Document 0gM1dokK40D5NNxJnyGVdJB2M

,*0168 PROPOSED RULES ENVIRONMENTAL PROTECTION ufacturers of PCBs and manufacturers the Inherent limitations of point source AGENCY . [40 CFR Part 129] ef transformers and capacitors who use discharge control, towards the degree of PCBs and who discharge directly Into protection for aquatic and other orgntho navigable waters. Standards are es nbtms and human health envisioned |PftL NM| tablished for both existing and new under the Act, and aro technologically WATER PROGRAM sources. Owners and operators of facil achievable by Industry. The Agency will ities which discharge Into publicly owned continue to review the standards estab Proposed Toile Pollutant Effluent treatment works, as defined Jn section lished m this rulemaking as additional Standards for Polychlorinated Biphenyls 313 of the Act (sometimes referred to ps data become available to determine Notice Is hereby given that the En vironmental Protection Agency, pursuant to the eutttorlly contained In section |97<a) of the Federal Water Pollution Control Aet (the Act) as amended by the Federal Water Pollution Control Act ''indirect dischargers"), arc not covered by the stsndards herein proposed. How ever. the Agency will propose pretreatmen t standards in due course for such in direct discharges pursuant to the au thority contained In section 307(b) ol the whether further protection, including more stringent standards, is necessary and feasible. 2. Bacxaaotms A. res# IN INK SMVtROHMSNT ' ' Amendment# of 1073 iPub. L. 02-500. 86 Act following proposal of these stand ffllal 816. 13 U&C. 1251 et teq.>. pro poses additional sections to Part 129, set- ards. The term polychlorinated biphenyls re tins forth proposed cRIucnt standards for fers to a family of organic chemicals polychlorinated biphenyls (PCBs). On which have been produced and marketed June 10,1978. the Agency proposed a new In this country for approximately 45 Part 130, setting forth proposed effluent .years. These organic chemicals are syn PCBs are a class of organic compounds manufactured by the chlorination of biphenyl with anhydrous chlorine using iron filings or ferric chloride as a cata lyst. The biphenyl molecule has a total ,, of ten carbon-hydrogen bonds at which chlorine substitution can be accommo standards Tor the following toxic pollutauta: aldrln/dleldrln, DDT (DDD. DDE), thetically made and consist of a number of chlorinated biphenyl Isomers. They are dated. In the manufactui e of PCBs, any where from one to ten chlorine atoms ndrln and toxaphene. 41 FA. 23576 ct highly stable compounds and are used may be located on the biphenyl moteeule. teq. On June 30. 1076, the Agency pro primarily as dielectric and heat transfer Depending upon the location of these posed effluent standards for beniidine, 41 fluids, though they have other uses as substitutions, theoretically as many as FA, 97019 et seq. Those five Pollutants, well. PCBs have been conclusively de 209 separate compounds, or isomers, of as well as polychlorinated biphenyls monstrated to produce lethal and suble- the chlorinated btpheuyl family can bo ffPCBsl, were Included on * list of toxle iiia) toxic effects at low dose levels upon manufactured. pollutant* previously published by the a wide range of fish.mammals, and outer The PCBs manufactured by Monsanto Agency pursuant to section 301(a) <i>, wildlife, and have also demonstrated ad are marketed under the trod* name 88 FA, 24943 et eeq. (September 7.1073). verse health effects to humans. Moreover, Aroclor, followed by a four digit num Section 807(a) (3) of the Aet provides aa follows: Within ooe hundred sod eighty days after the dele ef pubtleatlon of any list, or revision thereof, containing toxle pollutant* or eomWoollen Of potlutanta under paragraph (!) Of this subsection, the Administrator, In aeeotdsnoi with aeetlon 653 of Title a of the they are highly mobile and persistent in the environment, and bioaccumulate greatly in tissue. The sole manufacturer In the United States. Monsanto Industrial Chemicals Company, currently produces approxi mately 40 million pounds of PCBs per year, imports of PCBs currently amount ber. with "biphenyl" represented by the first two digits "13", and the approxi mate chlorine percentage represented by the second two. Thus. Aroclor 1243 is a. mixture containing approximately 43 percent chlorine. The principal Arodore which have been marketed over the past decade by Monsanto are 1321, 1333. 1343, Palled Wales Code, shall publish a proposed to about 0.4 million pounds per year. 1248. 1254 and 1260, although at this Burnt standard (or prohibition) for sueb 6inee 1870 Monsanto has voluntarily time there Is no active marketing of 1233. pollutant or eomblostjon of pollutants which hall take Into account the toxicity of the pollutant, It# persistence, degradabutty, the tMttsl or potential presence of the aiiscted organisms lo any waters, the Importance of tho affeeted organisms and the nature and extent ef the effect of the toxle pollutant on tueh orfsnlams, and he shall publish a no restricted its domestic talcs of PCBs to use in transformers and capacitors (dosed systems). Consequently Monsan to and the manufacturers of transform ers and liquid-filled capacitors are sig nificant sources of further coDtomination or potential contamination resulting 1248 or 1280. In addition. Aroclor 1019 (an exception to the previously identified nomenclature system) is being marketed, and bears approximately 41.3 percent chlorine. For an extensive discussion of the chemJcnJ and physical properties of PCBs, see O. Hutzlnger, 8. Safe, and V. tice far a public heating on such proposed from the discharge of domestically man Zltko. "The Chemistry of PCBs." CRC itaodard to be held within thirty days. As amt as possible after such bearing, but not later than .six months sfter publication of the proposed rflurnt standard for prohibi tion), unless the Administrator finds, on tho Iteerd. that a modification of ouch proposed Standard (or prohibition) is justified baaed ufactured PCBs into tiie aquatic envi ronment. > ' The proposed standards Include a pro hibition on discharge ol PCBs by any PCB manufacturer. With respect to any manufacturer of transformers or capac Press. 1974. The unique physical and chemical properties of PCBs include Jow vapor pressure at ambient temperatures, re sistance to combustion, remarkable chemical stability, high dielectric con Upon a preponderance of evidence adduced itors, a prohibition of any PCBs In any stant and high specific electrical resistiv at such hearings, sueb standard (or prohibi effluent discharge of process wastes is ity ond low water solubility. At tiie same tion) shall be promulgated. . proposed, with limited exceptions, and an time, PCBs are lipid soluble end hence The regulations proposed at this time establish effluent standards for manufac turers of PCBs and manufacturers of tmniformcrs nd enpaellora which con tain PCBs. Standards are. proposed lor both existing and new sources. Hit following, together with the ma terials and Information hereinafter re ferred (o and Jncoriwatcd by reference, acta forth the basis and purpose of the average daily concentration limit per month of 1 *g/) Is proitosed for any other discharge. For new sources, a prohibition on discharge of PCBs in process wastes In conjunction with an average dally concentration limit per month of 0.1 pg/1 for other discharges Is proposed. Regulation of discharges under the Act cannot, by Itself, guarantee an ample margin of safety for all organisms and human health even if all point source tiie potential for absorption into fatty tlssuo and Into the Uvcr Is high. Thus once ingested PCBs are retained by most organisms raliter tluut excreted. The qualities of persistence which make PCBs useful (or many industrial pur poses greatly aggravate their potential for harm in the ecosystem. Although the principal uses of PCBs, today are in "closed" electrical systema (transformers and capacitors), l'CBs affluent standards proposed ot tills Urne. discharges were prohibited. In light of have been used over tlw years for a . Bommasy or PamcirAL Pcatukcs and Dcxcmi or ru* Pnorosca JIccuiatjons the serious environmental problem which already exists. Data available to the Agency indicate that the standards pro variety of more "open" uses resulting in greater direct contamination of the en-. tirorunent. These other uses include an Tho regulations here proposed would posed at this tuna will however result additlvo in Investment easting waxes, establish effluent standards for all man In maximum feasible progress, within lubricant additives, hydraulic and com- ftOttAl lEOtim, VOl. 41, NO. 143--FIIOAY, JULY 33, IW4 MOMS 056546 PROPOSED RULES 3M69 ;r. pressor fluid. carbonless copy paper. cological data concerning PCBs, 41 Ffl at the conclusion of the hearings that plasticisers, paints, heat exchange fluldn, 8409. FDA has also banned PCBs for use tho record did not eontaln sufficient evi n certain types of paper and sealant*. Most In food and feed processing. dence on which to promulgate responsible i if these uses have been substantially The American Notional Standards In and defensible standards. Accordingly, /... curtailed, but the PCBs which have stitute has Issued guidelines for lndustnr tho Agency decided to gather additional * entered the environment m a result of on tho use, disposal and labelling of data and repropose Its standards, sup *. these uses, and which continue to be PCBs, and Is currently considering more ported by an expanded data base. Tbe ? placed In the environment, will bq there cxtenslvo guidelines for the handling, standards proposed at this time thus su * for many years. Some of these uses are servicing and disposing of existing equip persede Uie PCBs portion of the proposal : resultlni In effluent discharges which are ment containing PCBs. of December 27. 