Document 9JwDE6oBj5gJodXZ4RVxXjVZe

30168 PROPOSED RULES ENVIRONMENTAL PROTECTION ufacturer! of PCBs and manufacturer* the Inherent limitation* or point xonree AGENCY [40 CFR Part 129] of transformers and capacitors who use discharge control, towards the degree ot PCBS and who discharge directly Into protection for aquatic and other orga the navigable waters. Standards are es nisms and human health envisioned inu. m>-*i tablished (or both existing and new under the Act. and are technologically WATER PROGRAM sources Owners and operators ot facil achievable by industry The Agency will ities which discharge Into publicly owned continue to review the standards eslab- Proposed Toxic PoOulant Effluent treatment works, as defined in section liahcd in this rulemaking us additional Standards lor Polychioitnsted Biphenyls 313 of the Act (sometimes referred to as data become available to determine Notice It hereby given that We En vironmental Protection Agency, pursuant to the authority contained In section "Indirect dischargers"!. are not eovered by the standards herein proposed How ever. the Agency will propose pretreat whether further protection, including more stringent standards, is necessary and leuslbte. 107(a) of the Federal Water Pollution Control Act (the Act) as amended by the Federal Water Pollution Control Act Amendment* or ID73 (Pub L. 92-soo. ment standards In due course for such in direct discharges pursuant to the au thority contained In section 307(bi of the Aet following proposal of these stand 1. Bacwosouwo a. rest n m cmmioKMXirr PCBs are a class of organic compounds Mat. tie. 13 UJ5C. 1391 et eeq J, pro ards. manufactured by th* chlorination of poses additional sections to Part 119, set The term polychlorinated biphenyls re biphenyl with anhydrous chlorine using ting forth proposed effluent stands ids for fers to a family of organic chemicals iron filings or ferric chloride as a cata polychlorinated biphenyls (PCBs), On which have been produced and marketed lyst. The biphenyl molecule has w total June 10.1970. the Agency proposed a new Part 139. setting forth proposed effluent in this country for approximately 45 . years. These organic chcrnics Is are syn of ten carbon-hydrogen bonds at which chlorine substitution can be accommo standards for the following toxic pollut ants: aldrln/dieldrin.DDT (DDD, DDE), thetically made and consist of a number of chlorinated biphenyl iaomers. They are dated. In the manufacture of PCBs, any where from one to ten chlorine atoms endrin and toxapheite, tl FJt, 23S76 et eeq. On June 30, 1976. the Agency pro posed effluent standards foi benzidine. 41 highly stable compounds snd are'used primarily as dielectric and heat transfer fiuldi. though they have other uses ns may be located on the biphenyl molecule Depending upon the location of these substitutions, theoretically as many as FJt, 37013 et seq. Those five pollutants, well. PCBs have been conclusively de 309 separate compounds, or isomers, or as welt as polychlorinated biphenyls monstrated to produce lethal and suble- the chlorinated biphenyl family can be tGPCB*), were -included -on a list of-toxic Jbal Xoxic effects at low dose levels upon manufactured. pollutants previously published by the a wide range of fish, mammals, and other The PCBs manufactured by Monsanto Agency pursuant to Section 307(aMl>. wildlife, and have also demonstrated ad are marketed under the trade name M FJt. 34343 et seq. (September 7.1973). Section 307(a) (2) of the Act provide* as follows: verse health effects to humans. Moreover, they are highly mobile and persistent in tha environment, and bioaccumulate greatly In tissue. Aroclor. followed by a four digit num ber. with "biphenyl" represented by the first two digits *T2". and the approxi mate ch1 urine percentage represented by Within eat hundred sad eighty days alter the date or publication ot any list, or reeleloa tbersot, containIn| toxic pollutant* or oomMaaUoa o( pollutant* under paragraph (I) f thti subsection, the Administrator. In ac cordance with aeetion 093 or TTUa I of she The sole manufacturer In the United States, Monsanto industrial Chemical* Company, currently produces approxi mately 40 million pounds of PCBs per year. Imports of PCBs currently amount tha second two. Thus. Aroclor 1242 ts a mixture eonteinlng approxlmstely 42 percent chlorine. The prlneipal Aroclots which have been marketed over the past decade by Monsanto are 1321, 1233 1242. Hotted 61*1*1 Cod*, ahall publish a proposed to about 0.4 million pounds per year. 1343. 1354 and 1360, although at this affluent standard (or prohibition) for eueh Btnee 1910 Monsanto has voluntarily time there ts no active marketing ol 1232. pollutant or combination ot pollutants which ehatt tab* Into account tha toxicity of the pollutant, lu persistence. degradabUlty. the usual or potential presence o( the enacted Mfenltflu In any waters, the importance of the affected organism* and tha nature and oatent *( tin effect of the toxic pollutant on neh orgenlame. and he ahall publish a bo restricted its domestic sales of PCBs to use in transformers and capacitors (closed systems). Consequently Monsan to and the manufacturers of transform ers and liquid-filled capacitors are aignUlcant sources of further contamina tion or potential contamination resulting 1313 or 1360. In addition, Aroclor 1016 (on exception to the previously Identified nomenclature system) is being marketed, and bears approximately 41.3 pet cent cblcuine, For an extensive discussion of the chemical and physical properties of PCBs. see O. Hutzinger, S. Safe, and V lls* for a public hearing on such proposed from the discharge of domestically man ZUtco. "The Chemistry ol PCBs," CRC standard to bo held atthln thirty day*. As soon a* poeslMt after eueh bearing, but bat latar than six mouth* after publication ot the proposed effluent standard (or prehlMtied), unless the Administrator finds, oo the record, that a modification of such proposed standard (or prohibition) to fustMed baaed ufactured PCBs into the aquatic envi ronment. -v The proposed standards Include a pro hibition on discharge of PCBs by any PCB manufacturer, with respect to any manufacturer ol transformers or capac Press. 1974. The unique physical and chemical properties of PCBs Include low vapor pressure at ambient temperatures, re sistance to eombustto:-, remarkable chemical stability, high dielectric con upon a preponderance of evidence addaeed itors. a prohibition of any PCBs In any stant and high specific electrical resistiv at eueh hearings, such standard (or prohibi effluent discharge of process wastes Is ity and low water solubility. At the same tion) shau be prnmulgatodi proposed, with limited exceptions, and an time, PCBs are Upld soluble and hence The regulation* proposed at this time establish effluent standards for manufac turers of PCBa and manufacturers of transformer* and capacitors which con tain PCBs, Standards are proposed for Both cabling and new sources. The following, together with the ma terials said information hereinafter re ferred to and Incorporated by reference. Mia forth the boats and purports of the effluent aIan(tarda proposed at this time. average dally concentration limit per month of 1 *g/l is proposed 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 Ag/1 lor other discharges is proposed. Regulation of discharges under Ute Act cannot, by Itsetl. guarantee on ample margin of safety for all organisms and human health even U all paint source discharges were prohibited. In light of the potential lor absorption into fatty tissue and into the liver is high. Thus once Ingested PCBs are retained by most organisms rather than excreted. The qualities of persistence which make PCBs useful for many Industrial pur poses greatly aggravate their potential lor harm In the ecosystem. Although the principal uses of PCBs today are In "closed" electrical systems (transformers and capacitors). l'CDs have been used over the years for a Bomusiy or Pxixcirai, FtaToics axa Uotcrns or ths Fxorosc* Rtcounons 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 contain mation ol tho en vironment. These other uses Include an Tho regulations here proposed would posed at this lime will however result addiltvo tn Investment casting wn\rs. establish effluent standards for aU man la maximum feasible progress, within lubricant additives, hydraulic and com- RMtAl IfQIlTM, VOL 41, HO. 141--fSIDAY, ART tt7* HONS 208280 PROPOSED RULES 30JC!) preuor fluid. carbonless copy paper, cological data concerning FCBs, 41 FR at the conclusion of the hearings that plasticiser*. paints, heat exchange fluids, 409. FDA has also banned PCBs for use tho record did not contain tutuctcm evi certain types of paper and sealants. Most In food *nd feed processing. dence on which to promulgate responsible of these uses have been substantially The American National Standards In and defensible standard*. Accordingly, curtailed, but the PCBs which have stitute ha* Issued guidelines for Industry the Agency decided to gather additional entered the environment aa a result of on the use. disposal and labelling of data and repropose its standards, tup- these uses, and which continue to be PCBs. and Is currently considering more ported by an expanded data base. The pieced In the environment, will be there extensive guidelines (or the handling, tandards proposed at this time thus su for many years. Borne of these uses are servicing and disposing of existing equip persede the FCBs portion of the proposal resulting in effluent discharges which are ment containing PCD*. Of December 37,1973. not subject to the standards proposed at The Oeneral Services Administration The Agency* decision to gather addi this time owtnt to Insufficient data. As (OSA) has banned PCBt In carbonless tional data and to repropose standards such data become available, however, the copy paper purchased by the Federal was dlicuued at considerable ten-th in Agency expects to take appropriate government and the Department of the the Preamble to tlte Notice of Pioposcd measure* to control such discharges pur Interior <DOI>* hae prohibited the use Toxic Pollutant Effluent Standard* for suant to the Act or other applicable of PCBs in offshore oil operations. Aldrtn/Dieldrlu, DDT, Endrln and Toxa statutory authority. The Environmental Protection Agency phene, published In the Feoesal. Register It Is estimated that over the past 45 (EPA) ha* proposed regulations pursuant on June 10. 