Document MMGJkGKjpvpb8Vd621doeJJkM

30168 PROPOSED RULES ENVIRONMENTAL PROTECTION ufacturers of PCBs and manufacturers the inherent limitation.* or point source AGENCY . [40CFR Psrt 129] of transformers and capacitors who use discharge control, towards the degree o( PCDs and who discharge directly into protection for aquatic and other orga the navigable waters. Standards arc es nisms and human health envisioned fFltt. *#*-!( tablished for both existing And new under the Act. and are 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 Toxic Pollutant Effluent treatment works, as defined In section lished m this rulemaking us additional Standards tor Polychlorinated Biphenyl* 212 of the Act (sometimes referred to as daw become available to determine Notice ts hereby riven that tire En "indirect dischargers"), are not covored whether further protection, including vironmental Protection Agency, pursuant to the authority contained In section by the standards herein proposed. How ever. the Agency will propose pretreut- more stringent standards, is necessary and feasible. 197(a) of the Federal Water Pollution ment standards In due course for such in Control Act (the Act) as amended by direct discharges pursuant to the au tht Federal Water Pollution Control Act thority contained in section 307(b) of the L BscKoaotmo a rcss nt thc nmioNMm ' Amendmenta of 1073 'Pub. L. 02-500. as Mat, 126. 19 VJS.C. 1251 at seq.). pro- Act following proposal of these stand ards. PCBs are a class of organic compounds manufactured by the chlorination of Cl additional sections to Part 120. set- The term polychlorinated biphenyls re biphenyl with anhydrous chlorine using forth proposed effluent standards for fers to a family of organic chemicals Iron filings or ferric chloride as a cata polychlorinated biphenyls (PCBs). Ownhich have been produced and marketed lyst. The biphenyl molecule has a total June II, 1170, the Agency proposed a new in this country for approximately 45 of ten carbon-hydrogen bonds at which Part 121, setting forth proposed effluent .years. These organic chemicals are syn chlorine substitution can be accommo alendardt for the following toxic pollut- thetically made and consist of a number dated. In the manufacture of PCBs, any . ante: sldrin/dieldrin, DDT (DDD. DDE), of chlorinated biphenyl isomers. They are where from one to ten chlorine atoms odrin and toxaphene, 41 FJR. 2357C et highly stable compounds and are used may be located on the biphenyl molecule. s*q. On June 90, 1970. the Agency pro primarily as dielectric and heat transfer Depending upon the location of these posed effluent standards for benzidine. 41 fluids, though they have other uses as substitutions, theoretically os many as Pit. 27012 tt seq. Those five pollutants, well. PCBs have been conclusively de 209 separate compounds, or isomers, of aa well aa polychlorinated biphenyls monstrated to produce lethal and suble- the chlorinated biphenyl family cm be gHSBat, were "included -on a Jlet of'toxic ihal ioxic effects at low dose levels upon manufactured. pollutants previously published by the Asenor pursuant to Section 907(a)(1), 91 Pit. 94942 et seq. (September 7,1972). Mellon 907(a) (2> of the Act provides aa follows: Within eoe hundred and eighty day* after the date of publication of ny list, or revision tooroot. containing toxic pollutants or com bination of pollutants under paragraph (l) eg this aubaectten, the Administrator, in c- eeidaneo with section ass of Title S of the United States Cods, shall publish a proposed a wide range of flah. mammals, and other Tho PCBs manufactured by Monsanto wildlife, and have also demonstrated ad are marketed under the trade name verse health effects to humans. Moreover, Aroclor. followed by a four digit num they are highly mobile and persistent to ber. with "biphenyl" represented by the the environment, and bioaccumulate first two digits "12", and the approxi greatly In tissue. mate ch'orlne percentage represented by The sole manufacturer In the United the second two. Thus, Aroclor 1242 is a 8tates, Monsanto Industrial Chemicals mixture containing approximately 42 Company, currently produces approxi percent chlorine. The principal Aroctors mately 40 million pounds of PCBs per which have been marketed over the past year. Imports of PCBs currently amount' decade by Monsanto are 1321, 1233.1212. to about 0.4 million pounds per year. 1249. 1254 and 1260, although at this affluent standard (or prohibition) for such Since 1970 Monsanto has voluntarily time there is no active marketing of 1332. poUuUtit or combination of pollutants which Shall take Into account Uts toxicity of tho poUutant, Its persistence, degradability, the Until or potential pretenee of the affected organisms In any waters, the importance of too olfseted organisms and tha nature and eatont of tha tract or the toxic pollutant on restricted its domestic tales of PCBs to use in transformers and capacitors (closed systems). Consequently Monsan to and the manufacturers of transform ers and liquid-filled capacitors are slgnliicant sources of further contamina 1249 or 12S0. In addition. Aroclor 1016 (an exception to the previously Identified nomenclature system) is being marketed, and bears approximately 41.3 percent chlorine. For on extensive discussion of the chemical and physical properties of Biieh organisms, and he shall publish a no tion or potential contamination resulting PCBs, see O. Hutstnger, 8. Safe, end V. tice for o public hearing on such proposed from the discharge of domestically man Zilko. "The Chemistry of PCBs." CRC standard to ba held within thirty days. As ufactured PCBs into the aquatic envi Frees. 1974. peon ss possible after such hearing, but not latsr than su months alter publication of too proposed effluent standard (or preAUHtlon), unless tho Admtniatrotor Ands, on tho aooosd, that a modification of such proposed ronment. *\ The proposed standards Include a pro hibition on discharge of PCBs by any PCB manufacturer. With respect to any Thc unique physical and chemical properties of PCBs Include low vapor pressure at ambient temperatures, re sistance to combustion, remarkable Standard (or prohibition) la Justified baaed manufacturer of transformers or capac chemical stability, high dielectric con Upon a preponderance of evidence adduced itors, a prohibition of any PCBs in any stant and high specific electrical resistiv pi ouch hearings, suett standard (or prohibi effluent discharge of process wastes Is ity and low water solubility. At the same tion) shall be promulgated. proposed, with limited exceptions, and an time. PCBs are lipid soluble ad hence Die regulations proposed at this lime establish effluent standards for manufac turers of PCBs and manufacturers of transformers nnd capacitors which con tain PCBs. Standards are. proposed for both existing and new sources. Dm following, together with the matsriall nod Information hereinafter re ferred to and Incorporated by reference, BStS forth the basis and purpose of the average doily concentration limit per month of l *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 daily concentration limit per month of 0.1 pt/l for other discharges is proposed. Refutation of discharges under the Act cannot, by Itself, guarantee an ample margin of safety for all organisms and human health even If all point source the potential for absorption into fatty tissue and Into thc liver is high. Thus once ingested PCBs are retained by most orgaulsms rather than excreted. The qualities of persistence which mnke PCBs useful for many Industrial pur poses greatly aggravate their potential for harm In the ecosystem. Although the principal uses of PCBs today are in "dosed" electrical systems (transformers and capacitors). PCDs effluent standards proposed at this Ume. discharge* were prohibited. In light of havo been used over the ycon for a fePMMJMY Of PSINCItAb PCATOABS AMD . Bncrns or ths Paorosee Reoulations the serious environmental problem which variety of more "open" uses resulting in already exists. Data available to the greater direct contamination of tho en Agency Indicate that the standards pro vironment. These other uses include an Dio regulations here proposed would posed at this time wiU however result additive fit investment casting waxes, establish effluent standards for aU man in maximum feasible progress, within lubricant additives, hydraulic and com- KOCSAl UOISTU, VOL 41, NO. 143--FltDAY, 1UIY W4 MQNS 069643 PROPOSED RULES 30-160 pr--nr fluid, carbonless copy paper, cologicid data concerning PCBs, 41 Fit at the conclusion of the hearings that plasticisers, paints, heat exchange fluids, 409. FDA has also banned PCBs for use tho record did not contain sufUcicnt evi Certain types of paper and sealants. Most in food and feed processing. dence on which to promulgate responsible CT these uses have been substantially The American National Standard* In and defensible standards. Accordingly, curtailed, but the PCBs which have stitute has issued guidelines for industry the Agency decided to gather additional entered the environment os a result of on the use, disposal and labelling of data and repropose Its standards, sup theso uses, and which continue to be PCBs, and is currently considering more ported by an expanded data base. The Kaeed In the environment, will be there extensive guidelines for the handling, standards proposed at this time thus su t many years. Some of theso uses are servicing and disposing of existing equip persede the PCBs portion of the proposal resuKlm In effluent dlMhnrnes which arement containing PCBs. of December 27, 1973. net subnet lo the standards proposed at The General Services Administration The Agency's decision to gathpr addi this time owing to insufficient data. As (OSA) has banned PCBs in carbonless tional data and to repropose standards such data become available, however, the copy papor purchased by the Federal was discussed at considerable length in Agency expeete to take appropriate government and the Department of tho the Preamble to the Notice of Proposed m--wires to control such discharges pur Interior (DOX>* hat prohibited the use Toxic Pollutant Effluent Standards for suant to the Aet or other applicable of PCBa In offshore oil operations. Aldrln/Dleldriu, DDT, Endrln and Toxa statutory authority. The Environmental Protection Agency phene, published in the Federal Register It Is estimated that over the past 49 (EPA) hat proposed regulations pursuant on June 10, 1976. 