1973. ji. , r not subject to the standards proposed at this Ume owing to Insufficient data. As The General Services Administration The Agency's decision to gather addi (GSA) has banned PCBs in carbonless tional data and to repropose standards ;. : : * r r .. - :i euch data become available, however, the Agcney expects to take appropriate mesturts to control such discharges pur- toon! to the Act or other applicable statutory authority. St Is estimated that over the past 45 yean approximately 1.4 bUiion pounds of PCBs have been produced In the United Mates, of which 1.85 billion have been Used In this country and the balance ex- copy paper purchased by Uie Federal government and the Department of the Interior <DOI>* has prohibited the use of PCBs in offshore oil operations. The Environmental Protection Agency (EPA) has proposed regulations pursuant to section 311 of the Federal Water Pollu tion Control Act to control spills of num erous Identified hasardous substances, including PCBs. These regulations are was discussed at considerable length In the Preamble to the Notice of Proposed Toxic Pollutant Effluent Standards for Aldrin/DIcldrin, DDT. Endrin end Toxa phenc, published In the Federal Recister on June 10, 1976, 41 FR 23576, to which the render is referred and whleh is here by incorporated into this PCB statement of basis and purpose by reference. ported. Of this 1.25 billion pounds, *p- intended to establish reporting require H Tuc Proposed Stamoards ' Moxlmately 060 million pounds have ments, to establish harmful quantities, * been used In electrical equipment. In td- and to fix civil penalties for spills. The OENERAL P00VW0R8 dltlon, It Is estimated that only approxi- Agency further anticipates use of its au" The notice ef proposed rulemaking : i nately M million pounds have degraded. thorlty under section 311 to require published on June 10, 1976, proposed that 150 million pounds are presently In industry to prepare splH prevention con provisions of general applicability to all . amice, and that 450 million pounds are trol plans. standards issued under secUon 307(a), 'jn .'** Jn landfills (ostensibly as a result of dls- The Agency, In October, 1875, issued These were set forth as If 129.1 through r * 'iNWIt nod In air, writer. soU and *edl- in draft form a act of water -quality cri 223.C. Those ^celtanb Jtue promulgated - ` . menu. ' teria pursuant to section 304(a) of the will be applicable to standards estab ; : .` * lit oonlrast. It Is estimated that dlseharges to the aquatic environment each year from the approximately 57 msnu* Act recommending maximum permissi ble concentrations In the ambient water for numerous pollutants, including PCBs. lished hereunder- for polychlorinated blphcnyls/Owners and operators of facil ities which are or may be subject to the * i : .. . .. . ' lecturers of capacitors and transformers. plus Monsanto, probably do not exceed 10,000 pounds, with direct discharges from these sources accounting for less The concentration level proposed at that standards proposed herein are expressly time was 0.001 #g/1 for rCBs. That docu referied to that noUee of proposed rule ment Is currently being reviewed prior making for provisions relating to scope lo final publication. and purpose, definitions, abbreviations, . ' than one-third mte-nunount. Although On April 1, 1975, the Agency issued compliance procedures (including noli- ; , . * efforts to reduee substantially and even- recommended procedures for disposal of totally eliminate this source of environ-' PCBs by industrial users, pursuant to fleation to the Regional Administrator or State Director of an approved NPDt'S - , mental contamination wilt have a rcla- lection 204(b) of the Bolld Waste Dis permit program, as appropriate), of any 'r .. Uvely minor effect on the overall PCB posal Act, 41 FR 14134. . discharge subject to these standards, re - x problem oa It eurnnUy exists, such On July 6,1973, the Agency published quirements and procedures for estab efforts are-likely to have a more signif in the Federal Recister a proposed list lishment of a more stringent effluent icant Impact In reducing future envtran- of nine toxic pollutants pursuant to sec- limitation than that established in these mental contamination and4* alleviating Uqx\ 307(a) (1) of the Act. 38 FR 18044. proceedings, compliance date. . the specific environmental problems In The nine substances were: aldrln/dlffl the Immediate receiving waters. Conse- drin, benzidine, cadmium, eynanide. DDT . fluently the Agency believes that the (DDD, DDE), endrin, mercury, polychlo The Blutdarbs for Polychlorinated ' - BfrUENTLS .* standards proposed at this Ume will cott- rinated biphenyls and toxaphene. Follow In thenotlee of proposed Toxic Pollut _ gtttuU an Important element In the over- ing receipt of public comment, the list ant BBtaent Standards published June aQ effort to reduce and uiumnteiy eiimi- was promulgated on September 7, 1973, 10. J9T* standards were proposed for nais any further addition of PCBs to the together with a discussion of the Agency's aldrin/dkidrin, DDT (DDD. DDE), cu- * environment. selection criteria and a response to com drln aad lascaphene in Sections -139.100 r :r . a. rttot acotasToav action and relates . orroxTs to reduce cnvironmental kx- ments received on the proposed Jls(> 38 FR 34342 et seq. The promulgated list oonsisted of the same nine substances through 229.103 respectively. In sddiUon, Uie Agency has proposed to add a new I129.MI sontalning effluent standards previously proposed. for bcmkflnc, 41 FR 27012 (June 90. Because ef the demonstrated toxielty On December 27, 1973, the Agency pro 1070). . 1 ef PCBs and the human health threat posed toxic pollutant effluent standards The standards proposed herein would posed by InecsUon of PCBs through the for each ef these nine substances, to add a atw Section 129.105 to provide ' *' food chain, the Pood and Drug Admlnls- gether with a summary of the factors coverage for PCBs for new and existing . tratlon (FDA) of the Department-of considered in setting Uie standards, and soureolh the following industrial cate - Health, Education end Welfare estnb- a list of point source categories of dis gories: Manufacturers of FCBs. manu 1 Ushed temporary tolerances for TCBs In charges proposed for coverage, 38 FR factures of transformers, and manufac * food pursuant to the Federal Food, Drug 35389 et scq. In accordance with section turer* of capacitors. Coverage la pro i- flltd Cosmetic Act. 21 CFR 122.18 (July S, 307(a) (2) of Uie Act, a formal rulemak vided bf both new and existing sources, tllll. These tolerances included, for ex ing hearing on the proposed standards and far purposes of these standards, a > ample, 5 parts per million <ppm) In the was scheduled. A prehearing conference new umt ih defined as any source on : ' edible portion ef fish and shellfish, 2.5 was held on January 85, 1974. followed which construction is begun following ppm In milk and dairy products. 6 ppm by a thirty day evidentiary hrnrinft held the title C tills proposed rulemaking. If ; In poultry, 0.5 ppm in ere* and 0.2 ppm during April and May. During Uie courso standatak ore subsequently promulgated : In Infant and junior foods. On Fcbru- of Uiosc hearing*, which were held tinder pursuant tb this proceeding. Tlio . ary 20, 1976, FDA announced that Jt Ss severe lime constraints. Uie Agcnrv be Atcnqzdhia Indicate that these stand * swtlvcty considering a lower temporary came aware of certain gaps in its data ards aflu cover at least three plants !* tolerance lor fish In lliht of recent toxi base. As a result, the Agency determined manutaflndhg transformers, and at least * *,L .I i_ . 1 |: j StOtfLAl RtetlTIR, VOL 41, MO. 143--ISIDAY, MY )), Hf MOMS 058547 80470 PROPOSED RULES Ufea plants manufacturing eopaellors, ail of which are existing direct dlsditritn. tion/Reduction Technology and Associ ated Costa. Manufacturers of Electrical Capacitors and Tranaformers; Adden of mammalian cardnoccncsis. where available, were also considered, as were datti on pcrsltlencoond degradability. Eeeh tecilon Includes specialized dum to Final Report, Task II." Data on toxic effects of pollutants are definitions of the point source category Copies of the aforesaid criteria docu not available for all species Umt may be covered and prescribes acceptable analyt ment and reports nnd supporting mate exposed to toxic pollutants In the com ical methods. In addition, provision Is rials, os well as other materials which plex ecosystem. There is a vast number made for determination of weights and form a part of the basis and purpose for of species throughout the entire ecosys concentrelions, in cases where a dis these standards and which are listed on tem. nnd It would be impractical to try charge Is allowed, the standard will be Appendix A below, arc available for pub to gather test data on every one. or even Specified as an oversee monthly concen lic Inspection and copying at the U.S. most of them. Because such data are not tration limit and a maximum concentra Environmental Protection Agency, Pub available on oil species, the range of sen tion at any time. lic Information Unit. Room 3923 <EPA sitivity of a smaller number of tested In developing the standards proposed Library), 401 M St.. 8\V., Washington, herein liie Administrator has given care D.C. 20406, during normal business ful consideration to each of the factors hours. Copies of the criteria document enumerated In section 307(a) (3>. These and tecluiology report and supplement species Is used to provide a measure of the range of sensitivity of all species. The Agency's criterion for PCBs Is based upon a wide range of toxicity data for a factors fncludo "the toxicity of the pol may also be inspected and copied at phylogenetic cross section of organisms lutant, Ha persistence, degradability, the usual or potential presence of the af- libraries in eaeb of the 10 EPA regional offices.1 os well as species representative of a wide geographic distribution. faeted organisms In any waters, the im The approach utilised In arriving at Section 307(a) requires consideration portance of the affected organisms and. the nature and extent of the effect of the the standards herein proposed may be generally stated as follows. of the Importance of organisms likely to be affected. Ecological importance of an toxic pollutant on such organisms." In First, because the most important ele organism is dependent on tire role the tight of the Aet'a manifest concern for ment in setting the standards is the organism plays within the ecosystem and Sbllo health, which Is reflected both in toxicity considerations enumerated In upon Us relationship to Ure food chain g statute and Ute legislative history, section 807(a)(3), the starting point is within the aquatic community nnd the the Administrator has also consideredthe development of the criteria docu consumers