ILLINOIS POLLUTION CONTROL BOARD
June
17,
1q93
IN THE MATTER OF:
)
ANENDMENTS TO LANDFILL
)
R92-19
REGULATIONS: DELETION OF
)
(Rulemaking)
35 ILL. ADM. CODE 811.310(d) (1) (F)
)
AND
813.106(b) PURSUANT TO
WASTE MANAGEMENT of ILL.
v.
IPCB
)
(1st Dist.
1992)
.
)
Adopted Rule.
Final Order.
OPINION AND ORDER OF THE BOARD
(by J. Anderson):
On June
11,
1992,
the appellate court affirmed in part and
reversed in part portions of the Board’s landfill regulations
(R88—7)
appealed by Waste Management of Illinois,
Inc.
(Waste
Management). Waste Management of Illinois,
Inc.
v.
IPCB (1st
Dist.
1992),
231 Ill.App.3d 278,
595 N.E.2d 1171.
The appellate
court’s mandate was issued on August
13,
1992.
In all respects but two,
the appellate court rejected the
challenges to the Board’s landfill regulations.
(See Ex.
1.)
The two provisions that the appellate court found invalid and
which the Board proposes to
delete are as follows:
35
111.
Adm.
Code 811.310(d) (1) (F)
d)
Parameters to be monitored
(1)
All below ground monitoring devices shall be monitored
for the following parameters at each sampling interval:
delete
the following
(F)
Any
compound
on
the
list
of
air
toxics,
adopted
by the Board pursuant to Section 9.5
of the Act, which
is expected to be produced
in the landfill unit.
35 Ill.
Adrn.
Code 8l3.106(bj
delete
the following
(b)
Any Agency action to
deny a permit
or to grant a
permit with conditions will not be deemed final for
the
purposes
of
appeal
if
the
applicant
has
requested
Agency
reconsideration
of
that
action
prior to the filing of a petition pursuant to this
Section.
0114.3-0363
2
Regarding 35 Ill.
Adm. Code 811.310(d) (1) (F), the appellate
court first noted that Section 9.5(c)
of the Environmental
Protection Act (Act),
415 ILCS 5/9.5(c)
(1992),
specifically
provides that the public hearing and comment provisions of
Section 27(b)
of the Act, the Economic Impact Study
(ECIS)
requirements,
shall not apply to the air toxics contaminants list
rulemaking.
The court concluded that the Board,
by incorporating
in its landfill regulations the not yet promulgated air toxics
list,
failed to meet the procedural requirements of Section 27(b)
of the Act.
Waste Management,
595 N.E.2d at 1177—1178.
We note
that this holding will have little,
if any, precedential effect,
in that P.A.
87-860,
signed by the Governor on July
1,
1992,
deletes the Section 27(b)
EcIS requirements from the Act.
Regarding 35
Ill.
Adm. Code 813.106(b),
the appellate court,
citing prior case law, stated that the Agency has no authority
under the Act to reconsider
its decisions,
and thus the Board did
not have statutory authority to purport to delay the finality of
an Agency decision by rule.
Section 40 of the Act gives an
applicant for a permit
35 days to appeal an Agency decision.
Waste Management,
595 N.E.2d at 1183-515.
We
are particularly
concerned that an applicant would delay an appeal beyond the 35
days in false reliance on an invalid Board rule.
PROCEDURAL HISTORY
On October
1,
1992,
the Board
issued a First Notice opinion
and order for the purpose of deleting the two provisions that the
court found invalid and for accepting comment as to whether a
third provision,
35 Ill. Adm. Code 811.310(c) (5)
should also be
deleted because it references 35
Ill.
Adm. Code 811.310(d) (1) (F).
First
Notice
was
published in the Illinois Register on
November 6,
1992.
16 Ill.
Reg.
16920 and 16962.
Subsequent to
the, publication of first notice, the Board received five
comments.
Hearings were held in this matter on February 26,
1993,
and on March
16,
1993,
in Chicago and Springfield,
Illinois, respectively.
At the first hearing,
Ms. Jennifer Muss,
Assistant Corporation Counsel
for the City of Chicago,
and Ms.
Ann Straw of Waste Management of Illinois,
Inc. were present.
Mr. Mark Gurnik of the Illinois Environmental Protection Agency
(Agency) appeared at the second hearing.
