95-11143. Universal Waste Rule (Hazardous Waste Management System; Modification of the Hazardous Waste Recycling Regulatory Program)  

  • [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.
    
    -----------------------------------------------------------------------
    
    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]]
    
    [GRAPHIC][TIFF OMITTED]TR11MY95.010
    
    
    
    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="">

Document Information

Effective Date:
5/11/1995
Published:
05/11/1995
Department:
Environmental Protection Agency
Entry Type:
Rule
Action:
Final rule.
Document Number:
95-11143
Dates:
This final rule is effective on May 11, 1995.
Pages:
25492-25551 (60 pages)
Docket Numbers:
FRL-5201-3
RINs:
2050-AD19
PDF File:
95-11143.pdf
CFR: (65)
40 CFR 273.2(a)(2)
40 CFR 273.2(a)(3)
40 CFR 273.21(a)(1)
40 CFR 273.20(a)
40 CFR 273.21(a)(2)
More ...