of aquatic life, including men. available data concerning human health Beets attributable to PCBs. The data ment, which sets forth extensive data with respect to the environmental effects Thus, toxicity data for the carnivores at the top of the food chain In a given eco- S^MnsMircd by the Administrator relating to these factors of toxicity and environ mental effect arc set forth in a-'Criterla Document." The Agency was assisted in the preparation of this criteria document ian 0.T. Ntsbct, Ph.D.. of the Massa- and behavior of'PCBs. A principal1 ob jective of the eriteria document is to seek to arrive at an ambient level of PCBs based upon the data which will provide an ample margin of safety for all impor tant aquatic organisms and others up systenvas well a* xcsnamlcally impor tant species such as trout, salmon, men haden end shrJmp ere properly consid ered In the development of a protective criterion level. Toxicity data for orga nisms such as diatoms, crustaceans and ucetts Audubon Society, a nationally the food chain, including man. who may recognized expert on the toxicology obf ecome,exposed to it. This ambient wa rCBs. This document Is hereby incor ter criterion is expressed as a concentra porated by reference as a part of the tion of the pollutant in the water in, Statement of basis and purpose for the terms of microsrams per liter <y/l> (I tondards hereinafter proposed. pg/one part par billion). For sub la addition, the Administrator has stances such as PCBs where the data in omldercd the availability of various -methods of eontro) and related technol dicate Hint chronic toxic effects may oc cur at extremely low conentrations.- It ogy by which discharge o! PCBs might becomes virtually Impossible to state bo eliminated or reduced. HU authority to consider technology os well as eco with confidence that any number abovo sere provides an ample margin of safety nomic Impact Is discussed in detail in the for man. In such cases any criterion Ifeaambto portion of the Notice of Pro posed Tcxlo Pollutant Effluent Standards level chosen should be epproprletely qualified to reflect these circumstances. published on June 10.1970. to which the The toxicity data used in developing reader is referred. these proposed standards were derived ) In order to obtain relevant, data for this function, the Agency engaged the services of Vcrsar lnc,, of Springfield, Virginia, who are recognised experts in from laboratory studies ns well as Held observation* on the afreets and behavior of PCBs. These studies have been con ducted on a variety of organisms Includ the study of wastewater treatment tech nology and the control of pollutants dmlttod by industrial sources. Vcrsar Ine. ing invertebrate, vertebrate, and mam malian test species, and are weU docu mented in Ute scientific literature. These has prepared and submitted a report to the Agency concerning industrial dis studies provided extensive acute and chronic toxicity data based primarily charge of PCBs and the assessment of on feeding experiments for a wide range wastewater management and treatment technology, including technologies which of aquatic organisms and consumers of aquatic organisms. . aquatic insects are also Important since these organisms ere a food base for higher consumers and are representative- of plants and Invertebrate species found In most waters of the United States, On the basis of the foregoing date, a concentration level Is sought which, tt Is believed, will provide that degree of safety required by the Act for all Impor tant organisms likely to be affected by It assuming a continued or chronic pres ence of the pollutant at that level to the water. In (he case of PCBs, as dis cussed below, this proved to be an ex tremely difficult task in view of the al ready dangerously high levels of FCBs In some water bodies. After arriving at an ambient water criterion, the Agency examined feasible control technology to ascertain what concentration levels Industrial discharg ers might be able to achieve in their efflu ents, the availability of substitute prod ucts for TCBs, and other factors rele vant to the setting of standards. This process Is discussed more specifically below (see "Rationale for Standard"). after the following summary of the Agency's consideration of the available database. re actually in use or which are or may Studies documenting bionccumulation (1) Composition, effemfeef and phys be available to Industries to control or In tho food chain organisms and blo- ical charaeteristict of FCBs. The com Itminate tire discharge of PCBs. This re coneentraUon by organisms directly mercial mixtures of PCBs have been rea port is entitled "Assessment of Waste from tho water provided an important sonably well characterized. Each mixture water Management. Treatment Technol additional component data base. Appro contains 10 to 20 major components end ogy, and Associated Costs for Abatement priate human toxicity data and studies a number of minor components; more sl PCD Concentrations In Industrial Ef than 90 of the 209 chlorinated biphenyl fluents." and Is hereby tneonwrated by * Tl* Agency ilea Intends that the criteria (CB) Isomers have been Identified in the reference as a part of the statement of document and technology report and eupplc* commercial mixtures. After release Into baals and purpose of the standards here ment bo made available through the National the environment the constitution of the In pro)>ocd, along with a supplement Tvrimlcal information Service in Sprfttgiield, mixtures changes os some comjxments thereto entitled "PCBs Water Elimina Virginia. ore degraded while others persist. Since JIOItAl BIOIUCI. VOL 41, NO. M3--rtlOAY, JULY 29, W* HOMS 058548 PROPOSED RUtES *0471 IMM components ere mow toxle than ?3ie raw wastes from the manufactur Effluents from plants In this category then, this complicates the evaluation ing area at Monsanto consist of tho range between 2.500 gallons per day to f ths hazards posed by environmental liquor front the scrubber, the condensate 120 MOD. These effluents are discharged residues. from the steam jet ejectors, water used into the navigable waters or are Intr^ Highly toxle Impurities, polychlori for showers and eye baths, miscellaneous duced into POTWs without any treat nated dlbemofurans <pcdfs>, arc pres floor wash drains, waste oil collected in ment directed toward PCB removal. Ef ent In smsll quantities In the ranee of drip pans and drums, and so-called fluent information obtained for 14 plant* t to S3 milligrams per liter <mg/l> In Hmontnrs" which are the bottoms from Indicated that average effluent PCD con moat commercial mixtures. Products their stills. The composition and quanti centrations ranged from less than 10 manufactured overseas frequently con ties of the Individual waste streams are *g/l to more than 6.000 ?g/I. Average tain more PCDFs than American-made not monitored. AU effluent streams gen mass emissions of PCBs from these plants Aroelor mixtures. There Is evidence thnt erated in (he manufacturing area are ranged from less than 0.01 lb/day to PCD** may be formed from PCOs both collected In sumps located in this area. nearly 2.5 lb/day. Jn service, and In the environment by Reportedly the aqueous discharges .photochemical and melobolio processes. amount to 750 ug/1 PCBs In 0.433 million (c) TRANsroaMsaaiANoracToaitfe Accordingly, the toxicity of PCD mix- gailonv per day ("MOD") or 3.7 lb/day. There are eighteen transformer plant* turns Is variable and environmental resi The raw wastes generated in the Incin operated by thirteen companies which dues are sometimes more toxic than erator area at Montonso consist of the manufacture transformers vising Pen- freshly manufactured products. However, venturi scrubber liquor and the waste containing Askarel dielectric fluids. As- It la not possible to separate ths toxic phase from the oil-water separator sump. karcl transformer oils are blends of 80 affects of PCDFs and PCBs satisfactorily, Reportedly the aqueous discharges from to 100 percent Aroclor 1254 or 1242 and and the environmental hazards of both this area amount to 15 ug/1 PCBs In trichlorobenzene. This type of trans must be considered together. 0.288 MOD or OJG lb/day. The total plant former constitutes only five to ten per . PCBs arc viscous liquids or waxes. They uses a maximum of 0.389 MGD of water cent of these plants' transformer manu pro freely solublo In organic solvents and principally for eooUng and a maximum facturing volume. The irmninlng In lipids (fats). but have very low solu- of 360,000 lbs of steam. manufacturing volume uses mineral oil fctllty In water. In general, those PCBs In addition to the aqueous discharges. as the dielectric fluid, and there Is some prHh fewer chlorine atoms per molecule It has been estimated that about 25 lbs. manufacture of air-cooled or gas-cooled arc more solublo in water and more vola- of scrap oil and "monstar*' are produced transformers as well. Askarel trans . tDo than those with greater chlorine per ton of PCB produced, that about 5It formers are used when other types are mtems per moleeulcs. Accordingly, the lbs of PCB In contaminated solids per ton uavatbfactory because of design limits.nftrturcsart omerenuaied during -vola- ol PCB -produced art tendfllledtiaUy wnd 'Horn or where flammability Js ji prob tttlMtion and solution, the lower CDs that less than 1 lb/day of PCBs Is lost lem. The PCB usage In this category being more mobile. PCBa are strongly as air emission*. was approximately 12,000.000 lb* In 1074. adsorbed onto suffices and particles. In the squatie environment their behavior Is alien controlled by the presence and <> caracnroa suworacroajNO _ At least three of these plants have direct discharges and are therefore subject to There are nineteen plants operated bys the standards proposed at this time. movement of sediments. seventeen companies manufacturing PCB There are two principal types of trans : (3) Relevant use and wastewater impregnated capacitors In tho United formers produced; electrical distribution ebarecieristicj--(A> Manufacturing of States. At the present time approx transformers wlUch are used to step FOB*. The sole domestic manufacturer imately 05 percent of all liquid-filled `down voltages, and power transformers af PCBs Is the Monsanto Industrial capacitors manufactured in the United which are primarily used to step up volt Chemicals