41 FR 23576. 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 PCBs havs bsen produced in the United tion Control Aet to control spills of num by incorporated Into this PCB statement totes, of which 1.29 billion have been erous Identified hazardous substances, of basis and purpose by reference. Used In this country and the balance ex including PCBs. These regulations are ported. Of this 1.25 billion pounds, *p- Intended to establish reporting require H. TBs Proposed Standards mxJmotaty 060 million pounds have ments, to establish harmful quantities, been used in eleetrleal equipment. In ad and to fix civil penalties for spills. The dition, It Is estimated that only spproxi- Agency further anticipates use of its au- ` CENSUS!. FtOVXKtONR The notice of proposed rulemaking mittir 90 million pounds have degraded, that 790 million pounds are presently In rvlce, and that 490 million pounds are Jn (ostensibly as a result of dis- thorlty under section 311 to require industry to prepare spill prevention con trol plana. The Agency, In October, 1979, issued published on June 10, 1978, proposed provisions of general applicability to all standards issued under section 307(a). These were set forth s If 129.1 through -pnm11 <wnd m air, water, aott wnd aedl- to draft lore* eet of water quality en 129.8. Those Sections jus promulgated --ota. terla pursuant to section 904(a) of the ' In contrast, It Is estimated that dis Act recommending maximum permissi charges to the aquatic environment each year from tho approximately 97 manu ble concentrations in the ambient water for numerous pollutants. Including PCBs. facturers ef capacitors and transformers, phn Monsanto, probably do not exceed The concentration level proposed at that Ume was 0.001 eg/1 for PCBs. That docu 10,000 pounds, with direct discharges ment is currently being reviewed prior from these sourest amounting for lew to final publication. ' than one-third this amount. Although On April 1, 1979, the Agency Issued effort* to reduce substantially and even recommended procedures for disposal of tually eliminate this source of environ PCBa by industrial users, pursuant to mental contamination will have a rela tively minor effect on the overall PCB secUon 204(b) of the Solid Waste Dis posal Act, 41 PR 14134. . problem as Jt currently exists, such On July 6,1973, the Agency published efforts ars-llkely to have a more signif in the Federal Register 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, 38 FR 18044. will be applicable to standards estab lished hereunder for polychlorinated blphenyls. Ownere 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 fitate Director of an approved N7DES permit program, as appropriate), of any discharge subject to these standards, re quirements and procedures for estab lishment of a more stringent effluent limitation than that established In these proceedings, and compliance data. the specific environmental problems in the immediate receiving waters. Conse quently the Agency believes that the standards proposed at this Ume will con stitute an Important element In the over all effort to reduce and ultimately elimi nate any further addition of PCBs to the eavtroament. The tone substances were: aldrln/diel- drin, bensidtne, cadmium, cynanlde. DDT (DDD, DDE), endrln. mercury, polychlo rinated biphenyls and toxaphene. Follow ing receipt of public comment, the list woe promulgated on September 7. 1979, together with a discussion of the Agency's selection criteria and a response to com ments received on the proposed list, 98 The Stands*as rot Poltchlounated - Bffinmi In the netlee of proposed Toxic Pollut ant Effluent Standards published June 10. 1978. standards were proposed for aldrln/dieldrln, DDT (DDD. DDE), endrln and toxaphene in Sections 129.100 through 129.103 respectively. In addition, O. MM SSSVLATORY ACTION AMS UUR> moan ro reduce environmental sx- Pit 24342 et seq. The promulgated list consisted of the soma nine substances the Agency ha* proposed to add a new 1 129.104 containing effluent standards fttcoaa previously proposed. for benzidine, 41 FR 27012 (June 30. Because of the demonstrated toxicity On December 27,1973, the Agency pro 1976). of PCBs and the human health threat posed toxic pollutant effluent standards The standards proposed herein would poaed by ingestion of PCBs through the for each of theso nine substances, to add a new SecUon 129.108 to provide food chain, the Pood and Drug Adminis gether with a summary of the factors coverage for PCBs for new and cxisUng tration (PDA) 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. >9 FR facturers of transformers, and manufac food Dormant to the Federal Pood, Drug 35399 et seq. In accordance with section turers of capacitors. Coverage is pro end CcsmeUo Act. 21CFR 122.10 (July e. 307(a) (2) of the Act, a formal rulemak vided for both new and existing sources, 1979) Them tolerances included, for ex ing hearing on the proposed standards and for purposes of these standards, a ample, I parts per million (ppm) In the was scheduled. A prehearing conference new souree Is defined as any source on edible portion of Ash and sltdlflah, 2J was held on January 25, 1974, followed which construction Is begun following ppm In milk and dairy products. 9 ppm by a thirty day evidentiary hearing held tiie data of this proposed rulemaking, if in poultry. 0.5 ppm In eggs and 0.2 ppm during April and May. During the course standards are subsequently promulgated to Infant and Junior foods. On Pebru- of those hearings, which were held under pursuant to this proceeding. Tito aiy IS. 1979. FDA announced that It is severe time constraints, the Agency be Agency's data Indicate (list these stand actively considering a lower temporary came aware of certain gap* in its data ards mill cover at least three plants tolerance for fish in light of recent toxi base. Aa a result, the Agency determined manufacturing transformers, and at least fiDttAi ieoiitcr, you 4i, no. m3--tmdav, art 39, m* HUNS 069644 80470 PROPOSED RULES MTNB plants manufacturing capacitors, alt ot which art existing direct dtocharters. tlon/Reduction Technology and Associ ated Costs, Manufacturers of Electrical Capacitors and Transformers; Adden of mammalian carcinogenesis, where available, were also considered, as were data on persistence and degradability. Each section includes specialized dum to Final Report. Task IL" Data on toxic effects of pollutants are definitions of the point source category Copies of the aforesaid criteria docu not available for all species that may be covered end prescribes acceptoblo analyt- ment and reports and supporting mate expoaed to toxic pollutants in the com leal methods, in addition, provision Is rials. as well as other materials v.lilch plex ecosystem. There is n vast number made lor determination of weights and form a part of the basis and purpose lor of species throughout the entire ecosys concentrations. Zn esses where a tfts- these standards and whleh are listed on tem. and it would be Impractical to try Chart* 1* allowed, the standard till bo Appendix A below, are available lor pub to gatlior tost data on every one. or even aptelflcd as an average monthly coneen- lic inspection and copying at the UR. most of them. Because such data are not ' tswtloa limit and a maximum concentre- Environmental Protection Agency, Pub available on ell species, the range ol sen ttao at any time. lic Information Unit, Room 3922 <EPA sitivity of a smaller number of tested Ztt developine the standards proposed Library), 401 M St.. 8W. Washington. herein the Administrator has given care* M consideration to each of the factors cntamsratsd In section 307(a) (3>. Those D.C. 20406. during normal business hours. Copies of tho criteria document and technology report and supplement factor* Include "the toxicity of the pol lutant* Its persistence, degradability, the may also be inspected end copied et libraries in each of the 10 EPA regional usual or potential presence of the af footed ortanlema in any waters, the Im portance of the affected organisms and, the nature and extent of the effect of the offices.4 The approach utilised In arriving at the standards herein proposed may be generally stated as follows. tonic pollutant on such organisms." In First, because the most important ele light of the Act's manifest concern for ment in setting the standards is the le health, which Is reflected both In toxicity considerations enumerated In species is used to provide a measure of the range of sensitivity of all species. The Agency's criterion for PCBs Is based Upon a wide range of toxicity data for a phylogenetic cross section of organisms as well as species representative of a wide geographic distribution. Section 307(a) requires consideration of the Importance of organisms likely to be affected. Ecological importance of an organism to dependent on the role the organism plays within the ecosystem and upon iU. relationship to the food ehalo statute dud the legislative history, the Administrator has alto considered available data concerning human health gffocti attributable to PCBs. The data '^mattered by the Administrator -relating to these factor* of toxicity and environ mental effect ere set forth In aJ`Criteria Document.