Document ga3XmMdzp93RwDJ205NJnk4aJ

FRIDAY, JULY 23, 1376 PART IV: ENVIRONMENTAL PROTECTION AGENCY WATER PROGRAM Proposed Toxic Pollutant Effluent Standards for Polychlorinated Biphenyls MOMS 058454 3M6S PROPOSED RULES ENVIRONMENTAL PROTECTION .,, AGENCY [40CFR fart 129] irRL es-| WATER PROGRAM Proposed Toxic Pollutant Effluent . Standards for Polychlorinated Biphenyls Nolle* Is hereby Riven that the En vironmental Protection Agency, pursuant to Ua authority contained In section 307(a) of the Federal Water Pollution Control Act (the Act) as amended by the Federal Water Pollution Control Act Amendments of 1972 (Pub. L. 92-500, 60 Slat. 019. S3 U.SC. 1251 et seq). pro poses additional sections to Part 129. set- tint forth proposed effluent standards for polychlorinated biphenyls (PCBs). On June 10,1970. the Agency proposed a new Fart 129, nclUnn forth proposed cUSuent itandards for the following toxic pollut ants; oldrln/dieldrln. DOT (ODD. DOE), ndrln and toxaphene. 41 F.R. 23576 et MO. On June 30, 1970. the Agency pro posed effluent standards for benzidine. 41 FJt. 37012 ct seq. Those five pollutants, as welt ns polychlorinated biphcuyls (Pens), were Included on a list of toxle pollutants previously published by the Afeney pursuant to Section 307<a)(l), Si F.H. 24342 cl seq. (September 7.1973). Beetton 307(a)(2) of the Act provides as follows: ' Within one hundred and eighty day* after the date of publication of any Ust, or revision thereof, roiitalnlng toxic pollutants or combtnaltou of pollutants under paragraph (I) of this subsection. the Administrator, in ae( oardanre with Metlen SS3 of Title t of the ` United Stale* Code, shall publish a proposed ediueui atandard (or prohibition) for aueb pollutant or eombination of pouutanu which hall take Into amount the toxicity of the pollutant. Ita persistence, degradability, the usual or potential presence of the affected organisms in any waters, Ute Importance of Ike affected oiysanlams and the nature and select of the effect ef the toxic poilutaot on such organisms, and ha shall publish a no ils# tor a public hearing on such proposed Standard to be held -Ithln thirty days. As aeon as possible after aueh hearing, but sot later thru nix months after publication of the proposed effluent standard (or prohibi tion), unless the Administrator finds, on the - record, that a modification of euch proposed Standard (nr prohibition) Is Justified baud upon a preponderance of evidence adduced M such hearings, such standard (or prohibi tion) shall Ue promulgated. The regulations proposed at this time establish effluent standards for manufac turerr of FCBs and mnnulncturers of transformers and cnpaeiUirs which con tain FCBs. Standards are projwaed for tooth existing and new sources. The following, together with the ma terials and Information hereinafter re ferred to and Incorporated by reference, seta forth the baala and purpose of Ute eBusnl standards proposed at this Ume. Bcmmary or Principal Fratvrcs ano BtKKMTS or TUB PROrOBCS RCOCLATIONS The regulation! hero proposed would establish effluent standards for all man ufacturers of FCBs and manufacturers of transformers and capacitors who use FCBs and who discharge directly into the navigable waters. Standards are es tablished for both existing and new sources. Owners and operators of facu lties which discharge into publicly owned treatment works, ns defined in section 212 of the Act (sometimes referred to as "Indirect dischargers''), are not covered by the standards herein proposed. How ever, the Agency will propose pretreatmcnl standards in due course for such in direct discharges pursuant to the au thority contained In section 307(b) of the Act following proposal of these stand ards. The term polychlorinated biphenyls re fers to a famUy of organic chemicals which have been produced and marketed In this country for approximately 45 years. These organic chemicals are syn thetically made and consist of a number of chlorinated biphenyl Isomers. They are highly stable compounds and are used primarily as dielectric and heat transfer fluids, though they have ether uses as well. PCBs have been conclusively de monstrated to produce lethal and sublethal toxic effects at low dose levels upon a wide range of flsh. mammals, and other wildlife, and have also demonstrated ad verse health effects to humans. Moreover, they are highly mobile and persistent in the environment, and bioaccumulale greatly In tissue. The sole manufacturer In the United States. Monsanto Industrial Chemicals Company, cuncntly produces approxi mately 40 million pounds of FCBs per year. Imports of PCBs currently amount to about 0.4 million pounds per year. Since 1970 Monsanto has voluntarily restricted its domestic sales of PCBs to use in transformers and capacitors (closed systems). Consequently Monsan to and the manufacturer* of transform ers and liquld-Allcd capacitors are sig nificant sources of further contamina tion or potential contamination resulting from the discharge of domestically man 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 itors, a-prorrtbUlon of any PCBs in any elDupiH discharge of process wnrtcs is proposed, with limited exceptions, and an average daily concentration limit per month of 1 #>g/l Is proposed for any other discharge. For ncw-iourccs. a prohibition on dlscnttrgvrof PCBs In process wastes in conjunction with an average daily concentration limit per month of 0 1 ftg/1 for other discharges is proposed. Regulation of discharges under the Act cannot, by Jtself. guarantee an ample marcln of safety for nil organisms and human health even if all point source discharges were prohibited, in light of the serious environmental problem which already exists. Data available to Ilia Agency Indicate that the standards pro posed at this time will however rrsuit in maximum feasible progress, within the inherent limitations of point himree discharge control, towards the degree of protection for aquatic and other orga nisms and human health envisioned under the Act, and are technologically nchievnbie by industry. The Agency will continue to review the standards estab lished in this rulemaking ivs additional data become available to determine whether further protection, including more stringent standards, is necessary and fensible. LBACKfiROnNO a. rcas in tuc shvironmcmt PCBs are a class of organic compounds manufactured by the chlorination of biphenyl with anhydrous chlorine using iron filings or ferric chloride its a cata lyst. The biphenyl molecule has a total of ten carbon-hydrogen bonds at which chlorine substitution can 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 eubstitutidM^Lneorctically as many ns 209 scpffratpwmpounds, or Isomers, of the chlorinated biphenyl family can be manufactured. The PCBs manufactured by Monsanto are marketed under the trade name Aroclor. followed by a four digit num ber. with "biphenyl" represented by Ute first two digits "12". anti the approxi mate chlorine percent age represented by the second two. Thus. Aroclor 1242 Is a mixture containing approximately 42 jyercent chlorine. The principal Arociors which have been marketed over the past decade by Monsanto are 122!, 1232. 1242, 1248, 1254 and 1200, although at this time there is no active marketing of 1232, 1248 or 1200. In addition, Aroclor 1010 (an exception to the previously identified nomenclature system) is being marketed, and bears approximately 41.3 percent chlorine. For an extensive discussion of the chemical and physical properties of PCBs. see O. Hutalngcr, S. Sate, and V. Zitko, "The Chemistry of PCBs." CllC Picas. 1574. Tho unique physical and chemical properties of PCBs include low vapor pressure at ambient temperatures, re sistance to combustion, remarkable chemical stability, high dielectric con stant and high specific electrical resistiv ity and low water solubility. At Lire same time, PCBs are lipid soluble and hence tire potential for absorption into fatty tissue and into the liver is high. Thus once ingested PCBs arc retained by must organisms rather than excreted, lire 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 are in "closed" electrical systems (transformers and capacitors), PCBs have been used over the years for a variety of more "open" uses resulting in greater direct contamination of the en vironment. These other uses Include an additive in investment casting waxes, lubricant additives, hydraulic and coin rioitAt rccistir. vot. <i, no. mj--Friday, art 23, ter* HONS 05*455 PROPOSED RULES 30160 prom fluid, carbonic,TM copy paper, cological data concerning PCBs. 41 FR at the conclusion of the hearing;, that plasticisers, paints, heat exchange fluids, 8400. FDA has also banned PCBs for use the record did not contain sufficient evi certain types of paper and scaJants. Most In food and feed processing. dence on which to promulgate rcrpoivmio of these uses have been substantially The American National Standards In and defensible standards. Accordingly, Curtailed, but the PCIls which have stitute has issued guidelines for industry the Agency decided to gather additional Mitered the environment as a result of on the use. disposal and labelling of data and repropose its standards, Mtp- these uses, and which continue to be PCBs, and is currently considering more ported by an expanded data ba.-e. The placed In the environment, will be there extensive guidelines for the handling, standards proposed at this time thus su for many years. Some of these uses are servicing and disposing of existing equip persede the PCBs portion of the proposal resulting In effluent discharges which are ment containing PCBs. Of December 27. 