Document LoJepBmMyEzy98y9j3gLKEm55

*JG6 PROPOSED RULES ENVIRONMENTAL PROTECTION ufacturers of PCBs and manufacturer* the Inherent limitations of point source AGENCY of transformers and capacitors who use discharge control, towards the degree of . [4QCFR Part 129] PCBs wnAwnliMtoetaMffM^imMirM^ protection for aquatic and other orga HMMoadgnbiMMlMOr Standards are es nisms and human health envisioned (fMi m*-*i 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 Toric Pollutant Effluent treatment works, os defined in section lished in this rulemaking as additional tenderds for Polychlorinated Biphenyls 212 of the Act (sometimes referred to as data become available to determine Moilea to hareby given thAt the En- "indirect dischargers"), are not corered ftronnwotod Protection Agency, pursuant by the standard* herein proposed. How l tha authority contained in section ever. the Agency will propose protreat MTU) of tha Federal Water Pollution CMtreJ Act <tho Act) as amended by ment standards in due course for such in direct discharges pursuant to the au tha PMtoral Water Pollution Control Act Amendments Of 1972 (Pub. L. 92-500. 98 SUL 918. ts UBC. 1291 at seq.). pro. thority contained in section 307(b) of the Aet following proposal of these stand ards. poaaa additional sections to Port 129. setttnf forth proposed effluent standards for The term polychlorinated biphenyls re fers to a family of organic chemicals polychlorinated biphenyls (PCBs). On which have been produced and marketed Just 10.1970. the Agency proposed a new Part 129. setting forth proposed effluent In this country for approximately 45 , years. These organic chemicals are syn standards for the following toxic poUut- thetically made and consist of a number oats: aldrtn/dleldrin, DDT <DDD. DOG). of chlorinated biphenyl Isomers. They are gadrin and toxaphene. 41 Fit. 23576 et highly stable compounds and are used eeq. On June SO. 1976. the Agency pro primarily as dielectric and heat transfer whether further protection, including more stringent standards, to necessary and feasible. X. Bsctcsaooif* . peat nr tns nrvztoiramrr * PCBs are a class of organic compounds manufactured by the chlorination of biphenyl with anhydrous chlorine using iron Alinas or ferric chloride as a cata lyst. The biphenyl molecule has a total. of tan carbon-hydrogen bonds at which ehlorine substitution ean be accommo dated. In the manufacture of PCBs. any where from one to ten chlorine atoms may be located on the biphenyl molecule. Depending upon the location of these posed affluent standards for bentldlne. 41 fluids, though they have other uses as substitutions, theoretically as many as PJL 27012 at seq. Those five pollutants, well. PCBs have been conclusively de 209 separata compounds, or isomers, of a* well as polychlorinated biphenyls WPCBet. were Included -on-* list -of-toxic pollutants previously published by the Agency pursuant to section 307(a)(1). MFJt. 24943 et seq. (September?. 1973). Beotian 307(a) <2) of the Act provides as follows: Within m bundnd tad eighty days after Um data at publication of any list, or rarities thereof, containing teals poiiutaata or comof pollutants under paragraph (l) at this suhsMtien. the Administrator, in eceaidenoe with aeetlon 683 of Title a of the monstrated to produce lethal and subieJhal toxic effects at low doss levels upon a wide range of Ash. zruomnato, and other wildlife, and have also demonstrated ad verse health affects to humans. Moreover, they ore highly mobile and persistent in the environment, and bioaccumulate greatly in tissue. The sole manufacturer in the United State*. Monsanto industrial Chemicals Company, currently produces approxi mately 40 million pounds of PCBs per year. Imports of PCBs currently amount the chlorinated biphenyl family can be manufactured. The PCBs manufactured hr are marketed under the trade name Arodor. followed by*a four digit num ber, with "biphenyl" represented by the first two digits "12". and the approxi mate chlorine percentage represented by the second two. Thus. Aroclor 1242 to a mixture containing approximately 42 percent chlorine. The principal Aroclocs which have been marketed over the past deeade by Monsanto are 1221. 1232. 1242. Polted Itstee Cede, shell publish a proposed to about 0.4 million pounds per year. 1245. 1254 and 1260. although at this isnl elandsni (or prohibition i for aueh Since 1970 Monsanto has voluntarily time there to no active marketing of 1232. pallutoat or eomMnetlon of poUuteoU vbleh ehoD take into account the toetelty of the peUtttent. its persistence. dtgrodobuity. the wool er potential praeeoee of the effected eegoofsios fo any ntm, the importance of the affected erseolema erd the nature and aslant of the effect of the toxin pollutant no Mb organism. nod he chall publish a no 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 sig nificant sources of further contaminatlan or potential contamination resulting 12U or 1280. In addition. Aroclor lore (on exception to the previously identified nomenclature system) to being marketed, and bears approximately 41.3 percent ehlorine. For an extensive discussion of the chemical and physical properties of PCBs, see O. Hutxinger. S. Safe, end V. tice for a public hearing on eueh prepeoed from the discharge of domestically man ZUko. "The Chemistry of PCBs." CltC standard to ha held rlthio thirty days. As soon as possible after such hearing, but not taler than .els month* after publication of the proposed eausnt standard <or ppsHIUl- tlan), unlaaa the Adralnlatraior ande. on the taaord, that a modlflesuon of such proposed Standard (or prohibition) a jueOOed b--d ufactured PCBs Into the aquatic envi ronment. *\ The proposed standards Include a pro hibition on discharge of PCBs by any PCB manufacturer. With respect to any manufacturer of transformers or capac Press. 1974. The unique physical end ehemieal properties of PCBs include low vapor pressure at ambient temperatures, re sistance to combustion, remarkable chemical stability, high dielectric con Upon a preponderance of addenda adduced itors. a prohibition of any PCBs in any stant and high specific electrical resistiv at such baartnee. eneh standard (er prohibi effluent discharge of process wastes to ity and low water solubility. At the same tion) chsU he promulgated. . . . proposed, with limited exceptions, and an time. PCBs are Uphl soluble aud hence Hit regulation* proponed at this time establish affluent standards for manufaclanrs of PCBs and manufacturers of transformers and catmciton whlcit eontom PCBs. Standards ara. proposed for Icto mtottag and now sources. lbl following, together with the matarfali nod Information hereinafter re- fflmf lo and incorporated by reference, eta forth Om basts and purpose of the average daily concentration limit per month of 1 *g/l to proposed for any other discharge. Por new sources, a prohibition on discharge of PCBs In process wastes in conjunction with an averago dally concentration Umit per month ox 0.1 C/1 for other discharges to proposed. Regulation of discharges under the Act cannot, by Itself, guarantee an ample margin of safety for all organisms and human health even If ail point source the potential for absorption into fatty tissue and into the Uvcr to 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 for harm in the ecosystem. Although the principal uses of PCBs. today ore In "dosed*' electrical systeme (transformers end capacitors), PCBs (Rant standards proposed at this Ume. discharges were prohibited. In light of have been used over Uic year* for a . RsmuiT or Famcxrsi. Fbatoubs swe lonmi or tiis Ptorosrs Rcguiatsokb the serious environmental problem which already extols. Data available to the Agency Indicate that the standards pro variety of more "open" uses resulting in greater direct contamination of the en vironment. Theeo other uses include an The regulations here proposed would posed at this Ume will however result AddiUvo fn investment casting waxes, establish effluent standards for all man In maximum feasible progress, within lubricant additives, hydraulic and com- KOttAL MOUTH, VOt. 41, NO. )4J--WOAT, SUIT S3, 1974 HONS 061126 PROPOSED RULES 3*169 fluid, carbonless oopy paper, cological data concerning PCBs. 41 FR at the conclusion of the hearings that plasticisers, paints, heat exchange fluids, 8409. PDA has also banned PCBs for use tho record did not contain sufllclcnt evi cartels types of paper and scnJants. Most In food and feed processing. dence on which to promulgate responsible Of these uses have been substantially The American National Standards In and defensible standards. Aeeoratngiy, curtailed, but the PCBs which have stitute has issued guidelines for industry the Agency decided to gather additional entered the environment as a mult of on tho use, disposal and labelling of data and repropose Its standards, sup these usee, and which continue to be PCBs, and Is currently considering more ported by an expanded data base. The placed in the environment, will be there extensive guidelines for the handling, standards proposed at this time thus su tor many years. Some of these uses are servicing and disposing of existing equip persede the PCBs portion of the proposal nsulUnt In effluent dixehnrccs which are ment containing PCBs. of December 27,1873. net subject to Che standards proposed at The General Services Administration The Ageocys decision to gatbpr addi Oils time owing to insufDclent data. As (QSA) has banned PCBs in carbonless tional data and to repropose standards such data become available, however, the copy paper purchased by the Federal was discussed et considerable length in Agency expects to tako appropriate government and the Department of the the Preamble to the Notice of Proposed measures to control such discharges pur Interior (DOI)' has prohibited the use Toxic Pollutant Effluent Standards for suant to the Act or other applicable of PCBs in offshore oil operations. Aldrln/Dicldrin. DDT. Endrln and Toxa Statutory authority. The Environmental Protection Agency phene. published In the Federal Recistcs Xt la estimated that over the post 41 (EPA) has proposed regulations pursuant on June 10. 