94-8354. ENVIRONMENTAL PROTECTION AGENCY ENVIRONMENTAL PROTECTION AGENCY  

  • [Federal Register Volume 59, Number 67 (Thursday, April 7, 1994)]
    [Unknown Section]
    [Page 0]
    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 94-8354]
    
    
    [[Page Unknown]]
    
    [Federal Register: April 7, 1994]
    
    
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    ENVIRONMENTAL PROTECTION AGENCY
     
    ENVIRONMENTAL PROTECTION AGENCY
    
    [FRL-4860-7]
    
    South Dakota; Tentative Determination of Adequacy of State's 
    Municipal Solid Waste Permit Program over Non-Indian Lands for the 
    Former Lands of the Yankton Sioux, Lake Traverse (Sisseton-
    Wahpeton) and Parts of the Rosebud Indian Reservations
    
    AGENCY: Environmental Protection Agency (Region 8).
    
    ACTION: Notice of tentative determination on application of the State 
    of South Dakota for program adequacy determination, public comment 
    period and public hearing.
    
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    SUMMARY: Section 4005(c)(1)(B) of the Resource Conservation and 
    Recovery Act (RCRA), as amended by the Hazardous and Solid Waste 
    Amendments (HSWA) of 1984, requires States to develop and implement 
    permit programs to ensure that municipal solid waste landfills (MSWLFs) 
    which may receive hazardous household waste or conditionally exempt 
    small quantity generator waste will comply with the revised Federal 
    MSWLF Criteria (40 CFR part 258). RCRA section 4005(c)(1)(C) requires 
    the Environmental Protection Agency (EPA) to determine whether States 
    have adequate ``permit'' programs for MSWLFs, but does not mandate 
    issuance of a rule for such determinations. EPA has drafted and is in 
    the process of proposing a State/Tribal Implementation Rule (STIR) that 
    will provide procedures by which EPA will approve, or partially 
    approve, State/Tribal landfill permit programs. The Agency intends to 
    approve adequate State/Tribal MSWLF permit programs as applications are 
    submitted. Thus, these approvals are not dependent on final 
    promulgation of the STIR. Prior to promulgation of the STIR, adequacy 
    determinations will be made based on the statutory authorities and 
    requirements. In addition, States/Tribes may use the draft STIR as an 
    aid in interpreting these requirements. The Agency believes that early 
    approvals have an important benefit. Approved State/Tribe permit 
    programs provide for interaction between the State/Tribe and the owner/
    operator regarding site-specific permit conditions. Only those owners/
    operators located in States/Tribes with approved permit programs can 
    use the site-specific flexibility provided by part 258 to the extent 
    the State/Tribal permit program allows such flexibility. EPA notes that 
    regardless of the approval status of a State/Tribe and the permit 
    status of any facility, the Federal landfill Criteria will apply to all 
    permitted and unpermitted MSWLFs.
        The State of South Dakota applied for a determination of adequacy 
    under section 4005 of RCRA for jurisdiction over non-Indian lands for 
    the former lands of the Yankton Sioux Reservation, Lake Traverse 
    (Sisseton-Wahpeton) Reservation and parts of the Rosebud Indian 
    Reservation lying within Gregory, Tripp, Lyman and Mellette Counties. 
    EPA has reviewed South Dakota's application and has made a tentative 
    determination that the South Dakota application is adequate for all 
    lands, other than Indian Country as defined in 18 U.S.C. section 1151, 
    located in the following areas:
    