1*76. 41 FR 23S7*. to which yean approximately 1.4 billion pounds of to lection 311 of the Federal Water Pollu the reader Is referred and which is here PCBs have been produced in the United tion Control Act to control spill* of num by Incorporated into this PCB statement States, of which 125 billion have been erous Ideti tilled hazardous substances, of basis and purpose by reference used In this country and the balance ex Including PCBs. These regulations ore ported. Of this US billion pounds, ap Intended to establish reporting require XL Tax Proposes Standards proximately 960 million pounds have been used in electrical equipment. In ad dition, it Is estimated that only approxi mately 50 million pounds have degraded, that 150 million pounds are presently In service, end that 450 million pounds art 4n landfills (ostensibly as a result of dtsw*Vwali end in air, water, soH and sedi ments, to establish harmful quantities, and to Sx eivU penalties lor spills. The otnut raovisxoNs Agency further anticipates use of 1U au- ' The notice of proposed rulemaking thorltr under section 311 to require published on June 10, 1976, proposed industry to prepare spill prevention con provisions of general applicability to a)) trol plans. standards Issued under section 307(a). The Agency, In October, 1975, Issued These were set forth as f| 120.1 through Bt draft lorm a set <rt water quality cri 122-8. Those Section* jut promulgated ments. teria pursuant to section 504(a) of the Is contrast. It la estimated that dis Act recommending maximum permissi charges to the aquatic environment each ble concentrations In the ambient water year from the approximately 17 manu for numerous pollutants. Including PCBs. . facturers of capacitor* and transformer*. plus Monsanto, probably do not exceed The concentration level proposed at that time was 0.001 g/l for PCB*. That docu 10,000 pounds, with direct discharge* ment Is currently being reviewed prior from theie source* accounting for lets to final publication. than one-third this amount. Although On April 1, 1976, the Agency Issued efforts to reduce substantially and eveo- recommended procedures for disposal of ' tually eliminate this source of environ-' PCBs by Industrial users, pursuant to mental contamination a ill hare a rela section 304(b) of the Solid Waste Dis tively minor effect on the overall PCB posal Act, 41 FR 14134. . v problem as It currently exists, such On July 6, 1973. the Agency published efforts are-likely to have a more signif in the Febnun. Racism a proposed list icant Impact In reducing future environ of nine toxic pollutants pursuant to sec mental contamination and In alleviating tion 307(a) (1) of the Act, 39 FR 1(044, the specific environmental problems In The nine substances were: aldrtnfdlel- the Immedlste receiving waters. Conse drin. benzidine, cadmium, cynznlde. DOT quently the Agency believes that the 1DDD, DDE), endrln, mercury, polychlo standard* proposed at this time will con rinated biphenyls and toxaphene. Fallow will be applicable to standards estab lished hereunder for polychlorinated blphenyls.'Otraers and operators of facil ities which are or may be subject to the standards proposed herein arc expressly referred to that notice of proposed rule making for provisions relating to scope and purpose, definitions, abbreviations, compliance procedures (including noti fication to the Regional Administrator or State Director of an approved NPDES permit program, as appropriate), of any discharge subject to these standards, requiremeuts and procedures for estab lishment of a more stringent effluent limitation than that established In these proceedings, and compliance date Tht Siumsh rot Poltckeosjnattd Bmxwria In the nstlce of proposed Toxic Pollut stitute an important element in the over ing receipt of public comment, the list ant Effluent Standards published June all effort to reduce and ultimately elimi was promulgated on September 7, 1973, 10, 1976, standards were proposed for nate any further addition of PCB* to the together with a discusskm of the Agency's aldrin/dieldrtn, DDT <DDD. DDE), en- environment. election criteria and a response to com drin and toxaphene In Section* 129,100 - a, raioa tcotn-ATOtY cno* am mm* nroin to tuucc cxvnomwNM n- rosuaa ments received on the proposed list, 31 FR 24342 et aeq. The promulgated list consisted of the some nine tubstonees previously proposed. through 120.103 respectively, in addition, the Agency has proposed to add n new 1120.104 containing effluent standards far beniidtne, 41 FR 27012 (June 30, Because of the demonstrated toxicity On December 27,1973. the Agency pro 1676), of PCBt end the human health threat posed toxic pollutant effluent standards The standards proposed herein would posed by Ingestion el PCBt through the for each of these nine substances, to add a new Section 129.105 to provide food chain, the Food and Drug Adminls- gether with a summary of the factors coverage for PCBs for new end existing , tratlon (PDA) of the Department of considered in setting the standard*, and sources tn the following industrial cate Health. Education and Welfare estab a list of point source categories of dis gories: Manufacturers of PCBs, manu lished temporary tolerances for PCB* In charge* proposed for coverage. 39 FR facturers of transformers, and manufac food pursuant to the Federal Food. Drag 35395 et sett. In accordance with section turers of capacitors. Covernce is pro and Cosmetic Act. 21 CFR 122.10 (July 5, 307(a) (2) of the Act. a formal rulemak vided for both new and existing sources, * 1*75), These tolerance* Included, for ex ing hearing on the proposed standards and for purposes of these standards a ample, 5 parts per million (ppm) I11 the was scheduled. A prehearing conference new source la defined as any source on edible portion of flail and shellfish, 2.5 was held en January 25, 1974. followed which 00mUnction 1* begun following ppm In milk and dairy products. 6 ppm by a thirty day evidentiary hearing held the dale of this proposed rulemaking, if in poultry. 0 5 pin I11 egc* and 0.2 PPM during April and May. During the course standard* are subsequently promulgated In infant and Junior foods. On Febru of those hearings, which wne held under pursuant to tilts proceeding. The ary 25. 1575, FDA announced that it is severe time constraint*, the Agency be Agency's data Indicate tliat these stand actively considering a lower temporary came aware of certain gap* m Its data ards will cover at least three plants tolerance for flsh In light of recent toxi base. At a result, the Agency determined manufacturing transformers, and at least KOItAL ttOimt, VOL 4|, NO. 143--ftlMV, MAY 32, W4 HONS 208281 30470 MOPOSED IULES cm plants manufacturing capacitors, tion/!?eduction Technology and Associ of mammalian carcinogenesis. where all of which sre existing direct dis ated Costs, Manufacturers of Electrical available, were also considered, as were charger*. Capacitors and Transformers; Adden data on persistence and dctmd.ibihly. Etch section Include* specialised dum to Final Report, Task U." Data on toxic effects of pollutants are definitions of the point source category Copies of the aforesaid criteria docu not available for Ml species llmi may be covered *nd prescribes acceptable analyt- ment and reports and supporting mate exposed to toxic pollutants In the com teal methodi. in addition, provision U rials. a* well as oilier materials which plex ecosystem. There is a tost number mad* for determination of weights and form a part of the basis and purpose for of species throughout the entire ecosys concentrations. In ease* where a dls- these standards and which are listed on tem. and It would be impractical to try eharfe It allowed, the standard wtlt ba Appendix A below, ore available for pub to gather test data on every one. or even specified as an averace monthly eoneen- lic inspection and copying at the U.S. most of them. Because such data are not tratioa limit and a maximum concents** Environmental Protection Agency. Pub available on all species, the ranee of sen ttanst any time. lic Information Unit, Room 3923 <EFA sitivity of a smaller number ol tested In developing tha standerds proposed herein tha Administrator has given care ful consideration to each of the factors enumerated In section 307(a) (2>. These factors Include "the toxicity of the pol lutant, Its persistence, detradabllity. the usual or potential presence of the at* Library). 