There were no members
of the public present at either hearing.
No testimony or
exhibits were presented at either hearing.
No comments were
filed with the Board during the 14-day comment period following
the March
16,
1993 hearing.
On April
22,
1993,
the Board issued a Second Notice opinion
and order.
The Joint Committee on Administrative Rules
considered and issued a certificate of no objection to the
proposed rulemaking at its May 11,
1993 meeting.
01
t4.3-O36t~
3
DISCUSSION
As previously stated, the Board received several comments in
response to First Notice publication.
On November
12,
1992,
the
Illinois Department of Commerce and Community Affairs commented
that it had determined that the proposed amendments would not
significantly impact small businesses.
(P.C.
#1.)
On November 16,
1992,
Browning—Ferris Industries
(BFI)
filed
comments urging the Board to take the opportunity presented in
the rulemaking to ensure that the solid waste landfill
regulations pertaining to gas monitoring are consistent with any
New Source Performance Standard
(NSPS) that may be issued by the
United States Environmental Protection Agency
(USEPA).
(P.C.
#2.)
Accordingly,
BFI proposed language,
to be placed in a new
subsection
(e)
of
35 Ill. Adm. Code 811.310, that would ensure
that facilities subject to the NSPS would comply with the
applicable Clean Air Act requirements in case of inconsistency
with the solid waste landfill regulations.
On November 20,
1992,
the Agency filed comments stating that
it does not object to the deletion 35
Ill. Adm. Code
811.310(d) (1) (F) and 813.106(b)
because the court found the
subsections to be invalid.
(P.C.
#3.)
With regard to 35 Iii.
Adm. code 811.310(d) (1) (F), the Agency noted that the court
opinion seems to suggest that once the Board has properly adopted
the list of air toxic contaminants pursuant to Section 27 of the
Act,
35 Ill. Adm.
Code 811.310(d) (1)
could be amended to
reference the list once again.
Accordingly, the Agency suggested
that the Board readopt the provision if and when it adopts the
list of air toxic contaminants.
The Agency also noted that 35 Ill. Adm. Code 811.310(c) (5)
should be deleted because it
is so closely tied to subsection
(d) (1) (F).
The Agency also noted that if a list of air toxic
contaminants is promulgated in the future,
subsection(c) (5)
should be readopted simultaneously with the readoption of
subsection
(d) (1) (F).
Finally,
on December 23,
1992, Waste Management
of Illinois
filed comments supporting the deletion of 35 Ill. Adm. Code
811.310(d) (1) (F)
and 813.106(b).
(P.C.
#5.)
Based on the appellate court opinion, and after considering
the comments filed with the Board,
the Board,
in its Second
Notice opinion and order, proposed to delete 35 Iii.
Adm. Code
811.310(c) (5)
and (d)(1)(F),
and 35 Ill. Adm. Code 813.106(b).
The Board also has made several nonsubstantive changes in
response to comments from the Administrative Code Unit of the
Secretary of State’s Office.
(P.C.
#4.)
These changes were
reflected in Board’s second notice order.
We declined, however,
to accept BFI’s proposal to add
a new subsection
(e)
to 35 Ill.
0
L~3~O365
4
Athn.
Code 811.310.
The Board initiated this rulemaking solely
for the purpose of deleting 35
Ill.
Adm. Code 811.310(d) (1) (F)
and 813.106(b)
and for accepting comment regarding the deletion
of
35
Ill.
Adm.
Code 811.310(c) (5).
The Board, however,
informed
BFI that it is free to initiate a separate proposal if it wishes
to pursue its concerns.
ORDER
The Board hereby adopts for final Notice the following
amendments to 35
Ill. Adm.
Code 811 and 813.