        (1) Former lands of the Lake Traverse Indian Reservation of the 
    Sisseton-Wahpeton Sioux Tribe;
        (2) Former lands of the Yankton Sioux Reservation; and
        (3) Former lands of the Rosebud Sioux Reservation, lying within 
    Gregory, Tripp, Lyman and Mellette Counties.
        South Dakota's application for program adequacy determination and 
    the Tribal comments received in regard to that application are 
    available for public review and comment.
        Although RCRA does not require EPA to hold a public hearing on a 
    determination to approve any State/Tribe's MSWLF program, the Region 
    has tentatively scheduled a public hearing on this determination. If a 
    sufficient number of people express interest in participating in a 
    hearing by writing the Region or calling the contact given below within 
    30 days of the date of publication of this notice, the Region will hold 
    a hearing on the date given below in the ``DATES'' section. The Region 
    will notify all persons who submit comments on this notice if it 
    decides to hold the hearing. In addition, anyone who wishes to learn 
    whether the hearing will be held may call the person listed in the 
    ``CONTACTS'' section below.
    DATES: All comments on South Dakota's application for a determination 
    of adequacy must be received by the close of business on June 2, 1994. 
    The public hearing is tentatively scheduled for 1 p.m. to 3 p.m., June 
    2, 1994, at the South Dakota Department of Environment and Natural 
    Resources, 523 East Capitol, Floyd Matthews Training Center, Pierre, 
    South Dakota, 57501. Should a hearing be held, EPA may limit oral 
    testimony to five minutes per speaker, depending on the number of 
    commenters. Commenters presenting oral testimony must also submit their 
    comments in writing by close of business on June 2, 1994. The hearing 
    may adjourn earlier than 3 p.m. if all of the speakers deliver their 
    comments before that hour. South Dakota will participate in the public 
    hearing held by EPA on this subject.
    
    ADDRESSES: Copies of South Dakota's application for adequacy 
    determination are available from 8 a.m. to 4 p.m. at the following 
    addresses for inspection and copying: South Dakota Department of 
    Environment and Natural Resources, Office of Waste Management, Foss 
    Building, 523 East Capitol, Pierre, South Dakota, 57501; and USEPA 
    Region 8 Library, 999 18th Street, First Floor, Denver, Colorado, 
    80202-2466, telephone (303) 293-1444. Written comments should be sent 
    to Ms. Judith Wong, Mail Code 8HWM-WM, USEPA Region 8, 999 18th Street, 
    suite 500, Denver, Colorado, 80202-2466.
    
    FOR FURTHER INFORMATION CONTACT: Judith Wong, Mail Code 8HWM-WM, Waste 
    Management Branch, USEPA Region 8, 999 18th Street, Denver, Colorado, 
    80202-2466, telephone (303) 293-1667.
    
    SUPPLEMENTARY INFORMATION:
    
    A. Background
    
        On October 9, 1991, EPA promulgated revised Criteria for MSWLFs (40 
    CFR part 258). Subtitle D of RCRA, as amended by the Hazardous and 
    Solid Waste Amendments of 1984 (HSWA), requires States to develop 
    permitting programs to ensure that MSWLFs comply with the Federal 
    Criteria under part 258. Subtitle D also requires in section 4005 that 
    EPA determine the adequacy of State municipal solid waste landfill 
    permit programs to ensure that facilities comply with the revised 
    Federal Criteria. To fulfill this requirement, the Agency has drafted 
    and is in the process of proposing a State/Tribal Implementation Rule 
    (STIR). The rule will specify the requirements which State/Tribal 
    programs must satisfy to be determined adequate.
        EPA intends to approve State/Tribal MSWLF permit programs prior to 
    the promulgation of the STIR. EPA interprets the requirements for 
    States or Tribes to develop ``adequate'' programs for permits or other 
    forms of prior approval to impose several minimum requirements. First, 
    each State/Tribe must have enforceable standards for new and existing 
    MSWLFs that are technically comparable to EPA's revised MSWLF criteria. 
    Next, the State/Tribe must have the authority to issue a permit or 
    other notice of prior approval to all new and existing MSWLFs in its 
    jurisdiction. The State/Tribe also must provide for public 
    participation in permit issuance and enforcement as required in section 
    7004(b) of RCRA. Finally, EPA believes that the State/Tribe must show 
    that it has sufficient compliance monitoring and enforcement 
    authorities to take specific action against any owner or operator that 
    fails to comply with an approved MSWLF program.
        EPA Regions will determine whether a State/Tribe has submitted an 
    ``adequate'' program based on the interpretation outlined above. EPA 
    plans to provide more specific criteria for this evaluation when it 
    proposes the State/Tribal Implementation Rule. EPA expects States/
    Tribes to meet all of these requirements for all elements of a MSWLF 
    program before it gives full approval to a MSWLF program.
        On April 29, 1993, South Dakota submitted an application for 
    adequacy determination for the State's municipal solid waste landfill 
    permit program. On October 8, 1993 (58 FR 52486), EPA determined that 
    South Dakota's application for adequacy determination met all of the 
    statutory and regulatory requirements established by RCRA. Accordingly, 
    South Dakota was granted a determination of adequacy for all portions 
    of its municipal solid waste landfill permit program. However, EPA's 
    decision to approve the South Dakota MSWLF permitting program did not 
    extend to ``Indian Country,'' as defined in 18 U.S.C. 1151, including 
    the following ``existing or former'' Indian reservations in the State 
    of South Dakota:
    
