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 ƒ   ! ÝÝ    ÝÔ €  Xà  X  X X   ÔÓC €	                  ÿÿ   $   #                 C Ó€€Standards€of€Performance€for€New€Stationary€Sources€and€Guidelines€for€Control€of€Ð   	 °      Ð€€Existing€Sources:€Municipal€Solid€Waste€LandfillsÌ€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€Vol.€56,No.€104Ì€€Part€Number€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€Part€IIIÌ€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€56€FR€24468Ì€€€€€€€€€€€€€€€€€€€€€€€€€€€Thursday,€May€30,€1991ÌÌ€€AGENCY:€€ENVIRONMENTAL€PROTECTION€AGENCYÌ€€DOC€TYPE:€€Proposed€RulesÌ€€CFR:€€40€CFR€Parts€51,€52€and€60Ì€€NUMBER:€€AD-FRL-3780-9;€RIN€2060-AC42Ì€€DATES:€€Comments.€Comments€must€be€received€on€or€before€August€1,€1991.Ì€€Ì€€€€€€Public€Hearing.€If€anyone€contacts€EPA€requesting€to€speak€at€a€public€hearing€Ì€€€€by€June€21,€1991,€a€public€hearing€will€be€held€on€July€2,€1991,€beginning€at€Ì€€€€10:00€a.m.€Persons€wishing€to€present€oral€testimony€must€contact€Ms.€Julia€Ì€€€€Stevens€of€EPA€at€(919)€541-5578€by€June€21,€1991.€Persons€interested€in€Ì€€€€attending€the€hearing€should€call€Ms.€Stevens€at€the€same€number€to€verify€that€a€Ì€€€€hearing€will€be€held.Ì€€CONTACT:€€For€information€on€the€regulation€of€MSW€landfills,€contact€Ms.€Alice€H.€Ì€€€€Chow,€Standards€Development€Branch,€Emission€Standards€Division€(MD-13),€Office€Ì€€€€of€Air€Quality€Planning€and€Standards,€U.S.€Environmental€Protection€Agency,€Ì€€€€Research€Triangle€Park,€North€Carolina€27711,€telephone€number€(919)€541-5626.Ì€€Ì€€€€€€For€technical€information,€contact€Mr.€Mark€Najarian,€telephone€number€(919)€Ì€€€€541-5393,€Chemicals€and€Petroleum€Branch,€Emission€Standards€Division€(MD-13),€Ì€€€€at€the€above€address.Ì€€ADDRESS:€€Comments.€Comments€should€be€submitted€(in€duplicate€if€possible)€to:€Air€Ì€€€€Docket€(LE-131),€Attention€Docket€No.€A-88-09,€Room€M1500,€U.S.€Environmental€Ì€€€€Protection€Agency,€401€M€Street,€SW.,€Washington,€DC€20460.Ì€€Ì€€€€€€Public€Hearing.€If€anyone€contacts€EPA€requesting€a€public€hearing,€it€will€be€Ì€€€€held€at€the€EPA's€Office€of€Administration€Auditorium,€Research€Triangle€Park,€Ì€€€€North€Carolina.€Persons€interested€in€attending€the€hearing€or€wishing€to€present€Ì€€€€oral€testimony€should€notify€Ms.€Julia€Stevens,€Standards€Development€Branch,€Ì€€€€Emission€Standards€Division€(MD-13),€U.S.€Environmental€Protection€Agency,€Ì€€€€Research€Triangle€Park,€North€Carolina€27711,€telephone€number€(919)€541-5578.Ì€€Ì€€€€€€Background€Information€Document.€The€background€information€document€(BID),€Ì€€€€entitled€''Air€Emissions€from€Municipal€Solid€Waste€Landfills-Background€Ì€€€€Information€for€Proposed€Standards€and€Emission€Guidelines,''€may€be€obtained€Ì€€€€from€the€U.S.€EPA€Library€(MD-35),€Research€Triangle€Park,€North€Carolina€27711,€Ì€€€€telephone€number€(919)€541-2777.€Refer€to€EPA-450/3-90-011(a).€The€discussion€of€Ì€€€€the€proposed€section€111(d)€emission€guidelines€in€this€BID€satisfies€the€Ì€€€€requirements€of€40€CFR€60.22(b)€that€information€be€provided€to€States€on€the€Ð   	 @-(,   Ð€€€€implementation€of€the€guidelines.€Throughout€the€preamble,€this€document€will€be€Ì€€€€referred€to€as€the€BID.Ì€€Ì€€€€€€A€regulatory€impact€analysis,€entitled€''Regulatory€Impact€Analysis€of€Air€Ì€€€€Pollutant€Emission€Standards€and€Guidelines€for€Municipal€Solid€Waste€Landfills''€Ì€€€€was€prepared€as€required€by€Executive€Order€(E.O.)€12291,€and€is€available€for€Ì€€€€review€at€the€EPA's€Air€Docket€Section,€401€M€St.€SW.,€Room€M1500,€Washington,€Ì€€€€DC.Ì€€Ì€€€€€€Docket.€Docket€No.€A-88-09,€containing€supporting€information€used€in€Ì€€€€developing€the€proposed€standards€and€guidelines,€is€available€for€public€Ì€€€€inspection€and€copying€between€8:00€a.m.€and€3:30€p.m.,€Monday€through€Friday,€at€Ì€€€€the€EPA's€Air€Docket,€Waterside€Mall,€Room€M1500,€1st€Floor,€U.S.€Environmental€Ì€€€€Protection€Agency,€401€M€Street,€SW.,€Washington,€DC€20460.€A€reasonable€fee€may€Ì€€€€be€charged€for€copying.Ì€€ACTION:€€Proposed€rule€and€guideline€and€notice€of€public€hearing.Ì€€SUMMARY:€€This€proposal€would€add€subpart€WWW€to€40€CFR€part€60€for€control€of€new€Ì€€€€sources€and€would€propose€emission€guidelines€and€compliance€schedules€for€Ì€€€€existing€sources€under€subpart€C.Ì€€Ì€€€€€€Subpart€WWW€would€limit€emissions€from€certain€new€and€modified€municipal€solid€Ì€€€€waste€(MSW)€landfills.€The€proposed€standards€implement€section€111(b)€of€the€Ì€€€€Clean€Air€Act€(CAA)€and€are€based€on€the€Administrator's€determination€that€Ì€€€€emissions€from€MSW€landfills€cause,€or€contribute€significantly€to,€air€pollution€Ì€€€€which€may€reasonably€be€anticipated€to€endanger€public€health€or€welfare.€The€Ì€€€€intent€of€the€proposed€standards€is€to€require€certain€new€MSW€landfills€to€Ì€€€€control€emissions€to€the€level€achievable€by€applying€the€best€demonstrated€Ì€€€€system€of€continuous€emission€reduction€considering€costs,€nonair€quality€health€Ì€€€€and€environmental€impacts,€and€energy€requirements.Ì€€Ì€€€€€€The€proposed€emission€guidelines€implement€Section€111(d)€of€the€CAA€which€Ì€€€€requires€the€Administrator€to€prescribe€regulations€under€which€the€States€will€Ì€€€€submit€plans€for€the€control€of€existing€emissions€of€certain€air€pollutants€for€Ì€€€€which€new€source€performance€standards€(NSPS)€have€been€established.€The€intent€Ì€€€€of€the€emission€guidelines€is€to€initiate€State€action€to€develop€State€Ì€€€€regulations€controlling€air€emissions€from€certain€existing€MSW€landfills€to€the€Ì€€€€level€achievable€by€applying€the€best€demonstrated€system€of€continuous€emission€Ì€€€€reduction,€considering€costs,€nonair€quality€health€and€environmental€impacts,€Ì€€€€and€energy€requirements.Ì€€Ì€€€€€€If€requested,€a€public€hearing€will€be€held€to€provide€interested€parties€an€Ì€€€€opportunity€for€oral€presentations€of€data,€views,€or€arguments€concerning€the€Ì€€€€proposed€standards€and€emission€guidelines.Ì€€WORD€COUNT:€€62,601Ì€€TEXT:€Ð   	 @-(,   Ð€€€SUPPLEMENTARY€INFORMATION:€The€following€outline€is€provided€to€aid€in€reading€the€Ì€€preamble€to€the€proposed€standards€and€emission€guidelines.Ì€€Ì€€€€€€I.€IntroductionÌ€€A.€Summary€of€ActionÌ€€B.€New€Source€Performance€Standards-General€GoalsÌ€€C.€Emission€Guidelines-General€GoalsÌ€€D.€Overview€of€This€PreambleÌ€€Ì€€€€€€II.€Summary€of€the€Proposed€Standards€and€GuidelinesÌ€€A.€Source€Category€to€be€RegulatedÌ€€B.€Pollutant€to€be€RegulatedÌ€€C.€Best€Demonstrated€TechnologyÌ€€D.€Format€for€the€Standards€and€GuidelinesÌ€€E.€Proposed€Standards€and€GuidelinesÌ€€F.€Performance€Testing€and€MonitoringÌ€€G.€Reporting€and€Recordkeeping€RequirementsÌ€€H.€Compliance€Times€for€the€GuidelinesÌ€€Ì€€€€€€III.€Impacts€of€the€Proposed€Standards€and€GuidelinesÌ€€A.€AirÌ€€B.€Other€Environmental€ImpactsÌ€€C.€Control€Costs€and€Economic€ImpactsÌ€€Ì€€€€€€IV.€Rationale€for€the€Standards€and€Guidelines€for€Municipal€Solid€Waste€Ì€€Landfill€EmissionsÌ€€A.€BackgroundÌ€€B.€Selection€of€the€Source€CategoryÌ€€C.€Selection€of€the€Designated€PollutantÌ€€D.€Selection€of€the€Affected€and€Designated€FacilitiesÌ€€E.€Selection€of€Best€Demonstrated€TechnologyÌ€€F.€Selection€of€Requirements€to€Implement€The€Best€Demonstrated€TechnologyÌ€€G.€Test€Methods€and€ProceduresÌ€€H.€Reporting€and€Recordkeeping€Requirements-New€Municipal€Solid€Waste€LandfillsÌ€€I.€Reporting€and€Recordkeeping€Guidelines-Existing€Municipal€Solid€Waste€LandfillsÌ€€J.€Compliance€TimesÌ€€K.€Additional€Considerations€and€Solicitation€of€CommentsÌ€€Ì€€€€€€V.€Considerations€for€Prevention€of€Significant€DeteriorationÌ€€Ì€€€€€€VI.€Administrative€RequirementsÌ€€A.€Public€HearingÌ€€B.€DocketÌ€€C.€Clean€Air€Act€Procedural€RequirementsÌ€€D.€Office€of€Management€and€Budget€ReviewÐ   	 @-(,   Ð€€Ì€€€€€€I.€IntroductionÌ€€Ì€€€€€€A.€Summary€of€ActionÌ€€Ì€€€€€€This€notice€proposes€standards€of€performance€for€new€MSW€landfills€under€Ì€€section€111(b)€of€the€CAA€and€emission€guidelines€for€existing€MSW€landfills€under€Ì€€section€111(d).€The€standards€and€guidelines€would€require€MSW€landfills€emitting€Ì€€greater€than€150€megagrams€per€year€(Mg/yr)€(about€167€tons€per€year€(tpy))€of€Ì€€nonmethane€organic€compounds€(NMOC's)€to€design€and€install€gas€collection€systems€Ì€€and€then€combust€(with€or€without€energy€recovery)€the€captured€landfill€gases.€Ì€€This€action€addresses€air€emissions€from€MSW€landfills€which€contribute€to€ambient€Ì€€ozone€problems,€air€toxic€concerns,€and€potential€explosion€hazards.€The€EPA€has€Ì€€developed€an€overall€agenda€(see€''The€Solid€Waste€Dilemma:€An€Agenda€for€Action'';€Ì€€EPA/530-SW-89-019;€February€1989)€to€address€MSW€disposal€issues,€and€today's€air€Ì€€emission€standards€and€guidelines€are€just€one€component€of€this€agenda.€This€rule€Ì€€will€also€have€the€ancillary€benefit€of€reducing€global€loadings€of€methane,€a€gas€Ì€€under€discussion€by€the€Intergovernmental€Negotiating€Committee€for€a€Framework€Ì€€Convention€on€Climate€Change,€convened€by€the€United€Nations.Ì€€Ì€€€€€€B.€New€Source€Performance€Standards-General€GoalsÌ€€Ì€€€€€€New€source€performance€standards€(NSPS€or€''standards'')€implement€section€Ì€€111(b)€of€the€CAA,€and€are€issued€for€categories€of€sources€which€cause,€or€Ì€€contribute€significantly€to,€air€pollution€which€may€reasonably€be€anticipated€to€Ì€€endanger€public€health€or€welfare.€Today's€standards€would€affect€MSW€landfills€Ì€€whose€construction,€modification,€or€reconstruction€begins€after€a€standard€is€Ì€€proposed.€An€NSPS€requires€these€sources€to€control€emissions€to€the€level€Ì€€achievable€by€''best€demonstrated€technology''€(BDT)€considering€costs€and€any€Ì€€nonair€quality€health€and€environmental€impacts€and€energy€requirements.€If€it€is€Ì€€not€feasible€to€prescribe€or€enforce€an€emission€limit,€the€CAA€authorizes€the€Ì€€Administrator€to€promulgate€a€design,€equipment,€or€work€practice€or€operational€Ì€€standard,€or€combination€thereof.Ì€€Ì€€€€€€C.€Emission€Guidelines-General€GoalsÌ€€Ì€€€€€€The€EPA€develops€emission€guidelines€under€section€111(d)€of€the€CAA€for€Ì€€certain€sources€covered€by€NSPS.€When€an€NSPS€has€been€promulgated€under€section€Ì€€111(b)€for€a€category€of€sources,€section€111(d)€of€the€CAA€requires€that€States€Ì€€submit€plans€which€establish€emission€standards€for€existing€sources€and€provide€Ì€€for€implementation€and€enforcement€of€emission€standards€for€the€designated€Ì€€pollutant.€In€general,€a€designated€pollutant€is€one€that€may€cause€or€contribute€Ì€€to€endangerment€of€public€health€or€welfare€but€is€not€''hazardous''€within€the€Ì€€meaning€of€section€112€of€the€CAA€and€is€not€controlled€under€sections€108€through€Ì€€110€of€the€CAA.€For€ease€of€discussion,€existing€facilities€which€emit€designated€Ð   	 @-(,   Ð€€pollutants€are€considered€to€be€''designated€facilities.''Ì€€Ì€€€€€€The€EPA€requires€that€States€adopt€and€submit€to€the€Administrator€a€plan€Ì€€implementing€the€section€111(d)€guidelines€within€9€months€after€the€promulgation€Ì€€of€the€guidelines.€The€CAA€further€requires€that€the€procedure€for€State€submission€Ì€€of€a€plan€shall€be€similar€to€the€procedure€for€submission€of€State€implementation€Ì€€plans€(SIP's)€under€section€110€and€mandates€that€EPA€shall€prescribe€a€plan€Ì€€according€to€procedures€similar€to€those€in€section€110(c)€if€the€State€fails€to€Ì€€submit€a€''satisfactory€plan.''Ì€€Ì€€€€€€Section€111(d)€requires€EPA€to€approve€State€emission€standards€only€if€they€Ì€€reflect€application€of€the€best€systems€of€emission€reduction€that€are€reasonably€Ì€€available€for€designated€facilities.€Accordingly,€EPA€has€published€a€BID€(Docket€Ì€€No.€A-88-09,€Item€No.€III-B-1)€for€the€guidelines€which€describes€available€systems€Ì€€of€emission€control,€identifies€the€best€demonstrated€systems€considering€costs,€Ì€€nonair€quality€health€and€environmental€impacts,€and€energy€requirements,€and€Ì€€identifies€the€emission€limitations€that€reflect€the€application€of€such€systems.€Ì€€State€plans€will€be€approved€if€they€include€an€emission€standard€equal€to€or€more€Ì€€stringent€than€that€specified€in€the€guidelines.€For€health-related€pollutants,€as€Ì€€is€the€case€for€MSW€landfill€emissions,€State€emission€standards€must€ordinarily€be€Ì€€at€least€as€stringent€as€the€corresponding€EPA€guidelines€to€be€approved€(Sec.€Ì€€60.24(c)).Ì€€Ì€€€€€€The€EPA€recognizes,€however,€that€a€State€may€find€application€of€today's€Ì€€proposed€guidelines€to€be€unreasonable€in€some€situations€and€appropriate€Ì€€adjustments€may€be€necessary€on€a€case-by-case€basis.€The€guidelines€reflect€the€Ì€€EPA's€judgment€of€the€degree€of€control€that€can€be€attained€by€various€classes€of€Ì€€sources€taking€into€consideration€the€cost€of€achieving€such€emission€reductions,€Ì€€nonair€quality€health€and€environmental€impacts€and€energy€requirements.Ì€€Ì€€€€€€The€development€of€the€emission€guidelines€are€carried€out€in€the€context€of€a€Ì€€nationwide€program€encompassing€an€entire€class€of€sources€without€consideration€of€Ì€€the€local€air€quality€conditions€that€must€be€considered€in€nonattainment€areas€or€Ì€€in€prevention€of€significant€deterioration€(PSD)€in€accordance€with€permitting€Ì€€activities€associated€with€the€CAA.€In€some€cases,€State€standards€may€be€more€Ì€€stringent€than€these€guidelines€in€order€to€address€concerns€which€are€specific€to€Ì€€a€particular€localized€air€quality€situation.€Moreover,€States€that€believe€Ì€€additional€control€is€necessary€or€desirable€would€be€free€to€do€so€under€Section€Ì€€116€of€the€CAA.Ì€€Ì€€€€€€D.€Overview€of€This€PreambleÌ€€Ì€€€€€€This€preamble€will:Ì€€Ì€€€€€€1.€Summarize€the€important€features€of€these€proposed€standards€and€guidelines€Ð   	 @-(,   Ð€€by€discussing€the€conclusions€reached€with€respect€to€each€of€the€elements€in€the€Ì€€decision€summary.Ì€€Ì€€€€€€2.€Describe€the€environmental,€energy,€and€economic€impacts€of€the€standards€Ì€€and€guidelines.Ì€€Ì€€€€€€3.€Present€a€rationale€for€each€of€the€decisions€in€the€decision€summaries€for€Ì€€the€standards€and€guidelines.Ì€€Ì€€€€€€4.€Discuss€administrative€requirements€relevant€to€these€actions.Ì€€Ì€€€€€€II.€Summary€of€the€Proposed€Standards€and€GuidelinesÌ€€Ì€€€€€€A.€Source€Category€To€Be€RegulatedÌ€€Ì€€€€€€Today's€proposed€standards€and€guidelines€would€apply€to€certain€new€and€Ì€€existing€MSW€landfills.€For€purposes€of€these€proposed€regulations,€an€MSW€landfill€Ì€€is€defined€as€an€entire€disposal€facility€in€a€contiguous€geographical€space€where€Ì€€household€waste€is€placed€on€or€in€land.€An€MSW€landfill€may€receive€other€types€of€Ì€€waste€as€well.Ì€€Ì€€€€€€The€proposed€NSPS€would€control€air€emissions€from€certain€new€MSW€landfills.€A€Ì€€new€MSW€landfill€is€defined€as€a€landfill€for€which€construction,€modification,€or€Ì€€reconstruction€commences€on€or€after€today's€date.€The€affected€facility€under€the€Ì€€proposed€NSPS€is€each€new€MSW€landfill.Ì€€Ì€€€€€€The€proposed€guidelines€would€require€control€for€certain€existing€MSW€Ì€€landfills.€An€existing€MSW€landfill€is€defined€as€a€landfill€for€which€construction€Ì€€commenced€prior€to€today's€date.€An€existing€MSW€landfill€may€be€active,€i.e.,€Ì€€currently€accepting€waste,€or€having€additional€capacity€available€to€accept€waste,€Ì€€or€may€be€closed,€i.e.,€no€longer€accepting€waste€nor€having€available€capacity€for€Ì€€future€waste€deposition.€The€designated€facility€under€the€proposed€guidelines€is€Ì€€each€existing€MSW€landfill€that€has€accepted€waste€since€November€8,€1987,€or€that€Ì€€has€capacity€available€for€future€use.Ì€€Ì€€€€€€B.€Pollutant€To€Be€RegulatedÌ€€Ì€€€€€€The€pollutant€to€be€regulated€under€the€proposed€standards€and€guidelines€is€Ì€€''MSW€landfill€emissions.''€Municipal€solid€waste€landfill€emissions,€also€commonly€Ì€€referred€to€as€''landfill€gas,''€is€a€collection€of€air€pollutants,€including€Ì€€methane€and€NMOC's,€some€of€which€are€toxic.€The€composite€pollutant€is€proposed€to€Ì€€be€regulated€under€section€111(b),€for€new€facilities,€and€is€proposed€to€be€the€Ì€€designated€pollutant€under€section€111(d),€for€existing€facilities.€In€order€to€Ì€€reduce€the€burden€and€complexity€of€measuring€and€monitoring€the€various€Ì€€constituents€of€landfill€gas,€NMOC's€are€being€specified€as€a€surrogate€for€Ð   	 @-(,   Ð€€measurement€purposes.Ì€€Ì€€€€€€C.