1973. DOt subject to the standards proposed at this time owing to lmuUkient data. As The General Services Administration (G3A) has banned PCBs Jn carbonless The Agency's decision to gather addi tional data and to repropose standards such data become available, however, the copy paper purchased by the Federal wns discussed at considerable len-th in Agency expects to take appropriate government and the Department of the the Preamble to the Notice of Proposed Measures to control such discharges pur suant to the Act or other applicable Interior (DOl) has prohibited the use of PCBs In offshore oil operations. Toxic Pollutant Ffllucnt Standards for Aldrln/Dieidrin, DDT. Endrin and Toxa-. statutory authority. The Environmental Protection Agency phene, published In the Federal Hvgtvtmi It Is estimated that over the past 45 years approximately 1.4 billion pounds of (EPA) has proposed regulations pursuant to section 311 of the Federal Water Pollu on June 10. 1976. <1 FR 33570. to which the reader is referred and which Is here PCUs have been produced In the United States, of which i-SS bUllon have been tion Control Act to control spills 0! num erous identified hazardous substances. by incorporated into this PCB statement 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, ap Intended to establish reporting require H. The Proposed Standards proximately 900 million pounds have ments. to establish harmful quantities, been used In electrical equipment. In ad and to fix civil penalties for spills. The GENERAL TROVISIONS dition. it Is estimated that only approxi Agency further anticipates use of its au The notice of proposed rulemaking mately SO million pounds have degraded, thority under section 311 to require published on June 10. 1976. proposed that 760 million pounds are presently in industry to prepare spill prevention con provisions of general applicability to all strvice, and that 460 million pounds are trol plans. . standards issued under section 307(g). In landfills (ostensibly as a result of dis The Agency, In October, 1975. Issued These were set forth as || 129.1 through posal) and In air, water, soil and sedi In draft form a set of water quality cri 129.8. Those Sections are promulgated ments. teria pursuant to section 304(a) of the will be applicable to standards estab In contrast. It Js estimated that dis Act recommending maximum permissi lished hereunder for polychlorinated charges to the aquatic environment each year from the approximately 37 manu ble concentrations in the ambient water for numerous pollutants, including PCBs, biphenyls. Owners and operators of facil ities which are or may be aubject to the facturers o' capacitors and transformers, The concentration level proposed at that standards proposed herein are expressly plus Monsanto, probubly do not exceed time was 0.001 pg/1 for PCBs. That docu referred to that notice of proposed rule 10,000 pounds, with direct discharges ment is currently being reviewed prior making for provisions relating to scope from those sources accounting for less to Anal publication. and purpose, definitions, abbreviations, than one-third tills amount. Although On April 1, 1970, the Agency Issued compliance procedures (Including noti efforts to reduce substantially and even recommended procedures for disposal of fication to the Regional Admlnisti ,i?nr or tually eliminate this source of environ PCBs by industrial users, pursuant to, Slate Director of an approved NPDES mental contamination will have a rela section 204(b) of the Solid Waste Dis permit program, as appropriate), of any tively minor effect on the overall PCS posal Act, 41 FR 14134. discharge subject to these standards, re problem as It currently exists, such On July 0, 1073. the Agency published quirements and procedures for estab efforts are likely to have a more sipnif- In (he Federal Register a proposed list lishment of a more stringent effluent laant Impact In reducing future environ of nine toxic pollutants pursuant to sec limitation than that established in tncJ-e mental contamination and in alleviating tion 307(a) (1) of the Act. 38 FR 18044. proceedings, and compliance date. the spociflc environments] problems in The nine substances were; aldrln/dlelthe immediate receiving waters. Conse drin, benzidine, cadmium, cynanidc. DDT quently tho Agency believes that the (DDD. DDE), cndrln, mercury, polychlo The Standards for Polychlorinated Bxfhemtls standards proposed at this time will con rinated biphenyls and toxaphene. Follow In the notice of proposed Toxic Pollut stitute nn Important element In the over ing receipt of public comment, the list ant Effluent Standards published June all effort to reduce and ultimately climl- wns promulgated on September 7, 1973, 10, 1976, standards were proved for pato any further addition of PCBs to the together with a discussion of the Agency's aldrin/dlcldrln. DDT (DDD. DDE', en tnvimunenl. selection criteria and a response to com drin and toxnphene in Sections 129.100 ments received on the proposed list, 38 through 129.103 respectively. In addition, B. FRIOR REGULATORY ACTION AND RELATED FR 24342 el scq. The promulgated list the Agency has proposed to add a new trrORTS TO REDUCE ENVIRONMENTAL EX consisted of the same nine substances 1 129.104 containing effluent standards POSURE previously proposed. for benzidine, 41 FR 87012 (June 30. Bocaure of the demonstrated toxicity On December 27,1973. the Agency pro 1970. of PCBs and the human health threat posed toxic pollutant effluent standards The standards proposed herein would posed by Ingestion of PCBs through the lor each of these nine substances, to add a new Section 129.105 to provide food chain, the Food and Drug Adminis gether with a summary ol 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 Wellnrc estab a list of point source categories of dis gories: Manufacturers of PCBs. manu lished temporary tolerances for PCBs hi charges proposed for coverage, 38 FR facturers of transformers, and manufac food pursuant to the Federal Food. Drug 35.188 rt seq. In accordance with section turers of capacitors. Coverage Is pro and Cosmetic Aet. 21 CFU 1:2.10 (July 6, 307(a) (2) ol the Act, a formal rulemak vided for both new and existing sources, 1973). These tolerances included, for ex ing hearing on tho proposed standards and for purposes of these standards, a ample, 6 parts per million tppmi in the was scheduled. A prehearing confereoco new source is defined os any source on edible portion of fish and shellfish, 2.5 was held on January 25, 1974. followed which construction 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 In poultry. 0.6 ppm In eggs and 0.2 ppm during April and May. During the course standards are subsequently promulgated In infant and Junior foods. On Febru of those hearings, which were held under pursuant to this proceeding. Tho ary 26, 1976, FDA announced that It ts severe Ume constraint*, Ihc Agency be Agency 's data indicate that these stand actively considering a lower temporary came aware of certain gaps in Its data ards will cover at least three pi,into tolerance for Ash in light of recent toxi base. As a result, the Agency determined manufacturing transformers, and at least ribtRAt Rictsnt, VOL 41, NO. 143--WDAY. JULV 99, 1974 SONS 058456 30170 PROPOSED RULES men plant* manufacturing capacitors, nil of which ore existing direct dis chargers. leach section Includes specialized , definitions of the point source category ' covered and iirtneribc* acceptable analyt ics! methods. In addition, provision is node for determination of weights snd .concentrations. In cases where a dis charge is allowed, the standard wilt l>e Specified as an average monthly concen tration limit and s maximum concentra tion at any time. - In developing the standards proposed herein (he Administrator has given care ful considers l ion to each ol the factors enumerated in section 307(a)(2). These factors include "tho toxicity of the pol lutant, 1U persistence, degradability, the usual or potential presence of the af fected organisms in any waters, the Im portance of the affected organisms and tho nature and extent of the effect of the toxic pollutant on such organisms." In light of the Act's manifest concern for publle health, which is reflected both In the ktalule and the legislative history, the Administrator has also considered available data concerning human health affects attributable to PCBs. The data considered by the Administrator relating to these factors of toxicity and environ mental effect are set forth in a "Criteria Document." The Agency was assisted In the preparation of this criteria document by Ian C. T. Kiabct, Ph.D., of the l.fassa- ahusetts Audubon Society, a nationally recornlr.cd expert on the toxicology of PCIis. Tills document is hereby incor porated by reference ns a part of the statement of basis and purpose for the standards hereinafter proposed. In addition, the Administrator has considered the availability of various methods of control and related technol ogy by which discharge of PCIis might bo eliminated or reduced. Bis authority to consider technology as well as eco nomic Impact Is discussed in detail in the preamble portion of the Notice of Pro posed Toxic Pollutant Effluent Standards published on June 10, 1978, to which the reader Is referred. ` In order to obtain relevant data for this Junction, Uie Agency engaged the aorvlees of Vcrsnr Inc., of Springfield. Virginia, who are recognized experts In the atudy of wastewater treatment tech nology and the control of pollutants emitted by Industrial sources. Vcrxar Inc. has prepared and submitted a report to the Agency concerning industrial dis charge of PCBs and the assessment of wastewater management end treatment technology. Including technologies which arc actually In use or which are or may bo available to Industries to control or eliminate the discharge of rent, tup re port U entitled "Assessment of Waste water Management, Treatment Technol- Ofy, and Associated Cost* for Abatement of rev Concentrations In Industrial Ef fluents " and Is hereby Inconwrntcd by reference as n part of the statement of boats and purpose of the standards here in proposed, along with a supplement thereto entltlod "PCBs Water EHmfnn- tlon/Keductlon Technology and Associ ated Costs, Manufacturers of Electrical Capacitors and Transformers; Adden dum to Pinal Report. Task U.M Copies of the aforesaid criteria docu ment and reports and supporting mate rials, os well as other materials which form a part of the basis and purpose for these standards and which are listed on Appendix A below, are available lor pub lic Inspection and copying at the UJS. Environmental Protection Agency. Pub lic Information Unit. Room 2922 <EPA Library). 