1978. 41 PR 22576. to which years approximately 1.4 billion pounds of to section 311 of the Federal Water Pollu the reader is referred and which is here FCBs havs been produced in the United tion Control Act to control spills of num by incorporated Into this PCB statement States, of which 1JS billion have been erous identified hazardous substances, of basis and purpose by reference. need la this country end the balance ex including PCBs. These regulations are ported. Of this US billion pounds, ap- intended to establish reporting require XX. Tfca Propose* Btmrmn nroxJAately 960 million pounds have been used In electrical equipment. In ad dition. It 1s estimated that only approxi mately 60 million pounds have degraded, that 760 million pounds are presently in --1rice, and that 460 million pounds are Jn iffrfaiu (ostensibly es a result of dls- ments, to establish harmful quantities, and to fix etvil penalties for spills. Tho oxxdul rsoraioHs Agency further anticipates use of its au-- The notice of proposed rulemaking ttoorlty under section 311 to require published on June 10. 1976. proposed industry to prepare spill prevention con provisions of general applicability to au trol plans. standards issued under section 307(e). The Agency, m October. 1975, Issued These were set forth as H 126.1 through to draft terra eet of water quality cri 1234. Those Section* abs promulgated teria pursuant to section 304(a) of the will be applicable to standards estab ' in contrast, It is estimated that dis Act recommending maximum permissi charges to the aquatic environment each ble concentrations In the ambient water year from the approximately 67 manu for 1. umerous pollutants, including PCBs. facturers of capacitors and transformers, The concentration level proposed at that plus Monsanto, probably do not exceed time was 0.001 *g/l for PCBs. That docu 10,000 pounds, with direct discharges ment is currently being reviewed prior from these sources accounting for less to final publication. than one-third this amount. Although On Aprtl 1, 1976. the Agency issued efforts to reduce substantially and even recommended procedures for disposal of tually oUmlnate this source of environ-' PCBs by industrial users, pursuant to mental contamination will have a rela section 304(b) of the Solid Waste Dis tively minor effect on the overall PCB posal Act, 41 Pit 14134. x problem as It currently exists, such On July 6.1673, the Agency published efforts art>Ukely to have a more signif- in the Peanut Reams a proposed list ioaat impact in reducing future tnvlron- of nine toxic pollutants pursuant to sec mntal contamination and In alleviating tion 307(a) (1) of the Act. 38 FR 18044. lished hereunder for polychlorinated blphenyls.'Owners and operators of facil ities which are or may be subject to the standards proposed herein are 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 on approved NFDES permit program, as appropriate), of any discharge subject to (hose standards, rvquirements and procedures for estab lishment of a more stringent effluent limitation than that established in these proceedings, and compliance date. tho speeifle environmental problems in The nine substanoce were: aidrin/diei tilt Immediate receiving waters. Conse- drfn, benzidine, cadmium, cynanldc. DDT gundy the Agency believes that the (DDD, DDE), endrln. mercury, polychlo TKt SroirDAHg roa Polycxlobinattd Brnranru standards proposed at Utis time will contitute an important element In tne over all effort to reduce and ultimately elimi nate any further addition ol PCBs to the environment. rinated biphenyls and toxaphene. Follow ing receipt of public comment, the list was promulgated on September 7. 1673. together with a discussion of the Agency's selection criteria and a response to com In the notice of proposed Toxic Pollut ant Effluent Standards published June 10. 1978. standards were proposed for aldrin/dfeldrln, DDT (DDD. DDE), cndrln and toxaphene to Sections 126.100 e. vtsoe scsvLATOir actio* ah* oklateo ments received on the proposed list, 38 FR 24342 et seq. The promulgated list through 129.103 respectively. In addition, the Agency has proposed to odd a new consisted of the soma nine substances 1 129.104 containing effluent standards previously proposed. for benzidine. 41 FR 27012 (June 30. Beousi of the demonstrated toxicity On December 27,1673, the Agency pro 1876). if FCBs and the human health threat posed toxic pollutant effluent standards The standards proposed herein would paced by Ingaatlon of PCBs through the for each of these nine substances, to add a new flection 129.103 to provide toed chain, the Pood and Drug Adminis gether with a summary of the factors coverage for PCBs for new and existing tration (FDA) of the Department of considered In setting the standards, and sources in 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 PCBs in charges proposed for coverage. 91 FR facturers of transformers, nnd manufac food pureuant to the rericral Pood. Drug 35388 et seq. In accordance with section turers of capacitors. Coverage Is pro and Cwmctie Act. 21 CPU 122.10 (July 6. 807(a) (2) of Uie Act, a formal rulemak vided for both new and existing sources, 19711. These tolerances included, for ex ing hearing on the proposed standards and for purposes of these standards, a ample, 6 pasta per million ippm) In the was scheduled. A prehearing conference new souroo la defined as any source on edible portion of Ash and ehcilfliih. 24 wae held on January 23, 1974. followed whleh eonstraction is begun following ppm In milk and dairy products. 6 ppm by a thirty day evidentiary hearing held the date of this proposed rulemaking, if la poultry, 0.S ppm in vires and 0.2 pput during April and May. During the course standards are subsequently promulgated In Infant end Junior foods. On Febru of those hearings, which were held under pursuant to this proceeding. Tho ary 26, 1676. PDA announced that it is severe time constraints. Uic Agency be Agency's data Indicate Unit these stand actively considering a lower temporary come aware of certain gaps in 1U data ards will cover at least three plants tolerance for fish in light of recent toxi base. As a result, the Agency determined manufacturing transformers, and at least KPtiAi Mount, vol 41. no. ms--iiidav, my 19, m HONS 061127 30470 PROPOSED RULES . M*ca plants manufacturing capacitors, tion/Reduction Technology and Associ of mammalian carcinogenesis, where II of which an existing direct dis chargers. ated Costa, Manufacturers of Electrical Capacitors and Transformers: Adden available, were also considered, os were data on persistence and degradability. Each section Includes specialized dum to Final Report. Task 11." 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 and supporting mate exposed to toxic pollutants in the com ical methods. In addition, provision Is rials. as well as otlkcr materials which plex ecosystem. There is a vast number made for determination of welfhts and form a part of tlte basis and purpose lor of species throughout the entire ecosys concentrations. In eases where a dis these standards and which are listed on tem. and it would be Impractical to try charge Is allowed, the standard will be Appendix A below, are available for pub to gather test doth on every one. or even specified aa an average monthly concen- lic inspection and copying at the U.S. most of them. Because such data are not Indian Halt and a maximum concentra- Environmental Protection Agency. Pub available on all species, the range ol sen tbo at any time. lic Information Unit, Room 2922 (EPA sitivity of a smaller number of tested Hi developing the standards proposed Library), 401 M 61., BW- Washington. species Is used to provide a measure of herein the Administrator baa given care- D.C. 20406. during normal business the range of sensitivity of all species. The 101 consideration to each of the factors enumerated In section 307(a)(2). These hours. Copies of the criteria document and technology report and supplement Agency s criterion for PCBs is based upon a wide range of toxicity data for a factors tnduda Mthe toxicity of the pol may also be Inspected end copied at phylogenetic cross section of organisms lutant, Us persistence, degradability, the usual or potential presence of the af fected organisms in any waters, the im portance of the affected organisms and. the nature and extent of the effect of the libraries In each of the 10 EPA regional offices.1 The approach utilised in arriving at the standards herein proposed may be generally stated as follows. toxic pollutant on such organisms.*' In Pint, because the most important ele os well os species representative of a wide geographic distribution. Section 107(e) requires consideration of the Importance of organisms likely to be affected. Ecological Importance of an organism is dependent on the role the Clight of the Act's manifest concern for le health, which Is reflected both In statute dud the legislative history, ment in setting the standards Is the toxicity considerations enumerated in section 107(a) (2), the starting point is organism plays within the ecosystem and upon its relationship to the food ghotw within the aquatic community and the the Administrator has also considerethde development of the criteria docu available data concerning human health ment. which sets forth extensive data effects attributable to FCBs. The data with respect to the environmental effects '^unwind by the Adminixtrator Telating and 'behevtenrof 'PCBs. A prtndpoff -ob to these factors of toxicity and environ jective of the criteria document is to seek mental effect are set forth In a-J'Criteria to arrive at an ambient level of PCBs Document.