€Best€Demonstrated€TechnologyÌ€€Ì€€€€€€The€proposed€standards€for€new€MSW€landfills€are€based€on€the€conclusion€that€Ì€€BDT€would€require€reducing€MSW€landfill€emissions€from€new€MSW€landfills€emitting€Ì€€150€Mg/yr€(167€tpy)€of€NMOC's€or€more€with:€(1)€A€well-designed€and€well-operated€Ì€€gas€collection€system€and€(2)€a€control€device€capable€of€reducing€NMOC's€in€the€Ì€€collected€gas€by€98€weight-percent.€The€BDT€does€not€specify€collection€and€control€Ì€€systems€for€new€landfills€emitting€less€than€150€Mg/yr€(167€tpy)€of€NMOC's.Ì€€Ì€€€€€€The€proposed€guidelines€for€existing€MSW€landfills€are€based€on€the€conclusion€Ì€€that€BDT€would€require€reducing€air€emissions€of€existing€MSW€landfills€emitting€Ì€€150€Mg/yr€(167€tpy)€of€NMOC's€or€more€with€the€same€collection€and€control€devices€Ì€€as€required€for€new€landfills.€The€BDT€does€not€include€collection€and€control€Ì€€systems€for€existing€landfills€emitting€less€than€150€Mg/yr€(167€tpy)€of€NMOC's.Ì€€Ì€€€€€€A€well-designed€and€well-operated€collection€system€would,€at€a€minimum:€(1)€Ì€€Be€capable€of€handling€the€maximum€gas€generation€rate,€(2)€have€a€design€capable€Ì€€of€monitoring€and€adjusting€the€operation€of€the€system,€(3)€be€able€to€collect€gas€Ì€€effectively€from€all€areas€of€the€landfill€that€warrant€control,€and€(4)€be€able€to€Ì€€expand€by€the€addition€of€further€collection€system€components€to€collect€gas€from€Ì€€new€areas€of€the€landfill€as€they€require€control.Ì€€Ì€€€€€€The€control€device€included€as€part€of€BDT€is€an€open€flare€capable€of€reducing€Ì€€NMOC€emissions€by€98€weight-percent.€Open€flares€are€applicable€to€all€affected€and€Ì€€designated€facilities€regulated€by€the€proposed€standards€and€emissions€guidelines,€Ì€€respectively.Ì€€Ì€€€€€€D.€Format€for€the€Standards€and€GuidelinesÌ€€Ì€€€€€€The€format€for€the€proposed€standards€and€guidelines€is€a€design€and€Ì€€operational€standard€(or€guideline)€for€the€gas€collection€system,€and€a€percent€Ì€€reduction€requirement€for€the€control€device.Ì€€Ì€€€€€€E.€Proposed€Standards€and€GuidelinesÌ€€Ì€€€€€€The€major€provisions€of€the€proposed€standards€and€guidelines€are€identical.€Ì€€The€proposed€standards€and€guidelines€for€MSW€landfill€emissions€would€require€the€Ì€€periodic€calculation€of€the€annual€NMOC€emission€rate€at€each€affected€or€Ì€€designated€facility€with€a€maximum€design€capacity€or€100,000€Mg€(111,000€tons)€or€Ì€€more.€At€each€facility€where€the€calcualted€emission€rate€is€equal€to€or€exceeds€Ì€€the€regulatory€cutoff€of€150€Mg/yr€(167€tpy)€of€NMOC's,€the€proposed€standards€and€Ì€€guidelines€specify€the€installation€of€a€well-designed€gas€collection€system€and€Ì€€one€of€several€effective€control€devices€to€either€recover€or€destroy€the€collected€Ð   	 @-(,   Ð€€landfill€emissions.Ì€€Ì€€€€€€The€proposed€standards€and€guidelines€are€based€on€the€use€of€active€collection€Ì€€systems€and€open€flares€operated€in€accordance€with€the€General€Provisions€for€Ì€€control€devices€(40€CFR€60.18).€The€EPA€has€also€identified€several€other€control€Ì€€devices€which€may€be€used€to€satisfy€the€98-percent€destruction€criterion.€The€Ì€€proposed€standards€and€guidelines€would€allow€the€use€of€these€control€devices€as€Ì€€well.Ì€€Ì€€€€€€F.€Performance€Testing€and€MonitoringÌ€€Ì€€€€€€Applicability.€All€affected€and€designated€facilities€would€periodically€Ì€€calculate€the€NMOC€emission€rate€in€order€to€determine€if€the€installation€of€Ì€€collection€and€control€systems€would€be€required.€The€calculation€is€performed€Ì€€using€default€values€provided€in€the€proposed€standards€and€guidelines.€The€Ì€€calculation€may€also€be€performed€using€site-specific€data.€Proposed€Method€25C€Ì€€provides€instruction€on€site-specific€sampling€of€the€landfill€gas,€and€is€used€to€Ì€€determine€the€concentration€of€NMOC's.€Those€landfills€emitting€less€than€the€Ì€€regulatory€cutoff€of€150€Mg/yr€(167€tpy)€of€NMOC's€would€not€need€to€install€Ì€€control€equipment€under€the€proposed€standards€and€guidelines,€and€would€therefore€Ì€€not€need€to€perform€additional€testing€or€monitoring.Ì€€Ì€€€€€€Compliance€Demonstrations.€For€those€landfills€that€are€required€to€install€Ì€€collection€and€control€systems,€compliance€with€the€proposed€standards€or€Ì€€guidelines€for€the€gas€collection€system€includes€calculation€of:€(1)€The€maximum€Ì€€expected€gas€generation€rate€within€the€landfill€in€order€to€demonstrate€that€the€Ì€€system€is€designed€to€handle€this€flowrate€and€(2)€the€total€area€of€influence€of€Ì€€all€the€extraction€wells€within€the€landfill€in€order€to€demonstrate€that€this€area€Ì€€equals€the€total€landfill€area€warranting€collection.€Compliance€also€includes€Ì€€maintaining€a€negative€pressure€at€the€point€where€each€extraction€component€(from€Ì€€the€well€or€trench)€is€connected€to€the€gas€collection€header.€The€EPA€is€proposing€Ì€€two€additional€test€methods€to€use€in€these€compliance€demonstrations€for€the€Ì€€collection€system.€Method€3C€would€be€used€to€measure€nitrogen€(N€sub€2)€in€Ì€€landfill€gas,€in€order€to€determine€if€excessive€air€infiltration€has€occurred.€Ì€€Method€2E€would€be€used€to€determine€the€landfill€gas€flowrate€from€the€landfill.Ì€€Ì€€€€€€Compliance€demonstrations€for€open€flares€used€in€control€of€landfill€emissions€Ì€€are€specified€in€40€CFR€60.18.€If€a€control€device€other€than€an€open€flare€Ì€€conforming€to€Sec.€60.18€is€used,€then€the€landfill€owner€or€operator€would€Ì€€demonstrate€compliance€with€the€proposed€standards€or€guidelines€by€testing€to€Ì€€demonstrate€98€percent€emission€reduction€or€an€outlet€NMOC€concentration€of€20€Ì€€parts€per€million€volume,€dry€(ppmvd),€at€3€percent€oxygen€(O€sub€2),€using€Method€Ì€€25,€to€ensure€continued€compliance.€The€landfill€owner€or€operator€would€provide€to€Ì€€the€Administrator€or€State€agency€information€on:€(1)€The€operation€of€the€control€Ì€€device€and€(2)€the€process€parameters€that€would€indicate€whether€the€device€is€Ð   	 @-(,   Ð€€properly€operated€and€maintained.€The€Administrator€may€request€additional€Ì€€information€if€warranted.Ì€€Ì€€€€€€Monitoring€Requirements.€Monitoring€requirements€for€the€gas€collection€system€Ì€€would€include€monthly€measurements€of€gauge€pressure€in€the€gas€collection€header.€Ì€€For€the€control€or€recovery€system,€monitoring€would€be€required€of€parameters€that€Ì€€indicate€the€gas€stream€is€being€continuously€routed€for€destruction€or€recovery€Ì€€and€that€98€percent€emission€reduction€of€NMOC's,€or€20€ppmvd€for€enclosed€Ì€€combustors,€is€being€continuously€achieved.Ì€€Ì€€€€€€G.€Reporting€and€Recordkeeping€RequirementsÌ€€Ì€€€€€€The€proposed€standards€and€guidelines€include€initial€notification€provisions.€Ì€€In€addition,€if€the€maximum€design€capacity€of€a€landfill€equals€or€exceeds€100,000€Ì€€Mg€(111,000€tons),€the€owner€or€operator€would€periodically€report€the€NMOC€Ì€€emission€rate€until€such€time€that€either€the€collection€and€control€systems€are€Ì€€installed,€or€the€landfill€closes€permanently.Ì€€Ì€€€€€€Under€either€the€proposed€standards€or€guidelines,€there€are€specific€reporting€Ì€€requirements€addressing€the€design€and€installation€of€the€collection€and€control€Ì€€systems.€If€a€collection€system€is€designed€following€the€specifications€in€Sec.€Ì€€60.758,€a€notification€of€intent€to€install€the€system€would€be€required€within€1€Ì€€year€of€the€date€when€the€NMOC€emission€rate€reaches€150€Mg/yr€(167€tpy).€If€an€Ì€€operator€wishes€to€install€a€collection€system€based€on€the€guidance€provided€in€Ì€€chapter€9€of€the€BID,€but€not€conforming€in€all€points€to€the€specifications€in€Ì€€Sec.€60.758,€a€collection€system€design€plan€must€be€submitted€for€review€within€1€Ì€€year€of€the€date€when€the€NMOC€emission€rate€reaches€150€Mg/yr€(167€tpy).Ì€€Ì€€€€€€After€the€installation€of€collection€and€control€systems,€a€report€of€the€Ì€€initial€performance€test€and€semiannual€reports€would€be€required€to€verify€proper€Ì€€design,€operation,€and€monitoring€of€the€collection€and€control€systems.€For€those€Ì€€owners€or€operators€installing€a€collection€system€based€on€the€specifications€Ì€€provided€in€Sec.€60.758,€the€initial€performance€test€report€would€include€the€Ì€€provisions€and€time€table€for€adding€wells€as€waste€accumulates.Ì€€Ì€€€€€€The€proposed€regulations€would€also€require€(and€the€proposed€guidelines€would€Ì€€specify)€that€the€following€records€be€maintained:€The€accumulated€refuse€in€place;€Ì€€the€periodic€calculation€of€the€NMOC€emission€rate;€the€collection€system€design€Ì€€(when€applicable),€including€present€and€future€well€or€trench€locations,€depths€Ì€€and€spacing;€the€control€device€vendor€specifications;€the€initial€performance€test€Ì€€results;€and€the€monitoring€parameters€established€during€the€initial€performance€Ì€€test€of€the€control€device.Ì€€Ì€€€€€€H.€Compliance€Times€for€the€GuidelinesÌ€€Ð   	 @-(,   Ð€€€€€€The€proposed€emission€guidelines€would€stipulate€that€existing€MSW€landfills€Ì€€emitting€above€the€regulatory€cutoff€of€150€Mg/yr€(167€tpy)€of€NMOC's€should€Ì€€achieve€compliance€with€the€guidelines€for€collection€and€control€systems€within€3€Ì€€years€from€the€time€of€promulgation€of€State€regulations.€The€3-year€time€period€Ì€€allows€90€days€for€the€initial€report;€2€1/2€years€for€further€site-specific€Ì€€testing€(if€elected€by€the€owner€or€operator);€preparation€and€review€of€a€Ì€€collection€system€design€plan;€installation€of€the€collection€and€control€system;€Ì€€and€90€days€for€a€performance€test.€Some€MSW€landfills€may€already€have€collection€Ì€€and€control€systems€in€place,€and€may€already€be€in€compliance€with€the€guidelines€Ì€€or€may€not€require€3€years€to€bring€their€systems€into€compliance,€but€in€most€Ì€€cases€3€years€is€expected€to€be€required.€In€the€case€of€existing€MSW€landfills€Ì€€whose€NMOC€emission€rates€reach€the€regulatory€level€of€150€Mg/yr€(167€tpy)€of€Ì€€NMOC's€and€whose€owner€or€operator€elected€to€perform€site-specific€testing€in€Ì€€determining€the€NMOC€emission€rate,€2€years€and€9€months€would€be€required€to€Ì€€achieve€compliance€and€conduct€a€performance€test,€after€the€date€of€the€first€Ì€€periodic€report€documenting€emissions€of€150€Mg/yr€(167€tpy)€or€more.€Some€Ì€€landfills€could€achieve€compliance€sooner,€if€the€owner€or€operator€elects€to€Ì€€install€collection€and€control€systems€without€first€performing€all€the€site-Ì€€specific€testing€available€for€the€emission€rate€calculation,€or€if€the€testing,€Ì€€design,€or€installation€activities€were€completed€more€quickly€than€expected.€But€Ì€€in€many€cases,€about€2€1/2€years€would€be€needed€to€conduct€site-specific€testing,€Ì€€design€and€install€the€systems,€and€another€90€days€would€be€needed€for€a€Ì€€performance€test.Ì€€Ì€€€€€€The€3-month€difference€above€is€the€result€of€what€each€time€period€includes.€Ì€€In€the€first€case,€the€NMOC€emission€rate€of€the€existing€landfill€is€already€Ì€€greater€than€150€Mg/yr€(167€tpy)€when€the€State€regulations€are€promulgated.€After€Ì€€promulgation,€3€months€are€allowed€for€the€submittal€of€the€first€NMOC€emission€Ì€€rate€calculation,€followed€by€2€years€and€9€months€to€complete€the€installation€and€Ì€€testing€of€the€system.€In€the€second€case,€the€NMOC€emission€rate€has€not€reached€Ì€€150€Mg/yr€(167€tpy),€and€therefore€the€landfill€would€be€filing€NMOC€emission€rate€Ì€€reports€periodically.€The€first€report€is€required€3€months€after€the€promulgation€Ì€€of€the€State€regulations.€Reporting€would€continue€until€the€rate€reaches€150€Mg/yr€Ì€€(167€tpy),€and€then€2€years€and€9€months€are€also€allowed€after€the€report€is€filed€Ì€€to€complete€the€installation€and€testing€of€the€system.€Since€emissions€at€existing€Ì€€landfills€will€increase€at€varying€rates,€the€period€of€time€between€the€Ì€€promulgation€of€the€State€regulations€and€the€emission€rate€report€that€Ì€€''triggers''€the€2€years€and€9€months€will€also€vary€from€landfill€to€landfill.Ì€€Ì€€€€€€III.€Impacts€of€the€Proposed€Standards€and€GuidelinesÌ€€Ì€€€€€€Environmental,€energy,€and€economic€impacts€of€NSPS€or€guidelines€are€normally€Ì€€expressed€as€incremental€differences€between€facilities€complying€with€the€Ì€€standards€or€guidelines€as€proposed€and€those€same€facilities€if€no€NSPS€or€Ì€€guidelines€were€in€effect.€The€level€that€assumes€no€NSPS€or€emission€guidelines€is€Ð   	 @-(,   Ð€€in€place€is€referred€to€as€the€baseline.€At€present,€very€few€States€or€local€air€Ì€€pollution€control€agencies€have€landfill€regulations€that€address€NMOC€air€Ì€€emissions.€Since€few€new€landfills€would€be€affected€by€these€State€or€local€Ì€€regulations,€air€emissions€from€MSW€landfills€are€assumed€to€be€uncontrolled€in€the€Ì€€baseline.€The€environmental,€energy,€and€economic€impacts€were€computed€relative€to€Ì€€this€baseline.Ì€€Ì€€€€€€For€most€NSPS€and€emission€guidelines,€impacts€are€expressed€in€annual€terms.€Ì€€In€the€case€of€the€NSPS€and€guidelines€for€landfills,€the€proposed€regulations€Ì€€require€controls€at€a€given€landfill€only€after€the€increasing€NMOC€emission€rate€Ì€€reaches€the€level€of€the€regulatory€cutoff.€Additionally,€the€proposed€regulations€Ì€€allow€the€collection€and€control€devices€to€be€shut€down€at€each€landfill€after€Ì€€certain€criteria€are€met.€Therefore,€at€two€different€points€in€time,€even€though€Ì€€those€points€may€be€only€a€year€or€two€apart,€control€may€or€may€not€be€required€at€Ì€€a€given€landfill.€Controls€would€not€be€required€over€the€same€time€period€for€all€Ì€€landfills.€The€impacts€are€a€direct€result€of€control;€therefore,€the€annualized€Ì€€numbers€for€any€impact€change€from€year€to€year.Ì€€Ì€€€€€€Because€of€the€variability€of€impacts€of€the€proposed€standards€and€guidelines€Ì€€over€time,€EPA€has€judged€that€the€net€present€value€(NPV)€of€an€impact€is€a€more€Ì€€valuable€tool€in€the€decision€process€for€landfills.€The€use€of€NPV€allows€for€the€Ì€€evaluation€of€nationwide€costs€and€benefits€which€occur€over€discrete€time€periods€Ì€€for€individual€sources.€Thus,€the€impacts€presented€include€both€annualized€Ì€€estimates€(and€fifth€year€annualized€impacts)€and€estimates€expressed€in€terms€NPV€Ì€€in€1992.€The€use€of€NPV€is€noted€in€the€text.Ì€€Ì€€€€€€A.€AirÌ€€Ì€€€€€€For€new€landfills€(i.e.,€those€projected€to€begin€construction€after€today's€Ì€€date),€the€undiscounted€NMOC€emission€reduction€achievable€under€the€proposed€Ì€€standards€is€estimated€to€be€4,080€Mg/yr€(4,510€tpy)€in€1997,€which€reflects€Ì€€reductions€from€baseline€emissions€of€9,250€Mg/yr€(10,200€tpy)€from€refuse€Ì€€estimated€to€be€in€place€in€new€landfills€built€between€1992€and€1997.€Control€of€Ì€€87,800€Mg/yr€(96,700€tpy)€methane€is€also€achieved€from€a€baseline€of€471,000€Mg/yr€Ì€€(519,000€tpy).Ì€€Ì€€€€€€For€existing€landfills,€the€undiscounted€NMOC€emission€reduction€achievable€Ì€€under€the€proposed€guidelines€is€estimated€to€be€404,000€Mg/yr€(448,000€tpy)€in€Ì€€1997,€a€79€percent€reduction€from€a€baseline€of€506,000€Mg/yr€(557,000€tpy)€with€Ì€€the€methane€reduction€estimated€to€be€9,600,000€Mg/yr€(10,500,000€tpy).€Baseline€Ì€€methane€emissions€are€estimated€to€be€18,100,000€Mg/yr€(19,900,000€tpy)€in€1997.€As€Ì€€existing€landfills€are€filled,€closed,€and€replaced€by€new€landfills,€the€emissions€Ì€€reductions€achieved€by€the€guidelines€will€decrease,€while€the€reductions€achieved€Ì€€by€the€standards€will€rise€proportionately.€These€emissions€reductions€are€Ì€€summarized€in€Table€1.€Ð   	 @-(,   Ð€€€Table€1.-Summary€of€Nationwide€Cost€Estimates€and€Energy€ImpactsÌ€€€for€Collection€and€Control€of€Air€Emissions€From€New€and€ExistingÌ€€€MSW€Landfills€at€a€Stringency€Level€of€150€Mg/Yr€sup€aÌ€€€Ì€€€Potential€emissions€reduction:Ì€€€€€Net€present€value€(10€sup€6€Mg€NMOC)Ì€€€€€€€New€landfills€€€€€€€€€0.76Ì€€€€€€€Existing€landfills€€€€11Ì€€€€€5th€year€annualized€value€(10€sup€5€Mg€NMOC)Ì€€€€€€€New€landfills€€€€€€€€€30Ì€€€€€€€Existing€landfills€€€€183Ì€€€Ì€€€Nationwide€cost€of€collection/control€(flare):Ì€€€€€Net€present€value€($10€sup€6)Ì€€€€€€€New€landfills€€€€€€€€€776Ì€€€€€€€Existing€landfills€€€€5,871Ì€€€€€5th€year€annualized€value€($10€sup€6)Ì€€€€€€€New€landfills€€€€€€€€€26Ì€€€€€€€Existing€landfills€€€€246Ì€€€Ì€€€Nationwide€net€energy€impacts:Ì€€€€€Energy€required-flares:€Net€present€value€(10€sup€6€Btu)Ì€€€€€€€New€landfills€€€€€€€€€109,000Ì€€€€€€€Existing€landfills€€€€810,000Ì€€€€€Energy€Recovery-Gas€Turbines:€Net€present€value€(10€sup€6€Btu)Ì€€€€€€€New€landfills€€€€€€€€€5.7X10€sup€8Ì€€€€€€€Existing€landfills€€€€4.2X10€sup€9Ì€€€Ì€€€sup€a€Net€present€value€is€presented€in€1992€terms.