The Board hereby
directs the Clerk of the Board to cause the publication of these
amendments
in the Illinois Register and to cause the filing of
the following amendments with the Administrative Code Unit of the
Secretary of State’s Office:
TITLE 35:
ENVIRONMENTAL PROTECTION
SUBTITLE G:
WASTE DISPOSAL
CHAPTER
I:
POLLUTION CONTROL BOARD
SUBCHAPTER
i:
SOLID WASTE AND SPECIAL WASTE HAULING
PART 811
STANDARDS FOR NEW SOLID WASTE LANDFILLS
SUBPART A:
GENERAL STANDARDS FOR ALL LANDFILLS
Section
811.101
811. 102
811.103
811.104
811.105
811.106
811.107
811.108
811. 109
811.110
811.111
Section
811.201
811.202
811.203
811.204
811.205
811.206
811.207
Scope and Applicability
Location Standards
Surface Water Drainage
Survey Controls
Compaction
Daily Cover
Operating Standards
Salvaging
Boundary Control
Closure and Written Closure Plan
Postclosure Maintenance
SUBPART
B:
INERT WASTE LANDFILLS
Scope and Applicability
Determination of Contaminated Leachate
Design Period
Final Cover
Final Slope and Stabilization
Leachate Sampling
Load Checking
SUBPART C:
PUTRESCIBLE AND CHEMICAL WASTE LANDFILLS
I
4
~i
—
Scope and Applicability
Facility Location
Design Period
Foundation and Mass Stability Analysis
Foundation Construction
Liner Systems
Leachate Drainage System
Leachate Collection System
Leachate Treatment and Disposal Systems
Landfill Gas Monitoring
Landfill Gas Management Systems
Landfill Gas Processing and Disposal Systems
Intermediate Cover
Final Cover System
Hydrogeological Site Investigations
Plugging and Sealing of Drill Holes
Groundwater Impact Assessment
Design,
Construction, and Operation of Groundwater
Monitoring Systems
Groundwater Monitoring Programs
Groundwater Quality Standards
Waste Placement
Final Slope and Stabilization
Load Checking Program
SUBPART
D:
MANAGEMENT OF SPECIAL WASTES AT LANDFILLS
Section
811.401
811.402
811.403
811.404
811.405
811.406
Scope and Applicability
Notice to Generators and Transporters
Special Waste Manifests
Identification Record
Recordkeeping Requirements
Procedures for Excluding Regulated Hazardous Wastes
SUBPART E:
CONSTRUCTION QUALITY ASSURANCE PROGRAMS
Section
811.501
811.502
811.503
811.504
811.505
811.506
811.507
811.508
811.509
Section
Scope and Applicability
Duties and Qualifications of Key Personnel
Inspection Activities
Sampling Requirements
Documentation
Foundations and Subbases
Compacted Earth Liners
Geomembranes
Leachate Collection Systems
SUBPART
G:
FINANCIAL
ASSURANCE
5
Section
811.301
811.302
811.303
811.304
811.305
811.306
811.307
811.308
811.309
811.310
811.311
811. 312
811.313
811. 314
811.315
811.316
811.317
811.318
811.319
811.320
811.321
811.322
811.323
0
~3-B367
6
Scope, Applicability and Definitions
Upgrading Financial Assurance
Release of Financial Institution
Application of Proceeds and Appeals
Closure and Postclosure Care Cost Estimates
Revision of Cost Estimate
Mechanisms
for Financial Assurance
Use of Multiple Financial Mechanisms
Use of a Financial Mechanism for Multiple Sites
Trust
Fund for Unrelated Sites
Trust
Fund
Surety Bond Guaranteeing
Payment
Surety Bond Guaranteeing Performance
Letter of Credit
Closure Insurance
Self—Insurance for Non—commercial Sites
Financial Assurance Forms
Trust Agreement
Certificate of Acknowledgment
Forfeiture Bond
Performance Bond
Irrevocable Standby Letter of Credit
Certificate of Insurance for Closure and/or
Postclosure Care
Operator’s
Bdnd Without Surety
Operator’s Bond With Parent Surety
Letter from Chief Financial Officer
AUTHORITY:
Implementing Sections
5,
21,
21.1,
22, 22.17 and 28.1
and authorized by Section 27 of the Environmental Protection Act
(Ill.
Rev.
Stat.
1989 1991,
ch. 111 1/2,
pars.
1005,
1021,
1021.1,
1022,
1022.17,
1028.1 and 1027)
415
ILCS 5/5,
21,
21.1,
22,
22.17,
28.17 and 27).
SOURCE:
Adopted
in R88-7 at
14
Ill.
Reg.
15861, effective
September 18,
1990;
amended in R92—19 at
17
Ill.
Reg.
effective
___________________
NOTE:
Capitalization indicates statutory language.