* Hie Agency was assisted in the preparation of this criteria document by Ian C. T. Nlsbet. Phi)., of the Massa- ehueetta Audubon Society, a nationally rooocnlsed expert on the toxicology of PCS*. This document is hereby incor porated by reference as a part of the statement of basis and purpose for the standardi hereinafter proposed. Da addition, the Administrator has nouiUltrrrt the availability of various -methods of control and related technol ogy by which discharge of PCBs might bo eliminated or reduced. His authority to oonslder technology as well as eco nomic Impost Is discussed In detail In the preamble portion of the Notice of Pro pped Toxic Pollutant Effluent Standards published on June 10.1970. to which the reader Is referred. i* in order to obtain relevant data for tfcll function, the Agency engaged the servlets of Versar Inc* of Springfield, Virginia, who are recognised experts in the study of wastewater treatment tech nology and the control of pollutants emitted by Industrial sources. Versar Ine. hat prepared and euomlttod a report to tho Agency concerning Industrial dis charge of PCBs and tho assessment of waatewnter management and treatment technology. Including technologies which section 307(a)(2), the starting point Is the development of the criteria docu ment, which sets forth extensive data with respect to the environmental effects and henavior of "PCBs. A prmclwrt-ob jective of the criteria document Is to seek to arrive at an ambient level of PCBs based upon the data which will provide en ample margin of safety for all impor tant aquatic organisms and others UP the food chain. Including man. who may become .exposed to it. DUs ambient wa ter criterion Is expressed as a concentra tion of the pollutant In the water in tenns of micrograms per liter (*/l> U eg/one past per billion). For sub stances such as PCBs where the data in dicate that chronic toxic effects may oc cur at extremely low concntraUons.- It becomes virtually impossible to stale with confidence that any number above sero provides an ample margin of safety for man. In such oases any criterion level chosen should be appropriately qualified to reflect these circumstances. The toxicity data used in developing these proposed standards were derived from laboratory studies os well es field observations on the effects and behavior of PCBs. Those studies have been con ducted on a variety of orcanisms includ ing invertebrate, vertebrate, and mam malian test species, and are weu docu mented in the 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 data for the carnivores at the top of the food chain In a given eco system. sis well tot tttmuhicaUy impor tant species such as 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 data, a concentration level to sought which, it to believed, will provide that degree of safety required by the Act tor all impor tant organisms likely to be affected by it assuming a continued or chronic pres ence of the pollutant at that level in the water. In the cose of PCBs. as dis cussed below, this proved to be nn ex tremely difficult task in view of the al ready dangerously high levels of PCBs In some water bodies. After arriving at on 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 lactors rele vant to the setting of standards. This process to discussed more specifically below (see "Rationale for Standard"), after tho following summary of the Agency's consideration of the available database. tre netuellr in use or which are or mar Studies documenting bioaccumulation (1) Composition, cAemfcet and phys be available to Industries to control or In tho food chain organisms and bto- ical e/iaraeierlsffe* of PCBt. The com mtadnatc the discharge of PCD*. Thtc re concentratlon by organisms directly mercial mixtures of PCBs liave been rea port Is entitled "Assessment of Waste from tho water provided an important sonably wen characterized. Each mixture water Management. Treatment Technol additional component data base. Appro contains JO to 29 major components and ogy, and Associated Costs for Abatement priate human toxicity data and studies a number ot minor components; more ( rCB Concentrations In Industrial Ef- than SO of the 209 chlorinated biphenyl ftoenta." and Is hereby incorporated by irfettncs as a part of the statement of Tbs Agency also Intends that the criteria document and technology report and supple (CD) Isomers have been identified in the commercial mixtures. After release into , bools and purpose of the standards heve- ment be made available through the National the environment Uie constitution n( the In proposed, along with a supplement Technical Information Service in Bnrlitgrteld, mixtures channes as some comiwurnt* thereto entitled "PCBs Water EUminm- Virginia- are degraded whUe others persist. Since ffOHAl MOliril, VOL 41, NO. 143~MfOAY AAV n.'TttJ MONS 089645 PROPOSED RULES 30471 MDi components ore more toxic than then, this complicates the evaluation of the haserds posed by environmental "S& toxic Impurities, polychlori The row wastes from the manufactur ing area at Monsanto consist of tho liquor from the scrubber, tho condensate from Uic steam jet ejectors, water used for showers and eye baths, miscellaneous Effluents from plants In this category range between 2.500 gallons per day to 1.26 MGi3. These effluents are discharged into tho navigable waters or are intro duced into POTWs without any treat nated dlbcnxo/unms iPCDFs), are pres* floor wash drains, waste oil collected in ment directed toward PCD removal. Ef Bt In small quantities in the range of drip pans and drums, and so-called fluent information obtained for 14 plants I to )1 milligrams per liter (mg/1) in "montera" which are the bottoms from indicated that average effluent PCB con most commercial mixtures- Products their stills. The composition and quanti centrations ranged from less than 10 manufactured overseas frequently con ties of the individual waste streams are mg/1 to more than C.000 pg/l. Average tain more PCDFs than American-made not monitored. All effluent streams gen mass emissions of PCBs from these plants Aroclor mixtures. There is evidence that erated in the manufacturing area are ranged from less than 0.01 lb/day to PCDFs mty be formed from hcds both collected in sumps located is this area. nearly 2A lb/day. In ssrviot, end In the environment by Reportedly the aqueous discharges .photochemical and metabolic processes. amount to 750 ug/1 PCBs in 0.432 million <C> TRANSrOOMXl MANVFACTORiNO Aooordlngly. the toxicity of PCD mix- gallons per dsy tMMGD") or 2.7 Ib/day. There are eighteen transformer plants turm 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 Montanso consist of the manufacture transformers using PCB- freshly manufactured products. However, venturi scrubber liquor and the waste cantainlng Askarel dielectric fluids. As- It to hot posalhlo to separate the toxic phase from the oil-water separator sump. Karel transformer oils are blends of 60 ffccto of PCDFs and PCBs satisfactorily. Reportedly the aqueous discharges from to 100 percent Aroclor 1254 or 1242 and pwd the environmental hazards of both this area amount to IS ug/1 PCBs in trichlorobenzene. This type of trans must be considered tosether. 0.268 MOD or 036 lb/day. Tho total plant former constitutes only flve 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 arc freely soluble in organic solvents and principally for cooling and a maximum facturing volume. The remaining to lipids (fats), but have very low solu- of 360.000 lbs of steam. manufacturing volume uses mineral oU bUlty In water. In general. Uiose 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 25 lbs. manufacture of air-cooled or gas-cooled re more solublo in muter and more vole- of scrap oil and "monster" are produced transformers as well. Askarel trans toe than' those with greater chlorine per ton of PCS produced, that about 5% formers are used when other types are *toms per molecules. Accordingly, tbs lbs of PCB in contaminated solids per ton unsatisfactory because of design limits- , Bflitmoa are differentiated during wola- ol PCB produced are landfilledttally and *1101X1 or where flammability ds a prob tfUsstion and solution, the lower CBs that less than 1 lb/day of PCBS to lost lem. The PCB usage In this category being more mobile. PCBs are strongly as air emissions. was approximately 12,000.000 lbs In 1974. adsorbed onto surfaces and particles. In the aquatic environment their behavior (> carserrom mahuvactfxjwo _ At least three of these plants have direct discharges and are therefore subject to . Is often controlled by the presence and movement of sodlmsnts. (3) Jtflctmnt use and wastewater characteristics--(A) Manufacturing of PCBs, The solo domestic manufacturer There arc nineteen plants operated by. the standards proposed at this Ume. seventeen companies manufacturing PCB There are two prinolpal types of trans Impregnated capacitors in the United formers produced: electrical distribution States. At the present time approx transformers which ore used to step imately 95 percent of all Itquld-fllled down voltages, and power transformers of PCBs 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 whom manufacturing operations ore The two most frequent applications of tions Include use In networks, pad- onduoted at 1U William O. Krummrich these capacitors are for phase corrections mounted and pole-mounted, and special plant In Sauget. Illinois. Aroclors 1221 on power lines connected to electrical precipitator power supplies located In and 1016 sure used by capacitor manu motors and for use as ballast for fluores closed proximity to hot gas stacks. facturers as dielectrics. Aroclon 1242 cent lighting systems. The PCB usage in Quantities of Askarel used in trans ad 1304 arc used as principal Ingredi ents In formulating the Asksrcls used by transformer manufacturers. Monsanto discharges Its effluent to the Bauget POTW, and therefore to not this category was approximately 22,000. 