Company ("Monsanto"), States arc of the PCB impregnated type. ages. Distribution transformer applica Whoso manufacturing operations are The two most frequent applications of tion* include use in networks, padaondueted at Its William O. Krummrlch these capacitors arc for phase corrections mounted and pole-mounted, end special plant in Dauget, Illinois. Aroclors 1931 on power Jlncs connected to electrical precipitator power supplies located la and 1011 are wed by capacitor manu- faelurers as dielectrics. Aroclors 1343 and 1334 arc used as principal ingredi ents in formulating the Askarcls used by transformer manufacturers. Monsanto discharges its effluent to the ffauget POTW, and therefore U not covered by the standards proposed at this time. The Agency expect* in duo course to proposo prclrcatment standards op- toUeable to this facility and to any oilier facility which may In the future manu facture PCBs. A brief discussion of Mon panto's operations and wastewater characteristics Is appropriate here, how ever, In view of the fact that standards pro proposed at this time for direct dis chargers for the PCD manufacturing category for existing and new sources, Monsanto's ability to aehlcvc zero direct discharge was also considered in propos ing these standards. * Tho Krummrlch plant has a design capacity to produco 48 million pounds of PCBs per year. In 1974, Monsnnto pro duced 40.488.000 pounds, of which 94, 400,000 pounds were sold domestically. Approximately two-thirds of 1974 domes tic sales were of Aroclor 1010 with most Of the remaining production evenly divided between Aroclors 1242 and 1354. Only small quantities of Aroclor 1231 motors and for use as ballast for fluores cent lighting systems. The PCB usage in this category was approximately 23.000. 000 lbs. In 1074 with most of this being Aroclor 1016. At least seven of the nine teen capacitor manufacturing plants have direct discharges to the navigable closed proximity to hot gas stocks. Quantities of Askarel used In trans formers of this type range from 500 to 5.000 lbs each. Many of these trans formers have provisions for venting with spring loaded venting devices or dia phragm rupture discs. waters and are therefore covered by the standards proposed at this time. Most plants manufacture either large power capacitora or small industrial type units but not both; The large capacitors Askarel power transformer applica tions include use in primary and second ary substations. Industrial furnaces, rec tifiers, rail transportation, and for react ance and grounding functions. Quanti are either flood filled or manifold Ailed. ties of Askarel used In transformers of All small capacitors are Rood Ailed cither this type range up to 19.000 lbs. In a vacuum tank or in an automatic Various transformer assembling and "carousel" arrangement. ' Ailing proccdutcs are being practiced The raw wastes originating from these throughout the industry. In general, the plant* consist of scrap PCBs collected transformer assembling and filling oper In tumps, drums and drip pans; con ations consist of a predtying step for re taminated vacuum pump oils; the frac moving moisture from the transformer tionator bottoms from the trleblorocthyl- J'Mterlora. several stages of Askars! filling ene recovery; the caustic bath used at and topping, addition of electrical con some plants, for purposes of paint strip nections and bushings, electrical testing ping; spent detergent wash and rinse and sealing. water from capacitor or component Water Is not an essential component of cleaning operations; rinse water used in transformer manufacturing, in general, the welding and plating operations; the process raw wastes from these plants steam condensate from jet ejectors; tho consist of waste Askarel collected In seal water used In vacuum pump*: water sumps or pans at the filling stations, Used in phopphaUztng and fluoride bath; contaminated vacuum pump seal ell. water spray used in paint booths; boiler contaminated kcrosene-Ilke petroleum 'were produced. blowdown; and cooling tower blowdowns. distillate, and contaminated Askarel used . ffOEKAt MOWER. VOL 41. NO. 143--EtfOAY, JULY I, 1078 HON* 056549 f l 90172 . PROPOSED RULES , for transformer Interior flushing. rCD most characteristic effects In rats ore en milar in many respects to those observed wastes which reach water strcomi at largement of tho hvci\ Induction of hepa- among the population contaminated in these plants are due to occasional loss tle microsomal enzymes and porphyrin. the Yusho Incident during handling and residuals aecumu* Reproduction Is adversely affected at (G) Persistence, mobility end efegred- liOed around drainage systems from past dietary levels at and above 30 parts per abillty. PCBs have a long life In the envi operations when insufficient precautions million (ppm; I ppm Is comparable to a ronment, often In cxecss of 35 years, but were taken against run losses. liquid measurement of 1 milligram per components with three or less chlorine Based on Information from five plants, liter Cl mg/l>). atoms disappear rapidly. Mono-, tit. and effluents from plant* in this subeategory Rhesus monkeys are extremely sensi tri-CDs arc to some extent degraded or ranged from 13,MO gal/day to nearly 1.0 tive to PCBs.' which Induce skin lesions metabolised by bacteria, but higher PCBs HOD. These effluents (predominantly and gastric ulceration. Monkeys exposed arc resistant to microbial degradation pooling water) are discharged Into the to 2.6 ppm suffered reproductive dysfunc Tetra-chlorlnated PCBs can be metabo navigable waters or ore Introduced Into tions and some died after exposure to lised by birds and mammals, but pents- POTWs without any treatment directed only 3 ppm. Adult female Rhesus mon chlorinaled PCBs are resistant and toward PCU removal. Average effluent keys"! ed 25 ppm of Aroclor 1248 not only higher CBs are metabolised only spry BOB eenecntrattoHB ranged from less accumulated the PCBs in their adipose slowly. Most environmental residues have than t rt/1 to nearly 30 Pc/1. Average tissue, but the PCBs were transferred been reported In the form of tetra and mass emissions of PCBs from these across the placenta of one female which higher chlorinated PCBs. plants tango from less than Q.0Q2 lb/day gave birth and concentrated at high PCBs are mobile in the environment to nearly 0.1 lb/day. levels In the fat and adrenals of the In and are carried freely in the air and the *(3) Toxicity. PCBs Inhibit growth and fant. 1 water attached to airborne or water- ell* division In certain species of phyto-' Mink are also very sensitive to PCBs. borno particles. Conventional incinera plankton (single-celled aquatic plants). In one experiment, most females died on tion and other dispots) techniques do not Some sensitive species are affected at a diet containing 10 ppm and none pro completely destroy PCBs. -- nnr low concentrations to.i yg/1). The duced young at S ppm. in another test (7) Bfodccumufaffon end bfomaeniJt- affects are particularly marked In mixed 0.54 ppm caused total reproductive fail eafion. PCBs are strongly concentrated cultures, where sensitive diatoms are re- ure and a few deatiis. Ctbioaccumulatcd") from water Into plaoed by resistant green algae. <4> Carcinogenesis, On prolonged ex aquatic invertebrates and fish. Btoaeeum- PCBs are toxle to aquatic Insects, crus- posure of rats and mice. PCBs cause a uiation factors (concentration of FCBa in -.Aaeeaiuk ..jnd rth*r Jovortabrates at variety of morphological changes In the organisms compared to concentration In eoncentraLions down to a few *g/l. Re liver, Including hypertrophy, hyperplasia, water) for these organisms ore eons production and growth in aouatio in- adenoflbrosis and nodular hyperplasia. monJy in the ranffe.of 20.000-214.000 after .vertebrates are adversely affected at At high dose levels 000 ppm ond above) prolonged exposure in the laboratory. . concentrations as low as 0.4-0.5 *g/i. PCBs Induce hepatomas, neoplastic However, where measurement* of con . PCBs affect the settlement f larvae and nodules and carcinomas In rates anti mlqe centrations tn natural waters ore avail rtduco the diversity of marine inverte and therefore pose a presumptive carcin- able, bioaccumulatlon factors Jn fish and brates communities as concentrations os ogenlo risk to man. In one experiment, invertebrates are generally larger than lew as 0.1 fg/1. PCB-treatcd rate also displayed an in Uiose measured in the laboratory. There ' PCBs are acutely toxic to estuarine creased incidence of pituitary tumors. have been reports that certain animals aquatto organisms. For Arociors loie, Metabolism of PCBs in mammals and4 captured from tire aquatic environment SMI and )?5l, the 41-hour LC50 values birds proceeds primarily through arene have apparently bloaccumulated PCBs In far brown shrimp, pink shrimp, and grass oxide (epoxide) intermediates, which are their flesh to levels of between 3 and ! Shrimp fall In Uie range between I and biologically active and believed to be miliion times that of Uie water concen It pg/l. In longer-term bioaxsays of two highly toxle and carcinogenic. PCBs also tration in which the auimnls were cap weeks or more, Aroclor 1304 Is toxle to hove immunosuppressive effects in rab tured. It is Important to note, however, the commercially valuable penaeid bits and guinea pigs. In several experi that the level of PCB contamination in -Shrimp and grass shrimp at concentra ments treatment with PCBs has In the food of the captured aquatic life, as tions as low as 0.1 to 1.4 *g/l. Arthropods creased the susceptibility of animals to well as Uie concentration of PCBs hi arc affected at 0.1 ?g/l. various diseases, which these organisms resided for the Rainbow trout have been killed by ex (6) Human health effect*. Humans oc predominance of their life periods, are posure to Aroclor 1243 at concentrations cupationally exposed to PCBs sometimes unknown. of 1.4 ac/1 in 35 days, and by exposure Buffer from an occupational disease Fish In Escambia Bay. Florida, had to Aroclor 1300 at 5 *g/l In 10 days. Spot known as chloracne. characterised by PCBs levels In their flesh 370,000 over and plnflsh died when exposed for 14 to long-lasting skin lesions and sometimes the ambient water in which Urey were IS days to S g/l of Aroclor 1254. The systemic disturbances. captured. PCD levels in the waters of * lenguecc kllUftch has been