        1. Cheyenne River;
        2. Crow Creek;
        3. Flandreau;
        4. Lower Brule;
        5. Pine Ridge;
        6. Rosebud;
        7. Sisseton;
        8. Standing Rock; and
        9. Yankton.
        Before EPA would be able to approve the State of South Dakota MSWLF 
    permit program for any portion of ``Indian Country,'' the State would 
    have to provide an appropriate analysis of the State's jurisdiction to 
    enforce in these areas. In order for a State (or Tribe) to satisfy this 
    requirement, it must demonstrate to the EPA's satisfaction that it has 
    authority either pursuant to explicit Congressional authorization or 
    applicable principles of Federal Indian law to enforce its laws against 
    existing and potential pollution sources within any geographical area 
    for which it seeks program approval. EPA had reason to believe that 
    disagreement exists with regard to the State's jurisdiction over 
    ``Indian Country,'' and EPA was not satisfied that South Dakota had, at 
    that time, made the requisite showing of its authority with respect to 
    such lands.
    
    B. State of South Dakota's Application Concerning Former Lands of 
    the Yankton Sioux, Sisseton-Wahpeton and Parts of the Rosebud 
    Indian Reservations
    
        On October 8, 1993, the State of South Dakota submitted an 
    application amendment to EPA for approval of its solid waste permit 
    program ``for regulation of solid waste activities on non-Indian lands 
    for the former lands of the Yankton Sioux, Sisseton and parts of the 
    Rosebud Indian Reservations.'' During a 30 day period, starting 
    November 29, 1993, EPA requested comment on the State's application 
    from certain affected parties. Cheyenne River Sioux, Sisseton-Wahpeton 
    Sioux, Yankton Sioux and Rosebud Sioux Tribes submitted written 
    comments on the State's assertion of jurisdiction.
        The Sisseton-Wahpeton Dakota Nation responded to the application of 
    the State of South Dakota, expressing concern regarding issuance of a 
    permit to Roberts County (South Dakota) for a new sanitary landfill and 
    gave notice of the Tribe's intent to develop its capacity to manage its 
    natural resources and enforce its codes within the original 1867 
    boundaries of the Lake Traverse Reservation. All permits issued under a 
    program determined by EPA to be adequate must meet minimum Federal 
    standards, including a permit to Roberts County for a new sanitary 
    landfill. The Tribe's intentions with regard to activities within the 
    original boundaries of the Lake Traverse Reservation are duly noted, 
    but the Tribe's authority to take such actions is not before EPA for 
    decision at this time.
        On review of the arguments presented and following consultation 
    with the Department of the Interior, EPA believes that the State of 
    South Dakota has sufficiently demonstrated that the former Lake 
    Traverse reservation was disestablished by Act of Congress (26 Stat. 
    1039), as decided by the U.S. Supreme Court in DeCoteau v. District 
    County Court, 420 U.S. 425 (1975).
        The Yankton Sioux Tribe argued that the Act of August 15, 1894 (28 
    Stat. 286, 314) did not expressly disestablish the Yankton Sioux 
    Reservation and that the Federal Court opinions relating to the issue 
    are not controlling. On review of the arguments and consultation with 
    the Department of the Interior, EPA believes that the State of South 
    Dakota has sufficiently demonstrated that the Yankton Sioux Reservation 
    was disestablished by the Act of 1894. See Weddellv. Meierhenry, 636 
    F.2d 211 (8th Cir. 1980).
        The Rosebud Sioux Tribe argued that the Tribal Constitution asserts 
    jurisdiction over all ``territory within the original confines of the 
    Rosebud Indian Reservation'' and that Rosebud Sioux Tribe v. Kneip, 430 