401 M St., SW.. Washington. D.C. 20406, during normal business hours. Copies of the criteria document and Leclmology report and supplement may also be inspected and copied at libraries in each of the 10 EPA regional offices.' Tire approach utilized In arriving at tho standards herein proposed may be generally stated as follows. First, because the r^rMmrortmt ele ment in setting the standards is the toxicity considerations enumerated fu 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 end behavior of PCBs. A principal ob jective of the criteria document is to seek to arrive at an ambient level of PCBs based upon the data which will provide an ample margin of safety for ail impor tant aquatic organisms and others up the food chain, including man, who may become exposed to it. This ambient wa ter criterion is expressed ns a concentra tion of tho pollutant in the water In terms of micrograms per lttc* wl> (l fg/=one part per billion). For sub stances such as PCBs where the data in dicate that chronic toxic effects may oc cur at extremely low conentrattons, it becomes virtually impossible to state with confidence that any number above zero provides an ample margin of safety for man. In such eases 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 as well as field observations on the effects and behavior of PCBs. These studies have been con ducted on a variety of organisms includ ing Invertebrate, vertebrate, and mam malian test species, and arc well 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 ol aquatic organisms. Studies documenting bioaccumulatlon in the food chain organisms and btoconccntmtlon by organisms directly from tho water provided an Important additional component data base. Appro priate human toxicity dau and studies The Agency also Intend* that the criteria document and t*r)>DoiOj?y report and *upplmeat be mart* available Uirongli the National Technical Information eervlco lo Springfield, Virginia ,. of mammalian carcinogenesis, where available, were also considered, os were data on persistence and degradability. Data on toxic effects of pollutants are rot Available for all species that tuny be exposed to toxic pollutants in the com plex ecosystem. There is a vast number of species throughout the entire ecosys tem. and It would be impractical to try to gather lest data on every one. or even most ol them. Because such data are not available on all species, the range of sen sitivity of a smaller number of tinted 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 os species representative of a wide geographic distribution. Section 307(a) requires consideration of the Importance of organisms Ukcly to be affected. Ecological importance of nn organism is dependent on the role the organism plays witlUn the ecosystem and upon its relationship to the lood chain within the aquatic community and the consumers of aquatic life. Including man. Thus, toxicity data for the carnivores at the top ot the food choJn in a given eco system, ns well ns economically 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 end aquatic Insects arc also important since these organisms are a food base for higher consumers and are representative of plants and Invertebrate-spceivs found In most waters of the United state.;. On the basis ot the foregoinrr data, 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 in the water. In the case of PCBs, us 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 coni ro' technology to ascertain what concentration levels industrial rilarhargers might be able to achieve in Uieir efflu ents. the availability of substitute prod ucts for PCBs. and other factors rele vant to the setting of standards. This process la discussed more spectficnHy below (see "Rationale for Standard"), after the following summary of the Agency's consideration of the available dntabose. O) Composition, chemical end phyi- icfll chnrecfcrwfics ol PCIis. The com mercial mixtures of PCBs have been rea sonably well characterized. Each mixture contains 10 to 20 major components and a number of minor comixmrnta: more than 80 of the 209 chlorinated biphenyl (CD) isomers have been lricuHfH*rl In the commercial mixtures. After release into the environment the constitution of the mixtures changes as some components are degraded while others persist. Since flDIMl MOISItt. VOL 41, NO. 145--r*IOAY. JUIY 23, 127* HONS 058457 PROPOSED RULES 30471 imbo component are more toxic than Other*. this complicate* Uie cnUuaUoa e! the hazards posed by environmental jrslduea. , ,, , Mighty toxic Impurities, polychlori nated dlbenxolurans tPCDFa). are pres ent In small quantities in the range of I to M milligrams per liter (mg/l> In most commercial mixtures. Product* The raw wastes from the manufactur ing area at Monsanto consist of the liquor from the scrubber, the condensate from the steam jet ejectors, water used for sliowrni and eye hath?, miscellaneous floor wash drains, waste oil collected In drip pans and drum*, and so-cnUed "monLirs" which are the bottoms from their stills, Tho composition and quanti Effluents from plants In this category range between 2.500 gallons per day to 1.28 MGD. These effluents are discharged Into Uie navigable waters or nre Intro duced Into POTW* without any treat ment directed toward PCB removal. Ef fluent information obtained for H plant-* indicated Uial average effluent PCI! con centrations ranged from less than 10 manufactured oversea* frequently con ties of the Individual waste streams are ,.g/l to more than 6.000 g/l. Average tain more PCDI's than American-made not monitored. All effluent streams gen mass emissions of PCB* from lhr>* plant* Aroelor mixture*. '(here Is evidence that erated in the manufacturing area are ranged from less than 0.01 lb/day to PCDPi may be formed Irom PCiis both collected In sumps located in this area. nearly 2.5 lb/day, ^ In service, and in Uic environment by Reportedly the aqueous discharges photochemical and metabolic processes. s. amount to ISO ug/1 PC3s In 0.432 million (c) transformer suNurscTuaiNO Accordingly. tho toxicity of PCB mix tures to variable and environmental resi dues are sometimes more toxic than freshly manufactured products. However, It is not possible to separate the toxic gallons per day ("MOD *) or 2.7 lb/day. The raw wastes generated In the incin erator Area at Montanso consist of the venturi scrubber liquor and the waste phans from the oil-water separator sump. There arc eighteen transformer plants operated by thirteen companies which manufacture transformers using FCB- contolning Askarel dielectric fluids. Asfcarcl transformer oils are blends of 60 effects of PCDFs and PCUssattolaclorlly. Reportedly the aqueous discharges from to 100 percent Aroelor 1254 or 1242 and and the environmental hazards of both this area amount to 15 ug/1 PCBs in trlehlorobeaxene. This type of trans must be considered together. 0.288 MOD or 0.38 lb/day. The toUxl plant former constitutes only flve 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 art freely soluble in organic solvents and principally for cooling and a maximum facturing volume. The remaining In lipids Uatoi, but have very low solu of 360,000 lbs of steam. Manufacturing volume usea mineral oil bility In water. In general, those PCBs In addition to the aqueous discharges. as the dielectric fluid, and there to some wtlh fewer chlorine atoms per molecule It has been estimated that about 25 lbs. manufacture of alr-coolcd or gas-cooled are more soluble In water and more vola of scrap oil and "monster" are produced transformers os well. Askarel trans tile than those with greater chlorine per ton of PCS produced, that about 5 Vs formers arc used when other type* aro atoms per molecules. Accordingly, the lbs of PCB In contaminated solids per ton unsatisfactory because of design limita mixtures are differentiated during vola of PCB produced aro landfilled dally and tions or where flammability is a prob tilization and solution, the lower CBsx that less than 1 lb/day of PCBs to tost lem. The rCB usage in this eatogixy being more mobile. PCBs are yirtmely as air emtosions. - was approximately 12.000.000 * In 1074. adsorbed onto curlaccs and particles. In the aquatic environment Uicir behavior <> cAFsenoa uAKurAcnnuad At least three of these plants have direct dischargee r.nd are therefore subject to la often controlled by the presence and There are nineteen plants operated by tlie standard* proposed at tills time. movement of pediments. seventeen companies manufacturing PCB There are two principal types of trans <21 Relevant use and wastewater Impregnated capacitors In the United formers produced: electrical distribution characteristics--(A) Afonu/acfurinp of Stales. At the present time approx transformers which ore ured to step FCB*. The sole domestic manufacturer imately 95 percent of all liquid-filled down voltages, and power transformers of FCBs to the Monsanto Industrial capacttors manufactured in the United which arc primarily used to step up volt Chemical* company ("Monsanto"), Staten are of the PCB impregnated type. ages. Distribution transformer applica whose manufacturing operations are The two most frequent applications of tions include use in networks, pad- conducted at its William O. Xrummrich these capacitors are for phase corrections mounted and pole-mounted, and special plant In Smircct, Illinois. Aroclors 1321 on power M1*** connected to electrical precipitator power supplies located Ul and 1016 are used by capacitor manu motors and for use as ballast for fluores closed proximity to hot gas stacks. facturer* rs dielectrics. Aroclors 1242 cent lighting systems. The PCB usage In Quantities of Askarel used In trans and 1264 are used as principal ingredi this category was approximately 22.000. formers of this type range from 600 to ents in formulating the Askareto used 000 lbs. in 1974 with most of this being 5.000 lbs each. Many of these trans by transformer manufacturers. Monsanto discharges its eRluent to tho fSnugel POTW. and therefore to not covered by the standards proposed at this time. The Ar.cncy expects In due course to propose pictrcatmcnt standards ap plicable to Ulis facility and to uny oilier facility which may in the future manu facture PCBs. A brief discussion of Mon santo's oiicnitioiu and wastewater characteristics to apprcpilaic here, how ever, In view of the fact that standards aro proposed at this time for direct dis chargers lor the PCS manufacturing category for extolJny and nrw sources, Monsanto's ability to achieve zero direct dtoatiargc was alto considered in propos ing Uiese standards. Tho Knimnirieh plant has a design capacity to produce 48 million pounds of PCDs per year. In 1374. Monsanto pro duced 40.440.000 pounds, of whlrh 34. 