
accumulation of batteries on surfaces that can contain releases,
detailed employee training, financial assurance, temperature and
ventilation controls, water run-on and run-off controls, fire/explosion
and security precautions.
In response to these comments the Agency has decided to add to the
final rule a containment provision requiring that handlers ``contain
any universal waste battery that shows evidence of leakage, spillage,
or damage that could cause leakage under reasonably foreseeable
conditions in a container. The container must be closed, structurally
sound, compatible with the contents of the battery, and must lack
evidence of leakage, spillage, or damage that could cause leakage under
reasonably foreseeable conditions.'' This means that the containers
must be in good condition (no severe rusting, apparent structural
defects, or deterioration). The Agency believes that this requirement
will ensure that any potential releases to the environment from
universal waste batteries are prevented. The Agency further believes
that this requirement is specific enough to provide clear direction to
handlers of universal waste batteries on how to prevent releases.
Because the requirement is not technically difficult to follow, the
Agency is confident that universal waste handlers will be able to
comply. Although the Agency has added this new containment requirement
for batteries, the Agency is sensitive to concerns that overly
burdensome requirements will discourage participation in the universal
waste system, resulting in decreased quantities of these wastes being
collected for proper management. The Agency is confident that this
requirement is rigorous enough to protect human health and the
environment from the risks of battery management, but at the same time
will not present a barrier to participation in universal waste
collection programs.
The second provision of the waste management section for batteries,
Secs. 273.13(a)(2) and 273.33(a)(2), specifies conditions that must be
met by handlers conducting these activities. This provision also
identifies certain battery management activities that may be conducted
by handlers. This provision was added in response to numerous
commenters who all argued that certain activities that might be
considered treatment, and thus banned under the prohibition on
treatment of universal waste, are necessary to quality battery
management and pose no increased health or environmental risks.
Commenters mentioned the following activities: sorting batteries by
type; mixing battery types in one container; discharging batteries so
as to remove the electric charge; disassembling batteries or battery
packs into individual batteries or cells; and removing batteries from
discarded consumer products. According to these commenters, these
activities are essential to effective battery management. For example,
battery types are mixed in containers at collection points to avoid the
complexity of requiring those dropping off batteries to identify and
manage battery types separately. Collected mixed batteries must be
sorted by type in order to send them to the appropriate destination
facilities for proper recycling or treatment. Batteries must be removed
from discarded consumer products to make shipping and handling
economical. Discharging batteries may be conducted as a safety
precaution prior to accumulation or shipping.
The Agency agrees with commenters that these activities are an
important part of battery management and should be allowed under the
universal waste regulations. The Agency also agrees with commenters'
point that as long as the metal or plastic casing of each individual
battery or cell is not breached and remains closed and intact, the risk
of releases to the environment is not increased by these activities.
Thus, the Agency has added this new provision to the final rule
specifying that handlers may conduct the battery management activities
listed above as long as the battery or cell casings are not breached
and remain closed and intact.
The Agency notes that it has removed the 40 CFR 261.6 exemption for
used batteries that are to be regenerated and has added a provision
specifying that facilities regenerating used batteries are subject to
the part 273 standards for small or large quantity handlers of
universal waste. The Agency believes that regeneration of batteries is
a management activity that should also be exempted from the treatment
prohibitions. Thus, regeneration of used batteries has also been
included as part of the management activities mentioned above for
universal waste batteries (For further discussion regarding regenerated
batteries, please refer to section IV.J of the preamble). To resolve
commenters' concerns that these activities might be banned under the
general prohibition on treatment, in the final rule the Agency has also
revised the treatment prohibition to specifically exempt these
activities. Removing electrolyte, which was allowed under the proposed
rule and not opposed by commenters, has also been included in this
provision as an allowable activity.
The third provision of the waste management section for batteries
[[Page 25523]] 273.13(a)(3) and 273.33(a)(3), has been expanded from a
proposed provision discussing how electrolyte removed from batteries is
regulated (see, for example, proposed 40 CFR 273.11(e)(1)). The final
provision has been expanded to address not only electrolyte, but any
non-universal waste generated in the process of managing universal
wastes. These non-universal wastes could include any solid waste
generated in the battery management activities discussed above (e.g.,
plastic or metal battery pack construction materials or consumer
electronics hulks from which batteries have been removed). The
provision has been expanded to address these other wastes because
commenters raised the issue of battery management activities and the
same issues arise with wastes generated in these activities as with
electrolyte.
In addition, this provision has been expanded to address the
question raised by commenters of how electrolyte (and other generated
non-universal wastes) would fit into the hazardous waste regulations.
Under the final rule the handler who generates hazardous waste
electrolyte or other hazardous wastes are subject to the generator
requirements of 40 CFR part 262. Compliance with the generator
regulations of part 262 is appropriate because a generator begins the
hazardous waste management procedures (e.g., manifesting, shipping to
regulated facilities), which is what would be required for a non-
universal waste generated as a result of universal waste management
which must be moved into the full hazardous waste regulatory system.
Finally, this provision has also been expanded to clarify that if
electrolyte or any other generated non-universal wastes are not
hazardous wastes, they may be managed under applicable solid waste
management regulations. This is always true under the hazardous waste
regulations, but the Agency believes that restating this will make the
regulations more clear and user friendly for battery handlers.
IV.E.3.b. Universal Waste Pesticides
In the proposed universal waste rule, the Agency proposed that
suspended and/or canceled and recalled pesticides managed under the
universal waste regulations must be packaged to meet one of the
following four conditions: (1) The pesticide must be packaged in the
original packaging (container or tank) used to contain the pesticide
when it was being distributed or sold, which must be kept closed and
not leaking; (2) the pesticide must be packaged in the original
packaging and overpacked in a larger container that is closed and non-
leaking; (3) the pesticides must be contained in a tank that meets the
hazardous waste tank requirements; or (4) the pesticides must be
contained in a non-leaking transport vehicle or vessel. The Agency also
requested comment on whether the regulations should allow handlers of
recalled pesticides to repackage universal waste pesticides from
original packaging into other containers (i.e., physically transfer the
pesticide from its original packaging into a different container).
In the final rule, the first, second, and fourth options for
packaging have been substantially revised in response to comments. The
third option, on which very little comment was received, has been
retained as proposed. In addition, because the universe of pesticides
included in the final rule has been expanded (see discussion in section
IV.B.2.c. of this preamble), the packaging requirements in the final
rule are applicable to unused pesticide products collected in
collection programs as well as to suspended and/or canceled and
recalled pesticides.
The first and second proposed packaging options (which were the
only available options if a pesticide was to be managed in containers
or portable tanks rather than tanks or transport vehicles), essentially
required that the pesticide remain in the original packaging used when
it was distributed or sold. If the original packaging was leaking, the
second option required that it be overpacked in a larger, non-leaking
container. However, both options required that original packaging be
used. (See proposed 40 CFR 273.22(a)(1)(i) and 273.23(a)(1)(i).)
In the final rule, these packaging options have been substantially
revised to allow management of pesticides in containers other than
original packaging, as long as certain conditions are met.
Specifically, the first revised option allows pesticides to be managed
in ``a container that remains closed, is structurally sound, compatible
with the pesticide, and that lacks evidence of leakage, spillage, or
damage that could cause leakage under reasonably foreseeable
conditions.'' See 40 CFR 273.13(b)(1) and 273.33(b)(1) of the final
rule. The second revised option requires that a pesticide managed in a
container not meeting the conditions of the first option be overpacked
in a container that does meet the requirements of the first option. See
40 CFR 273.13(b)(2) and 273.33(b)(2) of the final rule.
The result of these revisions is that any universal waste pesticide
that is managed in a container must be managed in a container that is
in good condition (no severe rusting, apparent structural defects, or
deterioration). The good-condition container may be the primary
container (under the first option), or if the primary container is not
acceptable, a good-condition container may be used to overpack the
primary container (i.e., the primary container is placed into a good-
condition overpack container). It should be noted that although
original packaging is no longer required under these revisions,
original packaging may be used to contain pesticides as long as the
original packaging meets the conditions set forth in the options.
The Agency's decision to allow the use of packaging other than
original packaging was based on a couple of factors. First, a number of
commenters pointed out that a significant portion of waste pesticides
found on farms (both recalled pesticides, and unused pesticide products
collected in ``clean sweep'' programs) are in containers other than the
original container. In most cases, the original containers for these
pesticides are no longer available. Commenters argued that limiting the
universal waste rule to those pesticides for which the original
container is available would severely limit the quantities of waste
that could be managed under the universal waste system. In turn, this
would decrease the amounts of pesticides collected from farmers and
others for proper management. Commenters argued that the risks of
releases of these pesticides are likely to be less under the universal
waste regulations than under conditions of long term accumulation on
farms, particularly if the regulations ensure management in good-
condition, non-leaking containers.
The Agency notes that its intent in requiring original packaging
was to ensure that pesticides were managed in appropriate containers.
The Agency believed that original packaging was most likely to remain
in good condition since it was designed to store the pesticide during
its product life. However, based on the comments received, the Agency
now believes that requiring original packaging would unnecessarily
limit the pesticides that can be managed under the universal waste
system, and, at the same time, would not necessarily ensure adequate
containment. Thus, the Agency has developed revised packaging
requirements for containers that ensure that pesticides are managed in
containers that are protective of human health and the environment, and
that pesticides are not prohibited from management under the universal
waste system merely because the original packaging is no longer
available. The [[Page 25524]] Agency agrees with commenters' points and
believes that the revised packaging requirements for containers are
environmentally protective, but flexible enough to accommodate
pesticides collected under recalls as well as waste pesticide
collection programs (``clean sweeps'').
Second, a number of other commenters argued that the proposed
requirements to keep pesticides in original containers that are closed
and non-leaking were not sufficiently protective. These commenters
pointed out that cancellation may sometimes follow suspension by a
considerable period of time, and that pesticide containers may not be
properly maintained over this time period. Similarly, pesticides
collected in ``clean sweep'' programs have frequently been accumulated
for long periods of time. As a result, such containers may deteriorate
or be damaged. These commenters believed that the proposed packaging
provisions requiring that pesticides be kept in closed and non-leaking
containers could be construed to allow the use of original containers
that are damaged, but not yet actually leaking. Although the Agency did
not intend to allow the use of damaged containers, the Agency agrees
that the proposed language could have been interpreted to allow such
containers. To resolve this problem, under the final rule universal
waste pesticides must be contained in containers (or overpack
containers) that remain closed, are structurally sound, compatible with
the pesticides, and that lack evidence of leakage, spillage, or damage
that could cause leakage under reasonably foreseeable conditions. The
Agency believes that this requirement provides sufficient insurance
that pesticide containers will be protective of human health and the
environment.
The same conditions have also been added to the fourth packaging
option, which as proposed, allowed the used of ``non-leaking transport
vehicles or vessels.'' This provision has been revised in the same way
as the first two options since the ``non-leaking'' condition raises the
same issue as the proposed non-leaking container requirements. To
resolve the concern that damaged, but not yet leaking transport
vehicles or vessels could be used to contain pesticides, the final rule
requires that handlers use a transport vehicle or vessel that is
``closed, structurally sound, compatible with the pesticide, and that
lacks evidence of leakage, spillage, or damage that could cause leakage
under reasonably foreseeable conditions.''
The final rule has also been revised to clarify when overpacking is
required for pesticide containers in response to confusion cited by
some commenters regarding these requirements in the proposal. The
Agency believes that the wording of the second revised packaging option
makes it clear that overpacking is required when the primary container
does not meet the good-condition requirements found in the first
revised packaging condition. The Agency believes that this regulatory
structure will be more clear to the reader than the proposed regulatory
structure.
Several commenters addressed the question of whether the universal
waste regulations should allow universal waste handlers to repackage
pesticides (i.e., to transfer pesticides from one container to
another). Most of these commenters supported allowing repackaging. The
Agency generally prefers that handlers overpack leaking or damaged
containers rather than transfer the pesticide to another container
because the risk of spillage is likely to be less when overpacking.
However, the Agency recognizes that in some cases, for example if no
overpack materials are available, it may be preferable to repackage
pesticides than to wait until overpacking is possible. In addition,
there are other controls that will ensure that any repackaging of
universal waste pesticides is conducted in an environmentally
protective manner. For recalled pesticides, the recall procedures under
FIFRA section 19b addresses repackaging. For example, under proposed
regulations at 40 CFR part 165 (58 FR 26857; May 5, 1993) pesticide
recallers would submit a recall plan for approval by the Agency. Part
of the plan would include a description of the responsibilities of the
recaller and pesticide holders with respect to interim storage,
preparation for transportation, and transportation of the pesticide.
For unused pesticide products managed in collection programs, the
pesticide management procedures required by the collection program will
generally address repackaging and, if allowed, will specify precautions
to be taken during repackaging. Because repackaging may be an important
method of cost control for collection programs (e.g., consolidation of
small containers of the same pesticide), the Agency does not wish to
interfere with these practices. The Agency believes that waste
pesticide collection programs will develop responsible procedures and
would like to leave the decision of whether to allow repackaging, and
what requirements to impose, to the collection programs or States.
Based on these factors, the Agency has decided not to prohibit
repackaging in the final universal waste regulations. The Agency points
out, of course, that any spillage of universal waste pesticide is
required to be cleaned up immediately and managed appropriately under
the universal waste release response provisions. The Agency also notes
that any spillage that is not cleaned up would be considered illegal
disposal under the hazardous waste regulations.
IV.E.3.c. Universal Waste Thermostats
In the proposed rule, the Agency requested comment on whether the
waste management requirements proposed for universal waste batteries
would be appropriate for managing mercury-containing thermostats. The
Agency also requested comment on any additional requirements necessary
to ensure that thermostats are collected in a manner that is protective
of human health and the environment.
With the exception of one issue concerning mercury-containing
ampule removal, commenters overwhelmingly supported applying the
requirements proposed for universal waste batteries to used mercury-
containing thermostats. These commenters agreed that the proposed part
273 requirements would facilitate collection and recycling of the
mercury contained in the thermostats. Thus, in the final rule, persons
managing universal waste thermostats are subject to the same basic
requirements as persons managing other universal wastes: Requirements
for small and large quantity handlers, transporters, and destination
facilities. Specific waste management requirements have been added to
the small and large quantity handler sections to address one
commenter's concerns about ampule removal.
A manufacturer of thermostats who is developing a ``take back''
program for mercury-containing thermostats did suggest that some
modifications to the waste management requirements proposed for
batteries were necessary to reflect differences between the proposed
waste mercury thermostat recycling program and procedures envisioned
for battery recycling programs. The commenter expressed concerns as to
whether the waste management provisions proposed for universal waste
batteries would be sufficiently protective of human health and the
environment if applied to the management of mercury-containing
thermostats. Commenters recommended that for safety reasons, such
removal [[Page 25525]] should only be performed by trained personnel in
a setting where appropriate health and safety measures have been
instituted.
Paragraph (c) of Secs. 273.13 and 273.33 include requirements
applicable to handlers of used mercury-containing thermostats.
Subsection (c)(1) requires a universal waste handler to contain any
universal waste thermostat that is leaking in a non-leaking container.
Subsection (c)(2) sets forth requirements for universal waste handlers
who remove mercury-containing ampules from thermostats. These
requirements, based on controls suggested by the commenter, are
designed to ensure that ampule removal is conducted in a safe and
environmentally protective manner.
First, the handler must remove the ampules in a manner designed to
prevent breakage of the ampules. Second, he must remove the ampules
only over or in a containment device (e.g., tray or pan sufficient to
contain any mercury released from an ampule in case of breakage).
Third, he must ensure that a mercury clean-up system is readily
available to immediately transfer any mercury resulting from spills or
leaks from broken ampules, from the containment device to a container
that meets the requirements of 40 CFR 262.34. Fourth, he must
immediately transfer any mercury resulting from spills or leaks from
broken ampules from the containment device to a container that meets
the requirements of 40 CFR 262.34. Fifth, he must ensure that the area
in which ampules are removed is well ventilated and monitored to ensure
compliance with applicable OSHA exposure levels for mercury. Sixth, he
must ensure that employees removing ampules are thoroughly familiar
with proper waste mercury handling and emergency procedures, including
transfer of mercury from containment devices to appropriate containers.
Seventh, he must accumulate removed ampules in closed, non-leaking
containers that are in good condition (no severe rusting, apparent
structural defects, or deterioration); and finally, eighth, he must
pack removed ampules in the container with packing materials adequate
to prevent breakage during accumulation, handling, and transportation.
Handlers not complying with these requirements for ampule removal are
not managing universal waste, and are not subject to part 273. They are
subject to the full hazardous waste requirement of parts 262 through
270. The Agency believes that these procedures ensure that the handler
is removing the mercury ampule from the thermostat casing in a manner
designed to prevent breakage of the ampules and to ensure proper
containment of any spilled or leaked mercury.
The Agency recognizes that in some cases, spills or leaks resulting
from ampule removal may occur. Thus, the Agency has added paragraph
(c)(3) in Secs. 273.13 and 273.33 to address concerns related to
mercury residuals generated as a result of removal of mercury ampules
from the thermostats. If spillage or leakage of mercury from a broken
ampule or during ampule removal occurs, the handler must contain any
universal waste thermostat that is leaking in a non-leaking container.
A universal waste handler must determine whether such spillage or
leakage exhibits a characteristic of hazardous waste. If the waste does
exhibit a characteristic of hazardous waste, the handler is considered
the generator of the mercury resulting from spills or leaks and is
subject to all applicable requirements of 40 CFR parts 260 through 272,
including 40 CFR part 262.
Similar to the battery waste management requirements, the handler
must also determine whether or not any other solid waste (e.g.,
thermostat casing) generated during management activities exhibits a
characteristic of hazardous waste. If the generated waste does exhibit
a characteristic of hazardous waste, it must be managed under the
hazardous waste management requirements mentioned above. If, however,
the generated waste does not exhibit a characteristic of hazardous
waste, it is not subject to the hazardous waste requirements, nor is it
subject to the requirements of part 273. This waste is, however,
required to be handled in compliance with applicable solid waste
regulations and the handler may manage the waste in any way that is in
compliance with applicable federal, state or local solid waste
regulations. The Agency believes the specific requirements for ampule
removal address the commenter's concerns regarding the improper removal
of used mercury-containing ampules and ensure that such activities are
safe and environmentally protective.
The Agency clarifies that if a handler determines that some waste
he or she is managing as universal waste is actually not hazardous
waste (and thus by definition is not universal waste), and it is
therefore not required to be managed under the hazardous waste
regulations, including the universal waste regulations. For example, a
handler who receives shipments of mixed battery types may sort the
batteries to separate the various battery chemistries. If one of the
sorted battery types does not exhibit any characteristics of hazardous
waste, it is not a hazardous waste and the handler may wish to manage
it outside of the hazardous waste regulations.
IV.E.4. Labeling/Marking
In response to suggestions from commenters that the Agency include
marking and labeling requirements in the part 273 regulations, the
Agency has decided to implement marking and labeling requirements that
were not proposed. Although commenters agreed that some form of
labeling and marking requirement be required, commenters'
recommendations on methods used to identify the materials contained
within the tanks or containers differed. For example, one commenter
suggested that EPA should require that all tanks or containers be
marked with the words ``hazardous waste'', ``hazardous material'' or
``waste destined for recycling''. Another recommended that if the
intent of the universal waste rule is to divert wastes into the recycle
stream, the waste should not be labelled ``universal hazardous waste'',
but simply ``Universal Waste.''
Under the final rule, labeling and marking requirements for
universal waste have been included to identify the types of universal
waste being managed. The Agency has added labeling and marking
requirements for universal waste batteries, universal waste mercury-
containing thermostats, and universal waste pesticides. The labeling
requirements vary depending on the type of waste. These requirements
are found in Secs. 273.14 and 273.34 of the final rule. Paragraph (a)
of these sections discusses the marking and labeling requirements for
universal waste batteries. Under the final rule, a universal handler
managing batteries at his facility is required to label each individual
universal waste item or container holding the universal waste with the
words ``Universal Waste--Battery(ies)'', or ``Waste Battery(ies)'', or
``Used Battery(ies).'' Similarly, a universal waste handler managing
used mercury-containing thermostats under part 273 must label each
universal waste item or container holding these universal wastes, with
the words ``Universal Waste--Mercury Thermostat(s)'' or ``Waste Mercury
Thermostat(s)'' or ``Used Mercury Thermostat(s).'' These requirements
are in paragraph (d) of Secs. 273.14 and 273.34 of the final rule.
Labeling and marking requirements similar to those described above
for universal waste batteries and thermostats apply also to universal
waste pesticides. Thus, a person managing universal pesticides must
[[Page 25526]] mark or label his containers with the words ``Universal
Waste--Pesticide(s)'' or ``Waste--Pesticide(s).'' Refer to
Sec. 273.14(c)(2) or Sec. 273.34(c)(2). However, because there are many
types of pesticides posing different management issues, the Agency has
decided to require more specific labeling for pesticides in addition to
the more general label discussed above. Due to differences in
management practices between universal waste pesticides that are a part
of a recall and pesticides that are a part of a state approved
collection program, the requirements for each type of pesticide are
different. Universal waste handlers managing recalled pesticides are
required to mark or label tanks or containers holding the recalled
pesticide with the original FIFRA label that would be required under
FIFRA if the pesticide were a product (refer to Sec. 273.14(b)(1)).
While pesticides in a recall may be located at the individual user
level, a larger volume is likely to be recalled from the dealer/
retailer level. Pesticides shipped to dealers by producers are often
sent in multiple container package units. For example, individual
containers may be shipped grouped together in cartons and/or palleted
and shrink-wrapped in plastic. This extra packaging (e.g., shrink-wrap,
carton) typically is removed only at the time of sale. In the recall
process, these multiple container package units would normally be
shipped back intact. To require pesticide containers to be individually
labeled as waste pesticides would require the dealer to break open such
multiple package units to access the individual containers. EPA
believes it is unnecessary to require that such multiple container
package units be individually labeled merely for the purpose of being
shipped to another universal waste handler as part of a recall.
Accordingly, 40 CFR 273.14(b) permits the required label or marking to
be placed on the outer packaging of multiple container packaged units.
On the other hand, unused pesticides that are universal wastes are
typically products whose registration has been cancelled, which are no
longer marketed, or no longer used by the farmer. Existing stocks often
remain at the user level for extended times, sometimes years, because
there is no formal recall in these circumstances. State collection
programs are intended to collect and properly dispose of such wastes
from the user level and rarely collect from the retail level as with a
recall. Thus, the initial universal waste handler is a user typically
having only single containers of pesticides whose labels may not be
available or may have deteriorated due to adverse conditions or over
time.
Universal waste handlers managing unused pesticide products that
are collected and managed as part of a waste pesticide collection
program have several options for labeling tanks and containers. The
first option is to label the pesticide tank or container with a label
that was on the accompanied product as sold or distributed, if still
legible. Refer to Secs. 273.14(c)(1)(i) or 273.34(c)(1)(i).
The Agency notes that this is the ideal labeling option for unused
pesticide products, but the Agency also recognizes that the FIFRA label
for the unused pesticide products may not be a realistic option because
such a label may not be available. As an alternative, the Agency has
developed additional labeling options under Secs. 273.14(c)(1)(ii) and
(iii) and 273.34(c)(1)(ii) and (iii).
The second option requires that handlers mark or label the
container or containing unit with a label required by the Department of
Transportation under 49 CFR part 172. If neither of these options are
possible, the final option is to use another label that is approved in
advance by the collection program. The Agency believes that these
labeling and marking requirements will provide sufficient information
to ensure that universal waste pesticides can be managed in a safe and
environmentally protective manner, yet provides sufficient flexibility
for universal handlers who are users or dealers, without requiring
undue cost or burden of labeling.
IV.E.5. Accumulation Time Requirements
The final accumulation time requirements for small and large
quantity handlers of universal waste are found in Secs. 273.15 and
273.35 of this final rule. In the proposed universal waste rule,
generators and consolidation points were prohibited from accumulating
universal waste for longer than one year from the date the universal
waste was generated, or received from another facility. Generators and
consolidation points were also required to document that universal
wastes were not accumulated for longer than this time. See proposed
Secs. 273.11(b) and 273.21(c). This accumulation time limitation was
designed to implement, for universal wastes, a statutory prohibition
that is part of the 1984 Hazardous and Solid Waste Amendments to RCRA
(section 3004j). Pursuant to the Land Disposal Restrictions (LDR)
provisions of the Hazardous and Solid Waste Amendments of 1984 (HSWA),
all hazardous wastes listed or identified in accordance with RCRA
section 3001 are prohibited, on specified timetables, from land
disposal. The regulations for the LDR program in 40 CFR part 268 apply
to persons who generate or transport hazardous waste and owners and
operators of hazardous waste treatment, storage, and disposal
facilities, unless they are specifically excluded from regulation in
parts 261 or 268. In addition, the statutory provision prohibits the
storage of restricted hazardous, unless the restricted hazardous wastes
are being accumulated for the purpose of accumulating quantities
necessary for proper recovery, treatment, or disposal. This prohibition
is currently codified for restricted hazardous wastes in 40 CFR 268.50.
For universal wastes, the Agency proposed to simplify this prohibition
by simply prohibiting accumulation for more than one year. The
simplified provision was based on the assumption that the sole reason
for accumulating universal waste for up to one year was to accumulate
the quantities necessary for proper recovery, treatment, or disposal.
In the final rule, the Agency has retained the proposed one year
accumulation limit, but has added an additional provision allowing
accumulation for more than one year if such accumulation is solely for
accumulating such quantities of universal waste as are necessary to
facilitate proper recovery, treatment, or disposal. See Secs. 273.15(b)
and 273.35(b) of the final rule. For any accumulation longer than one
year, the handler must be able to prove that such accumulation is
solely for accumulating quantities necessary to facilitate proper
recovery, treatment, or disposal. Thus, under the final rule it is
assumed that any accumulation up to one year is for this purpose, but
for any accumulation beyond one year the handler bears the burden of
proving that accumulation is solely for this purpose. This approach to
implementing the statutory prohibition is taken directly from existing
40 CFR 268.50(c) (This approach has been held to be consistent with
section 3004(j). Hazardous Waste Treatment Council v. EPA, 886 F.2d
355, 366-68 (D.C. Circuit Court, 1989)). The Agency believes that this
provision will ensure that any universal waste accumulation will meet
the statutory LDR storage prohibition. For further discussion on the
LDR program regarding its applicability to universal waste, see Section
IV.I. of the preamble.
The Agency's decision to revise the accumulation prohibition is
based on numerous commenters' arguments that [[Page 25527]] the one
year accumulation limitation was too restrictive and would not provide
enough time to accumulate sufficient quantities of waste to facilitate
proper recovery, treatment, or disposal. Because universal wastes are
likely generated and managed in relatively small quantities (compared
with other industrial hazardous wastes), the Agency recognizes that an
absolute one year accumulation limit may not be enough time for some
handlers to accumulate sufficient quantities of universal waste to
properly recover, treat, or dispose of the waste. The Agency believes
that the revised accumulation time limit discussed above will allow
additional time for accumulation when it is truly needed, while
retaining the simplified approach to accumulation (as proposed) for the
first year.
A number of other commenters argued that the proposed part 273
provisions should provide a provision analogous to Sec. 262.34(c),
known as the generator satellite accumulation provision. Under this
provision, a generator may accumulate small quantities of hazardous
waste at or near the point of generation before moving it to the
generator accumulation area where accumulation time is limited to 90/
180/270 days. Accumulation time is unlimited at satellite accumulation
points. Commenters argued that universal waste handlers should also be
allowed unlimited accumulation time for small quantities of waste at
points of generation, and that the one year accumulation time limit
would make the universal waste rules more restrictive than the existing
hazardous waste generator regulations.
The Agency has decided not to add a provision analogous to the
satellite accumulation provision to the universal waste regulations for
several reasons. First, under the universal waste final rule, handlers
may already manage their wastes very similarly to management under the
satellite accumulation provision. For example, the proposed and final
universal waste regulations do not limit the location, or number of
locations, at which a handler of universal waste may accumulate
universal wastes. Thus a handler may continue to accumulate universal
wastes at points of generation. A handler may accumulate these wastes
for up to one year (which is two or four times longer than the 90 or
180 days allowed under the existing hazardous waste generator
regulations), and under the revised final regulation a handler may
accumulate universal waste for longer than one year if certain
conditions are met. Further, the quantity of universal waste that can
be accumulated at a point of generation is not limited to 55 gallons (a
handler of universal waste must notify, however, if the total quantity
of universal wastes accumulated on-site equals or exceeds the 5,000
kilogram notification limit). The only substantive additional
requirement under the universal waste rule will be to mark or label the
container (or use an alternate method) to document the earliest date
any universal waste accumulated at the location became a waste.
Second, although the time limit may appear to be a constraint when
compared to the satellite accumulation provision, with the revision
discussed above, handlers of universal waste who need to accumulate
wastes for more than one year to facilitate proper recovery, treatment,
or disposal will have the option to do so. The handler, however, bears
the burden of proving that such activity is solely for the purpose of
accumulation of such quantities of universal waste as necessary to
facilitate proper recovery, treatment, or disposal. In addition, the
Agency points out that the existing satellite accumulation provisions
are available only to regulated generators who have EPA identification
numbers and are complying with the full part 262 requirements including
90- or 180-day accumulation time limits 40 CFR 262.34 accumulation unit
standards, biennial reports, and manifests. The Agency does not believe
it would be appropriate to allow unlimited accumulation time for
handlers of universal waste who are not required to comply with the
part 262 controls, but are instead following the streamlined
requirements of the universal waste regulations.