** The Agency was assisted in based upon the data which will provide the preparation of this criteria document an ample margin of safety for all Impor by Un C. T. Nlsbet, PhD., of the Kassa- tant aquatic organisms and others up ehusetts Audubon Society, a nationally the food chain. Including man. who may recognised expert on the toxicology of become.exposed to it. This ambient wa FCBs. This document Is hereby Incor ter criterion is expressed as a concentra porated by reference es a part of the tion of the pollutant In the water In statement of basis and purpose for the terras of nterograms per liter <#/!> <1 standards hereinafter proposed. qg/nops part per billion). For sub Xa addition, the Administrator has uuislflsmil the availability of various stances such as PCBs where the data In dicate that chronic toxic effects may oc -methods of control and related technol ogy by which discharge of PCBs might bo eliminated or reduced. Bit authority to ooosMer technology aa well as eco nomic Impact Is discussed in detail In the preamble portion of the Notice of Propeeod IPxie Pollutant Effluent Standards cur at extremely low conentratlona,- it becomes virtually impossible to state with confidence that any number above aero provides an ample margin of safety for man. In such cases any criterion level chosen should be appropriately qualified to reflect these circumstances. imMliM on Juno 10, 1076, to which the The toxicity data used In developing leader Is referred. these proposed standards were derived - ;- Za order to obtain relevant data for this function, the Agency engaged the sendees of Versar Inc., of Springfield. Virginia, who are recognised experts In the study of wastewater treatment tech nology and the control of pollutants * omitted by Industrial sources. Versar Ine. from laboratory studies as well as Add observations on the effects and Oeliavtor of PCBs. These studies have been eonducted on a variety of organisms includ ing Invertebrate, vertebrate, and mam malian test species, and are well docu mented In the scientific literature. These has prepared and submitted a report to the Agency concerning industrial dis charge of PCBs and the assessment of wastewater management and treatment studies provided extensive acute and chronic toxicity data based primarily on feeding experiments for a wide range of aquatic organisms and consumers of technology, including technologies which aquatic organisms. consumers of aquatic life. Including man. Thus, toxieity data for the carnivores et the top of the food chain in a given eco system. s well ecaaoir.lcslly impor tant species such os 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 species found In most waters of the United States. On the basis of the foregoing date, a concentration level Is sought which, it 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 la the water. In the ease 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 PCBs 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 PCBs, and other factors rele vant to the setting of standards. This process Is discussed more spedfleefiy below (see "Rationale for Standard"), after the following summary of the Agency's consideration of tho available data base. are oetuelly in use or which are or may Studies documenting blooccumulatlon (1) Composition, chemical and phys bo avafiablo to industries to control or In tho food ehaln organisms and bto- ical characteristics at PCBs. The com the discharge of PCBs. This re concentraUon 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 Teehnol- additional component data base. Appro contains 10 to 20 major components end Sr, and Associated Cosla for Abatement priate human toxicity data and studies a number of minor components: more PCS Concentrations In Industrial Ef than 00 of the 200 chlorinated biphenyl fluents." and Is hereby incorporated by Tbs Agency *1m lateada that the criteria reference as a part of the statement of document and technology report and supple <CB) Isomers have been Identified in Die commercial mixtures. After release into basis and purpose of the standards here ment bo modo anltatti through the National tlte environment the constitution of tho In proposed, along with a supplement Trrtinfcol information Service in Opriugitcid. mixtures channel as some components thereto entitled "PCBs Water Elimina Virginia. ato degraded while others persist. Since PCDUAL lEOIITO. VOL 41, NO. M3--UtOAV, JUIT 23, IfF6 HONS 061128 PROPOSED RULES 30471 IM| components ere more toxic than The row wastes from the manufactur Effluents from plants tn this category then, this complicates the evaluation ing area at Monsanto consist of the range between 2,500 gallons per day lc of the hat&rdt posed bt environmental liquor from the scrubber, the condensate 1.26 MGD. These effluents are discharged from the steam jet ejectors, water used into the navigable waters or arc intro Highly toxic Impurities, polychlori lor showers and eye baths, miscellaneous duced into POTWs without any treat nated dibensofurnna (PCDF*>. are pres- floor wash drains, waste oil collected In ment directed toward PCB removal. Ef ,aat in email quantities in the ranire of drip pons and drums, and so-called fluent information obtained for 14 plants 1 to S3 milligrams per liter <mg/l) in "monton" which are the bottoms from Indicated that average effluent PCB con tost commercial mixtures. Products their stills. Hie composition and quanti centrations ranged from leu than 10 manufactured overseas frequently con ties of the individual waste streams are *g/l to more than 6.000 #g/l. Avenue tain more PCJOFs than Amcricnn-made not monitored. All effluent streams gen mass emissions of PCBs from these plants Aroelor mixture*. There Is evidence that erated In the manufacturing area are ranged from less than 0.01 lb/day to PCDVb may be formed from PCBs both collected in sumps located in this area. nearly 2A lb/day. in service, and to the environment or . photochemical and metabolic processes. Accordingly, the toxicity of PCD mixterm is variable and environmental resi Reportedly the aqueous discharges amount to 750 ug/1 PCBs In 0.432 million gallons per day ("MOD") or 2.7 Ib/day. The raw wastes generated In the Incin (c> TUMsroum uamtttacttjsxmq There are eighteen transformer plants operated by thirteen companies which dues are sometimes more toxic than erator area at .Montaneo eons1st of the manufacture transformers using PCB- freshly manufactured products. However. venturi scrubbier liquor and the waste containing Askarel dielectric fluids. As- It to not possible to separate the toxic (tease from the oil-water separator sump. karel transformer oils are blends of 60 Recto of PCDF's and PCBs satisfactorily. Reportedly the aqueous discharges from to 100 percent Aroelor 1254 or 1242 and Hbtt the environmental hazards of both this area amount to 15 ug/1 PCBs in trichlorobenzene. This type of trans must be considered together. 0.268 MOD or 0.36 Ib/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 are freely soluble in organic solvents and principally for cooling and a maximum facturing volume. The remaining la lipids (fats), but have very low solu- of 369,000 lbs of steta. manufacturing volume uses mineral oil bUlty In water. In general, those PCBs In addition to the aqueous discharges. as the dielectric fluid, and there is some Urttb fewer chlorine atoms per molecule It has been estimated that about 29 lbs. manufacture of air-cooled or gas-cooled n more soluble In water and more voia- of scrap oil and "monster*' are produced transformers as welL Askarel trans . Uto than those with greater chlorine per ton of PCB produced, that about 5 * formers are used when other types are mtarns per molecules. Accordingly, the lbs of PCB In contaminated solids per ton unsatisfactory because of design limita . vftxtures are differentiated during *vota- of PCB produced are hmdfiUedfflaily nd tions or "where flammability Js prob tfllaatlon end solution, the lower CBs that less than 1 lb/day of PCBs to lost lem. The PCB usage In this category bated more mobile. PCBs are strongly ee eir emission*. - was approximately 12,000,000 lbs in 1974. adsorbed onto surfaces and particles, in the aquatic environment their behavior is) csrscxrox tuinrrscroajMo At least three of these plants have direct discharges and are therefore subject to . If often controlled by the presence and There are nineteen plants operated by. the standards proposed at this time. mtivementof sediments. seventeen companies manufacturing PCB There are two principal types of trans : (I) Htlevant tu* end wastewater Impregnated capacitors In the United formers produced: electrical distribution etaroetertotici--(A) Manufacturing of States. At the present time approx transformers wliich are used to step PCBs. The sole domestic manufacturer imately 95 percent of all liquid-filled down voltages, and power transformers of PCBs is the Monsanto Industrial capacitors manufactured In the United whieh are primarily used to step up volt Chemicals Company ("Monsanto"), States are of the PCB impregnated type. ages. Distribution transformer applica whose manufacturing operations are Tbs two most frequent applications of tions include use in networks, pad- conducted at Its William O. fCrummrieh these capacitors are for phase corrections mounted and iwle-mounted. and special plant in Bauget. Illinois. Aroclon 1531 on power tinea connected to electrical precipitator power supplies located In and 101# are used by capacitor manu- motors and for use as ballast lor fluores