400.000 pounds were sold domestically. Approximately two-thirds of 1074 domes tic salra were of Aroelor 10IS villi most of tho remaining production evenly divided between Aroclors 1342 and 1254. Only small quantities of Aroelor 1221 Aroelor 1016. At least seven of the nine teen capacitor manufacturing plants have direct discharges to tho navigable waters and an therefore covered by Uic standards proposed at thia time. Most plants manufacture cither large power capacitors or small Industrial type units but not both. The large capacitors are either flood filled or manifold tilled. All small capacitors are flood filled either In a vacuum tank, or In an automatic "carousel'' arrangement. Thu 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 fiom capacitor or component cleaning operations: rinse water used in the welding and plating operations: steam condensate from Jet ejectors; tho seal water used In vacuum pumm: wnter Used In phospbaUxlng and fluoride bath: water spray used in paint booths; boiler formers have provisions for venting with spring loaded ventlpf, devices or dia phragm rupture discs. Askarel power transformer applica tions include use In primary and second ary substations. Industrial furnaces, rec tifiers, roll transportation, and for react ance and grormiJug functions. Quanti ties of Askarel used in transformers of this type rnnee up to 10.000 lbs. Various transformer assembling ami filling procedures are being practiced throughout the industry. In general, thw transformer assembling and filling oper ations consist of a predrying step for re moving moisture from the transformer interiors, several stages of Asknrt-i filling and topping, addition ol electrical con nections and bushings, electrical ieating and sealing. Water is not an essential component of transformer manufacturing. In general* Uic process raw wastes from these Plant* consist of waste Askarel collected to sumps or pans at the filling slaliona* contaminated vacuum pump seal oil* contaminated kerosene-like petroleum were produced. blowdowu; and cooling tower blowdowns. distillate, and contaminated Askarel used HDIKAl EClSril, VOL 41. NO. 143--#*I0AT, AKT II, !tr* MOMS 038450 30172 ritorosEO rules lor transformer interior flushing, pen most characteristic effect* in rats are en milar In many resirects to those observed waste* which reach water streams at largement of the liver, induction of hepa among the population contaminated In these plants arc duo to occasional loss tic microsomal enzyme* and porphyria. the Yusho Incident. during handling and residuals accumu Reproduction is adversely affected at (6) Persistence, mobility and dcored- lated around drainage systems from past dietary levels at and above 20 parts per obffffy. PCBs have a long life In the cut t- operations when Insufficient precautions million (ppm; 1 ppm Is comparable to a ronment. often In excess of 23 years, but were taken acnimtt PCH losses. liquid measurement of 1 milligram poi comiKnicnts with three or less chlorine Dosed on inlormatlon from live plants, nter U mg/l) >. atom* disappear rapidly. Mono-, dl, nod effluents from plants in this subcatcgory Rhesus monkeys nre extremely sensi trl-CBs are to some extent degraded or ranged from 13,300 g.U/dny to nearly 1.0 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. eoolinrt water) are discharged Into the to 2.5 ppm suffered reproductive dysfunc Tetra-chlorinated PCBs can he metabo navigable waters or are Introduced Into tions and some died after exposure to lised by birds and mammals, but pents- POTtVs without any treatment directed only 3 ppm. Adult female Rhesus mon chlorinnted PCBs aro resistant and toward. PCD removal. Average effluent keys fed 25 ppm of Aroclor 1240 not only higher CDs are metabolized only stry PCD concentration* ranged from less accumulated tho PCDs in their adipose slowly'- Most environmental residues ha\ e thon 3 *g/l to nearly 30 ,,k/1. Average tissue, but tho PCBs were transferred been reported In the form of totrm and ma&s emissions of PCBs from these across the placenta of one female which higher chlorinated PClis. plants range from less than 0.003 Ib/day gave birth and concentrated at high PCBs are mobile in the environment to nearly 0.1 lb/doy. levels in Uie fat and adrenals of the in and are carried freely In the air and the (3) Toxicity. PCIVt Inhibit growth and fant. - water attached to airborne or water eell division lit certain species of phyto- Mink are also very sensitive to PCBs. borne particles. Conventional Incinera planktou (single-celled aquatic plants). In one experiment, most females died on tion and other rtlrposal techniques do uut Bomo sensitive speefes ere effected at a diet containing 10 ppm anti none pro completely destroy PCB*. very low concentrations <0.1 r/1). The duced young at 5 ppm. In another test (7) Bioaccumvlation and biomacnifl- effects are particularly marked In mixed 0.64 pnm caused total reproductive fail cation. PCBs are slroncly concentrated cultures, where sensitive diatoms are re ure oiul a few deaths. ("bloaceumulntcd") from water into placed by resistant green algae. (4) Carcinogenesis. On prolonged ex aquatic invertebrates and flsh. Blonceum- PCUs are toxic to aquatic Insects, crus posure of rats and mice. PCBs cause a ulntion factors (concentration of PCBs in taceans, and other Invertebrates at variety of morphological changes in the organisms compared to concentration in concentrations down to a few g/i. Re liver, including hypertrophy, hyperplasia, water) for these 01 nanisms are com production and growth in aquatic In adenoftbro&is and nodular hyperplasia. monly in the range of 20,000-274.000 after vertebrates are adversely effected at At high dose levels (100 ppm and above) prolonged exposure in the laboratory. concentrations ns low as 0.4-o.s c/l. rCBs Induce hepatomas, neoplastic However, wnere measurement* of con PClis affoet the srltlement of larvae and nodules and carcinomas in rates and mice centrations In natural waters are avail reduoo the diversity of merino Inverte and therefore pose a presumptive carcin able. bioaccunnilatlon factors In fish and brates communities at concentrations os ogenic risk to man. In one experiment, invertebrates ore generally larger than low as 0.1 *g/l. PCB-treatcd rats also displayed an in those measured In the laboratory. There PClis are acutely toxic to estuarine creased incidence of pituitary tumors. have been reports that certain animal* aquatic organisms. For Aroclors 101C. Metabolism of PCBs in mammals and captured from the aquatic environment 1843 and 1334, the 48-lrour LCS0 values birds proceeds primarily through nrene have apparently bionccumulated 1'CIii. 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 tho range between 9 and biologically active and believed to be million times that of the water concen S3 gg/1. In longer-term bionssny* of two highly toxic and carcinogenic. PCBs also tration in which the animals were cap weeks or more, Aroclor 1354 is toxic to have immunosuppressive effect* In rab tured. It is important to note, however, the commercially valuable penaeid bits and guinea pigs. In several experi that the level of PCB contamination in shrimp and grass shrimp at concentra ments treatment with' PCBs has In the food of the captured aquatic life, a* tions os low as 0.9 to 1.4 *g/l. Arthropods creased tho susceptibility of animals to well as the concentration of TCBs in are affected at 0.1 pg/l. various diseases. ' which these organisms resided for the Rainbow trout have been killed by ex . (5) Human health effects. Humans oc predominance of their life periods, are posure to Aroclor 1240 at concentrations cupationally exposed to PCBs sometimes unknown. of 3.4 gg/1 in 23 days, and by exi>osure suffer from an occupational disease Fish In Escambia Bay. Florida, had So Aroclor 1200 at 5t>g/l in 10 days, spot known ay chlorocnc, cha.actcrixcd by PCBs levels In their flesh 670,000 over and plnflth died when exposed for M to long-lasting skin lesions and sometimes the ambient water In which they were 43 days to B ><g/l of Aroclor 1254. Tho systemic disturbances. captured. PCB levels in the waters of langnot-o kllllfith has been killed by long In a large-scale polroning incident In Lake Michigan average around .01 c/l. term exposure to Aroclor 1254 at a con Japan In 1968. more than 1.000 persons However, PCD levels in flsh In Lake centration of 1 xg/1. became sick with Yusho disease after Michigan range in the 2 to 20 ppm PCBs have adverse effect* on survival, Ingesting rice oil contaminated with range, wet weight (18-200 ppm. growth, and reproduction