Third, the Agency points out that one of its major goals in
developing the universal waste regulations is to make the regulation
clear and easy to work with for both the regulated community and
implementing agencies. The Agency believes that having one consistent
time limit for all universal waste managed at one site is important to
this goal. The Agency also notes that handlers of universal waste who
generate extremely small quantities of hazardous waste (<100 kg="" per="" month)="" would,="" under="" the="" final="" rule,="" still="" have="" the="" option="" to="" manage="" their="" wastes="" under="" the="" conditionally="" exempt="" small="" quantity="" generator="" provisions="" of="" 40="" cfr="" 261.5="" rather="" than="" the="" universal="" waste="" regulations="" (or="" the="" full="" subtitle="" c="" regulations).="" iv.e.6.="" employee="" training="" the="" final="" employee="" training="" requirements="" for="" small="" and="" large="" handlers="" of="" universal="" waste="" are="" found="" in="" secs.="" 273.16="" and="" 273.36="" of="" this="" final="" rule.="" in="" the="" proposed="" rule,="" the="" agency="" proposed="" to="" require="" that="" generators="" and="" consolidation="" points="" provide="" basic="" training="" on="" waste="" handling="" and="" emergency="" response="" procedures.="" the="" agency="" requested="" comment="" on="" whether="" these="" requirements="" should="" be="" further="" reduced="" or="" eliminated.="" the="" agency="" has="" decided="" to="" retain="" these="" training="" requirements="" in="" the="" final="" rule="" for="" all="" large="" quantity="" handlers="" of="" hazardous="" waste.="" thus,="" large="" quantity="" handlers="" of="" universal="" waste="" must="" ensure="" that="" all="" employees="" are="" thoroughly="" familiar="" with="" proper="" waste="" handling="" and="" emergency="" procedures="" related="" to="" their="" responsibilities="" during="" normal="" facility="" operations="" and="" emergencies.="" small="" quantity="" handlers="" of="" universal="" waste,="" however,="" are="" subject="" to="" a="" less="" burdensome="" requirement.="" small="" quantity="" handlers="" of="" universal="" waste="" must="" inform="" all="" employees="" that="" handle="" or="" have="" responsibilities="" for="" managing="" universal="" waste.="" the="" information="" must="" include="" proper="" handling="" and="" emergency="" procedures="" appropriate="" to="" the="" type(s)="" of="" universal="" waste="" managed="" at="" the="" facility.="" although="" most="" commenters="" supported="" epa's="" proposed="" requirements="" for="" basic="" training="" of="" personnel="" regarding="" potential="" safety="" hazards="" posed="" by="" universal="" waste,="" a="" number="" of="" commenters="" recommended="" that="" the="" agency="" adopt="" a="" two-tier="" approach="" for="" training="" requirements.="" these="" commenters="" argued="" that="" dissemination="" of="" safety="" instructions="" would="" be="" sufficient="" training="" for="" employees="" at="" front-line="" collection="" centers,="" and="" the="" more="" comprehensive="" training="" requirements="" should="" apply="" only="" to="" larger="" consolidation="" points,="" because="" the="" consolidation="" point="" will="" be="" handling="" large="" quantities="" of="" universal="" waste="" while="" small="" front-line="" collectors="" will="" manage="" only="" small="" quantities,="" often="" in="" a="" retail="" setting.="" the="" agency="" believes="" the="" final="" rule="" mirrors="" the="" commenter's="" recommendations="" in="" that="" the="" level="" of="" training="" required="" for="" small="" quantity="" handlers="" of="" universal="" waste="" is="" less="" stringent="" than="" that="" for="" large="" quantity="" handlers="" of="" universal="" waste.="" the="" agency="" agrees="" with="" commenters="" that="" the="" level="" of="" training="" should="" be="" greater="" for="" people="" who="" handle="" larger="" quantities="" of="" universal="" waste.="" other="" commenters="" argued="" that="" the="" cost="" of="" implementing="" a="" training="" program="" as="" proposed="" would="" be="" unduly="" burdensome.="" although="" the="" agency="" recognizes="" these="" commenter's="" concerns,="" the="" agency="" believes="" that="" the="" employee="" training="" requirements="" in="" the="" final="" rule="" will="" not="" be="" too="" costly="" or="" burdensome="" for="" universal="" waste="" handlers.="" first,="" in="" response="" to="" these="" concerns,="" the="" agency="" [[page="" 25528]]="" has="" reduced="" the="" training="" required="" for="" small="" quantity="" handlers="" of="" universal="" waste.="" a="" small="" quantity="" handler="" of="" universal="" waste="" must="" inform="" all="" employees="" that="" handle="" or="" have="" responsibility="" for="" managing="" universal="" waste.="" the="" information="" must="" include="" proper="" handling="" and="" emergency="" procedures="" appropriate="" to="" the="" type="" or="" types="" of="" universal="" waste="" handled="" at="" the="" facility.="" although="" providing="" the="" information="" through="" oral="" communication="" would="" be="" allowed,="" the="" agency="" expects="" that="" brochures="" or="" documents="" providing="" such="" information="" have="" already="" been="" or="" will="" be="" developed="" by="" trade="" associations="" and="" the="" organizations="" running="" centralized="" collections="" programs="" (e.g.,="" battery="" manufacturers,="" thermostat="" manufacturers,="" and="" pesticide="" registrants).="" thus,="" small="" quantity="" handlers="" of="" universal="" waste="" participating="" in="" these="" collection="" programs="" will="" be="" able="" to="" distribute="" information="" of="" higher="" quality="" than="" they="" would="" be="" able="" to="" produce="" individually="" with="" little="" or="" no="" development="" costs.="" second,="" the="" agency="" further="" believes="" that="" the="" training="" requirements="" as="" proposed="" will="" not="" be="" unduly="" burdensome="" for="" large="" quantity="" handlers="" of="" universal="" wastes.="" the="" agency="" points="" out="" that="" the="" employee="" training="" requirement="" as="" proposed,="" and="" as="" retained="" in="" the="" final="" rule="" for="" large="" quantity="" handlers="" of="" universal="" waste,="" does="" not="" require="" that="" any="" records="" be="" kept="" for="" training="" provided="" to="" employees,="" requires="" only="" that="" employees="" that="" have="" responsibilities="" for="" managing="" universal="" waste="" or="" for="" responding="" to="" emergencies="" be="" trained,="" and="" requires="" only="" that="" these="" employees="" be="" trained="" as="" is="" appropriate="" for="" their="" universal="" waste="" management="" responsibilities.="" thus,="" employees="" who="" only="" minimally="" handle="" universal="" waste="" need="" only="" be="" trained="" to="" properly="" carry="" out="" that="" activity="" and="" to="" carry="" out="" their="" responsibilities,="" if="" any,="" in="" case="" of="" an="" emergency.="" these="" requirements="" are="" analogous="" to="" those="" currently="" required="" for="" hazardous="" waste="" small="" quantity="" generators.="" they="" basically="" require="" that="" the="" large="" quantity="" handler="" of="" universal="" waste="" provide="" sufficient="" training="" to="" ensure="" that="" employees="" are="" familiar="" with="" proper="" handling="" procedures="" and="" that="" employees="" who="" would="" have="" responsibilities="" during="" emergencies="" are="" familiar="" with="" emergency="" procedures.="" finally,="" a="" number="" of="" commenters="" maintained="" that="" an="" employee="" training="" requirement="" is="" not="" necessary="" because="" training="" required="" under="" other="" programs="" provides="" adequate="" assurance="" that="" employees="" will="" be="" sufficiently="" trained="" to="" properly="" manage="" universal="" waste="" (e.g.,="" osha,="" worker="" right-to-know,="" pesticide="" licensing,="" etc.).="" the="" agency="" continues="" to="" believe="" that="" a="" basic="" employee="" training="" requirement="" is="" necessary="" to="" ensure="" that="" employees="" are="" specifically="" familiar="" with="" waste="" handling="" procedures,="" including,="" if="" appropriate,="" rcra="" requirements.="" the="" agency="" notes="" that="" any="" training="" provided="" under="" other="" programs="" that="" would="" meet="" any="" or="" all="" of="" the="" part="" 273="" training="" requirements="" may="" be="" used="" to="" fulfill="" the="" rcra="" requirements.="" as="" long="" as="" the="" substantive="" standards="" of="" the="" training="" provisions="" are="" met,="" the="" handler="" has="" fulfilled="" the="" training="" requirement.="" there="" is="" no="" requirement="" that="" training="" provided="" to="" meet="" the="" rcra="" requirements="" be="" separate="" from="" other="" training="" given="" to="" employees.="" iv.e.7.="" response="" to="" releases="" the="" final="" response="" to="" releases="" requirements="" for="" small="" and="" large="" quantity="" handlers="" of="" universal="" waste="" are="" found="" in="" secs.="" 273.17="" and="" 273.37="" of="" this="" final="" rule.="" under="" the="" proposed="" rule,="" basic="" release="" response="" requirements="" were="" imposed="" on="" universal="" waste="" generators,="" transporters,="" and="" consolidation="" points.="" these="" universal="" waste="" collectors="" were="" required="" to="" immediately="" contain="" all="" releases="" of="" or="" from="" universal="" wastes,="" and="" to="" appropriately="" manage="" any="" materials="" resulting="" from="" a="" release="" (e.g.,="" cleanup="" equipment,="" contaminated="" soils,="" etc.).="" specifically,="" they="" were="" required="" to="" determine="" if="" any="" of="" the="" resulting="" materials="" were="" hazardous="" wastes,="" and="" if="" so,="" manage="" them="" under="" the="" full="" hazardous="" waste="" regulations.="" in="" the="" final="" rule,="" these="" release="" response="" requirements="" have="" been="" retained="" essentially="" as="" proposed="" for="" all="" collectors="" of="" universal="" waste.="" since="" the="" categories="" of="" collectors="" have="" been="" changed="" in="" the="" final="" rule,="" these="" requirements="" are="" now="" imposed="" on="" small="" and="" large="" quantity="" handlers="" of="" universal="" wastes="" and="" universal="" waste="" transporters.="" commenters="" who="" addressed="" this="" issue="" overwhelmingly="" supported="" the="" release="" response="" requirements="" as="" proposed.="" they="" agreed="" that="" the="" requirements="" to="" immediately="" contain="" releases="" and="" properly="" manage="" residues="" were="" sufficient="" to="" protect="" human="" health="" and="" the="" environment="" from="" any="" releases="" of="" universal="" waste="" that="" might="" occur="" and="" that="" facility-wide="" corrective="" action="" is="" not="" necessary="" for="" universal="" waste="" management.="" under="" the="" final="" rule,="" as="" under="" the="" proposal,="" destination="" facilities="" are="" subject="" to="" the="" full="" hazardous="" waste="" regulations="" applicable="" to="" treatment,="" storage,="" disposal,="" and="" recycling="" facilities.="" these="" regulations="" include="" extensive="" release="" response="" requirements.="" one="" commenter="" argued="" that="" collectors="" should="" be="" allowed="" to="" send="" residues="" from="" cleanups="" along="" with="" universal="" waste="" to="" destination="" facilities.="" the="" agency="" disagrees="" for="" several="" reasons="" and="" has="" not="" revised="" the="" final="" regulation="" to="" allow="" this.="" first,="" cleanup="" residues="" are="" likely="" to="" be="" quite="" different="" in="" form="" and="" composition="" from="" the="" universal="" waste="" they="" come="" from.="" the="" universal="" waste="" regulations="" are="" designed="" specifically="" for="" universal="" wastes,="" and="" are="" not="" designed="" to="" address="" the="" varied="" risks="" that="" may="" be="" posed="" by="" cleanup="" residues.="" thus,="" it="" is="" not="" appropriate="" that="" subsequent="" collectors="" manage="" such="" residues="" under="" the="" universal="" waste="" regulations.="" second,="" the="" destination="" facility="" to="" which="" universal="" waste="" is="" sent="" may="" not="" be="" able="" to,="" or="" permitted="" to,="" treat="" or="" dispose="" of="" cleanup="" residues.="" it="" is="" not="" unlikely="" that="" universal="" waste="" destination="" facilities'="" processes="" are="" designed="" to="" handle="" universal="" wastes="" but="" are="" not="" designed="" to="" handle="" residues="" that="" may="" have="" very="" different="" compositions.="" thus,="" the="" final="" rule="" retains="" the="" requirement="" that="" collectors="" determine="" whether="" any="" residues="" are="" hazardous="" waste,="" and="" if="" so,="" manage="" them="" under="" the="" full="" hazardous="" waste="" regulations.="" in="" the="" preamble="" to="" the="" proposed="" rule,="" the="" agency="" noted="" that="" under="" the="" existing="" hazardous="" waste="" regulations="" hazardous="" waste="" facilities="" are="" subject="" to="" facility-wide="" corrective="" action.="" the="" agency="" requested="" comment="" on="" whether="" some="" form="" of="" corrective="" action="" should="" be="" imposed="" on="" universal="" waste="" collection="" facilities,="" which="" were="" called="" consolidation="" points="" in="" the="" proposal.="" the="" majority="" of="" commenters="" addressing="" this="" issue="" argued="" that="" facility-wide="" corrective="" action="" requirements="" should="" not="" be="" imposed="" on="" universal="" waste="" collectors.="" they="" contended="" that="" facility-wide="" corrective="" action="" is="" currently="" one="" of="" the="" biggest="" barriers="" to="" participation="" in="" waste="" management="" systems,="" and="" that="" if="" these="" requirements="" are="" imposed="" on="" universal="" waste="" collectors="" it="" will="" prevent="" many="" people="" from="" participating="" in="" universal="" waste="" collection="" systems.="" the="" hazardous="" waste="" corrective="" action="" requirements="" could="" thus="" impede="" development="" of="" collection="" systems="" and="" undermine="" the="" goals="" of="" the="" universal="" waste="" regulations.="" commenters="" also="" pointed="" out="" that,="" due="" to="" the="" relatively="" low="" risk="" nature="" of="" wastes="" identified="" as="" universal="" wastes,="" as="" well="" as="" the="" release="" response="" requirements="" discussed="" above,="" corrective="" action="" for="" universal="" waste="" handlers="" would="" be="" unnecessarily="" burdensome.="" commenters="" also="" agreed="" that="" the="" existing="" imminent="" hazard="" provisions="" of="" rcra="" section="" 7003="" provide="" the="" agency="" sufficient="" authority="" to="" compel="" [[page="" 25529]]="" immediate="" action="" in="" response="" to="" releases="" if="" necessary.="" the="" agency="" also="" notes="" that="" any="" releases="" of="" universal="" waste="" not="" cleaned="" up="" would="" constitute="" illegal="" disposal,="" further="" allowing="" action="" under="" rcra.="" in="" addition,="" any="" releases="" of="" hazardous="" substances="" above="" reportable="" quantity="" (rq)="" thresholds="" must="" be="" reported="" under="" the="" comprehensive="" environmental="" response,="" compensation,="" and="" liability="" act="" (cercla),="" also="" known="" as="" superfund.="" since="" universal="" wastes="" are="" hazardous="" wastes,="" and="" thus="" hazardous="" substances="" under="" cercla,="" reporting="" for="" universal="" waste="" releases="" is="" required="" (if="" over="" rqs).="" such="" reports="" provide="" notification="" to="" the="" agency="" concerning="" releases="" and="" would="" thus="" allow="" the="" agency="" to="" take="" action,="" if="" necessary,="" under="" either="" rcra="" or="" cercla.="" although="" several="" commenters="" did="" argue="" that="" facility-wide="" corrective="" action="" should="" be="" imposed="" on="" universal="" waste="" collectors,="" the="" agency="" decided="" not="" to="" do="" so="" in="" the="" final="" rule.="" the="" agency="" agrees="" with="" the="" commenters'="" points="" discussed="" above,="" and="" believes="" that="" on="" balance,="" given="" the="" desire="" to="" encourage="" participation="" in="" the="" universal="" waste="" program,="" and="" the="" availability="" of="" response="" to="" release="" requirements="" in="" today's="" rule="" (as="" well="" as="" additional="" authorities="" available="" to="" impel="" cleanup="" if="" necessary),="" the="" risks="" of="" impeding="" the="" development="" of="" universal="" waste="" collection="" systems="" outweigh="" the="" risks="" of="" not="" including="" facility-wide="" corrective="" action="" requirements.="" it="" should="" be="" noted="" that="" under="" the="" final="" rule="" (as="" under="" the="" proposal),="" full="" facility-wide="" corrective="" action="" does="" apply="" to="" destination="" facilities="" as="" part="" of="" the="" treatment,="" storage,="" and="" disposal="" facility="" regulations.="" iv.e.8.="" off-site="" shipments="" the="" agency="" has="" added="" new="" sections="" in="" the="" final="" rule="" for="" small="" and="" large="" quantity="" handlers="" of="" universal="" waste="" and="" destination="" facilities,="" entitled="" off-site="" shipments.="" it="" was="" clear="" from="" the="" comments="" that="" off-="" site="" shipments="" present="" various="" issues,="" thus="" warranting="" separate="" sections="" covering="" these="" issues.="" the="" agency="" has="" included="" the="" requirements="" for="" off-site="" shipments="" in="" subpart="" b="" (standards="" for="" small="" quantity="" handlers="" of="" universal="" waste),="" subpart="" c="" (standards="" for="" large="" quantity="" handlers="" of="" universal="" waste),="" and="" subpart="" e="" (destination="" facilities).="" including="" these="" provisions="" in="" separate="" off-site="" shipments="" sections="" for="" each="" category="" of="" person="" managing="" universal="" waste="" makes="" the="" provision="" easy="" to="" locate,="" and="" thus="" makes="" the="" entire="" regulation="" easier="" to="" follow.="" the="" off-site="" shipments="" sections="" for="" handlers,="" found="" at="" secs.="" 273.18="" and="" 273.38,="" address="" one="" issue="" discussed="" in="" the="" proposal,="" as="" well="" as="" a="" new="" issue="" raised="" by="" commenters.="" the="" off-site="" shipments="" section="" for="" destination="" facilities,="" 40="" cfr="" 273.62,="" addresses="" only="" the="" new="" issue="" raised="" by="" commenters.="" these="" two="" issues="" are="" discussed="" below.="" first,="" in="" the="" proposed="" rule,="" requirements="" concerning="" off-site="" shipments="" of="" universal="" waste="" were="" found="" in="" the="" prohibitions="" section="" of="" each="" of="" the="" universal="" waste="" handler="" categories="" (generator,="" transporter,="" and="" consolidation="" point).="" generators="" were="" allowed="" to="" send="" universal="" waste="" only="" to="" consolidation="" points,="" destination="" facilities,="" or="" foreign="" destinations.="" transporters="" were="" allowed="" to="" transport="" universal="" waste="" only="" to="" consolidation="" points,="" destination="" facilities,="" or="" foreign="" destinations.="" consolidation="" points="" were="" allowed="" to="" send="" universal="" waste="" only="" to="" other="" consolidation="" points,="" destination="" facilities,="" or="" foreign="" destinations.="" the="" prohibitions="" concerning="" off-site="" shipments,="" in="" today's="" final="" rule,="" have="" been="" moved="" into="" paragraphs="" (a)="" of="" 40="" cfr="" 273.18="" and="" 273.38,="" the="" new="" off-site="" shipments="" sections,="" and,="" except="" as="" discussed="" below="" are="" substantially="" retained="" as="" proposed.="" this="" off-site="" shipment="" provision="" has="" also="" been="" revised="" to="" fit="" the="" new="" categories="" of="" universal="" waste="" handlers="" used="" in="" the="" final="" rule.="" handlers="" of="" both="" small="" and="" large="" quantities="" of="" universal="" waste="" are="" prohibited="" from="" sending="" or="" taking="" universal="" waste="" to="" a="" place="" other="" than="" another="" universal="" waste="" handler,="" a="" destination="" facility,="" or="" a="" foreign="" destination.="" this="" change="" results="" in="" one="" substantive="" difference="" from="" the="" proposed="" prohibition.="" under="" the="" proposal,="" generators="" were="" prohibited="" from="" sending="" universal="" waste="" to="" other="" generators,="" and="" consolidation="" points="" were="" prohibited="" from="" sending="" universal="" waste="" to="" generators.="" under="" the="" final="" rule,="" universal="" waste="" handlers="" (which="" include="" both="" generators="" and="" consolidation="" points,="" classified="" by="" quantity="" of="" waste="" managed="" rather="" than="" by="" whether="" wastes="" are="" generated="" or="" collected)="" may="" send="" waste="" to="" any="" other="" universal="" waste="" handler.="" the="" agency="" has="" decided="" to="" make="" this="" change="" in="" response="" to="" several="" commenters="" who="" argued="" that="" companies="" or="" organizations="" that="" generate="" universal="" waste="" at="" numerous="" locations="" should="" not="" be="" penalized="" by="" being="" categorized="" as="" consolidation="" points="" merely="" because="" they="" centralize="" their="" waste="" by="" bringing="" it="" to="" one="" location="" to="" facilitate="" better="" management="" (e.g.,="" bringing="" waste="" from="" unstaffed="" locations="" to="" staffed="" locations="" where="" waste="" can="" be="" better="" monitored).="" under="" the="" proposed="" prohibition,="" such="" consolidation="" could="" only="" be="" conducted="" if="" the="" central="" location="" was="" categorized="" as="" a="" consolidation="" point,="" which="" was="" based="" only="" on="" the="" fact="" that="" universal="" waste="" was="" transported="" to="" the="" location.="" as="" discussed="" earlier="" in="" the="" section="" of="" this="" preamble="" entitled="" ``universal="" waste="" handlers="" (section="" iv.d.1)--small="" and="" large="" quantity="" handlers="" of="" universal="" waste'',="" the="" agency="" believes="" that="" the="" appropriate="" variable="" for="" applying="" more="" stringent="" requirements="" is="" the="" quantity="" of="" waste="" managed,="" not="" whether="" waste="" is="" generated="" on-site="" or="" received="" from="" off-="" site.="" thus,="" the="" prohibition="" in="" the="" final="" rule="" allows="" shipment="" to="" any="" universal="" waste="" handler,="" and="" the="" level="" of="" requirements="" applicable="" to="" any="" handler="" (i.e.,="" small="" or="" large="" quantity="" handler="" requirements)="" is="" based="" purely="" on="" how="" much="" universal="" waste="" is="" accumulated="" at="" the="" location.="" in="" addition,="" a="" provision="" has="" been="" added="" to="" the="" small="" and="" large="" quantity="" handler="" off-site="" shipments="" sections="" of="" the="" final="" rule,="" 40="" cfr="" 273.18(b)="" and="" 273.38(b),="" to="" clarify="" the="" language="" of="" the="" proposed="" off-="" site="" shipment="" prohibition.="" several="" commenters="" exhibited="" some="" confusion="" about="" the="" language="" ``sending="" or="" taking''="" universal="" waste.="" this="" language="" was="" intended="" to="" indicate="" that="" handlers="" could="" either="" contract="" with="" someone="" else="" to="" transport="" their="" universal="" waste="" or="" transport="" it="" themselves.="" the="" language="" was="" not="" intended="" to="" imply="" that="" handlers="" who="" transport="" their="" own="" universal="" waste="" are="" not="" subject="" to="" the="" transporter="" requirements.="" in="" fact,="" the="" proposed="" definition="" of="" transporter="" (which="" is="" retained="" in="" the="" final="" rule)="" clearly="" stated="" that="" anyone="" engaged="" in="" off-="" site="" transportation="" of="" universal="" waste="" is="" considered="" a="" transporter,="" and="" the="" transporter="" requirements="" (proposed="" and="" final)="" make="" it="" clear="" that="" any="" universal="" waste="" transporter="" is="" subject="" to="" the="" universal="" waste="" transporter="" requirements.="" to="" clarify="" this="" point,="" a="" paragraph="" (b)="" has="" been="" added="" to="" the="" off-site="" shipments="" sections="" of="" the="" final="" rule="" clarifying="" that="" a="" handler="" who="" self-transports="" universal="" wastes="" off-site="" becomes="" a="" universal="" waste="" transporter="" for="" those="" self-transportation="" activities="" and="" must="" comply="" with="" the="" universal="" waste="" transporter="" requirements="" while="" transporting="" the="" waste.="" (see="" 40="" cfr="" 273.18(b)="" and="" 273.38(b)).="" paragraph="" (c)="" of="" secs.="" 273.18="" and="" 273.38="" have="" been="" added="" to="" clarify="" that="" if="" a="" universal="" waste="" being="" offered="" for="" off-site="" transportation="" meets="" the="" definition="" of="" hazardous="" materials="" under="" 49="" cfr="" 171-180,="" the="" handler="" of="" universal="" waste="" must="" package,="" label,="" mark,="" and="" placard="" the="" shipment="" in="" accordance="" with="" the="" applicable="" department="" of="" [[page="" 25530]]="" transportation="" regulations="" under="" 49="" cfr="" parts="" 172-180="" and="" must="" prepare="" the="" proper="" shipping="" papers.="" because="" persons="" who="" offer="" for="" transportation="" or="" who="" transport="" a="" hazardous="" material="" must="" do="" so="" in="" conformance="" with="" requirements="" specified="" in="" the="" department="" of="" transportation's="" hazardous="" materials="" regulations,="" these="" revisions="" to="" the="" regulatory="" text="" do="" not="" constitute="" new="" requirements.="" rather,="" paragraph="" (c)="" serves="" to="" communicate="" more="" clearly="" that="" applicable="" dot="" requirements="" still="" apply="" to="" all="" persons="" managing="" universal="" waste.="" second,="" in="" the="" final="" rule,="" paragraphs="" (d)="" through="" (h)="" have="" been="" added="" to="" the="" small="" and="" large="" quantity="" handler="" off-site="" shipments="" sections,="" and="" 40="" cfr="" 273.61(a)="" through="" (d)="" have="" been="" added="" to="" the="" destination="" facility="" requirements,="" addressing="" a="" new="" issue="" raised="" by="" commenters.="" specifically,="" commenters="" argued="" that="" consolidation="" points="" (in="" the="" final="" rule="" referred="" to="" as="" either="" small="" or="" large="" quantity="" handlers)="" should="" be="" allowed="" to="" return="" shipments="" of="" universal="" waste="" to="" generators="" (in="" the="" final="" rule="" referred="" to="" as="" either="" small="" or="" large="" quantity="" handlers)="" in="" cases="" where="" generators="" (shipping="" handlers)="" send="" materials="" that="" the="" collection="" facility="" (receiving="" handler)="" is="" not="" able="" or="" prepared="" to="" manage.="" the="" agency="" agrees="" with="" this="" point="" and="" reiterates="" that="" nothing="" in="" the="" universal="" waste="" rule="" is="" intended="" to="" imply="" that="" universal="" waste="" handlers="" are="" required="" to="" accept="" any="" particular="" type="" of="" universal="" waste,="" any="" universal="" waste="" that="" they="" are="" not="" willing="" or="" able="" to="" handle,="" or="" any="" particular="" shipment="" of="" universal="" waste.="" it="" should="" be="" noted,="" however,="" that="" there="" may="" be="" other="" regulations="" that="" do="" require="" handlers="" to="" accept="" such="" waste.="" for="" example,="" under="" fifra="" regulations,="" pesticide="" recallers="" are="" not="" allowed="" to="" return="" pesticides="" that="" are="" part="" of="" a="" recall.="" on="" the="" contrary,="" although="" persons="" who="" choose="" to="" manage="" universal="" wastes="" are="" subject="" to="" the="" applicable="" requirements="" of="" part="" 273,="" no="" one="" is="" required="" to="" manage="" any="" universal="" waste.="" in="" response="" to="" these="" concerns,="" the="" agency="" has="" added="" provisions="" to="" part="" 273="" addressing="" this="" issue="" of="" rejected="" shipments.="" under="" the="" final="" rule,="" both="" the="" shipper="" (a="" small="" or="" large="" quantity="" handler="" of="" universal="" waste="" who="" is="" shipping="" universal="" waste="" to="" another="" handler="" or="" destination="" facility)="" and="" the="" receiving="" facility="" (a="" small="" or="" large="" quantity="" handler="" of="" universal="" waste,="" or="" destination="" facility,="" receiving="" a="" shipment="" of="" universal="" waste="" from="" another="" universal="" waste="" handler)="" share="" certain="" responsibilities="" for="" the="" protective="" handling="" of="" the="" universal="" wastes="" being="" shipped.="" in="" order="" to="" prevent="" or="" limit="" rejected="" shipments,="" secs.="" 273.18(d)="" and="" 273.38(d)="" of="" the="" final="" rule="" specify="" that="" a="" shipper="" sending="" universal="" waste="" to="" a="" receiving="" facility="" must="" ensure,="" before="" the="" shipment="" is="" sent,="" that="" the="" receiving="" facility="" agrees="" to="" receive="" the="" load.="" in="" addition,="" secs.="" 273.18(e)="" and="" 273.38(e)="" of="" the="" final="" rule="" specify="" that="" if="" the="" shipper="" sends="" universal="" waste="" to="" another="" handler="" or="" destination="" facility="" and="" the="" shipment="" is="" rejected,="" the="" shipping="" handler="" must="" receive="" the="" waste="" back="" or="" agree="" with="" the="" receiving="" facility="" on="" a="" destination="" facility="" to="" which="" the="" shipment="" will="" be="" sent.="" sections="" 273.18(f),="" 273.38(f),="" and="" 273.61(b)="" require="" that="" if="" an="" unsuitable="" shipment="" containing="" universal="" waste="" is="" received,="" the="" receiving="" facility,="" in="" turn,="" may="" reject="" the="" full="" shipment="" or="" a="" portion="" of="" the="" shipment.="" examples="" of="" unsuitable="" shipments="" include,="" but="" are="" not="" limited="" to:="" universal="" waste="" that="" the="" facility="" is="" not="" willing="" to="" handle="" (e.g.,="" a="" load="" of="" universal="" waste="" batteries="" that="" also="" contains="" ``junk="" rechargeable="" items'';="" or,="" universal="" waste="" that="" the="" facility="" is="" not="" able="" to="" handle="" (e.g.,="" universal="" waste="" thermostats="" sent="" to="" a="" battery="" reclamation="" facility).="" in="" such="" a="" scenario,="" the="" receiving="" facility="" must="" notify="" the="" shipper="" of="" the="" rejection="" and="" discuss="" reshipment="" of="" the="" load.="" the="" receiving="" facility="" may="" send="" the="" shipment="" back="" to="" the="" original="" shipper="" or="" send="" the="" shipment="" to="" a="" mutually="" agreed="" upon="" destination="" facility.="" finally,="" a="" handler="" of="" universal="" waste="" who="" receives="" a="" shipment="" of="" non-hazardous,="" non-universal="" waste="" may="" handle="" the="" waste="" in="" any="" way="" that="" is="" in="" compliance="" with="" applicable="" federal="" or="" state="" solid="" waste="" regulations.="" commenters="" were="" also="" concerned="" about="" procedures="" to="" follow="" if="" a="" handler="" receives="" a="" shipment="" of="" hazardous="" waste="" that="" is="" not="" a="" universal="" waste.="" sections="" 273.18(g),="" 273.38(g),="" and="" 273.61(c)="" have="" been="" added="" to="" the="" final="" rule="" to="" address="" this="" scenario.="" these="" procedures="" are="" actually="" not="" specific="" to="" universal="" waste="" handlers="" but="" merely="" clarify="" what="" anyone="" should="" do="" if="" they="" receive="" an="" illegal="" shipment="" of="" hazardous="" waste.="" specifically,="" these="" subsections="" state="" that="" should="" such="" a="" shipment="" be="" received,="" the="" receiving="" facility="" must="" immediately="" notify="" the="" appropriate="" regional="" epa="" office="" of="" the="" illegal="" shipment,="" and="" provide="" the="" name,="" address,="" and="" phone="" number="" of="" the="" shipper.="" the="" epa="" regional="" office="" will="" provide="" instructions="" for="" managing="" the="" hazardous="" waste.="" iv.e.9.="" tracking="" universal="" waste="" shipments="" under="" the="" proposed="" universal="" waste="" rule="" the="" use="" of="" a="" hazardous="" waste="" manifest="" was="" required="" for="" some="" shipments="" of="" universal="" wastes,="" but="" not="" others.="" those="" shipments="" that="" required="" manifests="" also="" required="" the="" use="" of="" a="" transporter="" with="" an="" epa="" transporter="" identification="" number.="" more="" specifically,="" manifests="" were="" required="" for="" shipments="" from="" consolidation="" points="" to="" destination="" facilities,="" but="" were="" not="" required="" for="" shipments="" from="" generators="" to="" either="" destination="" facilities="" or="" consolidation="" points="" or="" for="" shipments="" from="" one="" consolidation="" point="" to="" another.="" the="" reasoning="" behind="" requiring="" manifests="" only="" for="" shipments="" from="" consolidation="" points="" to="" destination="" facilities="" was="" that="" it="" was="" believed="" that="" shipments="" from="" these="" ``last''="" consolidation="" points="" would="" be="" relatively="" larger="" shipments="" and="" thus="" warranted="" a="" higher="" level="" of="" tracking="" and="" control.="" the="" tracking="" requirements="" in="" the="" final="" rule="" have="" been="" substantially="" revised="" from="" the="" proposal="" in="" response="" to="" comments.="" in="" general,="" under="" the="" final="" rule,="" manifests="" are="" not="" required="" for="" any="" shipments="" of="" universal="" waste,="" but="" a="" basic="" recordkeeping="" requirement="" has="" been="" added="" to="" track="" waste="" shipments="" arriving="" at="" and="" leaving="" from="" handlers="" of="" large="" quantities="" of="" universal="" waste.