000 lb*. Is 3974 with most of this being Aroclor 1016. At least seven of the nine teen capacitor manufacturing plants have direct discharges to the navigable formers of this type range from 500 te 6.000 lbs each. Many of these trans formers have provisions for venting with spring loaded venting devices or dia phragm rupture discs. covered by the standards proposed at this waters and ore therefore covered by the Askarel power transformer applica 'Uae. Hie Agency expects in due course standards proposed at this time. tions include use in primary and second to propose pretreatment standards ap Most plants manufacture either large ary substations, industrial furnaces, rec plicable to this facility and to say other power capacitors or small industrial type tifiers, rail transportation, and for react faculty which may In Uic future manu facture PCBs. A brief discuuton of Mon- janto's operations and wastewater characteristics to appropriate here, how ever, in view of the fact that standards re proposed at this time for direct dis chargers for the PCD manufacturing category for existtng and new sources. Monsanto's ability to achieve zero direct discharge was also considered In propos- fngUieso standards. * tlie Krummrich plant has a design opacity to produco 48 million pounds of PCBs per year. In 1074. Monsanto pro duced 46,460,006 pounds, of which 34, 400,000 pounds were sold domestically. Approximately two-thirds of 1074 domes- tie sales were of Aroclor 1020 with most pf tho remaining production evenly divided between Aroclors 1243 and 1254. Only small quantities of Aroclor 3231 unite but not both. The large capacitors are sithor flood filled or manifold filled. All small capacitors are flood filled either In a vacuum tank or in an automatic "carousel** arrangement. ' The raw wastes originating from these plants consist of scrap PCBs collected In sumps, 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; tlie seal water used in vacuum pumps; water used In phasphatlslng and fluoride bath; water spray used in paint booths; boiler ance and grounding functions. Quanti ties of Askarel used in transformers of this type range up to 19,000 lbs. Various transformer assembling and Ailing procedures are being practiced throughout the industry. In general, the transformer assembling and filling oper ations consist of a predi'ying 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 sealing. Water is net on essential component of transformer manufacturing. In general, the proems raw wastes from these plants consist of waste Askarel collected hi sumps or pans at the filling stations, contaminated vacuum pump seal oil. contaminated kerosene-like petroleum '.wove produced. blowdown; and cooling tower blowdowns. distillate, and contaminated Askarel used . flOHAl KfOWt*. VOL 41, NO. 143--IftlPAY, JULY 23, Iff4 HONS 069646 KM72 PROPOSED RULES for transformer Interior flUKhlng. PCD most characteristic effects in rats are en milar in many respects to those observed wastes which reach water sircants at largement of the liver, induction of hepa among the population contaminated In these plant* are due to occasional loss tic microsomal enzymes and porphyria. the Yusho incident. during handling and residuals accumu Reproduction is adversely affected at (8) Persistence, mobility end (icqrad- lated around drainage systems from past dietary levels ot and above 20 parts per abilitv. PCBs have a long life in the envi operations when InsuHIcicnt precautions million (ppm; 1 ppm is comparable to a ronment. often in excess of 25 years but were taken against pci) losses. liquid measurement of 1 milligram per component* with three or less chlorine Based on Information from five plants, liter <1 mg/!)). toms disappear rapidly. Mono-, <11. and t&ucnle from plants In this subcatcgory Rhesus monkeys are extremely sensi trl-CBs are to some extent degraded or ranted (rom 13,500 gal/day to nearly 1.9 tive to PCBs. which induce skin lesions metabolised by bacteria, but higher pcb* MOO. Theta effluents (predominantly and gastric ulceration. Monkeys exposed are resistant to microbial degradation tooling water! are discharged Into the to 2.5 ppm suffered reproductive dysfunc Tetra-chlorinated PCBs can be metabo navigable waters or arc Introduced into tions nnd some died after exposure to lized by birds and mammals, but twnta- FOYWs without any treatment directed only 3 ppm. Adult female Rhesus mon chlorinated PCBs are resistant and toward KB removal. Average effluent keys fed 25 ppm of Aroclor 1216 not only higher CBs are metabolized only utry )*CB concentrations ranged from less accumulated the PCBs in Uicir adipose slowly. Most environmental residues have than 3 gg/1 to nearly 30 wg/l. Average tissue, but the PCBs were transferred been reported in the form of tetra and mass emissions of PCBs from these across the placenta of one female which higher chlorinated PCBs. plants range from less than 0.002 lb/day gave birth and concentrated at high PCBs are mobile in the environment to nearly 0.1 lb/day. levels in the fat and adrenals of the in and are carried freely In the air and the -<3> rosfeify. PCBs Inhibit growth and fant. ' water attached to airborne or water ctU* division In certain species of phyto-' . Mink are also very sensitive to PCBs. borne particles. Conventional incinera planktoo fslngje-cclled aquatic plants). In one experiment, most females died on tion and other disposal techniques do not . Boat sensitive species are affected at a diet containing 10 ppm and none pro completely destroy PCBs. ~ very low concentrations (0.1 yg/l>. The duced young at 5 ppm. in another test <7> fifooccumufaiton and bfomagnifl- affects arc particularly marked in mixed 0.84 ppm caused (otal reproductive fail cation. PCBs are strongly concentrated cultural, 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. Bloaecum- PCBs arc toxic to aquatic insects, crus- posure of rats and mice. PCBs cause a ulatlon factors (concentration of PCBs in .4Mahfc ..And Afhor Javertobratea at variety of morphological changes in the organisms compared to concentration in concentrations down to a few *g/l. Re liver. Including hypertrophy, hyperplasia, water) for these organtans are oons- production and growth in aquatic in adenoAhrosia and nodular hyperplasia. ntonly in the rnnge.of 20.000-274.000 after vertebrates are adversely affected at At high dose levels <100 ppm and above) prolonged exposure in tho laboratory. concentrations as low as 0.4-0.5 pg/l. PCBs Induce hepatomas, neoplastic However, wnere measurements of con PCBs affect the settlement of larvae and nodules and carcinomas ir. rates and mice centrations In natural waters are avail reduoe the diversity of marine inverte and therefore pose a presumptive carcin able. blosccumulatlon factors in Ash and brates communities at concentrations as ogenic risk to man. In one experiment. Invertebrates are generally larger than low as 0.1 gg/1. * PCB-treatcd rats also displayed an in those measured in the laboratory. There ' PCBs are acutely toxic to estuarine creased incidence of pituitary tumors. have been reports that certain animals aquatic organisms. For Aroclore 1016, Metabolism of PCBs in mammals and - captured from the aquatic environment 1143 and 1254, the 48-hour LC50 values birds proceeds primarily through arene have apparently bioaccumulated PCBs in for brown shrimp, pink shrimp, and grass oxide (epoxide) intermediates, which are their flesh to levels of between 3 and 10 .shrimp fall In the range between 9 and biologically active and believed to be million times that of the water concen 31 gg/1. In longer-term bioassnys of two highly toxic and carcinogenic. PCBs also tration in which the animals were cap weeks or more, Aroclor 1354 U toxic to have immunosuppressive effects in rab tured. It is Important to uoLe. however, tho commercially valuable penaeid bits and guinea pigs. In several experi that the level of PCB contamination in hrimp end grass shrimp at concentra ments treatment with PCBs has in the food of the captured aquatic life, as tions M low as 0.9 to 1.4 *g/I. Arthropod* creased the susceptibility of animals to well as Ute concentration of PCBs in an affected at 0.1 gg/1. various diseases. which these organisms resided for the Rainbow trout have been killed by ex (6) Human health effects. Humans oc predominance of Utelr life periods, or* po*are to Aroclor 1248 at concentrations cupationally exposed to PCBs sometimes unknown. of 3.4 el/1 In 25 days, and by exposure suffer from an occupational disease Fish In Escambia Bay. Florida, had to Aroclor 1200 at 5 gg/1 in 10 days. Spot known as ehloraene, characterised by PCBs levels in their flesh 870.000 over and plnflsh died when exposed for 14 to long-lasting skin lesions and sometimes Ute ambient water In which they were 48 day* to 5 gg/1 of Aroclor 1254. Hie systemic disturbances. captured. PCB levels In Ute witters of - tongnose kttllffsh 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 1908, more than 1.000 persons However. PCB levels in fish In Lake 'oenlraUon of l gg/1. . became sick with Yusho disease after Michigan range in tho 3 to 20 ppm . POD* liavo advene effect* on survival, Ingesting rlee oil contaminated with range, wet weight <18-200 ppm, growth, and reproduction of Ash at con both PCBs and PCDFs. Their symptoms lipid weight) Indicating an apparent bio- centrations as low ns 1 ag/l. In one caso, were similar to those of occupational accumulntion factor ranging up to at teg* from fish exposed to only 0.1 eg/! ehloraene. but also Included