Section
811.310
Landfill
Gas
Monitoring
a)
This Section applies to all units that dispose
putrescible wastes.
b)
Location and Design of Monitoring Wells
1)
Gas
monitoring
devices
shall
be
placed
at
intervals and elevations within the waste to
provide a representative sampling of the
01 L~3-O368
811.700
811.701
811.702
8 11. 703
811.704
811.705
811.706
811.707
811. 708
811.709
811.710
811.711
811.712
811.713
811.714
811.715
811.Appendix A
Illustration A
Illustration
B
Illustration
C
Illustration
D
Illustration
E
Illustration
F
Illustration G
Illustration H
Illustration
I
7
composition and buildup of gases within the unit.
2)
Gas monitoring devices shall be placed around the
unit at locations and elevations capable of
detecting migrating gas from the ground surface to
the lowest elevation of the liner system or the
top elevation of the groundwater, whichever is
higher.
3)
A predictive gas flow model may be utilized to
determine the optimum placement of monitoring
points required for making observations and
tracing the movement of gas.
4)
Gas monitoring devices shall be constructed from
materials that will not react with or be corroded
by the landfill gas.
5)
Gas monitoring devices shall be designed and
constructed to measure pressure and allow
collection of a representative sample of gas.
6)
Gas monitoring devices shall be constructed and
maintained to minimize gas leakage.
7)
The gas monitoring system shall not interfere with
the operation of the liner,
leachate collection
system or delay the construction of the final
cover system.
8)
At least three ambient air monitoring locations
shall be chosen and samples shall be taken no
higher than 0.025 meter
(1
inch)
above the ground
and 30.49m
(100 feet)
downwind from the edge of
the unit or at the property boundary, whichever is
closer to the unit.
C)
Monitoring Frequency
1)
All gas monitoring devices,
including the ambient
air monitors shall be operated to obtain samples
on a monthly basis for the entire operating period
and for a minimum of five years after closure.
2)
After a minimum of five years after closure,
monitoring frequency may be reduced to quarterly
sampling intervals.
3)
The sampling frequency may be reduced to yearly
sampling intervals upon •the installation and
operation of a gas collection system equipped with
a mechanical device such as a compressor to
0
L~.3-O369
8
withdraw gas.
4)
After a minimum of five years or,
in the case of
landfills,
other than those used exclusively for
disposing of wastes generated at the site, a
minimum of fifteen years after closure, monitoring
shall be discontinued if the following conditions
have been met for at least one year:
A)
The concentration of methane is less than
five percent of the lower explosive limit
in
air for four consecutive quarters at all
monitoring points outside the unit; and
B)
Monitoring points within the unit indicate
that methane
is no longer being produced in
quantities that would result in migration
from the unit and exceed the standards of
subsection
(a) (1).
.1
I
1
1
IX
~
(()
U)fT~
fflC) I
I
1f1 r~ci
I fl
rl TU~J
ri~i
1(11fT
1.!.!
I
L11
~u~eecion
(d).
The Agcncy ohall dctcrminc thc
monitoring frcqucncy of thc liotcd compounds based
upon their cmi3sion rates and ambicnt levels in
;1r1u1r~Tr’r1
UVJ
rnr~
t-~i~flrd
~U~LUUflL
LU
~‘~ULiOfl
9.5
-
expcctcd to be
prr~r1rir!r~r1
2)
Ambient air monitors shall be sampled for methane
namely when the average wind velocity is less than
8 kilometers
(five miles) per hour at a minimum of
three downwind locations 30.49 meters
(100 feet)
0
L~.3-O37O
5)
Thc opcrator shall include
in the permit,
a
li-st
e-f
1
s..
—
-
I
A...
—
.!
s.
ri
I
—
.a
—
—
.1
S.t.
d)
Parameters to be Monitored
1)
All below ground monitoring devices shall be
monitored for the following parameters at each
sampling interval:
A)
Methane;
B)
Pressure;
C)
Nitrogen;
D)
Oxygen;
B)
Carbon dioxide; and
F)
Any compound on the hot of air taxies,
~1
~‘
4- 1.
4-
w~4
~‘
4?
in the landfill unit.
9
from the edge of the unit or the property
boundary, whichever
is closer to the unit.
3)
All buildings within a facility shall be monitored
for methane by utilizing continuous detection
devices located at points where methane might
enter the building.