="" in="" addition,="" a="" similar="" provision="" has="" been="" added="" to="" the="" destination="" facility="" requirements="" to="" require="" retention="" of="" basic="" documentation="" of="" universal="" waste="" shipments="" arriving="" at="" destination="" facilities.="" this="" basic="" tracking="" requirement="" is="" found="" in="" secs.="" 273.39="" and="" 273.62="" of="" the="" final="" rule.="" the="" required="" records="" may="" take="" the="" form="" of="" a="" log,="" invoice,="" manifest,="" bill="" of="" lading,="" or="" other="" shipping="" document,="" and="" are="" to="" be="" maintained="" for="" three="" years.="" no="" specific="" form="" is="" required="" for="" maintaining="" these="" records,="" and="" the="" agency="" believes="" that="" standard="" business="" records="" that="" would="" normally="" be="" kept="" by="" any="" business="" will="" fulfill="" this="" requirement.="" for="" each="" shipment="" of="" universal="" waste="" received="" at="" or="" by="" a="" large="" quantity="" handler,="" the="" record="" must="" include="" the="" name="" and="" address="" of="" the="" universal="" waste="" handler="" or="" foreign="" shipper="" from="" whom="" the="" universal="" waste="" was="" sent;="" the="" quantity="" of="" each="" type="" of="" universal="" waste="" received="" (e.g.,="" batteries,="" pesticides,="" thermostats);="" and="" the="" date="" of="" receipt="" of="" the="" shipment="" of="" universal="" waste.="" for="" each="" shipment="" sent="" from="" a="" large="" quantity="" handler,="" the="" record="" must="" include="" the="" name="" and="" address="" of="" the="" universal="" waste="" handler,="" destination="" facility,="" or="" foreign="" destination="" to="" whom="" the="" universal="" waste="" was="" sent;="" the="" quantity="" of="" each="" type="" of="" universal="" waste="" sent="" (e.g.,="" batteries,="" pesticides,="" thermostats);="" and="" the="" date="" the="" shipment="" of="" universal="" waste="" left="" the="" facility.="" [[page="" 25531]]="" it="" should="" also="" be="" noted="" that="" under="" the="" proposal,="" the="" owner="" or="" operator="" of="" a="" destination="" facility="" would="" have="" been="" required="" to="" keep,="" for="" three="" years,="" manifests="" documenting="" receipt="" of="" shipments="" of="" universal="" wastes="" from="" consolidation="" points.="" (see="" proposed="" 40="" cfr="" 273.14(a)="" and="" 273.24(a),="" and="" existing="" 40="" cfr="" 264.71(b)(5)="" and="" 265.71(b)(5)).="" records="" of="" shipments="" received="" from="" generators,="" without="" manifests,="" would="" have="" been="" required="" as="" part="" of="" the="" operating="" record="" (see="" existing="" 40="" cfr="" 264.73(b)(1)="" and="" 265.73(b)(1))="" and="" biennial="" report="" (see="" existing="" 40="" cfr="" 264.75(c)="" and="" (d)="" and="" 265.75(c)="" and="" (d)).="" since="" no="" manifests="" will="" be="" used="" for="" shipments="" received="" by="" destination="" facilities,="" the="" final="" rule="" requires="" that="" the="" owner="" or="" operator="" of="" a="" destination="" facility="" keep="" the="" same="" records="" for="" receipt="" of="" universal="" waste="" shipments="" as="" those="" kept="" by="" handlers="" of="" large="" quantities="" of="" universal="" wastes.="" this="" will="" complete="" the="" record="" of="" universal="" waste="" shipments,="" providing="" documentation="" of="" receipt="" and="" allowing="" comparison="" of="" outgoing="" shipments="" from="" handlers="" against="" received="" shipments="" at="" destination="" facilities.="" the="" agency="" decided="" to="" make="" these="" changes="" in="" the="" tracking="" requirements="" based="" on="" comment="" received="" on="" the="" issue.="" first,="" a="" number="" of="" commenters="" opposed="" requiring="" manifests="" and="" hazardous="" waste="" transporters="" for="" any="" shipments="" of="" universal="" wastes,="" arguing="" that="" the="" increased="" costs="" and="" administrative="" burden="" of="" using="" manifests="" and="" hazardous="" waste="" transporters="" would="" be="" a="" disincentive="" for="" collection="" of="" universal="" waste="" and="" would="" inhibit="" removal="" of="" these="" wastes="" from="" the="" municipal="" waste="" stream.="" many="" commenters,="" however,="" including="" some="" of="" those="" opposing="" manifests,="" did="" support="" some="" form="" of="" tracking="" requirement="" to="" document="" transport="" of="" universal="" wastes.="" these="" commenters="" argued="" that="" a="" less="" burdensome="" tracking="" requirement="" would="" not="" inhibit="" participation,="" but="" could="" be="" used="" to="" reduce="" the="" liability="" of="" persons="" managing="" universal="" waste,="" increase="" enforceability="" of="" the="" universal="" waste="" system,="" and="" decrease="" potential="" abuses="" of="" the="" streamlined="" universal="" waste="" requirements.="" the="" agency="" found="" these="" arguments="" compelling="" and="" thus="" has="" revised="" the="" final="" rule="" to="" include="" a="" basic="" recordkeeping="" requirement="" for="" tracking,="" but="" not="" to="" require="" use="" of="" manifests="" for="" any="" universal="" waste="" shipments.="" a="" number="" of="" commenters="" also="" pointed="" out="" that="" the="" proposed="" approach="" of="" requiring="" manifests="" for="" some="" shipments="" but="" not="" others,="" based="" on="" the="" type="" of="" facility="" originating="" and="" receiving="" the="" shipment,="" was="" overly="" complex="" and="" would="" be="" confusing="" to="" participants.="" commenters="" also="" pointed="" out="" that="" it="" is="" not="" necessarily="" true="" that="" the="" shipments="" for="" which="" manifests="" would="" have="" been="" required="" would="" actually="" be="" larger="" shipments="" than="" those="" for="" which="" manifests="" were="" not="" required.="" in="" fact,="" the="" requirement="" that="" manifests="" and="" hazardous="" waste="" transporters="" be="" used="" for="" shipments="" from="" consolidation="" points="" to="" destination="" facilities="" might="" increase="" the="" administrative="" burden="" and="" cost="" for="" such="" a="" transportation="" pattern="" such="" that="" more="" universal="" waste="" would="" actually="" be="" sent="" directly="" from="" generators="" to="" destination="" facilities,="" for="" which="" no="" manifest="" would="" be="" required.="" it="" was="" not="" the="" agency's="" intent="" to="" make="" the="" tracking="" requirement="" complicated="" or="" confusing,="" or="" to="" discourage="" the="" use="" of="" centralized="" facilities="" to="" consolidate="" universal="" waste="" if="" that="" is="" the="" most="" efficient="" way="" to="" manage="" these="" wastes.="" to="" address="" this="" concern="" about="" complexity,="" in="" the="" final="" rule,="" the="" agency="" has="" decided="" to="" require="" tracking="" for="" all="" shipments="" received="" by="" and="" shipped="" from="" handlers="" of="" large="" quantities="" of="" universal="" waste,="" and="" not="" to="" require="" any="" tracking="" for="" handlers="" of="" small="" quantities="" of="" universal="" wastes.="" the="" agency="" believes="" that="" this="" tracking="" requirement="" is="" less="" complex="" than="" the="" proposed="" approach="" because="" handlers="" generating="" universal="" wastes="" will="" know="" generally="" the="" rates="" at="" which="" they="" generate="" and="" the="" procedures="" used="" for="" shipping="" these="" wastes,="" and="" so="" will="" know="" whether="" they="" are="" handlers="" of="" large="" or="" small="" quantities="" (i.e.,="" whether="" they="" will="" be="" accumulating="" 5,000="" kilograms="" or="" more="" total="" of="" universal="" waste).="" similarly,="" handlers="" collecting="" universal="" wastes="" will="" know,="" based="" on="" the="" types="" of="" universal="" waste="" accepted="" and="" the="" procedures="" used="" for="" shipping="" these="" wastes,="" whether="" they="" are="" handlers="" of="" large="" or="" small="" quantities.="" thus,="" those="" persons="" who="" know="" they="" are="" handlers="" of="" large="" quantities="" will="" keep="" records="" for="" all="" shipments="" received="" and="" sent="" off-="" site,="" regardless="" of="" where="" the="" shipments="" come="" from="" or="" are="" sent="" to.="" in="" comparison,="" those="" persons="" who="" know="" they="" are="" handlers="" of="" small="" quantities="" will="" not="" be="" required="" to="" keep="" records="" of="" any="" shipments,="" although="" they="" may,="" of="" course,="" maintain="" any="" records="" they="" believe="" are="" appropriate="" based="" on="" their="" individual="" circumstances.="" as="" discussed="" elsewhere="" in="" this="" preamble,="" the="" agency="" has="" decided="" to="" require="" tracking="" (and="" other="" requirements="" such="" as="" notification="" and="" more="" in-depth="" training)="" only="" for="" handlers="" of="" large="" quantities="" of="" universal="" waste.="" this="" decision="" was="" made="" in="" order="" to="" impose="" these="" more="" protective="" requirements="" only="" in="" cases="" where="" facilities="" are="" handling="" larger="" quantities="" of="" universal="" waste="" and="" thus="" the="" risks="" from="" management="" of="" these="" wastes="" are="" greater.="" the="" agency="" has="" decided="" not="" to="" impose="" these="" requirements="" on="" handlers="" of="" small="" quantities="" of="" universal="" waste="" based="" on="" numerous="" commenters'="" argument="" that="" the="" administrative="" burden="" of="" tracking="" would="" be="" such="" a="" strong="" disincentive="" that="" retail="" establishments,="" service="" centers,="" and="" other="" ``front="" line''="" collectors="" managing="" small="" quantities="" would="" not="" participate="" in="" collection="" programs,="" thus="" undermining="" the="" goal="" of="" the="" universal="" waste="" program.="" in="" addition,="" because="" these="" operations="" accumulate="" smaller="" quantities="" of="" universal="" wastes,="" if="" managed="" properly,="" they="" will="" pose="" less="" risk="" than="" the="" accumulation="" of="" larger="" quantities.="" the="" agency="" believes="" that="" the="" risk="" associated="" with="" management="" of="" small="" quantities="" of="" universal="" waste="" is="" lower="" than="" the="" management="" of="" larger="" quantities="" due="" to="" the="" reduced="" amount="" of="" waste="" handling="" involved="" and="" the="" lesser="" chance="" of="" mismanagement="" opportunities.="" the="" agency="" selected="" 5,000="" kilograms="" of="" accumulated="" waste="" as="" the="" cutoff="" for="" this="" tracking="" requirement="" (i.e.,="" as="" the="" cutoff="" between="" small="" and="" large="" handlers),="" because="" the="" universal="" waste="" rule="" is="" designed="" for="" wastes="" that="" present="" a="" relatively="" low="" risk="" during="" collection="" (compared="" to="" other="" hazardous="" wastes),="" and="" thus="" it="" is="" appropriate="" to="" have="" a="" higher="" cut="" off="" limit="" for="" the="" tracking="" requirement="" than="" applies="" under="" the="" full="" hazardous="" waste="" regulations="" (i.e.,="" the="" conditionally="" exempt="" small="" quantity="" generator="" accumulation="" limit="" of="" 1,000="" kg).="" finally,="" in="" commenting="" on="" the="" tracking="" requirements="" a="" number="" of="" commenters="" suggested="" that="" the="" biggest="" barrier="" to="" farmer's="" participation="" in="" programs="" to="" collect="" and="" properly="" manage="" unused="" pesticides="" products="" is="" their="" unwillingness="" to="" sign="" manifests="" for="" the="" wastes.="" several="" of="" these="" commenters="" suggested="" that="" collection="" sites="" should="" be="" identified="" as="" the="" generator="" for="" waste="" pesticides,="" thus="" removing="" any="" requirement="" that="" farmers="" act="" as="" the="" generator="" and="" sign="" manifests.="" the="" agency="" notes="" that="" the="" issue="" of="" when="" a="" material="" becomes="" a="" waste,="" and="" thus="" potentially="" subject="" to="" regulation,="" is="" a="" general="" concept="" that="" applies="" consistently="" to="" all="" materials="" potentially="" subject="" to="" the="" hazardous="" waste="" program="" and="" is="" much="" broader="" than="" just="" the="" universal="" waste="" rule.="" the="" agency="" does="" not="" believe="" it="" is="" appropriate="" or="" defensible="" to="" try="" to="" alter="" that="" concept="" for="" specific="" wastes.="" the="" final="" rule="" explains="" the="" concept="" that="" waste="" pesticides="" become="" wastes="" at="" the="" point="" the="" generator="" decides="" to="" discard="" them="" (see="" sec.="" 261.33),="" but="" this="" provision="" merely="" clarifies="" how="" [[page="" 25532]]="" the="" point="" of="" generation="" concept="" imbedded="" in="" the="" entire="" hazardous="" waste="" regulatory="" program="" applies="" specifically="" to="" waste="" pesticides.="" in="" response="" to="" these="" commenters,="" however,="" the="" agency="" notes="" that="" under="" the="" final="" rule,="" manifests="" are="" not="" required="" for="" universal="" waste="" shipments.="" thus,="" the="" major="" barrier="" identified="" to="" farmers'="" participation="" in="" waste="" pesticide="" collection="" programs="" has="" been="" removed.="" farmers="" who="" decide="" to="" discard="" universal="" waste="" pesticides="" would="" be="" considered="" universal="" waste="" handlers="" and="" would="" be="" required="" to="" comply="" with="" the="" small="" or="" large="" quantity="" handler="" regulations,="" depending="" on="" the="" amount="" of="" waste="" pesticides="" that="" they="" accumulate.="" iv.e.10.="" exports="" the="" final="" export="" requirements="" for="" small="" and="" large="" handlers="" of="" universal="" waste="" are="" found="" in="" secs.="" 273.20="" and="" 273.40="" of="" this="" final="" rule.="" in="" the="" universal="" waste="" proposed="" rule,="" the="" agency="" proposed="" export="" requirements="" for="" generators="" and="" consolidation="" points="" managing="" hazardous="" waste="" under="" part="" 273.="" as="" proposed,="" a="" generator="" sending="" universal="" waste="" to="" a="" foreign="" destination,="" without="" first="" sending="" the="" waste="" to="" a="" consolidation="" point="" or="" destination="" facility,="" would="" be="" subject="" to="" requirements="" equivalent="" to="" the="" existing="" hazardous="" waste="" export="" requirements,="" subpart="" e="" of="" part="" 262,="" even="" though="" a="" manifest="" would="" not="" have="" been="" required.="" (see="" proposed="" 40="" cfr="" 273.15="" and="" 40="" cfr="" 273.25.)="" these="" requirements="" included="" advance="" notification="" to="" the="" receiving="" country="" and="" prior="" consent="" by="" the="" receiving="" country="" before="" the="" shipment="" could="" occur.="" the="" agency="" also="" proposed="" export="" requirements="" for="" consolidation="" points.="" however,="" depending="" upon="" the="" type="" of="" foreign="" facility="" receiving="" the="" exported="" hazardous="" waste="" (e.g.,="" consolidation="" point="" or="" destination="" facility),="" a="" manifest="" may="" or="" may="" not="" have="" been="" required="" for="" each="" shipment.="" shipments="" from="" consolidation="" points="" requiring="" a="" manifest="" would="" have="" followed="" the="" existing="" subpart="" e="" of="" part="" 262="" export="" requirements.="" shipments="" from="" consolidation="" points="" not="" requiring="" a="" manifest="" would="" have="" followed="" the="" export="" procedures="" for="" generators,="" which="" required="" notification="" and="" consent="" independent="" of="" a="" manifest.="" commenters="" generally="" supported="" epa's="" proposal="" to="" adopt="" existing="" notification="" and="" consent="" requirements="" for="" exports.="" thus,="" in="" the="" final="" rule,="" notification="" and="" consent="" requirements="" have="" been="" retained="" for="" all="" exports,="" although="" the="" proposed="" provisions="" have="" been="" revised="" somewhat.="" the="" revisions="" are="" discussed="" below.="" first,="" the="" export="" provisions="" have="" been="" revised="" to="" apply="" to="" the="" new="" categories="" of="" universal="" waste="" managers="" used="" in="" the="" final="" rule.="" generators="" and="" consolidation="" points="" are="" now="" designated="" as="" universal="" waste="" handlers,="" who="" are="" classified="" by="" quantity="" of="" waste="" managed="" rather="" than="" by="" whether="" wastes="" are="" generated="" or="" collected.="" in="" addition,="" the="" export="" provision="" applicable="" to="" each="" type="" of="" participant="" in="" the="" universal="" waste="" system="" has="" been="" moved="" into="" the="" subparts="" of="" part="" 273="" applicable="" to="" each="" participant.="" for="" example,="" the="" export="" requirements="" for="" handlers="" of="" small="" quantities="" of="" universal="" waste="" are="" now="" located="" in="" subpart="" b,="" which="" contains="" all="" of="" the="" requirements="" for="" handlers="" of="" small="" quantities.="" second,="" under="" the="" final="" rule,="" manifests="" are="" not="" required="" for="" any="" universal="" waste="" shipments="" (see="" tracking="" section="" of="" preamble="" for="" more="" detailed="" discussion).="" thus,="" under="" the="" final="" rule,="" all="" universal="" waste="" shipments="" will="" follow="" procedures="" for="" notification="" and="" consent="" which,="" as="" proposed,="" are="" independent="" of="" the="" manifest="" procedures.="" the="" agency="" also="" notes="" that="" under="" the="" tracking="" requirements="" of="" the="" final="" rule,="" large="" quantity="" handlers="" of="" universal="" waste="" are="" required="" to="" keep="" records="" of="" where="" they="" send="" waste,="" and="" from="" where="" they="" receive="" universal="" waste,="" including="" foreign="" destinations="" or="" shippers.="" in="" addition,="" commenters="" raised="" several="" other="" issues="" related="" to="" exports="" of="" universal="" waste.="" first,="" one="" commenter="" noted="" that="" the="" proposed="" export="" requirements="" did="" not="" conform="" to="" the="" organization="" for="" economic="" cooperation="" and="" development="" (oecd)="" council="" decision="" on="" waste="" exports.="" the="" agency="" agrees,="" and="" notes="" that="" it="" will="" shortly="" promulgate="" a="" rule="" which="" will="" revise="" the="" relevant="" hazardous="" waste="" export="" requirements="" to="" conform="" to="" the="" oecd="" council="" decision.="" all="" pertinent="" revisions="" to="" the="" universal="" waste="" final="" regulations="" for="" shipments="" of="" universal="" waste="" to="" and="" from="" oecd="" countries="" pursuant="" to="" the="" oecd="" council="" decision="" will="" be="" made="" in="" that="" rule.="" third,="" the="" agency="" explained="" in="" the="" proposal="" that="" it="" does="" not="" have="" the="" authority="" under="" rcra="" to="" regulate="" registrants="" exporting="" suspended="" or="" canceled="" and="" recalled="" pesticides="" to="" a="" foreign="" country="" for="" use="" as="" a="" product.="" see="" proposed="" 40="" cfr="" 273.25(e).="" one="" commenter="" argued="" that="" commercial="" chemical="" products="" (e.g.,="" recalled="" pesticides="" exported="" to="" foreign="" countries)="" that="" have="" been="" banned="" for="" use="" in="" the="" united="" states="" should="" not="" be="" exported="" to="" foreign="" countries="" because="" they="" will="" invariably="" find="" their="" way="" back="" into="" the="" united="" states.="" the="" commenter="" further="" argued="" that="" if="" there="" are="" health="" or="" environmental="" reasons="" for="" banning="" a="" chemical="" in="" the="" united="" states,="" it="" would="" undoubtedly="" pose="" an="" identical="" health="" or="" environmental="" problem="" elsewhere.="" the="" agency="" sympathizes="" with="" the="" commenter's="" concerns,="" but="" reiterates="" that="" it="" does="" not="" have="" statutory="" authority="" under="" rcra="" to="" regulate="" materials="" which="" are="" products="" and="" not="" wastes.="" in="" cases="" where="" the="" registrant="" decides="" to="" export="" a="" suspended="" or="" canceled="" pesticide="" for="" use="" as="" a="" product,="" the="" rcra="" hazardous="" waste="" regulations,="" including="" the="" export="" requirements,="" do="" not="" apply="" because="" the="" pesticide="" would="" not="" be="" a="" solid="" or="" hazardous="" waste.="" to="" make="" this="" clear,="" the="" final="" rule="" retains="" language="" explaining="" the="" non-waste="" status="" of="" pesticides="" that="" are="" to="" be="" used="" as="" products.="" in="" the="" final="" rule,="" however,="" this="" language="" is="" no="" longer="" in="" the="" export="" section,="" but="" has="" been="" moved="" to="" the="" applicability="" section="" for="" pesticides="" (see="" 40="" cfr="" 273.3(b)(4)).="" this="" section="" explains="" that="" pesticides="" that="" are="" to="" be="" used,="" reused,="" or="" reclaimed="" are="" not="" solid="" wastes="" and="" thus="" are="" not="" subject="" to="" hazardous="" waste="" regulations,="" including="" part="" 273.="" the="" agency="" notes,="" however,="" that="" the="" requirements="" of="" fifra="" section="" 17(a)="" do="" apply="" in="" such="" situations.="" these="" requirements="" include="" providing="" notice="" to="" the="" foreign="" purchaser="" that="" the="" product="" is="" not="" registered="" for="" use="" in="" the="" united="" states="" and="" cannot="" be="" sold="" in="" the="" united="" states.="" the="" foreign="" purchaser="" must="" sign="" a="" purchaser="" acknowledgement="" statement="" indicating="" that="" he="" is="" aware="" of="" that="" fact.="" a="" copy="" of="" the="" acknowledgement="" statement="" is="" to="" be="" submitted="" to="" epa="" and="" thereafter="" is="" transmitted="" to="" an="" appropriate="" official="" of="" the="" importing="" country.="" the="" product="" to="" be="" exported="" must="" also="" be="" packaged="" according="" to="" the="" specifications="" of="" the="" foreign="" purchaser.="" iv.f.="" transporter="" requirements="" in="" the="" proposed="" part="" 273="" regulations,="" the="" agency="" proposed="" five="" provisions="" addressing="" requirements="" for="" transporters="" of="" universal="" waste.="" these="" five="" provisions="" included="" requirements="" for="" condition="" of="" the="" waste,="" prohibitions,="" waste="" management,="" storage,="" and="" exports.="" the="" agency="" requested="" comment="" on="" the="" application="" and="" adequacy="" of="" the="" transporter="" requirements="" proposed="" in="" part="" 273,="" the="" in-transit="" ten-day="" storage="" limit,="" and="" the="" adequacy="" of="" dot="" shipping="" requirements="" and/or="" the="" need="" for="" supplemental="" rcra="" requirements="" for="" the="" transport="" of="" universal="" wastes.="" today's="" final="" rule="" includes="" requirements="" for="" transporters="" in="" subpart="" d="" of="" part="" 273.="" the="" standards="" include="" six="" substantive="" sections:="" prohibitions,="" waste="" management,="" storage="" time="" limits,="" response="" to="" releases,="" off-site="" shipments,="" [[page="" 25533]]="" and="" exports="" (secs.="" 273.50="" through="" 273.56="" of="" the="" final="" rule).="" each="" section="" of="" subpart="" d="" is="" discussed="" below.="" the="" prohibitions="" for="" transporters="" are="" found="" in="" sec.="" 273.51="" in="" today's="" final="" rule="" and="" are="" essentially="" the="" same="" as="" those="" presented="" in="" the="" proposed="" rule,="" with="" one="" minor="" modification="" regarding="" off-site="" shipments="" of="" universal="" waste.="" in="" the="" proposed="" rule,="" the="" prohibitions="" section="" for="" each="" of="" the="" universal="" waste="" handler="" categories="" contained="" requirements="" concerning="" off-site="" shipments="" of="" universal="" waste.="" this="" provision,="" in="" today's="" final="" rule,="" has="" been="" moved="" into="" a="" new="" off-site="" shipments="" section="" (sec.="" 273.55);="" however,="" the="" requirements="" have="" been="" substantially="" retained.="" waste="" management="" standards="" for="" transporters="" are="" found="" in="" sec.="" 273.52="" in="" today's="" final="" rule.="" section="" 273.52="" specifies="" that="" transporters="" must="" manage="" universal="" wastes="" in="" compliance="" with="" all="" applicable="" u.s.="" department="" of="" transportation="" (dot)="" regulations.="" in="" the="" final="" rule,="" new="" text="" has="" been="" added="" in="" response="" to="" comments="" which="" indicated="" a="" lack="" of="" clarity="" regarding="" which="" dot="" requirements="" were="" being="" referenced.="" in="" the="" final="" rule,="" the="" agency="" has="" clarified="" this="" matter="" in="" sec.="" 273.52="" by="" explicitly="" directing="" the="" reader="" to="" the="" applicable="" dot="" regulations="" at="" 49="" cfr="" parts="" 171="" through="" 180.="" in="" addition,="" the="" agency="" also="" provides="" the="" pertinent="" references="" for="" the="" department="" of="" transportation's="" definition="" of="" hazardous="" materials="" (49="" cfr="" 171.8)="" and="" the="" hazardous="" materials="" table="" (49="" cfr="" 172.101).="" adding="" new="" text="" to="" the="" waste="" management="" section="" for="" transporters="" clarifies="" the="" requirements="" of="" the="" proposed="" standard="" but="" does="" not="" add="" any="" additional="" requirements.="" the="" agency="" notes="" that="" the="" hazardous="" materials="" regulations="" (hmr,="" 49="" cfr="" parts="" 171-180)="" define="" a="" hazardous="" waste="" as="" any="" material="" that="" is="" subject="" to="" the="" uniform="" hazardous="" waste="" manifest="" requirements="" of="" the="" u.s.="" environmental="" protection="" agency="" specified="" in="" 40="" cfr="" part="" 262.="" as="" shipments="" of="" universal="" waste="" do="" not="" require="" this="" manifest,="" it="" is="" not="" considered="" a="" ``hazardous="" waste''="" by="" the="" dot.="" however,="" such="" material="" may="" still="" be="" regulated="" under="" the="" defining="" criteria="" for="" one="" or="" more="" of="" the="" dot="" hazard="" classes.="" therefore,="" for="" any="" universal="" waste="" shipments,="" transporters="" of="" universal="" waste="" must="" decide="" if="" the="" waste="" falls="" under="" any="" of="" the="" other="" dot="" hazard="" classes="" in="" order="" to="" determine="" if="" compliance="" with="" the="" dot="" requirements="" under="" 49="" cfr="" parts="" 171="" through="" 180="" is="" required.="" (a="" discussion="" of="" the="" manifest="" is="" found="" in="" the="" tracking="" section="" of="" today's="" preamble="" at="" iv.e.9.).="" if="" the="" waste="" material="" does="" not="" meet="" the="" definition="" in="" the="" hmr="" for="" hazardous="" waste="" or="" any="" other="" type="" of="" hazardous="" material,="" its="" shipping="" description="" on="" shipping="" papers="" may="" not="" include="" a="" hazard="" class="" or="" identification="" number="" shown="" in="" the="" hmr.="" storage="" time="" limits="" for="" transporters="" are="" found="" in="" sec.="" 273.53="" of="" today's="" final="" rule.="" under="" the="" proposed="" rule,="" transporters="" could="" only="" store="" universal="" waste="" at="" a="" transfer="" facility="" for="" ten="" days="" or="" less.="" this="" requirement="" remains="" the="" same="" in="" today's="" final="" rule.="" comments="" revealed="" some="" confusion="" about="" the="" status="" of="" the="" person="" handling="" the="" waste="" if="" the="" waste="" is="" stored="" for="" greater="" than="" 10="" days.="" in="" sec.="" 273.53(b),="" the="" agency="" has="" added="" text="" clarifying="" that="" if="" the="" waste="" is="" stored="" for="" greater="" than="" 10="" days,="" the="" transporter="" becomes="" a="" small="" or="" large="" quantity="" handler="" of="" universal="" waste="" and="" is="" subject="" to="" the="" applicable="" regulations="" under="" subparts="" b="" or="" c="" of="" part="" 273="" while="" storing="" the="" universal="" waste.="" several="" commenters="" expressed="" agreement="" with="" the="" 10="" day="" in-transit="" storage="" time="" limit.="" one="" commenter="" argued="" that="" a="" longer="" period="" for="" storage="" should="" be="" allowed,="" while="" another="" commenter="" stated="" that="" the="" focus="" of="" the="" rule="" should="" be="" on="" the="" total="" time="" for="" the="" universal="" waste="" to="" reach="" its="" final="" destination,="" not="" the="" time="" it="" is="" stored="" in-transit.="" commenters,="" however,="" provided="" little="" information="" to="" justify="" a="" longer="" in-transit="" storage="" time="" limit.="" epa="" believes="" that,="" while="" the="" total="" time="" period="" required="" for="" a="" shipment="" of="" universal="" waste="" to="" reach="" its="" specified="" destination="" is="" important,="" the="" transportation="" phase="" requires="" more="" handling="" of="" the="" universal="" waste="" and="" presents="" certain="" exposure="" scenarios="" not="" likely="" when="" only="" storage="" of="" the="" universal="" waste="" is="" required.="" transportation="" increases="" handling="" and="" movement="" of="" the="" waste,="" increased="" risk="" of="" spills="" and="" releases,="" and="" a="" greater="" likelihood="" of="" public="" exposure.="" for="" these="" reasons,="" epa="" is="" continuing="" to="" require="" a="" ten-="" day="" storage="" limitation="" for="" transporters="" of="" universal="" waste.="" as="" stated="" above,="" the="" text="" in="" sec.="" 273.53(b)="" has="" been="" revised="" in="" order="" to="" clarify="" that="" if="" a="" transporter="" stores="" universal="" waste="" for="" greater="" than="" 10="" days,="" the="" transporter="" becomes="" a="" small="" or="" large="" quantity="" handler="" of="" universal="" waste.="" under="" this="" circumstance,="" the="" small="" or="" large="" quantity="" handler="" requirements="" apply,="" which="" allow="" for="" up="" to="" one="" year="" accumulation.="" the="" fourth="" section="" of="" subpart="" d="" contains="" the="" response="" to="" release="" standards="" for="" transporters.="" in="" the="" final="" rule,="" these="" requirements="" remain="" essentially="" unaltered="" from="" those="" in="" the="" proposed="" rule.="" these="" response="" to="" release="" requirements="" are="" found="" in="" sec.="" 273.54="" of="" today's="" rule.="" section="" iv.e.7.="" of="" today's="" preamble="" contains="" a="" full="" discussion="" of="" this="" subject.="" the="" off-site="" shipment="" provision="" for="" transporters="" is="" found="" in="" sec.="" 273.55="" of="" today's="" final="" rule.="" this="" requirement="" was="" located="" with="" other="" prohibitions="" in="" the="" ``transporter="" requirements''="" section="" of="" the="" proposed="" rule.="" in="" the="" final="" rule,="" the="" agency="" has="" moved="" the="" requirement="" to="" a="" new="" off-site="" shipments="" section,="" sec.="" 273.55,="" under="" subpart="" d.="" this="" modification="" makes="" the="" provision="" easier="" to="" locate,="" and="" thus="" makes="" the="" entire="" regulation="" easier="" to="" follow.="" although="" the="" agency="" has="" shifted="" the="" placement="" of="" this="" provision,="" the="" requirement="" has="" been="" substantially="" retained.="" additionally,="" in="" the="" proposed="" rule,="" transporters="" were="" only="" authorized="" to="" transport="" universal="" waste="" to="" consolidation="" points="" or="" destination="" facilities.="" in="" today's="" final="" rule,="" the="" terms="" generator="" and="" consolidation="" point="" have="" been="" redefined="" and="" replaced="" with="" small="" quantity="" handler="" of="" universal="" waste="" and="" large="" quantity="" handler="" of="" universal="" waste.="" in="" today's="" final="" rule,="" a="" transporter="" may="" transport="" a="" shipment="" of="" universal="" waste="" to="" a="" small="" quantity="" handler,="" large="" quantity="" handler,="" or="" destination="" facility.="" the="" final="" section="" of="" subpart="" d="" contains="" the="" export="" requirements="" for="" transporters="" shipping="" universal="" waste="" to="" a="" foreign="" destination.="" these="" requirements="" have="" been="" moved="" from="" the="" ``export="" requirements''="" section="" of="" the="" proposed="" rule="" and="" are="" now="" found="" in="" sec.="" 273.56="" of="" today's="" final="" rule.="" this="" modification="" makes="" it="" easier="" for="" transporters="" shipping="" universal="" waste="" to="" a="" foreign="" destination="" to="" locate="" the="" requirements.="" a="" full="" discussion="" of="" this="" topic="" is="" found="" in="" section="" iv.e.10.="" of="" this="" preamble.="" again,="" although="" the="" agency="" has="" relocated="" this="" provision,="" the="" requirement="" has="" been="" substantially="" retained.="" iv.g.="" destination="" facility="" requirements="" under="" the="" proposed="" part="" 273="" regulations,="" destination="" facilities="" were="" referred="" to="" the="" current="" parts="" 264,="" 265,="" and="" 270="" and="" sec.="" 261.6(c)(2)="" requirements="" applicable="" to="" permitted="" or="" interim="" status="" hazardous="" waste="" treatment,="" storage,="" and="" disposal="" (tsd)="" facilities,="" or="" recycling="" facilities="" that="" do="" not="" store="" hazardous="" waste="" prior="" to="" recycling.="" these="" sections="" include="" notification="" requirements,="" general="" facility="" standards,="" unit-specific="" management="" standards,="" and="" permitting="" requirements.="" in="" the="" final="" rule,="" the="" requirements="" for="" destination="" facilities="" remain="" substantially="" unchanged,="" with="" two="" minor="" modifications="" and="" added="" provisions="" related="" to="" off-site="" shipments="" and="" recordkeeping.