€The€5th€yearÌ€€€is€assumed€to€be€1997,€if€these€standards€are€promulgated€inÌ€€€1992.€One€Mg€equals€1.11€tons.Ì€€€Ì€€€Ì€€Ì€€€€€€In€comparison€to€the€President's€proposed€initiative€of€planting€a€billion€Ì€€trees€a€year€in€response€to€climate€change,€based€on€carbon€dioxide€(CO€sub€2)€Ì€€emissions,€EPA€has€roughly€estimated€(in€1992€dollars)€that€1.1€to€2.0€billion€Ì€€trees€would€need€to€be€planted€at€a€cost€of€0.57€to€1.1€billion€dollars€in€order€to€Ì€€achieve€an€equivalent€reduction€in€CO€sub€2€as€achieved€by€today's€proposal.€While€Ì€€EPA€has€attempted€to€quantify€the€relationship€between€the€President's€tree€Ì€€planting€initiative€and€the€equivalent€CO€sub€2€reduction€achievable€in€this€Ì€€proposal,€it€should€be€noted€that€ancillary€benefits€associated€with€planting€trees€Ì€€(such€as€the€establishment€of€shade€and€wildlife€habitat)€could€not€be€quantified.Ì€€Ì€€€€€€Carbon€dioxide€is€also€an€important€greenhouse€gas€contributing€to€climate€Ð   	 @-(,   Ð€€change.€Under€the€proposed€standard,€annual€CO€sub€2€emissions€would€increase,€Ì€€proportional€to€the€relative€use€of€flares€compared€to€energy€recovery€for€control.€Ì€€It€should€be€noted,€however,€that€methane€contributes€considerably€more€to€climate€Ì€€change€on€a€weight€basis€than€CO€sub€2.€Thus,€the€reduction€of€methane€emissions€is€Ì€€expected€to€have€a€positive€impact€on€global€climate€change.Ì€€Ì€€€€€€Many€constitutents€of€MSW€landfill€emissions€are€carcinogenic€or€can€cause€Ì€€other€adverse€health€effects.€The€reduction€in€landfill€emissions€would€result€in€a€Ì€€reduction€of€these€risks€from€exposure€to€these€constituents.Ì€€Ì€€€€€€The€use€of€energy€recovery€devices€for€the€control€of€MSW€landfill€emissions€Ì€€has€the€potential€to€reduce€secondary€air€impacts€at€coal-fired€utility€plants.€Ì€€This€is€because€the€air€impacts€of€coal-fired€energy€generation€are€larger€than€Ì€€those€of€landfill€gas-fired€energy€generation.€Since€EPA€cannot€reliably€predict€Ì€€how€many€owners€or€operators€would€elect€to€use€energy€recovery,€the€magnitude€of€Ì€€this€potential€impact€cannot€be€quantified€at€this€time.Ì€€Ì€€€€€€Certain€by-product€emissions,€such€as€nitrogen€oxides€(NO€sub€x),€carbon€Ì€€monoxide€(CO),€NMOC's,€sulfur€oxides€(SO€sub€x),€and€particulates,€may€be€generated€Ì€€by€the€combustion€devices€used€to€reduce€air€emissions€from€MSW€landfills.€The€Ì€€types€and€quantities€of€these€by-product€emissions€vary€depending€on€the€control€Ì€€device.€However,€by-product€emissions€are€very€low€compared€to€the€achievable€NMOC€Ì€€and€methane€emission€reductions.€Chapters€4€and€6€of€the€BID€present€additional€Ì€€information€about€the€magnitude€of€potential€secondary€air€impacts.Ì€€Ì€€€€€€B.€Other€Environmental€ImpactsÌ€€Ì€€€€€€Water.€Landfill€leachate€is€the€primary€potential€source€of€water€pollution€Ì€€from€an€uncontrolled€landfill.€Although€there€is€no€data€on€the€effect€of€gas€Ì€€collection€on€leachate€composition,€the€amount€of€water€pollution€present€as€NMOC's€Ì€€in€the€leachate€may€be€reduced€under€these€standards€and€guidelines.Ì€€Ì€€€€€€When€landfill€gas€is€collected,€organics€and€water€are€condensed€inside€the€Ì€€header€pipes€of€the€gas€collection€system.€This€waste€also€contains€NMOC's€and€Ì€€various€toxic€substances€present€in€the€landfill€gas.€The€pH€of€this€condensate€is€Ì€€normally€adjusted€by€adding€caustic€at€the€landfill€and€then€routing€it€to€a€public€Ì€€treatment€facility.€This€does€increase€the€amount€of€these€substances€entering€the€Ì€€public€water€supply.€There€is€insufficient€data€available€to€quantify€this€effect€Ì€€at€this€time.Ì€€Ì€€€€€€Solid€Waste.€The€proposed€standards€and€guidelines€will€likely€have€little€Ì€€impact€on€the€quantity€of€solid€waste€generated€nationwide.€The€required€controls€Ì€€do€not€generate€any€solid€waste.€However,€the€increased€cost€of€landfill€operation€Ì€€resulting€from€the€proposed€control€requirements€may€cause€greater€use€of€waste€Ì€€recycling€and€other€alternatives€to€landfill€disposal,€but€quantification€of€such€Ð   	 @-(,   Ð€€an€impact€is€not€possible€at€this€time.Ì€€Ì€€€€€€Implications€of€the€Rulemaking€for€Superfund.€Municipal€solid€waste€landfill€Ì€€sites€comprise€approximately€20€percent€of€the€sites€placed€by€EPA€on€the€National€Ì€€Priorities€List€(NPL).€Often,€remedial€actions€selected€at€these€sites€include€Ì€€venting€methane€and€volatile€organic€contaminants,€and€airborne€emissions€are€Ì€€treated€if€determined€necessary€to€protect€human€health€and€the€environment.Ì€€Ì€€€€€€The€emission€standards€and€guidelines€in€this€rule€may€affect€remedial€actions€Ì€€under€Superfund€for€MSW€landfills.€Section€121(d)(2)€of€the€Comprehensive€Ì€€Environmental€Response€Compensation€and€Liability€Act€(CERCLA)€requires€compliance€Ì€€with€the€substantive€standards€of€applicable€or€relevant€and€appropriate€Ì€€requirements€(ARAR's)€of€certain€provisions€in€other€environmental€laws€when€Ì€€selecting€and€implementing€on-site€remedial€actions.€''Applicable''€requirements€Ì€€specifically€address€a€hazardous€substance,€pollutant,€contaminant,€remedial€Ì€€action,€location,€or€other€circumstance€at€a€Superfund€site.€''Relevant€and€Ì€€appropriate''€requirements€are€not€legally€applicable,€but€may€address€problems€or€Ì€€situations€sufficiently€similar€to€those€encountered€so€that€their€use€is€well€Ì€€suited€to€a€particular€site.€See€40€CFR€300.5€(55€FR€8814,€8817,€March€8,€1990).Ì€€Ì€€€€€€As€stated€in€this€preamble,€the€air€emission€regulations€will€apply€to€new€MSW€Ì€€landfills,€as€well€as€to€those€facilities€that€have€accepted€waste€since€November€Ì€€8,€1987,€or€that€have€capacity€available€for€future€use.€For€CERCLA€municipal€Ì€€landfill€remediations,€these€requirements€would€be€potential€ARAR's€for€all€Records€Ì€€of€Decision€(ROD's)€signed€after€the€rules'€promulgation€date.€The€standards€and€Ì€€guidelines€in€this€rulemaking,€once€promulgated,€will€be€applicable€for€those€Ì€€municipal€landfill€sites€on€the€NPL€that€accepted€waste€on€or€after€November€8,€Ì€€1987,€or€that€are€operating€and€have€capacity€for€future€use.€The€standards€may€be€Ì€€determined€relevant€and€appropriate€for€sites€that€accepted€wastes€prior€to€Ì€€November€8,€1987.€The€determination€of€relevance€and€appropriateness€is€made€on€a€Ì€€site-specific€basis€pursuant€to€40€CFR€300.400(g)€(55€FR€8841,€March€8,€1990).Ì€€Ì€€€€€€Energy.€Regulated€landfills€with€NMOC€emission€rates€of€150€Mg/yr€(167€tpy)€or€Ì€€more€would€be€required€to€install€a€gas€collection€system€and€control€device.€The€Ì€€gas€collection€system€would€require€a€relatively€small€amount€of€energy€to€run€the€Ì€€blowers€and€the€pumps.€If€a€flare€is€used€for€control,€auxiliary€fuel€should€not€be€Ì€€necessary€because€of€the€high€heat€content€of€landfill€gas,€commonly€1.86X10€sup€7€Ì€€Joules€per€standard€cubic€meter€(J/scm)€500€British€thermal€units€per€standard€Ì€€cubic€foot€(Btu/scf)€or€more.€If€a€recovery€device€such€as€a€gas€turbine€is€used,€Ì€€an€energy€savings€would€result.Ì€€Ì€€€€€€The€EPA€evaluated€the€overall€energy€impacts€resulting€from€the€use€of€flares€Ì€€or€gas€turbines€for€control€of€collected€emissions€at€all€affected€landfills.€The€Ì€€results€of€this€analysis€are€presented€below.€The€impacts€are€expressed€as€NPV€in€Ì€€1992.Ð   	 @-(,   Ð€€Ì€€€€€€If€all€new€landfills€opening€between€1992€and€1997€requiring€control€use€Ì€€flares,€the€annualized€energy€requirements€would€be€equivalent€to€about€543€barrels€Ì€€per€year€of€No.€6€fuel€oil.€If€all€new€controlled€landfills€are€equipped€with€gas€Ì€€turbines,€the€energy€to€run€the€blowers€and€pumps€would€be€offset€by€the€recovery€Ì€€of€the€methane,€resulting€in€annualized€energy€savings€of€approximately€2.8€million€Ì€€barrels€per€year€of€No.€6€fuel€oil.Ì€€Ì€€€€€€If€all€existing€controlled€landfills€use€flares,€the€annualized€energy€Ì€€requirements€would€be€equivalent€to€about€4,030€barrels€per€year€of€No.€6€fuel€oil.€Ì€€If€all€existing€controlled€landfills€are€equipped€with€gas€turbines,€the€annualized€Ì€€energy€savings€is€approximately€21€million€barrels€per€year€of€No.€6€fuel€oil.Ì€€Ì€€€€€€The€actual€energy€impact€for€either€new€or€existing€landfills€would€be€Ì€€somewhere€between€the€values€for€flares€and€gas€turbines.€Even€the€worst-case€Ì€€scenario€results€in€a€very€small€energy€requirement,€considering€that€domestic€oil€Ì€€use€is€currently€in€the€range€of€15€to€20€million€barrels€per€day€or€5€to€7€billion€Ì€€barrels€per€year.Ì€€Ì€€€€€€C.€Control€Costs€and€Economic€ImpactsÌ€€Ì€€€€€€Nationwide€annualized€costs€estimates€for€collection€and€control€of€air€Ì€€emissions€from€new€MSW€landfills€are€estimated€to€be€$26€million.€The€nationwide€Ì€€cost€of€the€proposed€guidelines€would€be€approximately€$240€million.€In€comparison€Ì€€to€other€solid€waste-related€proposals,€the€nationwide€costs€of€the€recently€Ì€€proposed€RCRA€Subtitle€D€rule€are€estimated€to€range€from€$691€per€year€to€$880€Ì€€million€per€year€and€the€estimated€nationwide€costs€of€the€recently€promulgated€MWC€Ì€€rules€are€estimated€to€be€$170€million€per€year€for€new€combustors€and€$302€million€Ì€€per€year€for€existing€combustors.Ì€€Ì€€€€€€Preliminary€economic€analysis€indicates€that€the€annual€cost€of€waste€disposal€Ì€€may€increase€by€an€average€of€less€than€$1€per€ton€for€the€proposed€NSPS€and€the€Ì€€proposed€guidelines.€Costs€per€household€would€increase€less€than€$3€to€$5,€when€Ì€€the€household€is€served€by€a€new€or€existing€landfill,€respectively.€Additionally,€Ì€€less€than€10€percent€of€the€households€would€face€annual€increases€of€$30€or€more€Ì€€per€household€as€a€result€of€the€proposed€NSPS€and€guidelines.€However,€EPA€Ì€€anticipates€that€many€landfills€will€elect€energy€recovery€systems,€and€costs€per€Ì€€household€for€those€areas€would€be€less.€The€EPA€has€concluded€that€no€households€Ì€€would€incur€severe€economic€impacts.€For€additional€information,€please€refer€to€Ì€€the€regulatory€impact€analysis€(Docket€No.€A-88-09,€Item€No.€II-F-1).Ì€€Ì€€€€€€IV.€Rationale€for€the€Standards€and€Guidelines€for€Municipal€Solid€Waste€Ì€€Landfill€EmissionsÌ€€Ì€€€€€€A.€BackgroundÐ   	 @-(,   Ð€€Ì€€€€€€The€regulation€of€MSW€landfill€emissions€originally€was€considered€during€Ì€€deliberations€under€a€RCRA€Subtitle€D€rulemaking.€In€1987,€the€Administrator€Ì€€decided€to€regulate€these€emissions€under€the€authority€of€the€CAA.€This€decision€Ì€€was€announced€in€the€Federal€Register€on€August€30,€1988€(53€FR€33314).Ì€€Ì€€€€€€Today's€action€proposes€standards€under€the€regulatory€authority€of€section€Ì€€111(b),€which€will€regulate€new€landfills€which€commence€construction€after€today's€Ì€€date,€and€emissions€guidelines€under€the€authority€of€section€111(d),€which€will€Ì€€regulate€existing€landfills.€The€source€of€landfill€emissions€is€essentially€the€Ì€€same€at€both€new€and€existing€landfills;€therefore,€in€general,€the€control€of€Ì€€these€emissions€would€be€the€same€as€well.€Throughout€this€preamble,€where€clear€Ì€€distinctions€arise,€the€rationales€for€the€EPA€actions€affecting€new€and€existing€Ì€€landfills€are€discussed€separately.€Otherwise,€the€discussion€applies€to€the€Ì€€proposed€standards€and€emission€guidelines.Ì€€Ì€€€€€€B.€Selection€of€the€Source€CategoryÌ€€Ì€€€€€€The€EPA€is€proposing€to€list€MSW€landfills€as€a€source€category€which€causes,€Ì€€or€contributes€to,€air€pollution€that€endangers€public€health€or€welfare.€This€Ì€€decision€is€based€on€evidence€from€EPA€and€State€studies€that€MSW€landfills€release€Ì€€air€pollutants€that€have€adverse€effects€on€both€public€health€and€welfare.€In€this€Ì€€section€of€the€preamble,€EPA€discusses€this€evidence.Ì€€Ì€€€€€€Municipal€solid€waste€landfill€emissions€consist€primarily€of€methane€and€CO€Ì€€sub€2,€with€trace€amounts€of€more€than€100€different€NMOC's€such€as€ethane,€Ì€€toluene,€and€benzene.€These€emissions,€commonly€called€''landfill€gas,''€are€formed€Ì€€from€the€anaerobic€decomposition€of€the€refuse€in€MSW€landfills.€The€landfill€gas€Ì€€is€generated€by€naturally€occurring€methanogens€that€decompose€complex€organic€Ì€€materials€into€organic€compounds€of€lower€molecular€weight.€The€methane€in€the€Ì€€landfills€acts€as€a€stripping€(or€transport)€gas,€moving€the€NMOC's€present€in€the€Ì€€landfills€through€the€landfill€to€the€atmosphere.€There€are€several€concerns€for€Ì€€public€health€and€welfare€associated€with€emissions€from€MSW€landfills.€These€Ì€€landfill€gas€emissions€have€adverse€health€and€welfare€effects€resulting€from€Ì€€NMOC's.€These€NMOC's€contribute€to€ozone€formation;€some€are€known€or€suspected€Ì€€carcinogens€or€cause€other€noncancer€health€effects.€The€NMOC's€in€landfill€gas€Ì€€emissions€can€cause€an€odor€nuisance€and€the€methane€has€caused€explosions€and€Ì€€fires€resulting€from€its€migration€to€on-and€off-site€structures€or€enclosures.€In€Ì€€addition,€the€proposed€rule€will€have€the€ancillary€benefit€of€reducing€methane,€a€Ì€€gas€under€discussion€by€the€Intergovernmental€Negotiating€Committee€for€a€Framework€Ì€€Convention€on€Climate€Change,€convened€by€the€United€Nations.Ì€€Ì€€€€€€Emission€Estimates.€Estimates€taken€from€''The€Office€of€Solid€Waste€Survey€of€Ì€€Municipal€Landfills''€(Docket€No.€A-88-09,€Item€No.€II-A-25),€a€database€developed€Ì€€from€a€MSW€landfill€survey€conducted€in€1986,€indicate€that€there€were€Ð   	 @-(,   Ð€€approximately€6,000€active€MSW€landfills€nationwide€in€1987.€The€EPA€estimates€that€Ì€€NMOC€emissions€from€these€landfills€total€approximately€255,000€Mg/yr€(283,000€Ì€€tpy).€The€NMOC's€are€primarily€volatile€organic€compounds€(VOC's)€contributing€to€Ì€€the€ambient€ozone€problem.€Roughly€1.0€percent€of€the€NMOC€emissions€from€Ì€€stationary€sources€nationwide€are€emitted€by€MSW€landfills.€Additionally,€methane€Ì€€emissions€from€MSW€landfills€nationwide€total€approximately€10.5€million€Mg/yr€(12€Ì€€million€tpy).Ì€€Ì€€€€€€The€EPA€predicts€that€in€the€first€5€years€after€the€NSPS€goes€into€effect,€Ì€€about€940€new€landfills€will€be€built€to€accommodate€increasing€waste€production€Ì€€and€replace€existing€landfills€that€reach€capacity€and€close.€Total€NMOC€emissions€Ì€€from€these€new€landfills€would€be€over€52,000€Mg/yr€(58,000€tpy)€when€they€are€Ì€€filled€to€design€capacity.€While€it€is€difficult€to€project€the€actual€number€of€Ì€€new€landfills,€the€emission€estimate€is€mainly€a€function€of€the€amount€of€waste€Ì€€generated.€Therefore,€uncertainty€about€the€number€of€new€landfills€does€not€Ì€€greatly€affect€the€estimate€of€the€quantity€of€emissions.Ì€€Ì€€€€€€Health€Effects.€The€NMOC's€present€several€hazards€to€human€health.€The€NMOC's€Ì€€participate€in€chemical€reactions€leading€to€the€formation€of€ozone,€which€causes€Ì€€health€effects.€Also,€certain€NMOC's€have€cancer€risks€and€cause€noncancer€health€Ì€€effects.Ì€€Ì€€€€€€Ozone€is€created€by€sunlight€acting€on€NO€sub€x€and€NMOC's€in€ambient€air.€Ì€€Ozone€leads€to€alterations€in€pulmonary€function,€aggravation€of€pre-existing€Ì€€respiratory€disease,€damage€to€lung€structure,€and€adverse€effects€on€blood€Ì€€enzymes,€the€central€nervous€system,€and€endocrine€systems.€Ozone€also€warrants€Ì€€control€due€to€its€welfare€effects,€specifically,€reduced€plant€growth,€decreased€Ì€€crop€yield,€necrosis€of€plant€tissue,€and€deterioration€of€certain€synthetic€Ì€€materials€such€as€rubber€(Docket€No.€A-88-09,€Item€Nos.€II-A-26,€II-I-16,€etc.).Ì€€Ì€€€€€€There€is€also€concern€about€cancer€risks€from€landfill€NMOC€emissions.€In€Ì€€reviewing€limited€emissions€data€from€MSW€landfills,€EPA€identified€both€known€and€Ì€€suspected€carcinogens€such€as€benzene,€carbon€tetrachloride,€chloroform,€ethylene€Ì€€dichloride,€methylene€dichloride,€perchloroethylene,€trichloroethylene,€vinyl€Ì€€chloride,€and€vinylidene€chloride.€However,€toxics€emissions€data€were€not€Ì€€available€from€most€MSW€landfills.€The€EPA€attempted€to€apply€statistical€methods€Ì€€to€the€limited€data€to€generate€the€average€annual€increased€cancer€incidence€and€Ì€€the€maximum€individual€risk€(MIR).€In€evaluating€the€results€of€the€calculations€Ì€€for€annual€incidence€and€MIR,€EPA€could€not€determine€reasonable€estimates€of€Ì€€either€an€annual€incidence€or€the€MIR.€The€EPA€believes€the€uncertainties€in€the€Ì€€database€are€too€great€to€calculate€credible€estimates€of€the€cancer€risks€Ì€€associated€with€MSW€landfills.Ì€€Ì€€€€€€At€least€12€pollutants,€such€as€benzene,€chloroform,€and€ethylene€dichloride,€Ì€€contained€in€MSW€landfill€emissions,€have€the€potential€to€produce€health€effects€Ð   	 @-(,   Ð€€other€than€cancer.