of ftsh at con both PCBs and PCDPs. Their symptoms lipid weight) indicating an apparent bio centrations s* low as 1 *c,l. In one case, were similar to those of occupational accumulation factor ranging up to at eggs from flsh exposed to only 0.1 xg/1 failed to hatch after being-traced in PCBfree water. A variety 0/ other sublcihnl loxlo effeeU have been omened on a wide range of freshwater and'marine fl.sh Present In setters thoughout the country, and these are set forth in detail in the ' Agency's criteria document for PCD*. PCDs generally haw low acute toxicity to bird* and mammals, but long-term dietary exposure leads <0 a variety of chronic toxic effects. Rats are relatively resistant to PCBs and usually do not show the characteris chloracne. but also included hypcrplgmrntntton of the skin, persistent eye dis charge und gastric disturbances. Chil dren were affected not only by direct Ingestion of the contaminated oil, but also prior to birth by transplacental pas sage and In one case a child wns contami nated by Its mother's milk. The af fected i>crsoiu have Improved only slowly since 1968 and there arc already Indica tions of excc&3 cancer Incidence. The Rhesus monkey provides an Im portant Indication for human sensitivity to PCUs and. ns noted above. U extremely least 2,000.000 In whole flsh. Levels of PCBs in some whale and seal blubber were found to be in excess of 1 million in the ambient water concentration in which the animals were taken. PCBs are further concentrated bio- mngnlflcd) from the food of birds and mammals Into their tissues, especially Into their fat. Bfomagniflcnuon factors (ppm in organlxius/ppm in food) are often In the range l to 10 after pt olonaed exposure In the laboratory, but are tiltcn a* high as 10 to 100 in wild animat* and birds. Human* store PCBs In their fat tic lesions of the skin and stomach In sensitive to low levels of exposure. Tho more efficiently than any animal for duced In several other mammals. Tbe symptoms following exposure appear si which precise measurements have been IIDIIAl IICISTI*. VOt. 41, NO. IO--.MIDAT. JULY 7S. 1V? HONS 058459 PROPOSED RULES 30S7J madt. nib leads to greater exposure to "ample margin of safety** for all organ exception*), a prohibition on dlschnrre MnslUvt organs and tissues In humans than in animub exposed to the same con centrations or TCDs tn the diet. The data Indie,-de. In particular. Uist ArocJors 1018 and 1242 are widely present In fish in the United States. Tills in turn leads to sub isms under all circumstances. However, the data do establish, at this time, that an ambient water quality level of .001 jig/1 should not be exceeded. To assess risks to humans, the most criticnl toxic effects of PCUs are these Is achievable based upon currently avail able technology and handling methods. Based upon detailed plant Insiwettom and examinations of the process step# In the use of PCBs In the manufacture of capacitors and Irnnsfoimcr* it has been stantial exposure ol huiuans and other Ash-eating animal*. (|> AmlUcnf wafer criterion /or effects observed In mammals at the lowest ex determined that the charnctcnMics of posure levels. These include: these wastes are sufficiently similar so (I) Mortality and reproductive failure that the same kinds of control and treat on natural system*. The (orceolug sum mary briefly highlights the extensive In mink at a dietary level of 0.64 ppm. (Ill Increased liver weight in weanling ment technologies are applicable. The wastewater chatacUrlstles for data base set forth In the criteria docu rats in the second generation of animals manufacturers of capacitors and trans ment. Thb data base demonst rates that PCB* post a serious threat to a aide range of squat'c And other food chain organisms, as well as to human health, at exposed to 1 ppm. and liver pathology (including nodules> in the second gene ration exposed to 20 ppm. Uii) Stomach nodules and ulcerations formers have been described above. Data available to the Agency indicate tint wa ter can be eliminated from most if not aU of the manufacturing-related processes, very low concentration level*. There ap tn dogs at a dietary level of 1 ppm: with Uie result that potential citlucnU pear to be some variations In the toxic effects for different isomers. Thus, the more highly chlorinated isomers appear to be aomewhal more persistent in the guviroument. while the lower chlorin ated bomere appear to be somewhat Stomach lesions have also been reported from other specie* Including monkeys, pigs and tnlofc, (lv) Reproductive failure, dermal and stomach lesions In Rhesus monkeys ex posed to 2.5 ppm and deaths at 3.0 ppm. can be sufllclcnUy reduced In quantity so that they can be incinerated or other wise disposed of so as to reduce greatly or eliminate any discharge of procau* wastes to the navigable waters. Where large volumes of water are used, treat more acutely toxic. These differences are (v) Increased activity of hepatic mi ment and subsequent recycling can re relatively minor, since all Isomers which ora significant constituents of commer cial mixtures of PCBs are highly persist ent and mobile In the environment, and all Isomers display a degree of toxicity which Is a matter for grave public con cern. Moreover, the composition of PCB mixtures changes os they are transported through the environment. There Is also bvldcnre that toxic metabolites, or break down products, may be formed, so that crosomal enzymes In rats fed at 0.5 ppm for 4 weeks. (vl) Carcinogenic effects In rats and mice at dietary levels of 100 ppm and above. (vii) Apparent Increase In Incidence of pituitary tumors In rats at dietary levels of 1 ppm and above. (will) Widespread presence of PCBs in fish and other organisms regularly con sumed by humans. duce quantities of unavoidable blow downs to amount* suitable for treatment by activated carbon and discharge or by incineration. With respect to capacitor manufactur ing wastes, the scrap PCBs collected In sumps, drums, and drip pans, a* well a* fractionator bottoms from trichloroeth ylene recovery, are small In amount, and can be Incinerated. The same is true lor contaminated vacuum pump oii-> and any the chemical species distribution in a All If these effects are relevant in caustic baths used for paint stripping. water body may not bo the same os the weighing potential adverse effects of With respect to capacitor and component species distribution of the substance dis PCBs on humans. Ill particular, the cleaning operations, cleaning solvent* charged. For all these reasons, there ap symptoms of poisoning in monkeys, in rather than water can be used, and then pears to be no sound basts for setting dif cluding dermal and gastric lesions, are Incinerated following use. Water used in ferent criterion numbers or standards for parallel to those observed in man; en phosphatizlng and fluoride baths by somw different Isomers, and accordingly, the zyme Induction Is a basic biochemical plants can be eliminated, along with tho criterion and standards herein proposed effect which has been observed in many entire process, by use of aluminum con are for PCD* genetically. species; carcinogenic effects in rodents tainers. A criterion level of 0.001 *g/l would appear to avuid adverse effects to most aquatic organisms, based upon an an alysis of both laboratory and field data. Tills level is based primarily on the are generally used to predict potential carcinogenicity In humans. it Is difficult to use the results of theso experiments to establish acceptable levels of exposure for humans: <a> Because 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 btoaccuinulation properties of PCBs. Fish have beer shown to accumulate many of the listed effect1! were reported at Uie lowest dietary levels investigated; eliminated through use of ahimlnun containers which need not bo painted. If PCBs by factors as high ns 271.000 in the (d) bccauso humans aro exposed for painting Is nevertheless desired, emuent laboratory, while considerably higher much longer periods (Including prenatal discharge can be avoided by use of an factors appear to occur in their natural exposure) than the experimental ani air or electrostatic system Instead of a environments. Based upon a bioaccumulaUon factor of 274.000 a concentration mals; and <c) because humans are known to store PCBs In their tissues more waterfall for trapping point particles and fumes. of 0.001 sg/l could result In bloaccmuula- efficiently than the experimental ani Aqueous discharge from cooling tower tlon to 0.274 ppm tn flesh, which It below mals. These data do, however, further blowdowns con lie reduced by use of a re tho dietary levels which have been support the proposition that an ambient cycling ryslcm based on denilncmllra- shown Injurious to aquatic birds and water quality level of .001 *<g/i should tion or, alternatively, by incineration of mammals who may feed upon them, in not be exceeded, and, beyond this, that blowdown. Any solid waste residue, which addition, however, t liere is evidence that even reasonable effort should be made to will not include PCBs, can be disposed of In some waters some fish hloarcumiilnic limit discharges of PCBs In order to mini by landfill. Boiler blowdown, which is not at rates roughly ten times this, and In mize human exposure. likely to contain any PCBs. ran be sealed water* where the ohronie level generally exceeds .001 jg/i, such os Luke Michigan, (0) Control technology available. At the present time there arc no direct dis in drums and landfilled or treated by the activated carbon treatment system. there Is evidence of sublet hal toxic ef charges of PCBs from a PCB manufac With respect to transformer manu fects on the flah. turer and thus no In-plucu technology to facturers, as with capacitor manufactur In proposing this ambient water cri evaluate. Tho only 0.8. manufacturer. ing, aO scrap PCUs collected in sumps or terion the Agency recognises the porjl-- Monsanto, discharges to Uie Saueet Illi pans can be inrlnrrated. Contaminated Willy that such water quality level may nois POTW. With rcst>cct to process vacuum pump seal off. petroleum distil not provide absolute safety for all or waste diluents from PCBs user*, water late. and asknrel used for transformer ganisms In all waters. Indeed there prob Is unnecessary to Uie processes Involved Interior flushing can also be incinerated. ably Is no numerical concentration level In the manufacture of llquld-flllcd ca Each of these controls has been demon above rcro which one can nt tht* time pacitors or transformers. Consequently strated by use by at least one of the sty with great confidence provides an for process waste (with certain specified covered plants. PtDtRAt IfClSTfI, VOL 41, HO. !4J--ridOAV, WtT , m* HONS 058460 30*71 PROPOSED RUI.ES Several potent!