killed by long In a large-scale poisoning incident In Lake Michigan average around .01 g/l term exposure to Aroclor 1254 at a eon- Japan in 1953, more than 1.00Q persons However, PCB levels in fifth in Lake -eenlmllon of 1 rB/1. became -sick with Yusho disease after Michigan range In the 3 to 30 ppm , PCBs have adverse effects on survival, Ingesting rice oil contaminated with range, wet weight (15-300 ppm, ' growth, and reproduction of fish at con-- both PCBs and PCDFs. Their symptoms lipid weight) indicating an apparent Wo- * centratlona os low as 1 *g/l. In one case, were similar to those of occupational aceumuiatlon lactor ranging up to at eggs from fish exposed to only 0.1 *g/l chloracne, but also included hyperpig least 3.000,000 In whole fish. levels of failed to hatch after being placed In PCB mentation of the skin, persistent eye dis PCBs In some whale and seal blubber . free water. A variety of other sublcthol charge and gastric disturbances. Chil were found to be In excess of 1 million in toxle effects have been ob*crvod on a wide dren were affected not oniy by direct the ambient water concentration In * tango of freshwater and marine fish Ingestion of the contaminated oil, but which the animals were taken. -present hi waters Uioughout the country, also prior to birth by transplacental pas PCBs are further concentrated <bioand these are set forth in detail in the sage and In one case a child was contami tnngnlficd) from Uie food of birds and Agency's criteria document for PCBs. nated by Ur molhor's milk. Tlio af mammals Into their tissues, especially * . PCBs generally have low aeute toxicity fected persons have Improved only slowly Into tlielr fat. BloinngniilcaUon factors ' to birds and mammals, but long-term since me and there are already Indica (ppm In organlsms/ppm In food) are dietary exposure leads to a variety of tions of excess cancer incidence. often ht tho range 1 to 10 after prolonged . chronic toxic effects. Tho Rhesus monkey provides an Im exposure In Uie laboratory, but arc oiten * Rats aro relatively resistant to PCBs portant indication for human sensitivity ns high as 10 to 100 In wild animals and and usually do not show the character!*- to PCBs and. a* noted above, is extremely birds. Humans store PCBs In tJ'.dr fat ilo lesions of the skin and stooiach In sensitive to low levels of exposure. The more eiitelently Umn any animal for duced in several other mammals. The symptoms following exposure appear si which precise measurements have been HbtkM teams, voi. <. wo. ms--midav. sutv as. ms MOMS 056550 PROPOSED RULES , 30173 . made. Hits leads Is greater exposure to "ample margin of safety" for all organ exceptions), a prohibition on discharge sensitive organs end tissues in humans ism* under all circumstances. However, Is achievable based upon currently avail, than In animals exposed to the same con the data do establish, at this time, that able technology and handling methods. , eontratloiu of PCB* In the diet. The data an ambient water quality level of .001 Based upon detailed plant Inspections Indicate. In particular, that Aruclors 1016 yg/I should not be exceeded. and examination* of the process steps in end ISO are widely present in fish in Uie To assess risks to humans, the most the use of PCBs in the manufacture of Vnlted States. This In turn leads to sub critical toxic effects of PCBs are those capacitors and transformers It has been stantia) sxpoturc of humans and other observed In mammals at the lowest ex determined that the characteristics of flsii-eauiig animals. ' posure levels. These Include: these wastes are sufficiently similar so ill Ambient water criterion for cfteclt (1) Mortality and reproductive (allure that the same kinds of control and treat Mfvraf system*. The foregoing sum in mink at a dietary level of 0.64 ppm. ment technologies arc appltrable. mary briefly highlight* the extensive <li> Increased liver wcichtln weanling The wastewater characteristics for data base set forUi in the criteria docu rats In the second generation of animals manufacturers of capacitors end trans ment. Hill data base demonstrates that exposed to 1 ppm. and liver pathology formers have been described above. Data rOtfs pose a serious threat to a wide (Including nodules) In the second gene available to the Ageney indicate that wa range of aquatic and other food chain ration exposed to 20 ppm. ter can be eliminated from most if not nil organisms, as well as to human health, at till) Stomach nodules and ulcerations of llie manufacturing-related processes, very low concentration level*. TJitre ap In dogs at a dietary level of 1 ppm: pear to be some variaUons in Uie toxic Stomach lesions have also been reported Offsets for different Isomers. Thus, the mere highly chlorinated Isomers appear io be somewhat more persistent In the environment, while the lower chlorin ated Isomers appear to bo somewhat from other species Including monkeys, pigs and mink. 0 .(tv) Reproductive failure, dermal and stomaeh lesions in Rhesus monkeys ex posed to 2.5 ppm and deaths at 3.0 ppm. with the result that potential effluent* can be- sufficiently reduced in quantity so that they enn be Incinerated or other wise disposed of so as to reduce greatly or eliminate any discharge of process wastes to the navigable waters. Where large volumes o! water are used, treat mere acutely toxic. These differences are relatively minor, since all Isomers which an significant constituents of commer cial mixtures of PCBs are highly persist ent and mobile In the environment, and Alt Isomers display a degree -of toxicity Which la a matter for grave public conetm. Moreover, the composition of PCB mixtures changes aa Uiev are transported through the environment. There Is also evidence that toxic metabolite*, or break down products, may be formed, so that the themleal species distribution In a (v) Increased activity of hepatic mi crosomal enzymes in rate fed at 03 ppm for 4 weeks. <vl> Carcinogenic effects In rate and' mice at dietary levels of 100 ppm and above. <vil> Apparent Increase In Incidence of pituitary tumors In rats at dietary levels of 1 ppm and above. (vlii) Widespread presence of PCBs in fish and other organisms regularly con sumed by humans. ' AU U these effects are Tclcvant in ment and subsequent recycling can re duce quantities of unavoidable blow downs to amount* suitable for treatment by activated carbon and discharge or by incineration. With respect to c*exciter manufactur ing wastes, the scrap PCBs collected In sumps, drums, and drip pans, as well as fractionator bottoms from trichloroeth ylene recovery, are small in amount, and can be incinerated. The same to true lor contaminated vacuum pump oils and any caustic bathe used for paint stripping. water body may not l*e the same as tire weighing potential adverse effects of With respect to capacitor and component rpdrgetstaddr.siFstotorribbaeulntlioothnseosouefnUdreibaeasssouinsbsfs,ottarhnsocereettdianlpsg-difcPsylCumBdpsintogomndserohmuf maploaiansnsod.ningIngasItnpriacmrtoliecnsukioleanyrss,,, the in are cleaning operations, cleaning solvents rather than water can be used, and then incinerated following use. Water used In ferent criterion numbers or standards for parallel to those observed In man; cn- phosphatlzlng and fluoride baths by tome different Isomers, and accordingly, the tyme induction Is a basic biochemical plant* can be eliminated, along with the Criterion and standards herein proposed effect which has been observed in many entire process, by use of aluminum con are for PCBs generlesliy. species: esrclnogenie effects In rodents tainers. A criterion level of 0.00! *g/1 would appear to avoid adverse effects to most qustle organisms, based upon an an alysis of both laboratory and Held data. Hits level la based primarily on the MoaceumulaUon properties of PCBs. Fish hart been shown to accumulate rCDs by factors as high as 374.000 in the laboratory, while considersbly higher factors appear to occur In their natural environments. Based upon a bloaccumu- laUon factor of 374.000 a concentration pf 0.001 *g/l could result In bloaccumulatlou to 0374 ppm In flesh, which Is below tho dlelary levels which have been shown injurious to aquatic birds and mammal* who may feed upon them, in re generally used to predict potential carcinogenicity In humans. * It to difficult to use the results of these experiment* to establish acceptable levels of exposure for humans: <n) Because many of the listed effects were reported at the lowest dietary levels Investigated: <b) because humans are exposed for much longer periods (Including prenatal exposure) than the experimental ani mals; and (c) because humans are known to store PCBs in their tissues more efficiently* than the experimental ani mals. These data do, however, further support tho proposition that an ambient water quality level of .001 yg/l should not be exceeded, and, beyond tills, that Capacitor manufacturer* who use steel containers generally patut their products, which produces a waste resulting from water spray used to control paint par ticles and fumes. This process can be eliminated through use of aluminum containers which nerd not be painted. If painting is nevertheless desired, effluent discharge can be avoided by use of an air or electrostatic system Instead of a waterfall for trapping pe bit particles and fumes. Aqueous discharge from eooltng tower blowdowns can be reduced by use of a re cycling system based on demineraliza tion or, alternatively, by incineration of blowdown. Any solid waste residue, which ' addition, however, there Is evidence that In some waters some fish bloaecumulste at rates roughly ten times this, and In Waters where Uie chronic level generally exceeds 301 yg/1, such ns Lake Michigan, there le evidence of sublcthal toxic ef fects on the fUh. In proposing thts ambient water cri terion tho Ageney recognises the possi bility that sueh enter quality level may pot provide absolute safety for all or ganicns In all water*. Indeed there prob very reasonable effort should be made to limit discharge* of PCBs in order to mini mise human exposure. (ff> Control technology available. At tho present Ume there arc no direct dis charges of PCBs from a PCB manufac turer and thus no In-place technology to evaluate. The only U.6. manufacturer, Monsanto, discharges to the Snugct. Illi nois POTW. With respect to process waste effluents from PCBs