401 M 61. SW. Washington. DC. 2040*. during normal business hours. Copies of the criteria document and technology report and supplement may also bo inspected and copied at libraries In each of the 10 EPA regional offices1 species is used to provide a measure of the range of sensitivity of all species. The Agency's criterion for PCB* is based Upon a wide range of toxicity data for a phylogenetic cross section of organisms as well as species representative of a will* geographic distribution. facted ortanisms in any waters, tha Im The approach utilised in arriving at Section 397(e) requires consideration portance of tha effected orcenlsmi and. the nature and extant of the effect of tha the standards herein proposed may be generally stated as follows. toxic pollutant on such organisms." In First, because the most important de light of the Act's manifest concern for ment In setting the standards Is the public health, which la reflected both in toxicity considerations enumerated in of the importance of organisms likely to bs affected. Ecological Importance of an organism is dependent on the role the organism plays within the ecosystem and upon Its relationship to the food chain tbo statute and tha legislative history, tha Administrator has also considered avaUabl* data concerning human health effects attributable to PCBs. The data 'Tonsiacrtfl by the Administrator-relating to these factors ol toxicity and environ mental effect are set forth In w->'Criteria Document." Tha Agency was assisted In the preparation of this criteria document by lan C. T. Nlibel. PhD., of the Msssa- chusetta Audubon Society, a nationally recognized expert on the toxicology of PCBs. This document la hereby Incor porated by reference a* a part of tho statement of heals and purpose for tho standards hereinafter proposed. In addition, the Administrator has considered tho availability of various --methods of control and related technol ogy by which discharge of PCBs might bo eliminated or reduced. His authority to consider technology oa welt ee eeo' notcic Impact Is discussed in detail In tha preamble portion of the Nolle* of Pro posed Toxic Pollutant Effluent Standards published on Juno 10,1|7I. to which tho reader is referred. i In order to obtain relevant data for this function, the Acency engaged tho services of Vcrsar Xuc,, at Springfield, Virginia, who ore recognized exparts in the study of wastewater treatment tech nology and the control of pollutants * emitted by industrial sources. Vcrsar Ine. has prepared and submitted a report to the Agency concerning Industrial dis charge of PCBs and the assessment of wastewater management and treatment technology, Including technologies which section 307(a) <3), the starting point is the development of the criteria docu ment. which sets forth extensive data with respect to the environmental effects ana 'benavunr ot TCBs. A prtndpaft-oo- lectlve ot the criteria 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 ell impor tant aquatic organisms and others up the food chain, including man. who may become .exposed to it. This ambient wa ter criterion is expressed aa a concentra tion of the pollutant In the water In terms of micrograma per liter (s/1) (1 sS/=one part per billion). For sub stances such aa PCB* where the data In dicate that chronic toxic effects may oc cur at extremely low conentraUoDs.- it become* virtually impossible to state with confidence that any number above sero provides an ample margin of safely for man. In such cases any criterion level chosen should be appropriately qualified to reflect these circumstances. Tha toxicity data used In developlne these proposed standards were derived from laboratory studies as well as field observations on the effects and behavior of PCBs. These studies have been con ducted on a variety of organisms Includ ing Invertebrate, vertebrate, and mam malian test specie*, and are well docu mented in Use scientific literature. These studies provided extensive acute and chronic toxicity data based primarily on feeding experiments for a wide range of aquatic organisms and consumers of aquatic organisms. within the aquatic community and the consumers of aquatic life. Including man. Thus, toxicity date for the carnivores st ths top ot the food chain in a given eco system. *s well a* mamrJcaUy impor tant ipectes such ss trout, salmon, men haden and shrimp are properly consid ered In the development of a protective criterion level. Toxicity data for orga nisms such as diatoms, crustaceans and aquatic insects are also Important since these organisms are a food base for higher consumers and are representative-- of plants and Invertebrate epecies lound In most waters of the United States. On the basis of the foregoing data, a concentration level 1* sought which, it is believed, will provide that degree ol safety required by the Act for all impor tant organisms likely to b- affected by it assuming a continued or chronic pres ence of the pollutant at that level in the water. In th* cose of PCBs. as dis cussed below, this proved to bo nn ex tremely difficult task in view of the al ready dangerously high levels of PCBs in tome water bodies. After arriving at an ambler,t water criterion, the Agency examined feasible control technology to ascertain what concentration levels industrial dtscliarc- en might be able to achieve in their dilu ents, the availability of substitute piod- uet* for PCBs. and other factors rele vant to the setting of standards This proems is discussed more specifically below (see "Rationale for Standard"), after the following summary of the Agency's consideration of the available database. are actually in use or which ere or mar Studies documenting bioaccumulatton (1) Composition, cAemfeof and phys be available to Industries to control or in the food ehaln organisms and blo- ical characteristic* of PCBs. The com eliminate the discharge of PCBs. This re concentraUon by organisms directly mercial mixture* of PCBs lutve been rea port is entitled "Assessment of Waste from th* water provided aa important sonably wefi characterised. Each mixture water Management. Treatment Technol additional component date base. Appro contains 10 to I* major components and ogy, and Associated Cost* for Abatement priate human toxicity data and studies a number of minor components: more of PCB Concentrations in Industrial Ef than 90 of the 309 chlorinated biphenyl fluents.* and is hereby incorporated by reference aa a part of the statement of bash and purpose of the standards here The Agency aho fattens that the criteria document seif technology report and ouppwment b* made tmu 01* iliroujh tho National (CB) Isomers have been identified in the commercial mixtures. Alter release laio tlic environment the constitution of the in proposed, along with a supplement Technical lidimaUtt Bcrvict in Bnriiigftold, mixture* chances a* some comtwnrnt* thereto entitled "PCBs Water Elimina Virginia. sow degraded while others persist Bine* ftOKAL UOUTM. VOL 41, NO. 143--I1IDAV, JUIV JXl4 MONS 208262 PROPOSED RULES 30471 j/sm components are more toxic then The raw wastes from the manufactur Effluents from plants In this category others, this complicates the evaluation at the haeard* posed by environmental residues. ,. Highly toxic Impurities, polychlori ing area at Monsanto consist of the liquor from the scrubber, the condensate from the steam let ejectors, water used for showers and eye baths, miscellaneous ronr* between 2300 Nlons per day to 124 MCii. These effluents are discharged Into the navigable waters or are intro duced Into POTWs without any treat nated dlbcnrolurcms (PCDF**. ire pres floor wash drains, waste oil collected In ment directed toward PCB removal Ef ent In smell quo nti Lies In the range of drip pans and drums, and so-called fluent Information obtained for 14 plants I to 33 milligrams per liter (mg/1) In monUrx" which are the bottoms from Indicated that average effluent PCD con most commercial mixtures- Products their stills. The composition and quanti centrations ranged from less then 10 manufactured overseas frequently con ties of the Individual waste streams are *g/| to more than 6.000 -c/1 Average tain more PCDFa than American-made not monitored. All effluent streams gen mass emissions of PCBs from these plants Arodor mixtures. There Is evidence that erated in the manufacturing area are ranged from less than 0.01 ]b/day to PCDF* may be formed from PCBs both collected In sumps located In this area. nearly 3a lb/day. la service, end In the environment by Reportedly the aqueous discharges photochemical and metabolic processes. amount to 730 ug/I PCBs In 0.432 million (C) rRANSrOnMCSMAHUrACTOMHC Accordingly, the toxicity of PCD mix gallons per day ("MOD") or 3.7 lb/day. There are eighteen transformer plants ture 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 Monlanso consist of the manufacture transformers using PCB- freshly manufactured products. However. venturi terubber liquor and the waste containlni Askarel dielectric fluids. As- It is not possible to separate the toxic phase from the oil-water separator sump. karel transformer oils are blends of 60 effects or PCDF* and PCDs satisfactorily, Reportedly the aqueous discharges from to 100 percent Araclor 1354 or 1243 and and the environmental hazards of both this area amount to IS ug/1 PCBs In trichlorabenaene. ThU type al trans must be considered together, 0.218 mod or 0.36 lb/day. The total plant former constitutes only five to ten per PCBs are viscous liquids or waxes. They uses a maximum of 0.389 MOD of water cent of these plants' transformer manu are freely soluble in organic solvents and principally for cooling and a maximum facturing volume. The remaining In Uplds (tats), but have wry low solu of 360.000 lbs of steam- manufacturing volume uses mineral oil bility In water. In general, those PCBs in addition to the aqueous discharges. as the dielectric fluid, and there is some With fewer chlorine atoms per molecule It has been estimated that about 33 lb*, manufacture of air-cooled or gas-cooled are more soluble In water and more vola of scrap oil and "monster*' are produced transformers os well. A*karri trans tile than those with greater chlorine per ton of PCB produced, that about 3ii formers are used when other types are Atoms per molecules. Accordingly, the lbs of PCB In contaminated solids per ton unsatisfactory because of design Itmlta- . pfutures are dlfierentioted during vola ol PCB produced an landfilledviatty and *14000 dr where flammability is x prob tilisation and solution, the lower CBs that less than 1 lb/day of PCBS Is lost lem, The PCB usage In this category being more mobile. PCBs are strongly as air emissions. was approximately 12,000,000 tbs fn 1974. adsorbed onto surfaces and particles. In the aquatic environment their behavior tat cafacitox suvrovsempra . At least three of these plants have direct discharges and are therefore subject to Is often controlled by the presence and There on nineteen plants operated by. the standards proposed at this time. movement of sediment#. eventeen companies manufacturing PCB There are two principal types of trans (33 Releeont us# sad wastewater Impregnated capacitors In the United formers produced: electrical distribution characteristics--(A) JUanu/acttirlxp of States. At the present time approx tranriormers width are used to step PCBs, The sole domestic manufacturer imately 03 percent of all liquid-filled 'down voltages, and power transformers of PCTs Is the Monsanto Industrial capacitors manufactured In she United which are primarily used to step up volt Chemicals company ("Monsanto"), States are of the PCB Impregnated type. ages. Distribution transformer applica whoso manufacturing operations an The two most