hypcrplg- least 2.000,000 in whole fish. Levels of failed lo hatch after being placed In PCB- mentatton of the skin, persistent eye dis PCBs Ut some whale and seal blubber free water. A variety of oilier eublcthol charge and gastric disturbance. Chil were found to be in excess of 1 million in loads offsets have been observed on a wide dren were affected not only by direct the ambient water concentration in rang* of freshwater and marine Ash Ingestion of the contaminated oil, but which Ute animals were taken. .present to waists Uioughout Ute country, also prior to birth by transplacental pas PCBs are further concentrated <bio- and these are set forth in detail In the sage and in one case a child was contami mngnlfled) from the food of birds and Agency* criteria document /or PCBs. nated by its mother's milk. Tho af mammals into their tissues, especially . PCBs generally have low acute toxicity fected persons have improved only slowly into Utelr fat. BlomagniflcaUon factors to btodi and mnnmmlo, but long-term since 190S and there are already indica (ppm In organisms/ppnt in food) are dietary exposure leads to a variety of tions of excess cancer incidence. often hi Ute range 1 to 10 after prolonged . chronic toxle effects. Tho Rhesus monkey provides an Im exposure In Ute laboratory, but arc oiten . Rata are relatively resistant to PCBs portant Indication for human sensitivity as high as 10 to 100 In wild animals and and usually do not sltow the characteris to PCBs and. as noted above, is extremely birds. Humans store PCBs in Utelr fat tic lesions of Ute skin mid stomach In- sensitive to low levels of exposure. The more eiliclenUy than any animal foe docad to several other mammals. The symptoms following exposure appear el- which precise measurements itave been HDCKAL IICItTII, VOC 41, WO. >4J--UlDAY, iULT i. im MONS 009647 PROPOSED RULES . 30173 mad*. This leads to creator exposure to MfietUve organs and tissues in humans than in animals exposed to the siuno con centrations of PC1* In the diet. The daU Indicate, in particular, that Aroctors 1010 and 1242 are widely present in Ash in Uie United Stoles. This in turn leads to sub "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 pg/2 should not be exceeded. To assess risks to humans, the most critical toxic effects of PCBs are those 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 stantial exposure of humans and other Ash-eaUng animals. ' <) Ambient voter criterion /or effect* on nofvral lystems. The roregomg sum mary briefly highlights the extensive data basoset forth in the criteria docu ment This data base demonstrates that PCBs poet a serious threat to a wide range of aquatic and other food ehaln - organisms, as well as to human health, at very low concentration levels. Thtre ap pear to be some variations in the toxic ffeots for different Isomers. Thus, the more highly chlorinated isomers appear to be somewhat more persistent in the environment, while the lower chlorin ated Isomers appear to be somewhat more acutely toxic. These differences are relatively minor, since all isomers which aro significant constituents of commer cial mixtures of rent are highly persist ent and mobile In the environment, and toll isomer* display a degree -of toxicity which is a matter for grave public con cern, Moreover, the composition of PCB mixtures changes as thev are transported through the environment. There is also evidence that toxic metabolite*, or break down products, may be formed, so that observed in mammals at the lowest ex posure levels. These include: (1> Mortality and reproductive failure tn mink at a dietary level of 0.64 ppm. (11) Increased liver weight in weanling rats in the second generation of animals exposed to 1 ppm. and liver pathology (including nodules) in the second gene ration exposed to 20 ppm. <1U) 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 2.5 ppm and deaths at 3.0 ppm. (v) Increased activity of hepatic mi crosomal enzymes in rats fed at 0.5 ppm for 4 weeks. <vl> Carcinogenic effects In rats and' mice at dietary levels of 100 ppra and above. (vil) Apparent Increase In Ineldenee of pituitary tumors In rats at dietary levels of 1 ppm and above. (vlli) Widespread pretence of PCBs in flsh and other organisms regularly con sumed by humans. ' the chemical species distribution in & All if these effects are relevant tn water body may not l e the same as the weighing potential adverse effects of determined that the characteristics of these wastes are sufficiently similar co that the same kinds of control and treat ment technologies are applirable. The wastewater characteristics for manufacturers of capacitors and trans formers have been described above. Data available to the Agency indicate that wa ter can be eliminated from most If not nil of the manufacturing-related processes, with the result that potential emuente can be sufficiently reduced in quantity so tha,t they can be Incinerated or other wise disposed of so as to reduce greatly or eliminate any discharge of process wastes to the navigable waters. Where large volumes 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 incineration. With respect to eaoacitor manufactur ing wastes, the scrap PCBs collected In sumps, drums, and drip pans, as well os 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 and component apeeles distribution of the substonee dis PCBs on humans. Is particular, the cleaning operations, cleaning solvents charged. For all these reasons, there ap pears to be no sound basis for setting dif symptoms of poisoning In monkeys, in cluding dermal and gastric lesions, are rather than water can be used, and then incinerated following use. Water used fn ferent criterion numbers or standards for different Isomers, and accordingly, tho criterion and standards herein proposed parallel to those observed in man; cnsyme Induction Is a basic biochemical effect which has been observed tn many phosphattzing and fluoride baths by some plants can be eliminated, along with the entire process, by use of aluminum con are tor PCBt gcnerlcally. species; carcinogenic effects in rodents tainers. 1 A criterion level of O.DQl *g/i would appear to avoid adverse effects to most aquatic organisms, based upon an an alysis of both laboratory and field data. Hill level Is based primarily on the Moaceumulatlon properties of pens. Pish have been shown to accumulate PClls by factors as high as 274.000 in the laboratory, while considerably higher factors appear to occur In their natural environments, llased upon a bloaecumu- lation factor of 274.000 a concentration d 0.001 sf/1 could result in bloaccumulattoa to 0.274 ppm In flesh, which Is below are generally used to predict potential carcinogenicity in humans. * It Is difficult to use the results 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 (c) because humans are known to store PCBs in their tissues more efficiently than the experimental ani mals. These data do. however, further Capacitor manufacturers who use steel containers 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 of a waterfall for trapping paint particles and fumes. Aqueous discharge from cooling tower blowdowns can be reduced by use of a re tho dietary levels whleh have been shown Injurious to aquatic birds and mammals who may feed upon them. In addition, however, there Is evidence that In some waters some Ash bioaccumulate at fates loughly ton times this, and in water* where the chronic level generally support the proposition that an ambient water quality level of .001 *g/l should not be exceeded, and, beyond this, that very reasonable effort should be made to limit discharges of PCBs in order to mini mise human exposure. <> Control technology available. At cycling system based on demineraliza tion or. alternatively, by incineration of blowdown. Any solid waste residue, which will not Include PCBs. enn be disposed of by landfill. Boiler blowdown, which is not likely to contain any PCBs, esn be seMcd In drums and landfilled or treated by the exceeds J01 ef/1, such as Lnke Michigan, them Is evidence of sublcthai toxic cf- tha present time there are no direct dis charges of PCBs from a PCD manufac activated carbon treatment system. With respect to transformer manu foetooalheflsh. m proposing this ambient water cri terion tho Agency recognises the possi bility that such water quality level may not provide absolute safety for all organtiens In all wnteis. Indeed there prob turer and thus no in-place technology to evaluate. Trite only UB. manufacturer, Monsanto, discharges to the Saugct, Illi nois POTW. With respect to process waste effluents from PCBs users, water Is unnecessary to the processes involved facturers, as with capacitor manufactur ing, all scrap PCBs collected in sumps or pans can be incinerated. Contaminated vacuum pump seal oil. petroleum distil late. and oskarri used for transformer Interior flushing can also be incinerated. ably Is no numerical concentration level In the manufacture of llquld-fUled ca Each of these controls has been demon above eero which one ran at this time pacitors or transformers. Consequently strated by use by at least one of the ay with groat confidence provides an for process waste (with certain specified covered plants. nocfAt ftiomcft, yol ei, wo. tss--ttnur, mix r, ttn \ MONS 089646 30474 PROPOSED RULES Several potential sources ol process-re sufllctent Information was available to those permit proceedings are )m* strin lated waste map in some case* result In evaluate these syslans. gent than the limitations which would be ffluents which cannot be avoided feasi (JO) Economic impact. The Agency required by these proposed standards bly In the near term: Rinacwaler used In recognises that there may be significant under section 307(a). The Agency tnvives welding, painting or plating operations, eoftt* and economic Impacts associated comments on the comparative (eth end scrubber and quench water Irom with the standards proposed at this time. nology. costs, and resulting economic 1m- Inelmislw eperatlims. Ute Agency has mode a preliminary as pacts associated with those limUnuotts as These categories of process-related dis sessment of easts and economic impact- compared with Ute standards hereinuUcr charges, as welt aa non-proccas related which Is summarized below. Preliminary proposed. If Interested persons believe efiuents,Including plan t washdown, non cost estimates, as set forth in the report that a modified standard is preferable to contact tooling water, and runoff from submitted by Veraar. 