="" the="" destination="" facility="" requirements="" are="" found="" in="" [[page="" 25534]]="" subpart="" e="" of="" today's="" final="" rule.="" the="" first="" modification="" revises="" the="" language="" of="" sec.="" 273.60(a)="" to="" correlate="" with="" the="" revised="" definition="" of="" destination="" facility="" in="" the="" final="" rule.="" (in="" response="" to="" comments,="" epa="" has="" redefined="" destination="" facility="" to="" mean="" ``a="" facility="" that="" treats,="" disposes="" of,="" or="" recycles="" a="" particular="" category="" of="" universal="" waste,="" except="" those="" management="" activities="" described="" in="" paragraphs="" (a)="" and="" (c)="" of="" secs.="" 273.13="" and="" 273.33.="" a="" facility="" at="" which="" a="" particular="" category="" of="" universal="" waste="" is="" only="" accumulated,="" is="" not="" a="" destination="" facility="" for="" purposes="" of="" managing="" that="" category="" of="" universal="" waste.''="" a="" full="" discussion="" of="" this="" revision="" can="" be="" found="" at="" section="" iv.d.3="" of="" today's="" preamble="" under="" universal="" waste="" handlers="" -="" destination="" facilities).="" the="" second="" modification="" is="" that="" the="" export="" requirements="" applicable="" to="" destination="" facilities="" have="" been="" moved="" into="" subpart="" e,="" sec.="" 273.63,="" to="" make="" them="" easier="" for="" destination="" facility="" owners="" and="" operators="" to="" locate="" (see="" iii.f.10="" of="" this="" preamble="" for="" a="" discussion="" of="" issues="" related="" to="" exports).="" in="" addition="" to="" these="" modifications,="" two="" additional="" provisions="" have="" been="" added="" to="" part="" 273,="" subpart="" e.="" the="" first="" new="" provision,="" 40="" cfr="" 273.61,="" was="" added="" in="" response="" to="" several="" commenters="" who="" expressed="" concern="" regarding="" the="" authority="" of="" destination="" facilities="" to="" reject="" shipments="" of="" universal="" waste="" and="" the="" appropriate="" measures="" to="" be="" taken="" if="" a="" shipment="" is="" rejected.="" this="" new="" requirement="" is="" discussed="" in="" detail="" in="" the="" section="" of="" this="" preamble="" entitled="" ``off-site="" shipments.''="" the="" second="" provision="" added="" to="" subpart="" e="" of="" part="" 273,="" 40="" cfr="" 273.62,="" requires="" that="" the="" owner="" or="" operator="" of="" a="" destination="" facility="" keep="" basic="" documentation="" tracking="" universal="" waste="" shipments="" that="" arrive="" at="" the="" destination="" facility.="" under="" the="" proposal,="" owners="" and="" operators="" of="" destination="" facilities="" would="" have="" been="" required="" to="" keep,="" for="" three="" years,="" manifests="" documenting="" receipt="" of="" shipments="" of="" universal="" wastes="" from="" consolidation="" points.="" (see="" proposed="" 40="" cfr="" 273.14(a)="" and="" 273.24(a),="" and="" existing="" 40="" cfr="" 264.71(b)(5)="" and="" 265.71(b)(5)).="" records="" of="" shipments="" received="" from="" generators,="" without="" manifests,="" would="" have="" been="" required="" as="" part="" of="" the="" operating="" record="" (see="" existing="" 40="" cfr="" 264.73(b)(1)="" and="" (d)="" and="" 265.75(c)="" and="" (d)).="" in="" the="" final="" rule,="" no="" manifests="" will="" be="" used="" for="" shipments="" received="" by="" destination="" facilities="" (see="" iv.e.9="" of="" this="" preamble="" for="" a="" discussion="" of="" tracking="" issues).="" therefore,="" in="" sec.="" 273.62="" of="" today's="" final="" rule,="" owners="" and="" operators="" of="" destination="" facilities="" must="" keep="" the="" same="" records="" for="" receipt="" of="" universal="" waste="" shipments="" as="" those="" kept="" by="" handlers="" of="" large="" quantities="" of="" universal="" wastes.="" section="" 273.62(a)="" requires="" the="" owner="" or="" operator="" of="" a="" destination="" facility="" to="" keep="" a="" record="" of="" universal="" waste="" received="" at="" the="" facility.="" the="" record="" must="" include="" information="" on="" the="" name="" and="" address="" of="" the="" universal="" waste="" handler="" or="" foreign="" shipper="" from="" whom="" the="" universal="" waste="" was="" sent;="" the="" quantity="" of="" each="" type="" of="" universal="" waste="" received;="" and="" the="" date="" of="" receipt="" of="" the="" shipment="" of="" universal="" waste.="" section="" 273.62(b)="" requires="" that="" these="" records="" be="" retained="" for="" at="" least="" three="" years="" from="" the="" date="" of="" receipt="" of="" a="" shipment="" of="" universal="" waste.="" this="" provision="" will="" complete="" the="" record="" of="" universal="" waste="" shipments,="" providing="" documentation="" of="" receipt="" and="" allowing="" comparison="" of="" outgoing="" shipments="" from="" handlers="" against="" received="" shipments="" at="" destination="" facilities.="" no="" specific="" form="" is="" required="" for="" maintaining="" these="" records,="" and="" the="" agency="" believes="" that="" standard="" business="" records="" that="" would="" normally="" be="" kept="" by="" any="" business="" will="" fulfill="" this="" requirement.="" several="" commenters="" requested="" that="" epa="" relax="" the="" destination="" facility="" requirements="" for="" recycling="" facilities="" in="" order="" to="" stimulate="" recycling="" efforts.="" commenters="" argued="" that="" obtaining="" a="" rcra="" permit="" is="" time="" consuming="" and="" cost="" prohibitive="" and,="" in="" most="" cases="" unprofitable="" for="" the="" recycling="" facilities.="" they="" stated,="" also,="" that="" the="" requirement="" for="" obtaining="" a="" rcra="" part="" b="" permit="" is="" a="" disincentive="" for="" recycling="" facilities="" to="" accept="" the="" wastes="" and="" assume="" the="" associated="" liabilities.="" in="" addition,="" one="" commenter="" believed="" that="" lack="" of="" reclamation="" capacity="" is="" one="" of="" the="" factors="" limiting="" recycling="" efforts,="" and="" that="" one="" of="" the="" principal="" causes="" of="" this="" lack="" of="" capacity="" is="" subtitle="" c="" requirements="" applicable="" to="" reclamation="" facilities.="" while="" epa="" supports="" recycling,="" a="" change="" to="" the="" requirements="" for="" destination="" facilities="" that="" recycle="" universal="" waste="" is="" beyond="" the="" scope="" of="" this="" regulation="" which="" is="" intended="" to="" focus="" on="" the="" collection="" phase="" of="" universal="" waste="" management="" rather="" than="" the="" final="" treatment,="" disposal,="" or="" recycling="" phase.="" as="" discussed="" in="" the="" background="" section="" of="" this="" preamble="" entitled="" ``definition="" of="" solid="" waste="" task="" force,''="" the="" agency="" has="" an="" ongoing="" effort="" to="" broadly="" address="" the="" question="" of="" how="" hazardous="" waste="" recycling="" should="" be="" regulated.="" any="" modification="" of="" regulatory="" requirements="" for="" recyclers,="" including="" universal="" waste="" recyclers,="" will="" be="" a="" part="" of="" this="" broader="" effort.="" therefore,="" in="" today's="" final="" rule,="" the="" agency="" is="" maintaining="" the="" requirements="" proposed="" for="" destination="" facilities="" that="" recycle="" waste.="" iv.h.="" imports="" of="" universal="" waste="" several="" commenters="" pointed="" out="" that="" the="" agency="" did="" not="" address="" the="" issue="" of="" imports="" in="" the="" proposed="" universal="" waste="" rule.="" this="" was="" an="" oversight.="" the="" agency="" intended="" that="" once="" universal="" waste="" entered="" the="" country="" it="" would="" be="" subject="" to="" the="" same="" universal="" waste="" rules="" as="" any="" other="" universal="" waste.="" to="" clarify="" this,="" the="" final="" rule="" includes="" import="" requirements="" in="" 40="" cfr="" 273.70,="" which="" is="" subpart="" f="" of="" part="" 273.="" section="" 273.70="" clarifies="" that="" universal="" waste="" that="" is="" imported="" from="" another="" country="" must="" be="" managed,="" upon="" entry="" into="" the="" country,="" in="" compliance="" with="" the="" appropriate="" universal="" waste="" requirements="" for="" transporters,="" handlers,="" or="" destination="" facilities,="" depending="" on="" the="" universal="" waste="" management="" activities="" conducted="" within="" the="" united="" states.="" for="" example,="" if="" a="" person="" imports="" universal="" waste="" into="" the="" united="" states="" and="" only="" transports="" the="" imported="" waste="" to="" a="" facility="" owned="" and="" operated="" by="" someone="" else,="" he="" is="" subject="" to="" the="" transporter="" requirements="" of="" subpart="" d="" of="" part="" 273.="" however,="" if="" a="" person="" imports="" universal="" waste="" into="" the="" united="" states="" and="" subsequently="" transports="" the="" universal="" waste="" to="" his="" own="" facility,="" the="" universal="" waste="" handler="" is="" subject="" to="" the="" transporter="" requirements="" for="" transport="" of="" the="" universal="" waste,="" and="" to="" the="" small="" or="" large="" handler="" requirements="" of="" subparts="" b="" or="" c="" for="" management="" at="" the="" receiving="" facility.="" to="" determine="" whether="" the="" handler="" is="" a="" small="" or="" large="" quantity="" handler,="" universal="" waste="" imported="" from="" a="" foreign="" country="" is="" counted="" toward="" the="" quantity="" of="" waste="" accumulated="" as="" any="" other="" universal="" waste="" would="" be.="" if="" the="" handler="" is="" a="" large="" quantity="" handler="" of="" universal="" waste,="" he="" must="" also="" comply="" with="" the="" tracking="" requirements="" for="" receipt="" of="" shipments="" at="" 40="" cfr="" 273.39(a).="" if="" a="" person="" imports="" the="" waste="" into="" the="" united="" states="" and="" subsequently="" transports="" the="" universal="" waste="" to="" his="" own="" destination="" facility,="" he="" is="" subject="" to="" the="" destination="" facility="" subpart="" e="" requirements="" for="" management="" at="" the="" receiving="" facility.="" iv.i.="" land="" disposal="" restrictions="" pursuant="" to="" the="" land="" disposal="" restrictions="" (ldr)="" provisions="" of="" the="" hazardous="" and="" solid="" waste="" amendments="" of="" 1984="" (hswa),="" all="" hazardous="" wastes="" listed="" or="" identified="" in="" accordance="" with="" rcra="" section="" 3001="" require="" treatment="" prior="" to="" land="" disposal,="" on="" specified="" timetables,="" from="" land="" disposal.="" the="" regulations="" for="" the="" ldr="" program="" in="" 40="" cfr="" part="" 268="" apply="" to="" persons="" who="" generate="" or="" transport="" [[page="" 25535]]="" hazardous="" waste="" and="" owners="" and="" operators="" of="" hazardous="" waste="" treatment,="" storage,="" and="" disposal="" facilities,="" unless="" they="" are="" specifically="" excluded="" from="" regulation="" in="" parts="" 261="" or="" 268.="" to="" address="" the="" ldr="" program="" for="" universal="" wastes,="" the="" proposed="" universal="" waste="" rule="" required="" that="" generators,="" transporters,="" and="" consolidation="" points="" managing="" universal="" waste="" comply="" with="" all="" of="" the="" substantive="" land="" disposal="" restrictions="" requirements,="" but="" not="" the="" administrative="" requirements.="" these="" substantive="" requirements="" included:="" (1)="" a="" prohibition="" on="" accumulating="" prohibited="" wastes="" directly="" on="" the="" land="" (land="" disposal);="" (2)="" a="" requirement="" to="" treat="" wastes="" to="" meet="" treatment="" standards="" prior="" to="" land="" disposal;="" (3)="" a="" prohibition="" on="" dilution;="" and="" (4)="" a="" prohibition="" on="" waste="" accumulation="" except="" for="" purposes="" of="" accumulating="" quantities="" sufficient="" for="" proper="" recovery,="" treatment="" or="" disposal.="" see="" universal="" waste="" proposed="" rule="" at="" 58="" fr="" 812="" and="" 8124="" for="" a="" detailed="" discussion="" of="" how="" each="" of="" these="" substantive="" requirements="" were="" to="" be="" implemented="" for="" universal="" wastes.="" under="" the="" proposal,="" destination="" facilities="" remained="" subject="" to="" all="" of="" the="" part="" 268="" land="" disposal="" restrictions.="" commenters="" overwhelmingly="" supported="" the="" proposed="" approach="" of="" requiring="" collectors="" of="" universal="" waste="" to="" comply="" with="" the="" substantive="" ldr="" requirements="" but="" not="" the="" ldr="" administrative="" requirements="" (e.g.,="" notification="" to="" all="" handlers="" of="" applicable="" treatment="" standards).="" they="" agreed="" that="" the="" procedural="" land="" disposal="" restrictions="" requirements="" would="" be="" a="" significant="" disincentive="" to="" persons="" managing="" universal="" waste="" under="" part="" 273.="" commenters="" also="" agreed="" that="" due="" to="" the="" unique="" nature="" of="" universal="" wastes="" (i.e.,="" easily="" identifiable,="" treatment="" standards="" easily="" identifiable,="" contained),="" the="" substantive="" requirements="" proposed="" would="" be="" sufficient="" to="" ensure="" that="" the="" goals="" of="" the="" land="" disposal="" restrictions="" program="" are="" met="" for="" universal="" waste="" managed="" under="" part="" 273.="" based="" on="" these="" comments,="" the="" final="" rule="" generally="" retains="" the="" proposed="" approach="" to="" ensuring="" that="" collectors="" of="" universal="" waste="" (small="" and="" large="" handlers="" and="" transporters)="" manage="" the="" waste="" in="" compliance="" with="" the="" substantive="" requirements="" of="" the="" ldr="" program.="" each="" of="" the="" proposed="" requirements,="" comments="" received="" on="" the="" proposed="" requirements,="" and="" any="" changes="" made="" in="" the="" final="" rule="" are="" discussed="" in="" detail="" in="" the="" sections="" of="" this="" preamble="" addressing="" the="" specific="" requirements.="" as="" in="" the="" proposal,="" under="" the="" final="" rule,="" destination="" facilities="" are="" required="" to="" comply="" with="" all="" of="" the="" part="" 268="" ldr="" requirements="" for="" universal="" waste,="" including="" both="" the="" substantive="" and="" administrative="" requirements.="" thus,="" all="" universal="" waste="" will="" be="" treated="" or="" disposed="" of="" in="" compliance="" with="" ldr="" treatment="" standards="" and="" the="" appropriate="" documentation="" regarding="" such="" compliance="" will="" be="" maintained="" by="" destination="" facilities.="" a="" number="" of="" commenters="" did,="" however,="" raise="" specific="" concerns="" about="" the="" proposed="" approach="" to="" implementing="" the="" ldr="" requirements="" for="" universal="" waste.="" these="" comments="" and="" changes="" made="" to="" the="" final="" rule="" to="" address="" them="" are="" discussed="" in="" detail="" in="" the="" section="" iv.e.5="" of="" this="" preamble,="" entitled="" ``accumulation="" time="" limits.''="" iv.j.="" regenerated="" batteries="" in="" the="" proposed="" rule,="" the="" agency="" requested="" comment="" on="" whether="" the="" existing="" 40="" cfr="" 261.6(a)(3)(ii)="" exemption="" from="" regulation="" for="" used="" batteries="" that="" are="" returned="" to="" a="" battery="" manufacturer="" for="" regeneration="" should="" be="" retained,="" or="" changed="" to="" correspond="" with="" the="" changes="" proposed="" for="" management="" of="" other="" batteries="" (58="" fr="" 81250).="" although="" the="" agency="" expressed="" concern="" that="" having="" multiple="" special="" provisions="" for="" batteries="" would="" be="" confusing="" for="" regulated="" parties="" and="" implementing="" agencies,="" epa="" proposed="" to="" retain="" the="" exemption="" to="" avoid="" disrupting="" the="" regeneration="" of="" used="" batteries.="" the="" final="" rule="" removes="" the="" 40="" cfr="" 261.6="" exemption="" for="" used="" batteries="" that="" are="" to="" be="" regenerated,="" and="" adds="" a="" provision="" at="" sec.="" 273.13(a)="" and="" 273.33(a)="" such="" that="" facilities="" regenerating="" used="" batteries="" are="" now="" subject="" to="" the="" part="" 273="" standards="" for="" small="" or="" large="" quantity="" handlers="" of="" universal="" waste,="" depending="" on="" the="" quantity="" of="" batteries="" they="" accumulate.="" in="" effect,="" this="" change="" results="" in="" the="" management="" of="" batteries="" that="" are="" to="" be="" regenerated="" together="" with="" all="" other="" batteries="" under="" part="" 273="" during="" collection,="" and="" subjects="" the="" regeneration="" facility="" to="" the="" same="" requirements="" as="" other="" facilities="" receiving="" batteries="" but="" not="" breaking="" open="" battery="" casings.="" 40="" cfr="" 266.80(a)="" and="" (b)="" have="" also="" been="" revised="" to="" clarify="" that="" lead-acid="" batteries="" that="" are="" regenerated="" remain="" exempt="" from="" the="" hazardous="" waste="" regulations="" throughout="" the="" management="" cycle.="" since="" the="" final="" rule="" retains="" the="" lead-acid="" battery="" provisions="" of="" 40="" cfr="" 266.80,="" it="" is="" most="" appropriate="" to="" also="" include="" regenerated="" lead-acid="" batteries="" so="" that="" all="" lead-acid="" batteries="" may="" be="" managed="" similarly.="" however,="" since="" the="" activities="" of="" a="" regeneration="" facility="" are="" more="" similar="" to="" a="" facility="" that="" accumulates="" waste="" than="" a="" facility="" that="" processes="" a="" waste="" to="" recover="" a="" usable="" product,="" batteries="" that="" are="" regenerated="" have="" also="" been="" exempted="" from="" the="" requirements="" for="" lead-acid="" battery="" reclamation="" facilities.="" the="" agency="" decided="" to="" include="" regenerated="" batteries="" under="" part="" 273="" for="" several="" reasons.="" first,="" although="" a="" number="" of="" commenters="" supported="" retaining="" the="" exemption,="" several="" commenters="" documented="" the="" confusion="" that="" already="" exists="" concerning="" applicability="" of="" the="" current="" exemption,="" and="" several="" expressed="" concern="" about="" the="" additional="" confusion="" that="" would="" be="" added="" by="" having="" multiple="" provisions="" for="" battery="" management.="" regulating="" all="" used="" batteries="" under="" the="" same="" provisions="" will="" eliminate="" this="" confusion,="" making="" it="" easier="" for="" the="" regulated="" community="" and="" regulating="" agencies="" to="" implement="" the="" battery="" management="" regulations.="" in="" addition,="" regulating="" all="" hazardous="" waste="" batteries="" under="" the="" same="" provisions="" will="" eliminate="" the="" confusion="" expressed="" by="" several="" commenters="" about="" how="" the="" exemption="" applies="" in="" situations="" where="" those="" handling="" the="" battery="" do="" not="" know="" whether="" the="" battery="" is="" regenerable,="" and="" thus="" do="" not="" know="" whether="" the="" battery="" will="" be="" regenerated="" or="" recycled.="" the="" applicable="" requirements="" will="" be="" the="" same="" whether="" the="" battery="" is="" determined="" to="" be="" regenerable,="" or="" is="" sent="" on="" for="" reclamation="" at="" another="" facility.="" second,="" because="" the="" risks="" of="" accumulating="" and="" transporting="" used="" batteries="" that="" are="" to="" be="" regenerated="" (and="" particularly="" those="" that="" may="" or="" may="" not="" be="" regenerated)="" are="" similar="" to="" the="" risks="" of="" managing="" any="" other="" used="" battery,="" the="" two="" should="" be="" regulated="" similarly.="" because="" the="" agency="" believes="" that="" the="" risks="" are="" low="" relative="" to="" other="" hazardous="" wastes="" because="" the="" battery="" casings="" remain="" intact,="" both="" battery="" types="" should="" be="" subject="" to="" the="" same="" basic="" management="" standards="" included="" in="" part="" 273.="" third,="" the="" agency="" does="" not="" believe="" that="" compliance="" with="" part="" 273="" requirements="" will="" be="" overly="" burdensome="" for="" persons="" managing="" batteries="" that="" are="" to="" be="" regenerated.="" as="" discussed="" previously,="" the="" requirements="" for="" generators,="" transporters,="" and="" consolidation="" points="" (which="" would="" be="" applicable="" to="" regenerators)="" generally="" consist="" of="" basic="" good="" management="" practices="" and="" only="" require="" notification="" or="" recordkeeping="" if="" large="" quantities="" of="" batteries="" are="" managed.="" in="" addition,="" these="" requirements="" would="" be="" applicable="" in="" any="" case="" if="" a="" battery="" is="" determined="" not="" to="" be="" regenerable="" and="" thus="" is="" otherwise="" recycled.="" finally,="" the="" agency="" decided="" to="" subject="" regeneration="" facilities="" to="" the="" requirements="" for="" small="" or="" large="" quantity="" handlers="" of="" universal="" waste,="" depending="" on="" the="" quantity="" accumulated)="" because="" [[page="" 25536]]="" the="" activities="" conducted="" by="" such="" facilities="" are="" basically="" the="" same="" and="" thus="" the="" risks="" are="" basically="" the="" same.="" both="" facilities="" accumulate="" batteries,="" but="" do="" not="" damage="" the="" integrity="" of="" the="" battery="" casings.="" thus,="" the="" agency="" believes="" that="" the="" regulations="" applicable="" to="" such="" facilities="" should="" be="" the="" same.="" v.="" state="" authority="" a.="" applicability="" of="" rules="" in="" authorized="" states="" under="" section="" 3006="" of="" rcra,="" epa="" may="" authorize="" qualified="" states="" to="" administer="" and="" enforce="" the="" rcra="" program="" within="" the="" state.="" following="" authorization,="" epa="" retains="" enforcement="" authority="" under="" sections="" 3008,="" 3013,="" and="" 7003="" of="" rcra,="" although="" authorized="" states="" have="" primary="" enforcement="" responsibility.="" the="" standards="" and="" requirements="" for="" authorization="" are="" found="" at="" 40="" cfr="" part="" 271.="" prior="" to="" enactment="" of="" the="" hazardous="" and="" solid="" waste="" amendments="" of="" 1984="" (hswa),="" a="" state="" with="" final="" rcra="" authorization="" administered="" its="" hazardous="" waste="" program="" entirely="" in="" lieu="" of="" epa="" administering="" the="" federal="" program="" in="" that="" state.="" the="" federal="" requirements="" no="" longer="" applied="" in="" the="" authorized="" state,="" and="" epa="" could="" not="" issue="" permits="" for="" any="" facilities="" in="" that="" state,="" since="" only="" the="" state="" was="" authorized="" to="" issue="" rcra="" permits.="" when="" new,="" more="" stringent="" federal="" requirements="" were="" promulgated="" or="" enacted,="" the="" state="" was="" obliged="" to="" enact="" equivalent="" authorities="" within="" specified="" time="" frames.="" however,="" the="" new="" federal="" requirements="" did="" not="" take="" effect="" in="" an="" authorized="" state="" until="" the="" state="" adopted="" the="" federal="" requirements="" as="" state="" law.="" in="" contrast,="" under="" rcra="" section="" 3006(g)="" (42="" u.s.c.="" 6926(g)),="" which="" was="" added="" by="" hswa,="" new="" requirements="" and="" prohibitions="" imposed="" under="" hswa="" authority="" take="" effect="" in="" authorized="" states="" at="" the="" same="" time="" that="" they="" take="" effect="" in="" unauthorized="" states.="" epa="" is="" directed="" by="" statute="" to="" implement="" these="" requirements="" and="" prohibitions="" in="" authorized="" states,="" including="" the="" issuance="" of="" permits,="" until="" the="" state="" is="" granted="" authorization="" to="" do="" so.="" while="" states="" must="" still="" adopt="" hswa="" related="" provisions="" as="" state="" law="" to="" retain="" final="" authorization,="" the="" hswa="" provisions="" are="" implemented="" by="" epa="" in="" authorized="" states="" in="" the="" interim.="" b.="" effect="" on="" state="" authorization="" today's="" amendments="" to="" the="" hazardous="" waste="" regulations="" are="" not="" effective="" in="" authorized="" states="" since="" the="" requirements="" are="" not="" being="" promulgated="" pursuant="" to="" hswa.="" thus,="" the="" universal="" waste="" standards="" are="" applicable="" as="" part="" of="" the="" rcra="" program="" upon="" the="" effective="" date="" only="" in="" those="" states="" that="" do="" not="" have="" final="" rcra="" authorization.="" in="" authorized="" states,="" the="" amendments="" will="" not="" be="" applicable="" until="" the="" state="" revises="" its="" program="" to="" adopt="" equivalent="" requirements="" under="" state="" law="" and="" is="" authorized="" by="" epa="" for="" the="" amendments.="" it="" should="" be="" noted="" that="" authorized="" states="" are="" only="" required="" to="" modify="" their="" programs="" when="" epa="" promulgates="" federal="" standards="" that="" are="" more="" stringent="" or="" broader="" in="" scope="" than="" the="" existing="" federal="" standards.="" section="" 3009="" of="" rcra="" allows="" states="" to="" impose="" standards="" more="" stringent="" than,="" or="" in="" addition="" to="" those="" in="" the="" federal="" program.="" the="" amendments="" in="" today's="" rule="" are="" not="" considered="" to="" be="" more="" stringent="" than="" the="" existing="" federal="" requirements.="" therefore,="" authorized="" states="" are="" not="" required="" to="" modify="" their="" programs="" to="" adopt="" requirements="" equivalent="" to="" the="" provisions="" contained="" in="" today's="" rule.="" even="" though="" states="" are="" not="" required="" to="" adopt="" today's="" rule,="" epa="" strongly="" encourages="" them="" to="" do="" so.="" in="" addition="" to="" the="" expected="" benefits="" of="" the="" universal="" waste="" program="" discussed="" in="" the="" proposed="" and="" final="" rules,="" epa="" also="" believes="" that="" the="" new="" streamlined="" approach="" to="" management="" of="" universal="" wastes="" will="" contribute="" to="" more="" efficient="" and="" effective="" state="" programs.="" for="" these="" reasons,="" states="" are="" therefore="" urged="" to="" adopt="" today's="" rule="" and="" submit="" to="" epa="" the="" program="" modification="" for="" approval="" in="" advance="" of,="" or="" according="" to,="" the="" schedule="" that="" applies="" to="" mandatory="" program="" revisions="" pursuant="" to="" 40="" cfr="" 271.21(e).="" c.="" comments="" regarding="" the="" proposed="" rule="" a="" number="" of="" commenters="" disagreed="" with="" the="" agency's="" conclusion="" that="" the="" universal="" waste="" regulations="" are="" based="" on="" pre-hswa="" authorities="" in="" rcra.="" commenters="" argued="" that="" because="" the="" universal="" waste="" regulations="" will="" further="" many="" of="" the="" broad="" goals="" outlined="" in="" hswa,="" epa="" could="" consider="" the="" regulation="" to="" be="" part="" of="" hswa="" authority.="" in="" addition,="" several="" commenters="" stated="" that="" the="" varying="" effective="" dates="" from="" state="" to="" state="" will="" make="" participation="" in="" multi-state="" universal="" waste="" collection="" programs="" more="" difficult.="" these="" commenters="" urged="" the="" agency="" to="" promulgate="" the="" rule="" as="" a="" hswa="" rule="" in="" order="" to="" ease="" these="" difficulties="" and="" speed="" realization="" of="" the="" benefits="" of="" the="" rule.="" several="" commenters="" suggested="" specific="" changes="" to="" the="" proposed="" universal="" waste="" regulations="" that="" they="" argued="" would="" be="" more="" stringent="" than="" the="" current="" hazardous="" waste="" program="" and="" would="" allow="" the="" agency="" to="" require="" authorized="" states="" to="" adopt="" the="" universal="" waste="" program.="" a="" number="" of="" commenters="" also="" urged="" the="" agency="" to="" promulgate="" the="" existing="" proposed="" rule="" as="" a="" more="" stringent="" rule="" ensure="" that="" authorized="" states="" would="" be="" required="" to="" adopt="" the="" rule,="" thus="" ensuring="" that="" it="" would="" be="" effective="" in="" all="" states.="" they="" again="" noted="" that="" having="" the="" rule="" effective="" in="" some="" states="" but="" not="" others="" would="" result="" in="" implementation="" difficulties.="" the="" commenters="" also="" note="" that="" the="" full="" benefits="" which="" could="" be="" realized="" from="" a="" national="" universal="" waste="" program="" may="" not="" be="" achieved="" if="" the="" program="" is="" not="" implemented="" in="" all="" states="" across="" the="" country.="" the="" agency="" agrees="" with="" the="" aim="" of="" those="" commenters="" who="" wish="" to="" achieve="" the="" uniform="" application="" of="" the="" universal="" waste="" rule="" that="" would="" be="" possible="" if="" the="" rule="" were="" to="" be="" promulgated="" under="" hswa="" authority.="" however,="" epa="" believes="" that="" the="" authority="" to="" promulgate="" today's="" amendments="" is="" not="" sufficiently="" linked="" to="" hswa="" provisions="" to="" be="" a="" rule="" implementing="" hswa.="" thus,="" the="" agency="" believes="" that="" the="" appropriate="" authority="" for="" promulgation="" of="" this="" rule="" is="" non-hswa.="" the="" agency="" agrees="" with="" the="" commenters="" that="" because="" the="" promulgated="" rule="" is="" less="" stringent="" than="" the="" current="" rcra="" program,="" difficulties="" may="" arise="" if="" the="" universal="" waste="" regulations="" are="" not="" adopted="" by="" all="" states.="" however,="" the="" changes="" necessary="" to="" make="" the="" universal="" waste="" rule="" more="" stringent="" would="" significantly="" diminish="" the="" benefits="" to="" be="" gained="" from="" this="" rule.="" thus,="" because="" today's="" rule="" is="" less="" stringent="" than="" the="" existing="" requirements="" for="" managing="" hazardous="" wastes,="" authorized="" states="" are="" not="" required="" to="" adopt="" the="" universal="" waste="" regulations.="" the="" agency="" is="" encouraged="" however,="" by="" comments="" on="" the="" proposed="" rule="" received="" from="" program="" offices="" in="" 28="" different="" states.="" the="" overwhelming="" response="" from="" these="" state="" agencies="" demonstrates="" strong="" support="" for="" the="" universal="" waste="" program.="" the="" agency="" believes="" that="" many="" states="" will="" modify="" their="" current="" state="" programs="" to="" include="" the="" provisions="" of="" the="" final="" rule,="" and="" strongly="" encourages="" states="" to="" adopt="" the="" universal="" waste="" regulations.="" as="" an="" incentive="" to="" encourage="" states="" to="" adopt="" the="" universal="" waste="" regulations,="" and="" become="" authorized="" for="" them,="" epa="" is="" planning="" to="" use="" a="" streamlined="" application="" procedure.="" this="" procedure="" will="" reduce="" in="" scope="" several="" program="" revision="" application="" components.="" in="" addition,="" epa="" will="" make="" electronic="" versions="" of="" this="" rule="" and="" its="" associated="" authorization="" checklists="" available="" on="" the="" state="" authorization="" bulletin="" board="" system.="" the="" agency="" believes="" that="" these="" [[page="" 25537]]="" efforts,="" together="" with="" the="" aforementioned="" benefits="" to="" be="" gained="" from="" adopting="" the="" universal="" waste="" regulations,="" will="" help="" encourage="" most,="" if="" not="" all,="" states="" to="" adopt="" the="" universal="" waste="" regulations="" within="" a="" reasonable="" period="" of="" time.="" d.="" universal="" waste="" state="" authorization="" issues="" 1.="" addition="" of="" new="" universal="" wastes="" to="" state="" programs="" the="" agency="" notes="" that="" states,="" if="" they="" so="" choose,="" may="" seek="" authorization="" for="" the="" portions="" of="" sec.="" 260.20="" that="" address="" petitions="" to="" add="" new="" universal="" wastes,="" and="" for="" 40="" cfr="" 260.23="" and="" subpart="" g="" of="" part="" 273,="" which="" address="" the="" petition="" process="" and="" include="" the="" factors="" to="" be="" used="" to="" evaluate="" petitions.="" the="" authorization="" of="" states="" for="" the="" petition="" process="" is="" similar="" in="" many="" respects="" to="" the="" authorization="" of="" states="" for="" the="" delisting="" program="" (see="" 40="" cfr="" 260.20="" and="" 260.22)="" or="" the="" variance="" from="" classification="" as="" a="" solid="" waste="" (see="" 40="" cfr="" 260.31).="" states="" authorized="" for="" the="" petition="" process="" would="" use="" evaluation="" factors="" analogous="" to="" those="" in="" sec.="" 273.81="" to="" review="" petitions="" and="" make="" decisions="" as="" to="" whether="" to="" add="" hazardous="" wastes="" to="" the="" state="" universal="" waste="" regulations.="" management="" standards="" for="" these="" wastes="" would="" also="" be="" developed="" by="" the="" state="" using="" the="" criteria="" in="" subpart="" g="" of="" part="" 273.="" the="" individual="" wastes="" and="" management="" standards="" would="" not="" be="" subject="" to="" the="" authorization="" revision="" provisions="" in="" 40="" cfr="" 271.21,="" since="" the="" state="" would="" already="" be="" authorized="" for="" the="" universal="" waste="" regulations="" and="" the="" regulation="" of="" hazardous="" wastes.="" moreover,="" the="" state="" rulemaking="" procedures,="" including="" those="" addressing="" public="" participation,="" are="" equivalent="" to="" the="" rulemaking="" procedures="" epa="" employs.="" of="" course,="" a="" state="" could="" not="" approve="" a="" petition="" for="" a="" waste="" it="" is="" not="" authorized="" to="" regulate="" as="" hazardous.