*) sources of process-re* sufficient Information was available to those permit proceedings are lc!.s strin )*ted WMte map In some rn&cs result In evaluate these systems. gent than the limitations whirl) would he fluents which cannot be avoided feasi (10) Economic impact. The Agency requlicd by these proposed standards bly In the near term*. Rlnr.ev.atcr used trv recognizes 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 and scrubber nnd qucncJi water from with the standard* proposed nt tills lime. nology, costa, and resulting economic Im Inetncrntor operations. ' The Agency has made a preliminary as pacts associated with those limitations as These categories of process-related dls- sessment of rosts and economic impact, compared with the standards hereinafter eharRes, as well as non-process related which is summarized below. Preliminary proposed. If Interested persons believe effluents, Including plant washdown, non cost estimates, as set forth in the report that a modified standard Is preferable to contact cooling water, and runoff from submitted by Vcrsar. 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 imn earbon adsorption as described below. pliance with the proposed standards may the record the appropriate aujiponini: It should be noted that liPA-sponsored result In additional costa of production data and Information (see Public Par Investigations have revealed that there equal to or greater than five percent of ticipation Jn Rulemaking Process. below). art no In-placc processes being employed the selling price of the products (trans Ul> Rationale for standard. In dis whereby dissolved or sorbed PCBs In formers and capacitors*, `bus Identifying cussing the establishment of an ambient water streams are being either ex this regulation tentatively as a major wilier 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, Uicse waste Inflation Impact Stolcemnt (IIS) pur #ig/l should not be exceeded nnd. In addi streams contain concentrations of PCBs suant to Executive Order 11821. A more tion. that every reasonable efiort should of leas than 1 mi/) up to about 500 dctnUed assessment Is currently being be made to limit discharges of PCBs in pg/1 with many Instances occurring In prepared by the Agency, nnd will be ac order to minimize human exposure. In Um 10 to 50 R/I range. While several companied by an IIS. if necessary, The deed the data suggest that to provide an Of (lie plants have practiced PCB aegre- availability of these documeuta upon "ample margin of safety" for human gallon to keep the quantity of con their completion will be announced In health, nnd possibly lor some other or taminated wastewaters ns low as possible, the Fcnra*?. Register, and public com ganisms as well, an ambient water cri none 1ms installed lull scale terminal ments thereon will be Invited. These terion far lower than .001 pg/i may be re PCB removal facilities. documents, together with all public com quired. though at this time one cannot The UFA through its contractor. ments thereon which are received by the confidently Identify any specific number Versar, Inc., has Identified a technology Hearing Clerk postmarked not later than above zero. which will reduce the PCD concentration thirty days following the aforesaid notice At the present time, even If every point in wastewaters to 1 *c/1 or less and of availability of these documents, shall source discharge were prohibited, PCB which Is capable of being Installed within one year. The kientllled system is based upon activated carbon adsorption, fol lowing primary treatment conststing oi sedimentation, nitration, ami shimming. The feasibility of achieving the 1 *g/l or less level has been demonstrated in laboratory tests conducted cooperatively between Vemir, Inc., and two activated carbon suppliers, Carborundum Com pany and 1CI-U.3. The system consists of an equalisation-settling tank and 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 ct al. v. Train, civ. No. 2153-73, nnd consolidated cases, on June 9.1970. requiring proposal of these stand ards by July 1-4,1976. concentrations in the water would remain for a long time not only above zero, but in some water bodies, above .001 g 1. Moreover, since the capability does not exist prtscntly to measure PCB tonrontratlons below 0.001 utt/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 mixed media nitration follo.vcd by car The Agency's preliminary assessment of Imposing a prohibition on any dis bon adsorption. Floatable* and sludges of costs and economic impact suggests charge of PCBs from any point source. from the equalization-settling tank and that transitional Impacts may be signifi In the case of existing manufacturers. spent carbon are disposed of by incinera cant. Tire preliminary estimate of tho Uiis can be done since the only present tion. Cnvbon adsorption luu also been cost of compliance Indicates aggregate PCU manufacturer docs no1, have u diivt 1 successfully used lu full-scale oi>eratlon capital costs for the direct dischargers of discharge. A similar icuuiremcut Is im to achieve removal of )>oUutanta oilier gift million and total annual costa of $7 posed upon new PCB manufacturing than PCBs down to comparably low million (based on a 3-year depreciation sources, who would be required Jn effect levels. schedule). The annualized costa repre to either achieve a completely dosed sys Based on work performed cooperatively sent 5 to 21 percent of current selling tem or discharge Into a POTW. With re between Vrrsnr, Inc., ami Houston Re prices for transformers and 3 to 17 per spect t< transformers and capacitors, search on one system nnd Wesignte Re cent for capacitors, die Indicated ranges both these Industries provide Important search on another system. It was indi resulting from the types of transformers products to the UnJled States economy cated that systems employing ozonation and capacitors produced These costa may for which there are no presently proven In conjunction with ultraviolet radiation can bo designed to achieve any desired be of sufficient magnitude to induce clo sures of some small and/or mrrrghml substitutes. Moreover, the best reduction levels which available technology can effluent PCU conccntvattou. Preliminary plants and conversion to substitute ma shelve with respect to an effluent dis ermparlsons of Die capital costs between terials for others. It Is not certain that charge containing PCBs appear to be 1 the ottono-UV system and activated car sucli conversions could be carried out In aC/1 through the use of carbon adsorp bon system allow at least a 100 percent the one year allowed by the Act without tion treatment. This exceeds the ambient grenler cost for the otone-UV system. causing disruption of the supply of trans water criterion by Uucc orders of magni When prelrcatmcnl costs are Included formers nnd capacitors. Additional anal tude. the orone-UV system Is only about 10 percent higher than activated carbon. H Is doubtful however, ihut the ocone-U V ysis will be carried out to assess more completely these types of Impacts, as well ns to Identify other types of economic Discharge of relatively modest amounts of a pollutant Into the water at many times lire ambient water criterion mas be system could be Installed within one year, efleets. allowed, however, without necessarily the maximum period of time between In addition, the EPA is currently en fulling to provide safety for affected or promulgation sml the effective date of gaged In Issuing NPDES permits pur ganisms. First, the actual discharge con these standards. suant to section 402 of the Act applicable centration docs not normally remain the Other systems evaluated Included ad to point sources which will be covered ambient concentration. In fact, the ef sorption by polymeric resins, catalytic by those proposed standards. In Rome,In fluent disperses following discharge nnd reduction and catalytlo oxidation. In stances the limitations being projroscd In becomes greatly diluted. The arm of dl- KOUAL HOISTCR. VOl. 4). NO. 4J--ItIDAY, JUtt ter* HONS 058461 PROPOSED RULES 3C475 lution U often referred to m a "mixing sono". uid will vnry In size and shape Wottewtcr typo Type of technology applied most receiving waters, in the achieve ment of the degreo of protection envi from one body of water to the next and Boiler blowdowns. Fitter. demineralize, sioned by the Act. The Agency recog from one discharge to the next. The re sult of thh phenomenon U that once the effluent reaches the outside of the mixing aone, the pollutant concentration- may have become diluted by a factor of sev Incinerator scrub-, ber water. Process-associated wastes.1 and recycle. Pretreatment and car bon adsorption lo I ,,S/1 * !* rictrraimrnt and car bon adsorption to 1 nizes. however, that there may be a few cases where, because of local icceivlng water conditions, notably with respect to hydrology, sufficient dispersion and dilu tion may not take plate. To deal with eral hundred or more, and indeed may ,,*/! or less. such coses. 