OSM CCB Placement in Coal Mines - Proposed Rulemaking
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OSM CCB Placement in Coal Mines - Proposed Rulemaking
John R. Craynon, P.E.Chief, Division of Regulatory SupportOffice of Surface Mining Reclamation and EnforcementWashington, DC
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What are CCBs?
• Boiler slag• Bottom ash• Fluidized bed combustion materials• Flue gas desulfurization materials• Fly ash
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Mine Placement Economic Realities
Limited to:• Low transportation cost situations
– Mine mouth power plants
• Small power plants without RCRA disposal facilities
• Beneficial applications
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Volumes of CCBs placed at mines
• Around 1.4% of all generated CCBs placed in mines
• CCBs placed equal to 0.15% of coal mined• Beneficial use cases: 5% of coal volume
replacement• Mine mouth power plants: maximum 25% of
coal volume
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History• OSM has been working on CCB mine
placement issues for a number of years– 1994 Interagency Cooperation – 1996 Policy Statement
• Mine placement is an acceptable practice under SMCRA
– IMCC, OSM, EPA have been meeting regularly since 1999 to formulate regulatory approaches
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OSM CCB Activities
• Hosted six interactive forums on CCBs
• Publication of Forum Proceedings
• Provided assistance to ASTM
• Developed CCB Website
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Regulatory History
• 1988 EPA Report to Congress– No Subtitle C regulations needed
• 2000 EPA Regulatory Determination– No Subtitle C regulations needed– RCRA, SMCRA or a combination
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EPA Information Gathering
• Risk assessment of groundwater data• CCB damage case information
– No SMCRA mine site damage cases
• Field investigations• Comparison of RCRA and SMCRA
requirements• 2002 public listening sessions hosted by EPA,
OSM and IMCC
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NAS Study
• Directed by Congress
• Focused on coal mine placement
• Focused on identifying risks
• Released in March 2006
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SMCRA Regulatory Background
• No explicit regulatory provisions related to CCBs in SMCRA
• CCB placement subject to all permitting and performance requirements
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OSM Rulemaking Process
• Advanced Notice of Proposed Rulemaking (March 2007)
• Proposed Rulemaking (2008?)– Currently at OMB for approval
• Final Rulemaking (2009?)
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ANPR
• Sought comments on intention to propose rule– Looked for input on what rule should
address
• Over 1,700 comments received, about 40 of which were substantial
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Comments received on ANPR
• Coal industry/Electrical utilities– OSM/SMCRA States should regulate– Incorporate into existing regulatory
structure– Allow for flexibility
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Comments received on ANPR
• States– States have experience– Rules should be flexible and build on
existing program– Look at characterization of material and
site– Reflect beneficial use of CCBs
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Comments received on ANPR
• Individuals/environmental organizations– SMCRA not intended to regulate waste
disposal– Rules must also follow RCRA– OSM should prepare an EIS– Follow NRC recommendations
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Proposed Rulemaking
• Proposed rules based solely on existing SMCRA authorities
• Proposed rules draw from existing regulations
• Proposed rules collect CCB placement requirements into a few sections, make implicit requirements explicit, and add new requirements as necessary
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Rulemaking Content
• Title V– Permitting– Bonding– Monitoring– Performance Standards
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Rules (cont.)
• Title IV (AML)– Limited to sites using AML Fund
monies– Information requirements– Analysis/Design requirements
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OSM Rulemaking Approach
• OSM worked with EPA and states to develop proposal
• OSM considered ANPR comments and technical input
• Proposal allows what works to continue and adds only what is needed
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OSM Goals in rulemaking
• Balance need for coal and opportunity to enhance mining and reclamation with CCB placement
• Ensure protection of the public and environment
• Enhance reclamation of mined lands
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NOTE
• Proposed rule has not been cleared by OMB and is subject to change
• OSM has no control over or idea when the proposed rule will be published
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Potential Areas to be Addressed
Types of placement to be covered
• Placement in mined-out area• Use in construction or reclamation of
waste disposal facility• Return of CCBs to coal refuse
reprocessing facility
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Potential Areas to be Addressed
Exceptions• Use of CCBs as soil amendments• Use of CCBs for road building• Placement of CCBs in underground mine voids• Placement of CCBs under a RCRA permit• Placement before issuance of final rules
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Potential Areas to be Addressed
Regulatory Review of Permits– Regular review of permits with CCBs
after placement begins• Ensure compliance with the plan and
regulatory requirements
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Potential Areas to be Addressed
Permit application requirements– Spell out specific information needed
when CCBs are to be placed
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Potential Areas to be Addressed
• Potential permit application requirements– Maps– Right to place CCBs– Descriptions and cross-sections of
placement
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Potential Areas to be Addressed
• Permit application requirements (cont.)– Volumes of CCBs to be placed– Info on the source of CCBs– Type of CCBs to be placed– Tests and analyses required
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Potential Areas to be Addressed
• Permit application requirements (cont.)– Parameters to be tested for– Baseline hydrologic information– Geologic descriptions of placement
areas
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Potential Areas to be Addressed
• Permit application requirements (cont.)– Surface and groundwater flow info– Hydrological modeling info– Anticipated effects of CCBs on water
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Potential Areas to be Addressed
• Determinations and findings– Set out RA responsibilities in
permitting– Requirement for written finding on
suitability of CCB placement
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Potential Areas to be Addressed
• Permit revisions– Permit revisions that include
placement of CCBs are significant and require public involvement
• Addresses concern in NRC report
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Potential Areas to be Addressed
• Bonding– Add new requirement for amount
and duration of groundwater monitoring data showing no adverse trends prior to bond release
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Potential Areas to be Addressed
• Performance Standards – Adds several specific requirements– Address concerns from NRC report,
comments received on ANPR, and other input
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Potential Areas to be Addressed
• Performance standards– Regular testing– Testing when source or character of
CCBs changes– Groundwater monitoring
requirements
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Potential Areas to be Addressed
• Performance standards (cont.)– Remedial action requirements– RA review of monitoring– Contemporaneous reclamation
requirements
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Potential Areas to be Addressed
• Performance standards (cont.)– Prohibitions on creation of excess spoil as
a result of CCB placement– Requirement for minimum cover– Requirement for prevention of air and
water pollution resulting from placement
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Potential Areas to be Addressed
• Abandoned Mine Lands– Add new requirements for projects funded
under Title IV which contemplate CCB placement
– Requirements generally adopt same approach for AML projects as for Title V
– Proposal must recognize unique nature of AML
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Comment period
• OSM will likely be proposing a 60-day comment period– We expect requests for extension
• OMB review may result in expanded or contracted comment period
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EPA Rulemaking
• EPA will address the few coal sites outside of SMCRA jurisdiction– Operations not classified as “coal mines”– AML sites with no SMCRA involvement
• OSM has worked closely with EPA• Minefilling rules under SMCRA and
EPA rules will complement each other