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 below, pliance with Ute pro|>osed standards may the record the appropriate supporting Xt should be noted that EPA-sponsored result in additional costs of production data and Information (see Public Par tnvesUfatkrai have revealed that there equal to or greater than five percent of ticipation in Rulemaking Process. be)ow> oreno In-place processes being employed the selling price of the products (trans (11) Rationale lor jtandard. In dis . whereby dissolved or sorbed PCBs in formers and capacitors). thus Identifying cussing the establishment of nn ambient Water streams are being either ex- this regulation tentatively as a major water criterion number above, it was em trotted from those streams or destroyed action requiring the preparation of an phasised that a concentration of .001 wtUdn them. In general, these waste Inflation Impact Statecmnt <ns> pur eg/1 should not be exceeded and. In addi streams contain concentrations of PCBs .suant to Executive Order 11821. A more tion, that every reasonable effort should of leu than 1 *g/l up to about soo detailed assessment is currently being be made to limit discharges of PCBs In at/] with many instances occurring in IP to W eg/I range. While several prepared by the Agency, and will be ac companied by an ns. If necessary. The order to minimize human exposure. In deed the data suggest that to provide sn H the plants have practiced PCB segre availability of these documents upon "ample margin of safety'' for hwmn gation to keep the quantity of con their completion will be announced In health, and possibly for some other or taminated wastewaters as low as possible, none has Installed full scale terminal . JPC9 removalXooiUties. The SPA through Us contractor. Verier, Inc., has identified a technology the Fxwcom. Rxoistsx, and public com ganisms as well, an ambient water criments thereon will be invited. These terior far lower than .001 eg/1 may be re documents, together with all public com quired. though at this time one cannot ments thereon which ere received -by the confidently identify4uiy specific number Hearing Clerk postmarked not later than above zero. which will reduce the PCB concentration thirty days following the aforesaid notice At the present time, even if every point la wastawatera to l **/l or less and Whleh is capable of being installed within one year. The identified system Is based Upon activated carbon edsorptlon, fol lowing primary treatment consisting of sedimentation, filtration, and skimming. The feasibility of achieving the 1 eg/1 or leas level has been demonstrated in laboratory teste conducted cooperatively between Veraar, Inc,, and two activated earbon suppliers. Carborundum Com - pany and ICI-U.3. The system consists of an equalization-settling tank and of availability of these document*, shall be made a part of the record of these rulemaking proceedings (see Public Par ticipation In Rulemaking Process, below). The standards are btiug proposed at this time prim* to completion of the economic Impact assessment in light of the order and decree entered by the United Btates " District Court In Natural Resources De fease Council ef aL v. Train, civ. No. . 2153-73, and consolidated cases, on June 9,1978, requiring proposal of these stand ards by July 14,1978. source discharge were prohibited, PCB concentrations ir. the water would remain for a long time not only above zero. but in some water bodies, above' .001 ?zi 1. Moreover, since the capability does not exist presently to measure PCB concen trations below 0.001 *c/l with any rea sonable degree of reliability, no useful purpose would be served in establishing a criterion number below this. In light of the foregoing considera tions. the Administrator has weighed carefully the desirability and feasibility Mxed media filtration followed by car The Agency's preliminary assessment of imposing a prohibition on any dis bon adsorption. FIostables and sludges of costs and economic Impact suggests charge of PCBs from any point source. from the equaMsaMon-scilMog tank and that transitional impacts may be signifi In the case of existing manufacturers, pent carbon are disposed of by incinera tion. Carbon adsorption hoe also been ueeessfully used In full-scale operation cant. The preliminary estimate of the cost of compliance indicates aggregate capital costs for the direct dtschargcis of to achieve removal of pollutants other 813 million and total annual costs of 87 ` than PCBs down to comparably low milUon (based on a 8-year depreciation levels. Based on work performed cooperatively between Vmar. Inc., and Houston Re schedule). The annualized costa repre sent 9 to 22 percent of current selling -prices for transformers and 3 to 17 per * search on one system and Weetgate Re . search on another system. It was indl- cent for capacitors, the indicated ranges resulting from the types of transformers eated that systems employing ozonation and capacitors produced. These costs may In conjunction with ultraviolet radiation on be designed to achieve any desired be of sufficient magnitude to induce clo sures of some small and/or marginal fluent PCD concentration. Preliminary plants and conversion to substitute ma this can be dono since the only present PCB manufacturer docs not have a direct discharge. A similar requirement is im posed upon new PCB manufacturing sources, who would be required in effect to either achieve a completely closed sys tem or discharge into a POTW. With re spect to transformers and capacitors, both these industries provido important products to the United Slates economy lor which there are no presently proven substitutes. Moreover, the best reduction levels whleh available technology can achcive with respect to an effluent dis comparisons of the capital cosu between the ooone-QV system and activated car- terials for others. It ts not certain that such conversions could be carried out in charge containing PCBs Appear to be 1 m%/\ through the use of carbon adsorp ten system show at least a 100 percent the one year allowed by the Act without tion treatment Tills exceeds the ambient greater east fr the osone-uv system. causing disruption of the supply of trans water criterion by three orders of magni When pvatreatment costs are Included formers and capacitors. Additional anal tude. tee mows UV arstem Is only about )0 ysis will be earrled out to assess more Discliarge of relatively modest amounts percent higher titan activated eartoon. H Is doubtful Itowcvcr. tluit Uic ozone-UV completely these types of Impacts, as well os to Identify other types of economic of a pollutant Into the water At many times the ambient water criterion may be syetem could be Installed within one year, cflocts. allowed, however, without necessarily the maximum period of time between In addition, the EPA Is currently en falling to provide safety for affected or promulgation and Ute effeetiva date of gaged In issuing NPDEB permits pur ganisms. First, the actual discharge con three standards. suant to section 403 of the Act applicable centration docs not normally remain (he Other systems evaluated Included ad to point sources which rill be covered ambient concentration. 2a fact, (he ef- sorption by polymeric resins, catalytic by those proposed standards, in some t- llucnt disperses following discharge and reduellon and catalytic oxidation. Jn- atanccs the limitations being proposed in becomes greatly diluted. The area of dl- KMtAt UOfSTCt, VOt. 41, NO. |4Z_-4II0AV, JUtY 23. 193* HQNS 089649 ntorosEb rules 3M75 lution Is often referred to as a "mixing one", end will very In size end shape Wssfewster type rype of technoton ppffed from one body of mater to the next and from one discharge to the next. The re mit of this phenomenon is that once the ' effluent reaches the outside of the mixing one. the pollutant concentration may have become diluted by a factor of sev eral hundred or more, and Indeed may Poller blowdowns. Incinerator scrubfor water. ProcMS-SMoclsted ynter, deaalaerallco, and recycle. Pretroatment and car bon adsorption to I 0g/l or Use. Pretreatmant and ear- boa adsorption to 1 mtA or leas. not even be detectable by the most so Sanitary waste To FOTW. phisticated monitoring equipment. Con- waters. eededty, in some instances there may bo adverse effects on some organisms in the Immediate vieinlty of the outfall. How- Rainfall runoC.... Snaloaa areas or pro treatment and car bon adsorption. over, for ehronlo effects to bo observed, > Includes hot aoUer dip rinse water. fho exposure time would have to be quite phoaphaUalng bath wastewaters. tin plating lengthy--perhaps a lifetime. Even acute bath and rinse waters, fluoric* bath and taste effects, whleh normally occur at 'much higher dosage levels than chronie rinse waters and painting water spray. Tbeae are email in volume and may oocur la only effects, are generally recorded based upon a single plant. . a M-hour exposure. Because of the ex Using this technology results In a pro traordinary persistence of PCBs reliance hibition on discharge of FCBs from any tt mixing