elosed proximity to hot gaa stacks. fhoturera as dielectrics. Aroclors 1343 cent lighting systems. The PCB usage in Quantities of Askarel used in trans and 1394 ore used as principal ingredi this category was approximately 22,000. formers of this type range from 500 to ents In formulating the Askards used 000 lbs. in 1974 wtth most of this being 6.000 lbs each. Many of these trans by transformer manufacturers. Aroelor 1016. At least seven of the nine formers hare provisions for venting with teen capacitor manufacturing plants spring loaded venting devices or dia have direct discharges to the navigable phragm rupture discs. -wowwwWWHhMtawdpedswtwpMsdctotaM waters and are therefore covered by the Askarel power transformer applica Item. The Agency expects In due course standards proposed at this time. tions include use in primary and second Ip propose protreatment standards ap Most plants manufacture either large ary substation*, industrial furnaces, rec plicable to tills facility and to any other power capacitors or small Industrial tope tifiers. rail transportation, and lor react faculty which may in the future manu unite but not both. The large capacitors ance and grounding functions. Quanti facture PCBs. A brief discussion of Mon ere either flood filled or manifold filled. ties of Askarel used In transformers of santo's operations and wastewater All small capacitors are flood filled cither this type range up to 19,000 lbs. characteristics to appropriate here, how In a vacuum tank or in an automatic Various transformer assembling and ever, In view of the faet that standards "carousel" arrangement. filling procedures are being practiced re proposed at this time for direct dis The raw wastes originating from these throughout the Industry. In general, the chargers for the PCB manufacturing plants consist of scrap PCBs collected transformer assembling and filling oper category for existing and new sources, Monsanto's ability to achieve zero direct discharge was also considered In propos ing thaaa standards. * Iha Krummrtrh plant has a design capacity to produce 41 million pounds of PCBs per year. In 1974, Monsanto pro duced 40.4M.000 pounds, of which 34. 400400 pounds were sold domestically. Approximately two-tlitrds of 1074 domes tic sales wen of Aroclor 1016 wtth most of the remaining production evenly divided fertwrm Amriors 1212 and 1354. Oaky small quantities of Aroelor 1221 In tumps, drums and drip pans: con taminated vacuum pump oils: the frac tionator bottoms from the trichloroethyl ene recovery: the caustic bath used at some plants, for purposes of paint strip ping; spent detergent wash and rinse water from capacitor or component cleaning operations: rinse water used In the welding and plating operations: steam condensate from Jet ejectors; the seal water used In vacuum pumps; water used hi pliosphattolng and fluoride bath; water spray used In paint booths; bofler 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 bushings, electrical testing and scaling. Water to not an eeeentlal component of transformer manufacturing. In general, the process raw wastes from these plants consist of waste Askarel collected ill sumps or pans at the filling stations, contaminated vacuum pump seal oil. contaminated kerosene-like petroleum * were produced. blowdown; end cooling tower blowdowns. distillate, and contaminated Askarel used . About KIGISTfR. VOL 41, NO. 143--AWAY, JVftT I, 1474 HONS 061U9 JW72 PROPOSED RULES for Inmofonner Interior fkahlnt. PCB most characteristic effects In rats are en milar In many respects to these observed maki which reach water stream* at largement of the liver, induction of hepa among the population contaminated in Umm plants are due to occasional loss tic microsomal enxymes and porphyria. the Yiusho Incident. during handling and residuals accumu Reproduction Is adversely affected at (6) Pcrstitcnct, mobiliti end degred- lated around drainage systems from past dietary levels at and above 20 parts per ability. PCBs have a long life In the envi optmtlons when insufficient precautions million (ppm; 1 ppm is comparable to a ronment, often in excess of 25 years, but were taken asatnst PCI) losses. liquid measurement of 1 milligram per components with three or less chlorine Based en Information Irom Ave plants, liter u mg/l)>. atoms disappear rapidly. Mono-, dl. and effluents from plants In this subeategory Rhesus monkeys are extremely sensi trt-CD are to some extent degraded or ramtd from 13400 gal/day to nearly 1.9 tive to PCBs, which induce skin lesions metabolized by bacteria, but higher PCD* MOD. These effluents <predominantly and gastric ulceration. Monkeys exposed are resistant to microbial degradation. eseHai water) are discharged Into the to 24 ppm suffered reproductive dysfunc Tetra-clUorlnaled KBs can be metabo ntrigabls waters or are Introduced into tions and some died after exposure to lized by birds and mammals, but pents- POTWs without any treatment directed only 3 ppm. Adult female Rhesus mon c-hiotinated PCBs are resistant and toward KB removal. Average effluent keys fed 25 ppm of Aroclor )24g not only higher CBs are metabolised only spry KB concentrations ranged from less accumulated the PCBs In their adipose slowly. Most environmental residues have than s pt/l to nearly 30 *e/L Average tissue, but the PCBs were transferred been reported In the form of teira and Bust emlsalons of PCBs from these across the placenta of one female which higher chlorinated PCBs. Bluito raage from less than 0.003 ib/day gave birth and concentrated at high KBs are mobile In the environment to nearly o.l Ib/day. levels In the fat and adrenals of the In and are carried freely In the air and the *<3) Toriclfy. KBs inhibit growth and fant. water attached to airborne or water- etU*division in certain species of phyto-' . Mink are also very sensitive to PCBs. homo particles. Conventional incinera plankton (single-celled aquatic plants). In one experiment, most females died on tion and other disposal techniques do not Borne sensitive species are affected at a diet containing SO ppm and none pro completely destroy KBs. " eery low concentrations (0.1 *g/i). The duced young at 5 ppm. In another test <7> fffoaccumtriafura and btomagm/t- - offeels are particularly marked in mixed 0.64 ppm caused total reproductive fail cotton. PCBs are strongly concentrated cultures, whero sensitive diatoms ore re ure and a few deaths. ("bioaccumuiated") from water Into placed by resistant green algae. (4) Cmrcinogcnui*. On prolonged ex aquatic Invertebrates and Ash. Btoaccum- KBs an toxic to aquatic insects, eras- posure of rate and mice. PCBs cause a ulation factors (concentration of PCBs in dao--ruL _jsad Mbar Jnrartahraus at variety of morphological changes in the organisms compand to concentration in oeoesptrallons down to a fsw *g/1. Re liver, ineluding hypertrophy, hyperplasia, water) for these organisms are com production and growth in aquatic in adenoflbrosis and nodular hyperplasia. monly in the range.of 20.000-274.000 alter vertebrates art adversely affected at At high dose levels uoo ppm and above) prolonged exposure in the laboratory. concentrations as low as 0.4-04 *g/l. PCBs Induce hepatomas, neoplastic However, wnere measurement* of con KBs affect the settlement of larvae and nodules and carcinomas In rates and mice centrations in natural waters are avail reduce the diversity of marine Inverte and therefore pose a presumptive carcin able, bioaccumulation factors in Ash and brates communities at concentrations as ogenic risk to man. In one experiment. Invertebrates arc generally larger..than low at 0.1 ag/l. KB-trented rata also displayed an in those measured In the laboratory. There ' KDs art acutely toxic to estuarine creased Incidence of pituitary tumors. have been reports that certain animals aquoUe organisms. For Aroclors loie. Metabolism of PCBs in mammals and ' captured from the aquatic environment IMS and 1354. the 41-hour LCS0 values birds proceeds primarily through arena have apparently bioaccumuiated KBs in far brown shrimp, pink shrimp, and grass oxide (epoxide) Intermediates, which are their flesh to levels of between 3 and 10 shrimp fall in Uis range between 0 and biologically active and believed to be million times that of the water concen SI st/1- In longer-term bioiosnys of two highly tootle and carcinogenic. PCBs also tration in which the animals were cap weeks or more, Aroclor 1254 is toxic to have immunosuppressive effects In rab tured. It Is important to note, however, the commercially valuable penaeid bits and guinea pigs. In severe) experi tlrnt the level of KB contamination in shrimp and grass shrimp at eancentra- ments treatment with PCBs has in the food of the captured aquatic life, m ttoni as low as 0.0 to 1.4 yg/l Arthropods creased the susceptibility of animals to well as the concentration of PCBs in are affected at 0.1 *g/i. various diseases. which these organisms reaided for the Rainbow trout have been killed by ex- (5) ffsman health effects. Humans oc predominance of their life periods, are peeure to Aroclor 124S at concentrations cupationally exposed to PCBs sometimes unknown. Of 1.4 pgA In 25 days, and by exposure suffer from an occupational disease Fish in Escambia Bay, Florida, hod to Aroclor 1260 at 6 *g/1 in 10 days. Spot known as chloracne, characterised by PCBs levels In their flesh 670.000 over Mid plnffiii died when exposed for 14 to Jong-lastiog akin lesion* ami sometimes the ambient water in which they were 46 days to 5 aC/1 of Aroclor 1254. The systemic disturbances. captured. PCB levels hi the waters of tongaass kOllfish has been killed by long- m a large-scale poisoning incident in Lake Michigan average around .01 !