="" for="" example,="" a="" state="" could="" not="" approve="" a="" petition="" for="" a="" waste="" that="" is="" hazardous="" due="" to="" the="" toxicity="" characteristic="" (tc)="" if="" the="" state="" is="" not="" authorized="" for="" the="" tc.="" although="" such="" a="" petition="" would="" properly="" be="" directed="" to="" epa="" for="" a="" decision,="" the="" agency="" does="" not="" expect="" this="" situation="" to="" occur="" frequently.="" if="" an="" authorized="" state="" adds="" new="" hazardous="" wastes="" to="" its="" universal="" waste="" program,="" management="" of="" that="" waste="" under="" the="" universal="" waste="" regulations="" would="" only="" be="" allowed="" within="" that="" state="" or="" other="" states="" that="" have="" added="" the="" wastes="" to="" their="" universal="" waste="" regulations.="" thus,="" the="" waste="" could="" be="" collected="" and="" consolidated="" within="" a="" state="" that="" has="" added="" a="" waste,="" but="" shipments="" to="" a="" state="" where="" the="" universal="" waste="" standards="" do="" not="" apply="" to="" that="" waste="" would="" have="" to="" comply="" with="" the="" full="" hazardous="" waste="" requirements="" (e.g.,="" for="" transportation,="" manifests,="" interim="" storage).="" it="" should="" be="" noted="" that="" states="" are="" not="" required="" to="" apply="" for="" or="" obtain="" authorization="" to="" receive="" and="" review="" petitions="" to="" add="" new="" wastes.="" if="" they="" so="" choose,="" states="" may="" apply="" for="" and="" obtain="" authorization="" to="" implement="" the="" part="" 273="" universal="" waste="" regulations="" other="" than="" subpart="" g.="" these="" states="" would="" still="" have="" the="" ability="" to="" adopt="" wastes="" that="" epa="" adds="" to="" its="" universal="" waste="" program.="" 2.="" authorization="" for="" individual="" universal="" wastes="" in="" order="" to="" aid="" expedited="" adoption="" and="" authorization="" of="" as="" much="" of="" today's="" rule="" as="" possible,="" states="" will="" not="" be="" required="" to="" apply="" for="" and="" obtain="" authorization="" to="" implement="" the="" universal="" waste="" program="" for="" all="" wastes="" covered="" under="" the="" federal="" program.="" for="" example,="" a="" state="" could="" choose="" to="" include="" in="" its="" authorized="" program="" batteries="" and="" pesticides,="" but="" not="" thermostats.="" epa="" believes="" that="" this="" approach="" will="" aid="" quick="" adoption="" for="" those="" states="" that="" may="" need="" to="" make="" statutory="" changes="" to="" be="" able="" to="" implement="" a="" universal="" waste="" program="" for="" a="" particular="" wastestream.="" to="" ensure="" that="" all="" the="" relevant="" waste="" management="" and="" transportation="" standards="" apply="" to="" a="" particular="" universal="" waste,="" to="" obtain="" authorization="" for="" the="" universal="" waste="" rule,="" epa="" will="" require="" states="" to="" adopt="" all="" the="" applicable="" general="" standards="" even="" if="" they="" are="" applying="" for="" authorization="" for="" only="" one="" universal="" waste.="" epa="" believes="" that="" this="" is="" a="" rational="" approach="" to="" this="" type="" of="" adoption,="" and="" that="" it="" will="" not="" be="" a="" significant="" barrier="" to="" authorization.="" this="" authorization="" policy="" will="" be="" reflected="" in="" epa's="" authorization="" guidance="" on="" this="" rule.="" 3.="" interstate="" transportation="" several="" commenters="" noted="" that="" interstate="" transportation="" of="" universal="" wastes="" will="" be="" complicated="" if="" some="" states="" have="" adopted="" the="" universal="" waste="" regulations="" and="" some="" have="" not.="" similar="" complications="" will="" arise="" if="" some="" states="" add="" new="" wastes="" to="" their="" universal="" waste="" regulations="" but="" other="" states="" do="" not="" add="" the="" same="" wastes.="" the="" agency="" believes="" it="" is="" important="" to="" explain="" how="" the="" regulations="" will="" apply="" because="" interstate="" transportation="" will="" be="" necessary="" for="" many="" universal="" wastes="" since="" there="" may="" be="" only="" a="" few="" destination="" facilities="" that="" accept="" and="" manage="" these="" wastes.="" first,="" a="" waste="" which="" is="" subject="" to="" the="" universal="" waste="" regulations="" may="" be="" sent="" to="" a="" state="" where="" it="" is="" not="" a="" universal="" waste,="" but="" it="" would="" be="" subject="" to="" the="" full="" hazardous="" waste="" regulations="" in="" states="" where="" it="" is="" not="" regulated="" as="" a="" universal="" waste.="" in="" this="" scenario,="" for="" the="" portion="" of="" the="" trip="" through="" the="" originating="" state,="" and="" any="" other="" states="" where="" the="" waste="" is="" a="" universal="" waste,="" a="" transporter="" with="" an="" epa="" identification="" number="" per="" 263.11="" (hazardous="" waste="" transporter),="" or="" a="" manifest="" would="" not="" be="" required.="" however,="" for="" the="" portion="" of="" the="" trip="" through="" the="" receiving="" state,="" and="" any="" other="" states="" that="" do="" not="" consider="" the="" waste="" to="" be="" a="" universal="" waste,="" a="" manifest="" is="" required,="" and="" the="" waste="" must="" be="" moved="" by="" a="" transporter="" in="" compliance="" with="" 40="" cfr="" part="" 263.="" in="" order="" for="" the="" final="" transporter="" and="" the="" receiving="" facility="" to="" fulfill="" their="" requirements="" concerning="" the="" manifest="" (40="" cfr="" 263.20,="" 263.21,="" 263.22,="" 264.71,="" 264.72,="" and="" 264.76="" or="" 265.71,="" 265.72,="" and="" 265.76),="" the="" initiating="" facility="" should="" complete="" a="" manifest="" and="" forward="" it="" to="" the="" first="" transporter="" to="" travel="" in="" a="" state="" where="" the="" waste="" is="" not="" a="" universal="" waste.="" the="" receiving="" facility="" would="" sign="" the="" manifest="" and="" send="" a="" copy="" to="" the="" initiating="" facility.="" epa="" recommends="" that="" the="" initiating="" facility="" note="" in="" block="" 15="" of="" the="" manifest="" (special="" handling="" instructions="" and="" additional="" information)="" that="" the="" waste="" is="" covered="" under="" universal="" waste="" regulations="" in="" the="" initiating="" state="" but="" not="" in="" the="" receiving="" facility's="" state.="" second,="" a="" hazardous="" waste="" generated="" in="" a="" state="" which="" does="" not="" regulate="" it="" as="" a="" universal="" waste="" may="" be="" sent="" to="" a="" state="" where="" it="" is="" a="" universal="" waste.="" in="" this="" scenario,="" the="" waste="" must="" be="" moved="" by="" a="" hazardous="" waste="" transporter="" while="" the="" waste="" is="" in="" the="" generator's="" state,="" or="" any="" other="" states="" where="" it="" is="" not="" a="" universal="" waste.="" the="" initiating="" facility="" would="" complete="" a="" manifest="" and="" give="" copies="" to="" the="" transporter="" as="" required="" under="" 40="" cfr="" 262.23(a).="" transportation="" within="" the="" receiving="" state="" and="" any="" other="" states="" that="" regulate="" the="" waste="" as="" a="" universal="" waste="" would="" not="" require="" a="" manifest="" or="" be="" conducted="" by="" a="" hazardous="" waste="" transporter.="" however,="" it="" is="" the="" initiating="" facility's="" responsibility="" to="" ensure="" that="" the="" manifest="" is="" forwarded="" to="" the="" receiving="" facility="" by="" any="" non-hazardous="" waste="" transporter="" and="" sent="" back="" to="" the="" initiating="" facility="" by="" the="" receiving="" facility.="" see="" 40="" cfr="" 262.23="" and="" 262.42.="" epa="" recommends="" that="" the="" generator="" note="" in="" block="" 15="" of="" the="" manifest="" (special="" handling="" instructions="" and="" additional="" information)="" that="" the="" waste="" is="" covered="" under="" universal="" waste="" regulations="" in="" the="" receiving="" facility's="" state="" but="" not="" in="" the="" generator's="" state.="" third,="" a="" waste="" may="" be="" transported="" across="" a="" state="" in="" which="" it="" is="" subject="" to="" the="" full="" hazardous="" waste="" regulations="" [[page="" 25538]]="" although="" other="" portions="" of="" the="" trip="" may="" be="" from,="" through,="" and="" to="" states="" in="" which="" it="" is="" covered="" under="" universal="" waste="" regulations.="" transport="" through="" the="" state="" must="" be="" conducted="" in="" a="" hazardous="" waste="" transporter="" and="" must="" be="" accompanied="" by="" a="" manifest.="" in="" order="" for="" the="" transporter="" to="" fulfill="" its="" requirements="" concerning="" the="" manifest="" (subpart="" b="" of="" part="" 263),="" the="" initiating="" facility="" would="" complete="" a="" manifest="" as="" required="" under="" the="" manifest="" procedures="" and="" forward="" it="" to="" the="" first="" transporter="" to="" travel="" in="" a="" state="" where="" the="" waste="" is="" not="" a="" universal="" waste.="" the="" transporter="" would="" deliver="" the="" manifest="" to,="" and="" obtain="" the="" signature="" of="" either="" the="" next="" transporter="" or="" the="" receiving="" facility.="" as="" noted="" previously,="" states="" are="" not="" required="" to="" adopt="" today's="" rule.="" however,="" epa="" strongly="" encourages="" them="" to="" do="" so.="" as="" more="" states="" adopt="" the="" program,="" not="" only="" will="" this="" assist="" in="" achieving="" the="" most="" benefits="" of="" the="" universal="" waste="" program,="" it="" will="" also="" reduce="" the="" complexity="" of="" interstate="" transport="" of="" these="" universal="" wastes.="" in="" the="" interim,="" while="" states="" are="" in="" the="" process="" of="" adopting="" today's="" rule,="" the="" agency="" plans="" to="" discuss="" with="" the="" states,="" an="" approach="" for="" coordinating="" an="" interim="" implementation="" strategy.="" vi.="" executive="" order="" 12866--regulatory="" impacts="" under="" executive="" order="" 12866="" (58="" fr="" 51735,="" october="" 4,="" 1993),="" the="" agency="" must="" determine="" whether="" a="" regulatory="" action="" is="" ``significant''="" and="" therefore="" subject="" to="" review="" by="" the="" office="" of="" management="" and="" budget="" (omb)="" and="" the="" requirements="" of="" the="" executive="" order.="" the="" order="" defines="" ``significant="" regulatory="" action''="" as="" one="" that="" is="" likely="" to="" result="" in="" a="" rule="" that="" may:="" (1)="" have="" an="" annual="" effect="" on="" the="" economy="" of="" $100="" million="" or="" more="" or="" adversely="" affect="" in="" a="" material="" way="" the="" economy,="" a="" sector="" of="" the="" economy,="" productivity,="" competition,="" jobs,="" the="" environment,="" public="" health="" or="" safety,="" or="" state,="" local,="" or="" tribal="" governments="" or="" communities;="" (2)="" create="" a="" serious="" inconsistency="" or="" otherwise="" interfere="" with="" an="" action="" taken="" or="" planned="" by="" another="" agency;="" (3)="" materially="" alter="" the="" budgetary="" impact="" of="" entitlements,="" grants,="" user="" fees,="" or="" loan="" programs="" or="" the="" rights="" and="" obligations="" of="" recipients="" thereof;="" or="" (4)="" raise="" novel="" legal="" or="" policy="" issues="" arising="" out="" of="" legal="" mandates,="" the="" president's="" priorities,="" or="" the="" principles="" set="" forth="" in="" the="" executive="" order.''="" pursuant="" to="" the="" terms="" of="" the="" executive="" order="" 12866,="" it="" has="" been="" determined="" that="" this="" rule="" is="" a="" ``significant="" regulatory="" action''="" because="" it="" raises="" novel="" legal="" or="" policy="" issues="" arising="" out="" of="" legal="" mandates,="" the="" president's="" priorities,="" or="" the="" principles="" set="" forth="" in="" the="" executive="" order.="" changes="" made="" in="" response="" to="" omb="" suggestions="" or="" recommendations="" will="" be="" documented="" in="" the="" public="" record.="" this="" section="" of="" the="" preamble="" summarizes="" the="" costs="" (savings)="" and="" the="" cost="" analysis="" of="" the="" final="" universal="" waste="" regulations.="" based="" upon="" the="" cost="" analysis,="" the="" agency's="" best="" estimate="" is="" that="" the="" universal="" waste="" regulations="" may="" result="" in="" nationwide="" annualized="" savings="" of="" approximately="" $76="" million.="" for="" the="" cost="" analysis,="" epa="" estimated="" the="" incremental="" cost="" differences="" between="" compliance="" with="" the="" full="" rcra="" subtitle="" c="" requirements="" (parts="" 260-272)="" and="" the="" part="" 273="" standards="" for="" universal="" waste="" management.="" the="" universal="" wastes="" examined="" for="" this="" analysis="" are:="" vented="" nickel-cadmium="" batteries,="" sealed="" nickel-cadmium="" batteries,="" mercuric-oxide="" batteries,="" used="" mercury-containing="" thermostats,="" cancelled="" and/or="" suspended="" pesticides="" that="" are="" recalled,="" and="" unused="" pesticide="" products="" collected="" in="" a="" waste="" pesticide="" collection="" program.="" for="" recalled="" pesticides="" only,="" epa="" assumed="" that="" a="" national="" pesticide="" recall="" producing="" hazardous="" waste="" would="" occur="" once="" every="" five="" years.="" all="" other="" universal="" wastes="" were="" assumed="" to="" be="" generated="" and="" disposed="" of="" annually.="" for="" each="" of="" these="" types="" of="" waste,="" the="" agency="" identified="" and="" estimated="" the="" costs="" of="" all="" the="" requirements="" that="" should="" result="" in="" an="" incremental="" cost="" difference="" between="" the="" existing="" full="" rcra="" subtitle="" c="" regulations="" and="" the="" part="" 273="" rule.="" epa="" reviewed="" how="" wastes="" would="" move="" through="" the="" rcra="" system="" from="" the="" generator="" to="" the="" final="" treatment="" or="" disposal="" facility="" under="" each="" regulatory="" structure,="" and="" identified="" the="" areas="" where="" compliance="" costs="" would="" differ="" from="" the="" existing="" rcra="" subtitle="" c="" requirement="" costs.="" the="" subtitle="" c="" requirements="" that="" differ="" from="" those="" required="" under="" part="" 273="" (and="" therefore="" produce="" an="" incremental="" savings)="" include:="" employee="" training;="" maintenance="" costs="" for="" a="" contingency="" plan;="" filing="" hazardous="" waste="" biennial="" reports;="" manifest="" completion="" and="" recordkeeping="" per="" shipment;="" and="" land="" disposal="" restriction="" notification.="" in="" addition,="" shipping="" and="" disposal="" costs="" were="" reduced="" for="" some="" of="" the="" universal="" wastes="" because="" common="" carriers="" could="" be="" used="" instead="" hazardous="" waste="" transporters,="" and="" the="" one-year="" storage="" limit="" under="" part="" 273="" would="" allow="" handlers="" to="" ship="" less="" often="" than="" under="" the="" current="" subtitle="" c="" and="" therefore="" take="" advantage="" of="" economies="" of="" scale.="" the="" agency="" considered="" the="" annual="" compliance="" costs="" that="" would="" result="" from="" four="" different="" compliance="" options="" under="" the="" part="" 273="" rule="" for="" handlers="" of="" each="" type="" of="" battery="" and="" for="" thermostats="" covered="" in="" this="" analysis:="" shipment="" of="" wastes="" by="" common="" carriers="" (trucks)="" to="" a="" collection="" facility;="" shipping="" wastes="" directly="" to="" a="" reclamation="" facility="" via="" common="" carriers="" (trucks);="" shipment="" of="" wastes="" via="" a="" parcel="" carrier="" (i.e.,="" ups);="" and,="" for="" thermostats="" only,="" a="" reverse="" distribution="" system="" where="" handlers="" ship="" their="" used="" thermostats="" to="" honeywell="" corporation,="" that="" then="" has="" the="" mercury-containing="" component="" (ampule)="" of="" the="" thermostat="" reclaimed="" by="" a="" commercial="" facility.="" for="" each="" type="" of="" waste="" handler,="" the="" agency="" identified="" the="" least-="" cost="" method="" of="" compliance="" with="" part="" 273="" in="" order="" to="" determine="" the="" savings="" that="" would="" result="" from="" handlers="" no="" longer="" subject="" to="" the="" requirements="" of="" 40="" cfr="" parts="" 262-270.="" the="" least-cost="" method="" of="" compliance="" with="" part="" 273="" yielded="" annual="" national="" cost="" estimates="" (of="" those="" elements="" expected="" to="" vary="" between="" the="" current="" rcra="" subtitle="" c="" requirements="" and="" the="" part="" 273="" requirements)="" of="" $0.3="" million="" for="" vented="" nickel-cadmium="" batteries,="" $10.3="" million="" for="" sealed="" nickel-cadmium="" batteries,="" $1.6="" million="" for="" mercuric-oxide="" batteries,="" and="" $1.2="" million="" for="" used="" mercury-containing="" thermostats,="" for="" an="" annual="" cost="" of="" $13.4="" million="" for="" battery="" and="" thermostat="" waste.="" subtitle="" c="" national="" annual="" costs="" (of="" those="" elements="" expected="" to="" vary="" between="" the="" current="" rcra="" subtitle="" c="" requirements="" and="" the="" part="" 273="" requirements)="" for="" battery="" and="" thermostat="" waste="" are="" estimated="" to="" be="" $46.2="" million,="" resulting="" in="" an="" annual="" savings="" of="" $32.9="" million="" per="" year="" for="" battery="" and="" thermostat="" waste.="" for="" recalled="" pesticides,="" part="" 273="" costs="" (of="" those="" elements="" expected="" to="" vary="" between="" the="" current="" rcra="" subtitle="" c="" requirements="" and="" the="" part="" 273="" requirements)="" are="" estimated="" to="" be="" $15.5="" million="" per="" recall,="" while="" subtitle="" c="" requirement="" costs="" (of="" those="" elements="" expected="" to="" vary="" between="" the="" full="" rcra="" subtitle="" c="" requirements="" and="" the="" part="" 273="" requirements)="" are="" estimated="" to="" be="" $230.0="" million="" per="" recall,="" resulting="" in="" a="" savings="" of="" $214.5="" million="" per="" recall.="" assuming="" one="" recall="" every="" five="" years,="" and="" a="" seven="" percent="" discount="" rate,="" the="" annualized="" savings="" for="" recalled="" pesticides="" is="" $42.7="" million="" per="" year.="" for="" unused="" pesticide="" products="" collected="" in="" a="" waste="" pesticide="" collection="" program,="" part="" 273="" annual="" costs="" (of="" those="" elements="" expected="" to="" vary="" between="" the="" current="" rcra="" subtitle="" c="" requirements="" and="" the="" part="" 273="" requirements)="" are="" estimated="" to="" be="" $130,000,="" while="" subtitle="" c="" requirement="" costs="" (of="" those="" elements="" [[page="" 25539]]="" expected="" to="" vary="" between="" the="" full="" rcra="" subtitle="" c="" requirements="" and="" the="" part="" 273="" requirements)="" are="" estimated="" to="" be="" $360,000,="" resulting="" in="" an="" annual="" savings="" of="" $230,000="" per="" year="" for="" unused="" pesticide="" products="" collected="" under="" waste="" pesticide="" collection="" programs.="" summing="" up="" the="" savings="" from="" the="" various="" universal="" wastes,="" the="" agency's="" best="" estimate="" of="" the="" total="" annualized="" savings="" of="" today's="" rule="" is="" $76="" million.="" a="" complete="" discussion="" of="" the="" cost="" analysis="" is="" available="" in="" the="" regulatory="" docket="" for="" today's="" rule.="" vii.="" paperwork="" reduction="" act="" the="" information="" collection="" requirements="" in="" this="" rule="" have="" been="" approved="" by="" the="" office="" of="" management="" and="" budget="" (omb)="" under="" the="" paperwork="" reduction="" act,="" 44="" u.s.c.="" 3501="" et="" seq.="" and="" have="" been="" assigned="" control="" number="" 2050-0145.="" this="" collection="" of="" information="" has="" a="" reporting="" burden="" per="" response="" of="" 0="" hours="" for="" small="" quantity="" handlers="" of="" universal="" waste,="" 4="" minutes="" for="" large="" quantity="" handlers="" of="" universal="" waste,="" and="" 12="" hours="" for="" destination="" facilities;="" and="" an="" estimated="" annual="" recordkeeping="" burden="" averaging="" 1.6="" hours="" per="" respondent.="" these="" estimates="" include="" time="" for="" reviewing="" instructions,="" searching="" existing="" data="" sources,="" gathering="" and="" maintaining="" the="" data="" needed,="" and="" completing="" and="" reviewing="" the="" collection="" of="" information.="" send="" comments="" regarding="" the="" burden="" estimate="" or="" any="" other="" aspect="" of="" this="" collection="" of="" information,="" including="" suggestions="" for="" reducing="" this="" burden="" to="" chief,="" information="" policy="" branch;="" epa;="" 401="" m="" st.,="" sw.="" (mail="" code="" 2136);="" washington,="" dc="" 20460;="" and="" to="" the="" office="" of="" information="" and="" regulatory="" affairs,="" office="" of="" management="" and="" budget,="" washington,="" dc="" 20503,="" marked="" ``attention:="" desk="" officer="" for="" epa.''="" display="" of="" omb="" control="" numbers="" epa="" is="" also="" amending="" the="" table="" of="" currently="" approved="" information="" collection="" request="" (icr)="" control="" numbers="" issued="" by="" omb="" for="" various="" regulations.="" this="" amendment="" updates="" the="" table="" to="" accurately="" display="" those="" information="" requirements="" contained="" in="" this="" final="" rule.="" this="" display="" of="" the="" omb="" control="" number="" and="" its="" subsequent="" codification="" in="" the="" code="" of="" federal="" regulations="" satisfies="" the="" requirements="" of="" the="" paperwork="" reduction="" act="" (44="" u.s.c.="" 3501="" et="" seq.)="" and="" omb's="" implementing="" regulations="" at="" 5="" cfr="" part="" 1320.="" the="" icr="" was="" previously="" subject="" to="" public="" notice="" and="" comment="" prior="" to="" omb="" approval.="" as="" a="" result,="" epa="" finds="" that="" there="" is="" ``good="" cause''="" under="" section="" 553(b)(b)="" of="" the="" administrative="" procedure="" act="" (5="" u.s.c.="" 553(b)(b))="" to="" amend="" this="" table="" without="" prior="" notice="" and="" comment.="" due="" to="" the="" technical="" nature="" of="" the="" table,="" further="" notice="" and="" comment="" would="" be="" unnecessary.="" for="" the="" same="" reasons,="" epa="" also="" finds="" that="" there="" is="" good="" cause="" under="" 5="" u.s.c.="" 553(d)(3).="" viii.="" regulatory="" flexibility="" act="" the="" regulatory="" flexibility="" act="" (rfa)="" of="" 1980,="" 5="" u.s.c.="" 601="" et="" seq.,="" requires="" federal="" agencies="" to="" consider="" ``small="" entities''="" throughout="" the="" regulatory="" process.="" section="" 603="" of="" the="" rfa="" requires="" an="" initial="" screening="" analysis="" to="" be="" performed="" to="" determine="" whether="" small="" entities="" will="" be="" affected="" by="" the="" regulation.="" if="" affected="" small="" entities="" are="" identified,="" regulatory="" alternatives="" must="" be="" considered="" to="" mitigate="" the="" potential="" impacts.="" small="" entities="" as="" described="" in="" the="" act="" are="" only="" those="" ``businesses,="" organizations="" and="" governmental="" jurisdictions="" subject="" to="" regulation.''="" the="" only="" entities="" directly="" subject="" to="" today's="" final="" rule="" are="" small="" and="" large="" quantity="" handlers="" of="" universal="" waste="" batteries,="" pesticides,="" and="" thermostats="" (who="" generate="" more="" than="" 100="" kilograms="" of="" hazardous="" waste),="" and="" transporters="" and="" collectors="" of="" universal="" waste="" batteries,="" pesticides,="" and="" thermostats.="" conditionally="" exempt="" small="" quantity="" generators="" (who="" generate="" less="" than="" 100="" kilograms="" of="" hazardous="" waste)="" are="" not="" directly="" subject="" to="" today's="" rule.="" it="" is="" likely="" that="" some="" small="" and="" large="" quantity="" generators,="" transporters,="" and="" collectors="" of="" universal="" waste="" would="" meet="" the="" definition="" of="" ``small="" business''="" as="" defined="" by="" the="" rfa.="" however,="" the="" agency="" does="" not="" have="" an="" estimate="" of="" the="" number="" of="" such="" ``small="" entities.''="" however,="" the="" universal="" waste="" regulations="" are="" expected="" to="" result="" in="" net="" savings="" to="" any="" regulated="" entities="" because="" it="" reduces="" requirements="" overall="" for="" these="" entities.="" thus,="" since="" the="" impacts="" are="" positive="" for="" all="" regulated="" entities,="" including="" ``small="" entities,''="" epa="" has="" determined="" that="" small="" regulated="" entities="" will="" not="" be="" adversely="" impacted.="" accordingly,="" i="" hereby="" certify,="" pursuant="" to="" 5="" u.s.c.="" 601(b),="" that="" this="" rule="" will="" not="" have="" a="" significant="" impact="" on="" a="" substantial="" number="" of="" small="" entities.="" ix.="" unfunded="" mandates="" under="" section="" 202="" of="" the="" unfunded="" mandates="" reform="" act="" of="" 1995,="" signed="" into="" law="" on="" march="" 22,="" 1995,="" epa="" must="" prepare="" a="" statement="" to="" accompany="" any="" rule="" where="" the="" estimated="" costs="" to="" state,="" local,="" or="" tribal="" governments="" in="" the="" aggregate,="" or="" to="" the="" private="" sector,="" will="" be="" $100="" million="" or="" more="" in="" any="" one="" year.="" under="" section="" 205,="" epa="" must="" select="" the="" most="" cost-effective="" and="" least="" burdensome="" alternative="" that="" achieves="" the="" objective="" of="" the="" rule="" and="" is="" consistent="" with="" statutory="" requirements.="" section="" 203="" requires="" epa="" to="" establish="" a="" plan="" for="" informing="" and="" advising="" any="" small="" governments="" that="" may="" be="" significantly="" impacted="" by="" the="" rule.="" epa="" has="" determined="" that="" this="" rule="" does="" not="" include="" a="" federal="" mandate="" that="" may="" result="" in="" estimated="" costs="" of="" $100="" million="" or="" more="" to="" either="" state,="" local="" or="" tribal="" governments="" in="" the="" aggregate,="" or="" to="" the="" private="" sector.="" list="" of="" subjects="" 40="" cfr="" part="" 260="" administrative="" practice="" and="" procedure,="" confidential="" business="" information,="" hazardous="" materials,="" recycling,="" reporting="" and="" recordkeeping,="" waste="" treatment="" or="" disposal.="" 40="" cfr="" part="" 261="" hazardous="" materials,="" recycling,="" waste="" treatment="" and="" disposal.="" 40="" cfr="" part="" 262="" administrative="" practice="" and="" procedure,="" hazardous="" materials,="" reporting="" and="" recordkeeping.="" 40="" cfr="" parts="" 264="" and="" 265="" hazardous="" materials,="" packaging="" and="" containers,="" reporting="" and="" recordkeeping="" requirements,="" security="" measures,="" surety="" bonds,="" waste="" treatment="" and="" disposal.="" 40="" cfr="" part="" 266="" hazardous="" waste,="" management,="" spent="" lead-acid="" batteries.="" 40="" cfr="" part="" 268="" hazardous="" waste,="" reporting="" and="" recordkeeping="" requirements.="" 40="" cfr="" part="" 270="" hazardous="" materials,="" packaging="" and="" containers,="" reporting="" and="" recordkeeping="" requirements,="" waste="" treatment="" and="" disposal.="" 40="" cfr="" part="" 273="" hazardous="" materials,="" packaging="" and="" containers.="" dated:="" april="" 25,="" 1995.="" carol="" m.="" browner,="" administrator.="" for="" the="" reasons="" set="" out="" in="" the="" preamble,="" title="" 40="" of="" the="" code="" of="" federal="" regulations="" is="" amended="" as="" follows:="" part="" 9--[amended]="" 1.="" in="" part="" 9:="" a.="" the="" authority="" citation="" for="" part="" 9="" continues="" to="" read="" as="" follows:="" authority:="" 7="" u.s.c.="" 135="" et="" seq.,="" 136-136y;="" 15="" u.s.c.="" 2001,="" 2003,="" 2005,="" 2006,="" 2601-2671;="" 21="" u.s.c.="" 331j,="" 346a,="" 348;="" 31="" u.s.c.="" 9701;="" 33="" u.s.c.="" 1251="" et="" seq.,="" 1311,="" 1313d,="" 1314,="" 1321,="" [[page="" 25540]]="" 1326,="" 1330,="" 1344,="" 1345="" (d)="" and="" (e),="" 1361;="" e.o.="" 11735,="" 38="" fr="" 21243,="" 3="" cfr,="" 1971-1975="" comp.="" p.="" 973;="" 42="" u.s.c.="" 241,="" 242b,="" 243,="" 246,="" 300f,="" 300g,="" 300g-1,="" 300g-2,="" 300g-3,="" 300g-4,="" 300g-5,="" 300g-6,="" 300j-1,="" 300j-2,="" 300j-3,="" 300j-4,="" 300j-9,="" 1857="" et="" seq.,="" 6901-6992k,="" 7401-7671q,="" 7542,="" 9601-9657,="" 11023,="" 11048.="" b.="" section="" 9.1="" is="" amended="" by="" adding="" a="" new="" center="" heading="" and="" new="" entries="" to="" the="" table="" to="" read="" as="" follows:="" sec.="" 9.1="" omb="" approvals="" under="" the="" paperwork="" reduction="" act.="" *="" *="" *="" *="" *="" ------------------------------------------------------------------------="" omb="" control="" 40="" cfr="" citation="" no.="" ------------------------------------------------------------------------="" *="" *="" *="" *="" *="" hazardous="" waste="" management="" system:="" general="" 260.23...................................................="" 2050-0145="" *="" *="" *="" *="" *="" standards="" for="" universal="" waste="" management:="" 273.14...................................................="" 2050-0145="" 273.15...................................................="" 2050-0145="" 273.18...................................................="" 2050-0145="" 273.32...................................................="" 2050-0145="" 273.34...................................................="" 2050-0145="" 273.35...................................................="" 2050-0145="" 273.38...................................................="" 2050-0145="" 273.39...................................................="" 2050-0145="" 273.61...................................................="" 2050-0145="" 273.62...................................................="" 2050-0145="" 273.80...................................................="" 2050-0145="" *="" *="" *="" *="" *="" ------------------------------------------------------------------------="" part="" 260--hazardous="" waste="" management="" system:="" general="" 1.="" the="" authority="" citation="" for="" part="" 260="" continues="" to="" read="" as="" follows:="" authority:="" 42="" u.s.c.="" 6905,="" 6912(a),="" 6921-6927,="" 6930,="" 6934,="" 6935,="" 6937,="" 6938,="" 6939,="" and="" 6974.="" subpart="" b--definitions="" 2.="" section="" 260.10="" is="" amended="" by="" revising="" the="" introductory="" text="" and="" adding,="" in="" alphabetical="" order,="" definitions="" for="" ``battery,''="" ``destination="" facility,''="" ``pesticide,''="" ``thermostat,''="" ``universal="" waste,''="" ``universal="" waste="" handler,''="" and="" ``universal="" waste="" transporter''="" to="" read="" as="" follows:="" sec.="" 260.10="" definitions.="" when="" used="" in="" parts="" 260="" through="" 266,="" 268,="" and="" 270="" through="" 273="" of="" this="" chapter,="" the="" following="" terms="" have="" the="" meanings="" given="" below:="" *="" *="" *="" *="" *="" battery="" means="" a="" device="" consisting="" of="" one="" or="" more="" electrically="" connected="" electrochemical="" cells="" which="" is="" designed="" to="" receive,="" store,="" and="" deliver="" electric="" energy.="" an="" electrochemical="" cell="" is="" a="" system="" consisting="" of="" an="" anode,="" cathode,="" and="" an="" electrolyte,="" plus="" such="" connections="" (electrical="" and="" mechanical)="" as="" may="" be="" needed="" to="" allow="" the="" cell="" to="" deliver="" or="" receive="" electrical="" energy.="" the="" term="" battery="" also="" includes="" an="" intact,="" unbroken="" battery="" from="" which="" the="" electrolyte="" has="" been="" removed.="" *="" *="" *="" *="" *="" destination="" facility="" means="" a="" facility="" that="" treats,="" disposes="" of,="" or="" recycles="" a="" particular="" category="" of="" universal="" waste,="" except="" those="" management="" activities="" described="" in="" paragraphs="" (a)="" and="" (c)="" of="" secs.="" 273.13="" and="" 273.33="" of="" this="" chapter.="" a="" facility="" at="" which="" a="" particular="" category="" of="" universal="" waste="" is="" only="" accumulated,="" is="" not="" a="" destination="" facility="" for="" purposes="" of="" managing="" that="" category="" of="" universal="" waste.="" *="" *="" *="" *="" *="" pesticide="" means="" any="" substance="" or="" mixture="" of="" substances="" intended="" for="" preventing,="" destroying,="" repelling,="" or="" mitigating="" any="" pest,="" or="" intended="" for="" use="" as="" a="" plant="" regulator,="" defoliant,="" or="" desiccant,="" other="" than="" any="" article="" that:="" (1)="" is="" a="" new="" animal="" drug="" under="" ffdca="" section="" 201(w),="" or="" (2)="" is="" an="" animal="" drug="" that="" has="" been="" determined="" by="" regulation="" of="" the="" secretary="" of="" health="" and="" human="" services="" not="" to="" be="" a="" new="" animal="" drug,="" or="" (3)="" is="" an="" animal="" feed="" under="" ffdca="" section="" 201(x)="" that="" bears="" or="" contains="" any="" substances="" described="" by="" paragraph="" (1)="" or="" (2)="" of="" this="" definition.="" *="" *="" *="" *="" *="" thermostat="" means="" a="" temperature="" control="" device="" that="" contains="" metallic="" mercury="" in="" an="" ampule="" attached="" to="" a="" bimetal="" sensing="" element,="" and="" mercury-containing="" ampules="" that="" have="" been="" removed="" from="" these="" temperature="" control="" devices="" in="" compliance="" with="" the="" requirements="" of="" 40="" cfr="" 273.13(c)(2)="" or="" 273.33(c)(2).