sonu, while of assistance In point source to the navigable waters in the Immediate future, cannot be regarded volving solely process wastes with the as a long-term solution to the problem. exceptions noted In Uio above table, which In developing the proposed standards, would be treated with activated carbon the Agency also considered the availa to the 1 pg/1 level or lower. This tech bility of substitutes for PCBs in trans nology substantiates a standard of a formers and capacitors. Several com prohibition of PCBs In process wastes panies have developed products which (except for certain specified wastes) and they believe are an adequate substitute treatment of other discharges with aoti- forFCBs In transformea juu) tffftrJte jir*' sted .carbon, reducing PCBs to 1 yg/1 wider way to develop substitutes for or leu. Although occasional deviations PCBs In'capacitors as well. At this time, are unavoidable, at no time may any however, It is still too early to determine such allowed discharge exceed 5 pg/1 lor with confidence whether the substitutes samples representing a working day. ait not only functionally effective but, In For new sources, where further tech addition, ere safe In terms of potential nology advances can be reasonably ex fire htsard and other safety considera pected. a more stringent limitation may tions, and are environmentally cafe. The be set to take such expected advances Agency has eonduded that it cannot at into account. Including advances in con this Umo set a toxio pollutant effluent trol technology and In substitutes for standard. or prohibition on discharge, PCBs. limitations of 0.1 st/1 on the daily upon iht assumption of the ready avail average per month and 0.5 sg/1 maxi ability * * substitute product. However, mum at any time should be achievable the Agency to pursuing an active policy to (the ozonatlon-UV data so Indicate) and encourage Industry to develop as rapidly are therefore proposed as new source as possible feasible substitutes for PCBs. standards lor non-process wastewater 4 Because of the absence of any proven dtechwf* from transformer and ca satisfactory substitute for PCBs in cer pacitor manufacturers, and from dis tain transformers end eapaeltors. It must be recognised that to impose a probffrtUen on all PCS-oontalning effluents at this Ume would probably eause a se vere Impact on the transformer and ca pacitor manufacturing lnduatries whleh charges resulting from scrubber and quench water from incinerator oper ations. For the reasons discussed above, no new source discharge of PCBs will be allowed which result from let ejectors or rinsewatar from welding or plating ullltse PCBs, and deprive the nation of the future availability of products which utilise such transformers and capacitors. AoeonUngly. in the proposed standards thg Administrator is requiring that dis charges be prohibited where possible, and operations. . Tlio maximum dally permissible con centration is based upon an application factor of five times the maximum aver age monthly concentration factor. This la provided to take into account the fact that other discharge comply with the vary best results which available tech . notogy ean achieve. For the manufactur ing et transformers and capacitors, the standardsare based on the following tab- that occasional daily concentrations may exceed the required maximum monthly average. They should not be allowed at any time to exceed the lowest feasible celling, however, and the Agency's Information with respect to type / leeftaotofy wiMlrwefertype Bso ssotasl ced Gael in closed radiator ing eater. system and roeyeJo. team |et nedin- Rcplac* etesm jeie sale. with aeeehanleal pumps carbon absorption and analogous treat ment techniques Indicate lliat a variabil ity factor of five is achievable and reasonable. Translating an. ambient water criteri on number to an etid-of-lhe-plpe stand ard Is at best an imprecise calculation. Detergent vaehtng Replsee with solvent Hie dispersion and dilution factors dis waten vapor digressing. cussed above are expected to result, in most receiving waters, in the achieve ment of the degree o( protection envi sioned by the Act. The Agency recog nizes. however, that there may be a few cases whers. because o( loeal receiving water conditions, notably with respect to hydrology, sufficient dispersion and dilu tion may not lake place. To deni with such cases. I I2.7 of Subpart A (the general provisions of Part )29: see stand ards proposed on June 10. i07j. 41 Fit 23570 allows the applicable NPDF& per mit issuing authority to Impose such more stringent effluent limitations as may be required in order to achieve or ap proach the ambient water criterion level, in this case .001 .g/l, at least beyond the boundaries of any reasonable mixing cone. In addition, more stringent levels may be. imposed to meet any applicable water quality standard, see 1129.5(e). It Is possible that an exercise of these pro visions could result in a plant closure. However, by allowing some considera tion for technology in the initial stand ard-setting. even though consideration of ecological and health effects are para mount, the approach taken under these standards makes it reasonably probablo that If there aro to be any shutdowns, they will occur only alter a sits-speeifle examination, and only because of a fail ure to msst the safety requirements of section 307(a). Finally, it Is recognized that to allow a discharge at the proposed levels may pose some risk of adverse effects to some or ganisms, particularly those located near the outfall, and possibly to the consumers thereof. However, based upon prelimi nary Information, this risk is deemed to be outweighed at this time by Lho social and economic benefits represented by not setting a standard which would force widespread closures of plants manufac turing capacitors and transformers, which would in turn be likely to sharply curtail the nation's supply of these essen tial products, or lead to Importation of products containing dielectrics which are even more environmentally hazardous. (12) Subsequent review of etanaardo. It continues to be the goal of the Agency to reduce the presence of FCBs in the environment to the greatest extent pos sible as rapidly as feasible, for all of the reasons outlined above, indeed, as addi tional data become available to the Agen cy, it may bo necessary to revise in sub sequent proceedings both the standards and the ambient water criterion estab lished pursuant to the present rulemak ing In the direction of greater stringency In order to provide the degree of safety required by the Act. The Agency is obligated to review and where necessary, revise Its section 307(a) standards at least every three yean. The Agency Intends to review the proposed standard one year following promulga tion, with the expectation that industry will have made significant strides to wards tlie development of reliable sub stitutes for PCBs. as well as in the field of control technology, so that a prohibi tion on all discharges of i*Clis in any in dustrial effluent can be considered at that FIDEIAl tIOItlll, YOU 41, NO. 141--ntlbAT, JUlY >3, 4M HONS 039650 SU7 PROPOSED RULES tint. Including sources not covered by thirty days following the aforesaid notice See. the standards proposed at this Ume. of availability. All parties to the public 139.7 Requirement and procedure for UI. Public PaancirartOK in Rulcmakiko PROCESS A publlo hearing to consider the pro posed effluent standards will be held pur suant to seetlon 307(a) (2) of the Act hearing on the proposed standards shall be allowed a reasonable opportunity to examlno this economic Impact assess ment and any comments therein, and to respond thereto on the record. To this limited extent and for tills limited pur establishing a more effluent limitation. 129 8 Compliance date. 129 9-139.09 | Reoerveq | 129.100 Aldrln/Dleldrln. 129.101 DOT, DOD and DOE. 120.102 Endrtn. stringent pommenclne on August 20,1970. nt 10:00 pose only. X hereby waive the time dead 130.103 Toutphene. sun. In Room 2409, Waterside Mall. VS. line requirements for the filing of pub- 120.104 Benxidiitt. Environmental Protection Agency, 401 Jlo comments under f 104.3(d) of the )30.106 Polychlorinated Biphenyls (PCJh). M Stmt, 8W.. Washington. D C. in ac- Agency's Rules of Practice for Public AurHOtrrr,--~sca. 307. 306. and 601 of tho eonlonos with the Agency's rules of prac Hearings on Effluent Standards for Toxic Federal Water Pollution Control Act Amend- tice govtratal public hearings on effluent Pollutants, 40 CFll Part 104. os amended, menu Of 19T3 (pub. L. 02-300. SO Slat. SIS. standards for toxic pollutants. 40 CFR 41 FR 17898 (April 29. 1976). SO OS to 33 UA.C. 1261 et seq.), Part 104 as amended, 41 P.R. 17890 ct seq. (April 29. 1970), the lint hearing day shall Include a prehearing confer- once *t Iha above tlmo and place. All parsons interested in participating in allow the filing of materials and com ments described In this paragraph within tlie Ume period herein set forth, and I accordingly direct the presiding officer at the public hearings to be conducted on 2. Subpart A of Part 129 is further amended by adding oew paragraph (f) to 1129.4 to read as follows: S 129.4 Toxic poMuianii. those hearings os objecting parties these proposed standards to ensure that should refer to the amended rules of the record includes all materials which (f) Polychlorinated Biphenyls (PCBs) proettce. 