1129.7 of Subpurl A (tire not even be detectable by the most so Sanitary waste To POTW. general provisions of Part 129; see stand phisticated monitoring equipment. Con- waters. ards proposed on June 10. 19~o. 41 FR. eededly, In some instances there may be adverse effects on some orgunlMiu in the Immediate vicinity of the outfall. How- Rainfall runoff.... enclose areas or pretrratment and car bon adsorption. 22576) allows the applicable Nl'DCS per mit issuing authority to import such more stringent cfilucntlimitatlous ts may over, for ehronlo effects to be observed, Includes hot solder dip rinse water, be required in order to achieve or ap the exposure time would have to be quite phosphaUzIng bath wastewaters, tin pitting proach the ambient water critction level. lengthy--perhaps a lifetime. Even acute toxic effects, which mutually occur at much higher dosage levels than chronic effects, are generally recorded based upon bath and rinse waters, fluoride bath and rinse waters and painting water spray. These are small tn volume and may occur in only a single plant. In this rase .001 *g/l, at least beyond the boundaries of any reasonable mixing zone. In addition, more stringent levels may be Imposed to meet any applicable a Wl-hour exponute. Because of the ex Using tills technology results In a pro water quality standard, see I 129 .'he). It traordinary persistence of PCBs reliance hibition oil discharge of PCBs from any is possible that nn exercise of the.# pro on mixing tones, while of assistance in point source to the navigable waters in visions could result In a plant closure. the Immediate future, cannot be rcunrded volving solely process wastes with the However, by allowing some considera a a long-term solution to the problem. exceptions noted in th above table, which tion for technology In the initial .*lrd- In developing the proposed standards, would be treated with activated carbon ard-sctling, even though consideration of ilto Agency also considered the availa to the 1 pg/1 level or lower. This tech ecological and health effects are parr- bility of substitutes lor PCBs in trans nology substantiates a standard of a mount, the approach taken un-ler these formers and capacitors. Several com prohibition of PCBs in process wastes standards makes it reasonably probable panies have developed products which (except for certain specified wastes) and that If there aro to be any .huUiowns. they believe are an adequate substitute treatment of other discharges with acti they will occur only after a site-specific for PCBs In transformers and efforts are vated carbon, reducing PCBs to 1 yg/1 examination, and only because of a fail under way to develop substitutes for or less. Although occasional deviations ure lo meet the safety requirements of PCUs In capacitors as well. At this time, arc unavoidable, at no time may any section 307(a). however, it Is still too early to determine such allowed discharge exceed 5 pg/1 for Finally, it is recognized that to allow a with confidence whether the substitutes samples representing a working day. discharge at tire 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, are sufc in terms of potential nology advances can be reasonably ex ganisms, particularly those located near fire hazard and other safety considera pected. a more stringent limitation moy the outfall, and possibly to the consumers tions, and are environmentally safe. Hie be set 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, tills risk lr, deemed to this time set a toxic pollutant effluent trol technology and hi substitutes for be outweighed at tills time by the social standard, or prohibition on discharge, PCBs. Limitations of 0.1 pR/1 on the daily and economic benefits represented by not Upon the assumption of the ready avail average per month and 0.5 pg/l maxi setting a standard which would force ability of a substitute product. However, mum at any time should be achievable widespread closures of plant.* manufac the Agency la pursuing nn active policy to (the ozonation-UV data so Indicate) and turing capacitors snri transformers, encourage industry to develop as rapidly are therefore proposed as new source which would in turn be likely to *!mrply M possible feasible substitutes for PCBs. standards for non-proccss wastewater curtail the nation's supply of these essen Because of the absence of any proven discharges from transformer and ca tial products, or. lead to importation of satisfactory substitute for PCBs in cer pacitor manufacturers, and from dis products containing dielectrics which are tain transformers and capacitors, it charges resulting from scrubber and even more environmentally hazardous. must be recognized Umt to impose a pro quench water from incinerator oper (12) Subsequent review of ftandnrds. hibition on nil PCtl-contalning effluents ations. For the rensons discussed above, It continues to be the gun) of the Agency at this time would probably cause a se no new source discharge of PCBs will to reduce the presence of l'L'ji:, in the vere Impact on the transformer and ca be allowed which result from Jet ejectors environment to the greatest extent pos pacitor manufacturing industries which or rlnsewater from welding or plating sible iis rapidly ns feasible, for nil of the utilize PCUs. and deprive the nation of operations. reasons outlined above. Indeed, as addi the future availability of products which The maximum daily permissible con tional data become available tn (ho Agen utilize such transformers and capacitors. centration Is based upon an application cy, It may be necessary to revise In sub Accordingly, in the proposed standards factor of five times the maximum aver sequent proceedings both the standards the Administrator is requiring Dint dis age monthly concentration factor. This wnd the ambient water criterion estab charges be prohibited where possible. And is provided to take Into account the fact lished pursuant to the present rulemak that other discharge comply with the that occasional daily concentrations ing in the direction of greater stringency very best result* which available tech may exceed the required maximum in order to provide the degree of safety nology can achieve. For the manufactur monthly average. They should not be required by the Act. ing of transformers and capacitors, the allowed at any lime to exceed the lowest The Agency Is obligated to review and standards Are based on U>c following tab feasible ceiling, however, and the where necessary, revise its section 3Q7<n) ulation: Agency's Information with respect lo standards at least every three years. The WMieirttcr type Noh.contact cooltog water, team Jet conden sate Type of technology applied Coot tn clowxl radiator nytltm mid recycle. Replace steam )ct* with machanleal pittnpn. carbon absorption and analogous treat ment techniques Indicate that a variabil ity factor of five is nchlcvoble and reasonable. Translating an ambient w'atcr criteri on number to an end-of-thc-pipe stand ard Is at best an Imprecise calculation. Agency Intends lo review (he proposed standard one year following promulga tion. with the expectation timt Industry will have made significant strides to wards the development of reNable sub stitutes for PCBs. as well as in the field of control lechnoloiry. so that a prohibi Detergent vMliliig with eoivent Hie dispersion and dilution factors dis tion on nil discharge* of PCT1* In nny in water. vapor degreasing. cussed above arc cxi>cctcd to result. Ur dustrial effluent can be considered at that IIDIIAI irCISTtt. VOL 41, NO. 143--MHOAT, IUIY 23, Ith MOWS 054462 30476 . PROPOSED RULES ttow. Including sources not covered by the Undtnli proposed at this Ume. 117. rustic Participation in Rulemaking Paocms A public hearing to consider the pro posed effluent standards will be held pur suant to section 307iaM2> of the Act commencing an August 20.1076. at 10:00 tin. In Room 240V, Waterside Mali, U S. Rnvlronmcntnl Protection Ar.cncy, 401 M Street. BW.. wtshinnton. d.c. in ac cordance with Uie.Agency's rules of prac tice governing public henrinc* on effluent standards for toxic pollutants, 40 CFR Part 104 as amended, 41 F.R. 17808 ct teq, (April 2ft, 1976), the nrst hearing day shall Include a prehearing confer ence at Uio above Ume and place. AU persons interested In participating in those hearings as objecting parties should refer to Uio amended rules of pracUOO, 41 F.R. 17898 et seq., and should not rely on previous editions. Any per son who has any objection to any stand ard proposed herein may file with the Hearing Clerk (A-100). Room 1019 W8MB. U S. Environmental Protection Agency, 401 M Btreet. 8W.. Washington. D.C. 20460, within 25 days of the date of tills notice, a statement ol objection in triplicate which shall meet all of the re quirements ol 40 CFR 104.2 (a) nnd (b). These Sections require, among other things, 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 hearing who fells to comply with any of Uie provisions of those sections. In addition to the foregoing, any peron interested in tills proposed rulemak ing but who does not participate as a party In the formal hearing may submit written comments to the Arcncy on the proposed rulemaking. Such comments Should be filed in triplicate. If possible, and should be addressed to: Hearing Clerk (A-100), Room 1019 WSME, U.B. Environmental Prelection Arcncy, 401 M Street, SW., Washington, D.C. 204C0. Ail eommeiiU which nre veeelvf.d by Uie hearing clerk and which are postmarked on or before August 20,1B76 shall become a part of Die bearing record in the man ner prescribed In 40 CPU 104.3(d) and hall be coiuidercd by the Administrator prior to the promulgation of final stand ards. In addition, in accordance with Uie discussion above concerning economic impact of Use standards proposed at tills time, tho Arcncy will publish in the PUbcaal Hceisica approximately ninety days following the date of publication of this noUec of proposed rulemaking au announcement of the availability of the Agency's economic Impact assessment with respect to Uie praiioMd standards. Tbs document or documents setting forth this saaeasincnt shall be made part of Uie record of Uie rulemaking proceed ings ou these proponed standards, logeUier with nil comments directed speIflewUy thereto which arc received by Uie Hearing Clerk at Uie above address, and which aro postmarked not later than thirty days following the aforesaid notice Of avoliability. All parties to the public hearing on the pn>i>osed standards shall tie allowed a reasonable opportunity to examine Oils economic Impact assess ment and any comments Uierein. nnd to respond thereto on the record. To Uils limited extent and for this limited pur pose only. I hereby waive Uie time dead line requirements for Uie filing of pub lic comments under 1104.3(d) of Uie Agency's Rules of Practice lor Public Mcnrlngft on Effluent Standards for Toxic Pollutants. 