/). tsm exposure to Aroclor 1254 at a eon- Japan In 1965, more than 1.000 persons However, PCB levels In Ash in Lake 'centraUon of 1 g/l. became sick with Yuslio disease after Michigan range in the 2 to 20 pom . PCB* have advent effects on survival, Ingesting rice oil contaminated with range, act weight (16-200 ppm, growth, and reproduction of Ash at con- both PCBs and PCDfb. Their symptoms lipid weight) Indicating an apparent bio oentrations as low so 1 ag/t In one esse, were similar to thorn of occupational accumulation factor ranging up to At ins from fish exposed to only o.l *g/l chloracne, but also Included hyperpig- least 2.000,000 In whole Ash. Levels of failed to hatch after being placed in KB mentatlon of the skin, persistent eye dis KBs In some whale and seal blubber . fne water. A variety of other sublcthal charge and gastric disturbances. Chil were feund to be In excess of 1 million Ui lab offsets have been observed on a wide dren were effected not only by direct the ambient water concentration In range of freshwater and marine Ash ingestion of the contaminated oil, but which Uie animals were taken. .present, In waters Utoughoul Uw country, also prior to birth by transplacental pas PCBs are further concentrated ibio- and theoe are set forth in detail in Uxe sage and in one ease a child was contami mngnlAed) from the food of birds and Agency's criteria document for PCBs. nated by its mother's milk. The af mammals Into their tissues, especially KBs generally have lew acute toxicity fected persons have improved only slowly into their fat. BlomagnlAeaUon factors to birds and mammals, but long-term since 1965 end there are already indica (ppm In orggntams/ppm in food) are dietary expocure leads to a variety of tions of exeess cancer Incidence. often In the range 1 to 10 after prolonged . chrenie toxle effects. Hie Rliesus monkey provides en Im exposure In the laboratory, but me oi ten Rato ore relatively resistant to PCBs portant Indication for human sensitivity as high as 10 to 100 In wiki animals and and usually do not show the characteris to PCBs and. as noted above, is extremely birds. Humans store PCBs in U:cir fat tic lesions of the skin and stomach in sensitive to low levels of exposure. The more eiileicnUy than any animal for duced in several other mammals. The symptoms following exposure appear si which precise measurements have been MOCgAL MCIITII. VOC 41, NO. t4S--ItlDAV. JULY >S. It?* HONS 061130 PftOPOSED PULES 30 m OMd. Hill leads to greater exposure to sensitive organs end tissues In humans then In animals exposed to the some eon- cmtrattons ot PCOi in the diet. The data ladleete. In parUcuiur. that Aruclors 1016 pad 1142 are vfdetr present in flih In U>e United States. This in turn leads to sub stantial exposure o( humans and otlicr flah-etUny animals. ' (I Ambient water criterion lor cSects "ample margin of safety" for all organ isms under all circumstances. However, the data do establish, at this time, that an ambient water quality level of .001 *g/l should not be exceeded. To assess risks to humans, the most critical toxic effects of PCBs arc those observed in mammals at the lowest ex posure levels. These include: (I) Mortality and reproductive failure exceptions), a prohibition on discharge Is achievable based upon currently avail able technology and handling methods. Based upon detailed plant inspections and examinations of the process steps in the use of PCBs in the manufacture of capacitors and transformers It has been determined that the characteristics of these wastes are sufficiently similar so that the same kinds of control snd treat a Natural system*. The foregoing sum- in mink at a dietary level of 0.64 ppm. ment technologies ore applicable. nary briefly highlights the extensive (U) Increased liver weight !h weanling The wastewater characteristics for data baea set forth In the criteria docu ment This data base demonstrates that rets in the second generation of animals exposed to 1 ppm. snd liver pathology manufacturers of capacitors and trans formers have been described above. Data PCBs pane a serious threat to a wide Wife of aquatic and other food chain (Including nodules) in the second gene ration exposed to 30 ppm. available to the Agency indicate that wa ter can be eliminated from most if not all organisms,!! well as to human health, at very low concentration levels. There ap pear to be some variations in the toxic effects for different isomers. Thus, the more highly chlorinated Isomers appear to be somewhat more persistant In the environment, while the lower chlorin ated Isomers appear to be somewhat more acutely toxic. Those differences are relatively minor, sinee all Isomers which are siintfleant constituents of coenmerelal mixtures or PCBs sre highly persist (ill) Stomach nodules and ulcerations In dogs at a dietary level of 1 ppm: Stomach lesions have also been reported from other species including monkeys, pigs and mink. , ,<lv> Reproductive failure, dermal and stomach lesions in Rhesus monkeys ex posed to 2A ppm and deaths at 9.0 ppm. (v) Increased activity of hepatic mi crosomal enzymes in rale fed at OJ ppm for 4 weeks. (vi) Carcinogenic effects in rats and of the manufacturing-related processes, with the result (hat potential effluents can be- sufficiently reduced In quantity so tha they can be Incinerated or other wise disposed of so as to reduce greatly or eliminate any discharge of process wastes (o the navigable waters. Where large volumes of water are used, treat ment and subsequent recycling can re duce quantities of unavoidable blow downs to amounts suitable for treatment by activated carbon and discharge or by ent and mobile in the environment, end nail homers display a decree -of toxicity Which Is a matter for crave public con cern. Moreover, the composition of FCB mixtures changes as thsv are transported through the environment. There is also evidence that toxic metabolites, or break down produets, may be formed, so that the chemical species distribution in a water body may not be the same as the epee)as distribution of the substance dls- mice at dietary levels of 100 ppm and above. (vtl) Apparent increase in incidence of pituitary tumors in rats at dietary levols of I ppm and above. (vlil) Widespread presence of PCBs in Ash and other organisms regularly con sumed by humans. " All if these effects are relevant In weighing potential adverse effects of PCBs cm humans. In particular, the incineration. With respect to capacitor manufactur ing wastes, the scrap TCTi collected tn sumps, drums, and drip pans, aa well as fractionator bottoms from trichloroeth ylene recovery, are small in amount, and can be Incinerated. The same Is true for contaminated vacuum pump oils and any caustic baths used for paint stripping. With respect to capacitor snd component cleaning operations, cleaning solvents charged. For all theis reasons, there ap symptoms of poisoning In monkeys, in rather than water can be used, snd then pears to be no sound basis for setting dif cluding dermal and gastric lesions, are incinerated following use. Water used in ferent criterion numbers or standards for different Isomers, and accordingly, the criterion and standards herein proposed are for PCBi generlcally. parallel to those obeerved in man; en zyme induction Is a basic biochemical effect which has been observed in many pedes; carcinogenic effects in rodents phosphaUsing and fluoride baths by some plants can be eliminated, elong with the entire process, by use of aluminum con tainers. A criterion level of 0.00! ag/1 would appear to avoid adverse effects to most soustic organisms, based upon an an- fclytls of both laboratory and field data. Dlls level Is based primarily on the Mooccumulation properties of pc&s. Pish hare been shown to accumulate PCBs by factors as high as 374,000 in the laboratory, while considerably higher factors appear to occur in their natural environment!. Based upon a bioaccumu- Sation factor of 274.000 a concentration Of 0.001 ag/t could result in bioaccumula- tlon to 0.274 ppm in flesh, which is below the dietary levels which have been shown Injurious to aquatic birds and mammals who may feed upon them. In addition, however, there is evidence that are generally used to predict potential carcinogenicity in humans. - It is difficult to use the result* of these experiments to establish acceptable levels of exposure for humans: (a) 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 (e) because humans are known to store PCBs in 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 not be exceeded, and. beyond this. thAt every reasonable effort should be made to Capacttof manufacturers who use steel containers generally paint their produets, which produces a waste resulting from water spray used to control paint par ticles and fumes. This process etn 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 an air or electrostatic system instead of a waterfall for trapping paint particles and fumes. Aqueous discharge from cooling tower blowdowns can be reduced by use of n re cycling system based on demineralisa tion or, alternatively, by incineration of blowdown. Any solid waste residue, which will not Include PCBs, can be disposed of In some waters some Ash bioaecumuiste at rates roughly trn times this. And In limit discharge* of PCBs in order to mini mise human exposure. by landfill. Boiler blowdown, which is not likely to contain any PCBs. can be tvMed water* where Uie chronic level generally (9) Control teehnoloffy available. At in drums and landfilled or treated by the exceeds J01 g/1. such ns Lake Michigan, the present time there are no direct dis activated carbon treatment system. them Is evidence of sublcthal toxic cffeotoeo the fish. m proposing this ambient water cri terion the Agency recognises the possi bility that such water quality level may not provide absolute safety for all or ganisms