users, water is unnecessary to Uie processes Involved will not Include PCBs, enn be disposed of by landfill. Boiler blowdown, which Is not likely to contain any PCBs. can be scMcd In drum* and landfilled or treated by the activated carbon treatment system. With respect to transformer manu facturers. with capacitor manufactur ing. all scrap PCBs collected Jn sump* or PAns can be incinerated. Contaminated vacuum pump seal oil. petroleum distil late. and askorel used for transformer Interior flushing caualso be Incinerated. ably Is no numerical concentration level In the manufacture of liquid-filled ca Each of these has been demon- above aero which one can at this tlmo pacitor* or transformers. Consequently abated by me by at least ono of Uie say with great confidence provides an for process waste (with certain specified covered plants. VIOtlAl MOUTf*, VOL 4), NO. US--ftlDAr, JWt 21, itr* HONS 058551 I 90474 PROPOSED ROUS Several potential sources of process-re sufficient Information was available to those permit proceedings are less strin lated waste may In some eases result In ovaluate these systems. gent Umn the limitations which would be effluent* which cannot be avoided feasi (10) Economic impact. The Afieney required by these proposed standards bly In the near term: Itinacwatcr used In recognizcs that there may be significant under section 307(a). The Agency invites welding, painting or plating operations, cants and economic Impacts associated comments on the comparative tech and scrubber and quench water from with the standards proposed at this lime. nology. costs, and resulting economic tm- * Incinerator operations. The Agency has made a preliminary as pacts associated with those IlniMaiions an Those estcgorlos of process-related dis sessment of costs and economic impact, compared with the standards hereinafter charges, as well as non-process related which is summarized below. Preliminary proposed. If Interested persona believe effluents, Including plant washdown, non cost estimates, as set forth in the report that n modified standard is prclcrtible to eontact cpolJng water, and ruuoff from submitted by Versar, Inc. (See Appendix that proposed, they should lake appro stormwater or spills, can be treated by A hereto, item 4), Indicate that com priate measures to develop and enter into carbon adsorption as described below. pliance with the proposed standards may the record the appropriate supporting It should be noted that KPA-sponsored result In additional costs of production data and information (see Public Par Investigations have revealed that there equal to or greater than five percent of ticipation in Rulemaking Process, below). are no In-place processes being employed tho selling price of the products (trans (11) Rationofc for standard. in dis . whereby dissolved or sorbed PCBs in formers and capacitors). thus identifying cussing the establishment of on ambient water streams . are being either ex this regulation tentatively as a major water criterion number above, it was em tracted from those streams or destroyed action requiring the preparation of an phasized that a concentration of .001 Within them. In general, these waste Inflation Impact Statecmnt (IIS) pur #<C/1 should not be exceeded and, in addi streams contain concentrations of PCBa , suant to Executive Order 11821. A more tion, that every reasonable efTort should f less than 1 eg/I tip to about 500 detailed assessment Is currently being be made to limit discharges of PCBs In yg/l with many instances occurring m prepared by the Agency, and wJH be ac order to minimize human exposure. In Ihe 10 to 60 rg/l ran&e. While several companied by an 21S, If necessary. The deed the data suggest that to provide an Of the plants have practiced PCD aegre- availability of these document* upon "ample margin of safety" for human RUon to Iteep the quantity of con- their completion will be announced In health, and possibly for some other or mlnaled wastewaters as low at possible, the Fcocraz. Reoistca. and public com ganisms as well, an ambient Mater ertnone has Installed full scale terminalments thereon will be Invited. These tcrior far lower than .001 pg/1 may be re 4R*CB removal facilities. - documents, together with all public com quired, though at this time one cannot The EPA through Its contractor, Versar, Inc., has identified a technology Which will reduce the pcb concentration In wastewaters to 1 g/l or less and which Is capable of being installed within one year. The Identified system is based upon sellvsled earbon adsorption, fol lowing primary treatment consisting of sedimentation, filtration, and skimming. The feasibility of achieving the J *>g/l or less level has been demonstrated In laboratory testa conducted cooperatively between Versar. Inc., and two activated > earbon suppliers, Carborundum Com pony and ICI-U.5. The system consists of an eqiialfsation-setUlng tank and mixed media filtration followed by car bon adsorption. Floatable* and sludges ments thereon Which are received by the confidently Identify.any .specific number Hearing Clerk postmarked not later than above zero. thirty days following the aforesaid notice of availability of these documents, shall be made * part of ihe record of these rulemaking proceedings (see Public Par ticipation In Rulemaking Process, below). The standards are being proposed at this At the present time, even If every point source discharge were prohibited. PCD concentrations in the water would remain for a long time not only above zero, but In some water bodies, above* .001 g/l. Moreover, since the capnbUity docs not Umc prior to completion of the economic exist presently to measure PCB concen Impact assessment In Sight of the order trations below 0.001 *-g/l with any rea and decree entered by the United States sonable degree of reliability, no useful District Court in Natural Resources De purpose would be served in establishing fense Council tl of. v. Train, Civ. Ho. a criterion number below this. ' 2183-73, and consolidated eases, on June 9,1976, requiring proposal of these stand ards by July M, 1970. In light of the foregoing considera tions, tho Administrator has weighed carefully tire desirability and feasibility The Agency's preliminary assessment of Imposing a prohibition on sny dis of costs and economic Impact suggests charge of PCBs from any point souroe. from, the equalicatlon-sctUlng tank and that transitional Impacts may be signifi Xn the case of existing manufacturers, pent carbon are disposed of by incinera cant. The preliminary estimate of the thh can be dono since the only present tion. Carbon adsorption has also been cost of compliance Indicates aggregate oueccMfully used In full-scale operation capital costs for the direct dischargers of to achieve removal of pollutants other than PCDt down to comparably low $12 million and total annual costs of $7 million (based on a 3-year depreciation levels. - . schedule). The annualized costs repre Based on work performod cooperatively sent 5 to 21 percent of current selling between Versar, Inc., and Houston Rc- ..prices for transformers and 3 to 17 t>cr- * search on one system and Westgate Re cent for. capacitors, the Indicated ranges . search on another system. It was Jndl- resulting from the types ol transformers gated that systems employing ozonation and capacitors produced. These costs may to conjunction with ultraviolet radiation be of sufficient magnitude to induce clo can be designed to achieve any desired sures of some small and/or marginal PCB manufacturer does not have a direct discharge. A similar requirement it Im posed upon new PCB manufacturing sources, who would be required in effect to either achieve a completely closed sys tem or discharge Into a POTW. With re spect to transformers and capacitors, both these industries provide important products tp Uic United States economy lor which there are no presently proven substitutes. Moreover, the best reduction levels which available technology can Burnt PCM concentration. Preliminary plants and conversion to substitute ma ftchcivc with respect to an effluent dis comparisons of Ihe capita) costs between terials for Olliers. It Is not certain that charge containing PCBs appear to be I the osone-UV system and activated car such conversions could be carried out In #>C/1 through the use of carbon adsorp bon system show at lesst a too percent the one year allowed by the Act without tion treatment. Tills exceeds the ambient greater cost for the ozone-UV system. causing disruption of the supply of trans water criterion by three orders of magni When prclrcntmcnt costs ars Included the osone-UV system Is only about id percent higher than activated carbon. It Is doubtful however, that the ozone-UV system could be Installed within one year, the maximum period of time between formers and capacitors. Additional anal ysis will be carried out to assess moro completely these types of impacts, as well as to Identify other types of economic effects. In addition, the EPA is currently cn- tude. Discharged relatively modest amount* of a pollutant into the water at many times the ambient water criterion iiiu> be allowed, however, -without necessarily failing to provide safety for affected or promulgation and the effective date of . gaged In Issuing NPDES permits pur ganisms. First, the actual discharge con these standards. suant to section 402 of the Act applicable centration docs not normally remain the Other systems evaluated Included ad* to point sources which will be covered ambient concentration. In fact, the ef orptlou by polymcrlo resins, enlalytlo by those proposed standards, in some in fluent disperses following discharge and reducllon and catalytic oxidation. In stances the limitations being proposed!)* becomes greatly diluted. The m m of <tl- ,HOHAl ItCttllK, VOt. 41, NO. MS--ftlOAT, ilAT 33 1974 HONS 058552 PROPOSE* RULES 9Q47& kuUoii U often referred to as a "mixing jons", end will vary In size and shape fpw o/ technology Wittemter type applied most receiving waters. In the achieve ment of Uie degree of protection envi tram ant body of waler to the next and from one discharge to the next. The re mit of this phenomenon Is that onee the fluent reaches the outside of the mixing one, the pollutant concentration may have become diluted by a factor of sev Seller hlawdawns. niter, demineralise, . and recycle. Incinerator scrub* pretrestment and ear* her water. bon adsorption to 1' ` pg/1 ar less. Process*associated pretreatment and car- wastes.