frequent applications of tions include use In networks, pad- conducted at its William O Krummrteh these capacitors are for phase corrections mounted and pole-mounted, and special plant In Gauget. Illinois. Aroclors 1321 on power lines connected to electrical precipitator power supplies located In and 1018 arc used by capacitor manu motors and for use as ballast for fluores dosed proximity to hot gas stacks. facturers ns dielectrics. Arodors 1343 cent lighting systems. The PCB usage In Quantities of Aakarel used in trans pud 12S4 are used as principal Ingredi this category was approximately 23,000. formers of this type range from GOO to ents In formulating the Askarel* used 900 lbs. In 1971 with mast of this being 3,000 lbs each. Many of these trans taf transformer manufacturers. Andor 1016. At least seven of the nine formers have provisions for venting with Monsanto discharges Its effluent to teen capacitor manufacturing plants spring loaded venting devices or dia the Bauget FOTW, and therefore is not have direct discharges to the navisable phragm rupture discs. covered by the standards proposed at this waters and are therefore covered by the Aakarel power transformer applica Ume. Tht Agency expects In due course standards proposed at this Ume. tions Include use In primary and second to propose prctrcstment standards sp- Mott plants manufacture either large ary substations, industrial fumaers, rec jdlcablo to this facility and to auy other power capacitors or small industrial type tifiers. rail transportation, and for react facility which may in like future manu facture PCBs, A brief discussion of Mon santo's operations and wastewater characteristics Is appropriate hem, how ever, In v lew of the fact that standards are proposed at this time for direct dis chargers for the PCB manufacturing units but not both. The large capacitors are either flood filled or manifold filled. All small capacitors are flood filled either In a vacuum tank or In on automatic "carousel" arrangement. The raw wastes originating from these plants consist of scrap PCBs collected ance and grounding functions. Quanti ties of Askarel used In transformers of this type range up to 19,000 lbs. Various transformer assembling and filling procedures are being practiced throughout the Indmtry. In general, the transformer assembling and filling oper category for existing and new sources, Monsanto's ability to achieve zero direct discivorge was else considered in propos ing Uicso standards. The iCrutnmrlrh plant has a design capacity to produce 48 million pounds of PCBs per year, in 1974. Monsanto pro duced 40.4GG.010 pounds, of which 34, 406.000 pounds were sold domestically, Approvlmsvlcly two-thirds of 1074 domes tic sales were of Araclor 1010 with most pf tlio rernn Inlng production evenly In tumps, drums and drip pons; con taminated vacuum pump oils; the frac tiousLor bottoms from the trichloroethyl ene recovery; the caustic bath used at some plants, for purposes of paint atripping; spent detergent wash and ruvae water from capacitor or component cleaning operations; rinse water used In the welding and plating operations; steam condensate from jet ejector*; the seal voter used In vacuum pumps: water ations consist of a predrying step for re moving moisture from the transformer Interiors, several stages of Askarel filling and topping, addition of electrical con nections and bustlings, electrical testing and sealing. Water Is not an essential component of transformer manufacturing. In general, the process raw waste* from these plants consist of waste Askarel collected In sump* or pans at the filling stations, divided between Aroclors 1243 and 1134, used In phosphatielng and fluoride bath; contaminated vacuum pump seal oil, Only rmnll quanUUes of Arodor 1211 water spray used in paint booths; boQcr contaminated kcmene-iike petroleum ` wars produced. Mowdown; and cooling tower blowdowns. distillate, and con laminated Askarel used , ftbttAt Mount, vol 4), ho. 1*3--uioat. jwr as, ivrt HONS 208283 80-172 PROPOSED RULES lor transformer Interior (lushing PCB wastes which reach rater streams at these plants are due to occasional lots most characteristic effects In rats are en largement of the liver, induction of hepa tic microsomal enzymes and porphyria. roilar In many respects to those observed among the population contaminated in the Yusho incident, during handling and residual* accumu Reproduction is adversely affected at (6) Persistence, inobililv omf itccn act- lated around drainage systems from past operations when Insufficient precautions dietary levels at And above 20 parts per million (ppm; 1 ppm is comparable to a ability. PCBs hove a long life In the envi ronment. often In excess of 25 year* but were taken against PCD losses. liquid measurement of 1 milligram per components with three or less chlorine Based on information from five plants, effluents from plants in this subcalegory ranged from 13AOO gal/day to nearly 1# MOD. These effluent* (predominantly eootlng water) are discharged into the navigable waters or are Introduced Into liter (1 nig/l>>. Rhesus monkeys are extremely sensi tive to PCBs. which induce skin lesions and gastric ulceration. Monkeys exposed to 2 5 ppm suffered reproductive dysiunctlons and some died after exposure to atoms disappear rapidly. Mono- <n ami tri-CBs are to some extent degraded or metabolised by bacteria, but higher PCBs are resistant to microbial degradation Tetra-ciuorinated PCBs can be metabo lised by birds and mammals, but pema- POTWt without ary treatment directed only 3 ppm. Adult female Rhesus mon chloriualed PCBs are resistant and toward PCB removal Average effluent keys fed 25 ppm of Aroclor 1241 not only higher CBs are metabolised only xcry PCB concentrations ranged from less accumulated the PCBs In their adipose slowly. Most environmental residue* have than a Sl/l to nearly 30 ut(\. Average tissue, but the PCBs were transferred been reported In the form of tetra and moss cmUilons of PCD* from these across the placenta of one female which higher chlorinated PCRs plants range from less than 4.002 Ib/day gave birth and concentrated at high PCBs are mobile in the environment to nearly 0.1 Ib/day. lave!* in the fat and adrenals of tbe In and are carried freely In Uie air and the fj) Torfelfy. PCBs Inhibit growth and fant. water attached to airborne or water cell* division In certain species of phyto-' Mfnk are also very sensitive to PCB*. borne particles. Conventional Incinera plankton (single-celled aquatic plants). In one experiment, most females died on tion and other disposal techniques do not Some sensitive species are affected at a diet containing 10 ppm and none pro completely destroy PCBs. * very low concentrations (0.1 ng/l>- The duced young at 5 ppm. In anothar test (D Sfoaecuotuldfion and btomagmfi. affects arc particularly marked In mixed 0.64 ppm caused total reproductive fail cation. PCBs are strongly concentrated cultures, where sensitive diatoms are re ure and a few deaths, ("bioaccumulated") from water into placed by resistant green algae. (4) Carcinogenesis. On prolonged ex aquatic invertebrates and fish. Bloiccum- PCBs are toxic to aquatle Insects, crus- posure of rat* and mice. PCBs cause a uiatton factors (concentration of PCBs in .daccanffl And other .invertebrate* at variety of morphological changes m the organisms compared to concentration in concentration! down to a few *g/l. Re liver, including hypertrophy, hyperplasia, water) for these orgatriimis are com production end growth In aquatic In adenoffbrosit and nodular hyperplasia. monly In the rongeor 20.000-274.000 after vertebrates are adversely affected at At high dose levels (100 ppm and above) prolonged exposure in the laboratory concentrations as low as 4.4-0.5 *1/1. PCBs induce hepatomas, neoplastic However, where measurements of con PCBs affect the settlement of larvae and nodules and carcinomas lr. rates and mice centrations in natural waters are avail reduce the diversity of marine Inverte and therefore pose a presumptive carcin able. bloaccumulatlon factors In fl:h and brates communities at concentrations as ogenic risk to man. In one experiment, Invertebrates are generally inrger than low as 4.1 rf/I. - PCB-treated rets also displayed an In those measured In the laboratory There PCBs are acutely toxic to estuarine creased Incidence of pituitary tumors. hate been reports that certain animal* aquatic organisms. For Aroclors 1016, Metabolism of PCBs hi mammals and < captured from the aquatic environment 1342 and 12S4. the 46-hour LCSQ values birds proceeds primarily through arene have appaicntly bioaccumulatcd PCBs In for brown shrloip. pink shrimp, and grass oxide (epoxide) Intermediates, which are their flesh to levels of between 3 end )0 shrimp fall In the range between 4 and biologically active and believed to be million times that of the aater concen >1 sc/1. In longer-term bloansayt of two highly toxic and carcinogenic. PCBs also tration in which tho animals aere cap weeks or more, Aroclor 1254 is toxic to have Immunosuppressive effects in rab tured. It Is Important to note, however, lbs commercially valuable penaeld bit* 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 Uie captured aquatic life, os tions as low at 4 4 to 1.4 *g/L Arthropods creased thi susceptibility of animals to well as the concentration of PCBs In are affected at 0.1 gg/1. various diseases. which these organism* resided for the Rainbow trout have been killed by ex (5) Human health effects. Humans oc predominance of their life periods, are posure to Aroclor 1244 at concentrations cupationally exposed to PCBs sometimes unknown. of 3.4 *g/l In 26 days, and by exposure suffer irom an occupational disease Fish in Escambia Bay, Florida had to Aroclor 12G0 at 6 *g/l In 10 days. Spot known as chleracne, characterised by PCB* levels In their flesh 670,000 over and plnfltb died when exposed for 14 to long-lasting skin lesions and sometimes the ambient water In which they were 44 days to 9 *g/l of Aroclor 12M. The systemic disturbance*. captured. PCB levels In the waters of lotvgnote klUUlsh ha* been killed by long In a large-scale poisoning Incident In Lake Michigan average around .01 g/i. term exposure to