In all waters, indeed there prob charges of PCBs from a PCB manufac turer end Uius no in-place tcclmology to evaluate. The only UjS. manufacturer. Monsanto, discharges to the ffauget. Illi nois POT\V. With respect to process waste effluents from PCBs users, water is unnecessary to the processes Involved With respeet to transformer manu facturers. as with eapncltor manufactur ing. all scrap PCBs collected in sumps or pans can be Incinerated. Contaminnted vacuum pump seal oiL petroleum distil late. and atkarel used for transformer interior flushing can also be Incinerated. ably b no numerical concentration level in the manufacture of liquid-filled ca Each of these controls has been demon above acre which one can at this timo pacitors or transformers. Consequently strated by use by at least ono of tho ay with great confidence provides an for process waste (with certain specified covered plants. nottAt efomte, vol o, no. ij--rttpar, nitr 19, ms HONS 061131 30414 ; ; HOPOSED RULES Bernal potential sources olproeesa-re- sufficient Information was available to those permit proceedings sre less strin Utad watt* may in some cikca result In evaluate these systems. gent than the limitation* which would be effluent* which cannot be avoided feasi <10> Economic impact. The Acency required by these proposed standard* bly In tbs near Urm: fUnncwaier used in recognises that there may be significant under section 307(a). The Agency invites welding. painting or plating operations, costs and economic impacts associated comments on the comparative tech aad Krubber and quench water from with the standards proposed at this lime. nology. costs, end resulting economic im Incinerator operations. The Agency has made a preliminary as pacts associated with those limitations ** These categories of process-related dts- sessment of costs and economic impact, compared with the standards hereinultcr chattel, ai well as non-process related which is summarized below. Preliminary proposed. If Interested persons bciievp Bosnia, Including plant washdown, nou- cost estimates, as set forth in tire report that a modified standard Is preferable to eentact cooling water, and niuoff from submitted by Versar. Inc. (See Appendix that proposed, they should take 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 bciow. pliance with the preirased standards may the record the appropriate supporting It should bo noted that EPA-sponsored result in additional costs of production data aud Information (see Public Par bmsUgallons have reveuied Uiat there equal to or greater than five percent of ticipation Jn Rulemaking Process, below). art M In-plaee procesees being employed the selling price of the products i trans (11) Rationale for standard. In dis . whereby dissolved or sorbed PCBs in formers and capacitors), thus identifying cussing the establishment of an 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 SLatecmnt <H8> pur Mg/1 should not be exceeded end. in addi streams contain concentrations of PCBs suant to Executive Order 11821. A more tion, that every reasonable effort should of Mas than 1 *f/l up to about 400 detailed assessment la currently being be made to limit discharges of PCBs in pgA with many Instances occurring iu prepared by the Agency, and will be ac order to minimize human exposure. In Shi 10 to SO f/I ranee. While several companied by an 115, if necessary. The deed the data suggest that to provide mi of the plants have practiced PCB segre availability of these documents upon 'ample margin of safety" for human gation to keep the quantity of con their completion will be announced In health, and possibly for some other or taminated wastewaters ei low as possible, the ncogaat. Rcoistxa. and public com ganisms as well, sn ambient water cri- pons has Installed full scale terminal ments thereon will be invited. These terlor far lower then .001 */1 may be re JmtJIpwniMl fifflllUw documents, together with oU public com quired. though at this Ume one ennnot The EPA through 1U contractor, Versar, Inc., has identified a technology ments thereon which ere received by Wie confidently Identify any specific number nearing Clerk postmarked not later than above zero. . which will reduce the PCB concentration la wastewater* to 1 *1/1 or less and which Is eepable of being installed within one year. The Identified system Mi based upon activated carbon adsorption, fol lowing primary treatment consisting or sedimentation, filtration, and skimming. The feasibility of achieving the i *c/i or bn level has been demonstrated In laboratory tuts conducted cooperatively botureen Versar, Xne,, and two activated carbon suppliers, Carborundum Cbm- pany and ICI-UJ8. The system consists of an equalisation-settling tank and mixed media filtration followed by car bon adsorption, floatable* and sludges from, the equalisation-settling tank and thirty days following the aforesaid notice of availability of these documents, shall be made a part of the record of these rulemaking proceedings (see Public Par ticipation in Rulemaking Process, below). The standards are being proposed at this time prior to completion of the economic Impact assessment in light of the order and decree entered by the United States District Court in Natural Resources De fense Council et of. v. Train, Civ. Ho. 2153-73, and consolidated eases, on June 9,1978, requiring proposal of these stand ards by July 14. 2978. The Agency's preliminary assessment of costs and economic impact suggests that transitional impacts may be signifi At the present time, even if every point source discharge were prohibited. PCB concentrations In the water wouldremain for a long time not only above aero, but In some water bodies, above' .001 ,,g,i. Moreover, since the capability does not exist presently to measure PCB concen trations below 0.001 Mg/I with any rea sonable degree ol reliability, no useful purpose would be served in establishing a criterion number below this. In light of the foregoing considera tions. the Administrator has welched carefully the desirability and feasibility of imposing a prohibition on any dis charge of PCBs from any point source. In the case of existing manufacturers, imnt carbon are disposed of by incinera cant. The preliminary estimate of the this can be dono sines the only prvsrnt tion. Carbon adsorption has also been cost of oompllance Indicates aggregate PCB manufacturer does not havs s direct wooassfully used in full-scale operation capital costs lor the direct dischargers of discharge. A similar requirement Is Im to achieve removal of pollutants other 812 million and total annual costa of 17 ' than PCBs down to comparably low million (based on a 3-ycar depreciation Imii. _ schedule). The annualised costs repre Baaed on work performed cooperatively sent 5 to 21 percent of current selling between Vmar, Inc., and Houston Re- .prices for transformers and 3 to 17 per March on one system and Westgato Re cent for. capacitors, the indicated ranges . aaarch on another system. It was indi- resulting from the types of transformers sated that systems employing donation and capacitors produced. These costs may In conjunction with ultraviolet radiation be of sufficient magnitude to induce clo 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. Witn re spect to transformers aud capacitors, both these Industries provide important products to the United States cconomv for which there are no presently proven substitutes. Moreover, the best reduction can bo designed to achieve any deeired sures of some smell and/or marginal levels which available tcchuoloir? ran afluant PCS concentration. Preliminary plants and conversion to substitute ma eoheive with respect to sn effluent dis comparisons of the capital costs between terials for others. It Is not certain Uiat charge containing PCBs appear to be 1 the nouns TTY system and activated ear- such conversions could be carried out in *g/l through the use of carbon adsorp bm system show at lesst a 100 percent the one year allowed by the Act without tion treatment. This exceeds the ambient greater cost for the oxone-uv system. causing disruption of the supply of trans water criterion by three orders of magni When prrlreatment cons are included formers and capacitors. Additional anal tude. the eaone-UV system Is only about 10 orrtnl higher than activated carbon. Ale doubtful however. Uutt Uto oaone-UV ysis will be carried out to assess more completely these types of Impacts, ss well as to identify other types of economic Discharge of relatively modest amount* of a pollutant Into the water at many times the ambient water eriletlon may be Sfwtsai could be Installed within one year, effects. allowed, however, without necessarily the maximum period of Ume between In addition, the EPA Is currently en falling to provide safety for nflcclcd or promulgation and the effective date of gaged In Issuing NPDES permits pur ganisms. First, the actual dtschorro con these standards. suant to section 402 of the Act applicable centration docs not normally remain me Other systems evaluated included ad to point sources which will be covered ambient concentration, in fart, the cl- sorption by polymerio resins, ealalyUo by those proposed standards. In some In fluent disperses following discharge atul reduction and catalytic oxidation, ta- stances the limitations being proposctfbi becomes greatly diluted. The area of <tt- KPtlAl uomtt, VOl. 41, HO. 143--MIDST, AHT 33, IV7 HONS 061132 norostb kules 30475 IuUm 1* often referred to u i "mixing tout", and will m/ in sIm iim| ihtpi Type of ttehnoion ViittNir type most receiving waters, in the achieve ment of the degree o( protection envi from one body of wator to the next and from one discharge to Uic next. Tito remiH ol this phenomenon Is that once the effluent reaches the ouUide ol tho mixing sorts, the pollutant concentration may have become diluted by a factor of sev ' tad veeyci*. Incinerator nmt- rntmimint nd car eer wator. to* eSsorpUon to t _ sg/l or less. Praews-assoctatoS Pretreatmtnt and ear- wsste*. bon edeerptlon to l sioned by the Act. The Agency recog nise*. however. that there may be a lew 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, end indeed may -g/1 or less. such cases, H2I.7 of hubpsrt A 'the not oven be detectable by Ute moat so OanJtary wosts TPOTW. general provisions of Part 129: see stand phisticated monitoring equipment. Conoedetfiy, In some instances there may be adverse effects on some organlama in tho Immediate vicinity of the outfall. How water*. lUtnlaU runoff------ - .. Cndose artac or prstreatment and ear boo adsorption. ards proposed on June 10. 