* bon adsorption to I sioned by Uie Act. The Agency recog nizes, however, that there may be a few cases where, because of local receiving water conditions, notably with respect to hydrology, sufficient dispersion and dilu tion may not take place. To deal with eral hundred or more, and Indeed may g/l or lets. such coses, f 129.7 of Subpart a (tho not oven be detectable by the most so unitary waste To POTW. general provisions or Part 129: see stand phisticated monitoring equipment. Con- oededly. In some Instances there may be adverse effects on some organisms In the Immediate vicinity of the outfall. How waters. Hatnfell runoff.... Enclose areas or pro treatment and car . . - bon adsorption. ards proposed on June 19. 1970. 41 PR 23570) allows the applicable NPDES per mit issuing authority to Impose such more stringent effluent limitations as ma7 ever, for thronlo effoeU to be observed, the exposure time would have to be quite lengthy--perhaps a lifetime. Even acute toxic effects, which normally occur at much higher dosage levels than chronic effects, are generally recorded based upon Includes hot solder dip rinse water. pho.pl.Ucln6 b,th BUU>n. tin pluln, bath and rlnsa waters, fluoride bath and rinse waters and painting water spray. These are email in volume and may occur In only a single plant. . be required in order to aehleve or ap proach the ambient water criterion level. In this case .001 ?g/l. at least beyond the boundaries of any reasonable mixing zone. In addition, more stringent levels may be imposed to meet any applicable 9C*hour exposure. Because of the ex Using this technology results In n pro waler quality standard, see 11294(e). It traordinary persistence of PCBs reliance hibition on discharge of PCBs from any Is possible that an exercise of these pro on mixing tones, while of assistance In point source to the navigable waters in visions could result In a plant cloture. the Immediate future, cannot be regarded volving solely process wastes with the However, by allowing some considera as a long-term solution to the problem. exceptions noted tn the above tabic, which tion for technology in the initial stand In developing the proposed standards, would be treated with activated carbon ard-setting, even though consideration of the Agency also considered the availa- to the 1 pg/1 level or lowor. This tech ecological and health effect* are para bfflty of substitutes for PCBs in trans nology substantiates a standard of a mount, the approach taken under these formers and capacitors. Several com- prohibition of PCBs In process wastes standards makes It reasonably probable names have developed products which (except for certain specified wastes) and that If there are to be any shutdowns, they believe are an adequate substitute treatment of other discharges with acti they will occur only after a slte-spedfie forPCBs in transformers and efforts at** vated .carbon, reducing PCBs to 1 *s/l examination, and only because of a fail wider way to develop substitutes for or less. Although occasional deviations ure to meet the safety requirements f FOB* hrcapacitors as well. At this time, are unavoidable* at no time may any section 907(a). however, It Is still too early to determine sue!) allowed discharge exceed yg4 for Finally, it Is recognised that to allow a with confidence whether the substitutes sample* representing a working day. discharge at the proposed levels may pose are not only functionally effective but. tn Tot new sources, where further tech some risk of adverse effect* to some or addition, are safe In terms of potential nology advances ean be reasonably ex ganisms, particularly those located near Are hessrd and other aafety considera pected, a more stringent limitation may the outfall, and possibly to the consumer* tions, and art environmentally safe. The be set to toke such expected advances thereof. However, based upon prelimi Agency has concluded that It cannot at into account. Including advances In con nary information, this risk Is deemed to this time set a toxio pollutant effluent trol technology and In substitutes lor be outweighed at this time by tho social standard, or prohibition on dlschargo, PCBs. Limitations of 0.1 gg/l on the dally end economic benefits represented by not upon the assumption of the ready avail average per month and 0.5 sg/i maxi setting a standard which would force ability of a substitute product. However, mum at any time should be achievable widespread closures of plants manufac the Agency Is pursuing an aetivc policy to (the OEcnatlon-CV data so Indicate) and turing eapaeltors and transformers, encourage Industry to develop as rapidly are therefore proposed as new source which would In turn be likely to sharply as possible feasible substitutes for PCBs. standards for non-process wastewater curtail the nation's supply of these essen * Because of the absence of any proven discharges from transformer and ca tial products, or lead to Importation of allifaeiory substitute for PCBs In cer tain transformers and capacitors, It ynrnt be recognised that to Impose a prohMtlon on all PCB-conlalnlng effluents pacitor manufacturers, and from dis chargee resulting from scrubber and quench water from Incinerator oper ations. For the reasons discussed above, products containing dielectrics which ore even more environmentally hazardous. (12) Subsequent replete of standards. It continues to be the goal of the Agency t this time would probably cause a se no new source discharge of PCBs will to reduce the presence of PCBs in the vere Impact on tho transformer and ca- be allowed which result from let ejectors environment to the greatest extent pos podlor manufacturing Industries which or rlnsewater from welding or plating sible as rapidly as feasible, for all of the utilise PCBs, and deprive the nation of operations. . .. . reasons outlined above. Indeed, as addi the future availability of products which The maximum dally permissible con tional dal* become available (o the Agen Utilise such transformers and capacitors. centration is based upon an application cy, it may be necessary to revise In sub Accordingly, In the proposed standards factor of five times the maximum aver sequent proceedings both tho standards thf Administrator la requiring that dis age monthly concentration factor. This and tho ambient water criterion estab perses be prohibited where possible, and Is provided to take Into account tho fact lished pursuant to tire present rulemak that other discharge comply-with tho that occasional dally concentrations ing In tho direction of greater stringency very best results which available tech nuiy exceed the required maximum In order to provide the degree of safety , sielogy can achieve. For the manufactur monthly average. They should not be required by the Act. ing of transformers and eapaeltors. the allowed at any time to exceed the lowest The Agency Is obligated to rovtew and standards art based on the following teb- feasible celling, however, and the where necessary, revise Its seetlon 207<a) Agency's Information with respect to standards at least every three years. The Typc / technology Wsifnrsfrr type applied ` Rso-ssnUei oaat- Coal In eland radiator tug water, system and recycle. Itoim fai eouden- Replace steam Jets * Sate, with mechanical carbon absorption and analogous treat ment techniques indicate that a variabil ity factor of five Is achievable and reasonable. Translating an ambient water criteri on number to an cnd-of-Uic-ptpc stand Agency Intends to review the proposed standard one year following promulga tion, with the expectation that Industry will have mode significant strides to wards the development of reliable sub stitutes for PClts. as well ns In the field pumps. ard Is at best mi Imprecise calculation. of control technology, so that a prohibi Detergent washing Replace with solvent The dispersion and dilution factors dis tion on all discharges of PCBs In any in water, taper degreasing. cussed above arc expected to result, In dustrial effluent can be considered at that KDUM MGIMCR, VOl. 41, NO. 149--4RIDAY, iUlV 22, If7* HONS 058553 ' Miff , * PROPOSED RULES time, Including sources not covered by thirty days following the aforesaid notice Bee. Ikn itamtiKb proposed at this time. Itt, Pvsuc Participation in Rulemaking Process .. A publlo hearing to consider the pro of availability. All parties to the public hearing on the proposed standards shall bo allowed a reasonable opportunity to examine this economic Impact assess ment and any comments therein, and to 130.7 Requirement and procedure far . . iiUbiaiilni a more stringent effluent limitation. 139 6 Compliance date. . 129 0-139.90 | Reserved | 120 100 Aldrln/DleMrln. posed effluent standards will be held pur respond thereto on the record. To tills 120101 DDT. DDD and DDE. suant to section 307(a) I2> ot the Act limited extent and for this limited pur 120.102 Endrin. . jRommenelns on Ausust 20,1070, at 10:00 pose only, 1 hereby waive the time dead iao.103 Toxnphcne. . ft.m. In Room 3400, Waterside Mall. U.S. line requirements for the Minn or pub 120.104 Demtldlns. Environmental Protection Agency, 401 lic comments under 1104.3(d) of the 130.106 Polychlorinated Biphenyl* (PCBv), M Street. BW.. Washlnoton. D C. In no- Agency's Rules of Practice for Public Authority.--See*. SOT, 309, end 601 of tho eerdsnee with the Agency's rules of prac Hearings on Effluent Standards for Toxie Federal Water Pollution Control Act Amend tise sovemlnt public hearings on effluent Pollutants. 40 CFll Part 104. as amended. ments of 1071 (Pub, L. 03-600. 90 Slat. 616, standards for toxic pollutants, 40 cfr 41 PR 17898 (April 29, 1976), so as to S3 us.C-1361 e* *eq,). Pari 104 as amended. 