€Noncancer€health€effects€associated€with€these€pollutants€Ì€€include€adverse€effects€on€the€kidneys,€liver,€and€central€nervous€system.€A€Ì€€qualitative€discussion€of€noncancer€health€effects€is€presented€in€chapter€2€of€the€Ì€€BID.€However,€due€to€limitations€in€the€data€describing€the€link€between€emissions€Ì€€and€these€effects,€EPA€is€unable€to€quantify€the€noncancer€health€effects€at€this€Ì€€time.Ì€€Ì€€€€€€After€considering€what€statutory€approach€to€use€in€regulating€MSW€landfill€Ì€€emissions,€EPA€announced€the€decision€to€regulate€these€emissions€under€section€111€Ì€€of€the€CAA€in€the€Federal€Register€on€August€30,€1988€(53€FR€33314).€When€this€Ì€€decision€was€made,€EPA€was€cognizant€that€section€112€of€the€CAA€(which€can€be€used€Ì€€to€develop€NESHAP)€could€have€been€used.€However,€given€the€uncertainty€and€Ì€€difficulty€in€setting€standards€under€section€112,€EPA€decided€to€proceed€with€Ì€€standards€development€under€section€111.€Now€that€EPA€is€proposing€standards€to€Ì€€regulate€MSW€landfills,€EPA€has€found€no€reason€to€change€that€initial€decision€to€Ì€€regulate€these€emissions€under€section€111€of€the€CAA.Ì€€Ì€€€€€€Fire€and€Explosion.€A€third€reason€MSW€landfill€emissions€warrant€control€is€Ì€€the€well-documented€danger€of€fires€and€explosions,€both€on-and€off-site.€Ì€€Decomposition€of€the€wastes€in€landfills€produces€explosive€methane€gas.€If€this€Ì€€methane€migrates€and€accumulates€in€structures€or€pockets,€such€as€basements,€crawl-Ì€€€spaces,€utility€closets,€or€false€ceilings,€fires€and/or€explosions€can€result.€Ì€€The€EPA€has€documented€many€cases€of€acute€injury€and€death€caused€by€explosions€Ì€€and€fires€related€to€municipal€landfill€gas€emissions.€In€addition€to€these€health€Ì€€effects,€the€associated€property€damage€is€a€welfare€effect.€Furthermore,€when€the€Ì€€migration€of€methane€and€the€ensuing€hazard€are€identified,€adjacent€property€Ì€€values€can€be€adversely€affected€(Docket€No.€A-88-09,€Item€Nos.€II-I-6,€II-I-7,€Ì€€etc.).€Subtitle€D€of€RCRA€will€require€owners€and€operators€of€MSW€landfills€to€Ì€€monitor€for€methane€to€ensure€that€the€concentration€of€methane€gas€does€not€exceed€Ì€€either:€(1)€25€percent€of€the€lower€explosive€limit€in€facility€structures,€or€(2)€Ì€€the€lower€explosive€level€as€the€property€border.€If€either€level€is€exceeded,€the€Ì€€owner€or€operator€would€be€required€to€develop€and€implement€a€methane€reduction€Ì€€plan.€The€control€of€air€emissions€under€the€CAA,€which€will€result€in€reduced€Ì€€levels€of€methane,€thus€reducing€the€potential€for€fires€and€explosions,€will€Ì€€complement€the€RCRA€provisions.€The€risk€of€fire€or€explosion€has€not€been€Ì€€quantified€due€to€the€difficulty€in€describing€emission€levels€which€can€be€Ì€€causally€linked€to€these€effects.€Chapter€2€of€the€BID€describes€these€effects€in€Ì€€greater€detail€(Docket€No.€A-88-09,€Item€No.€III-B-1).Ì€€Ì€€€€€€Odor.€Another€aspect€of€MSW€landfill€emissions€is€the€offensive€odor€associated€Ì€€with€landfills.€While€the€nature€of€the€wastes€themselves€contribute€to€the€problem€Ì€€of€odor,€the€gaseous€decomposition€products€are€often€characteristically€malodorous€Ì€€and€unpleasant.€Various€welfare€effects€may€be€associated€with€odors,€but€due€to€Ì€€the€subjective€nature€of€the€impact€and€perception€of€odor,€it€is€difficult€to€Ì€€quantify€these€effects.€Studies€indicate€that€unpleasant€odors€can€discourage€Ð   	 @-(,   Ð€€capital€investment€and€lower€the€socioeconomic€status€of€an€area.€Odors€have€been€Ì€€shown€to€interfere€with€daily€activities,€discourage€facility€use,€and€lead€to€a€Ì€€decline€in€property€values,€tax€revenues,€and€payrolls€(Docket€No.€A-88-09,€Item€Ì€€Nos.€11-I-6,€11-I-7,€etc.).Ì€€Ì€€€€€€Global€Climate€Change.€An€ancillary€benefit€from€regulating€air€emissions€from€Ì€€MSW€landfills€is€a€reduction€in€the€contribution€of€MSW€landfill€emissions€to€Ì€€global€emissions€of€methane.€Methane€is€a€major€greenhouse€gas,€and€is€20€to€30€Ì€€times€more€potent€than€CO€sub€2€on€a€molecule-per-molecule€basis.€This€is€due€to€Ì€€the€radiative€characteristics€of€methane€and€other€effects€methane€has€on€Ì€€atmospheric€chemistry.Ì€€Ì€€€€€€There€is€a€general€concern€within€the€scientific€community€that€the€increasing€Ì€€emissions€of€greenhouse€gases€could€lead€to€climate€change,€although€the€rate€and€Ì€€magnitude€of€these€changes€are€uncertain.€Efforts€to€reduce€the€uncertainties€Ì€€regarding€the€science€of€global€climate€change€are€ongoing€within€EPA€and€within€Ì€€the€international€community.€This€rule€produces€the€ancillary€benefit€of€reducing€Ì€€methane€emissions,€a€gas€under€discussion€by€the€Intergovernmental€Negotiating€Ì€€Committee€for€a€Framework€Convention€on€Climate€Change€convened€by€the€United€Ì€€Nations,€whether€landfill€owners€and€operators€comply€with€the€proposed€standards€Ì€€through€the€use€of€control€processes€based€on€combustion€or€based€on€recovery.Ì€€Ì€€€€€€Conclusion.€In€light€of€the€level€of€emissions€and€potential€public€health€and€Ì€€welfare€effects€described€above,€EPA€proposes€to€list€MSW€landfills€as€a€source€Ì€€category€under€section€111(b)(1)(A)€of€the€CAA.Ì€€Ì€€€€€€C.€Selection€of€the€Designated€PollutantÌ€€Ì€€€€€€Today's€notice€designates€air€emissions€from€MSW€landfills,€hereafter€referred€Ì€€to€as€''MSW€landfill€emissions,''€as€the€air€pollutant€to€be€controlled.€The€EPA€Ì€€views€these€emissions€as€a€complex€aggregate€of€pollutants€which€together€pose€a€Ì€€threat€to€public€health€and€welfare€based€on€the€combined€adverse€effects€of€the€Ì€€various€components.€As€previously€stated,€these€components€are€methane€and€NMOC's,€Ì€€including€various€toxic€substances.€A€number€of€factors€determine€the€specific€Ì€€proportion€of€each€constituent€of€MSW€landfill€emissions,€such€as€the€composition,€Ì€€age,€and€amount€of€waste€in€the€landfill,€moisture€content€and€pH€of€the€refuse,€Ì€€climate,€and€the€presence€of€nutrients€and/or€toxic€substances€in€the€landfill.€Ì€€Landfill€management€practices,€such€as€waste€segregation,€may€also€affect€the€Ì€€composition€of€the€emissions€generated.€Given€the€variability€of€these€factors,€the€Ì€€exact€composition€of€MSW€landfill€emissions€can€vary€significantly€from€landfill€to€Ì€€landfill€and€over€time.€Although€the€types€of€compounds€are€typically€the€same,€the€Ì€€complex€mixture€cannot€be€characterized€quantitatively€in€terms€of€single€Ì€€pollutants.€The€EPA€thus€views€the€complex€air€emission€mixture€from€landfills€to€Ì€€constitute€a€single€designated€pollutant.Ì€€Ð   	 @-(,   Ð€€€€€€The€EPA€has€determined€that€this€mixture,€MSW€landfill€emissions,€will€be€Ì€€designated€and€regulated€under€sections€111(b)€and€111(d)€of€the€CAA.€Section€111€Ì€€standards€can€address€a€broad€range€of€sources€and€pollutants€''€which€may€Ì€€reasonably€be€expected€to€endanger€public€health€or€welfare.''€Municipal€solid€Ì€€waste€landfill€emissions€are€designated€on€the€basis€of€both€the€health€and€welfare€Ì€€impacts€described€in€the€previous€section.€Although€different€effects€may€result€Ì€€from€different€individual€constituents€of€the€landfill€gas,€the€constituents€are€Ì€€emitted€together€and€the€same€control€technologies€will€control€all€the€Ì€€constituents€of€MSW€landfill€emissions.€Therefore,€control€of€these€constituents€Ì€€can€be€achieved€through€regulation€of€''MSW€landfill€emissions.''€Furthermore,€MSW€Ì€€landfill€emissions€may€contain€100€or€more€individual€compounds.€Although€it€would€Ì€€be€theoretically€possible€to€measure€all€of€the€components,€such€a€task€would€be€Ì€€extremely€burdensome,€expensive,€and€impractical.€The€standards€and€guidelines€EPA€Ì€€is€proposing€provide€a€high€level€of€control€of€total€MSW€landfill€emissions,€and€Ì€€avoid€the€administrative€burden€and€expense€of€measuring€all€components€of€MSW€Ì€€landfill€emissions€by€using€NMOC€concentration€as€a€surrogate€measure.Ì€€Ì€€€€€€In€conclusion,€today's€notice€proposes€to€regulate€air€emissions€from€MSW€Ì€€landfills€as€a€designated€pollutant€by€the€addition€of€subpart€WWW€to€40€CFR€part€Ì€€60.€This€action€is€warranted€by€the€potential€for€adverse€health€and€welfare€Ì€€effects€posed€by€MSW€landfill€emissions€as€described€above€under€section€B,€Ì€€''Selection€of€the€Source€Category.''Ì€€Ì€€€€€€D.€Selection€of€the€Affected€and€Designated€FacilitiesÌ€€Ì€€€€€€In€summary,€EPA€is€proposing€that€the€affected€facility€for€regulating€new€Ì€€sources€under€section€111(b)€of€the€CAA€is€each€MSW€landfill€that€commences€Ì€€construction€on€or€after€today's€date.€Additionally,€today's€notice€proposes€that€Ì€€the€designated€facility€for€regulating€existing€sources€under€section€111(d)€is€Ì€€each€existing€MSW€landfill€(i.e.,€landfill€that€commenced€construction€before€Ì€€today's€date),€if€it€was€receiving€waste€at€any€time€since€November€8,€1987,€or€has€Ì€€additional€capacity€which€may€be€filled€in€the€future.Ì€€Ì€€€€€€Landfills€are€also€regulated€under€subtitles€C€and€D€of€the€Resource€Ì€€Conservation€and€Recovery€Act€(RCRA).€Hazardous€waste€is€regulated€under€subtitle€Ì€€C,€and€in€general,€household€and€nonhazardous€wastes€are€regulated€under€subtitle€Ì€€D.€The€proposed€NSPS,€however,€has€been€developed€under€the€authority€of€the€CAA.€Ì€€Under€RCRA,€a€landfill€means€an€area€of€land€or€an€excavation€in€which€wastes€are€Ì€€placed€for€permanent€disposal,€and€which€is€not€a€land€application€unit,€surface€Ì€€impoundment,€injection€well,€or€waste€pile.€The€Resource€Conservation€and€Recovery€Ì€€Act€further€defines€an€MSW€landfill€as€any€landfill€or€landfill€unit€that€receives€Ì€€household€waste.€This€landfill€may€also€receive€other€types€of€subtitle€D€wastes,€Ì€€such€as€commercial€waste,€nonhazardous€sewage€sludge€from€publicly€owned€treatment€Ì€€works,€construction/demolition€waste,€and€industrial€solid€waste.Ì€€Ð   	 @-(,   Ð€€€€€€In€defining€the€affected€facility€as€part€of€an€NSPS€for€an€industrial€source€Ì€€category,€EPA€typically€determines€which€emission€point€or€group€of€points€is€the€Ì€€appropriate€unit€(the€source)€for€separate€emissions€standards€in€the€particular€Ì€€industrial€context€involved.€Today's€proposal€defines€the€affected€facility€as€the€Ì€€entire€landfill€rather€than€any€subdivision€of€the€landfill€such€as€an€individual€Ì€€cell.€An€''entire€landfill''€is€the€total€landfill€property€designated€for€solid€Ì€€waste€disposal€irrespective€of€subdividing€access€roads€or€multiple€ownership.€The€Ì€€entire€landfill€is€appropriately€covered€by€the€proposed€standard€because€the€Ì€€emissions€potential€of€the€landfill,€and€the€magnitude€of€the€associated€health€and€Ì€€welfare€effects,€are€determined€by€the€total€area€in€which€refuse€is€deposited.€Ì€€Additionally,€the€controls€and€their€costs€estimated€for€this€proposal€are€also€Ì€€associated€with€the€entire€landfill€rather€than€with€any€smaller€subdivision.Ì€€Ì€€€€€€In€establishing€111(d)€guidelines€for€existing€sources,€EPA€typically€defines€Ì€€''designated€facilities''€(see€40€CFR€60.21(b)).€For€the€same€reasons€described€in€Ì€€selection€of€the€affected€facility,€the€designated€facility€is€the€entire€landfill.€Ì€€In€considering€how€to€define€the€designated€facility€under€section€111(d),€EPA€Ì€€specifically€evaluated€the€applicability€of€the€guideline€to€inactive€landfills.€Ì€€Unlike€manufacturing€facilities,€which€typically€cease€emissions€once€they€have€Ì€€closed,€a€landfill€will€generate€landfill€gas€long€after€closure,€in€some€cases€as€Ì€€long€as€100€years.€During€the€development€of€today's€proposed€standards€and€Ì€€guidelines,€EPA€found€that€a€typical€landfill€is€likely€to€generate€landfill€gas€at€Ì€€a€maximum€rate€at,€or€soon€after,€closure€and€that€the€generation€rate€would€Ì€€steadily€decline€thereafter.€At€some€time€after€closure,€emissions€will€no€longer€Ì€€be€a€concern.Ì€€Ì€€€€€€Control€of€closed€landfills€would€pose€a€number€of€administrative€issues.€Based€Ì€€on€available€information,€EPA€estimates€that€there€are€over€32,000€closed€solid€Ì€€waste€disposal€facilities€across€the€country€(53€FR€33324,€August€30,€1988).€Many€Ì€€of€these€would€be€classified€as€MSW€landfills€because€household€waste€was€deposited€Ì€€in€them.€The€histories€of€many€of€these€landfills€may€not€be€documented€by€State€Ì€€regulatory€programs€and€would€be€difficult€to€locate.€An€additional€concern€would€Ì€€be€the€difficulty€in€establishing€accountability€and€financial€responsibility€for€Ì€€the€installation€and€operation€of€controls€at€closed€facilities€for€which€ownership€Ì€€may€be€uncertain.Ì€€Ì€€€€€€The€retroactive€application€of€operating€requirements€to€closed€facilities€also€Ì€€raises€policy€concerns.€The€EPA€generally€does€not€require€owners€of€closed€sources€Ì€€to€implement€controls.€These€sources€were€presumably€operating€in€compliance€with€Ì€€applicable€regulations€prior€to€closure€and€establishing€post-closure€requirements€Ì€€may€place€undue€burdens€on€these€facilities.Ì€€Ì€€€€€€Faced€with€the€administrative€and€policy€complexities€of€regulating€closed€Ì€€facilities,€EPA€looked€for€an€approach€that€was€likely€to€lead€to€reasonable€Ì€€success€in€reducing€emissions€without€establishing€unreasonable€requirements.€The€Ð   	 @-(,   Ð€€Hazardous€and€Solid€Waste€Amendments€to€RCRA€of€1984€required€States€to€establish€a€Ì€€permit€program€or€other€system€of€prior€approval€to€ensure€that€facilities€that€Ì€€receive€household€hazardous€waste€or€small€quantity€generator€hazardous€waste€are€Ì€€in€compliance€with€40€CFR€part€257,€''Criteria€for€Classification€of€Solid€Waste€Ì€€Disposal€Facilities€and€Practices.''€This€permit€program€was€to€be€established€by€Ì€€November€8,€1987.€This€date€was€selected€as€the€regulatory€cutoff€in€the€emission€Ì€€guidelines€for€landfills€that€are€no€longer€receiving€wastes€because€EPA€judged€Ì€€States€would€be€able€to€identify€active€facilities€as€of€this€date.€The€EPA€views€Ì€€this€permit€program€as€a€readily€available€resource€for€States€to€use€in€Ì€€implementing€today's€guidelines€and€compliance€schedules€under€section€111(d).€Ì€€Therefore,€EPA€is€proposing€to€define€a€designated€facility€as€an€existing€landfill€Ì€€that€received€waste€on€or€after€November€8,€1987,€or€has€additional€capacity€which€Ì€€may€be€filled€in€the€future.Ì€€Ì€€€€€€The€EPA€is€requesting€comment€about€the€ability€of€States€to€identify€those€Ì€€landfills€which€may€have€closed€after€November€8,€1987,€and€the€appropriateness€of€Ì€€this€date€as€a€cutoff€for€applicability.€The€EPA€typically€does€not€establish€Ì€€operating€standards€through€section€111(d)€of€the€CAA€for€sources€no€longer€Ì€€operating.€Further,€since€landfill€emissions€decline€after€closure,€would€it€be€Ì€€more€appropriate€to€limit€the€regulation€to€those€facilities€operating€on€the€date€Ì€€of€proposal?€What€additional€emissions€would€occur€if€the€applicability€date€was€Ì€€moved€from€November€8,€1987€to€the€date€of€proposal?€The€EPA€also€requests€comments€Ì€€on€the€model€used€to€estimate€landfills€emissions€and€the€assumed€emission€profile.Ì€€Ì€€€€€€E.€Selection€of€Best€Demonstrated€TechnologyÌ€€Ì€€€€€€Introduction.€Under€section€111(b),€EPA€proposes€that€new€MSW€landfills€with€Ì€€annual€emissions€of€NMOC's€equal€to€or€greater€than€150€Mg/yr€(167€tpy)€would€be€Ì€€required€to€be€controlled€through€the€use€of€gas€collection€systems€and€combustion€Ì€€devices€(or€equivalent€systems).€Under€section€111(d),€EPA€would€establish€Ì€€guidelines€for€existing€MSW€landfills€that€received€refuse€on€or€after€November€8,€Ì€€1987.€The€guidelines€would€specify€that€landfills€with€annual€NMOC€emissions€equal€Ì€€to€or€greater€than€150€Mg/yr€(167€tpy)€have€collection€and€control€systems.€The€Ì€€same€level€of€control€has€been€selected€as€BDT€for€new€and€existing€landfills.Ì€€Ì€€€€€€Section€111(a)(1)(b)€of€the€CAA€requires€that€standards€of€performance€for€new€Ì€€sources€reflect€the-Ì€€Ì€€€€€€€degree€of€emission€limitation€and€the€percentage€reduction€achievable€through€Ì€€application€of€the€best€technological€system€of€continuous€emission€reduction€which€Ì€€(taking€into€consideration€the€cost€of€achieving€such€emission€reduction,€any€Ì€€nonair€quality€health€and€environmental€impact€and€energy€requirements)€the€Ì€€Administrator€determines€has€been€adequately€demonstrated.