1970, 41 FR 23976) allows the applicable NPDES per mit Issuing authority to impose such more stringent effluent limitations as may ever, /or chronic effects to be observed, IncJudm hot solder dip rinse water, be required in order to achieve or ap tha axpotun time would hove to be quite pheephattalng bath wastewaters, tto plating proach the ambient water criterion level, ligthy- perhaps a lifetime. Even acute tone effects, which normally occur at much higher dosage levels then chronic effects, ere laterally recorded based upon bath ami rtnee waters, fluoride both and rinse water* and painting water spray. These are small in volume and ssay occur la only a single plant. in this case .001 ?g/l, at least beyond tho boundaries of any reasonable mixing aone. In addition, more stringent levels may be imposed to meet any applicable h H-hour exposure. Because of the ex Using this technology results In s pro water quality standard, see 1129.4(e). it traordinary persistence of PCBt reliance hibition on discharge of PCBs from any Is possible that an exercise of these pro an mining tones, 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 wastes with the However, by allowing some considera m a long-term solution to the problem. exception* 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 Agency also considered the availa to the 1 ng/1 level or tower. This tech ecological and health effects are para bility of substitutes for PCBs in trans- nology substantiates a standard of a mount, the approach taken under these fensert and capacitors. Several com prohibition of PCBs hi process wastes standards makes It reasonably probable panies 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 asite-specific Aar PCBs In transformex* and effortsjtre' vated -carbon, reducing PCBs to 1 pg/l examination, and only because of a Iall under way to develop substitutes for or less. Although occasional deviations ure to meet the safety requirements -of MBs Jiroepeeltore as well. At this time, am unavoidable, at no time may any section 307(a). however, It Is still too early to determine such allowed discharge exceed 5 *g/l for Finally, it is recognised that to allow a vrtth 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 adverse effects to some or addition, arc cafe In terms of potential nology advances can be reasonably ex ganisms, particularly those located near Are hasard and other safety considera pected, a more stringent limitation may the outfall, and possibly to the consumers tions, and are environmentally safe. The be sat to take 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 toxic pollutant effluent trol technology and In substitutes for be outweighed at this time by the social standard, or prohibition mi discharge, PCBs. limitations of OJ *g/l on the daily and economic benefits represented by not Upon tho assumption of the ready avail average per month and O.S ^g/1 maxi setting standard which would force ability of a substitute product However, mum at any time should be achievable widespread closures of plants manufac tho Agency Is pursuing an active policy to <Uie osonatkm-UV data so indicate) and turing capacitors and transformers, sneourage industry to develop as rapidly ore therefore proposed os 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 Ute absence of any proven discharges from transformer and ca tial products, or lead to importation of satisfactory substitute for PCBs in cer tain transformers and capacitors, it must be recognised that to Impose a prohffritlnn on all PCB-oontaining effluents at this time would probably cause a se pacitor manufacturers, and from dis chargee resulting from scrubber and quench water from Incinerator oper ations. For the lotions discussed above, no new source discharge of PCBs will products containing dielectrics which are even more environmentally hasordous. (12) Subsequent review of standards. It continues to be the goal of the Agency to reduce the presence of PCBs in the vere impact on the transformer- and ca be allowed which result from let ejectors environment to the greatest extent pos pacitor manufacturing industries which or rlnsewater from welding or plating sible as rapidly u feasible, lor all of the wUliM PCBs, end deprive the nation of tha future availability of products which operations. The maximum daffy permissible con reasons outlined above. Indeed, as addi tional data become available to the Agen utilise such Iranafonners and capacitors. Accordingly, in tho proposed standards centration is based upon on application factor of five times the maximum aver cy. it may be necessary to revise in sub sequent proceedings both the standards thf Administrator la requiring that dis age monthly concentration factor. This and the ambient water criterion estab charges be prohibited whore possible, end It provided to take into account the fact lished pursuant to the present rulemak that other discharge comply with tho Uiat occasional daily concentrations ing In the direction of greater stringency very beet results which available teeh- may exceed the required maximum In order to provide the degree of solely , notes? ean achieve. For the manufactur monthly average. They should not be required by the Act. ing sf transformers snd capacitors, the allowed at any time to exceed the lowest The Agency is obligated to review and standards am baaed on the following tab- feasible celling, however, and the where necessary, revise its section 307ia> Agency's information with respect to standards at least every three ycon. The lag enter. Mesas Jet ee> f>jM / telwfanr PptlK* Oool In rtiwa resistor system ans reeycle.- Sleptue oteam pu wltk mstfiameol 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 end-of-tlie-pipe stand ard Is at best an Imprecise calculation. Agency Intends to review the proposed standard on* year fallowing promulga tion, with the expectation that industry will have made significant strides to wards the development of reliable sub stitutes for PCBs, ms well ns In the field of control technology, so that a prohibi DHergfot washing Rrpfacs vttit seivent The dispersion and dilution factor* dis tion on all discharges of PCD* in any in water. vapor drgrvMiag. cussed above are expected to result, in dustrial effluent can be considered at Umt ( nocaAl tcoKue, vot, ei, no. m-nnoAr, iuiy as, tvre MONS 061133 *W7fi PROPOSED RULES Him. Including sources not covered by thirty days following the aforesaid notice See. * Uu iUadu<U proposed at this time. of availability. All parties to the public 129.7 Requirement and procedure for HI. Pviuc PAanciranoN in Rulemaking Paoccss .. A public hearing to consider the pro* pQMd effluent standards will be held pur suant to section 907(a) (3) of the Act hearing on the proposed standards snnii bo allowed a reasonable opportunity to examine this economic impact nssesa- mrnt and any comments therein, and to respond thereto on the record. To tills limited extant and for this limited pur . cstabiteblng a men effluent limitation. 139 0 Compliance date. 129 9-129.99 | Reserved 120 100 Aldvin/Dleldrin. 129 101 DDT. DDD and DDE. 139.102 Endrln. stringent pommenclnc on August 20.1070. at 10:00 pose only. I hereby waive the time dead 120.102 Toaophone. am. in Room 2400. Waterside Mall. U.S. line requirements for the filing of pub 120.104 Benshllna. fflhvtrenfnental Protection Agency. 401 lic comments under f 104.3(d) of the 120.105 Polychlorinated Diphenyl* (Pcm<). It Stmt. SW.. Washington. D.C. in oc- Agency's Rules of Practice for Public Avrnemnr. deco. 507. 300. and SOI oMbo cordtneo with the Agency's rules oi proc Hearings on Effluent standards for Toxic Federal Water Pollution Control Aet Amend ure governing public heatings on effluent Pollutants. 40 CPU Part 104. as amended. ment* of 1972 (Pub. L. 93-500. SO Slat. 210. standards for toxic pollutants. 40 CFR 41 FR 17898 (April 29. 1976). so as to 33 U4.C. 1251 v.tacq.). fsh 104 as amended. 41 P.R. 17890 et sag. (April 20. 1070). the first hearing day shall Include a prehearing confer ence si the above Ume and place. All persons interested in participating in allow tho filing of materials and com ments described in this paragraph within the time period herein set forth, and I accordingly direct the presiding officer at the public hearings to be conducted on 2. Subpart A of Pert 129 Is further amended by adding new paragraph (I) to 1129.4 to read a* foUowa: 6 129.4 Toxic pollutants. these hearings as objecting parties these proposed standards to ensure that should refer to the amended rules of the reeord includes all materials which (f) Polychlorinated Biphenyls (PCBs) practice. 41 F.R. 17808 etseq., and should* are filed in conformity with this para --polychlorinated biphenyls (PCBs) not rely on previous editions. Any per graph. The Agency has the legal author moans a mixture of compounds composed son who has any objection to any stand ity to modify or waive strict compliance of the bipenhyl molecule which has been ard proposed herein may file with the with its rules of practice in exceptional chlorinated to varying degrees. Hearing Clerk (A-100), Room 1019 WSMB. UJS. Environmental Protection Agency. 