PFAS Listing – Implications for the Power Industry

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By Angela Kim, Environmental Associate

Three PFAS-related rulemakings undertaken by the US Environmental Protection Agency (“EPA”) have the potential to affect the Power Industry. This article explores one final rule, issued under the Comprehensive Environmental Response, Compensation, and Liability Act (“CERCLA”) and two proposed rules under the Resource Conservation and Recovery Act (“RCRA”).  

PFOA/PFOS Listing as a CERCLA “Hazardous Substance” 

Effective July 8, 2024, EPA designated perfluorooctane sulfonate (“PFOS”) and perfluourooctanoic acid (“PFOA”) and its salts and isomers as hazardous substances under CERCLA (“Hazardous Substance Rule”).  

This rulemaking allows EPA to be proactive in cleaning up PFAS contamination and in holding the responsible party (“RP”) accountable. The broader implication for the power industry is that EPA intends to pursue those entities they deem to have played a significant role in spreading PFAS into the environment including manufacturers, users in the manufacturing process, federal facilities, and other industrial facilities (presumably including power plants).   

The Hazardous Substance Rule sets the reportable quantity (“RQ”) for PFOA/PFOS at 1 pound (“lb”), triggering the following reporting requirements under CERCLA 103 and EPCRA 304: 

  • Immediate Notification: Any facility that releases 1 lb. or more of PFOA/PFOS within a 24-hour period must notify the NRC. 
  • Continuous Release Reporting: Reduced reporting options may be considered for releases defined as “stable in quantity and rate”.  
  • Newspaper Notice: Owners/operators of vessels or facilities where there was a reportable release of a hazardous substance must provide notice to affected parties in the affected area.  
  • Follow Up Written Report: Within 30 days of a reportable release, facilities must submit a follow-up written report to the State Emergency Response Commission (“SERC”) or Tribal Emergency Response Commission (“TERC”) and the Local Emergency Planning Committee (“LEPC”) or Tribal Emergency Planning Committee (“TEPC”).  

Facilities are NOT required to report past releases of PFOA or PFOS if the release is not continuous as of July 8, 2024, the effective date of the rule.  

Section 306b of CERCLA requires CERCLA hazardous substances to be listed as hazardous materials under the Department of Transportation’s (DOT’s) Hazardous Materials Transportation Act (“HMTA”). HMTA requires hazardous materials shipped in quantities greater than its RQ, are present in a single package, and above certain concentration thresholds, to be identified as such on shipping papers and by package markings. As a result, any shipments containing 1 lb or more of PFOA/PFAS must be handled accordingly. 

The EPA has delayed the timeline for potentially designating additional PFAS as hazardous substances; however, with the successful potential listing of nine PFAS compounds under RCRA (further discussed below), those nine compounds would automatically be regulated under CERCLA.  

On February 8, 2024, EPA proposed two rulemakings under RCRA. One is the listing of nine PFAS compounds as hazardous constituents and the other includes amending the definition of hazardous waste as applicable to corrective action at hazardous waste facilities.  

Nine PFAS Compounds Proposed to be Listed as RCRA “Hazardous Constituents” 

The nine proposed PFAS to be listed include: PFOA, PFOS, perfluorobutanesulfonic acid (“PFBS”), hexafluoropropylene oxide-dimer acid (“HFPO-DA” or “GenX”), perfluorononanoic acid (“PFNA”), perfluorohexanesulfonic acid (“PFHxS”), perfluorodecanoic acid (“PFDA”), perfluorohexanoic acid (“PFHxA”), and perfluorobutanoic acid (“PFBA”). 

Hazardous constituents listed under Appendix VIII in 40 CFR Part 261 are chemicals deemed toxic, carcinogenic, mutagenic, or teratogenic to humans or other life forms. Listing as a RCRA hazardous constituent does not on its own make the compounds RCRA hazardous waste. EPA uses the Appendix VIII list to determine if a waste contains hazardous constituents and should be considered for listing as a hazardous waste, which would trigger cradle to grave requirements directly affecting the generator – the first link in the hazardous waste management system.  

Proposed Amended Definition of “Hazardous Waste” and Corrective Action  

The second proposed rule includes amending the definition of hazardous waste in 40 CFR 260.10 to apply the RCRA Section 1004(5) statutory definition, which identifies hazardous waste as follows: 

“a solid waste, which because of its quantity, concentration, or physical, chemical, or infectious characteristics may: 

  • Cause, or significantly contribute to an increase in mortality or an increase in serious irreversible or incapacitating reversible illness; or 
  • Pose a substantial present or potential hazard to human health or the environment when improperly treated, stored, transported, disposed of, or otherwise managed.”

    The amended definition would allow EPA to address emerging contaminants that meet the broader definition of hazardous waste at RCRA-permitted treatment storage and disposal facilities (“TSDF”). The RCRA Corrective Action process involves investigation and clean up of hazardous releases into the environment at RCRA-permitted TSDF.  

    While this rule appears to directly affect only TSDF; there may exist broader implications including potential liability for power plants as a first link in the cradle to grave hazardous waste management cycle.