="" *="" *="" *="" *="" *="" universal="" waste="" means="" any="" of="" the="" following="" hazardous="" wastes="" that="" are="" managed="" under="" the="" universal="" waste="" requirements="" of="" 40="" cfr="" part="" 273:="" (1)="" batteries="" as="" described="" in="" 40="" cfr="" 273.2;="" (2)="" pesticides="" as="" described="" in="" 40="" cfr="" 273.3;="" and="" (3)="" thermostats="" as="" described="" in="" 40="" cfr="" 273.4.="" *="" *="" *="" *="" *="" universal="" waste="" handler:="" (1)="" means:="" (i)="" a="" generator="" (as="" defined="" in="" this="" section)="" of="" universal="" waste;="" or="" (ii)="" the="" owner="" or="" operator="" of="" a="" facility,="" including="" all="" contiguous="" property,="" that="" receives="" universal="" waste="" from="" other="" universal="" waste="" handlers,="" accumulates="" universal="" waste,="" and="" sends="" universal="" waste="" to="" another="" universal="" waste="" handler,="" to="" a="" destination="" facility,="" or="" to="" a="" foreign="" destination.="" (2)="" does="" not="" mean:="" (i)="" a="" person="" who="" treats="" (except="" under="" the="" provisions="" of="" 40="" cfr="" 273.13="" (a)="" or="" (c),="" or="" 273.33="" (a)="" or="" (c)),="" disposes="" of,="" or="" recycles="" universal="" waste;="" or="" (ii)="" a="" person="" engaged="" in="" the="" off-site="" transportation="" of="" universal="" waste="" by="" air,="" rail,="" highway,="" or="" water,="" including="" a="" universal="" waste="" transfer="" facility.="" *="" *="" *="" *="" *="" universal="" waste="" transporter="" means="" a="" person="" engaged="" in="" the="" off-site="" transportation="" of="" universal="" waste="" by="" air,="" rail,="" highway,="" or="" water.="" *="" *="" *="" *="" *="" subpart="" c--rulemaking="" petitions="" 3.="" section="" 260.20="" paragraph="" (a)="" is="" revised="" to="" read="" as="" follows:="" sec.="" 260.20="" general.="" (a)="" any="" person="" may="" petition="" the="" administrator="" to="" modify="" or="" revoke="" any="" provision="" in="" parts="" 260="" through="" 266,="" 268="" and="" 273="" of="" this="" chapter.="" this="" section="" sets="" forth="" general="" requirements="" which="" apply="" to="" all="" such="" petitions.="" section="" 260.21="" sets="" forth="" additional="" requirements="" for="" petitions="" to="" add="" a="" testing="" or="" analytical="" method="" to="" part="" 261,="" 264="" or="" 265="" of="" this="" chapter.="" section="" 260.22="" sets="" forth="" additional="" requirements="" for="" petitions="" to="" exclude="" a="" waste="" or="" waste-derived="" material="" at="" a="" particular="" facility="" from="" sec.="" 261.3="" of="" this="" chapter="" or="" the="" lists="" of="" hazardous="" wastes="" in="" subpart="" d="" of="" part="" 261="" of="" this="" chapter.="" section="" 260.23="" sets="" forth="" additional="" requirements="" for="" petitions="" to="" amend="" part="" 273="" of="" this="" chapter="" to="" include="" additional="" hazardous="" wastes="" or="" categories="" of="" hazardous="" waste="" as="" universal="" waste.="" *="" *="" *="" *="" *="" 4.="" section="" 260.23="" is="" added="" to="" read="" as="" follows:="" sec.="" 260.23="" petitions="" to="" amend="" 40="" cfr="" part="" 273="" to="" include="" additional="" hazardous="" wastes.="" (a)="" any="" person="" seeking="" to="" add="" a="" hazardous="" waste="" or="" a="" category="" of="" hazardous="" waste="" to="" the="" universal="" waste="" regulations="" of="" part="" 273="" of="" this="" chapter="" may="" petition="" for="" a="" regulatory="" amendment="" under="" this="" section,="" 40="" cfr="" 260.20,="" and="" subpart="" g="" of="" 40="" cfr="" part="" 273.="" (b)="" to="" be="" successful,="" the="" petitioner="" must="" demonstrate="" to="" the="" satisfaction="" of="" the="" administrator="" that="" regulation="" under="" the="" universal="" waste="" regulations="" of="" 40="" cfr="" part="" 273:="" is="" appropriate="" for="" the="" waste="" or="" category="" of="" waste;="" will="" improve="" management="" practices="" for="" the="" waste="" or="" category="" of="" waste;="" and="" will="" improve="" [[page="" 25541]]="" implementation="" of="" the="" hazardous="" waste="" program.="" the="" petition="" must="" include="" the="" information="" required="" by="" 40="" cfr="" 260.20(b).="" the="" petition="" should="" also="" address="" as="" many="" of="" the="" factors="" listed="" in="" 40="" cfr="" 273.81="" as="" are="" appropriate="" for="" the="" waste="" or="" category="" of="" waste="" addressed="" in="" the="" petition.="" (c)="" the="" administrator="" will="" grant="" or="" deny="" a="" petition="" using="" the="" factors="" listed="" in="" 40="" cfr="" 273.81.="" the="" decision="" will="" be="" based="" on="" the="" weight="" of="" evidence="" showing="" that="" regulation="" under="" 40="" cfr="" part="" 273="" is="" appropriate="" for="" the="" waste="" or="" category="" of="" waste,="" will="" improve="" management="" practices="" for="" the="" waste="" or="" category="" of="" waste,="" and="" will="" improve="" implementation="" of="" the="" hazardous="" waste="" program.="" (d)="" the="" administrator="" may="" request="" additional="" information="" needed="" to="" evaluate="" the="" merits="" of="" the="" petition.="" part="" 261--identification="" and="" listing="" of="" hazardous="" waste="" 5.="" the="" authority="" citation="" for="" part="" 261="" continues="" to="" read="" as="" follows:="" authority:="" 42="" u.s.c.="" 6905,="" 6912(a),="" 6921,="" 6922,="" and="" 6938.="" subpart="" a--general="" 6.="" section="" 261.5="" is="" amended="" by="" revising="" paragraphs="" (c),="" (f)(3),="" and="" (g)(3)="" to="" read="" as="" follows:="" sec.="" 261.5="" special="" requirements="" for="" hazardous="" waste="" generated="" by="" conditionally="" exempt="" small="" quantity="" generators.="" *="" *="" *="" *="" *="" (c)="" when="" making="" the="" quantity="" determinations="" of="" this="" part="" and="" 40="" cfr="" part="" 262,="" the="" generator="" must="" include="" all="" hazardous="" waste="" that="" it="" generates,="" except="" hazardous="" waste="" that:="" (1)="" is="" exempt="" from="" regulation="" under="" 40="" cfr="" 261.4(c)="" through="" (f),="" 261.6(a)(3),="" 261.7(a)(1),="" or="" 261.8;="" or="" (2)="" is="" managed="" immediately="" upon="" generation="" only="" in="" on-site="" elementary="" neutralization="" units,="" wastewater="" treatment="" units,="" or="" totally="" enclosed="" treatment="" facilities="" as="" defined="" in="" 40="" cfr="" 260.10;="" or="" (3)="" is="" recycled,="" without="" prior="" storage="" or="" accumulation,="" only="" in="" an="" on-site="" process="" subject="" to="" regulation="" under="" 40="" cfr="" 261.6(c)(2);="" or="" (4)="" is="" used="" oil="" managed="" under="" the="" requirements="" of="" 40="" cfr="" 261.6(a)(4)="" and="" 40="" cfr="" part="" 279;="" or="" (5)="" is="" spent="" lead-acid="" batteries="" managed="" under="" the="" requirements="" of="" 40="" cfr="" part="" 266,="" subpart="" g;="" or="" (6)="" is="" universal="" waste="" managed="" under="" 40="" cfr="" 261.9="" and="" 40="" cfr="" part="" 273.="" *="" *="" *="" *="" *="" (f)="" *="" *="" *="" (3)="" a="" conditionally="" exempt="" small="" quantity="" generator="" may="" either="" treat="" or="" dispose="" of="" his="" acute="" hazardous="" waste="" in="" an="" on-site="" facility="" or="" ensure="" delivery="" to="" an="" off-site="" treatment,="" storage="" or="" disposal="" facility,="" either="" of="" which,="" if="" located="" in="" the="" u.s.,="" is:="" (i)="" permitted="" under="" part="" 270="" of="" this="" chapter;="" (ii)="" in="" interim="" status="" under="" parts="" 270="" and="" 265="" of="" this="" chapter;="" (iii)="" authorized="" to="" manage="" hazardous="" waste="" by="" a="" state="" with="" a="" hazardous="" waste="" management="" program="" approved="" under="" part="" 271="" of="" this="" chapter;="" (iv)="" permitted,="" licensed,="" or="" registered="" by="" a="" state="" to="" manage="" municipal="" or="" industrial="" solid="" waste;="" (v)="" a="" facility="" which:="" (a)="" beneficially="" uses="" or="" reuses,="" or="" legitimately="" recycles="" or="" reclaims="" its="" waste;="" or="" (b)="" treats="" its="" waste="" prior="" to="" beneficial="" use="" or="" reuse,="" or="" legitimate="" recycling="" or="" reclamation;="" or="" (vi)="" for="" universal="" waste="" managed="" under="" part="" 273="" of="" this="" chapter,="" a="" universal="" waste="" handler="" or="" destination="" facility="" subject="" to="" the="" requirements="" of="" part="" 273="" of="" this="" chapter.="" *="" *="" *="" *="" *="" (g)="" *="" *="" *="" (3)="" a="" conditionally="" exempt="" small="" quantity="" generator="" may="" either="" treat="" or="" dispose="" of="" his="" hazardous="" waste="" in="" an="" on-site="" facility="" or="" ensure="" delivery="" to="" an="" off-site="" treatment,="" storage="" or="" disposal="" facility,="" either="" of="" which,="" if="" located="" in="" the="" u.s.,="" is:="" (i)="" permitted="" under="" part="" 270="" of="" this="" chapter;="" (ii)="" in="" interim="" status="" under="" parts="" 270="" and="" 265="" of="" this="" chapter;="" (iii)="" authorized="" to="" manage="" hazardous="" waste="" by="" a="" state="" with="" a="" hazardous="" waste="" management="" program="" approved="" under="" part="" 271="" of="" this="" chapter;="" (iv)="" permitted,="" licensed,="" or="" registered="" by="" a="" state="" to="" manage="" municipal="" or="" industrial="" solid="" waste;="" (v)="" a="" facility="" which:="" (a)="" beneficially="" uses="" or="" reuses,="" or="" legitimately="" recycles="" or="" reclaims="" its="" waste;="" or="" (b)="" treats="" its="" waste="" prior="" to="" beneficial="" use="" or="" reuse,="" or="" legitimate="" recycling="" or="" reclamation;="" or="" (vi)="" for="" universal="" waste="" managed="" under="" part="" 273="" of="" this="" chapter,="" a="" universal="" waste="" handler="" or="" destination="" facility="" subject="" to="" the="" requirements="" of="" part="" 273="" of="" this="" chapter.="" *="" *="" *="" *="" *="" 7.="" section="" 261.6="" is="" amended="" by="" removing="" paragraph="" (a)(3)(ii)="" and="" redesignating="" paragraphs="" (a)(3)(iii)="" through="" (a)(3)(vii)="" as="" paragraphs="" (a)(3)(ii)="" through="" (a)(3)(vi).="" 8.="" section="" 261.9="" is="" added="" to="" subpart="" read="" as="" follows:="" sec.="" 261.9="" requirements="" for="" universal="" waste.="" the="" wastes="" listed="" in="" this="" section="" are="" exempt="" from="" regulation="" under="" parts="" 262="" through="" 270="" of="" this="" chapter="" except="" as="" specified="" in="" part="" 273="" of="" this="" chapter="" and,="" therefore="" are="" not="" fully="" regulated="" as="" hazardous="" waste.="" the="" wastes="" listed="" in="" this="" section="" are="" subject="" to="" regulation="" under="" 40="" cfr="" part="" 273:="" (a)="" batteries="" as="" described="" in="" 40="" cfr="" 273.2;="" (b)="" pesticides="" as="" described="" in="" 40="" cfr="" 273.3;="" and="" (c)="" thermostats="" as="" described="" in="" 40="" cfr="" 273.4.="" part="" 262--standards="" applicable="" to="" generators="" of="" hazardous="" waste="" 9.="" the="" authority="" citation="" for="" part="" 262="" continues="" to="" read="" as="" follows:="" authority:="" 42="" u.s.c.="" 6906,="" 6912(a),="" 6922,="" 6923,="" 6924,="" 6925,="" 6937="" and="" 6938.="" subpart="" a--general="" 10.="" section="" 262.10="" is="" amended="" by="" redesignating="" existing="" paragraphs="" (b)="" through="" (f)="" as="" (c)="" through="" (g).="" 11.="" section="" 262.10="" is="" amended="" by="" adding="" a="" new="" paragraph="" (b)="" to="" read="" as="" follows:="" sec.="" 262.10="" purpose,="" scope="" and="" applicability.="" *="" *="" *="" *="" *="" (b)="" 40="" cfr="" 261.5(c)="" and="" (d)="" must="" be="" used="" to="" determine="" the="" applicability="" of="" provisions="" of="" this="" part="" that="" are="" dependent="" on="" calculations="" of="" the="" quantity="" of="" hazardous="" waste="" generated="" per="" month.="" *="" *="" *="" *="" *="" 12.="" section="" 262.11="" is="" amended="" by="" revising="" paragraph="" (d)="" to="" read="" as="" follows:="" sec.="" 262.11="" hazardous="" waste="" determination.="" *="" *="" *="" *="" *="" (d)="" if="" the="" waste="" is="" determined="" to="" be="" hazardous,="" the="" generator="" must="" refer="" to="" parts="" 261,="" 264,="" 265,="" 266,="" 268,="" and="" 273="" of="" this="" chapter="" for="" possible="" exclusions="" or="" restrictions="" pertaining="" to="" management="" of="" the="" specific="" waste.="" part="" 264--standards="" for="" owners="" and="" operators="" of="" hazardous="" waste="" treatment,="" storage,="" and="" disposal="" facilities="" 13.="" the="" authority="" citation="" for="" part="" 264="" continues="" to="" read="" as="" follows:="" authority:="" 42="" u.s.c.="" 6905,="" 6912(a),="" 6924,="" and="" 6925.="" [[page="" 25542]]="" subpart="" a--general="" 14.="" section="" 264.1="" is="" amended="" by="" adding="" a="" new="" paragraph="" (g)(11)="" as="" follows:="" sec.="" 264.1="" purpose,="" scope="" and="" applicability.="" *="" *="" *="" *="" *="" (g)="" *="" *="" *="" (11)="" universal="" waste="" handlers="" and="" universal="" waste="" transporters="" (as="" defined="" in="" 40="" cfr="" 260.10)="" handling="" the="" wastes="" listed="" below.="" these="" handlers="" are="" subject="" to="" regulation="" under="" 40="" cfr="" part="" 273,="" when="" handling="" the="" below="" listed="" universal="" wastes.="" (i)="" batteries="" as="" described="" in="" 40="" cfr="" 273.2;="" (ii)="" pesticides="" as="" described="" in="" 40="" cfr="" 273.3;="" and="" (iii)="" thermostats="" as="" described="" in="" 40="" cfr="" 273.4.="" *="" *="" *="" *="" *="" part="" 265--interim="" status="" standards="" for="" owners="" and="" operators="" of="" hazardous="" waste="" treatment,="" storage="" and="" disposal="" facilities="" 15.="" the="" authority="" citation="" for="" part="" 265="" continues="" to="" read="" as="" follows:="" authority:="" 42="" u.s.c.="" 6905,="" 6912(a),="" 6924,="" 6925,="" 6935="" and="" 6936.="" subpart="" a--general="" 16.="" section="" 265.1="" is="" amended="" by="" adding="" a="" new="" paragraph="" (c)(14)="" to="" read="" as="" follows:="" sec.="" 265.1="" purpose,="" scope="" and="" applicability.="" *="" *="" *="" *="" *="" (c)="" *="" *="" *="" (14)="" universal="" waste="" handlers="" and="" universal="" waste="" transporters="" (as="" defined="" in="" 40="" cfr="" 260.10)="" handling="" the="" wastes="" listed="" below.="" these="" handlers="" are="" subject="" to="" regulation="" under="" 40="" cfr="" part="" 273,="" when="" handling="" the="" below="" listed="" universal="" wastes.="" (i)="" batteries="" as="" described="" in="" 40="" cfr="" 273.2;="" (ii)="" pesticides="" as="" described="" in="" 40="" cfr="" 273.3;="" and="" (iii)="" thermostats="" as="" described="" in="" 40="" cfr="" 273.4.="" *="" *="" *="" *="" *="" part="" 266--standards="" for="" the="" management="" of="" specific="" hazardous="" wastes="" and="" specific="" types="" of="" hazardous="" waste="" management="" facilities="" 17.="" the="" authority="" citation="" for="" part="" 266="" continues="" to="" read="" as="" follows:="" authority:="" secs.="" 1006,="" 2002(a),="" 3004,="" and="" 3014="" of="" the="" solid="" waste="" disposal="" act,="" as="" amended="" by="" the="" resource="" conservation="" and="" recovery="" act="" of="" 1976,="" as="" amended="" (42="" u.s.c.="" 6905,="" 6912(a),="" 6924,="" and="" 6934.="" subpart="" g--spent="" lead="" acid="" batteries="" being="" reclaimed="" 18.="" section="" 266.80="" is="" amended="" by="" revising="" paragraphs="" (a)="" and="" (b)="" to="" read="" as="" follows:="" sec.="" 266.80="" applicability="" and="" requirements.="" (a)="" the="" regulations="" of="" this="" subpart="" apply="" to="" persons="" who="" reclaim="" (including="" regeneration)="" spent="" lead-acid="" batteries="" that="" are="" recyclable="" materials="" (``spent="" batteries'').="" persons="" who="" generate,="" transport,="" or="" collect="" spent="" batteries,="" who="" regenerate="" spent="" batteries,="" or="" who="" store="" spent="" batteries="" but="" do="" not="" reclaim="" them="" (other="" than="" spent="" batteries="" that="" are="" to="" be="" regenerated)="" are="" not="" subject="" to="" regulation="" under="" parts="" 262="" through="" 266="" or="" part="" 270="" or="" 124="" of="" this="" chapter,="" and="" also="" are="" not="" subject="" to="" the="" requirements="" of="" section="" 3010="" of="" rcra.="" (b)="" owners="" or="" operators="" of="" facilities="" that="" store="" spent="" lead="" acid="" batteries="" before="" reclaiming="" (other="" than="" spent="" batteries="" that="" are="" to="" be="" regenerated)="" them="" are="" subject="" to="" the="" following="" requirements.="" *="" *="" *="" *="" *="" part="" 268--land="" disposal="" restrictions="" 19.="" the="" authority="" citation="" for="" part="" 268="" continues="" to="" read="" as="" follows:="" authority:="" 42="" u.s.c.="" 6905,="" 6912(a),="" 6921,="" and="" 6924.="" subpart="" a--general="" 20.="" section="" 268.1="" is="" amended="" by="" adding="" paragraph="" (f)="" to="" read="" as="" follows:="" sec.="" 268.1="" purpose,="" scope="" and="" applicability.="" *="" *="" *="" *="" *="" (f)="" universal="" waste="" handlers="" and="" universal="" waste="" transporters="" (as="" defined="" in="" 40="" cfr="" 260.10)="" are="" exempt="" from="" 40="" cfr="" 268.7="" and="" 268.50="" for="" the="" hazardous="" wastes="" listed="" below.="" these="" handlers="" are="" subject="" to="" regulation="" under="" 40="" cfr="" part="" 273.="" (1)="" batteries="" as="" described="" in="" 40="" cfr="" 273.2;="" (2)="" pesticides="" as="" described="" in="" 40="" cfr="" 273.3;="" and="" (3)="" thermostats="" as="" described="" in="" 40="" cfr="" 273.4.="" part="" 270--epa="" administered="" permit="" programs:="" the="" hazardous="" waste="" permit="" program="" 21.="" the="" authority="" citation="" for="" part="" 270="" continues="" to="" read="" as="" follows:="" authority:="" 42="" u.s.c.="" 6905,="" 6912,="" 6924,="" 6925,="" 6927,="" 6939,="" and="" 6974.="" subpart="" a--general="" information="" 22.="" section="" 270.1="" is="" amended="" by="" adding="" a="" new="" paragraph="" (c)(2)(viii)="" to="" read="" as="" follows:="" sec.="" 270.1="" purpose="" and="" scope="" of="" these="" regulations.="" *="" *="" *="" *="" *="" (c)="" *="" *="" *="" (2)="" *="" *="" *="" (viii)="" universal="" waste="" handlers="" and="" universal="" waste="" transporters="" (as="" defined="" in="" 40="" cfr="" 260.10)="" managing="" the="" wastes="" listed="" below.="" these="" handlers="" are="" subject="" to="" regulation="" under="" 40="" part="" cfr="" 273.="" (a)="" batteries="" as="" described="" in="" 40="" cfr="" 273.2;="" (b)="" pesticides="" as="" described="" in="" 40="" cfr="" 273.3;="" and="" (c)="" thermostats="" as="" described="" in="" 40="" cfr="" 273.4.="" *="" *="" *="" *="" *="" 23.="" title="" 40="" of="" the="" code="" of="" federal="" regulations="" is="" amended="" by="" adding="" part="" 273="" to="" read="" as="" follows:="" part="" 273--standards="" for="" universal="" waste="" management="" subpart="" a--general="" 273.1="" scope.="" 273.2="" applicability--batteries.="" 273.3="" applicability--pesticides.="" 273.4="" applicability--thermostats.="" 273.5="" applicability--household="" and="" conditionally="" exempt="" small="" quantity="" generator="" waste.="" 273.6="" definitions.="" subpart="" b--standards="" for="" small="" quantity="" handlers="" of="" universal="" waste="" 273.10="" applicability.="" 273.11="" prohibitions.="" 273.12="" notification.="" 273.13="" waste="" management.="" 273.14="" labeling/marking.="" 273.15="" accumulation="" time="" limits.="" 273.16="" employee="" training.="" 273.17="" response="" to="" releases.="" 273.18="" off-site="" shipments.="" 273.19="" tracking="" universal="" waste="" shipments.="" 273.20="" exports.="" subpart="" c--standards="" for="" large="" quantity="" handlers="" of="" universal="" waste="" 273.30="" applicability.="" 273.31="" prohibitions.="" 273.32="" notification.="" 273.33="" waste="" management.="" 273.34="" labeling/marking.="" 273.35="" accumulation="" time="" limits.="" 273.36="" employee="" training.="" 273.37="" response="" to="" releases.="" 273.38="" off-site="" shipments.="" 273.39="" tracking="" universal="" waste="" shipments.="" 273.40="" exports.="" subpart="" d--standards="" for="" universal="" waste="" transporters="" 273.50="" applicability.="" 273.51="" prohibitions.="" 273.52="" waste="" management.="" 273.53="" accumulation="" time="" limits.="" [[page="" 25543]]="" 273.54="" response="" to="" releases.="" 273.55="" off-site="" shipments.="" 273.56="" exports.="" subpart="" e--standards="" for="" destination="" facilities="" 273.60="" applicability.="" 273.61="" off-site="" shipments.="" 273.62="" tracking="" universal="" waste="" shipments.="" subpart="" f--import="" requirements="" 273.70="" imports.="" subpart="" g--petitions="" to="" include="" other="" wastes="" under="" 40="" cfr="" part="" 273="" 273.80="" general.="" 273.81="" factors="" for="" petitions="" to="" include="" other="" wastes="" under="" 40="" cfr="" part="" 273.="" authority:="" 42="" u.s.c.="" 6922,="" 6923,="" 6924,="" 6925,="" 6930,="" and="" 6937.="" subpart="" a--general="" sec.="" 273.1="" scope.="" (a)="" this="" part="" establishes="" requirements="" for="" managing="" the="" following:="" (1)="" batteries="" as="" described="" in="" 40="" cfr="" 273.2;="" (2)="" pesticides="" as="" described="" in="" 40="" cfr="" 273.3;="" and="" (3)="" thermostats="" as="" described="" in="" 40="" cfr="" 273.4.="" (b)="" this="" part="" provides="" an="" alternative="" set="" of="" management="" standards="" in="" lieu="" of="" regulation="" under="" 40="" cfr="" parts="" 260="" through="" 272.="" sec.="" 273.2="" applicability--batteries.="" (a)="" batteries="" covered="" under="" 40="" cfr="" part="" 273.="" (1)="" the="" requirements="" of="" this="" part="" apply="" to="" persons="" managing="" batteries,="" as="" described="" in="" sec.="" 273.6,="" except="" those="" listed="" in="" paragraph="" (b)="" of="" this="" section.="" (2)="" spent="" lead-acid="" batteries="" which="" are="" not="" managed="" under="" 40="" cfr="" part="" 266,="" subpart="" g,="" are="" subject="" to="" management="" under="" this="" part.="" (b)="" batteries="" not="" covered="" under="" 40="" cfr="" part="" 273.="" the="" requirements="" of="" this="" part="" do="" not="" apply="" to="" persons="" managing="" the="" following="" batteries:="" (1)="" spent="" lead-acid="" batteries="" that="" are="" managed="" under="" 40="" cfr="" part="" 266,="" subpart="" g.="" (2)="" batteries,="" as="" described="" in="" sec.="" 273.6,="" that="" are="" not="" yet="" wastes="" under="" part="" 261="" of="" this="" chapter,="" including="" those="" that="" do="" not="" meet="" the="" criteria="" for="" waste="" generation="" in="" paragraph="" (c)="" of="" this="" section.="" (3)="" batteries,="" as="" described="" in="" sec.="" 273.6,="" that="" are="" not="" hazardous="" waste.="" a="" battery="" is="" a="" hazardous="" waste="" if="" it="" exhibits="" one="" or="" more="" of="" the="" characteristics="" identified="" in="" 40="" cfr="" part="" 261,="" subpart="" c.="" (c)="" generation="" of="" waste="" batteries.="" (1)="" a="" used="" battery="" becomes="" a="" waste="" on="" the="" date="" it="" is="" discarded="" (e.g.,="" when="" sent="" for="" reclamation).="" (2)="" an="" unused="" battery="" becomes="" a="" waste="" on="" the="" date="" the="" handler="" decides="" to="" discard="" it.="" sec.="" 273.3="" applicability--pesticides.="" (a)="" pesticides="" covered="" under="" 40="" cfr="" part="" 273.="" the="" requirements="" of="" this="" part="" apply="" to="" persons="" managing="" pesticides,="" as="" described="" in="" sec.="" 273.6,="" meeting="" the="" following="" conditions,="" except="" those="" listed="" in="" paragraph="" (b)="" of="" this="" section:="" (1)="" recalled="" pesticides="" that="" are:="" (i)="" stocks="" of="" a="" suspended="" and="" canceled="" pesticide="" that="" are="" part="" of="" a="" voluntary="" or="" mandatory="" recall="" under="" fifra="" section="" 19(b),="" including,="" but="" not="" limited="" to="" those="" owned="" by="" the="" registrant="" responsible="" for="" conducting="" the="" recall;="" or="" (ii)="" stocks="" of="" a="" suspended="" or="" cancelled="" pesticide,="" or="" a="" pesticide="" that="" is="" not="" in="" compliance="" with="" fifra,="" that="" are="" part="" of="" a="" voluntary="" recall="" by="" the="" registrant.="" (2)="" stocks="" of="" other="" unused="" pesticide="" products="" that="" are="" collected="" and="" managed="" as="" part="" of="" a="" waste="" pesticide="" collection="" program.="" (b)="" pesticides="" not="" covered="" under="" 40="" cfr="" part="" 273.="" the="" requirements="" of="" this="" part="" do="" not="" apply="" to="" persons="" managing="" the="" following="" pesticides:="" (1)="" recalled="" pesticides="" described="" in="" paragraph="" (a)(1)="" of="" this="" section,="" and="" unused="" pesticide="" products="" described="" in="" paragraph="" (a)(2)="" of="" this="" section,="" that="" are="" managed="" by="" farmers="" in="" compliance="" with="" 40="" cfr="" 262.70.="" (40="" cfr="" 262.70="" addresses="" pesticides="" disposed="" of="" on="" the="" farmer's="" own="" farm="" in="" a="" manner="" consistent="" with="" the="" disposal="" instructions="" on="" the="" pesticide="" label,="" providing="" the="" container="" is="" triple="" rinsed="" in="" accordance="" with="" 40="" cfr="" 261.7(b)(3));="" (2)="" pesticides="" not="" meeting="" the="" conditions="" set="" forth="" in="" paragraph="" (a)="" of="" this="" section.="" these="" pesticides="" must="" be="" managed="" in="" compliance="" with="" the="" hazardous="" waste="" regulations="" in="" 40="" cfr="" parts="" 260="" through="" 272;="" (3)="" pesticides="" that="" are="" not="" wastes="" under="" part="" 261="" of="" this="" chapter,="" including="" those="" that="" do="" not="" meet="" the="" criteria="" for="" waste="" generation="" in="" paragraph="" (c)="" of="" this="" section="" or="" those="" that="" are="" not="" wastes="" as="" described="" in="" paragraph="" (d)="" of="" this="" section;="" and="" (4)="" pesticides="" that="" are="" not="" hazardous="" waste.="" a="" pesticide="" is="" a="" hazardous="" waste="" if="" it="" is="" listed="" in="" 40="" cfr="" part="" 261,="" subpart="" d="" or="" if="" it="" exhibits="" one="" or="" more="" of="" the="" characteristics="" identified="" in="" 40="" cfr="" part="" 261,="" subpart="" c.="" (c)="" when="" a="" pesticide="" becomes="" a="" waste.="" (1)="" a="" recalled="" pesticide="" described="" in="" paragraph="" (a)(1)="" of="" this="" section="" becomes="" a="" waste="" on="" the="" first="" date="" on="" which="" both="" of="" the="" following="" conditions="" apply:="" (i)="" the="" generator="" of="" the="" recalled="" pesticide="" agrees="" to="" participate="" in="" the="" recall;="" and="" (ii)="" the="" person="" conducting="" the="" recall="" decides="" to="" discard="" (e.g.,="" burn="" the="" pesticide="" for="" energy="" recovery).="" (2)="" an="" unused="" pesticide="" product="" described="" in="" paragraph="" (a)(2)="" of="" this="" section="" becomes="" a="" waste="" on="" the="" date="" the="" generator="" decides="" to="" discard="" it.="" (d)="" pesticides="" that="" are="" not="" wastes.="" the="" following="" pesticides="" are="" not="" wastes:="" (1)="" recalled="" pesticides="" described="" in="" paragraph="" (a)(1)="" of="" this="" section,="" provided="" that="" the="" person="" conducting="" the="" recall:="" (i)="" has="" not="" made="" a="" decision="" to="" discard="" (e.g.,="" burn="" for="" energy="" recovery)="" the="" pesticide.="" until="" such="" a="" decision="" is="" made,="" the="" pesticide="" does="" not="" meet="" the="" definition="" of="" ``solid="" waste''="" under="" 40="" cfr="" 261.2;="" thus="" the="" pesticide="" is="" not="" a="" hazardous="" waste="" and="" is="" not="" subject="" to="" hazardous="" waste="" requirements,="" including="" this="" part="" 273.="" this="" pesticide="" remains="" subject="" to="" the="" requirements="" of="" fifra;="" or="" (ii)="" has="" made="" a="" decision="" to="" use="" a="" management="" option="" that,="" under="" 40="" cfr="" 261.2,="" does="" not="" cause="" the="" pesticide="" to="" be="" a="" solid="" waste="" (i.e.,="" the="" selected="" option="" is="" use="" (other="" than="" use="" constituting="" disposal)="" or="" reuse="" (other="" than="" burning="" for="" energy="" recovery),="" or="" reclamation).="" such="" a="" pesticide="" is="" not="" a="" solid="" waste="" and="" therefore="" is="" not="" a="" hazardous="" waste,="" and="" is="" not="" subject="" to="" the="" hazardous="" waste="" requirements="" including="" this="" part="" 273.="" this="" pesticide,="" including="" a="" recalled="" pesticide="" that="" is="" exported="" to="" a="" foreign="" destination="" for="" use="" or="" reuse,="" remains="" subject="" to="" the="" requirements="" of="" fifra.="" (2)="" unused="" pesticide="" products="" described="" in="" paragraph="" (a)(2)="" of="" this="" section,="" if="" the="" generator="" of="" the="" unused="" pesticide="" product="" has="" not="" decided="" to="" discard="" (e.g.,="" burn="" for="" energy="" recovery)="" them.="" these="" pesticides="" remain="" subject="" to="" the="" requirements="" of="" fifra.="" sec.="" 273.4="" applicability--mercury="" thermostats.="" (a)="" thermostats="" covered="" under="" 40="" cfr="" part="" 273.="" the="" requirements="" of="" this="" part="" apply="" to="" persons="" managing="" thermostats,="" as="" described="" in="" sec.="" 273.6,="" except="" those="" listed="" in="" paragraph="" (b)="" of="" this="" section.="" (b)="" thermostats="" not="" covered="" under="" 40="" cfr="" part="" 273.="" the="" requirements="" of="" this="" part="" do="" not="" apply="" to="" persons="" managing="" the="" following="" thermostats:="" (1)="" thermostats="" that="" are="" not="" yet="" wastes="" under="" part="" 261="" of="" this="" chapter.="" paragraph="" (c)="" of="" this="" section="" describes="" when="" thermostats="" become="" wastes.="" (2)="" thermostats="" that="" are="" not="" hazardous="" waste.="" a="" thermostat="" is="" a="" hazardous="" waste="" if="" it="" exhibits="" one="" or="" more="" of="" the="" characteristics="" identified="" in="" 40="" cfr="" part="" 261,="" subpart="" c.="" (c)="" generation="" of="" waste="" thermostats.="" (1)="" a="" used="" thermostat="" becomes="" a="" waste="" [[page="" 25544]]="" on="" the="" date="" it="" is="" discarded="" (e.g.,="" sent="" for="" reclamation).="" (2)="" an="" unused="" thermostat="" becomes="" a="" waste="" on="" the="" date="" the="" handler="" decides="" to="" discard="" it.="" sec.="" 273.5="" applicability--household="" and="" conditionally="" exempt="" small="" quantity="" generator="" waste.="" (a)="" persons="" managing="" the="" wastes="" listed="" below="" may,="" at="" their="" option,="" manage="" them="" under="" the="" requirements="" of="" this="" part:="" (1)="" household="" wastes="" that="" are="" exempt="" under="" 40="" cfr="" 261.4(b)(1)="" and="" are="" also="" of="" the="" same="" type="" as="" the="" universal="" wastes="" defined="" at="" 40="" cfr="" 273.6;="" and/or="" (2)="" conditionally="" exempt="" small="" quantity="" generator="" wastes="" that="" are="" exempt="" under="" 40="" cfr="" 261.5="" and="" are="" also="" of="" the="" same="" type="" as="" the="" universal="" wastes="" defined="" at="" 40="" cfr="" 273.6.="" (b)="" persons="" who="" commingle="" the="" wastes="" described="" in="" paragraphs="" (a)(1)="" and="" (a)(2)="" of="" this="" section="" together="" with="" universal="" waste="" regulated="" under="" this="" part="" must="" manage="" the="" commingled="" waste="" under="" the="" requirements="" of="" this="" part.="" sec.="" 273.6="" definitions.="" battery="" means="" a="" device="" consisting="" of="" one="" or="" more="" electrically="" connected="" electrochemical="" cells="" which="" is="" designed="" to="" receive,="" store,="" and="" deliver="" electric="" energy.="" an="" electrochemical="" cell="" is="" a="" system="" consisting="" of="" an="" anode,="" cathode,="" and="" an="" electrolyte,="" plus="" such="" connections="" (electrical="" and="" mechanical)="" as="" may="" be="" needed="" to="" allow="" the="" cell="" to="" deliver="" or="" receive="" electrical="" energy.="" the="" term="" battery="" also="" includes="" an="" intact,="" unbroken="" battery="" from="" which="" the="" electrolyte="" has="" been="" removed.="" destination="" facility="" means="" a="" facility="" that="" treats,="" disposes="" of,="" or="" recycles="" a="" particular="" category="" of="" universal="" waste,="" except="" those="" management="" activities="" described="" in="" sec.="" 273.13="" (a)="" and="" (c)="" and="" sec.="" 273.33="" (a)="" and="" (c).="" a="" facility="" at="" which="" a="" particular="" category="" of="" universal="" waste="" is="" only="" accumulated,="" is="" not="" a="" destination="" facility="" for="" purposes="" of="" managing="" that="" category="" of="" universal="" waste.="" fifra="" means="" the="" federal="" insecticide,="" fungicide,="" and="" rodenticide="" act="" (7="" u.s.c.="" 136-136y).="" generator="" means="" any="" person,="" by="" site,="" whose="" act="" or="" process="" produces="" hazardous="" waste="" identified="" or="" listed="" in="" part="" 261="" of="" this="" chapter="" or="" whose="" act="" first="" causes="" a="" hazardous="" waste="" to="" become="" subject="" to="" regulation.="" large="" quantity="" handler="" of="" universal="" waste="" means="" a="" universal="" waste="" handler="" (as="" defined="" in="" this="" section)="" who="" accumulates="" 5,000="" kilograms="" or="" more="" total="" of="" universal="" waste="" (batteries,="" pesticides,="" or="" thermostats,="" calculated="" collectively)="" at="" any="" time.="" this="" designation="" as="" a="" large="" quantity="" handler="" of="" universal="" waste="" is="" retained="" through="" the="" end="" of="" the="" calendar="" year="" in="" which="" 5,000="" kilograms="" or="" more="" total="" of="" universal="" waste="" is="" accumulated.="" on-site="" means="" the="" same="" or="" geographically="" contiguous="" property="" which="" may="" be="" divided="" by="" public="" or="" private="" right-of-way,="" provided="" that="" the="" entrance="" and="" exit="" between="" the="" properties="" is="" at="" a="" cross-roads="" intersection,="" and="" access="" is="" by="" crossing="" as="" opposed="" to="" going="" along="" the="" right="" of="" way.