401 M Street. SW* Washington. . D.C. 20480. within 25 dsrs of the date of circumstances such as tho foregoing when the ends of Justice require. Cl. Amerfean Farm Lines v. Black Ball Freight Service, 307 VJB. 532 (1970) and ' 3. Subpart A of Part 129 is further amended by adding new 1 129.105 to read as follows: this notice, a statement of objection in casesetted thoieln. - A 129.10S rofyclilormalcd Wuttcnyli triplteaU which shall meet ail of the re quirements of 40 CPR 104.3 (a) and (b>. These Becticns require, among other thing*, actual receipt by the Hearing Clerk of any objection within the afore said Ume. The presiding officer may re fuse to permit any person to participate In said heaiing who fails to comply with any cf the provisions of those sections. in addition to the foregoing, any per Dated: July H. 1976. Ruuzii B. T*juj, Administrator. AfTCMOXX A ' 1. Criteria Dawmst for Polychlorinated Biphenyls (BPA. Ian C. T. Ktobat. Pb D,, IS76), including ger.er*! Introduction. 2. PCBs In the United States Industrial UM and environmental Distribution (Doe. (PCBs). (a) Specialised definitions, (l) *TCB Manufacturer" means a manufacturer who produces polychlorinated bJpenyls. (2) "JCIectrical capacitor manufac turer" means a manufacturer who pro duces or assembles electrical capacitors in which PCS or PCB-containing com pounds are part of the dielectric. (3) "Electrical transformer manufac son Interested in this proposed rulemak ing but who does not participate as a party in the formal hearing may submit written comments to the Agency on the proposed rulemaking. Such comments Should be filed In triplicate, if possible, and should bt addressed to: Hearing Clerk <A-100). Room 1019 WSME. UA Environmental Protection Agency, 401 M Ro. SPA SfO/C-lS-OOS February 25, 1976). 8. Assessment or wastewater Msmeat. Treatment Technology and Associated Coats for Abatement or PCBs Concentrations in Industrial Effluent* (Doc. No. SPA 500/6-75 006 February S,JP7S). . fCBi Water SHminetlon/Reduetlan TCehoology and Associated Coats. Manufac turers o< Electrical Capacitors aud Trans formers; Addendum to Pinal Report, Task II turer" means a manufacturer who pro duces or naaemblae eieetrieaJ trans formers in which PCB or PCB-contain ing compounds are part of the dielectric. (4) The ambient water criterion lor PCBs In navigable waters is 0.001 *g/l. (b) PCB Manufacturer--(1) Appli cability. U) These standards or pro hibitions apply to: Street, SW,, Washington. D.C. 20400. All comments which are received by the hearing clerk and which are postmarked on or before August 20. UTS shall become a part of the hearing record in the man ner prescribed in 40 CFR 104.2(d) and shall be considered by the Administrator (July!. 1S76) (supplements item 3). 5. Oenferenee Proceedtoys of the National Conference on PCBs (Doe. No. SPA M0/&-75- Oo: Conference bald November 1975; pro ceeding! published March ifie) 6. XoUce of Fropoeed Rulemaking: EPA Proposal of Tusk) Pollutant Effluent Stand ards for Aidrin/Dieldrtn. DOT (DDD. DDE). (A) All discharges of process wastes: (B> All discharges from tho manu facturing or incinerator areas, loading and unloading arcaj storage arras, and other areas which are subject to direct contamination by PCBs as a result of the manufacturing process, ineluding but not prior to the promulgation of final stand Endrln and Texapbeae. 41 FR 22570 (Juno limited to: * aids. ' JO.1S7S). (J) stormwater and other runoff: la addition, to accordance with the dissuasion above eoncoming economic Impact of Uw standards proposed at this time, the Agency will publish in the -ytsctnL RxotsTER approximately nuiety dags following the date of publication of 1. In 40 CFR Part 129. Bubpart A (as proposed at 41 FR 23S76 (June 10. 1978) and-amended at 41 FR 27017 (June 30, 1970) the table of contents Is further amended to read m follows: (2) Water used lor routine cleanup or cleanup of spills. (11) These standards do not apniy to stormwater runoff or other discharges from areas subject to contammaliou solely by fallout from air emissions of Ihls notice of proposed rulemaking an PART 129--TOXIC POLLUTANT PCBs: or to stormwster runoff that ex .announcement of the availability of tho EFFLUENT STANDARDS ceeds that from the ten year 24-hour Aftsicy*e economic impact assessment With respect to the proposed standards, MHd A--TmIc PvMutsnt Effluent Stsndsrds and PreMMUens rainfall event. 12) Analytical Method Acceptable En ms document or documents sotting forth this assessment shall be made part it the reeord of the rulemaking proceed ings on these proposed standard*, to gether with all comments directed spe cifically thereto which arc received by the Hearing Clerk at Uic above address, See. 120.1 120.2 1294 120.4 1394 120.5 Scope and purpose. Definitions. . Abbreviations. Toale pollutant*. Compliance, Adjustment of effluent standard for pretence of toxic pollutant in the vironmental Protection Agency method podded in Part 136 of this chapter, except that a I liter sample sixe Is re quired to tnerease analytical sensitivity. (3) gjlaeaf ttandentt--d) Eststlai sources. PCBs are prohibited In any dis and whirls ora postmarked not later Uian intake water. charges from any PCD manufacturer. IIPCKAL ItGIITCX, VOL 41, NO. |4I--JtlDAV, A/lV >3. try* M0NS 061134 PROPOSED RULES 30177 (ID n mrai. PCBa M. prohibited chlorinated biphenyls concentrations ex ceeds that from the tea year 24-hour In any dlKlitrse Irom any PCS ceeding au average per working day of rainfall event. manufacturer. 1 sg/1 calculated over any calendar <2> Analytical Method Acceptable. En (e) ftecfrlcof capacitor manufac- month: and shall not exceed S *g/l la vironmental Protection Accncy method rarer--U) Applicabtlttit. <J> These stand samplers* representing any working day. specified in Part 138 of this chapter, ex ards or prohibitions apply to: (11) New sources. (A) PCBs are prohib cept that a 1 liter sample site Is required (A) All discharges of process wastes: ited in any process -wastes discharged to increase analytical sensitivity. end with the exception of scrubber and (3> Effluent standards-- (n Existing (B> All discharges from the manufac quench water Irom Incinerator opera tourers. (A) PCBs are prohibited tu any turing or incineration areas, loading and tions: and process wastes discharged, with the fol Unloading iroas, storage areas and other <B) All other discharges from a capac lowing exceptions: ureas which art subject to direct con* itor manufacturer shall not contain (1) Water used in welding, plating or tAfnlpation by PCBs as a result of the polychlorinated biphenyls concentrations painting operations: and manufacturing process, including but not oxceeding an average per working day of (2) Scrubber and quench water from Haillad to: *' 0.1 pg/1 - calculated over any calendar Incinerator operations. (I) Stormwater and other runoff: and month: and shall not exceed 0.5 g/l in (B) All oilier discharges (including CJ> Water usod for routine cleanup aample(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 (AU from a trans <U) These standards do not apply to Subsection shall apply to the total com former.manufacturer shall not contain tormwator runoff or other discharges bined weight or concentration of PCBs, polychlorinated biphenyls concentrations from areas subjeet to contamination excluding any associated element or exceeding an average per working day of solely by fallout from air emissions of 'compound. X yg/l calculated over any calendar PCDs; or to stormwater runoff that ex- (d> Electrical transformer manufec- month; and shall not exceed S g/l in Mods that from the ten year 24-hour rarer--(1) Applicability. <i> These lempJjl*) representing any working day. rainfall evont. standards or prohibitions apply to: (U) New sources. (A) PCBs are pro (1) Analytical method acceptable. En <A) All discharges of process wastes; hibited in any process wastes discharged, vironmental Protection Agency method specified In Part 136 of this chapter, ex* apt that a 1 liter sample siae is required SojnflrmsrAnalytical aensitivity. (3) ffjlusnt standards--(I) Existing sources. (A) PCBs are prohibited In all protest wastes discharged with the fol lowing exceptions: u> Water used in welding, plating or and (B) All discharges from the manufac turing or Incineration areas, loading and 4inloadtogJUgiu.AtoraceArnsA(Aj)d other areas which are subject to direct con tamination by PCBs as a result of the manufacturing process, including but not limited to: (i> Btormwater and other runoff; and. with the exception ol scrubber and quench water from incinerator opera tions: and (B) All other discharges from a trans former manufacture shall not polychlorinated biphenyls concentra tions exceeding an average per working day of 0.1 Rig/1 calculated over any calendar month: and.shall not exeeed 0.5 fig/l in sample(s) representing any painting operations: and (2) Water used for routine cleanup or working day. <J) Benibber and quench water from cleanup of spills. (4) The standards set forth In this sub , Incinerator operations. <U> These standards do not apply to section shall apply to the total combined (B> All other discharge* (including stormwater runoff or other discharges .weight or concentration of PCBs. ex aeh of the exceptions set forth In the from areas subject to contamination cluding any associated element or com presiding section (A)) from a capacitor solely by fallout Irom air emissions of pound. manufacturer shall not contain poly PCBs; or to stormwater runoff that ex |FR Ooe.7-SISS4 rued 7-23-7S;t:4& om| V. HDRAl MClSllt. VOL 41, NO. 143--WIDAT, JULY S3. W4 . MCNS 06(135