Ì€€Ì€€€€€€Similarly,€section€111(a)(1)(c)€requires€emission€guidelines€for€existing€Ð   	 @-(,   Ð€€sources€to€reflect€the-Ì€€Ì€€€€€€€degree€of€emission€reduction€achievable€through€the€application€of€the€best€Ì€€system€of€continuous€emission€reduction€which€(taking€into€consideration€the€cost€Ì€€of€achieving€such€emission€reduction,€and€any€nonair€quality€health€and€Ì€€environmental€impact€and€energy€requirements)€the€Administrator€determines€has€been€Ì€€adequately€demonstrated€for€that€category€of€sources.Ì€€Ì€€€€€€These€systems€are€referred€to€as€BDT€for€new€and€existing€sources.Ì€€Ì€€€€€€This€section€presents€the€rationales€for€selection€of€BDT€for€new€and€existing€Ì€€sources.€Subsection€1€describes€the€gas€collection€and€control€technologies€EPA€Ì€€evaluated€in€selecting€BDT.€The€second€subsection€describes€the€analyses€of€Ì€€regulatory€alternatives€for€new€and€existing€landfills.€The€rationales€for€Ì€€selection€of€BDT€for€new€and€existing€sources€are€presented€in€subsection€3.€Ì€€Finally,€Subsection€4€describes€the€selection€of€the€format€of€the€standards€and€Ì€€guidelines.Ì€€Ì€€€€€€1.€Discussion€of€Demonstrated€TechnologiesÌ€€Ì€€€€€€Today's€standards€and€guidelines€are€based€on€gas€collection€and€add-on€control€Ì€€devices€or€systems.€Today's€proposed€standards€and€guidelines€would€require€that€Ì€€the€air€emissions€from€MSW€landfills€be€collected€and€directed€through€an€emission€Ì€€control€device€that€achieves€recovery€or€destruction€of€the€NMOC's€by€at€least€98€Ì€€percent€by€weight.€In€selecting€BDT€for€new€and€existing€sources,€EPA€considered€Ì€€various€technologies€associated€with€gas€collection€and€the€control€devices€used€to€Ì€€destroy€the€collected€gas.€The€technologies€described€below€would€be€equally€Ì€€applicable€to€both€new€and€existing€landfills.Ì€€Ì€€€€€€Gas€Collection.€Typical€landfill€practices€include€application€of€a€daily€0.15€Ì€€meter€(m)€6-inch€(in.)€earthen€cover€over€newly€received€refuse€and€a€final€cover€Ì€€of€up€to€0.6€m€2€feet€(ft)€in€thickness.€This€practice€alone€is€inadequate€to€Ì€€prevent€release€of€MSW€landfill€emissions€which€continue€through€the€cover€long€Ì€€after€the€landfill€is€closed.€There€is€no€evidence€that€thicker€final€covers€do€any€Ì€€more€than€retard€the€emissions€for€a€short€period€of€time,€with€little€or€no€effect€Ì€€on€the€overall€mass€emissions.€In€addition,€MSW€landfill€emissions€have€the€Ì€€potential€to€migrate€through€the€sides€of€the€landfill€or€from€places€where€the€Ì€€cover€has€been€eroded€over€time.€Thus,€the€emissions€must€be€collected€and€Ì€€destroyed€to€prevent€release€to€the€air.Ì€€Ì€€€€€€One€type€of€gas€collection€system€presently€in€use€is€the€passive€collection€Ì€€system.€Passive€systems€consist€primarily€of€gas€extraction€wells,€each€of€which€Ì€€may€or€may€not€be€connected€to€a€flare.€However,€passive€wells€are€frequently€Ì€€vented€to€the€atmosphere€uncontrolled.€Uncontrolled€passive€wells€serve€primarily€Ì€€to€prevent€gas€migration€and€reduce€fire€and€explosion€hazard.€Other€public€health€Ð   	 @-(,   Ð€€and€welfare€concerns€are€not€reduced€by€uncontrolled€passive€collection€systems.€Ì€€The€EPA€believes€that€because€these€emissions€are€not€reduced€by€uncontrolled€Ì€€passive€collection€systems,€these€systems€are€an€ineffective€control€technology,€Ì€€and€EPA€therefore€did€not€consider€uncontrolled€passive€systems€further€during€the€Ì€€selection€of€BDT.Ì€€Ì€€€€€€Theoretically,€a€passive€system€could€be€as€effective€as€an€active€system€if€Ì€€each€well€or€trench€were€equipped€with€an€effective€control€device,€and€if€the€well€Ì€€or€trench€spacing€were€adequate€to€effectively€collect€gas€from€all€areas€of€the€Ì€€landfill.€However,€due€to€their€shorter€radius€of€influence,€an€effective€passive€Ì€€well€system€would€need€many€more€wells€in€a€given€area.€The€additional€wells€would€Ì€€result€in€higher€overall€costs.€The€EPA€considers€such€passive€well€systems€as€Ì€€being€less€cost€effective€than€active€systems€for€compatible€volumes€of€collected€Ì€€gas.Ì€€Ì€€€€€€Active€collection€systems€are€presently€in€use€at€more€than€100€landfills€and€Ì€€consist€of€two€major€components,€gas€extraction€wells€and/or€trenches,€and€gas€Ì€€moving€components.€These€systems€employ€mechanical€blowers€or€compressors€to€create€Ì€€a€pressure€gradient,€thereby€extracting€the€MSW€landfill€emissions.€The€Ì€€configuration€of€the€wells€or€trenches€and€gas€moving€equipment,€and€the€pressure€Ì€€gradient€necessary€to€collect€the€emissions€effectively€without€air€infiltration€Ì€€from€the€surface€and€sides€of€the€landfill,€are€affected€by€many€site-specific€Ì€€factors.€These€factors€include€the€gas€generation€rate,€size€and€depth€of€the€Ì€€landfill,€and€refuse€and€cover€permeability.€A€gas€collection€header€system€conveys€Ì€€the€emissions€to€the€control€device(s).Ì€€Ì€€€€€€Well-designed€and€well-operated€gas€collection€systems,€at€a€minimum,€include€Ì€€the€following€capabilities:€(1)€The€ability€to€handle€the€maximum€gas€generation€Ì€€rate€predicted€over€the€life€of€the€equipment;€(2)€the€ability€to€monitor€and€Ì€€adjust€the€operation€of€the€system€as€gas€generation€varies;€and€(3)€the€ability€to€Ì€€be€expanded€as€needed€(i.e.,€to€collect€gas€from€all€areas€of€the€landfill€in€which€Ì€€refuse€has€been€or€will€have€been€deposited€for€at€least€2€years).€Chapters€4€and€9€Ì€€of€the€BID€discuss€the€considerations€necessary€in€designing€an€effective€gas€Ì€€collection€system€(Docket€No.€A-88-09,€Item€No.€III-B-1).Ì€€Ì€€€€€€Active€collection€systems€are€capable€of€conveying€the€emissions€to€a€control€Ì€€device,€which€destroys€or€removes€the€NMOC's€and€methane,€thereby€reducing€the€Ì€€public€health€and€welfare€concerns.€Other€systems€have€not€been€demonstrated€to€Ì€€accomplish€these€goals.€Therefore,€well-designed€and€operated€active€collection€Ì€€systems€were€considered€as€an€essential€component€in€selection€of€BDT€for€MSW€Ì€€landfill€emissions.€The€emission€reduction,€cost,€and€other€impacts€of€applying€Ì€€active€collection€systems,€along€with€control€systems,€to€new€and€existing€Ì€€landfills€are€estimated€in€Subsection€2,€''Analysis€of€Regulatory€Alternatives.''Ì€€Ì€€€€€€Control€devices.€Gas€treatment€or€control€devices€are€the€other€major€part€of€a€Ð   	 @-(,   Ð€€control€system€for€air€emissions€from€MSW€landfills.€Gas€treatment€can€be€performed€Ì€€either€by€systems€that€burn€the€collected€gas€or€by€systems€that€purify€the€Ì€€emissions€by€the€removal€of€the€CO€sub€2€and€other€contaminants€to€produce€pipeline€Ì€€quality€gas.€Control€(treatment)€systems€that€burn€the€emissions€can€be€further€Ì€€divided€into€those€based€on€destruction,€such€as€flares€and€incinerators,€and€those€Ì€€based€on€energy€recovery,€such€as€boilers,€turbines,€and€internal€combustion€(I.C.)€Ì€€engines.Ì€€Ì€€€€€€Gas€purification€techniques€are€used€to€upgrade€landfill€gas€to€pipeline€Ì€€quality€natural€gas€by€the€removal€of€water,€condensible€NMOC's,€and€CO€sub€2.€Ì€€Since€standard€natural€gas€pipelines€may€not€accept€gas€containing€halogenated€Ì€€compounds€and€sulfur€derivatives,€removal€of€these€compounds€can€be€a€part€of€a€Ì€€purification€process€design.€Compounds€that€are€removed€are€often€vented€to€the€Ì€€air.€In€such€cases,€the€purification€system€would€not€reduce€the€public€health€and€Ì€€welfare€impacts€of€landfill€emissions.€The€landfill€gas€generation€rate,€Ì€€availability€of€customers,€and€local€environmental€issues€are€important€limiting€Ì€€factors€in€the€decision€to€install€purification€systems€at€MSW€landfills.€These€Ì€€systems€would€not€be€economically€feasible€for€all€landfills.€Thus,€EPA€has€not€Ì€€used€gas€purification€techniques€as€a€candidate€BDT€control€device.€However,€even€Ì€€though€they€are€not€applicable€to€all€MSW€landfills,€today's€proposed€standards€and€Ì€€guidelines€allow€purification€processes€to€be€used€to€control€landfill€emissions,€Ì€€if€gaseous€vent€streams€from€purification€systems€at€MSW€landfills€are€routed€to€Ì€€control€devices€where€a€98-percent€overall€reduction€in€NMOC's€is€achieved.Ì€€Ì€€€€€€Flares€are€currently€being€used€to€control€air€emissions€from€MSW€landfills.€Ì€€Good€combustion€in€a€flare€is€governed€by€flame€temperature,€residence€time€of€Ì€€NMOC's€in€the€combustion€zone,€turbulent€mixing€of€the€combustion€zone,€and€the€Ì€€amount€of€oxygen€(0€sub€2)€available€for€combustion.Ì€€Ì€€€€€€There€are€basically€two€types€of€flares:€Open€flares€(i.e.,€flame€is€exposed),€Ì€€and€enclosed€flares.€Open€flares€generally€have€one€burner€tip€and€can€be€located€Ì€€at€ground€level€or€can€be€elevated.€Enclosed€flares€are€usually€composed€of€Ì€€multiple€gas€burner€heads€and€are€staged€to€operate€at€a€wide€range€of€flowrates.€Ì€€They€are€often€located€at€ground€level.€Good€mixing€in€enclosed€flares€is€the€Ì€€result€of€high€velocity€of€the€fuel€gas€at€the€burner€nozzles.€The€enclosure€Ì€€reduces€luminosity,€noise,€and€heat€radiation.€Chapter€4€of€the€BID€provides€Ì€€additional€information€about€the€design,€combustion€efficiency,€by-product€Ì€€emissions,€and€available€test€data€for€flares.Ì€€Ì€€€€€€The€EPA€has€established€criteria€(40€CFR€60.18)€to€assure€(specifying€when)€Ì€€open€flares€achieve€at€least€98€percent€destruction€efficiency.€This€efficiency€can€Ì€€be€achieved€only€under€certain€design€and€operating€parameters,€as€specified€in€40€Ì€€CFR€60.18.€The€EPA€reviewed€data€on€the€flaring€of€MSW€landfill€gas€using€enclosed€Ì€€flares.€These€data€were€collected€through€State€and€local€regulatory€agencies.€The€Ì€€EPA€concluded€that€properly€designed€and€operated€flares,€both€open€and€enclosed,€Ð   	 @-(,   Ð€€can€achieve€this€efficiency€with€landfill€gas.€Additionally,€flares€can€Ì€€consistently€achieve€a€98-percent€or€higher€destruction€efficiency€at€a€lower€cost€Ì€€than€the€other€nonrecovery€combustion€control€systems€considered.€(Cost€impacts€and€Ì€€economic€feasibility€of€the€application€of€flares€are€presented€in€the€analysis€of€Ì€€regulatory€alternatives€in€Subsection€2.)€Thus,€EPA€has€concluded€that€open€flares€Ì€€as€an€add-on€control€device€are€a€demonstrated€technology€for€control€of€landfill€Ì€€emissions€and€will€be€considered,€along€with€collection€systems,€as€a€basic€Ì€€component€in€the€selection€of€BDT.Ì€€Ì€€€€€€Several€other€control€systems€that€EPA€has€determined€have€the€potential€to€Ì€€meet€the€98-percent€destruction€criterion€are€discussed€below.€While€these€other€Ì€€techniques€may€not€be€technically€or€economically€feasible€at€all€landfills,€and€Ì€€are,€therefore,€not€the€basis€of€BDT,€they€have€been€demonstrated€to€reduce€Ì€€emissions€and€could€be€used€to€meet€the€requirements€of€the€standards€or€guidelines€Ì€€in€cases€where€they€are€feasible.€At€some€landfills,€use€of€these€techniques€rather€Ì€€than€flares€could€reduce€the€costs€of€compliance.Ì€€Ì€€€€€€A€second€control€method€utilizing€combustion€without€energy€recovery€for€Ì€€control€of€collected€emissions€is€incineration.€Incinerators€have€been€demonstrated€Ì€€to€achieve€98€percent€or€greater€reduction,€the€same€control€level€as€flares.€Ì€€Incineration€may€be€more€or€less€expensive€than€flares,€depending€on€site-specific€Ì€€factors€(Docket€No.€A-88-09,€Item€No.€11-A-16),€but€in€general€they€are€likely€to€Ì€€be€more€expensive€than€flares€and€may€not€be€economically€feasible€in€all€cases.€Ì€€Therefore,€while€EPA€would€allow€the€use€of€incinerators,€EPA€has€not€based€the€Ì€€calculation€of€the€impacts€of€BDT€on€incinerators.Ì€€Ì€€€€€€Energy€recovery€systems€have€also€been€demonstrated€to€achieve€98€percent€Ì€€emission€control€at€landfills€where€their€use€is€feasible.€Energy€recovery€systems€Ì€€currently€used€to€combust€landfill€emissions€include€I.C.€engines,€gas€turbines,€Ì€€and€steam-generating€boilers.€Power€produced€by€these€systems€may€be€used€to€Ì€€generate€electricity€or€for€heating.€Each€of€these€is€briefly€discussed€below.€Ì€€Chapter€4€of€the€BID€provides€additional€details€of€the€operation,€by-product€Ì€€emissions,€and€applicability€of€each€of€these€systems€to€the€control€of€MSW€Ì€€landfill€emissions.€Energy€recovery€systems€have€the€potential€to€offset€the€cost€Ì€€of€control.€However,€the€capital€cost€for€these€systems€is€higher€than€for€flares,€Ì€€and€a€site-specific€study€would€be€needed€to€determine€the€technical€and€economical€Ì€€feasibility€of€installing€an€energy€recovery€system€for€a€given€landfill.€The€EPA€Ì€€cannot€predict€the€recovery€potential€with€confidence€for€all€existing€or€future€Ì€€MSW€landfills€without€performing€site-specific€analyses.€Additionally,€EPA€believes€Ì€€that€landfill€operators€will€themselves€select€recovery€systems€when€it€would€make€Ì€€sense€economically€to€do€so.€Therefore,€EPA€concluded€that€it€would€be€Ì€€inappropriate€to€further€consider€these€systems€in€the€selection€of€BDT.€The€BID€Ì€€for€today's€proposed€standards€and€guidelines€provides€additional€information€that€Ì€€will€be€useful€to€landfill€owners€and€operators€in€making€decisions€concerning€Ì€€energy€recovery.€In€addition,€this€topic€is€discussed€in€Section€K€below,€Ð   	 @-(,   Ð€€''Additional€Considerations€and€Solicitation€of€Comments.''Ì€€Ì€€€€€€Internal€combustion€engines€are€in€use€at€about€40€landfills.€The€type€of€Ì€€engine€used€to€recover€energy€from€landfills€is€usually€a€4-cycle,€spark-ignited€Ì€€engine€similar€in€design€to€the€common€gasoline€engine.€The€I.C.€engine€is€being€Ì€€used€for€landfills€because€of€its€short€construction€time,€ease€of€installation,€Ì€€and€operational€capacity€over€a€wide€range€of€speeds€and€loads.€Internal€combustion€Ì€€engines€can€be€operated€to€achieve€a€destruction€efficiency€of€98€percent€or€Ì€€better.Ì€€Ì€€€€€€Gas€turbines,€which€generally€achieve€a€destruction€efficiency€of€98€percent,€Ì€€are€in€use€to€recover€energy€at€18€U.S.€landfills€(Docket€No.€A-88-09,€Item€No.€II-Ì€€B-24).€A€gas€turbine€is€a€heat€engine€that€converts€fuel€energy€into€work€using€Ì€€compressed€hot€gas€as€the€working€medium.€Gas€turbines€take€large€amounts€of€air€Ì€€from€the€atmosphere,€compress€it,€burn€fuel€to€heat€it,€then€expand€it€in€the€power€Ì€€turbine€to€develop€shaft€horsepower.€Ambient€air€is€compressed€and€combined€with€Ì€€fuel€in€the€combustor.€The€combustor€exhaust€stream€flows€to€the€power€turbine€Ì€€which€converts€some€of€the€stream's€fuel€energy€to€rotary€shaft€power.€This€shaft€Ì€€power€drives€the€inlet€compressor€and€an€electrical€generator.€The€applicability€of€Ì€€gas€turbines€to€a€given€landfill€will€depend€on€the€quantity€of€landfill€gas€Ì€€generated,€the€availability€of€customers,€the€price€of€electricity,€and€local€Ì€€environmental€issues.Ì€€Ì€€€€€€At€a€few€landfills,€energy€recovery€is€achieved€with€industrial€boilers,€i.e.,€Ì€€a€boiler€with€a€heat€input€of€2.9€to€29€megawatts€(MW)€(10€to€100€million€Btu/hr),€Ì€€of€the€watertube€design.€In€a€watertube€boiler,€hot€combustion€gases€contact€the€Ì€€outside€of€heat€transfer€tubes,€which€contain€hot€water€and€steam.€Heat€is€Ì€€transferred€via€these€tubes€to€collection€drums,€which€collect€and€store€the€heated€Ì€€water€and€steam.€Landfill€gas-fired€boilers€may€be€utilized€in€two€ways.€On-site€Ì€€landfill€gas€may€be€routed€to€an€on-site€boiler€to€produce€heat€or€hot€water,€or€to€Ì€€produce€steam,€which€in€turn€is€fed€to€a€steam€turbine€to€generate€electricity.€The€Ì€€landfill€gas€may€alternatively€be€piped€and€sold€to€an€off-site€boiler.€Three€of€Ì€€the€five€landfill€gas-fired€boilers€presently€operating€are€utilized€as€simple€heat€Ì€€or€hot€water€sources.€There€are€at€least€two€landfill€gas-fired€boiler-to-steam€Ì€€turbine€facilities€currently€operating€in€the€United€States€(Docket€No.€A-88-09,€Ì€€Item€No.€II-B-24).Ì€€Ì€€€€€€2.€Analysis€of€Regulatory€AlternativesÌ€€Ì€€€€€€Introduction.€The€''Discussion€of€Control€Technologies''€section€indicates€that€Ì€€there€is€basically€one€approach€to€reducing€landfill€emissions-gas€collection€and€Ì€€control.€However,€EPA€recognizes€that€not€all€landfills€warrant€control,€especially€Ì€€given€the€variability€in€the€quantity€of€landfill€emissions€from€a€specific€Ì€€landfill€and€the€cost€of€reducing€these€emissions.€In€addition,€EPA€recognizes€that€Ì€€landfill€emissions€increase€in€quantity€as€more€MSW€is€added€to€the€landfill€and€Ð   	 @-(,   Ð€€that,€after€closure€of€the€landfill,€emissions€decrease€to€the€point€that€they€no€Ì€€longer€warrant€control.€Accordingly,€EPA€structured€its€regulatory€analysis€to€Ì€€decide€if€the€installation€of€controls€is€warranted€and€when€the€controls€are€no€Ì€€longer€warranted€on€a€national€basis€and€therefore€could€be€removed.