Aroclor 1254 at a eon- Japan In 1964, more than 1.000 persons However, PCB levels in fish in Lake 'CtotnxOon of 1 *g/l. . became sick with Yusho disease alter Michigan range in the 2 to 20 ppm , PCD* have adverse effect* on survival, Ingesting rice oil contaminated with range, wet weight (16-200 ppm, growth, and reproduction of fish at con both PCB* and PCDFs. Their symptoms lipid weight) Indicating an apparent bfocentration* a* low as 1 *hl. in one case, were similar to those of occupational accumulatlon factor ranging up to At cec* from fish exposed to only 4.1 sg/1 ehlorxcne. but also Included hyperplg- least 2.004,000 In whole fish. Levels of failed to hatch after being placed In PCB- menlatlon of the aktn, persistent eye dis PCBs In some whale and seal blubber free water, A variety of Oliver cubicthat charge and gastric disturbances. Chil mere found to be In excess of 1 million In toxle effects have been obserrod on a wide dren were affected not only by direct the ambient water concentration in ' rang* of freshwater and marine fish .present In waters tl.oughout the country, and thee* art set forth bt detail in the Agency's criteria document for TCB*. PCB* generally have low acute toxicity te bird* and mammals, but long-term dietary exposure leads to a variety of . chronic toxic effect*. . Rats are relatively resistant to PCBs and usually do not tlww the characteris ingestion of tbe contaminated oil, but also prior to birth by transplacental pas sage and In one case a child was contami nated by Its mother's milk. The of. fected perrons have Improved only slowly since 1444 snd there are already indica tions of excess cancer incidence. The Rhesus monkey provide* *n im portant Indication for human oenitillvliy to PCBs and, as noted above, is extremely which the animals were taken PCBs are further concentrated tbiomngnlfled) from Uie food of birds and mammals Into their tissues, especially Into their fat. Blomagnlflcauon factors (ppm In organlsma/ppm In food) arc often In the range 1 to 10 after prolonged exposure to the laboratory, but are oltcn as high a* 10 to 100 In wild animals and birds. Humans store PCBs in their fat tic lesions of live skin and stomach In- sensitive to low levels of exposure. The more efficiently than any animal for duetd In acveral other mammals. The symptoms following exposure appear al which precise measurements have been i hmial gfetmt, vol 4i, mo. iso--sav, mv u, ms HONS 06284 PROPOSED RULES 30173 mule. This lead* to treater exposure to "ample margin of safety" for all organ acrulUve organ* and tissue! In humans isms under all circumstances. However, then In animals exposed to the some con the data do establish, at this time, that centration* of PCh* in the diet-The data an ambient water quality level of .001 Indicate, In particular, that Aruclors 1010 pg/l should not be exceeded. and 1ZS2 art widely iireaenl In Ash In the To assess risks to humans, the most United Statu. Thu In turn leads to sub stantial exposure of human* and other critical toxic effects of PCBs ire those observed in mammals at the lowest ex fish-eating animals. . ,' (t) Ambient aaler criterion /or effect! posure levels. These include: (1) Mortality and reproductive failure on natural y*ferns. me foregoing sum- In mink at a dietary level of 0.M ppm. mar/ briefly highlights the extensive (ill Increased liver weight in weanling data base set forth in the criteria docu ment. mis data base demonstrate* that ]>CBi pane a certous threat to a vide range of aquatic and other food chain rets in the second generation of animals exposed to 1 ppm. and liver pathology tinehiding nodules) in the second gene ration exposed to 30 ppm. or|*nisms, as well as to human health, at Terr low concentration level*. There ap* pear to be some variations In the toxic effects for different Isomer*. Thus, the more highly chlorinated isomer* appear to be somewhat more persistent in the environment, while the lower chlorin ated isomen appear to be aomewhat more acutely toxic. These differences are relatively minor, since all Isomers which are significant constituent* of commer cial mixtures of TCDs are hlihly persist ent and mobile in the environment, and qoll isomer* display -a detree -of toxicity which It a matter tor crave public con cern. Moreover, the composition of PCB mixtures chances as Ihev are transported through the environment. There f* also evidence that toxic metabolites, or break down product*, may be formed, so that (ill) Etomach nodules and ulcerations in dog* at a dietary level of I ppm: Stomach lesions have also been reported from other species Including monkeys, pigs and mink. , .Or) Reproductive failure, dermal and stomach lesions In Rhesus monkeys ex posed to 2,5 ppm and deaths at 1.0 ppm. (v> Increased activity of hepatic mi crosomal enzyme* in rots fed at 0.5 ppm for 4 weeks. (vl) Carcinogenic effects in rats and mice at dietary levels of too ppra and above. (vtl) Apparent Increase In Incidence ot pituitary tumor* In rot* at dietary level* of 1 ppm and above. (rill) Widespread presence of PCBa in fish and other organisms regularly con sumed by human*. " the chemical specie* distribution in a All U these effects are relevant in water body may not be the same u the weighing potential adverse effects of apeclei distribution of the substance dis PCBs on human*. In particular, the charged. For all these reasons, there ap symptoms of poisoning In monkeys, in pear* to be no sound basis for setting dif cluding dermal and gastric lesions, are exceptions!, * prohibition on dtseharre 1* achievable bated upon currently avail. able technology and handling methods Based upon detailed plant inflections and examinations of the process steps tn the use of PCBs In the manufacture of capacitors and transformers it has been determined that the characteristics ot these waste* are sufficiently similar eo that the same kinds of control and ti em inent technologies are appUrabie The wastewater characteristics for manufacturers ot capacitors and trans formers have been described above Da ui available to the Agency indicate Oml a ater can be eliminated trom most if not all of the manufacturing-related processes, with the result that potential effluents can be sufficiently reduced In quantity so that they can be incinerated or other wise disposed of so as to reduce greatly or eliminate any discharge of process waste* to the navigable waters Where large volume* of water are used, treat ment end subsequent recycling can re duce quantities ot unavoidable blow downs to amounts suitable for treatment by activated carbon and discharge or by incineration. With respect to capacitor manufactur ing wastes, the scrap "PCS* collected m aumps, drums, and drip pans, as well as /rnetlonator bottoms from trichloroeth ylene recovery, are small in amount, and Can ba Incinerated. The same Is true for contaminated vacuum pump oils and any Caustic baths used tor paint stripping. With respect to capacitor and component cleaning operations, cleaning solvent* rather than water can be used, and then incinerated following use Water used In ferent criterion numbers or standard* for different Isomers, and accordingly, the Criterion and standards herein proposed are for PCBs fenerically. A criterion level of DM1 *.*/) would appear to avoid adverse effects to moat aquatic organisms. based upon an an alysis of both laboratory and field data. Tills level 1* based rrtmarily on the bloaeeuimilatlon properties of PCB*. Ftah hare been shown to accumulate PCBs by rectors as high as 174.000 in the laboratory, while considerably higher factors appear to occur fa their natural environments, lt*.<ed upon a Moaecumula lion factor of 374.000 a concentration of 0.001 Mifi could result la blowecumulatloo to 0.274 ppm In Oeeh, which is below the dietary levels which have been shown Injurious to aquatic birds and parallel to those observed tn man: en zyme induction Is a basic biochemical effect which has been observed In many species; carcinogenic effects In rodent* are generally used to predict potential carcinogenicity In humans, * It Is difficult to use the results of these experiment,* to establish acceptable Ionia of exposure for humans: tai Because many of the listed effects were reported at the lowest dietary level* Investigated; <b) became humans are exposed for much longer periods (Including prenatal exposure) than the experimental ani mals: and (c> because humans are known to *tore PCB* m their tissues more efficiently than the experimental ani mals- These data do, however, further support the proposition that an ambient water quality level of .001 g/l should Pbosphatlatng and fluoride baths by some plante can be eliminated, along with ihe entire process, by use of aluminum con tainers, Capaeitor manufacturers who use steel container* generally paint 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 need not be painted, if painting Is nevertheless desired, effluent discharge can be avoided by use of on air or electrostatic system instead o! a water/ell for trapping paint particle* and fumes. Aqueous discharge from cooling tower blowdowns can be reduced by use of a re cycling system based on demineraliza tion or, alternatively, by incineration of mammals who may feed upon them. In not toe exceeded, end, beyond this, that blowdown. Any solid waste residue, which addition, however, there It evidence that every reasonable effort should be made to will not Include PCBs. ean be disposed of In tome waters some fish bl(accumulate limit discharge* of PCBs In order to mini by landfill. Boiler blow down, which Is not at sates roughlr ten times this, and in waters where the chronic level generally exceeds Ml *f/l. such as take Mich lean, then Is rrtdmce of tublcthel toxic effoots eo the fish. m propottnc this ambient water cri terion the Agency recognize* the possi bility that such writer quality level may not provide absolute safety for all orCanbxns in all water* lodged then prob mize human exposure. (0) Control technology amiable. At the present time there are no direct dis charges ot PCBs trom a PCB manufac turer end thus no in-place technology to evaluate. The only UR. manufacturer, Monsanto, discharges to Uie Sauget. Illi nois POTW. With respect