="" non-contiguous="" properties="" owned="" by="" the="" same="" person="" but="" connected="" by="" a="" right-of-way="" which="" he="" controls="" and="" to="" which="" the="" public="" does="" not="" have="" access,="" are="" also="" considered="" on-site="" property.="" pesticide="" means="" any="" substance="" or="" mixture="" of="" substances="" intended="" for="" preventing,="" destroying,="" repelling,="" or="" mitigating="" any="" pest,="" or="" intended="" for="" use="" as="" a="" plant="" regulator,="" defoliant,="" or="" desiccant,="" other="" than="" any="" article="" that:="" (a)="" is="" a="" new="" animal="" drug="" under="" ffdca="" section="" 201(w),="" or="" (b)="" is="" an="" animal="" drug="" that="" has="" been="" determined="" by="" regulation="" of="" the="" secretary="" of="" health="" and="" human="" services="" not="" to="" be="" a="" new="" animal="" drug,="" or="" (c)="" is="" an="" animal="" feed="" under="" ffdca="" section="" 201(x)="" that="" bears="" or="" contains="" any="" substances="" described="" by="" paragraph="" (a)="" or="" (b)="" of="" this="" section.="" small="" quantity="" handler="" of="" universal="" waste="" means="" a="" universal="" waste="" handler="" (as="" defined="" in="" this="" section)="" who="" does="" not="" accumulate="" more="" than="" 5,000="" kilograms="" total="" of="" universal="" waste="" (batteries,="" pesticides,="" or="" thermostats,="" calculated="" collectively)="" at="" any="" time.="" thermostat="" means="" a="" temperature="" control="" device="" that="" contains="" metallic="" mercury="" in="" an="" ampule="" attached="" to="" a="" bimetal="" sensing="" element,="" and="" mercury-containing="" ampules="" that="" have="" been="" removed="" from="" these="" temperature="" control="" devices="" in="" compliance="" with="" the="" requirements="" of="" 40="" cfr="" 273.13(c)(2)="" or="" 273.33(c)(2).="" universal="" waste="" means="" any="" of="" the="" following="" hazardous="" wastes="" that="" are="" subject="" to="" the="" universal="" waste="" requirements="" of="" 40="" cfr="" part="" 273:="" (a)="" batteries="" as="" described="" in="" 40="" cfr="" 273.2;="" (b)="" pesticides="" as="" described="" in="" 40="" cfr="" 273.3;="" and="" (c)="" thermostats="" as="" described="" in="" 40="" cfr="" 273.4.="" universal="" waste="" handler:="" (a)="" means:="" (1)="" a="" generator="" (as="" defined="" in="" this="" section)="" of="" universal="" waste;="" or="" (2)="" the="" owner="" or="" operator="" of="" a="" facility,="" including="" all="" contiguous="" property,="" that="" receives="" universal="" waste="" from="" other="" universal="" waste="" handlers,="" accumulates="" universal="" waste,="" and="" sends="" universal="" waste="" to="" another="" universal="" waste="" handler,="" to="" a="" destination="" facility,="" or="" to="" a="" foreign="" destination.="" (b)="" does="" not="" mean:="" (1)="" a="" person="" who="" treats="" (except="" under="" the="" provisions="" of="" 40="" cfr="" 273.13="" (a)="" or="" (c),="" or="" 273.33="" (a)="" or="" (c)),="" disposes="" of,="" or="" recycles="" universal="" waste;="" or="" (2)="" a="" person="" engaged="" in="" the="" off-site="" transportation="" of="" universal="" waste="" by="" air,="" rail,="" highway,="" or="" water,="" including="" a="" universal="" waste="" transfer="" facility.="" universal="" waste="" transfer="" facility="" means="" any="" transportation-related="" facility="" including="" loading="" docks,="" parking="" areas,="" storage="" areas="" and="" other="" similar="" areas="" where="" shipments="" of="" universal="" waste="" are="" held="" during="" the="" normal="" course="" of="" transportation="" for="" ten="" days="" or="" less.="" universal="" waste="" transporter="" means="" a="" person="" engaged="" in="" the="" off-site="" transportation="" of="" universal="" waste="" by="" air,="" rail,="" highway,="" or="" water.="" subpart="" b--standards="" for="" small="" quantity="" handlers="" of="" universal="" waste="" sec.="" 273.10="" applicability.="" this="" subpart="" applies="" to="" small="" quantity="" handlers="" of="" universal="" waste="" (as="" defined="" in="" 40="" cfr="" 273.6).="" sec.="" 273.11="" prohibitions.="" a="" small="" quantity="" handler="" of="" universal="" waste="" is:="" (a)="" prohibited="" from="" disposing="" of="" universal="" waste;="" and="" (b)="" prohibited="" from="" diluting="" or="" treating="" universal="" waste,="" except="" by="" responding="" to="" releases="" as="" provided="" in="" 40="" cfr="" 273.17;="" or="" by="" managing="" specific="" wastes="" as="" provided="" in="" 40="" cfr="" 273.13.="" sec.="" 273.12="" notification.="" a="" small="" quantity="" handler="" of="" universal="" waste="" is="" not="" required="" to="" notify="" epa="" of="" universal="" waste="" handling="" activities.="" sec.="" 273.13="" waste="" management.="" (a)="" universal="" waste="" batteries.="" a="" small="" quantity="" handler="" of="" universal="" waste="" must="" manage="" universal="" waste="" batteries="" in="" a="" way="" that="" prevents="" releases="" of="" any="" universal="" waste="" or="" component="" of="" a="" universal="" waste="" to="" the="" environment,="" as="" follows:="" (1)="" a="" small="" quantity="" handler="" of="" universal="" waste="" must="" contain="" any="" universal="" waste="" battery="" that="" shows="" evidence="" of="" leakage,="" spillage,="" or="" damage="" that="" could="" cause="" leakage="" under="" reasonably="" foreseeable="" conditions="" in="" a="" container.="" the="" container="" must="" be="" closed,="" structurally="" sound,="" compatible="" with="" the="" contents="" of="" the="" battery,="" and="" must="" lack="" evidence="" of="" leakage,="" spillage,="" or="" damage="" that="" could="" cause="" leakage="" under="" reasonably="" foreseeable="" conditions.="" [[page="" 25545]]="" (2)="" a="" small="" quantity="" handler="" of="" universal="" waste="" may="" conduct="" the="" following="" activities="" as="" long="" as="" the="" casing="" of="" each="" individual="" battery="" cell="" is="" not="" breached="" and="" remains="" intact="" and="" closed="" (except="" that="" cells="" may="" be="" opened="" to="" remove="" electrolyte="" but="" must="" be="" immediately="" closed="" after="" removal):="" (i)="" sorting="" batteries="" by="" type;="" (ii)="" mixing="" battery="" types="" in="" one="" container;="" (iii)="" discharging="" batteries="" so="" as="" to="" remove="" the="" electric="" charge;="" (iv)="" regenerating="" used="" batteries;="" (v)="" disassembling="" batteries="" or="" battery="" packs="" into="" individual="" batteries="" or="" cells;="" (vi)="" removing="" batteries="" from="" consumer="" products;="" or="" (vii)="" removing="" electrolyte="" from="" batteries.="" (3)="" a="" small="" quantity="" handler="" of="" universal="" waste="" who="" removes="" electrolyte="" from="" batteries,="" or="" who="" generates="" other="" solid="" waste="" (e.g.,="" battery="" pack="" materials,="" discarded="" consumer="" products)="" as="" a="" result="" of="" the="" activities="" listed="" above,="" must="" determine="" whether="" the="" electrolyte="" and/or="" other="" solid="" waste="" exhibit="" a="" characteristic="" of="" hazardous="" waste="" identified="" in="" 40="" cfr="" part="" 261,="" subpart="" c.="" (i)="" if="" the="" electrolyte="" and/or="" other="" solid="" waste="" exhibit="" a="" characteristic="" of="" hazardous="" waste,="" it="" is="" subject="" to="" all="" applicable="" requirements="" of="" 40="" cfr="" parts="" 260="" through="" 272.="" the="" handler="" is="" considered="" the="" generator="" of="" the="" hazardous="" electrolyte="" and/or="" other="" waste="" and="" is="" subject="" to="" 40="" cfr="" part="" 262.="" (ii)="" if="" the="" electrolyte="" or="" other="" solid="" waste="" is="" not="" hazardous,="" the="" handler="" may="" manage="" the="" waste="" in="" any="" way="" that="" is="" in="" compliance="" with="" applicable="" federal,="" state="" or="" local="" solid="" waste="" regulations.="" (b)="" universal="" waste="" pesticides.="" a="" small="" quantity="" handler="" of="" universal="" waste="" must="" manage="" universal="" waste="" pesticides="" in="" a="" way="" that="" prevent="" releases="" of="" any="" universal="" waste="" or="" component="" of="" a="" universal="" waste="" to="" the="" environment.="" the="" universal="" waste="" pesticides="" must="" be="" contained="" in="" one="" or="" more="" of="" the="" following:="" (1)="" a="" container="" that="" remains="" closed,="" structurally="" sound,="" compatible="" with="" the="" pesticide,="" and="" that="" lacks="" evidence="" of="" leakage,="" spillage,="" or="" damage="" that="" could="" cause="" leakage="" under="" reasonably="" foreseeable="" conditions;="" or="" (2)="" a="" container="" that="" does="" not="" meet="" the="" requirements="" of="" paragraph="" (b)(1)="" of="" this="" section,="" provided="" that="" the="" unacceptable="" container="" is="" overpacked="" in="" a="" container="" that="" does="" meet="" the="" requirements="" of="" paragraph="" (b)(1)="" of="" this="" section;="" or="" (3)="" a="" tank="" that="" meets="" the="" requirements="" of="" 40="" cfr="" part="" 265="" subpart="" j,="" except="" for="" 40="" cfr="" 265.197(c),="" 265.200,="" and="" 265.201;="" or="" (4)="" a="" transport="" vehicle="" or="" vessel="" that="" is="" closed,="" structurally="" sound,="" compatible="" with="" the="" pesticide,="" and="" that="" lacks="" evidence="" of="" leakage,="" spillage,="" or="" damage="" that="" could="" cause="" leakage="" under="" reasonably="" foreseeable="" conditions.="" (c)="" universal="" waste="" thermostats.="" a="" small="" quantity="" handler="" of="" universal="" waste="" must="" manage="" universal="" waste="" thermostats="" in="" a="" way="" that="" prevents="" releases="" of="" any="" universal="" waste="" or="" component="" of="" a="" universal="" waste="" to="" the="" environment,="" as="" follows:="" (1)="" a="" small="" quantity="" handler="" of="" universal="" waste="" must="" contain="" any="" universal="" waste="" thermostat="" that="" shows="" evidence="" of="" leakage,="" spillage,="" or="" damage="" that="" could="" cause="" leakage="" under="" reasonably="" foreseeable="" conditions="" in="" a="" container.="" the="" container="" must="" be="" closed,="" structurally="" sound,="" compatible="" with="" the="" contents="" of="" the="" thermostat,="" and="" must="" lack="" evidence="" of="" leakage,="" spillage,="" or="" damage="" that="" could="" cause="" leakage="" under="" reasonably="" foreseeable="" conditions.="" (2)="" a="" small="" quantity="" handler="" of="" universal="" waste="" may="" remove="" mercury-="" containing="" ampules="" from="" universal="" waste="" thermostats="" provided="" the="" handler:="" (i)="" removes="" the="" ampules="" in="" a="" manner="" designed="" to="" prevent="" breakage="" of="" the="" ampules;="" (ii)="" removes="" ampules="" only="" over="" or="" in="" a="" containment="" device="" (e.g.,="" tray="" or="" pan="" sufficient="" to="" collect="" and="" contain="" any="" mercury="" released="" from="" an="" ampule="" in="" case="" of="" breakage);="" (iii)="" ensures="" that="" a="" mercury="" clean-up="" system="" is="" readily="" available="" to="" immediately="" transfer="" any="" mercury="" resulting="" from="" spills="" or="" leaks="" from="" broken="" ampules,="" from="" the="" containment="" device="" to="" a="" container="" that="" meets="" the="" requirements="" of="" 40="" cfr="" 262.34;="" (iv)="" immediately="" transfers="" any="" mercury="" resulting="" from="" spills="" or="" leaks="" from="" broken="" ampules="" from="" the="" containment="" device="" to="" a="" container="" that="" meets="" the="" requirements="" of="" 40="" cfr="" 262.34;="" (v)="" ensures="" that="" the="" area="" in="" which="" ampules="" are="" removed="" is="" well="" ventilated="" and="" monitored="" to="" ensure="" compliance="" with="" applicable="" osha="" exposure="" levels="" for="" mercury;="" (vi)="" ensures="" that="" employees="" removing="" ampules="" are="" thoroughly="" familiar="" with="" proper="" waste="" mercury="" handling="" and="" emergency="" procedures,="" including="" transfer="" of="" mercury="" from="" containment="" devices="" to="" appropriate="" containers;="" (vii)="" stores="" removed="" ampules="" in="" closed,="" non-leaking="" containers="" that="" are="" in="" good="" condition;="" (viii)="" packs="" removed="" ampules="" in="" the="" container="" with="" packing="" materials="" adequate="" to="" prevent="" breakage="" during="" storage,="" handling,="" and="" transportation;="" and="" (3)(i)="" a="" small="" quantity="" handler="" of="" universal="" waste="" who="" removes="" mercury-containing="" ampules="" from="" thermostats="" must="" determine="" whether="" the="" following="" exhibit="" a="" characteristic="" of="" hazardous="" waste="" identified="" in="" 40="" cfr="" part="" 261,="" subpart="" c:="" (a)="" mercury="" or="" clean-up="" residues="" resulting="" from="" spills="" or="" leaks;="" and/or="" (b)="" other="" solid="" waste="" generated="" as="" a="" result="" of="" the="" removal="" of="" mercury-containing="" ampules="" (e.g.,="" remaining="" thermostat="" units).="" (ii)="" if="" the="" mercury,="" residues,="" and/or="" other="" solid="" waste="" exhibit="" a="" characteristic="" of="" hazardous="" waste,="" it="" must="" be="" managed="" in="" compliance="" with="" all="" applicable="" requirements="" of="" 40="" cfr="" parts="" 260="" through="" 272.="" the="" handler="" is="" considered="" the="" generator="" of="" the="" mercury,="" residues,="" and/or="" other="" waste="" and="" must="" manage="" it="" is="" subject="" to="" 40="" cfr="" part="" 262.="" (iii)="" if="" the="" mercury,="" residues,="" and/or="" other="" solid="" waste="" is="" not="" hazardous,="" the="" handler="" may="" manage="" the="" waste="" in="" any="" way="" that="" is="" in="" compliance="" with="" applicable="" federal,="" state="" or="" local="" solid="" waste="" regulations.="" sec.="" 273.14="" labeling/marking.="" a="" small="" quantity="" handler="" of="" universal="" waste="" must="" label="" or="" mark="" the="" universal="" waste="" to="" identify="" the="" type="" of="" universal="" waste="" as="" specified="" below:="" (a)="" universal="" waste="" batteries="" (i.e.,="" each="" battery),="" or="" a="" container="" in="" which="" the="" batteries="" are="" contained,="" must="" be="" labeled="" or="" marked="" clearly="" with="" any="" one="" of="" the="" following="" phrases:="" ``universal="" waste--battery(ies),="" or="" ``waste="" battery(ies),''="" or="" ``used="" battery(ies);''="" (b)="" a="" container,="" (or="" multiple="" container="" package="" unit),="" tank,="" transport="" vehicle="" or="" vessel="" in="" which="" recalled="" universal="" waste="" pesticides="" as="" described="" in="" 40="" cfr="" 273.3(a)(1)="" are="" contained="" must="" be="" labeled="" or="" marked="" clearly="" with:="" (1)="" the="" label="" that="" was="" on="" or="" accompanied="" the="" product="" as="" sold="" or="" distributed;="" and="" (2)="" the="" words="" ``universal="" waste-pesticide(s)''="" or="" ``waste-="" pesticide(s);''="" (c)="" a="" container,="" tank,="" or="" transport="" vehicle="" or="" vessel="" in="" which="" unused="" pesticide="" products="" as="" described="" in="" 40="" cfr="" 273.3(a)(2)="" are="" contained="" must="" be="" labeled="" or="" marked="" clearly="" with:="" (1)(i)="" the="" label="" that="" was="" on="" the="" product="" when="" purchased,="" if="" still="" legible;="" (ii)="" if="" using="" the="" labels="" described="" in="" paragraph="" (c)(1)(i)="" of="" this="" section="" is="" not="" feasible,="" the="" appropriate="" label="" as="" required="" under="" the="" department="" of="" transportation="" regulation="" 49="" cfr="" part="" 172;="" (iii)="" if="" using="" the="" labels="" described="" in="" paragraphs="" (c)(1)="" (i)="" and="" (ii)="" of="" this="" section="" is="" not="" feasible,="" another="" label="" prescribed="" or="" designated="" by="" the="" waste="" [[page="" 25546]]="" pesticide="" collection="" program="" administered="" or="" recognized="" by="" a="" state;="" and="" (2)="" the="" words="" ``universal="" waste-pesticide(s)''="" or="" ``waste-="" pesticide(s).''="" (d)="" universal="" waste="" thermostats="" (i.e.,="" each="" thermostat),="" or="" a="" container="" in="" which="" the="" thermostats="" are="" contained,="" must="" be="" labeled="" or="" marked="" clearly="" with="" any="" one="" of="" the="" following="" phrases:="" ``universal="" waste--mercury="" thermostat(s),''="" or="" ``waste="" mercury="" thermostat(s),''="" or="" ``used="" mercury="" thermostat(s)''.="" sec.="" 273.15="" accumulation="" time="" limits.="" (a)="" a="" small="" quantity="" handler="" of="" universal="" waste="" may="" accumulate="" universal="" waste="" for="" no="" longer="" than="" one="" year="" from="" the="" date="" the="" universal="" waste="" is="" generated,="" or="" received="" from="" another="" handler,="" unless="" the="" requirements="" of="" paragraph="" (b)="" of="" this="" section="" are="" met.="" (b)="" a="" small="" quantity="" handler="" of="" universal="" waste="" may="" accumulate="" universal="" waste="" for="" longer="" than="" one="" year="" from="" the="" date="" the="" universal="" waste="" is="" generated,="" or="" received="" from="" another="" handler,="" if="" such="" activity="" is="" solely="" for="" the="" purpose="" of="" accumulation="" of="" such="" quantities="" of="" universal="" waste="" as="" necessary="" to="" facilitate="" proper="" recovery,="" treatment,="" or="" disposal.="" however,="" the="" handler="" bears="" the="" burden="" of="" proving="" that="" such="" activity="" is="" solely="" for="" the="" purpose="" of="" accumulation="" of="" such="" quantities="" of="" universal="" waste="" as="" necessary="" to="" facilitate="" proper="" recovery,="" treatment,="" or="" disposal.="" (c)="" a="" small="" quantity="" handler="" of="" universal="" waste="" who="" accumulates="" universal="" waste="" must="" be="" able="" to="" demonstrate="" the="" length="" of="" time="" that="" the="" universal="" waste="" has="" been="" accumulated="" from="" the="" date="" it="" becomes="" a="" waste="" or="" is="" received.="" the="" handler="" may="" make="" this="" demonstration="" by:="" (1)="" placing="" the="" universal="" waste="" in="" a="" container="" and="" marking="" or="" labeling="" the="" container="" with="" the="" earliest="" date="" that="" any="" universal="" waste="" in="" the="" container="" became="" a="" waste="" or="" was="" received;="" (2)="" marking="" or="" labeling="" each="" individual="" item="" of="" universal="" waste="" (e.g.,="" each="" battery="" or="" thermostat)="" with="" the="" date="" it="" became="" a="" waste="" or="" was="" received;="" (3)="" maintaining="" an="" inventory="" system="" on-site="" that="" identifies="" the="" date="" each="" universal="" waste="" became="" a="" waste="" or="" was="" received;="" (4)="" maintaining="" an="" inventory="" system="" on-site="" that="" identifies="" the="" earliest="" date="" that="" any="" universal="" waste="" in="" a="" group="" of="" universal="" waste="" items="" or="" a="" group="" of="" containers="" of="" universal="" waste="" became="" a="" waste="" or="" was="" received;="" (5)="" placing="" the="" universal="" waste="" in="" a="" specific="" accumulation="" area="" and="" identifying="" the="" earliest="" date="" that="" any="" universal="" waste="" in="" the="" area="" became="" a="" waste="" or="" was="" received;="" or="" (6)="" any="" other="" method="" which="" clearly="" demonstrates="" the="" length="" of="" time="" that="" the="" universal="" waste="" has="" been="" accumulated="" from="" the="" date="" it="" becomes="" a="" waste="" or="" is="" received.="" sec.="" 273.16="" employee="" training.="" a="" small="" quantity="" handler="" of="" universal="" waste="" must="" inform="" all="" employees="" who="" handle="" or="" have="" responsibility="" for="" managing="" universal="" waste.="" the="" information="" must="" describe="" proper="" handling="" and="" emergency="" procedures="" appropriate="" to="" the="" type(s)="" of="" universal="" waste="" handled="" at="" the="" facility.="" sec.="" 273.17="" response="" to="" releases.="" (a)="" a="" small="" quantity="" handler="" of="" universal="" waste="" must="" immediately="" contain="" all="" releases="" of="" universal="" wastes="" and="" other="" residues="" from="" universal="" wastes.="" (b)="" a="" small="" quantity="" handler="" of="" universal="" waste="" must="" determine="" whether="" any="" material="" resulting="" from="" the="" release="" is="" hazardous="" waste,="" and="" if="" so,="" must="" manage="" the="" hazardous="" waste="" in="" compliance="" with="" all="" applicable="" requirements="" of="" 40="" cfr="" parts="" 260="" through="" 272.="" the="" handler="" is="" considered="" the="" generator="" of="" the="" material="" resulting="" from="" the="" release,="" and="" must="" manage="" it="" in="" compliance="" with="" 40="" cfr="" part="" 262.="" sec.="" 273.18="" off-site="" shipments.="" (a)="" a="" small="" quantity="" handler="" of="" universal="" waste="" is="" prohibited="" from="" sending="" or="" taking="" universal="" waste="" to="" a="" place="" other="" than="" another="" universal="" waste="" handler,="" a="" destination="" facility,="" or="" a="" foreign="" destination.="" (b)="" if="" a="" small="" quantity="" handler="" of="" universal="" waste="" self-transports="" universal="" waste="" off-site,="" the="" handler="" becomes="" a="" universal="" waste="" transporter="" for="" those="" self-transportation="" activities="" and="" must="" comply="" with="" the="" transporter="" requirements="" of="" subpart="" d="" of="" this="" part="" while="" transporting="" the="" universal="" waste.="" (c)="" if="" a="" universal="" waste="" being="" offered="" for="" off-site="" transportation="" meets="" the="" definition="" of="" hazardous="" materials="" under="" 49="" cfr="" parts="" 171="" through="" 180,="" a="" small="" quantity="" handler="" of="" universal="" waste="" must="" package,="" label,="" mark="" and="" placard="" the="" shipment,="" and="" prepare="" the="" proper="" shipping="" papers="" in="" accordance="" with="" the="" applicable="" department="" of="" transportation="" regulations="" under="" 49="" cfr="" parts="" 172="" through="" 180;="" (d)="" prior="" to="" sending="" a="" shipment="" of="" universal="" waste="" to="" another="" universal="" waste="" handler,="" the="" originating="" handler="" must="" ensure="" that="" the="" receiving="" handler="" agrees="" to="" receive="" the="" shipment.="" (e)="" if="" a="" small="" quantity="" handler="" of="" universal="" waste="" sends="" a="" shipment="" of="" universal="" waste="" to="" another="" handler="" or="" to="" a="" destination="" facility="" and="" the="" shipment="" is="" rejected="" by="" the="" receiving="" handler="" or="" destination="" facility,="" the="" originating="" handler="" must="" either:="" (1)="" receive="" the="" waste="" back="" when="" notified="" that="" the="" shipment="" has="" been="" rejected,="" or="" (2)="" agree="" with="" the="" receiving="" handler="" on="" a="" destination="" facility="" to="" which="" the="" shipment="" will="" be="" sent.="" (f)="" a="" small="" quantity="" handler="" of="" universal="" waste="" may="" reject="" a="" shipment="" containing="" universal="" waste,="" or="" a="" portion="" of="" a="" shipment="" containing="" universal="" waste="" that="" he="" has="" received="" from="" another="" handler.="" if="" a="" handler="" rejects="" a="" shipment="" or="" a="" portion="" of="" a="" shipment,="" he="" must="" contact="" the="" originating="" handler="" to="" notify="" him="" of="" the="" rejection="" and="" to="" discuss="" reshipment="" of="" the="" load.="" the="" handler="" must:="" (1)="" send="" the="" shipment="" back="" to="" the="" originating="" handler,="" or="" (2)="" if="" agreed="" to="" by="" both="" the="" originating="" and="" receiving="" handler,="" send="" the="" shipment="" to="" a="" destination="" facility.="" (g)="" if="" a="" small="" quantity="" handler="" of="" universal="" waste="" receives="" a="" shipment="" containing="" hazardous="" waste="" that="" is="" not="" a="" universal="" waste,="" the="" handler="" must="" immediately="" notify="" the="" appropriate="" regional="" epa="" office="" of="" the="" illegal="" shipment,="" and="" provide="" the="" name,="" address,="" and="" phone="" number="" of="" the="" originating="" shipper.="" the="" epa="" regional="" office="" will="" provide="" instructions="" for="" managing="" the="" hazardous="" waste.="" (h)="" if="" a="" small="" quantity="" handler="" of="" universal="" waste="" receives="" a="" shipment="" of="" non-hazardous,="" non-universal="" waste,="" the="" handler="" may="" manage="" the="" waste="" in="" any="" way="" that="" is="" in="" compliance="" with="" applicable="" federal,="" state="" or="" local="" solid="" waste="" regulations.="" sec.="" 273.19="" tracking="" universal="" waste="" shipments.="" a="" small="" quantity="" handler="" of="" universal="" waste="" is="" not="" required="" to="" keep="" records="" of="" shipments="" of="" universal="" waste.="" sec.="" 273.20="" exports.="" a="" small="" quantity="" handler="" of="" universal="" waste="" who="" sends="" universal="" waste="" to="" a="" foreign="" destination="" must:="" (a)="" comply="" with="" the="" requirements="" applicable="" to="" a="" primary="" exporter="" in="" 40="" cfr="" 262.53,="" 262.56(a)="" (1)="" through="" (4),="" (6),="" and="" (b)="" and="" 262.57;="" (b)="" export="" such="" universal="" waste="" only="" upon="" consent="" of="" the="" receiving="" country="" and="" in="" conformance="" with="" the="" epa="" acknowledgement="" of="" consent="" as="" defined="" in="" subpart="" e="" of="" part="" 262="" of="" this="" chapter;="" and="" (c)="" provide="" a="" copy="" of="" the="" epa="" acknowledgment="" of="" consent="" for="" the="" shipment="" to="" the="" transporter="" transporting="" the="" shipment="" for="" export.="" [[page="" 25547]]="" subpart="" c--standards="" for="" large="" quantity="" handlers="" of="" universal="" waste="" sec.="" 273.30="" applicability.="" this="" subpart="" applies="" to="" large="" quantity="" handlers="" of="" universal="" waste="" (as="" defined="" in="" 40="" cfr="" 273.6).="" sec.="" 273.31="" prohibitions.="" a="" large="" quantity="" handler="" of="" universal="" waste="" is:="" (a)="" prohibited="" from="" disposing="" of="" universal="" waste;="" and="" (b)="" prohibited="" from="" diluting="" or="" treating="" universal="" waste,="" except="" by="" responding="" to="" releases="" as="" provided="" in="" 40="" cfr="" 273.37;="" or="" by="" managing="" specific="" wastes="" as="" provided="" in="" 40="" cfr="" 273.33.="" sec.="" 273.32="" notification.="" (a)(1)="" except="" as="" provided="" in="" paragraphs="" (a)="" (2)="" and="" (3)="" of="" this="" section,="" a="" large="" quantity="" handler="" of="" universal="" waste="" must="" have="" sent="" written="" notification="" of="" universal="" waste="" management="" to="" the="" regional="" administrator,="" and="" received="" an="" epa="" identification="" number,="" before="" meeting="" or="" exceeding="" the="" 5,000="" kilogram="" storage="" limit.="" (2)="" a="" large="" quantity="" handler="" of="" universal="" waste="" who="" has="" already="" notified="" epa="" of="" his="" hazardous="" waste="" management="" activities="" and="" has="" received="" an="" epa="" identification="" number="" is="" not="" required="" to="" renotify="" under="" this="" section.="" (3)="" a="" large="" quantity="" handler="" of="" universal="" waste="" who="" manages="" recalled="" universal="" waste="" pesticides="" as="" described="" in="" 40="" cfr="" 273.3(a)(1)="" and="" who="" has="" sent="" notification="" to="" epa="" as="" required="" by="" 40="" cfr="" part="" 165="" is="" not="" required="" to="" notify="" for="" those="" recalled="" universal="" waste="" pesticides="" under="" this="" section.="" (b)="" this="" notification="" must="" include:="" (1)="" the="" universal="" waste="" handler's="" name="" and="" mailing="" address;="" (2)="" the="" name="" and="" business="" telephone="" number="" of="" the="" person="" at="" the="" universal="" waste="" handler's="" site="" who="" should="" be="" contacted="" regarding="" universal="" waste="" management="" activities;="" (3)="" the="" address="" or="" physical="" location="" of="" the="" universal="" waste="" management="" activities;="" (4)="" a="" list="" of="" all="" of="" the="" types="" of="" universal="" waste="" managed="" by="" the="" handler="" (e.g,="" batteries,="" pesticides,="" thermostats);="" (5)="" a="" statement="" indicating="" that="" the="" handler="" is="" accumulating="" more="" than="" 5,000="" kilograms="" of="" universal="" waste="" at="" one="" time="" and="" the="" types="" of="" universal="" waste="" (e.g,="" batteries,="" pesticides,="" thermostats)="" the="" handler="" is="" accumulating="" above="" this="" quantity.="" sec.="" 273.33="" waste="" management.="" (a)="" universal="" waste="" batteries.="" a="" large="" quantity="" handler="" of="" universal="" waste="" must="" manage="" universal="" waste="" batteries="" in="" a="" way="" that="" prevents="" releases="" of="" any="" universal="" waste="" or="" component="" of="" a="" universal="" waste="" to="" the="" environment,="" as="" follows:="" (1)="" a="" large="" quantity="" handler="" of="" universal="" waste="" must="" contain="" any="" universal="" waste="" battery="" that="" shows="" evidence="" of="" leakage,="" spillage,="" or="" damage="" that="" could="" cause="" leakage="" under="" reasonably="" foreseeable="" conditions="" in="" a="" container.="" the="" container="" must="" be="" closed,="" structurally="" sound,="" compatible="" with="" the="" contents="" of="" the="" battery,="" and="" must="" lack="" evidence="" of="" leakage,="" spillage,="" or="" damage="" that="" could="" cause="" leakage="" under="" reasonably="" foreseeable="" conditions.="" (2)="" a="" large="" quantity="" handler="" of="" universal="" waste="" may="" conduct="" the="" following="" activities="" as="" long="" as="" the="" casing="" of="" each="" individual="" battery="" cell="" is="" not="" breached="" and="" remains="" intact="" and="" closed="" (except="" that="" cells="" may="" be="" opened="" to="" remove="" electrolyte="" but="" must="" be="" immediately="" closed="" after="" removal):="" (i)="" sorting="" batteries="" by="" type;="" (ii)="" mixing="" battery="" types="" in="" one="" container;="" (iii)="" discharging="" batteries="" so="" as="" to="" remove="" the="" electric="" charge;="" (iv)="" regenerating="" used="" batteries;="" (v)="" disassembling="" batteries="" or="" battery="" packs="" into="" individual="" batteries="" or="" cells;="" (vi)="" removing="" batteries="" from="" consumer="" products;="" or="" (vii)="" removing="" electrolyte="" from="" batteries.="" (3)="" a="" large="" quantity="" handler="" of="" universal="" waste="" who="" removes="" electrolyte="" from="" batteries,="" or="" who="" generates="" other="" solid="" waste="" (e.g.,="" battery="" pack="" materials,="" discarded="" consumer="" products)="" as="" a="" result="" of="" the="" activities="" listed="" above,="" must="" determine="" whether="" the="" electrolyte="" and/or="" other="" solid="" waste="" exhibit="" a="" characteristic="" of="" hazardous="" waste="" identified="" in="" 40="" cfr="" part="" 261,="" subpart="" c.="" (i)="" if="" the="" electrolyte="" and/or="" other="" solid="" waste="" exhibit="" a="" characteristic="" of="" hazardous="" waste,="" it="" must="" be="" managed="" in="" compliance="" with="" all="" applicable="" requirements="" of="" 40="" cfr="" parts="" 260="" through="" 272.="" the="" handler="" is="" considered="" the="" generator="" of="" the="" hazardous="" electrolyte="" and/or="" other="" waste="" and="" is="" subject="" to="" 40="" cfr="" part="" 262.="" (ii)="" if="" the="" electrolyte="" or="" other="" solid="" waste="" is="" not="" hazardous,="" the="" handler="" may="" manage="" the="" waste="" in="" any="" way="" that="" is="" in="" compliance="" with="" applicable="" federal,="" state="" or="" local="" solid="" waste="" regulations.="" (b)="" universal="" waste="" pesticides.="" a="" large="" quantity="" handler="" of="" universal="" waste="" must="" manage="" universal="" waste="" pesticides="" in="" a="" way="" that="" prevents="" releases="" of="" any="" universal="" waste="" or="" component="" of="" a="" universal="" waste="" to="" the="" environment.="" the="" universal="" waste="" pesticides="" must="" be="" contained="" in="" one="" or="" more="" of="" the="" following:="" (1)="" a="" container="" that="" remains="" closed,="" structurally="" sound,="" compatible="" with="" the="" pesticide,="" and="" that="" lacks="" evidence="" of="" leakage,="" spillage,="" or="" damage="" that="" could="" cause="" leakage="" under="" reasonably="" foreseeable="" conditions;="" or="" (2)="" a="" container="" that="" does="" not="" meet="" the="" requirements="" of="" paragraph="" (b)(1)="" of="" this="" section,="" provided="" that="" the="" unacceptable="" container="" is="" overpacked="" in="" a="" container="" that="" does="" meet="" the="" requirements="" of="" paragraph="" (b)(1)="" of="" this="" section;="" or="" (3)="" a="" tank="" that="" meets="" the="" requirements="" of="" 40="" cfr="" part="" 265="" subpart="" j,="" except="" for="" 40="" cfr="" 265.197(c),="" 265.200,="" and="" 265.201;="" or="" (4)="" a="" transport="" vehicle="" or="" vessel="" that="" is="" closed,="" structurally="" sound,="" compatible="" with="" the="" pesticide,="" and="" that="" lacks="" evidence="" of="" leakage,="" spillage,="" or="" damage="" that="" could="" cause="" leakage="" under="" reasonably="" foreseeable="" conditions.="" (c)="" universal="" waste="" thermostats.="" a="" large="" quantity="" handler="" of="" universal="" waste="" must="" manage="" universal="" waste="" thermostats="" in="" a="" way="" that="" prevents="" releases="" of="" any="" universal="" waste="" or="" component="" of="" a="" universal="" waste="" to="" the="" environment,="" as="" follows:="" (1)="" a="" large="" quantity="" handler="" of="" universal="" waste="" must="" contain="" any="" universal="" waste="" thermostat="" that="" shows="" evidence="" of="" leakage,="" spillage,="" or="" damage="" that="" could="" cause="" leakage="" under="" reasonably="" foreseeable="" conditions="" in="" a="" container.