€The€EPA€Ì€€considered€the€results€of€this€analysis€in€selecting€BDT€for€new€and€existing€Ì€€landfills.Ì€€Ì€€€€€€The€Database.€The€EPA€developed€a€database€from€which€the€impacts€of€applying€Ì€€the€control€technologies€discussed€above€to€new€and€existing€landfills.€In€1986,€Ì€€EPA€sent€municipal€landfill€survey€questionnaires€to€1,250€of€the€estimated€6,034€Ì€€active€MSW€landfills€in€the€United€States.€From€this€survey,€EPA€received€responses€Ì€€for€a€total€of€1,174€active€MSW€landfills€(Docket€No.€A-88-09,€Item€No.€II-A-25).€Ì€€Of€the€1,174€landfills€responding,€the€information€provided€on€location,€annual€Ì€€waste€acceptance€rate,€refuse€in€place,€age,€depth,€and€design€capacity€were€Ì€€complete€for€931€landfills.€However,€site-specific€emission€rates€were€not€known€Ì€€and,€therefore,€were€not€reported€to€EPA.€Because€EPA€needed€emission€rate€Ì€€information,€it€gathered€gas€generation€rate€and€NMOC€concentration€information€Ì€€from€literature,€State€and€local€air€pollution€control€agencies,€and€industry€test€Ì€€reports€obtained€through€the€authority€of€section€114€of€the€CAA.Ì€€Ì€€€€€€The€information€from€the€931€landfills€was€used€with€gas€generation€rate€Ì€€factors€and€NMOC€concentrations€to€create€two€subsets€of€landfills:€existing€and€Ì€€new€landfills.€The€existing€landfills€subset€comprised€all€those€landfills€not€Ì€€closing€prior€to€1997.€The€new€landfill€subset€was€created€by€assuming€existing€Ì€€landfills€that€will€close€between€1992€and€1997€are€replaced€by€new€landfills€with€Ì€€similar€characteristics.€Each€subset€of€landfills€was€evaluated€for€potential€Ì€€nationwide€emission€reduction€under€the€regulatory€alternatives€discussed€in€the€Ì€€next€section€of€this€preamble.€An€algorithm€was€developed€to€track€the€landfill€Ì€€characteristics€on€an€annual€basis;€determine€annual€emission€rates;€and€determine,€Ì€€based€on€specific€regulatory€alternatives,€if€controls€would€be€required€and€when€Ì€€they€could€be€removed.€The€algorithm€also€estimated€capital€expenditures€for€Ì€€initial€placement€of€controls€(i.e.,€flares)€and€routine€equipment€replacement,€as€Ì€€well€as€operating€and€maintenance€costs€every€year€controls€were€in€place.€This€Ì€€tool€allowed€the€development€of€regulatory€alternatives€and€an€estimation€of€the€Ì€€number€of€landfills€affected€by€various€regulatory€alternatives,€the€potential€Ì€€emission€reduction,€and€the€cost€of€controlling€the€affected€landfills.€The€impacts€Ì€€and€trends€presented€in€the€remainder€of€this€section€are€derived€from€this€Ì€€algorithm,€and€were€scaled€up€from€the€931€landfills€in€the€database€to€estimate€Ì€€the€number€of€landfills€nationwide.€Additional€discussion€of€this€algorithm€is€Ì€€provided€in€Chapter€3€of€the€BID.Ì€€Ì€€€€€€Regulatory€Alternatives.€Three€regulatory€alternatives€were€considered€in€Ì€€selecting€the€standards€for€new€landfills.€The€same€alternatives€were€also€Ì€€considered€in€selecting€the€emission€guidelines€for€existing€sources.€Each€Ì€€alternative€was€based€on€the€use€of€estimated€annual€NMOC€emission€rates€as€the€Ð   	 @-(,   Ð€€parameter€for€determining€whether€control€would€be€required.€Under€each€Ì€€alternative,€demonstrated€gas€collection€and€control€systems€would€apply€to€Ì€€landfills€with€annual€NMOC€emission€rates€higher€than€a€specified€level€for€that€Ì€€alternative.€Annual€emission€rates€were€chosen€as€the€cutoff€parameter€because,€in€Ì€€general,€it€is€the€most€practical€way€to€select€and€implement€the€appropriate€Ì€€application€of€gas€collection€and€control€systems€to€MSW€landfills.€(See€Subsection€Ì€€4€below,€''Selection€of€the€Format€of€the€Standards€and€Guidelines''€for€further€Ì€€discussion€on€this€topic.)Ì€€Ì€€€€€€Emission€rates€from€a€given€landfill€vary€over€time.€After€a€landfill€opens,€Ì€€emissions€gradually€increase€as€more€waste€is€added.€At€some€point€in€time,€Ì€€emissions€may€increase€enough€to€warrant€the€use€of€gas€collection€and€control€Ì€€devices.€Emissions€peak€at€or€shortly€after€closure€and€then€gradually€decrease€Ì€€over€time.€Eventually,€as€emissions€decline,€emission€reduction€benefits€of€control€Ì€€are€reduced€and€controls€are€no€longer€warranted.€Therefore,€under€the€regulatory€Ì€€alternatives,€EPA€would€not€only€be€determining€the€annual€emission€rate€used€to€Ì€€affect€MSW€landfills,€but€also€would€be€implicitly€determining€when€control€systems€Ì€€must€be€installed€and€when€they€may€be€removed.€This€is€also€discussed€in€Ì€€Subsection€4€below,€and€the€following€section€entitled,€''Selection€of€Requirements€Ì€€to€Implement€Best€Demonstrated€Technology.''Ì€€Ì€€€€€€The€emission€rate€cutoff€levels€specified€in€Regulatory€Alternatives€1,€2,€and€Ì€€3€are€25,€150,€and€250€Mg/yr€(28,€167,€and€278€tpy)€of€NMOC's,€respectively.€In€Ì€€selecting€regulatory€alternatives,€EPA€performed€a€preliminary€evaluation€of€many€Ì€€different€emission€rate€cutoffs,€ranging€from€25€to€500€Mg/yr€(28€to€555€tpy)€Ì€€(Docket€No.€A-88-09,€Item€No.€II-B-32).€As€the€cutoff€level€is€lowered,€the€Ì€€emission€reduction,€cost€impact,€and€number€of€landfills€at€which€controls€must€be€Ì€€installed€increase.€The€three€levels€selected€for€further€analysis€(25,€150,€and€Ì€€250€Mg/yr€28,€167,€and€278€tpy€)€represent€values€in€the€high,€middle,€and€low€end€Ì€€of€the€range€of€impacts.Ì€€Ì€€€€€€The€emission€and€cost€impacts€in€the€tables€are€expressed€in€terms€of€NPV.€Net€Ì€€present€value€is€the€value€at€one€point€in€time€of€a€flow€of€values€across€time.€Ì€€For€this€study,€EPA€used€1992€NPV's€to€allow€comparison€among€alternatives€with€Ì€€uneven€flows€of€values.€In€the€case€for€MSW€landfills,€both€control€costs€and€Ì€€emission€reductions€vary€year€by€year.€Therefore,€comparisons€of€alternative€Ì€€stringency€levels€include€comparisons€of€net€present€values€for€both€control€costs€Ì€€and€emission€reductions.Ì€€Ì€€€€€€For€each€regulatory€alternative,€the€number€of€landfills€controlled,€national€Ì€€emission€reduction,€costs,€and€cost€effectiveness€were€estimated.€The€costs€are€Ì€€based€on€application€of€active€gas€collection€systems€and€flares€to€those€landfills€Ì€€above€the€specified€emission€level€cutoffs.€As€described€under€''Control€Devices,''€Ì€€these€control€systems€are€demonstrated€and€would€reduce€emissions€by€98€percent€Ì€€when€applied€to€new€or€existing€landfills.Ð   	 @-(,   Ð€€Ì€€€€€€Table€2€presents€the€number€of€new€landfills€at€which€control€would€be€required€Ì€€and€the€emissions€reductions€EPA€has€predicted€would€result€if€the€standard€is€set€Ì€€at€25,€150€or€250€Mg/yr€(28,€167,€or€278€tpy)€for€new€landfills.€The€emission€Ì€€reductions€for€both€NMOC's€and€methane€are€presented.€Table€3€presents€the€national€Ì€€net€annualized€cost€and€cost€effectiveness€of€each€regulatory€alternative€for€new€Ì€€landfills,€in€terms€of€cost€per€Mg€(ton)€of€NMOC€emission€reduction.€The€Ì€€incremental€cost€effectiveness,€which€compares€each€alternative€to€the€next€less€Ì€€stringent€alternative,€is€also€presented.€Table€4€presents€the€number€and€Ì€€distribution€of€new€landfills,€by€capacity,€that€would€be€required€to€install€Ì€€controls€under€each€alternative.€Ì€€€Table€2.-Emission€Reduction€Achieved€at€New€MSW€Landfills€forÌ€€€Three€Regulatory€Alternatives€sup€aÌ€€€Ì€€€Regulatory€alternative€€€€€€€€€€€€€€€€€€€€€€€€€€€€1Ì€€€Emission€rate€cutoff€(Mg€NMOC/yr)€€€€€€€€€€€€€€€€€€25Ì€€€Number€of€landfills€affected€€€€€€€€€€€€€€€€€€€€€€€247Ì€€€NMOC€emission€reduction€sup€bÌ€€€€€Million€Mg€NMOC€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€0.99Ì€€€€€Percent€reduction€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€90Ì€€€CH€sub€4c€emission€reduction€sup€bÌ€€€€€Million€Mg€CH€sub€4€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€51Ì€€€€€Percent€reduction€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€82Ì€€€Ì€€€Regulatory€alternative€€€€€€€€€€€€€€€€€€€€€€€€€€€€2Ì€€€Emission€rate€cutoff€(Mg€NMOC/yr)€€€€€€€€€€€€€€€€€€150Ì€€€Number€of€landfills€affected€€€€€€€€€€€€€€€€€€€€€€€87Ì€€€NMOC€emission€reduction€sup€bÌ€€€€€Million€Mg€NMOC€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€0.76Ì€€€€€Percent€reduction€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€69Ì€€€CH€sub€4c€emission€reduction€sup€bÌ€€€€€Million€Mg€CH€sub€4€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€36Ì€€€€€Percent€reduction€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€57Ì€€€Ì€€€Regulatory€alternative€€€€€€€€€€€€€€€€€€€€€€€€€€€€3Ì€€€Emission€rate€cutoff€(Mg€NMOC/yr)€€€€€€€€€€€€€€€€€€250Ì€€€Number€of€landfills€affected€€€€€€€€€€€€€€€€€€€€€€€41Ì€€€NMOC€emission€reduction€sup€bÌ€€€€€Million€Mg€NMOC€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€0.63Ì€€€€€Percent€reduction€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€57Ì€€€CH€sub€4c€emission€reduction€sup€bÌ€€€€€Million€Mg€CH€sub€4€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€27Ì€€€€€Percent€reduction€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€43Ì€€€Ì€€€Ð   	 @-(,   Ð€€€sup€a€New€landfills€means€those€landfills€constructed€and€openedÌ€€€in€the€first€5€years€of€the€NSPS€€between€1992€and€1997€€toÌ€€€replace€those€existing€landfills€which€will€close€during€the€sameÌ€€€time€period.Ì€€€Ì€€€sup€b€All€emission€reductions€are€expressed€as€NPV€(1992).€TheÌ€€€numbers€presented€have€been€rounded€to€two€significant€figures.Ì€€€The€actual€reduction€potentials€are€given€in€the€text.€One€MgÌ€€€equals€1.11€tons.Ì€€€Ì€€€sup€c€Methane.Ì€€€Ì€€€Note:€Baseline€emissions€for€new€MSW€landfills€are€1.1€million€MgÌ€€€NMOC€and€63€million€Mg€methane.€(NPV€1992.)Ì€€€Ì€€€Ì€€€Ì€€€Table€3.-Average€and€Incremental€Cost€Effectiveness€at€New€MSWÌ€€€Landfills€for€Three€Regulatory€AlternativesÌ€€€Ì€€€Regulatory€alternative€€€€€€€€€€€€€€€€€€€€€€€€€€€€1Ì€€€Emission€rate€cutoff€(Mg€NMOC/yr)€€€€€€€€€€€€€€€€€€€25Ì€€€National€annualized€cost€of€control€(million/yr)€€€€45.2Ì€€€Average€cost€effectiveness€sup€a€($/Mg€NMOC)€€€€€€€€1,416Ì€€€Incremental€cost€effectiveness€sup€b€($/Mg€NMOC)€€€€€sup€c€2,731Ì€€€Ì€€€Regulatory€alternative€€€€€€€€€€€€€€€€€€€€€€€€€€€€2Ì€€€Emission€rate€cutoff€(Mg€NMOC/yr)€€€€€€€€€€€€€€€€€€€150Ì€€€National€annualized€cost€of€control€(million/yr)€€€€26Ì€€€Average€cost€effectiveness€sup€a€($/Mg€NMOC)€€€€€€€€1,020Ì€€€Incremental€cost€effectiveness€sup€b€($/Mg€NMOC)€€€€€sup€d€1,588Ì€€€Ì€€€Regulatory€alternative€€€€€€€€€€€€€€€€€€€€€€€€€€€€3Ì€€€Emission€rate€cutoff€(Mg€NMOC/yr)€€€€€€€€€€€€€€€€€€€250Ì€€€National€annualized€cost€of€control€(million/yr)€€€€19Ì€€€Average€cost€effectiveness€sup€a€($/Mg€NMOC)€€€€€€€€897Ì€€€Incremental€cost€effectiveness€sup€b€($/Mg€NMOC)€€€€€sup€e€897Ì€€€Ì€€€Ì€€€sup€a€The€average€cost€effectiveness€for€each€alternative€isÌ€€€calculated€using€the€following€formula:Ì€€€Ì€€€ACE€€€P€sub€C/P€sub€ERÌ€€€Ì€€€where:Ð   	 @-(,   Ð€€€Ì€€€ACE€€€average€cost€effectivenessÌ€€€Ì€€€P€sub€C€€€NPV€of€Operating€sup€6+€Capital€CostsÌ€€€Ì€€€P€sub€ER€€€NPV€of€NMOC€emission€reductionÌ€€€Ì€€€sup€b€The€incremental€cost€effectiveness€of€going€from€oneÌ€€€alternative€to€the€next€stringent€alternativeÌ€€€Ì€€€ICE€€€(P€sub€O€sup€6+P€sub€C)€sub€A€sup€6-(P€sub€O€sup€6+P€sub€C)Ì€€€sub€B/P€sub€ERA€sup€6-P€sub€ERBÌ€€€Ì€€€where:Ì€€€Ì€€€ICE€€€incremental€cost€effectivenessÌ€€€Ì€€€P€sub€O€€€NPV€of€operating€costsÌ€€€Ì€€€P€sub€C€€€NPV€of€capital€costsÌ€€€Ì€€€P€sub€E€R€€€NPV€of€NMOC€emission€reductionÌ€€€Ì€€€A€€€more€stringent€regulatory€alternativeÌ€€€Ì€€€B€€€less€stringent€regulatory€alternativeÌ€€€Ì€€€sup€c€Incremental€cost€effectiveness€between€Options€2€and€1.Ì€€€Ì€€€sup€d€Incremental€cost€effectiveness€between€Options€3€and€2.Ì€€€Ì€€€sup€e€Incremental€cost€effectiveness€between€Option€3€andÌ€€€baseline.Ì€€€Ì€€€NPV€€€net€present€value.Ì€€€Ì€€€Ì€€€Ì€€€Table€4.-Distribution€of€Controlled€New€Landfills€for€ThreeÌ€€€Regulatory€AlternativesÌ€€€Ì€€€€€Design€capacity€€€€€€€€€€Regulatory€alternativeÌ€€€of€affected€landfills€€€€€€€€1€€€€€€€€€2€€€€€€€3Ì€€€Ì€€€less€than€1€million€Mg€€€€€€€58€€€€€€€€0€€€€€€€0Ð   	 @-(,   Ð€€€1-5€million€Mg€€€€€€€€€€€€€€121€€€€€€€32€€€€€€€10Ì€€€5-10€million€Mg€€€€€€€€€€€€€€29€€€€€€€19€€€€€€€14Ì€€€greater€than€10Ì€€€€€million€Mg€€€€€€€€€€€€€€€€€39€€€€€€€36€€€€€€€17Ì€€€Total€number€ofÌ€€€€€affected€landfills€€€€€€€€247€€€€€€€87€€€€€€€41Ì€€€Ì€€€Note:€One€million€Mg€equals€1.11€million€tons.Ì€€€Ì€€€Ì€€Ì€€€€€€Tables€5,€6,€and€7€present€the€same€information€about€existing€landfills.€Ì€€€Table€5.-Emission€Reduction€Achieved€at€Existing€MSW€LandfillsÌ€€€for€Three€Regulatory€Alternatives€sup€aÌ€€€Ì€€€Regulatory€alternative€€€€€€€€€€€€€€€€€€€€€€€1Ì€€€Emission€rate€cutoff€(Mg€NMOC/yr)€€€€€€€€€€€€€€25Ì€€€Number€of€landfills€affected€€€€€€€€€€€€€€€€€€€1,884Ì€€€NMOC€Emission€reduction€sup€bÌ€€€€€Million€Mg€NMOC€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€13Ì€€€€€Percent€reduction€€€€€€€€€€€€€€€€€€€€€€€€€€€€92Ì€€€CH€sub€4€sup€c€Emission€Reduction€sup€bÌ€€€€€Million€Mg€CH€sub€4€€€€€€€€€€€€€€€€€€€€€€€€€€411Ì€€€€€Percent€reduction€€€€€€€€€€€€€€€€€€€€€€€€€€€€81Ì€€€Ì€€€Regulatory€alternative€€€€€€€€€€€€€€€€€€€€€€€2Ì€€€Emission€rate€cutoff€(Mg€NMOC/yr)€€€€€€€€€€€€€€150Ì€€€Number€of€landfills€affected€€€€€€€€€€€€€€€€€€€621Ì€€€NMOC€Emission€reduction€sup€bÌ€€€€€Million€Mg€NMOC€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€10.6Ì€€€€€Percent€reduction€€€€€€€€€€€€€€€€€€€€€€€€€€€€79Ì€€€CH€sub€4€sup€c€Emission€Reduction€sup€bÌ€€€€€Million€Mg€CH€sub€4€€€€€€€€€€€€€€€€€€€€€€€€€€266Ì€€€€€Percent€reduction€€€€€€€€€€€€€€€€€€€€€€€€€€€€52Ì€€€Ì€€€Regulatory€alternative€€€€€€€€€€€€€€€€€€€€€€€3Ì€€€Emission€rate€cutoff€(Mg€NMOC/yr)€€€€€€€€€€€€€€250Ì€€€Number€of€landfills€affected€€€€€€€€€€€€€€€€€€€386Ì€€€NMOC€Emission€reduction€sup€bÌ€€€€€Million€Mg€NMOC€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€9.6Ì€€€€€Percent€reduction€€€€€€€€€€€€€€€€€€€€€€€€€€€€71Ì€€€CH€sub€4€sup€c€Emission€Reduction€sup€bÌ€€€€€Million€Mg€CH€sub€4€€€€€€€€€€€€€€€€€€€€€€€€€€200Ì€€€€€Percent€reduction€€€€€€€€€€€€€€€€€€€€€€€€€€€€39Ì€€€Ð   	 @-(,   Ð€€€Ì€€€NOTE:€Baseline€emissions€for€existing€MSW€landfills€are€13.6Ì€€€million€Mg€NMOC€and€509.2€million€Mg€methane.€(NPV€1992.)Ì€€€Ì€€€sup€a€EPA€projects€that€some€1,100€of€the€6,000€existing€activeÌ€€€landfills,€all€of€which€were€receiving€wastes€in€1992,€will€closeÌ€€€prior€to€promulgation.Ì€€€Ì€€€sup€b€NPV.€The€numbers€presented€have€been€rounded€to€twoÌ€€€significant€figures.€See€the€test€for€the€actual€reductionsÌ€€€potential.€One€Mg€equals€1.11€tons.Ì€€€Ì€€€sup€c€Methane.Ì€€€Ì€€€Ì€€€Ì€€€Table€6.-Average€and€Incremental€Cost€Effectiveness€at€ExistingÌ€€€MSW€Landfills€for€Three€Regulatory€AlternativesÌ€€€Ì€€€Regulatory€alternative€€€€€€€€€€€€€€€€€€€€€€€€€€€€1Ì€€€Emission€rate€cutoff€(Mg€NMOC/yr)€€€€€€€€€€€€€€€€€€€25Ì€€€National€Annualized€cost€of€control€(million/yr)€€€€416Ì€€€Average€cost€Effectiveness€sub€a€($/Mg€NMOC)€€€€€€€€927Ì€€€Incremental€cost€effectiveness€sup€b€($/Mg€NMOC)€€€€2,894€sup€cÌ€€€Ì€€€Regulatory€alternative€€€€€€€€€€€€€€€€€€€€€€€€€€€€2Ì€€€Emission€rate€cutoff€(Mg€NMOC/yr)€€€€€€€€€€€€€€€€€€€150Ì€€€National€Annualized€cost€of€control€(million/yr)€€€€240Ì€€€Average€cost€Effectiveness€sub€a€($/Mg€NMOC)€€€€€€€€555Ì€€€Incremental€cost€effectiveness€sup€b€($/Mg€NMOC)€€€€2,075€sup€dÌ€€€Ì€€€Regulatory€alternative€€€€€€€€€€€€€€€€€€€€€€€€€€€€3Ì€€€Emission€rate€cutoff€(Mg€NMOC/yr)€€€€€€€€€€€€€€€€€€€250Ì€€€National€Annualized€cost€of€control€(million/yr)€€€€150Ì€€€Average€cost€Effectiveness€sub€a€($/Mg€NMOC)€€€€€€€€407Ì€€€Incremental€cost€effectiveness€sup€b€($/Mg€NMOC)€€€€407€sup€eÌ€€€Ì€€€Ì€€€fn€a€The€average€cost€effectiveness€for€each€alternative€isÌ€€€calculated€using€the€following€formula:Ì€€€Ì€€€ACE€P€sub€C/P€sub€ERÌ€€€Ì€€€where:Ì€€€Ð   	 @-(,   Ð€€€ACE€avrage€cost€effectivenessÌ€€€Ì€€€P€sub€C€NPV€of€Operating€+€Capital€CostsÌ€€€Ì€€€P€sub€ER€NPV€of€NMOC€emission€reductionÌ€€€Ì€€€sub€b€The€incremental€cost€effectiveness€of€going€from€oneÌ€€€alternative€to€the€next€stringent€alternativeÌ€€€Ì€€€ICE€(P€sub€O+P€sub€C)€sub€A-(P€sub€O+P€sub€C)€sub€B/€sup€PER€subÌ€€€A-sup€PER€sub€BÌ€€€Ì€€€where:Ì€€€Ì€€€ICE€incremental€cost€effectivenessÌ€€€Ì€€€P€sub€O€NPV€of€operating€costsÌ€€€Ì€€€P€sub€C€NPV€of€capital€costsÌ€€€Ì€€€P€sub€ER€NPV€of€NMOC€emission€reductionÌ€€€Ì€€€A€more€stringent€regulatory€alternativeÌ€€€Ì€€€B€less€stringent€regulatory€alternativeÌ€€€Ì€€€sup€c€Incremental€cost€effectiveness€between€Options€2€and€1.Ì€€€Ì€€€sup€d€Incremental€cost€effectiveness€between€Options€3€and€2.