to process waste effluents from PCB* users, water It unnecessary to tile processes Involved likely to contain any PCBs. ean be seMcd In drums and landfilled or treated by the activated carbon treatment system With retpeel to transformer manu facturers, as with capacitor manufactur ing. all scrap PCBs collected In sunns or pens can be Incinerated Contaminated vacuum pump seal Dll. petroleum distil late. and askare! used for transformer Interior Bushing can also be incinerated ably Is no numerical concentration Icrel In the mannhielurc of liquid-tilled ca Each of these controls has been demon shore arm which one ran at this time pacitors or transformer*. Consequently strated by use by at least one of the ay with gnat confidence provides an for process state (with certain specified covered plants. recital tiewH, vol 41, wo. isj--,mat, jwt , mi \ HONS 208285 30474 PROPOSED RULES Several potential source* of proee**-rt- sufficient Information was available to those permit proceedings *re less strin bled waste may in some cases mult In evaluate these systems. gent than Ute limitation* which would be tAutnis which cannot he avoided feast' (10) economic Impact. The Accney required by these proposed standards bly In tht near term: Rlnscwaler used In recognises Uist there may be significant under section 307(a). The Agency im r-es welding, painting or plating operation*, coats and economic impact* associated comments on the comparative tcr-ii* and scrubber and quench water Irum with the standards proposed at this time. noiocy. costs, and result)ne economic im Incinerator operations. The Agency has mode a preliminary as pacts associated with those limlinuonx *s These categories of process-related dls- sessment of eosts and economic Impact, compared with Ute standards hei emu Iter chiei, at well as non-process related which fat summarised below, preliminary proposed. If Interested persons bciiew eSutnU. Including plant washdown, non cost estimates as act forth in Ute report Utai a modified standard is ptcierHble to contact cooling water, and muon from submitted by Versar. Inc. (Bee Appendix that proposed, they should take appro atonnvratcr or spills, cun be treated by A hereto, item 4>. Indicate that com priate measure* to develop and enter into carbon adsorption ** described below. pliance with Uve pro)>oacd standards may the record the spproptiale sunpoiiinc It should bo noted that ERA-sponsored result In additional costs of production data and information isee Public Par investigations have revealed that there equal to or greater than five percent ol ticipation in Rulemaking Process, below i an no In-place processes being employed the selling price of the products (trans (II) Jtattowafe far itandard in dis . whereby dissolved or sorbed PCB* in former! and eapneitorsi. thus identifying cussing the establishment ol an ambient water streams are being either ex tracted from those streams or destroyed within them, in general, these waste this regulation tentatively as a major action requiring the preparation of an Inflation Impact fitateeaint (EES) pur ww'-r criterion number above, it was em phasised that a concentration ol oo: rg/1 should not be exceeded and. In addi streams contain concentrations of PCS* suant to Executive Order 11121. A more tion. that every reasonable effort should of less than 1 g/l up to about soo ag/1 with many instances occurring hi the 10 to SO g/l ranee. While several of the plants have practiced PCB segre detailed asoessment is currently beins prepared by the Agency, and will be ac companied by an DS. if necessary. The availability of these documents upon be made to limit discharges of PCBs in order to minimise human exposure in deed the data suggest that to provide an "ample margin of safety" for human gation to keep the quantity of con taminated wastewaters at low as possible, non* has installed lull scale terminal fes removalfacilities. The EPA through Its contractor, Tartar, Inc., has identified a technology their eomptetkm will be announced in the Pnmi Rsoisrse, and public com ments thereon will be Invited. These documents, together with ail public com ments (hereon which are received -by the Hearing Clerk postmarked not biter than health, end possibly for some other or ganisms aa well, an ambient water criterlor far lower than ,001 I may be re quired. though at this Ume one cannot onfldentiy identify-any specific number above sera. which will reduce the PCB concentration to wastewater* to 1 r%/i or lees and which Is ceptble of being installed within thirty days following the aforesaid notice of availability of these document*, shall be made a port of the record of these At the present time, even if every point source discharge were prohibited, PCB concentrations lr. the water would rrmsi.t cm year. The identified system is based upon activated carbon adsorption, fol lowing primary treatment consisting oi sedimentation, filtration, and skimming. rulemaking proceedings (tee Public Par ticipation In Rulemaking process, below). The standards are being proposed at this time prior to completion of toe economic for a long Ume not only above wio. but in soma water bodies, above' .001 -g,l Moreover, since the capability does noi exist presently to measure PCB concen The feasibility of achieving the 1 at/1 or leas levs! hsi been demonstrated to laboratory testa conducted cooperatively between Vemr, lnc,, and two activated carbon suppliers. Carborundum Com pany and IC1-U.S. The system consliie of an cqualisation-setUIng tank and Impact assessment in light of the order tration* below 0.901 sg/1 with any rea and decree entered by the United States1 sonable degree of reliability, no useiul District Court In Natural Resources De purpoa* would bt served In establishing fease Council el t v. Train, Civ. Mo. a criterion number below tbit. 2153-23. and consolidated cases, on June t, ] $1$, requiring proposal of these stand In light of the foregoing considera tions, the Administrator hat neighed ards by July 14, It1. eorefulty the desirability and feasibility mixed media filtration followed by car The Agency's preliminary assessment of Imposing a prohibition on any dis bon adsorption. Floatable and sludge* of eosts and economic impact suggests charge of PCB* from any point source from the equalisation-settling tank and that transitional impacts may be signifi la the com of existing mamilactuj ert pent carbon are disposed of by incinera cant. The preliminary estimate of the tola can be done since toe only present tion. Carbon adsorption ha* also been coat of compliance indicates aggregate PCB manufacturer doc* not hive a direct successfully used In full-scale operation capital oasts for the direct dischargers of discharge. A similar requirement is im to achieve removal of pollutants other $12 million and total annual costs of $7 posed upon new PCB mnnufacunin; ' than PCBs down to comparably low torsi*. million (based on a 1-year depreciation schedule). The annualtoed costs repre source*, who would be required in effect to either achieve x completely closed svs- Based on wort performed cooperatively sent $ to 21 percent of current selling tem or discharge into a POTW. with re between Vetaar, toe. ami Houston Re .price* for transformers and 3 to 17 per spect to transformer* mid eapacrtoi*. ' search on one system and Westgate Ra cent for capacitors, the Indicated ranees both toes* Industrie* provide Important , search on another system, it was indi resulting from the types of transformers product* to the United States ccononu cated that systems employtog osonailon to conjunction wMli wHmvtolet radiation and capacitor* produced. These costs may be of sufficient magnitude to induce clo for which there are no presently pi o- cn substitutes. Moreover, the best reduction tan be designed to achieve any desired sure* of some small and/or marginal levels which available technology mu sBuent PCB concentration. Preliminary plants and conversion to substitute ma achclve with respect to an emueni dis comparisons of Uie capital costs between terial* for others. It Is not certain that charge containing PCBs appear to be 1 the oaons-UV system end activated car such conversions could be carried out In sg/1 through the use of carbon adsorp bon system show at least a 100 percent greater east for the oaone-UV system, when protreatment costs are included the eaane-UV system Is only about 10 percent higher than activated carbon. It ts doubtful Itowcver. Uuit the osone-UV the one year allowed by the Act without causing disruption of the supply of trans formers and capacitors. Additional anal ysis will be eorrled out to assess more completely these types of Impact*, ft* well as to Identify other types of economic tion treatment. Tills exceeds the ambient water criterion by three orders of magni tude. Discharge of relatively modest rmoimu of a pollutant into toe water at m.nu times Use ambient water criterion mi) be system could be Installed within one year, effects. allowed, however, without iiccf-sarily the maximum period of time between In addition, toe EPA Is currently en falling to provide safely for affected oi - pnxnulgeUoM and Ute effective date of gaged in issuing NPDES permits pur gftnUiut. first, the actual discimrrc con these standards. suant to section 403 of Ute Act applicable centration docs not normally remain me Other system* evaluated Included ad- to point sources which will be covered ambient concentration. In fact, the rf. aofptlon by polymeric resins, catalytic by those proposed standards. In some In Illicitl disperses following dlsrlinrge and reduction and catalytic oxidation. In stances the limitations being proposed in becomes greatly diluted. The area of dl- KMtAt sionm, vet 4i. ho. hi--ar. mi t*. m HONS 200286 PI0P0SE5 RULES 3M75 lullon U Mien referred to u & "mfxlng one", end will vary In size and shape from one body el eater to the next and from one discharge to the next. The re sult of this Phenomenon is (hat once the effluent reaches the outside of the mixing sene, the pollutant ceneentretlon may ViiKMie type Holler biCwdown*. lncinrtmtor scrub ber water. nwtn.uwcliM Type 0/ frehnotogp aypffed PUter, d*mnxtril*, ue recycle. Pretrutme&t and car bon adeorptioa to t ,,g/l or l*s*. PitUewtnwnt end car most receiving waters. In the achieve ment of Uie degree of protection envi sioned by the Act. The Agency recoenitts. however, that there may be a lew cases where, because of local receiving water conditions, notably with respect to hydrology, sufficient dispersion and diiu- have become diluted by a factor of *ev waMs*,* bon edsorptioa to 1 Uon may not take place. To deal with ent hundred or more, and Indeed may *1/1 n less. such ease*. I IIO.T of Subpart a (the not even be detectable by the most so* BcnIUry 1WPOTW. general provisions of Pan IZO: see stand phUUeeted monitoring equipment, Coti- eededly, in some instance* there may be adyerse effects on some orcanisms In the Immediate vicinity ol the outfall. How Men. A*ln(tll ninol.... Bnelee* trtu M pre- traatmrat and earWon adioipUoa. ards proposed on June 10. mu. d m 235K) alloe-t the applicable m>Dl;S per mit issuing authority to impose such more stringent effluent limitation* a* may ever, for chronic effect* to be observed, include* hot sotow dip rlnso water, be required In order to achieve or ap the exposure time would have to be quite lengthy--perhaps a lifetime. Even acute toxic effect*, which normally occur at much hither dotage level* than chronic effects, are generally recorded based upon pheepheuslng bath weeUwnUr*. U plating bath end rinse water*. SiwU* b*ih end riu* waters and pelntlng weter spray. Tbeie are email In volume and tooy occur to only a aliigle pleas. proach the ambient water criterion level. In this case .001 eg/1, at least beyond the boundaries of any reasonable mixing tone. In addition, more strineent levels aaay be. imposed to meet any applicable a is-hour exposure. Because of the ex Using this technologr reeults in a pro water quality standard, see | )20J(e). It traordinary persistence of PCBs reliance hibition on discharge of PCBs tram any is possible that an exercise of these pro on mlxlnc cones, while of assistance In point source to the navigable waters in visions could result in a plant closure the Immediate future, cannot be regarded volving solely process waste* with the However, by allowing some considera as a long-term solution to the problem. exceptions noted In the above table, 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 Aceney also considered the availa to the 1 of/1 tent w tower. Tilts tech ecological and health effects are para bility of substitutes for PCBs fa trans nology substantletes a standard of a mount, the approach taken under these formers and capacitors. Several com prohibition of PCBs to process wastes standards make* It reasonably probable panies have developed products which (except for certain spccifted wastes) and that If there arc to be any shutdowns, they believe are an adequate substitute treatment of other discharges with soti- they will occur only after a site-specific Ser-PCBt to transformer! and.efforts jtre ' sated .carbon, reducing PCBs to 1 st/1 examination, and only because of a fail under way to develop substitute* lor or 1ms. Although occasional deviation* ure to maet the aafety requirements ml PCBs in csbscltors as well. At this time, are unavoidable, at no time may any section 30T(a), however, It is still too early to determine such allowed discharge exceed g *g/l for Finally, It Is recognised that to allow a with confidence whether the substitutes samples representing a working day. discharge at the proposed levels may pose are not only functionally effective but. In For new sources, where further tech some risk of advene effects to some or addition, are safe in terms of potential nology advances can be reasonably ex ganisms, particularly those located near Are htsard and other safety considera pected, a more stringent limitation may the outfall, and possibly to the consumers tions. and ere environmentally safe, Tha be set to take such expected advaneee thereof. However, based upon prelimi Afeney ha* concluded thet it cannot at Into account, including advances in cen nary Information, this risk 1* deemed to this time set a toxic pollutant effluent tral technology and in substitutes for be outweighed at this time by tha soclel standard, or prohibition on discharge, PCBs. Limitations of oj og/1 on the daily and economic benefits represented by not upon the assumption of the ready avail avenge per month and O.S ot/1 maxi setting a standard which would force ability of a substitute product. However, mum at any time should be achievable widespread closure* of plants manufac the Agency Is pursuing an setlve policy to (the ozonation-UV data so indicate) and turing capacitors and transformers, encourage industry to develop as rapidly ate 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 ol these essen * Because of the absence of any proven discharges from transformer and ca tial product*, or lead to Importation of satisfactory substitute for PCBs in cer pacitor manufacturer*, and from dis product* containing dielectric* which are tain transformers and capacitors, it charges resulting from scrubber and even more environmentally hazardous. must be recognised that to Impose a pro quench water from Incinerator oper (Iff) Subicquent review of itanaardi. hibition on aft PCB-contalninr effluents ations. Par the reasons discussed above, It continue* to be the goal of the Agency at this time would probably cause a se no new source discharge of PCBe will to reduce the presence or PCBs In the vere Impact on the transformer and ca be allowed which result from Jet ejectors environment to the grratost extent pos pacitor manufacturing Industrie* which er rtns*water from welding or plating sible as rapidly as fensipte. for all ef the utilise PCBs, and deprive the nation of operation*. reason* outlined above. Indeed, as addi the future availability of products which The maximum daffy permissible con tional data become available to the Agen utilize such transfonntn and capacitors. centration is baaed upon on application cy. it may be necessary to revise in sub Accordingly, in the arepoasd standards factor of five times the maximum aver sequent proceedings both the standards the Administrator is requiring that dta- age monthly concentration factor. This and the ambient water criterion estab eharges be prohibited where possible, end h provided to take into account the tact lished pursuant to the present rulemak that other discharge camply with tha that occasional dolly concentrations ing in the direction of greater stringency very best results which available tech may exceed the required maximum In order to provide the degree of safety nology can achieve. Per the manufactur monthly average. They should not be required by the Act. ing ef transformer* and capacitor*, the allowed at any Ume to exceed the lowest The Agency Is obligated to review and standard* are bated on the following tab feasible celling, however, and the where necessary, revise It* section 307isi ulation: Agency's informsUoo with respect to standards at toast every three years. The WestSMicrtgp* Kmweetest soot ing tmtsv. Sitcra |tl ro&dtn- Typ* */ techaalofg eapHes Ooct in aimed radiator ymai one recycle, neyuec team pi* carbon absorption and analogous treat ment techniques Indicate that a variabil ity factor of Avw la Mhfevable and reasonable. Translating an ambient water criteri Agency intend* to review the proposed standard one year following promulga tion, with the expectation that industry wilt have mad* significant strides to wards the development of reliable sub with aweksnM on number to an end-of-the-ploe stand stitutes for PCBs. a* well a* in the field pumps. ard la at best an imprecise calculation. of control torltnology, so Hist a prohibi Deterges* vsahtng wain. Jtrptee* with eolrent veper degreasing. Hie dispersion and dilution factors dis cussed abort art expected to result, in tion on all discharge* of I'CUs in any in dustrial effluent can be considered st that ffofiAi grams. vol 4t, mo. ui--nmar, wtr >i, iw HONS 2082*7 30176 PROPOSED RULES time. Including sources not covered by thirty days following the aforesaid notice Bee. - the standard* proposed at this Umc. of availability. All parties to the public 1*0 7 Rtqulnmani and proevdure for m. Pvuc P*ncir*noK ik Rulckmokg PlOCBt A publlo hearing to conatdcr Uta pro posed effluent standards will be held pur suant to section 507(a) 12) of the Aet hearing on tne proposed standards shall be allowed a reasonable opportunity to examine this economic impact assess ment and any comments therein, and to respond thereto on the record To this limited extent and for Oils limited pur establishing a mora effluent limitation. 123 4 Compliance dait. m 5-13999 (Reserved | 135 100 Aldrln'DIeldr In 139 151 DDT. DDD and DDE 135.103 Endrtn. stringent Commencing on Aueust 20,1970. nt 10:00 pose only, I hereby waive Use time dead 135.153 TocAphent. m. in Room 2409. Waterside Malt. U-S line requirements for Uie filing o( pub- 135 10* Danalillne. environmental Protection Agency. 401 lio eommenu under 1101.3(d) of the 130.106 Polychlorinated Biphenyl* (PCIR). 51 Street, SW,, Washington, D C. In ac Agency's Rules of Practice for Public AuTHoarTT--See* jot. jpg. aBa M1 ot ^ cordance with the Agency'* rule* of prac Hearings on Effluent Standards for Toxic Federal Water Pollution Control Act Amend- tice teverafeif public hearings on effluent Pollutants. 40 CFR Part 104. as amended, mrms of 1573 (Inin l. 3-soo. sc sm standards (or unle pollutants, 40 CFR 41 FR 17890 (April 29. 19781. so as to S3UEC. 11*1 ejieq.l, ' Part 194 as amended. 41 ?R. 17808 et seq. (April 29. 19701. the flnt hearing day shall Include a prehearing confer ence at the above time and place. All persons Interested in participating In allow the filing of materials and com ments described In this paragraph within the time period herein aet forth, and I accordingly direct the presiding officer at the public hearings to be conducted on 2. Bubpart A of Part 129 is further amended by adding new paragraph to to 1129.4 to read as follows: C 129.4 Toxic pollutants, those hearings as objecting parlies these proposed standards to ensure that 1 should refer to the amended rules of the record Includes ail materials which (f) Polychlorinated Biphenyls (PCbsi praeUee. 