="" the="" container="" must="" be="" closed,="" structurally="" sound,="" compatible="" with="" the="" contents="" of="" the="" thermostat,="" and="" must="" lack="" evidence="" of="" leakage,="" spillage,="" or="" damage="" that="" could="" cause="" leakage="" under="" reasonably="" foreseeable="" conditions.="" (2)="" a="" large="" quantity="" handler="" of="" universal="" waste="" may="" remove="" mercury-="" containing="" ampules="" from="" universal="" waste="" thermostats="" provided="" the="" handler:="" (i)="" removes="" the="" ampules="" in="" a="" manner="" designed="" to="" prevent="" breakage="" of="" the="" ampules;="" (ii)="" removes="" ampules="" only="" over="" or="" in="" a="" containment="" device="" (e.g.,="" tray="" or="" pan="" sufficient="" to="" contain="" any="" mercury="" released="" from="" an="" ampule="" in="" case="" of="" breakage);="" (iii)="" ensures="" that="" a="" mercury="" clean-up="" system="" is="" readily="" available="" to="" immediately="" transfer="" any="" mercury="" resulting="" from="" spills="" or="" leaks="" from="" broken="" ampules,="" from="" the="" containment="" device="" to="" a="" container="" that="" meets="" the="" requirements="" of="" 40="" cfr="" 262.34;="" (iv)="" immediately="" transfers="" any="" mercury="" resulting="" from="" spills="" or="" leaks="" from="" broken="" ampules="" from="" the="" containment="" device="" to="" a="" container="" that="" meets="" the="" requirements="" of="" 40="" cfr="" 262.34;="" [[page="" 25548]]="" (v)="" ensures="" that="" the="" area="" in="" which="" ampules="" are="" removed="" is="" well="" ventilated="" and="" monitored="" to="" ensure="" compliance="" with="" applicable="" osha="" exposure="" levels="" for="" mercury;="" (vi)="" ensures="" that="" employees="" removing="" ampules="" are="" thoroughly="" familiar="" with="" proper="" waste="" mercury="" handling="" and="" emergency="" procedures,="" including="" transfer="" of="" mercury="" from="" containment="" devices="" to="" appropriate="" containers;="" (vii)="" stores="" removed="" ampules="" in="" closed,="" non-leaking="" containers="" that="" are="" in="" good="" condition;="" (viii)="" packs="" removed="" ampules="" in="" the="" container="" with="" packing="" materials="" adequate="" to="" prevent="" breakage="" during="" storage,="" handling,="" and="" transportation;="" and="" (3)(i)="" a="" large="" quantity="" handler="" of="" universal="" waste="" who="" removes="" mercury-containing="" ampules="" from="" thermostats="" must="" determine="" whether="" the="" following="" exhibit="" a="" characteristic="" of="" hazardous="" waste="" identified="" in="" 40="" cfr="" part="" 261,="" subpart="" c:="" (a)="" mercury="" or="" clean-up="" residues="" resulting="" from="" spills="" or="" leaks;="" and/or="" (b)="" other="" solid="" waste="" generated="" as="" a="" result="" of="" the="" removal="" of="" mercury-containing="" ampules="" (e.g.,="" remaining="" thermostat="" units).="" (ii)="" if="" the="" mercury,="" residues,="" and/or="" other="" solid="" waste="" exhibit="" a="" characteristic="" of="" hazardous="" waste,="" it="" must="" be="" managed="" in="" compliance="" with="" all="" applicable="" requirements="" of="" 40="" cfr="" parts="" 260="" through="" 272.="" the="" handler="" is="" considered="" the="" generator="" of="" the="" mercury,="" residues,="" and/or="" other="" waste="" and="" is="" subject="" to="" 40="" cfr="" part="" 262.="" (iii)="" if="" the="" mercury,="" residues,="" and/or="" other="" solid="" waste="" is="" not="" hazardous,="" the="" handler="" may="" manage="" the="" waste="" in="" any="" way="" that="" is="" in="" compliance="" with="" applicable="" federal,="" state="" or="" local="" solid="" waste="" regulations.="" sec.="" 273.34="" labeling/marking.="" a="" large="" quantity="" handler="" of="" universal="" waste="" must="" label="" or="" mark="" the="" universal="" waste="" to="" identify="" the="" type="" of="" universal="" waste="" as="" specified="" below:="" (a)="" universal="" waste="" batteries="" (i.e.,="" each="" battery),="" or="" a="" container="" or="" tank="" in="" which="" the="" batteries="" are="" contained,="" must="" be="" labeled="" or="" marked="" clearly="" with="" the="" any="" one="" of="" the="" following="" phrases:="" ``universal="" waste--="" battery(ies),''="" or="" ``waste="" battery(ies),''="" or="" ``used="" battery(ies);''="" (b)="" a="" container="" (or="" multiple="" container="" package="" unit),="" tank,="" transport="" vehicle="" or="" vessel="" in="" which="" recalled="" universal="" waste="" pesticides="" as="" described="" in="" 40="" cfr="" 273.3(a)(1)="" are="" contained="" must="" be="" labeled="" or="" marked="" clearly="" with:="" (1)="" the="" label="" that="" was="" on="" or="" accompanied="" the="" product="" as="" sold="" or="" distributed;="" and="" (2)="" the="" words="" ``universal="" waste--pesticide(s)''="" or="" ``waste--="" pesticide(s);''="" (c)="" a="" container,="" tank,="" or="" transport="" vehicle="" or="" vessel="" in="" which="" unused="" pesticide="" products="" as="" described="" in="" 40="" cfr="" 273.3(a)(2)="" are="" contained="" must="" be="" labeled="" or="" marked="" clearly="" with:="" (1)(i)="" the="" label="" that="" was="" on="" the="" product="" when="" purchased,="" if="" still="" legible;="" (ii)="" if="" using="" the="" labels="" described="" in="" paragraph="" (c)(1)(i)="" of="" this="" section="" is="" not="" feasible,="" the="" appropriate="" label="" as="" required="" under="" the="" department="" of="" transportation="" regulation="" 49="" cfr="" part="" 172;="" (iii)="" if="" using="" the="" labels="" described="" in="" paragraphs="" (c)="" (1)(i)="" and="" (1)(ii)="" of="" this="" section="" is="" not="" feasible,="" another="" label="" prescribed="" or="" designated="" by="" the="" pesticide="" collection="" program;="" and="" (2)="" the="" words="" ``universal="" waste--pesticide(s)''="" or="" ``waste--="" pesticide(s).''="" (d)="" universal="" waste="" thermostats="" (i.e.,="" each="" thermostat),="" or="" a="" container="" or="" tank="" in="" which="" the="" thermostats="" are="" contained,="" must="" be="" labeled="" or="" marked="" clearly="" with="" any="" one="" of="" the="" following="" phrases:="" ``universal="" waste--mercury="" thermostat(s),''="" or="" ``waste="" mercury="" thermostat(s),''="" or="" ``used="" mercury="" thermostat(s).="" sec.="" 273.35="" accumulation="" time="" limits.="" (a)="" a="" large="" quantity="" handler="" of="" universal="" waste="" may="" accumulate="" universal="" waste="" for="" no="" longer="" than="" one="" year="" from="" the="" date="" the="" universal="" waste="" is="" generated,="" or="" received="" from="" another="" handler,="" unless="" the="" requirements="" of="" paragraph="" (b)="" of="" this="" section="" are="" met.="" (b)="" a="" large="" quantity="" handler="" of="" universal="" waste="" may="" accumulate="" universal="" waste="" for="" longer="" than="" one="" year="" from="" the="" date="" the="" universal="" waste="" is="" generated,="" or="" received="" from="" another="" handler,="" if="" such="" activity="" is="" solely="" for="" the="" purpose="" of="" accumulation="" of="" such="" quantities="" of="" universal="" waste="" as="" necessary="" to="" facilitate="" proper="" recovery,="" treatment,="" or="" disposal.="" however,="" the="" handler="" bears="" the="" burden="" of="" proving="" that="" such="" activity="" was="" solely="" for="" the="" purpose="" of="" accumulation="" of="" such="" quantities="" of="" universal="" waste="" as="" necessary="" to="" facilitate="" proper="" recovery,="" treatment,="" or="" disposal.="" (c)="" a="" large="" quantity="" handler="" of="" universal="" waste="" must="" be="" able="" to="" demonstrate="" the="" length="" of="" time="" that="" the="" universal="" waste="" has="" been="" accumulated="" from="" the="" date="" it="" becomes="" a="" waste="" or="" is="" received.="" the="" handler="" may="" make="" this="" demonstration="" by:="" (1)="" placing="" the="" universal="" waste="" in="" a="" container="" and="" marking="" or="" labeling="" the="" container="" with="" the="" earliest="" date="" that="" any="" universal="" waste="" in="" the="" container="" became="" a="" waste="" or="" was="" received;="" (2)="" marking="" or="" labeling="" the="" individual="" item="" of="" universal="" waste="" (e.g.,="" each="" battery="" or="" thermostat)="" with="" the="" date="" it="" became="" a="" waste="" or="" was="" received;="" (3)="" maintaining="" an="" inventory="" system="" on-site="" that="" identifies="" the="" date="" the="" universal="" waste="" being="" accumulated="" became="" a="" waste="" or="" was="" received;="" (4)="" maintaining="" an="" inventory="" system="" on-site="" that="" identifies="" the="" earliest="" date="" that="" any="" universal="" waste="" in="" a="" group="" of="" universal="" waste="" items="" or="" a="" group="" of="" containers="" of="" universal="" waste="" became="" a="" waste="" or="" was="" received;="" (5)="" placing="" the="" universal="" waste="" in="" a="" specific="" accumulation="" area="" and="" identifying="" the="" earliest="" date="" that="" any="" universal="" waste="" in="" the="" area="" became="" a="" waste="" or="" was="" received;="" or="" (6)="" any="" other="" method="" which="" clearly="" demonstrates="" the="" length="" of="" time="" that="" the="" universal="" waste="" has="" been="" accumulated="" from="" the="" date="" it="" becomes="" a="" waste="" or="" is="" received.="" sec.="" 273.36="" employee="" training.="" a="" large="" quantity="" handler="" of="" universal="" waste="" must="" ensure="" that="" all="" employees="" are="" thoroughly="" familiar="" with="" proper="" waste="" handling="" and="" emergency="" procedures,="" relative="" to="" their="" responsibilities="" during="" normal="" facility="" operations="" and="" emergencies.="" sec.="" 273.37="" response="" to="" releases.="" (a)="" a="" large="" quantity="" handler="" of="" universal="" waste="" must="" immediately="" contain="" all="" releases="" of="" universal="" wastes="" and="" other="" residues="" from="" universal="" wastes.="" (b)="" a="" large="" quantity="" handler="" of="" universal="" waste="" must="" determine="" whether="" any="" material="" resulting="" from="" the="" release="" is="" hazardous="" waste,="" and="" if="" so,="" must="" manage="" the="" hazardous="" waste="" in="" compliance="" with="" all="" applicable="" requirements="" of="" 40="" cfr="" parts="" 260="" through="" 272.="" the="" handler="" is="" considered="" the="" generator="" of="" the="" material="" resulting="" from="" the="" release,="" and="" is="" subject="" to="" 40="" cfr="" part="" 262.="" sec.="" 273.38="" off-site="" shipments.="" (a)="" a="" large="" quantity="" handler="" of="" universal="" waste="" is="" prohibited="" from="" sending="" or="" taking="" universal="" waste="" to="" a="" place="" other="" than="" another="" universal="" waste="" handler,="" a="" destination="" facility,="" or="" a="" foreign="" destination.="" (b)="" if="" a="" large="" quantity="" handler="" of="" universal="" waste="" self-transports="" universal="" waste="" off-site,="" the="" handler="" becomes="" a="" universal="" waste="" transporter="" for="" those="" self-transportation="" activities="" and="" must="" comply="" with="" the="" transporter="" requirements="" of="" subpart="" d="" of="" this="" part="" while="" transporting="" the="" universal="" waste.="" (c)="" if="" a="" universal="" waste="" being="" offered="" for="" off-site="" transportation="" meets="" the="" definition="" of="" hazardous="" materials="" under="" 49="" cfr="" 171="" through="" 180,="" a="" large="" [[page="" 25549]]="" quantity="" handler="" of="" universal="" waste="" must="" package,="" label,="" mark="" and="" placard="" the="" shipment,="" and="" prepare="" the="" proper="" shipping="" papers="" in="" accordance="" with="" the="" applicable="" department="" of="" transportation="" regulations="" under="" 49="" cfr="" parts="" 172="" through="" 180;="" (d)="" prior="" to="" sending="" a="" shipment="" of="" universal="" waste="" to="" another="" universal="" waste="" handler,="" the="" originating="" handler="" must="" ensure="" that="" the="" receiving="" handler="" agrees="" to="" receive="" the="" shipment.="" (e)="" if="" a="" large="" quantity="" handler="" of="" universal="" waste="" sends="" a="" shipment="" of="" universal="" waste="" to="" another="" handler="" or="" to="" a="" destination="" facility="" and="" the="" shipment="" is="" rejected="" by="" the="" receiving="" handler="" or="" destination="" facility,="" the="" originating="" handler="" must="" either:="" (1)="" receive="" the="" waste="" back="" when="" notified="" that="" the="" shipment="" has="" been="" rejected,="" or="" (2)="" agree="" with="" the="" receiving="" handler="" on="" a="" destination="" facility="" to="" which="" the="" shipment="" will="" be="" sent.="" (f)="" a="" large="" quantity="" handler="" of="" universal="" waste="" may="" reject="" a="" shipment="" containing="" universal="" waste,="" or="" a="" portion="" of="" a="" shipment="" containing="" universal="" waste="" that="" he="" has="" received="" from="" another="" handler.="" if="" a="" handler="" rejects="" a="" shipment="" or="" a="" portion="" of="" a="" shipment,="" he="" must="" contact="" the="" originating="" handler="" to="" notify="" him="" of="" the="" rejection="" and="" to="" discuss="" reshipment="" of="" the="" load.="" the="" handler="" must:="" (1)="" send="" the="" shipment="" back="" to="" the="" originating="" handler,="" or="" (2)="" if="" agreed="" to="" by="" both="" the="" originating="" and="" receiving="" handler,="" send="" the="" shipment="" to="" a="" destination="" facility.="" (g)="" if="" a="" large="" quantity="" handler="" of="" universal="" waste="" receives="" a="" shipment="" containing="" hazardous="" waste="" that="" is="" not="" a="" universal="" waste,="" the="" handler="" must="" immediately="" notify="" the="" appropriate="" regional="" epa="" office="" of="" the="" illegal="" shipment,="" and="" provide="" the="" name,="" address,="" and="" phone="" number="" of="" the="" originating="" shipper.="" the="" epa="" regional="" office="" will="" provide="" instructions="" for="" managing="" the="" hazardous="" waste.="" (h)="" if="" a="" large="" quantity="" handler="" of="" universal="" waste="" receives="" a="" shipment="" of="" non-hazardous,="" non-universal="" waste,="" the="" handler="" may="" manage="" the="" waste="" in="" any="" way="" that="" is="" in="" compliance="" with="" applicable="" federal,="" state="" or="" local="" solid="" waste="" regulations.="" sec.="" 273.39="" tracking="" universal="" waste="" shipments.="" (a)="" receipt="" of="" shipments.="" a="" large="" quantity="" handler="" of="" universal="" waste="" must="" keep="" a="" record="" of="" each="" shipment="" of="" universal="" waste="" received="" at="" the="" facility.="" the="" record="" may="" take="" the="" form="" of="" a="" log,="" invoice,="" manifest,="" bill="" of="" lading,="" or="" other="" shipping="" document.="" the="" record="" for="" each="" shipment="" of="" universal="" waste="" received="" must="" include="" the="" following="" information:="" (1)="" the="" name="" and="" address="" of="" the="" originating="" universal="" waste="" handler="" or="" foreign="" shipper="" from="" whom="" the="" universal="" waste="" was="" sent;="" (2)="" the="" quantity="" of="" each="" type="" of="" universal="" waste="" received="" (e.g.,="" batteries,="" pesticides,="" thermostats);="" (3)="" the="" date="" of="" receipt="" of="" the="" shipment="" of="" universal="" waste.="" (b)="" shipments="" off-site.="" a="" large="" quantity="" handler="" of="" universal="" waste="" must="" keep="" a="" record="" of="" each="" shipment="" of="" universal="" waste="" sent="" from="" the="" handler="" to="" other="" facilities.="" the="" record="" may="" take="" the="" form="" of="" a="" log,="" invoice,="" manifest,="" bill="" of="" lading="" or="" other="" shipping="" document.="" the="" record="" for="" each="" shipment="" of="" universal="" waste="" sent="" must="" include="" the="" following="" information:="" (1)="" the="" name="" and="" address="" of="" the="" universal="" waste="" handler,="" destination="" facility,="" or="" foreign="" destination="" to="" whom="" the="" universal="" waste="" was="" sent;="" (2)="" the="" quantity="" of="" each="" type="" of="" universal="" waste="" sent="" (e.g.,="" batteries,="" pesticides,="" thermostats);="" (3)="" the="" date="" the="" shipment="" of="" universal="" waste="" left="" the="" facility.="" (c)="" record="" retention.="" (1)="" a="" large="" quantity="" handler="" of="" universal="" waste="" must="" retain="" the="" records="" described="" in="" paragraph="" (a)="" of="" this="" section="" for="" at="" least="" three="" years="" from="" the="" date="" of="" receipt="" of="" a="" shipment="" of="" universal="" waste.="" (2)="" a="" large="" quantity="" handler="" of="" universal="" waste="" must="" retain="" the="" records="" described="" in="" paragraph="" (b)="" of="" this="" section="" for="" at="" least="" three="" years="" from="" the="" date="" a="" shipment="" of="" universal="" waste="" left="" the="" facility.="" sec.="" 273.40="" exports.="" a="" large="" quantity="" handler="" of="" universal="" waste="" who="" sends="" universal="" waste="" to="" a="" foreign="" destination="" must:="" (a)="" comply="" with="" the="" requirements="" applicable="" to="" a="" primary="" exporter="" in="" 40="" cfr="" 262.53,="" 262.56(a)(1)="" through="" (4),="" (6),="" and="" (b)="" and="" 262.57;="" (b)="" export="" such="" universal="" waste="" only="" upon="" consent="" of="" the="" receiving="" country="" and="" in="" conformance="" with="" the="" epa="" acknowledgement="" of="" consent="" as="" defined="" in="" subpart="" e="" of="" part="" 262="" of="" this="" chapter;="" and="" (c)="" provide="" a="" copy="" of="" the="" epa="" acknowledgement="" of="" consent="" for="" the="" shipment="" to="" the="" transporter="" transporting="" the="" shipment="" for="" export.="" subpart="" d--standards="" for="" universal="" waste="" transporters="" sec.="" 273.50="" applicability.="" this="" subpart="" applies="" to="" universal="" waste="" transporters="" (as="" defined="" in="" 40="" cfr="" 273.6).="" sec.="" 273.51="" prohibitions.="" a="" universal="" waste="" transporter="" is:="" (a)="" prohibited="" from="" disposing="" of="" universal="" waste;="" and="" (b)="" prohibited="" from="" diluting="" or="" treating="" universal="" waste,="" except="" by="" responding="" to="" releases="" as="" provided="" in="" 40="" cfr="" 273.54.="" sec.="" 273.52="" waste="" management.="" (a)="" a="" universal="" waste="" transporter="" must="" comply="" with="" all="" applicable="" u.s.="" department="" of="" transportation="" regulations="" in="" 49="" cfr="" part="" 171="" through="" 180="" for="" transport="" of="" any="" universal="" waste="" that="" meets="" the="" definition="" of="" hazardous="" material="" in="" 49="" cfr="" 171.8.="" for="" purposes="" of="" the="" department="" of="" transportation="" regulations,="" a="" material="" is="" considered="" a="" hazardous="" waste="" if="" it="" is="" subject="" to="" the="" hazardous="" waste="" manifest="" requirements="" of="" the="" u.s.="" environmental="" protection="" agency="" specified="" in="" 40="" cfr="" part="" 262.="" because="" universal="" waste="" does="" not="" require="" a="" hazardous="" waste="" manifest,="" it="" is="" not="" considered="" hazardous="" waste="" under="" the="" department="" of="" transportation="" regulations.="" (b)="" some="" universal="" waste="" materials="" are="" regulated="" by="" the="" department="" of="" transportation="" as="" hazardous="" materials="" because="" they="" meet="" the="" criteria="" for="" one="" or="" more="" hazard="" classes="" specified="" in="" 49="" cfr="" 173.2.="" as="" universal="" waste="" shipments="" do="" not="" require="" a="" manifest="" under="" 40="" cfr="" 262,="" they="" may="" not="" be="" described="" by="" the="" dot="" proper="" shipping="" name="" ``hazardous="" waste,="" (l)="" or="" (s),="" n.o.s.'',="" nor="" may="" the="" hazardous="" material's="" proper="" shipping="" name="" be="" modified="" by="" adding="" the="" word="" ``waste''.="" sec.="" 273.53="" storage="" time="" limits.="" (a)="" a="" universal="" waste="" transporter="" may="" only="" store="" the="" universal="" waste="" at="" a="" universal="" waste="" transfer="" facility="" for="" ten="" days="" or="" less.="" (b)="" if="" a="" universal="" waste="" transporter="" stores="" universal="" waste="" for="" more="" than="" ten="" days,="" the="" transporter="" becomes="" a="" universal="" waste="" handler="" and="" must="" comply="" with="" the="" applicable="" requirements="" of="" subparts="" b="" or="" c="" of="" this="" part="" while="" storing="" the="" universal="" waste.="" sec.="" 273.54="" response="" to="" releases.="" (a)="" a="" universal="" waste="" transporter="" must="" immediately="" contain="" all="" releases="" of="" universal="" wastes="" and="" other="" residues="" from="" universal="" wastes.="" (b)="" a="" universal="" waste="" transporter="" must="" determine="" whether="" any="" material="" resulting="" from="" the="" release="" is="" hazardous="" waste,="" and="" if="" so,="" it="" is="" subject="" to="" all="" applicable="" requirements="" of="" 40="" cfr="" parts="" 260="" through="" 272.="" if="" the="" waste="" is="" determined="" to="" be="" a="" hazardous="" waste,="" the="" transporter="" is="" subject="" to="" 40="" cfr="" part="" 262.="" [[page="" 25550]]="" sec.="" 273.55="" off-site="" shipments.="" (a)="" a="" universal="" waste="" transporter="" is="" prohibited="" from="" transporting="" the="" universal="" waste="" to="" a="" place="" other="" than="" a="" universal="" waste="" handler,="" a="" destination="" facility,="" or="" a="" foreign="" destination.="" (b)="" if="" the="" universal="" waste="" being="" shipped="" off-site="" meets="" the="" department="" of="" transportation's="" definition="" of="" hazardous="" materials="" under="" 49="" cfr="" 171.8,="" the="" shipment="" must="" be="" properly="" described="" on="" a="" shipping="" paper="" in="" accordance="" with="" the="" applicable="" department="" of="" transportation="" regulations="" under="" 49="" cfr="" part="" 172.="" sec.="" 273.56="" exports.="" a="" universal="" waste="" transporter="" transporting="" a="" shipment="" of="" universal="" waste="" to="" a="" foreign="" destination="" may="" not="" accept="" a="" shipment="" if="" the="" transporter="" knows="" the="" shipment="" does="" not="" conform="" to="" the="" epa="" acknowledgment="" of="" consent.="" in="" addition="" the="" transporter="" must="" ensure="" that:="" (a)="" a="" copy="" of="" the="" epa="" acknowledgment="" of="" consent="" accompanies="" the="" shipment;="" and="" (b)="" the="" shipment="" is="" delivered="" to="" the="" facility="" designated="" by="" the="" person="" initiating="" the="" shipment.="" subpart="" e--standards="" for="" destination="" facilities="" sec.="" 273.60="" applicability.="" (a)="" the="" owner="" or="" operator="" of="" a="" destination="" facility="" (as="" defined="" in="" 40="" cfr="" 273.6)="" is="" subject="" to="" all="" applicable="" requirements="" of="" parts="" 264,="" 265,="" 266,="" 268,="" 270,="" and="" 124="" of="" this="" chapter,="" and="" the="" notification="" requirement="" under="" section="" 3010="" of="" rcra:="" (b)="" the="" owner="" or="" operator="" of="" a="" destination="" facility="" that="" recycles="" a="" particular="" universal="" waste="" without="" storing="" that="" universal="" waste="" before="" it="" is="" recycled="" must="" comply="" with="" 40="" cfr="" 261.6(c)(2).="" sec.="" 273.61="" off-site="" shipments.="" (a)="" the="" owner="" or="" operator="" of="" a="" destination="" facility="" is="" prohibited="" from="" sending="" or="" taking="" universal="" waste="" to="" a="" place="" other="" than="" a="" universal="" waste="" handler,="" another="" destination="" facility="" or="" foreign="" destination.="" (b)="" the="" owner="" or="" operator="" of="" a="" destination="" facility="" may="" reject="" a="" shipment="" containing="" universal="" waste,="" or="" a="" portion="" of="" a="" shipment="" containing="" universal="" waste.="" if="" the="" owner="" or="" operator="" of="" the="" destination="" facility="" rejects="" a="" shipment="" or="" a="" portion="" of="" a="" shipment,="" he="" must="" contact="" the="" shipper="" to="" notify="" him="" of="" the="" rejection="" and="" to="" discuss="" reshipment="" of="" the="" load.="" the="" owner="" or="" operator="" of="" the="" destination="" facility="" must:="" (1)="" send="" the="" shipment="" back="" to="" the="" original="" shipper,="" or="" (2)="" if="" agreed="" to="" by="" both="" the="" shipper="" and="" the="" owner="" or="" operator="" of="" the="" destination="" facility,="" send="" the="" shipment="" to="" another="" destination="" facility.="" (c)="" if="" the="" a="" owner="" or="" operator="" of="" a="" destination="" facility="" receives="" a="" shipment="" containing="" hazardous="" waste="" that="" is="" not="" a="" universal="" waste,="" the="" owner="" or="" operator="" of="" the="" destination="" facility="" must="" immediately="" notify="" the="" appropriate="" regional="" epa="" office="" of="" the="" illegal="" shipment,="" and="" provide="" the="" name,="" address,="" and="" phone="" number="" of="" the="" shipper.="" the="" epa="" regional="" office="" will="" provide="" instructions="" for="" managing="" the="" hazardous="" waste.="" (d)="" if="" the="" owner="" or="" operator="" of="" a="" destination="" facility="" receives="" a="" shipment="" of="" non-hazardous,="" non-universal="" waste,="" the="" owner="" or="" operator="" may="" manage="" the="" waste="" in="" any="" way="" that="" is="" in="" compliance="" with="" applicable="" federal="" or="" state="" solid="" waste="" regulations.="" sec.="" 273.62="" tracking="" universal="" waste="" shipments.="" (a)="" the="" owner="" or="" operator="" of="" a="" destination="" facility="" must="" keep="" a="" record="" of="" each="" shipment="" of="" universal="" waste="" received="" at="" the="" facility.="" the="" record="" may="" take="" the="" form="" of="" a="" log,="" invoice,="" manifest,="" bill="" of="" lading,="" or="" other="" shipping="" document.="" the="" record="" for="" each="" shipment="" of="" universal="" waste="" received="" must="" include="" the="" following="" information:="" (1)="" the="" name="" and="" address="" of="" the="" universal="" waste="" handler,="" destination="" facility,="" or="" foreign="" shipper="" from="" whom="" the="" universal="" waste="" was="" sent;="" (2)="" the="" quantity="" of="" each="" type="" of="" universal="" waste="" received="" (e.g.,="" batteries,="" pesticides,="" thermostats);="" (3)="" the="" date="" of="" receipt="" of="" the="" shipment="" of="" universal="" waste.="" (b)="" the="" owner="" or="" operator="" of="" a="" destination="" facility="" must="" retain="" the="" records="" described="" in="" paragraph="" (a)="" of="" this="" section="" for="" at="" least="" three="" years="" from="" the="" date="" of="" receipt="" of="" a="" shipment="" of="" universal="" waste.="" subpart="" f--import="" requirements="" sec.="" 273.70="" imports.="" persons="" managing="" universal="" waste="" that="" is="" imported="" from="" a="" foreign="" country="" into="" the="" united="" states="" are="" subject="" to="" the="" applicable="" requirements="" of="" this="" part,="" immediately="" after="" the="" waste="" enters="" the="" united="" states,="" as="" indicated="" below:="" (a)="" a="" universal="" waste="" transporter="" is="" subject="" to="" the="" universal="" waste="" transporter="" requirements="" of="" subpart="" d="" of="" this="" part.="" (b)="" a="" universal="" waste="" handler="" is="" subject="" to="" the="" small="" or="" large="" quantity="" handler="" of="" universal="" waste="" requirements="" of="" subparts="" b="" or="" c,="" as="" applicable.="" (c)="" an="" owner="" or="" operator="" of="" a="" destination="" facility="" is="" subject="" to="" the="" destination="" facility="" requirements="" of="" subpart="" e="" of="" this="" part.="" subpart="" g--petitions="" to="" include="" other="" wastes="" under="" 40="" cfr="" part="" 273="" sec.="" 273.80="" general.="" (a)="" any="" person="" seeking="" to="" add="" a="" hazardous="" waste="" or="" a="" category="" of="" hazardous="" waste="" to="" this="" part="" may="" petition="" for="" a="" regulatory="" amendment="" under="" this="" subpart="" and="" 40="" cfr="" 260.20="" and="" 260.23.="" (b)="" to="" be="" successful,="" the="" petitioner="" must="" demonstrate="" to="" the="" satisfaction="" of="" the="" administrator="" that="" regulation="" under="" the="" universal="" waste="" regulations="" of="" 40="" cfr="" part="" 273="" is:="" appropriate="" for="" the="" waste="" or="" category="" of="" waste;="" will="" improve="" management="" practices="" for="" the="" waste="" or="" category="" of="" waste;="" and="" will="" improve="" implementation="" of="" the="" hazardous="" waste="" program.="" the="" petition="" must="" include="" the="" information="" required="" by="" 40="" cfr="" 260.20(b).="" the="" petition="" should="" also="" address="" as="" many="" of="" the="" factors="" listed="" in="" 40="" cfr="" 273.81="" as="" are="" appropriate="" for="" the="" waste="" or="" waste="" category="" addressed="" in="" the="" petition.="" (c)="" the="" administrator="" will="" evaluate="" petitions="" using="" the="" factors="" listed="" in="" 40="" cfr="" 273.81.="" the="" administrator="" will="" grant="" or="" deny="" a="" petition="" using="" the="" factors="" listed="" in="" 40="" cfr="" 273.81.="" the="" decision="" will="" be="" based="" on="" the="" weight="" of="" evidence="" showing="" that="" regulation="" under="" 40="" cfr="" part="" 273="" is="" appropriate="" for="" the="" waste="" or="" category="" of="" waste,="" will="" improve="" management="" practices="" for="" the="" waste="" or="" category="" of="" waste,="" and="" will="" improve="" implementation="" of="" the="" hazardous="" waste="" program.="" sec.="" 273.81="" factors="" for="" petitions="" to="" include="" other="" wastes="" under="" 40="" cfr="" part="" 273.="" (a)="" the="" waste="" or="" category="" of="" waste,="" as="" generated="" by="" a="" wide="" variety="" of="" generators,="" is="" listed="" in="" subpart="" d="" of="" part="" 261="" of="" this="" chapter,="" or="" (if="" not="" listed)="" a="" proportion="" of="" the="" waste="" stream="" exhibits="" one="" or="" more="" characteristics="" of="" hazardous="" waste="" identified="" in="" subpart="" c="" of="" part="" 261="" of="" this="" chapter.="" (when="" a="" characteristic="" waste="" is="" added="" to="" the="" universal="" waste="" regulations="" of="" 40="" cfr="" part="" 273="" by="" using="" a="" generic="" name="" to="" identify="" the="" waste="" category="" (e.g.,="" batteries),="" the="" definition="" of="" universal="" waste="" in="" 40="" cfr="" 260.10="" and="" 273.6="" will="" be="" amended="" to="" include="" only="" the="" hazardous="" waste="" portion="" of="" the="" waste="" category="" (e.g.,="" hazardous="" waste="" batteries).)="" thus,="" only="" the="" portion="" of="" the="" waste="" stream="" that="" does="" exhibit="" one="" or="" more="" characteristics="" (i.e.,="" is="" hazardous="" waste)="" is="" subject="" to="" the="" universal="" waste="" regulations="" of="" 40="" cfr="" part="" 273;="" (b)="" the="" waste="" or="" category="" of="" waste="" is="" not="" exclusive="" to="" a="" specific="" industry="" or="" group="" of="" industries,="" is="" commonly="" [[page="" 25551]]="" generated="" by="" a="" wide="" variety="" of="" types="" of="" establishments="" (including,="" for="" example,="" households,="" retail="" and="" commercial="" businesses,="" office="" complexes,="" conditionally="" exempt="" small="" quantity="" generators,="" small="" businesses,="" government="" organizations,="" as="" well="" as="" large="" industrial="" facilities);="" (c)="" the="" waste="" or="" category="" of="" waste="" is="" generated="" by="" a="" large="" number="" of="" generators="" (e.g.,="" more="" than="" 1,000="" nationally)="" and="" is="" frequently="" generated="" in="" relatively="" small="" quantities="" by="" each="" generator;="" (d)="" systems="" to="" be="" used="" for="" collecting="" the="" waste="" or="" category="" of="" waste="" (including="" packaging,="" marking,="" and="" labeling="" practices)="" would="" ensure="" close="" stewardship="" of="" the="" waste;="" (e)="" the="" risk="" posed="" by="" the="" waste="" or="" category="" of="" waste="" during="" accumulation="" and="" transport="" is="" relatively="" low="" compared="" to="" other="" hazardous="" wastes,="" and="" specific="" management="" standards="" proposed="" or="" referenced="" by="" the="" petitioner="" (e.g.,="" waste="" management="" requirements="" appropriate="" to="" be="" added="" to="" 40="" cfr="" 273.13,="" 273.33,="" and="" 273.52;="" and/or="" applicable="" department="" of="" transportation="" requirements)="" would="" be="" protective="" of="" human="" health="" and="" the="" environment="" during="" accumulation="" and="" transport;="" (f)="" regulation="" of="" the="" waste="" or="" category="" of="" waste="" under="" 40="" cfr="" part="" 273="" will="" increase="" the="" likelihood="" that="" the="" waste="" will="" be="" diverted="" from="" non-hazardous="" waste="" management="" systems="" (e.g.,="" the="" municipal="" waste="" stream,="" non-hazardous="" industrial="" or="" commercial="" waste="" stream,="" municipal="" sewer="" or="" stormwater="" systems)="" to="" recycling,="" treatment,="" or="" disposal="" in="" compliance="" with="" subtitle="" c="" of="" rcra.="" (g)="" regulation="" of="" the="" waste="" or="" category="" of="" waste="" under="" 40="" cfr="" part="" 273="" will="" improve="" implementation="" of="" and="" compliance="" with="" the="" hazardous="" waste="" regulatory="" program;="" and/or="" (h)="" such="" other="" factors="" as="" may="" be="" appropriate.="" [fr="" doc.="" 95-11143="" filed="" 5-10-95;="" 8:45="" am]="" billing="" code="" 6560-50-p="">