Ì€€€Ì€€€sup€e€Incremental€cost€effectiveness€between€Option€3€andÌ€€€baseline.Ì€€€Ì€€€NPV€net€present€value.Ì€€€Ì€€€Ì€€€Ì€€€Table€7.-Distribution€of€Controlled€Existing€Landfills€for€ThreeÌ€€€Regulatory€AlternativesÌ€€€Ì€€€€€Design€capacity€€€€€€€€€€€€Regulatory€alternativeÌ€€€of€affected€landfills€€€€€€€€1€€€€€€€€€€€€2€€€€€€€€€€€3Ì€€€Ì€€€less€than€1€million€Mg€€€€€€514€€€€€€€€€€€59€€€€€€€€€22Ì€€€1-5€million€Mg€€€€€€€€€€€€€€837€€€€€€€€€€266€€€€€€€€181Ð   	 @-(,   Ð€€€5-10€million€Mg€€€€€€€€€€€€€295€€€€€€€€€€111€€€€€€€€48Ì€€€greater€than€10€million€Mg€€238€€€€€€€€€€185€€€€€€€€135Ì€€€Ì€€€Total€number€ofÌ€€€€€€affected€landfills€€€€€1,884€€€€€€€€€€621€€€€€€€€386Ì€€€Ì€€€Note:€One€million€Mg€equals€1.11€million€tons.Ì€€€Ì€€€Ì€€Ì€€€€€€3.€Selection€of€Best€Demonstrated€TechnologyÌ€€Ì€€€€€€In€the€selection€of€BDT,€EPA€must€weigh€the€emission€reduction€associated€with€Ì€€application€of€a€control€system€along€with€the€costs,€nonair€quality€health€and€Ì€€environmental€impacts€and€energy€requirements€associated€with€these€systems.€The€Ì€€decision€is€made€separately€in€this€section€of€the€preamble€for€new€and€existing€Ì€€landfills,€considering€the€impacts€of€the€regulatory€alternatives€presented€in€the€Ì€€previous€section€and€other€relevant€factors.€The€decision€for€new€MSW€landfills€Ì€€concerns€defining€BDT€for€landfills€affected€by€section€111(b);€the€decision€for€Ì€€existing€MSW€landfills€concerns€defining€BDT€for€landfills€affected€by€section€Ì€€111(d).€These€are€separate€and€distinct€decisions.Ì€€Ì€€€€€€In€the€analysis€of€regulatory€alternatives€presented€below,€EPA€acknowledges€Ì€€that€the€discussion€is€atypical€in€that€there€is€only€one€control€technology€to€Ì€€consider,€i.e.,€the€installation€of€collection€systems€which€convey€the€collected€Ì€€gases€to€a€control€device.€The€discussion€revolves€around€the€question€of€when€it€Ì€€is€reasonable€to€require€collection€and€control€systems€at€a€given€landfill€and€Ì€€when€it€is€not.€However,€because€of€the€unique€emission€characteristics€of€Ì€€landfills€when€compared€to€more€traditional€emission€units,€regulatory€alternatives€Ì€€can€be€created€by€considering€alternative€emission€levels€at€which€to€require€the€Ì€€installation€of€BDT.€The€installation€of€BDT€at€varying€NMOC€emission€levels€Ì€€results€in€a€range€of€emission€reductions,€costs€and€cost-effectiveness€values€Ì€€which€may€be€compared€and€contrasted€much€as€is€done€in€the€selection€of€BDT€from€Ì€€among€different€control€technologies.Ì€€Ì€€€€€€In€considering€which€alternative€to€propose€as€BDT,€EPA€decided€to€consider€Ì€€both€NMOC's€and€methane€reductions.€However,€these€alternatives€presented€below€are€Ì€€being€evaluated€and€implemented€using€NMOC's€as€the€engineering€basis€for€the€Ì€€regulatory€cutoff.€This€means€that€the€cost-effectiveness€numbers€presented€do€not€Ì€€reflect€a€dollar€value€for€the€reduction€of€methane.€Rather,€EPA€qualitatively€Ì€€considered€the€anticipated€methane€reduction€when€selecting€the€regulatory€cutoff.Ì€€Ì€€€€€€However,€the€EPA's€Division€of€Global€Climate€is€studying€the€problem€of€Ì€€methane€emissions,€primarily€in€relation€to€the€phenomenon€of€global€climate€Ì€€change,€and€is€developing€strategies€for€reducing€these€emissions.€This€rulemaking€Ð   	 @-(,   Ð€€presents€considerable€potential€for€methane€reductions,€resulting€in€benefits€such€Ì€€as€the€abatement€of€global€warming,€reductions€in€odor€nuisance,€and€potential€Ì€€energy€savings€resulting€from€the€selection€of€energy€recovery€devices€to€meet€the€Ì€€control€requirements€of€the€standard€and€guidelines.€As€global€climate€change€Ì€€policy€develops,€these€benefits€could€lead€to€the€direct€consideration€of€methane€Ì€€reductions€along€with€NMOC€reductions€in€setting€these€standards€and€guidelines.€In€Ì€€that€case,€the€resultant€incremental€cost€effectiveness,€emission€reductions€and€Ì€€potential€energy€savings€might€indicate€that€a€more€stringent€threshold€emission€Ì€€level€(using€NMOC€concentration€as€the€engineering€basis)€is€warranted.€Such€Ì€€benefits€as€reduced€global€climate€change€and€energy€savings€are€not€considered€in€Ì€€the€following€discussion€of€the€regulatory€alternatives.€Although€EPA€has€decided€Ì€€to€consider€methane€reductions€only€as€an€ancillary€benefit€in€this€proposal,€EPA€Ì€€is€soliciting€comments€on€the€pros€and€cons€of€selecting€the€threshold€emission€Ì€€level€based€on€the€direct€consideration€of€both€NMOC€and€methane€reductions.Ì€€Ì€€€€€€New€Landfills.€As€shown€in€Table€2,€the€NMOC€emission€reduction€for€new€MSW€Ì€€landfills€under€Regulatory€Alternative€3,€the€least€stringent€alternative,€would€be€Ì€€0.63€million€Mg€(0.7€million€tons),€or€a€57-percent€reduction€relative€to€baseline€Ì€€emissions,€on€a€NPV€basis.€Regulatory€Alternative€2€would€result€in€an€additional€Ì€€reduction€of€0.13€million€Mg€(0.14€million€tons),€while€Regulatory€Alternative€1€Ì€€would€reduce€emissions€by€another€0.23€million€Mg€(0.25€million€tons)€compared€with€Ì€€Regulatory€Alternative€2.€These€emission€reduction€impacts€demonstrate€that€as€Ì€€expected,€as€the€stringency€increases€(i.e.,€as€the€cutoff€level€becomes€smaller)€Ì€€the€NMOC€emission€reductions€obtainable€increases.€Methane€emission€reductions€Ì€€shown€in€Table€2€follow€the€same€trend.€Under€Regulatory€Alternative€3,€a€methane€Ì€€reduction€of€27€million€Mg€(30€million€tons)€would€be€achieved,€with€additional€Ì€€reductions€of€9€and€15€million€Mg€(10€and€17€million€tons)€achieved€by€Regulatory€Ì€€Alternatives€2€and€1,€respectively.€With€this€in€mind,€EPA€considered€the€number€of€Ì€€landfills€and€cost€and€economic€impacts€of€achieving€these€emission€reductions€in€Ì€€selecting€among€the€regulatory€alternatives.Ì€€Ì€€€€€€The€EPA€first€compared€Regulatory€Alternatives€1€and€2.€The€EPA€found€a€large€Ì€€increase€in€the€number€of€affected€landfills€and€the€incremental€costs€for€Ì€€Regulatory€Alternative€1€when€going€from€Regulatory€Alternative€2€to€Regulatory€Ì€€Alternative€1.€Regulatory€Alternative€1€affects€nearly€three€times€as€many€Ì€€landfills€as€Regulatory€Alternative€2€while€obtaining€proportionately€smaller€NMOC€Ì€€and€methane€emission€reductions.€For€example,€the€average€emission€reduction€Ì€€achieved€per€landfill€(i.e.,€total€additional€emission€reduction/number€of€Ì€€additional€landfills€controlled)€under€Regulatory€Alternative€1€is€approximately€Ì€€one€half€that€achieved€on€average€by€the€landfills€controlled€under€Regulatory€Ì€€Alternative€2.€Furthermore,€the€majority€of€the€increase€in€costs€is€associated€Ì€€with€landfills€with€design€capacities€>5€million€Mg€(>5.6€million€tons),€25€percent€Ì€€of€which€have€design€capacities€>1€million€Mg€(>1.11€million€tons),€that€would€only€Ì€€be€affected€under€Regulatory€Alternative€1.€The€national€incremental€cost€Ì€€effectiveness€for€Regulatory€Alternative€1€would€be€about€$2,731/Mg€($2,452/ton).€Ð   	 @-(,   Ð€€However,€this€figure€does€not€include€the€ancillary€bvenefits€of€methane€control,€Ì€€such€as€the€abatement€of€global€climate€change,€odor€reductions,€or€energy€savings€Ì€€resulting€from€the€use€of€energy€recovering€control€devices,€which€could€be€Ì€€realized€under€Regulatory€Alternative€1.€Additionally,€more€than€30€percent€of€Ì€€households€served€by€new€MSW€landfills€installing€collection€and€control€systems€as€Ì€€a€result€of€Regulatory€Alternative€1€would€incur€annual€costs€in€excess€of€$10.€The€Ì€€EPA€believes€that€the€additional€cost€and€the€administrative€burden€of€controlling€Ì€€this€many€additional€landfills€(particularly,€many€smaller€landfills€having€design€Ì€€capacities€>1€million€Mg€>1.11€million€tons€)€may€be€unreasonable€based€on€the€Ì€€consideration€of€NMOC's€alone€given€the€relatively€small€incremental€emission€Ì€€reductions€achieved.€Although€EPA€has€selected€Regulatory€Alternative€2€for€Ì€€proposal,€EPA€solicits€comments€on€the€pros€and€cons€of€Regulatory€Alternative€1€in€Ì€€light€of€the€additional€environmental€benefits€that€can€be€achieved€by€reducing€Ì€€greenhouse€gases.€The€EPA€may€elect€to€promulgate€such€a€standard,€or€a€standard€Ì€€incorporating€an€intermediate€alternative,€should€evolving€global€climate€change€Ì€€policies€indicate€more€control€is€warranted.Ì€€Ì€€€€€€Next,€EPA€compared€Regulatory€Alternatives€2€and€3,€which€would€require€control€Ì€€at€87€and€41€new€landfills,€respectively.€Regulatory€Alternative€2€provides€a€Ì€€proportional€21€percent€increase€in€NMOC€emission€reduction€and€a€proportional€33€Ì€€percent€increase€in€methane€reduction€in€comparison€to€Regulatory€Alternative€3.€Ì€€These€reductions€are€achieved€at€costs€per€unit€of€NMOC€emission€reduction€Ì€€comparable€to€previous€decisions€of€VOC€control€under€Section€111€in€cases€where€Ì€€cocontrol€of€air€toxics€and€other€concerns€are€evident.€Additionally,€the€average€Ì€€and€incremental€cost€effectivenesses€for€NMOC's€emission€reduction€shown€in€Table€3€Ì€€do€not€consider€the€ancillary€benefits€of€methane€reduction,€such€as€global€warming€Ì€€abatement,€reduction€in€explosion€hazard,€and€reduction€in€odor€nuisance.€Nor€do€Ì€€they€include€any€consideration€of€the€potential€for€energy€savings,€which€would€Ì€€result€in€cost€savings.€Although€these€benefits€have€not€been€quantified,€they€Ì€€support€qualitatively€the€judgment€that€the€incremental€costs€of€Regulatory€Ì€€Alternative€2€are€reasonable.€As€shown€in€Table€4,€while€Regulatory€Alternative€2€Ì€€affects€about€46€more€landfills€than€Regulatory€Alternative€3,€many€of€those€Ì€€additional€landfills€have€design€capacities€of€1€million€Mg€(1.11€million€tons)€or€Ì€€more.€Regulatory€Alternative€3€would€control€about€40€landfills,€but€would€not€Ì€€require€control€of€several€very€large€landfills€which€emit€relatively€large€Ì€€quantities€of€NMOC's€(e.g.,€quantities€greater€than€150€Mg/yr€167€tpy€),€which€Ì€€could€pose€significant€health€and€welfare€risks.€Based€on€economic€impact€analysis,€Ì€€EPA€believes€that€neither€Regulatory€Alternative€2€nor€Regulatory€Alternative€3€Ì€€should€result€in€any€households€served€by€MSW€landfills€intalling€collection€and€Ì€€control€systems€incurring€annual€costs€greater€than€$10.€Based€on€this€analysis,€Ì€€and€considering€the€ancillary€benefits€of€the€significant€methane€reductions€Ì€€achieved,€EPA€concludes€that€Regulatory€Alternative€2,€and€NMOC€emission€rate€Ì€€cutoff€of€150€Mg/yr€(167€tpy),€results€in€reasonable€economic€impacts.€Based€on€Ì€€these€considerations,€EPA€proposes€an€NMOC€emission€rate€cutoff€of€150€Mg/yr€(167€Ì€€tpy)€as€BDT€(Regulatory€Alternative€2)€for€new€landfills.Ð   	 @-(,   Ð€€Ì€€€€€€In€selecting€Regulatory€Alternative€2,€EPA€judged€the€application€of€well-Ì€€designed€gas€collection€systems€and€98€percent€efficient€recovery/destruction€Ì€€control€systems€to€landfills€emitting€more€than€150€Mg/yr€(167€tpy)€of€NMOC's€to€Ì€€represent€BDT€for€new€landfills.€The€EPA€finds€that€this€is€the€best€demonstrated€Ì€€technological€system€of€continuous€emission€reduction€for€MSW€landfills,€taking€Ì€€into€consideration€costs€and€other€relevant€factors.€Collection€systems€and€control€Ì€€systems€with€98€percent€efficiency€are€demonstrated€at€about€25€landfills,€and€Ì€€their€application€to€those€new€landfills€emitting€150€Mg/yr€(167€tpy)€of€NMOC's€or€Ì€€more€will€significantly€reduce€emissions€without€causing€any€unreasonable€cost,€Ì€€environmental,€or€energy€impacts.Ì€€Ì€€€€€€The€EPA€believes€that€these€controls€are€technologically€feasible€for€landfills€Ì€€emitting€less€than€150€Mg/yr€(167€tpy)€of€NMOC's.€In€light€of€growing€concerns€Ì€€about€global€climate€change,€a€more€stringent€regulatory€option€may€well€be€Ì€€reasonable€in€the€future.€For€instance,€if€Regulatory€Alternative€2€were€set€at€100€Ì€€Mg/yr€(111€tpy),€an€additional€6€percent€reduction€in€NMOC's€emissions€could€be€Ì€€achieved€(methane€emissions€would€decrease€by€an€additional€9€percent).€Only€17€Ì€€additional€new€landfills,€or€a€total€of€104,€would€require€control.€The€incremental€Ì€€cost€effectiveness€would€increase€only€slightly€when€compared€to€150€Mg/yr,€from€Ì€€$1,588/Mg€to€$1,650/Mg.€The€EPA€is€still€considering€whether€or€not€the€additional€Ì€€benefits€obtained€under€a€stringency€level€of€100€Mg/yr€are€reasonable.€However,€Ì€€for€administrative€and€financial€reasons,€regulating€to€a€more€stringent€level,€Ì€€such€as€Regulatory€Alternative€1,€25€Mg/yr€(28€tpy),€may€or€may€not€be€worthwhile.€Ì€€The€EPA€seeks€comments€on€the€pros€and€cons€of€a€more€stringent€threshold€level.Ì€€Ì€€€€€€Existing€Landfills.€The€NMOC€emission€reduction€for€existing€landfills€under€Ì€€Regulatory€Alternative€3,€the€least€stringent€alternative,€would€be€9.6€million€Mg€Ì€€(10.7€million€tons),€or€a€71-percent€reduction€relative€to€baseline€emissions.€Ì€€Regulatory€Alternative€2€would€result€in€an€additional€reduction€of€1.0€million€Mg€Ì€€(1.1€million€tons),€while€Regulatory€Alternative€1€would€reduce€emissions€by€Ì€€another€2.4€million€Mg€(2.6€million€tons)€compared€with€Regulatory€Alternative€2.€Ì€€As€with€new€landfills,€EPA€found€that€these€emission€reduction€impacts€demonstrate€Ì€€that€as€the€stringency€increases€(i.e.,€as€the€cutoff€level€increase)€the€NMOC€Ì€€emission€reductions€obtainable€also€increase.€The€methan€reductions€follow€the€same€Ì€€trend€as€the€NMOC€reductions,€beginning€with€a€reduction€of€200€million€Mg€(222€Ì€€million€tons)€under€Regulatory€Alternative€3,€followed€by€cumulative€reductions€of€Ì€€266€million€Mg€(295€million€tons),€and€411€million€Mg€(456€million€tons)€under€Ì€€Regulatory€Alternative€2€and€under€Regulatory€Alternative€1,€respectively.Ì€€Ì€€€€€€The€number€of€landfills€at€which€controls€would€be€required,€cost,€and€economic€Ì€€impacts€of€achieving€these€emission€reductions€were€then€considered€in€selecting€Ì€€among€the€three€regulatory€alternatives.Ì€€Ì€€€€€€The€EPA€first€compared€Regulatory€Alternatives€1€and€2.€The€EPA€found€a€large€Ð   	 @-(,   Ð€€increase€in€the€number€of€affected€landfills€and€the€incremental€costs€for€Ì€€Regulatory€Alternative€1€when€going€from€Regulatory€Alternative€2€to€Regulatory€Ì€€Alternative€1.€As€was€the€case€for€new€landfills,€Regulatory€Alternative€1€affects€Ì€€more€than€three€times€as€many€landfills€as€Regulatory€Alternative€2€while€obtaining€Ì€€proportionately€smaller€NMOC€and€methane€emission€reductions.€Furthermore,€the€Ì€€majority€of€the€increase€in€cost€is€associated€with€landfills€with€design€Ì€€capacities€<5€million€Mg€(<5.6€million€tons)€that€would€only€be€affected€under€Ì€€Regulatory€Alternative€1.€Nearly€nine€times€as€many€landfills€with€design€Ì€€capacities€below€1€million€Mg€(1.11€million€tons)€would€be€required€to€install€Ì€€controls€under€Regulatory€Alternative€1€than€under€Regulatory€Alternative€2.€The€Ì€€national€incremental€cost€effectiveness€for€Regulatory€Alternative€1€would€be€about€Ì€€$2,890/Mg€NMOC's€($2,610/ton).€However,€this€figure€does€not€directly€consider€the€Ì€€ancillary€benefits€of€methane€control€realized€under€Regulatory€Alternative€1,€such€Ì€€as€global€warming€abatement,€the€reduction€of€odor€nuisance,€or€the€potential€for€Ì€€energy€savings€resulting€from€the€use€of€energy€recovery€control€devices.€Ì€€Additionally,€based€on€the€economic€impact€analysis€presented€in€BID€Chapter€8,€EPA€Ì€€believes€that€as€many€as€16€percent€of€the€households€served€by€MSW€landfills€Ì€€installing€collection€and€control€systems€in€compliance€with€emission€guidelines€Ì€€based€on€Regulatory€Alternative€1€would€incur€annual€costs€in€excess€of€$30.€The€Ì€€EPA€believes€that€the€additional€cost€and€the€administrative€burden€of€controlling€Ì€€this€many€additional€landfills€(particularly,€many€smaller€landfills,€having€design€Ì€€capacities€<1€million€Mg€€<1.11€million€tons€)€may€be€unreasonable€based€on€the€Ì€€consideration€of€methane€alone,€given€the€relatively€small€incremental€emission€Ì€€reductions€achieved.€Although€EPA€selected€Regulatory€Alternative€2€for€proposal,€Ì€€EPA€solicits€comment€on€the€pros€and€cons€of€this€alternative,€in€light€of€the€Ì€€additional€environmental€benefits€that€may€be€achieved€by€reducing€greenhouse€Ì€€gases.€The€EPA€may€elect€to€promulgate€such€guidelines,€or€an€intermediate€Ì€€alternative,€should€evolving€global€climate€change€policies€indicate€that€more€Ì€€control€is€warranted.Ì€€Ì€€€€€€Next,€EPA€compared€Regulatory€Alternatives€2€and€3.