41 FA. 17698 et seq.. and should- are filed in conformity with this para --polychlorinated biphenyls (PCBs) hot rdf on previous editions. Any per* graph. The Agency has the Jegcl author means a mixture of compounds composed on 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 fUc with the with its rules of practice In exceptional chlorinated to varying degrees. Hearing Citric (A-100). Room 1019 W6MK. VS. Environmental Protection Ateney, 401 M Street, SW.. Washington. _X)JC. 20400, within 20 days of the date of circumstances such as the foregoing when the endJ of Justice require. Cl. American Farm Lints v. Black Ball Freight Service, 397 VS. 032 (1970) and * 3.'Subpart A of Part 129 It further amended by adding new i 129.105 to read as follows: Hds notice, atwtement of -objection In easeeited therein. - triplicate which shnll meet all of the re quirements of 40 CFR 104.3 (a) and (b). Dated: July 14,1970. . These SseUons require, among other Rvucix E. Tkaih, things, actual receipt by the Hearing Administrator. j 129,105 Polychlorinated biphenyls (PCD*). (a) Specialized tfe/taitions. (1) "PCB Manufacturer" means a manufacturer who produce* polychlorinated bipcnyls. Clerk of any objection within the afore said Ume. The presiding qqiger may re fuse to permit any person topartidpate In said bearing who falls to comply with any of the provisions of those sections. In addition to the foregoing, any perion Interested tn this proposed rulemak . Arrmn A ' 1. Criteria Document for Polychlorinated Biphenyl* (EPA. Ian C. T. Klsbet, PH. DISIS). InOvdlng Eer-*r*l Introduction. 2. PCBs In the United States Industrial Vh and Snelroarntnul Distribution (Doe. Wo. spa 5*0/6-76-005 r*bruary as. i97*>. (2) "Electrical capacitor manufac turer*' means a manufacturer who pro duces or assembles electrical capacitors in which PCB or PC12-containing com pounds are part of the dielectric. (3) "Electrical transformer manufac turer" means a manufacturer who pro ing hut who does not participate as a parly in the formal hearing may submit Written comments to the Agency on the proposed rulomnking. Such comments should be filed In triplicate, if possible, and should bo addressed to: Hearing Clerk (A-100), Room 1010 W5ME. U.B. 8. Assessment of Wastewater Management, Treatment Technology and Asaociated Costs for Abatement of PCBs Concentrations in industrial Effluents (Doc. No. EPA *60/6-70006 February s, 1970). 4. PCBs Water Elimination/Reduction Technology and Associated Costs, Manufac turers of Electrical Capacitors and Trans duces or assembles electrical trans formers In which PCB or PCB-containing compounds are part of the dielectric. (4) The ambient water criterion for PCBs in navigable waters is o.ooi yg/l. (b) PCB Manufacturer--(1) Appli cability. <i> These standards or pro Environmental Protection Agency. 401M formers: Addendum to Final Report. Task IX hibitions apply to: BUcet, BW Washington, D.C. 20400. All comments which are received by Uio hearing clerk and which are postmarked <Ck or before August 20.1976 shall become a part of the hoarlng record in the man ner prescribed In 40 CFR 104.3(d) and ihaH be considered by the Administrator prior to the promulgation of Anal stand (July I, 1S7S1 (supplements Item S). I. Conference Proceedings of tho National Conference on PCBs (Doe. No. EPA *60/6-7*00: Conference held November i*7; pro ceedings published March 1976). 6. Roiice of Proposed Rulemaking: SPA Proposal of Toxic Pollutant Effluent Stand ards for Aldrln/Dleldrln. DDT (DDD, DDE). Endrtn and Toxapbeno, 41 PR 33*71 (June (A) All discharges of process wastes: (B) All discharges from the manu facturing or incinerator areas, loading and unloading areas storage areas, and other areas which are subject to direct contamination by PCBs as a result of Uio manufacturing process, including but not limited to: * arts, 10.1074). (1) Stormwater and other runoff: Pa addition, tn accordance with the dlseumion above concerning economic Impact of the standards proposed at this time, the Agency will publish in the lOtuL Rccurca approximately ninety SB following the date of publication of t notfns of proposed rulemaking an i. In 40 CFR Part 129. Subpart A (as proposed at 41 FR 23576 (June 10. 1976) and'atnended at 41 FR 37017 (Juno 20, 197g> tho table of content* is further amended to read at follows: * (2) Water used lor routine cleanup or cleanup of spills. lii) These standards do not apply to stormwater runoff or other discharges from areas subject to contamination solely by fallout from air emissions of PART X29--TOXIC POLLUTANT PCBs; or to stormwater runoff that ex aunouncenraat of the availability of the EFFLUENT STANDARDS ceeds that from the ten year 24-hour Agtoey* eoonomlc impact asscument With mpoet to the proposed standards. Subsert A--Texle PvUwtent Effluent Standards rainfall event. and fr*hMmen* ' (2) Analytical Method Acceptable. En 51io document or documents setUug forth this assessment shall be made part of the reeord of the rulemaking proceed ings esi these proposed standards, togrtlwr with all comments directed spe cifically thereto which arc received by the Hearing Clerk at the above address, See. 130.1 120.2 1294 129.4 1294 1294 .' Scope end purpose. Definitions. . Ahbreviauotte. . Toxic pollutants. ' Compliance. - Adjustment of effluent stsndsrd for preseneo of toxic pollutant la the vironmental Protection Agency method specified tn Part 130 of this chapter, except that a 1 liter sample size Is re quired to Increase analytical sensitivity. <3> Effluent standards--tl> Eiisthiff sources. PCBs are prohibited In any dis and Whkh are postmarked not later Uian Intake water. chargee from any PCB manufacturer. ItOtRAt RtOUTER, VOC 41. MO. M3--ItteAY, JULY 29. If?* HGNS 089651 MOPOSED RULES '30177 (U> Niw source*. PCBs are prohibited chlorinated biphenyls concentrations ex cecds that from the ten year 34-hour la any dbchirtfi from any PCD ceeding an average per working day of rainfall event. Manufacturer. 1 *g/l calculated over any calendar <2> Analytical Method Acceptable. En to) fltclrlcfl! capacitor manufac month: and shall not exceed 8 g/t lu vironmental Protection Agency method turer--il) Applicability. U> These stand sampled) representing any working day, specified in Part 136 of this chapter, ex ards or prohibiuons apply to: (li> New boutccs. (A) rCDs are prohib cept that a 1 liter sample size is required (A) All discharges of process wastes; ited In any process `wastes discharged to increase analytical sensitivity. and with the exception of scrubber and (3) Effluent standards--(U Existing <B) All discharges from the manufac quench water from Incinerator opera sources. (A> PCBs are prohibited in any turing or Incineration areas, loading and tions: and process wastes discharged, with the fol unloading areas, storage areas and oilier (B) All other discharges from a capac lowing exceptions: areas which are subject to direct con itor manufacturer shall not contain (f) Water ussd Jn welding, plating or tamination by reus as a result of the polychlorinated biphenyls concentrations painting operations: and manufacturing process, ineluding but not exceeding au average per working day of <2> Scrubber and quench water from limited to; 0.1 *g/l - calculated over any calendar Incinerator operations. <f) stormwater and other runoff: and month; and shall not exceed 0.5 ^g/l in <B) All other discharges (Including U> Water used for routine cleanup sampled) representing any working day, each of the exceptions set forth in the or cleanup of spills. (4) The standards set forth in this. preceding section (A)) from a trans (Ill These standards do not apply to Subsection shall apply to the total com former manufacturer shall not contain stormwater mno/I or other discharges bined weight or concentration of PCBs, polychlorinated biphenyls concentrations from arose subject to contamination excluding any associated element or exceeding on average per working day or oMy by fallout from air emissions of 'compound. 1 nf/1 calculated over any calendar PCDs; or to stormwater runoff that ex (d) Electrical trans/onner manufac- month; and shall not exceed 5 Mg/l in ceeds that from the tap year 34-hour turer -- tli Applicability. (J) These sample(s) representing any working day. rainfall event. standards or prohibitions apply to: (11) New sources. (A) PCBs are pro (3) Analytical method acceptable. En (A) All discharges of process wastes; hibited In any process wastes discharged, vironmental Protection Agenoy method and with the exception of scrubber and ipwlilwl Jn Part 136 of this chapter, ex cept that a 1 liter sample sise Is required (B) All discharges from tht manufac turing or Incineration areas, loading and quench water from incinerator opera tions; and 4teJoaroasc Analytical sensitivity. 4inloadlngAraaa.udnrAgeArrvBAAnd other (B) All other discharges from & trans (31 JEpineal standards--d) Existing sources. (A) PCBs are prohibited in all process wastes discharged with the fol areas which are subject to direct con tamination by PCBs as a result of the manufacturing process, including but not former mimufmtttnter shall not contain polychlorinated biphenyls concentra tions exceeding an average per working lowing exceptions: (I) Water used In welding, plating or painting operations: and limited to: (I) Stormwater and other runoff; and. (3> Water used for routine cleanup or day of 0.1 xg.i calculated over any calendar month: and.shall not exceed 0.5 pg/1 In sampled) representing any working day. (t) Scrubber and quench water from cleanup of spills. (4) The standards set forth In this sub Incinerator operations. (H> Those standards do not apply to section shall apply to the total combined (B) All other discharges (including stormwater runoff or other discharges .weight or concentration of PCBs. ex aaoh of the exceptions set forth in the from areas aubjeet to contamination cluding any associated element or com preceding section (A)) from a capacitor solely by fallout from air emissions of pound. . manufacturer shall not contain poly PCBs; or to stormwater runoff that ex* IPR Doc.75-31354 Filed 7-39-70; 1:45 ami (IOHA1 UCIWg, VOL 41, NO. 143--ntOAY, JULY 33, 1074 . MONS 08965<>