    U.S. 584 (1977) upheld tribal regulatory jurisdiction over all lands 
    within Todd Country and on trust lands outside. The Agency does not 
    today comment on the potential extent of tribal jurisdiction, but is 
    only concerned with the extent of jurisdiction of the State of South 
    Dakota. On review of the arguments and consultation with the Department 
    of the Interior, EPA believes that the State of South Dakota has 
    sufficiently demonstrated that the Rosebud Sioux Reservation was 
    diminished by three Acts of Congress (33 Stat. 254; 34 Stat. 1230; and 
    36 Stat. 448) to exclude from the Reservation all lands other than 
    Indian Country lying within Gregory, Tripp, Lyman and Mellette 
    Counties. See Rosebud Sioux Tribe v. Kneip.
        Accordingly, the Agency is making a tentative determination that 
    the South Dakota program is adequate under section 4005 of RCRA for the 
    disestablished areas within the former boundaries of the Lake Traverse 
    and Yankton Reservations and the diminished portions of the Rosebud 
    Sioux Reservation lying within Gregory, Tripp, Lyman and Mellette 
    Counties. This tentative determination of adequacy does not extend to 
    Indian Country presently located within these disestablished and 
    diminished areas.
        Although RCRA does not require EPA to hold a public hearing on a 
    determination to approve any State/Tribe's MSWLF program, the Region 
    has tentatively scheduled a public hearing on this determination. If a 
    sufficient number of people express interest in participating in a 
    hearing by writing the Region or calling the contact within 30 days of 
    the publication of this notice, the Region will hold a hearing on June 
    2, 1994, 1 p.m. to 3 p.m. at the South Dakota Department of Environment 
    and Natural Resources, 523 East Capitol, Floyd Matthews Training 
    Center, Pierre, South Dakota, 57501.
        EPA will consider all public comments on its tentative 
    determination received during the public comment period and during any 
    public hearing held. Issues raised by those comments may be the basis 
    for a determination of inadequacy for State of South Dakota's program. 
    EPA will make a final decision on whether or not to approve South 
    Dakota's program and give notice of it in the Federal Register. The 
    notice will include a summary of the reasons for the final 
    determination and a response to all major comments.
        Section 4005(a) of RCRA provides that citizens may use the citizen 
    suit provisions of section 7002 of RCRA to enforce the Federal MSWLF 
    criteria in 40 CFR part 258 independent of any State/Tribal enforcement 
    program. As EPA explained in the preamble to the final MSWLF criteria, 
    EPA expects that any owner or operator complying with provisions in a 
    State/Tribal program approved by EPA should be considered to be in 
    compliance with the Federal Criteria. See 56 FR 50978, 50995 (October 
    9, 1991).
    
    Compliance With Executive Order 12866
    
        The Office of Management and Budget has exempted this notice from 
    the requirements of section 6 of Executive Order 12866.
    
    Certification Under the Regulatory Flexibility Act
    
        Pursuant to the provisions of 5 U.S.C. 605(b), I hereby certify 
    that this approval will not have a significant economic impact on a 
    substantial number of small entities. It does not impose any new 
    burdens on small entities. This notice, therefore, does not require a 
    regulatory flexibility analysis.
        Authority: This notice is issued under the authority of sections 
    2002, 4005 and 4010 of the Solid Waste Disposal Act as amended; 42 
    U.S.C. 6912, 6945 and 6949(a).
    
        Dated: March 31, 1994.
    Jack W. McGraw,
    Acting Regional Administrator.
    [FR Doc. 94-8354 Filed 4-6-94; 8:45 am]
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