41 Fit 17C98 etseq., and should are (lied In conformity with this para --polychlorinated biphenyl* (PCBsl not rely on previous editions. Any per graph. The Agency has the legal author means a mixture of compounds composed son who has any objection to any stand ity to modify or waive strict compliance of the blpenhyl molecule which has been ard proposed herein may flic with the with Its rules of practice in exceptional chlorinated to varying degrees. Hearing Clerk (A-100), Room 1019 WSME. U.S. Environmental Protection Agency. 401 M Street. 6W.. Washington. D.C. 204SO, within 28 daye of the dale of circumstances such as the foregoing when the ends of JutUca require. Cf. American Farm Lines v. Block Bail Freight Service, 397 UB. 833 (1970) and ` I.'Bubpart A of Part 129 Is further amended by adding new 1129.105 to i cad as follows; tMi notice, a statement uf objection In wavescited therein. . J 129.105 Tot) chlorinated biiilirnils triplicate which shall meet all of the re quirements of 40 CFR 104.3 (al and (b). These Sections require, among other things, actual receipt by the Hearing Clerk of any objection within the alore-tald Ume. 77)e presiding qQger may re fuse to permit any person totmrticipate In said bearing who lalls to comply with any of the provision* of thoee sections. In addition to the foregoing, any per son interested In this proposed rulentail ing but who docs not participate as a party m the formal hearing may submit written comment* to the Agency on the proposed rulemaking. Such comments should be filed In triplicate. U possible, and should be addressed to: Hearing Clerk (A-100). Room 1019 WSME. UB. Environmental protection Agency. 401M Street; 6W,, Washington, D C. 10400. All comments which are received by the hearing clerk and which *re postmarked in or before August 30.1976 shall become a part of the lies ring record In the man ner prescribed In 40 CFR 1945(d) and hall be considered by the Administrator prior to the protnuigaUon of final stand Dated: July 14,197*. Rvum E. Tasm, Administrator. Amnn A * t. Criteria Document for Polychlorinated Biphenyls (EPS. tan C. T. Klibet, FI*. D,, 1ST*]. Including general Introduction t. PCS* In ths United state* Industrial Vu and Environments) Distribution (Doc. Fa. CPA 840/9-74-005 February 9. ir). 3. AtsessiMbt of Wastewater Management, Treatment Technology and Associated Cost* tor Abatement ol PCS* Concentration* tn Industrial Effluent* (Doe. No. EFA WO/5--70-- 004 February S, 1*74). 4. FCBs Water EUmlnaUon/Reduetlon Technology and Associated Coats. Manufac turer* of Electrical Capacitor* and Trans formers: Addendum to Final ntport, Task II (July S, 1ST*) I suppleaunt* item *>. I. Conference Froetedfflg* of U*c national Oonforanc* on FCBt (Doc. No. EFA 550/4-74 004: Oonferencs heM November l*7; pro- easding* publish*d giarth 1474). *. xuaa at Fiopasad Kulemakln*: m proposal of TOsle Pollutant Effluent Stand ard* for Aldrln/Dteldrla. DDT (DDD. ODE), Endrtn and Toxaphtna, 41 nt *5*7# (Jam (FCDa). 1 (a) Specialized definition*, (]> "PCB Manufacturer" means a manufacturer who produces polychlorinated bipciijls. <21 "Electrical capacitor manufac turer'' means a manufacturer who pro duces or assembles electrical capacitors in which PCB or PCI)-containing com pounds arc part of the dielectric. (3) "Electrical transformer manufac turer" meant a manufacturer who pro duces or assembles electrical trans formers tn which PCB or PCB-eontiin- Ing compounds arc part of the dielectric. (4) The ambient water criterion for PCB* in navigable waters 1* o ooi *g/i <b) PCB Manufacturer--(1) Appli cability. ft) These standards or pro hibitions apply to: (A) All discharges of process wastes: (B) AIL dlsehtrges Iran Uie manu facturing or incinerator areas, loading ami unloading areas storage arras, and other areas which are subject to direct contamination by PCD* as a result oi iho manufacturing process. Including but not limited to: ards. In addition, tn accordance with the discussion abows concerning eoononiic Impact of the iLowdarri* proposed at this time, the Agency w# publish in the yuan. RceisTBt approximately ninety days feUowlng the date of publication of this notice of proposed rulemaking an 19 1474). 1. In 40 CFR Fart 120. Subpart A (as proposed at 41 FR 23576 (June )0. 1971) and'amended at 41 FR 27017 (June 30. 1976) the table of content* is further amended to read aa follows: ' FART 129--TOXIC POLLUTANT LI) Stormwater and other runoff; (2) Water used for routine cleanup or cleanup of spliia. (11) These standards do not apply to atormwatar runoff or other ctisrhaiges from areas subject to contamination solely by fallout from air einh-..cus of PCB*: or to stormwater runorr tiiai evi announcement of the availability of the Agcncyb economic impact assessment with mpeet to the proposed standards. The document or documents setting forth this assessment shall be made part of the record of the rulemaking proceed ings on these proposed standards, to gether with all comments directed spe cifically thereto aliteii arc received by the Hearing Clerk at the above address, effluent standards gubaart A--Task PelMaat Effluent SUadards and PiaMMUent ' Bso. 110.1 Scop* snd purpose. 1205 Drflniuona. 1395 Abbreviation#. 130.4 Tusk pollutants, mi Conipliant*. 1305 Adjustment of effluent standard for prrsetieoof task pollutant tn Vh cted* that from the ten year -M-hour rainfall event. (2) Analytical Method Acceptable FnViroomenLal Protection Agency method specified In Pert 136 of this chapter, except that a 1 liter sample size is re quired to Increase analytical tens Unity. (2) Eftnett 1 Stamfords--(I) Friiffnp sources. PCBs are prohibited hi any dis and which are postmarked not later than mukawntcr. charges from any PCB manufaeluter. IfMIAt uoimi. VOL. 41, NO. Ill-IIBAT, AAV 23, Nfi HONS 208288 PftOPOSEO RULES JHM77 <U) New taureet. PCBs are prohibited In any discharge from any PCB manufacturer. (cl CiteIrkal capacitor manu/oe- turn--(11 Applicability. (1> These stand ard* or profttbHlona apply to: (A) All dUcharca* oI process wastes; and (B> AH discharge* from the manufac turing or incineration areas, loading and unloading areas, storage areas and other areas which are subject to direct con tamination by reus as a result of the manufacturing proem. Including but not limited to: (i) Btormwater and other runoff: and ( Water used for routine cleanup or cleanup of spills. (U) These standards do not apply to stormwater runoff or other discharges from areas subject to contamination solely by fallout from air emissions of PCBs; or to stormwater runoff that ex ceeds that from the tep year 14-bour rainfall event. (31 Analytical method acceptable. En vironmental Protection Agency method specified In Port 136 of this chapter, ex cept that a i liter cample else is reauired AoJaerpatp wtalyt leal xenslUvity, (31 Ejtvenl standards--(l> Existing sources. (A) PCBs are prohibited in all process wastes discharged with the fol lowing exceptions: chlorinated biphenyls concentrations ex ceeding an average per working day of 1 eg/1 calculated over any calendar month: and shall not exceed 6 /! in sampleU) representing any working day. (Ill New sources. <A> PCBs ar* prohib ited in any process -wastes discharged with the exception of scrubber and quench water from Incinerator opera tions: and (Bl All other discharges from a capac itor manufacturer shall not contain polychlorinated biphenyls concentrations exceeding au average per working day of e.t eg/l calculsted over any calendar month: and shall not exceed OA *g/l in sample (a) representing any working day. (si The standards set forth in this Subsection shall apply to the total com bined weight or concentration of PCBs. excluding any associated element or compound. (dl Electrical transformer manufac turer-- (1) Applicability. (1) These standards or prohibitions apply to: (A) All discharges of process wattes; and (B) AU discharges from the manufac turing or Inelneratlon areas. loading and unloading*ra.*tOTMeArea*, and other areas which arc subject to direct con tamination by PCB* at a mult of the manufacturing process. Including but not limited to; ceeds that from the ten year 2i-hour rainfall event. ill Analytical Method Acceptable En vironmental Protection Agency method specified in Part 136 of this chapter, ex cept that a 1 liter sample size Is required to increase analytical sensitivity. (31 Efflvent standard*--Mi Exisifne sourer*. IA) PCBs are prohibited In any process wastes discharged, with ihc fol lowing exceptions; U> Water used In weldma. plating or painting operations: and (2) Bcrubtocr and Quench water from incinerator operations. <B) All other discharges (including each of the exceptions set foith in the preceding section (All from a trans former manufacturer shall not contain polychlorinated biphenyls concentration* exceeding an average per working nay or I of/1 calculated over any calendar month; and shall not exceed 6 *g/l In aamp)e(s) representing any working day. (11) New source*. (A) PCBs are pro hibited in any process wastes discharged, with the exception of scrubber and quench water from incinerator opera tions: and (B) All other discharges from a trans former ntanufactui a shall not contain polychlorinated biphenyls concentra tions exceeding an average per working day of OJ ug.'l calculated over any calendar month: and shall not exited ` (!) Ws.tr used in welding, plating or (f) Stormwater and other runoff; and. 0.6 xf/1 In sampled! representing any painting operations; and (3) Water used for routine cleanup or working day. (11 Scrubber and quench water from Incinerator operations. (B) All other discharges (including oath of the exceptions set forth in the preceding section (A)) from a capacitor manufacturer shall not contain poly elaanup of spills. 01) These standards do not apply to stormwater runoff or other discharges from areas subject to contamination solely by fallout from air emissions of PCBs; or to stormwater runoff that ex (6) The standards set forth in this sub section shall apply to the total combined weight or concentration of PCBs, ex cluding any associated clement or com pound. |PR Doc.74-21SM rilfd 7-23-TS;6:46 am] V. > IBDtlAl IfdiKli VOL 61, NO. Kf-flOAl, AAV M, ISM . HONS 208289