(Source:
Amended at 17
Ill.
Reg.
________,
effective
TITLE 35:
ENVIRONMENTAL PROTECTION
SUBTITLE G:
WASTE DISPOSAL
CHAPTER
I:
POLLUTION CONTROL BOARD
SUBCHAPTER
i:
SOLID WASTE AND SPECIAL WASTE HAULING
PART 813
PROCEDURAL REQUIREMENTS FOR PERMITTED LANDFILLS
SUBPART A:
GENERAL PROCEDURES
Scope and Applicability
Delivery of Permit Application
Agency Decision Deadlines
Standards for Issuance of a Permit
Standards for Denial of a Permit
Permit Appeals
Permit No Defense
Term of Permit
Transfer of Permits
Adjusted Standards to Engage
in Experimental Practices
Agency Review of Contaminant Transport Models
SUBPART B: ADDITIONAL PROCEDURES FOR MODIFICATION AND
SIGNIFICANT MODIFICATION OF PERMITS
Initiation of a Modification or Significant
Modification
Information Required For a Significant Modification of
an Approved Permit
813.203
Specific Information Required For a Signifleant
Modification To Obtain Operating Authorization
813.204
Procedures For A Significant Modification of an
Approved Permit
SUBPART
C:
ADDITIONAL PROCEDURES FOR THE RENEWAL OF PERMITS
Section
0
~3-D37
I
Section
813.101
813.102
813.103
813.104
813.105
813.106
813.107
813.108
813.109
813.110
813.111
Section
813.201
813.202
10
813.301
813.302
813.303
813.304
813.305
SUBPART
Section
813.401
813.402
813.403
Section
813.501
813.502
813.503
Time of Filing
Effect of Timely Filing
Information Required For a Permit Renewal
Updated Groundwater Impact Assessment
Procedures for Permit Renewal
D: ADDITIONAL PROCEDURES FOR INITIATION AND TERMINATION
OF TEMPORARY AND PERMANENT CLOSURE AND POSTCLOSURE
CARE
Agency Notification Requirements
Certification of Closure
Termination of the Permit
SUBPART E:
REPORTS TO BE FILED WITH THE AGENCY
Annual Reports
Quarterly Groundwater Reports
Information to be Retained at or near the Waste
Disposal Facility
AUTHORITY:
Implementing Sections
5,
21,
21.1,
22, 22.17 and
28.1,
and
authorized by Section
27 of the Environmental
Protection Act 1027 and 1028.1
(Ill.
Rev.
Stat.
1989 1991,
ch.
111
1/2,
pars.
1005,
1021,
1021.1,
1022,
1022.17,
1028.1 and
1027)
415
ILCS
5/5,
21,
21.1,
22,
22.17,
28.17 and 27.
SOURCE:
Adopted
in R88-7 at
14
Ill.
Reg.
15814, effective
September
18,
1990; amended in R92-l9 at 17 Ill.
Reg.
_______________
effective
_______________
NOTE:
Capitalization indicates statutory language.
Section 813.106
Permit Appeals
a-)-
If THE AGENCY REFUSES TO GRANT OR GRANTS WITH
CONDITIONS A PERMIT THE APPLICANT MAY,
WITHIN 35 DAYS,
PETITION FOR A HEARING BEFORE THE BOARD TO CONTEST THE
DECISION OF THE AGENCY.
(Section 40(a)(1) of the Act)
The petition shall be filed, and the proceeding
conducted,
pursuant to the procedures of Section 40 of
the Act and 35
Ill. Adm. Code
105.
b)
Any Agency action to deny
a permit or to grant a permit
with conditions will not be deemed final for the
purposes of
appeal
if the
Agency reconsideration of
applicant has requested
that action prior to the
filing of a petition pursuant to this Section.
0114.3-0372
11
(Source:
Amended at 17
Ill.
Reg.
_________,
effective
IT IS SO ORDERED.
I,
Dorothy
M. Gunn,
Clerk of the Illinois Pollution Control
Board, hereby certif__that the abov
pinion and order was
adopted on the
/
day of
________________,
1993 by a
vote of
7—c
.
/~/~7~
Dorothy M. Gu~(n, Clerk’S
Illinois PoU<ion Control Board
flH
O_~’~