41 F.K. 17608 et roq. (April 20, 1970), the first hearing allow the filing of materials and com ments described in this paragraph within 2. Subpirt A or Put 129 Is further mended by addinf new ptrxraph <f> - day shall Include a prehearing confer the time period herein set forth, and I to 1129.4 to rend u fellow,; ence at the above time and place. All accordingly direct the presiding officer at persons Interested In participates In the pubUe hearings to be conducted on 6 129.4 Toxic pollutants. those hearings as objecting parties these proposed standards to ensure that # diodd refer to the omended rules of the record includes all materials which (f) Polychlorinated Biphenyls (PCBa) practice, 41 F.R. 17698 et seq., and should are filed in conformity with this para --polychlorinated biphenyls (PCBa) Owl rely on previous editions. Any per graph. Tho Agency has the legal author means a mixture of compound* composed son who hss any objection to any stand ity to modify or waive strict compliance of the blpenhyl molecule which has been ard proposed herein may file with the with Its Tules of practice in exceptional chlorinated to varying degrees. Hearing Clerk (A-100), Room 1010 W8MU, U.8. Environmental Protection Agency, 401 M Street. 8W., Washington, . DA 20400, within 28 days of the dato of circumstances such as the foregoing when the ends of justice require. Cf. American Farm Lines v. Black Balt Freioht Service, 397 UJB. 832 (1970) and * 3. Subpart A of Part 129 le further emended by adding new 1129.108 to read as follows: tMs notice, t (tricmnit of -objection in wavescited therein. - i 119.105 Polychlorinated Itiulienyt* triplicate which shall meet all of the repiuvmenU of 40 CFR 104.2 (a) and (b). fheso Sections require, among other thlnm, actual receipt by the Hearing Clerk of any objection within the aforetaM Ume. The presiding officer may re fuse to peimlt any person to participate In seM hearing who fails to comply with any ot the provisions of those sections. In addition to the foregoing, any per son Interested In this proposed rulemak ing but who docs not parllelpate as a Dated: July 14,1970. . Russell E. Train, Administrator. . AivtMsn A ' 1. Criteria Document for Polychlorinated Biphenyls (EPA, lea O. T. Xhbet, pit. D,, 1976). Including general introduction. a. PCas In the United State* Industrial Vee sad Environmental Distribution (Doe. No. EPA 660/0-70-006 February 38. 197S). 9. Aiseatment of Wastewater Management, (PCD*), <o) fpeetolfaed 4*/inU*vns. (1) **PC8 Manufacturer" means a manufacturer who produces polychlorinated bipenyla. (2) "Electrical eaptcltor manufac turer" means a manufacturer who pro duces or assembles electrical capacitors In which PCD or PCB-eontolnlng com pounds are .part of the dielectric. (3) "Electrical transformer manufac turer" means a manufacturer who pro duces or assembles electrical trans party In the fomral he*ring may submit Written comments to the Agency on the proposed rulemaking. Such comments should be filed In triplicate. If possible, and should be addressed to: Hearing Clerk (A-100). Room 1010 W8ME, VS. Environmental protection Agency, 401M Stmt, BW.. Washington. D.C. 20460. All comments which are received by the hearing elork and which aro postmarked on or before August 20.1076 shall become a part of the hearing vacorrt in the mnn- her prescribed in 40 CFK 104.3(d) and than be considered by the Administrator Treatment Technology and Associated Coato for Abatement of PCBe Concentrations in Industrial Effluents (Doc. No. EPA 860/0-76 006 February 9,1076). 4. POD* Water Blimlnatlon/Itctfuetlon formers In which PCB or PCB-contattl ing compound* are part of the dleleetrie. (4) The ambient water criterion for PCBs In navigable waters Is 0.001 sf/L Technology and Associated Costs, Manufac (b) FCB Manufacturer--*(1) Appff- turers of Electrical Capscltora and Trans ceWWy. (I) These standards or pro formers: Addendum to Pinal Deport, Task IX hibitions apply to: (July 9. 1976) (supplements Item 9). (A) All discharges of process wastes; 1, Gonferrttee Proceeding* of the National <B) All discharges from the manu Conference on PCBe (Doe. Ko. EPA 5C0/6-7S004; Conference held November 1976: pro ceeding* published March >979). 8. Notice of Proposed Rulemaking: EPA facturing or incinerator arena, loading and unloading areas storage arras, and other areas which are subject to direct Proposal of Toxic Pollutant Effluent Stand contamination by PCBs as a result of the ards for Aldrln/Dlcldrfn, DDT (DDD, DDE), manufacturing process, Including but not prior to Uw promulgation of final stand Endrin and Toxapbena, <1 I* 93676 (June limited to: * ards, ' 10,1976). (J) Stormwater and other runoff; In addition. In accordance with the dlscuwlon above concerning economic Impact of the standards proposed at this time, the Agency will publish in the 'pypenal KtotSTEa approximately ninety day* following tho date of publication of 2. Hi 40 CFR Part 129. Subpart A (as proposed nl 41 FR 23576 (June 10.1976) andamended at 41 FR 27017 (June 30, 1979) the table of contents is further amended to read as follows: * (2) Water used lor routine cleanup or cleanup of spills. . (il) These standards do not apply- to stormwater runoff or other discharges from areas subject to contamination solely by fallout from air emissions of ttus notice of proposed rulemaking an PART 329--TOXIC POLLUTANT PCBs: or to stormwater runoff tint ex announcement of the availability of the EFFLUENT STANDARDS ceeds that from the ten year 24-hour Agency's economic Impact assessment With respect to the proposed standards, tuburt A--ThIc PtDulMi Effluent Standards rainfall event. and PrtMMUtns ' (2) Analytical J/efAorf AcccptoWe. En the document or documents setting forth this assessment shall be made part Of the record Of the rulrmaking proceed ings on these propoccd standards, logether with all comments directed spe- glfltally (hereto which are received by the Heating Clerk at the above address, Bee. 199.1 129.9 139.9 129.4 139.6 199.9 . Scop* and purpose. . Definition*. , Abbreviation*. . ' ` To.tle pollutant*. ' Compiiauce. Adjuttmrnt of effluent standard for presence of toxic pollutant In Uia vironmental Protection Agency method specified In Part 136 of tills chapter, except that a I liter sample size to re quired to Increase analytical sensitivity. (9) Ejffttcnf standards--(1) frilling sources. PCBs aro prohibited In any dis gild which are postmarked not later than Intake vairr. charge* from any PCB manufacturer. |fDlRAI UCISUt, YOU 41, NO. 142-fftlDAY, JUIY 23, 1974 HONS 058554 PROPOSED RULES (III Mm sources. PCBs are prohibited chlorinated biphenyls concentrations ex eeedt that from the ten year 34-hour In any dUcharito from any PCB ceeding an avernge per working day of rainfall event. manufacturer. 1 rtr/1 calculated over any calendar <3) Analytical Method Acceptable, En . <) jtlecfrfcof capecltor manufac month; and shall not exceed 5 sg/l In vironmental Protection Agency method turer--il) ApptteaMttu. (I) These stand sampled) representing any v'orklng day. specified In part 136 of this chapter, ex ards or prohibitions apply to: Ill) New sources. (A) PCBs are prohib cept that a 1 liter samtde site Is required (A) All discharges of process wastes; ited In any process 'wastes discharged to increase analytical sensitivity. Mid with the exception of scrubber and (3) Effluent standards--Exittine <0) All discharges from the manufac- qucneli water from Incinerator opera sources. <A> |*CBs are prohibited In any turlnc or Incineration areas, loading and tions; and process wastes discharged, with the fol . unloading areas, storage areas amt other 03) All other discharges from a capac lowing exceptions: areas which are subject to direct con- itor manufacturer shall not contain U> Water used in welding, plating or lamination by lCBa as a result of the polychlorinated biphenyls concentrations painting operations: and manufacturing process, Including but not exceeding an aveiage per working day of <2> Scrubber and quench water from limited to: *' 6.1 sf/r calculated over any calendar Incinerator operations. fi) Stormwater and other runoff: and month: and shall not exceed 0.5 *g/i in (B) All oilier discharges (Ineluding (I) Water used for routine cleanup sample (s) representing any working day. each of the exceptions set forth In the or cleanup of spills. (4) The standards set forth In this. preceding section (A)> from a trans Ill) These standards do not apply to Subsection shall apply to the total com former, manufacturer shall not contain stormwater runoff or other discharges bined welcht or concentration of PCBs, polychlorinated biphenyls concentrations from areas subject to contamination excluding any associated element or exceeding an average per working day of solely by fallout from air emissions of compound. 1 jig/l calculated over any calendar POis: or to stormwater runoff that ex <d) Electrical transformer manufac- . month; and shall not exceed 6 g/l In ceeds that from the top year 34-hour Surer--(1) Applicability. (1) These sample(s) representing any working day. rainfall event. standards or prohibitions apply to: (it) New sources. (A) PCBs are pro tit) Atwlyficcrl method acceptable. En (A) All discharges of process wastes; hibited (n any process wastes discharged, vironments! Protection Agency method and with the exception of scrubber amt specified In Part 196 of this chopter. ex cept that a 1 liter sample sice is required doJnereueAnalytical .sensitivity. (9) JTJhteitl standards--(!) Existing sources. <AI PCBs are prohibited In ail procsss smites discharged with the fol <B) All discharges from the manufac turing or Incineration areas, loading and oanloadingJUMAWdoragearaas.and other areas which are subject to direct con tamination by PCBs as a result of the manufacturing process. Including but not Quench water from incinerator opera tions; and (B) All other discharges from a trans former manufacturer shall not polychlorinated biphenyls concentra tions exceeding an average per working lowing exceptions: * </) Water used In welding, plating or limited to: (i) Stormwater and other runoff; and day of 0.1 A calculated over any calendar month: and .shall not exeeed 0.5 fig/] in sampled) representing any painting operations; and (3) Water used for routine cleanup or working day. (I) Scrubber and quench water from cleanup of spills, (4) The standards set forth In this sub . Inolnerator operations. (II) These standards do not apply to section shall apply to the total combined <B) All other discharges (Ineluding stormwater runoff or other discharges weight or concentration of PCBs. ex each of tho exceptions set forth In the from areas subject to contamination cluding any associated element or com preceding scotton (A)) from a capacitor solely by fallout from air emissions of pound. -_ manufacturer shall not contain poly- PCBs; or to stormwater runoff that ex- (TO Doc.7S-SlM rued Mt-UiHI cm] V HONS 058555 r&EKAL KECIWR, VOl. 41, HO. 143--TKIDAY, JULY >3, If74 .