40 CFlt Part 104. ns amended, 41 FR 17808 (April 29. 1976), so as to allow the filing of materials and com ments described in this paragraph within the Ume period herein set forth, nnd 1 accordingly direct the presiding officer at the public hearings to be conducted on these proposed standards to ensure that (he record Includes ail materials which arc filed In conformity with this para graph. The Agency has U)e legal author ity to modify or waive strict compliance with its rules of practice In excepUonnl circumstances such as the foregoing when tho ends of Justlee require. Cf. American Farm Lines v. Black Bail Freight Service, 397 U.S. 532 (1970) and eases cited therein. Dated: July 14. 1976. . ' - Russell E. Train, Administrator. ArrEMmx A 1. Criteria Document for Polychlorinated Diphenyl* (El*A. lan C. T. Ntsbct. J*h. D. 1676), Including general Introduction. . l'Cn* To the United State* InduMriM and Environmental Distribution (Doe. Ko. LPA 660/6-76-005 February 26. 1070). 3. AM-ersmrnt of Wastewater Management, Treatment Technology and Associated Costa for Abatement of PCBs Concentrations In InriuMriol EOluenu (Doe. No. KPA 6C0/6-16006 February 3.1670). 4. PCD* Water Ehmlnation/Reductton Technology And Associated Costa. Llanufaot tmers of Electrical Capacitors and Trans formers; Addendum to Final Report. Task If (July 3, 1676) (supplements Item 3). s. Conference Proceedings of the National Conference on FCBs (Doc. Ko. SPA 560/0-75 004; Conference held November )01&: procvcOlngs published Xlnrch 1010). . Notice ol Proposed Rulemaking: EPA Proposal of Toxic Pollutant Effluent Stand ard* for Aldrln/Dleldrlu. DDT (DIM). DDE), Kudrin and Toxaphene. 41 FR 23576 (June )0. 1676). 1. In 40 CFR Part 129, Subpart A (as proposed at 41 FR 23576 (June 10.1970 and amended at 41 FR 27017 (June 30, 1976) Uie table of contents Is further amended to-read as follows: PART 129--TOXIC POLLUTANT EFFLUENT STANDARDS SubpMt A--T#fc Pollutant Effluent Standards and PreMbhlene See. ' 329.2 Scope and purpose. )r<.3 'Dctinition*. . 1203 Abbreviations. ' 120 4 Toxic pohutanU. 129.6 Compliant*. 129.0 Adjustment of effluent standard for presence of toxic pollutant la the intake water. Dec. 130.7 Requirement and procedure for . esUtbllAblng mote stringent effluent limitation. 120 6 Compliance dit*. 129 0-120.00 | Reserved | * 120.100 Aldrln/Dleldrlu. 120.101 DDT. DDL) and DDK. 120.103 Endrln. 129.103 Toxapheaf. . 120-104 Denxldtne. 120.103 Polychlorinated Diphenyl* (PCB). AcTiiotUTY.--Aeca. 307. 306. and 601 of th# Federal Water Pollution Control Act Amend ments of 1972 (Put) L 02-600, OS Slat. S!6. 33 U.S.C. 1251 eiaeq.). . 2. Subpart A of Part 129 la further amended by adding new paragraph if) to } 129.4 to read as follows: S 129.-1 Toxic pollutant*. ' if) Polychlorinated Biphenyls (PCBs) --polychlorinated biphenyls (FCBs) means a mixture of compounds composed of the bipcnhyl molecule which has been chlorinated to varying decreet. 3. Subpart A of Pari 129 Is further amended by adding new f 129.105 to read as follows: f 129.10.7 ruljclilorinalnl bluhonyla ,, <roj*). (a) Specialized definitions. (1) *TCB Manufacturer" means a manufacturer who produces polychlorinated biwenyls. (2) "Electrical capacitor manufac turer" means a manufacturer who pro duces or assembles electrical capacitors In which PCB or PCB-contninlng com pounds are port of the dielectric. (3) "Electrical transformer manufac turer" means a manufacturer who pro duces or assembles electrical trans formers in which PCB or PCB-contaming compounds are part of Uio dielectric. 4) The ambient water criterion for PCBs In navigable waters is 0.001 *g/l. <b) PCB Manufacturer--(1) Appli cability. (I) These standards or pro hibitions apply to; (A) All discharges of process watlea; (B) All (licdiiuiiui from Die Manu facturing or Incinerator arena, loading and unloading areas storage arras, and other areas which aro subject to direct contamination by PCBs as n result of Uie manufacturing process, including but not limited to. <f) Stormwater and other nmo/f: (2) Water used for routine cleanup of cleanup of spills. (it) These standnrdii do not apply to stormwater runoff or oLhcr discharges from arena subject to contamination solely by fallout from air emissions of PCBs; or to stormwater runoff that ex ceeds Uint from Uie ten year 24-hour rainfall event. (2) Analytical Method Acceptable. En vironmental Protection Agency method specified in Part 136 of Oils chapter, except Umt a 1 liter sample site Is re quired to Increase analytical scnalUvily. (3) Effluent standards--<i) Existing sources. PCBs are prohibited in any dis charges from any PCB manufacturer. uetiAt tfcmct, vot. si, no. mj--ida/, juir 22, ms HONS 0SS463 PROPOSED RULES 3m (U) Hem sources. PCD* ate prohibited chlorinated biphenyls concentrations ex cccds that from the ten year 24-hour la any dincharge irom any PCB ceeding an averase per working day of rainfall event. manufacturer. 1 *g/l calculated over any calendar <21 Analytical Method Acceptable. En (e) Elcctricat capacitor manufac month: nnd shall not exceed 5 /<%/\ tn vironmental Protection Agency method turer--(1) Applicability. (1) These stand* sample*** representing any workinc day. speemed in Part 136 of this chapter, ex ards or prohibitions apply to: (Ill Hew sources. (Ai PCDs are prohib cept that a 1 liter sample size Is required (A) All discharges ot process wastes; ited in any process wastes discharged to increase analytical sensitivity. and i with tho exception of scrubber and (3) Effluent standards--(|) Kristin? <S> All flsrhurnrs from Use manufac quench water from Incinerator opera sources. (A) PClis pro prohibited in any turing or Incineration areas, loading and tions; and process wastes discharged, with the fol unloading areas, storage areas and other <B) All other dlscharr.es from n capac lowing exceptions: areas whkh are subject to direct con* itor manufacturer shall not contain U> Water used In welding, plating or lamination by PCBs as a result of the polychlorinated biphenyls concentrations palming operations: and manufacturing process, including but not exceeding an average per working day of (2) Scrubber and quench water from limited to: 0,1 ig/l calculated over any -calendar incinerator operations. U) btormwater and other runoff; and month; and shall not exceed 0.5 yg,l In <B> All other discharges (Including (2) Water used for routine cleanup samplctsi 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 (Ml These standards do not apply to Subsection shah apply to the total com former manufacturer, shall not contain stormwater runoff or other discharges from areas subject to contamination solely by fallout from air cniJwskms of FCDs; or to stormwater runotf that ex ceeds that from the ten year 24-hour rainfall event. (2) Analytical method acceptable. En vironmental Protection Agency method specified In Part 136 of tills chapter, ex cept that a 1 liter sample size Is required to Increase analytical sensitivity. (S) Effluent standards--(!) gristing sources. (A) PCBs are prohibited in all process wastes discharged with the fol lowing exceptions: U) Water used In welding, plating or pointing operations; and bined weight or concentration of PCBs. excluding any associated element or compound. * (d> Electrical transformer manufac- titur -- (1) Applicability, (i) These standards or prohibitions apply to: (A) All discharges of process wastes; and <B> All discharges from the manufac turing or Incineration areas, loading nnd unloading areas, storage areas, and other arms which are subject to direct con tamination by PCBs as a result of the manufacturing process, im '.uding but not limited to: (1) Btormwater apd other runoff; and (2) Water used for routine cleanup or polychlorinated biphenyls concentrations exceeding an average per working day ot 1 e6/l calculated over any cakudttr month; and shall not exceed 5 xg/r*tn sample**) representing any working clay. Ul) Hew sources. (A) PCBs are pro hibited in any process wastes dlsehnigert, will) lire exception of scrubber and quench water from Incinerator opera tions; nnd (B) All other discharges from a trans former manufacturer shall not contain polychlorinated biphenyls concentra tions exceeding an nverage per working day ot 01 pg/1 calculated over any calendar month: ami shall not exited 0.5 /ipfl in sampled) representing any workinc day. (2) Ocrubber and quench water from cleanup of spills. (4) The standards set forth fn this sub Incinerator operations. (If) These standards do not e.pply to section shall apply to Life (oval combined (B> AH other discharges (including stormwater runoff or other discharges weicht or concentration of PCBs, ex each of the exceptions set forth In tho from areas subject to contamination cluding any associated element or com* preceding section (A)) from a capacitor solely by fallout from nlr emissions of pound. manufacturer shall not contain poly PCBs; or to stormwater runoff that ex- {PR Doc.7S-a)a54 FMetf 7-33-70.0:41) smj / / MOMS 056464