€Regulatory€Alternative€2€Ì€€provides€a€proportional€11€percent€increase€in€NMOC€emission€reduction€and€a€Ì€€proportional€33€percent€increase€in€methane€reduction€in€comparison€to€Regulatory€Ì€€Alternative€3.€These€reductions€are€achieved€at€a€per€unit€cost€of€emission€Ì€€reduction€comparable€to€previous€decisions€for€VOC€control€under€Section€111€where€Ì€€cocontrol€and€other€concerns€are€evident.€The€average€and€incremental€cost€Ì€€effectiveness€for€NMOC€emission€reduction€(shown€in€Table€6)€do€not€include€the€Ì€€ancillary€benefits€of€methane€reduction€such€as€global€warming€abatement,€and€Ì€€reductions€of€toxic€compounds,€explosion€hazard€and€odor€nuisance.€Nor€do€they€Ì€€include€any€consideration€of€the€potential€energy€savings€(leading€to€cost€savings)€Ì€€resulting€from€the€selection€of€energy€recovering€control€devices.€Although€these€Ì€€benefits€have€not€been€quantified,€they€support€qualitatively€the€judgment€that€the€Ì€€incremental€costs€of€Regulatory€Alternative€2€are€reasonable.€As€shown€in€Table€7,€Ì€€Regulatory€Alternative€2€affects€roughly€60€percent€more€landfills€than€Regulatory€Ì€€Alternative€3.€Of€these€additional€landfills,€nearly€85€percent€are€greater€than€1€Ð   	 @-(,   Ð€€million€Mg€(1.11€million€tons)€in€design€capacity,€and€113€of€them,€roughly€50€Ì€€percent,€have€design€capacities€in€excess€of€5€million€Mg€(5.6€million€tons).€Ì€€Regulatory€Alternative€3€would€not€require€control€at€these€larger€landfills€which€Ì€€emit€relatively€large€quantities€of€NMOC's€(between€150€and€250€Mg/yr€167€and€278€Ì€€tpy€),€which€could€pose€significant€health€and€welfare€risks.€Based€on€economic€Ì€€impact€analysis,€roughly€less€than€10€percent€of€the€households€served€by€existing€Ì€€MSW€landfills€installing€controls€in€compliance€with€Regulatory€Alternative€2€would€Ì€€incur€annual€costs€of€$30€or€more.€These€costs€are€based€on€the€use€of€flares€for€Ì€€control,€and€will€be€lessened€by€the€selection€of€energy€recovery€for€control.€Ì€€Based€on€this€analysis,€and€considering€the€ancillary€benefits€of€the€methane€Ì€€reductions,€EPA€concludes€that€Regulatory€Alternative€2€would€result€in€reasonable€Ì€€economic€impacts.€Based€on€these€considerations,€EPA€proposes€Regulatory€Ì€€Alternative€2€(an€emission€level€cutoff€of€150€Mg/yr€167€tpy€NMOC)€as€BDT€for€Ì€€existing€landfills.Ì€€Ì€€€€€€In€selecting€Regulatory€Alternative€2,€EPA€judged€the€application€of€well-Ì€€designed€gas€collection€systems€and€98€percent€efficient€recovery/destruction€Ì€€control€systems€to€landfills€emitting€more€than€150€Mg/yr€(167€tpy)€of€NMOC's€to€Ì€€represent€BDT€for€existing€landfills.€The€EPA€finds€that€this€is€the€best€Ì€€demonstrated€technological€system€of€continuous€emission€reduction€for€MSW€Ì€€landfills,€taking€into€consideration€costs€and€other€relevant€factors.€The€Ì€€application€of€collection€and€control€systems€to€those€existing€landfills€emitting€Ì€€150€Mg/yr€(167€tpy)€of€NMOC's€or€more€will€significantly€reduce€emissions€without€Ì€€causing€any€unreasonable€cost,€environmental,€or€energy€impacts.Ì€€Ì€€€€€€The€EPA€believes€that€these€controls€are€technologically€feasible€for€landfills€Ì€€emitting€less€than€150€Mg/yr€(167€tpy)€of€NMOC's.€However,€as€stated€above,€EPA€Ì€€qualitatively€considered€the€estimated€methane€reduction€when€selecting€the€Ì€€regulatory€cutoff.€The€EPA€solicits€comments€on€whether€and€how€to€consider€Ì€€reductions€of€methane€more€directly€in€the€regulatory€decision.€For€instance,€if€Ì€€Regulatory€Alternative€2€were€set€at€100€Mg/yr€(111€tpy),€an€additional€3€percent€Ì€€reduction€in€NMOC€emissions€could€be€achieved,€and€methane€emissions€could€be€Ì€€reduced€by€an€additional€8€percent.€An€additional€41€existing€landfills,€or€a€total€Ì€€of€307,€would€require€control.€The€EPA€is€still€considering€whether€the€additional€Ì€€benefits€obtained€under€a€stringency€level€of€100€Mg/yr€are€reasonable.€The€EPA€Ì€€seeks€comments€on€the€pros€and€cons€and€benefits€and€costs€of€regulating€to€a€more€Ì€€stringent€level,€such€as€Regulatory€Alternative€1,€25€Mg/yr€(28€tpy)€of€NMOC.Ì€€Ì€€€€€€4.€Selection€of€the€Format€of€the€Standards€and€GuidelinesÌ€€Ì€€€€€€In€developing€this€rulemaking,€the€format€for€the€standards€and€guidelines€was€Ì€€determined€prior€to€the€selection€of€BDT.€This€section€describes€in€greater€detail€Ì€€how€this€format€was€selected.€The€format€of€today's€proposed€standards€and€Ì€€guidelines€was€selected€considering€the€unique€nature€of€MSW€landfills€as€a€source€Ì€€category.€The€formats€for€the€proposed€standards€for€new€sources€and€the€proposed€Ð   	 @-(,   Ð€€guidelines€for€existing€sources€are€identical.€This€is€reasonable€because€BDT€is€Ì€€the€same€for€new€and€existing€landfills.€Also,€since€collection€and€control€systems€Ì€€would€always€be€installed€at€an€MSW€landfill€after€a€certain€amount€of€refuse€has€Ì€€been€landfilled€and€emissions€reach€a€certain€level,€there€would€be€little€Ì€€difference€in€the€feasibility€of€installation€of€controls€at€new€and€existing€Ì€€facilities.Ì€€Ì€€€€€€This€section€will€present€the€rationale€for€each€of€two€formats€for€the€Ì€€proposed€standards€and€guidelines,€one€for€determining€applicability,€and€one€for€Ì€€the€specific€requirements€of€the€standards.Ì€€Ì€€€€€€Format€for€Applicability.€The€EPA€determined€that€a€format€for€determining€Ì€€applicability€would€be€necessary€because€MSW€landfill€emissions€change€over€time€Ì€€due€to€the€volume€of€refuse€in€place,€the€age€of€refuse,€whether€or€not€the€Ì€€landfill€is€still€accepting€waste,€and€other€factors€discussed€elsewhere.€The€Ì€€format€for€the€applicability€of€the€standards€proposed€today€includes€both€the€Ì€€determination€of€when€controls€are€to€be€put€in€place,€and€the€determination€of€Ì€€when€controls€are€no€longer€required.€That€is,€it€is€reasonable€to€collect€and€Ì€€control€emissions€at€a€given€landfill€after€a€certain€emission€level€(or€some€other€Ì€€criteria€such€as€volume€of€waste€in€place)€is€reached;€but€it€is€not€reasonable€to€Ì€€continue€control€long€after€the€level€of€emissions€has€declined€significantly.€Ì€€Establishing€an€initial€applicability€criterion€focuses€control€efforts€on€those€Ì€€landfills€with€the€greatest€potential€emissions,€and€associated€health€and€welfare€Ì€€hazards.€It€avoids€large€expenditures€for€control€of€landfills€where€emissions€are€Ì€€very€low€and€where€costs€are€unreasonable€relative€to€the€potential€emission€Ì€€reduction€achievable.€Establishing€criteria€for€removal€of€controls€is€also€Ì€€reasonable€because,€as€previously€noted,€the€emission€rate€and€associated€health€Ì€€and€welfare€hazards€decline€over€time€after€a€landfill€is€closed.€At€some€point,€Ì€€emissions€are€so€low€that€they€pose€relatively€reduced€public€health€and€welfare€Ì€€impacts€and€the€cost€of€control€would€no€longer€be€warranted.Ì€€Ì€€€€€€The€EPA€evaluated€several€parameters€in€order€to€establish€an€appropriate€Ì€€criteria€upon€which€to€make€the€applicability€determination.€Four€options€were€Ì€€evaluated€in€order€to€determine€what€parameter€or€parameters€should€be€used€to€Ì€€identify€the€landfills€to€be€controlled,€when€controls€should€be€applied,€and€when€Ì€€they€are€no€longer€needed.€These€options€are:€(1)€Installations€based€on€the€amount€Ì€€of€refuse€in€place,€with€removal€based€on€number€of€years€since€closure;€(2)€both€Ì€€installation€and€removal€based€on€consideration€of€costs€and€emission€reductions;€Ì€€(3)€both€installation€and€removal€based€on€NMOC€emission€rate;€and€(4)€installation€Ì€€based€on€NMOC€emission€rate,€and€removal€based€on€consideration€of€costs€and€Ì€€emission€reductions.€The€advantages€and€disadvantages,€as€well€as€the€relative€Ì€€effectiveness€of€each€of€these€options,€are€discussed€below.Ì€€Ì€€€€€€The€amount€of€refuse€in€place€is€considered€to€be€the€easiest€of€the€four€Ì€€options€to€implement€in€the€proposed€standards€because€it€requires€a€minimum€of€Ð   	 @-(,   Ð€€calculations€and€requires€no€projections€of€future€levels€of€refuse€acceptance€or€Ì€€emissions.€When€to€remove€controls€is€less€straightforward.€For€this€analysis,€the€Ì€€number€of€years€after€closure€was€selected.Ì€€Ì€€€€€€The€refuse€in€place€option€costs€more€than€any€of€the€other€three€options€to€Ì€€achieve€the€same€emission€reduction.€This€option€also€required€controls€to€be€Ì€€installed€at€more€than€twice€as€many€landfills€as€any€other€option,€but€did€not€Ì€€produce€greater€emission€reduction€overall.€Thus,€EPA€discarded€this€option.Ì€€Ì€€€€€€The€second€option€is€consideration€of€cost€and€emission€reductions€on€a€site-by-Ì€€site€basis.€This€option€was€the€most€complex€and€burdensome€of€the€four,€and€Ì€€achieved€only€marginally€more€emissions€reductions€than€the€next€option,€which€is€Ì€€based€on€the€NMOC€emission€rate.€Although€this€option€has€the€advantage€of€being€Ì€€the€most€cost€effective,€this€option€is€very€difficult€to€implement.€The€Ì€€calculation€of€cost€per€unit€of€emission€reduction€involves€projections€of€both€Ì€€future€emission€levels€and€operating€costs.€The€capital€costs€of€the€system€are€Ì€€amortized€over€the€useful€life€of€the€system,€which€impacts€the€cost€per€unit€of€Ì€€emission€reduction.€Controls€are€installed€when€the€capital€and€operating€costs€per€Ì€€Mg€($/Mg€$/ton€)€NMOC€reduction€meet€a€certain€dollar€criterion.€The€system€is€Ì€€later€removed€when€the€cost€per€Mg€(ton)€falls€below€the€criterion€again.€The€Ì€€projections€and€calculations€needed€are€complex€and€uncertain,€and€may€involve€Ì€€iterations€of€this€calculation€to€arrive€at€a€mathematical€solution€to€define€the€Ì€€appropriate€dollar€criterion.€In€addition€to€the€burden€on€the€owner€or€operator€to€Ì€€make€the€projections€and€perform€the€''real€world''€calculations,€the€permit€Ì€€authority€would€be€obligated€to€judge€the€projections€as€well.€A€variation€from€the€Ì€€applicant's€assumptions€would€require€that€all€the€calculations€be€repeated,€and€a€Ì€€very€different€answer€could€result.€This€could€introduce€inequities€in€the€Ì€€application€of€the€standards.€Finally,€for€many€owners€and€operators€the€Ì€€sophistication€of€the€projections€and€calculations€may€necessitate€hiring€a€Ì€€contractor€to€prepare€the€annual€compliance€report,€thereby€increasing€the€cost.Ì€€Ì€€€€€€The€third€option€considered€in€selecting€the€format€for€the€standards€and€Ì€€guidelines€was€the€NMOC€emission€rate€which€was€previously€discussed.€The€major€Ì€€advantage€with€this€option€is€that€the€emission€rate€cutoff€above€which€controls€Ì€€are€required€can€be€selected€to€maximize€the€overall€emission€reduction€while€Ì€€avoiding€excessive€costs.€Another€advantage€to€using€this€option€is€its€close€Ì€€correlation€with€emission€reduction.€Although€this€option€is€slightly€more€costly€Ì€€than€the€cost-effectiveness€option€for€a€comparable€amount€of€emission€reduction,€Ì€€the€difference€is€not€significant.€In€addition,€controls€are€generally€required€at€Ì€€fewer€landfills€under€this€option,€compared€to€the€cost-effectiveness€option,€while€Ì€€emissions€reductions€are€similar.€A€final€advantage€of€this€option€is€the€relative€Ì€€ease€with€which€it€could€be€developed€and€implemented.€Calculation€of€emission€rate€Ì€€is€feasible€and€less€complex€and€burdensome€than€calculation€of€cost€per€unit€of€Ì€€emission€reduction.Ì€€Ð   	 @-(,   Ð€€€€€€The€final€option€in€this€comparison€was€a€combination€requiring€installation€of€Ì€€controls€at€a€given€emission€rate,€and€allowing€removal€based€on€consideration€of€Ì€€cost€and€emission€reduction.€Although€this€combination€in€theory€could€combine€the€Ì€€advantages€of€each€option,€in€this€evaluation€it€cost€more€than€the€second€option,€Ì€€and€obtained€less€emission€reduction€overall€than€the€third€(NMOC€emission€rate)€Ì€€option.€Even€though€consideration€of€cost€and€emission€reduction€is€only€used€to€Ì€€determine€when€to€remove€controls,€this€option€would€require€almost€immediate€Ì€€projections€and€calculations€in€order€to€determine€for€how€long€the€cost€per€unit€Ì€€of€emission€reduction€will€be€reasonable,€and€when€controls€can€be€removed.€The€Ì€€complexity€and€burden€this€introduces€parallels€that€of€the€second€option.Ì€€Ì€€€€€€The€Administrator€has€selected€the€NMOC€emission€rate€as€the€parameter€to€be€Ì€€used€to€determine€when€to€install€and€remove€controls€for€these€standards€and€Ì€€guidelines.€This€parameter€was€selected€based€on€its€clarity€and€ease€of€Ì€€implementation,€its€ability€to€maximize€emission€reduction,€its€cost,€and€the€Ì€€number€of€landfills€which€would€require€control€compared€to€the€emission€reduction€Ì€€achieved.Ì€€Ì€€€€€€Specific€Requirements.€The€format€of€the€standards€and€guidelines€proposed€Ì€€today€is€a€combination€of€a€design€and€operation€standard€for€the€gas€collection€Ì€€system,€and€a€percent€reduction€requirement€for€the€control€device.€Today's€Ì€€proposed€standards€require€properly€designed€and€operated€gas€collection€systems,€Ì€€and€include€specifications€that€are€used€to€evaluate€the€design€and€operation€of€Ì€€these€systems.€The€standards€proposed€for€the€control€device€require€the€use€of€an€Ì€€open€flare€in€compliance€with€40€CFR€60.18€or€a€reduction€of€the€NMOC's€by€98€Ì€€percent€by€weight.Ì€€Ì€€€€€€Section€111€of€the€CAA€requires€that€performance€standards,€or€emission€limits,€Ì€€be€prescribed€unless,€in€the€judgment€of€the€Administrator,€it€is€not€feasible€to€Ì€€prescribe€or€enforce€such€standards.€Specifically,€paragraph€111(h)(1)€states€thatÌ€€Ì€€€€€€''€if€in€the€judgment€of€the€Administrator,€it€is€not€feasible€to€prescribe€or€Ì€€enforce€a€standard€of€performance,€he€may€instead€promulgate€a€design,€equipment,€Ì€€work€practice,€or€operational€standard,€or€combination€thereof,€which€reflects€the€Ì€€best€technological€system€of€continuous€emission€reduction€''Ì€€Ì€€€€€€Paragraph€(2)€of€section€111(h)€defines€the€phrase€''not€feasible€to€prescribe€Ì€€or€enforce€a€standard€of€performance''€to€mean€any€situation€where€the€Ì€€Administrator€determines€thatÌ€€Ì€€€€€€''€(A)€a€pollutant€or€pollutants€cannot€be€emitted€through€a€conveyance€Ì€€designed€and€constructed€to€emit€or€capture€such€a€pollutant,€or€that€any€Ì€€requirement€for,€or€use€of,€such€a€conveyance€would€be€inconsistent€with€any€Ì€€Federal,€State€or€local€law,€or€(B)€the€application€of€measurement€technology€to€a€Ì€€particular€class€of€sources€is€not€practicable€due€to€technological€or€economic€Ð   	 @-(,   Ð€€limitations.''Ì€€Ì€€€€€€For€MSW€landfills,€BDT€consists€of€a€gas€collection€system€and€an€effective€Ì€€control€device,€achieving€98€percent€reduction€of€landfill€emissions€for€landfills€Ì€€with€an€NMOC€emission€potential€equal€to€or€greater€than€150€Mg/yr€(167€tpy).€In€Ì€€order€to€set€a€performance€standard€for€the€gas€collection€system€(e.g.,€collection€Ì€€efficiency),€it€would€be€necessary€to€quantify€the€landfill€gas€available€for€Ì€€collection€in€comparison€to€the€amount€collected.€It€is€not€technically€feasible€to€Ì€€measure€the€amount€of€gas€available€for€collection,€only€to€estimate€how€much€is€Ì€€produced,€so€a€collection€efficiency€cannot€be€measured.€Emission€limits€are€not€Ì€€applicable€to€gas€collection€systems.€For€this€reason€the€Administrator€has€Ì€€proposed€design,€operational,€and€work€practice€standards€for€collection€systems.€Ì€€Design€features€are€required€that€would€ensure€effective€collection€of€MSW€landfill€Ì€€emissions.€The€standards€and€guidelines€specify€that€collection€systems€must€be€Ì€€designed€and€operated€to€handle€that€maximum€gas€generation€rate€and€to€collect€gas€Ì€€effectively€from€all€areas€of€the€landfill€warranting€control€and€require€Ì€€monitoring€and€appropriate€operation€of€the€collection€system.€Control€is€warranted€Ì€€within€2€years€of€initial€waste€placement€for€each€area€or€cell€in€which€refuse€has€Ì€€been€placed.Ì€€Ì€€€€€€In€the€case€of€the€control€device,€however,€percent€reduction€is€directly€Ì€€measurable€for€most€control€devices€applicable€to€air€emissions€of€MSW€landfills,€Ì€€and€the€control€efficiencies€are€well-documented€(Chapter€4€of€the€BID,€Docket€No.€Ì€€A-88-09,€Item€No.€III-B-1).€Although€flare€outlet€concentration€is€infeasible€to€Ì€€measure,€EPA€acknowledges€that€reduction€beyond€98€percent€is€not€only€achievable,€Ì€€but€common,€and€has€used€open€(i.e.,€elevated)€flares€in€the€selection€of€BDT.€For€Ì€€this€reason,€the€Administrator€has€prescribed€that€control€devices€must€achieve€98€Ì€€percent€reduction€efficiency.€If€flares€are€used€to€meet€the€