Document zdJpqZba7Y3Eew81dOxXoN40m

gp 30108 V. PROPOSED RULES / ENVIRONMENTAL PROTECTION ufacturers of PCBs and manufacturers the Inherent limitations of point source AGENCY . [40CFR Part 129] JT Uajisfumiini mill UUflacltors who use discharge control, towards the degree of J4JBs WIH fffio dlMllhfrgc directly into protection for aquatic and other orr*nDig UllVllMlHW TS&UFL El5ndnrd.t arc m* nisrna and human health envisioned |PRL HM) U5ISH8 for both cxLsUnn and new under the Act, and arc technologically WATER PROGRAM sources, *3wpcra and operators of facU* achievable by Industry. The Agency will files which dlschm'ff* IMA hnnHr.lv nwnrd continue to review the standards estab frepned Toxle Pollutant Effluent treatment works, m ^ section lished in this rulemaking us additional Standards for Polychforfnttad Biphenyls 2i2 0T the Act ^sometimes referred to as data become available to determine NoUeo Is hereby given that the En vironmental Protection Agency, pursuant to the authority contained in soction 101(a) of the Federal Water Pollution 11W Aril AH Mflllintd' by Voter Pollution Control Act Amendments of 1072 iPub. L. 92-500, 86 8Ult 816. 83 U-8 C. 1351 t seq.). pro pose! additional sections to Part 120. set* ting forth proposed emuent standards for polychlorinated biphenyls tPCUs). On Juno 10,1918, the Agency proposed a new Part 139, sotting forth proposed effluent standards for the following toxic pollut ants: aldrln/dleldrln. DDT (DDD. DDli). ndrln and toxaphcnc. 41 F.R. 23576 et seg. On June 30. 1970. the Agency pro* posed effluent standards for bensidine, 41 FJV. 27012 et set). Those five pollutants, as well as polychlorinated biphenyls (PCBs), were Included on a list of toxic pollutants previously published by the Agency pursuant to Section 307(aui>, tlPJt.24342etseq. 4September 7.1973). Beetlon 807(a) (3) of the Act provides as follows: Within on* hundred and eighty days after the date of publication of any list, or revision thereof, oontalnlns toxle pollutants or com* Mnation of pollutants under paragraph (1) 9t this aubaoetlon. the Administrator. In sc* oardaiMte with Motion sss of Title a of the "Indirect afp ri^t hu the slnnrtnrH* ho--hi ponnnrnrt HOW- ih^ Inr-tr "'l)| nrctrciit- Sient standards in due course for such In[?CUt UlSL'IlRIlIBI miranont m n/ au. lilOncr ionuuned In section 307(b) of the Act following proposal of these stand ards. The term polychlorinated biphenyls re fers to a family 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 dlelectrie and heat transfer fluids, though they have other uses as well. PCBs have been conclusively de monstrated to produce lethal and suble- that toxic effects at low dose levels upon a wide range of fish, mammals, and other wildlife, and have also demonstrated ad verse health effects to humans. Moreover, they ore highly mobile and persistent In the environment, and bioaccumulate greatly in tissue. The sole manufacturer In the United States, Monsanto Industrial Chemicals Company, currently produces approxi mately 40 million pounds of PCBs per year. Imports of PCBs currently amount whether further protection, including more stringent standards, Is necessary and feasible. L Backonound a. reas in tut environment ' PCBs are a class of organic compounds manufactured by the chlorination ol biphenyl with anhydrous chlorine using Iron filings or ferric chloride as a cata lyst. The biphenyl molecule has a total of ten carbon-hydrogen bonds at which chlorine substitution can be accommo dated. In the manufacture of TCBs. any where from one to ten chlorine atoms may be located on the biphenyl molecule. Depending upon the location of these substitutions, theoretically as many os 209 separate compounds, 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 the first two digits `12", and the approxi mate chlorine percentage represented by the second two. Thus. Aroclor 1242 Is a mixture containing approximately 42 percent chlorine. The principal Aroclors which have been marketed over the past decade by Monsanto are 1221,1242. 1242, United States Code, shall publish a proposed to about 0.4 million pounds per year. 1248. 1254 and ]?60. although at Hits effluent standard (or prohibition) for such pollutant or combination of peiitiunu which hall taka Into account the toxicity of the pollutant. Its persistence, degradabuity, ths usual or potential presence of the afieeted organisms In any waters, the importance of the sfleeted organisms and the nature and extent of the effect of the toxle pollutant on Since 1970 Monsanto has voluntarily restricted Its domestic sales of TCBs to use In transformers and capacitors (closed systems). Consequently Monsan to and the manufacturers of transform ers and liquid-filled capacitors are sig nificant sources of further contamina time there Is no active marketing of 1222. 1248 or 1360. In addition. Aroclor 1016 (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 eueh organisms, and he shall publish a no* tion or potential contamination resulting PCBs, see O. Hutzinger, 8. Safe, and V. lies for a public heni lug oo such proposed from the discharge of domcstloally man BUko. "The Chemistry of PCIta." CRC standard to l>e held within thirty days. As oon as possible after such hearing, but not later than ala months alter publication of the proposed effluent stnnunrd (or prohibi tion), unless the Admtnlntralor find*, on the yooord, that a modification of eueh proposed Standard (or prohibittun) Is justified taxed ufactured PCD* Into Uie aquutlc envi ronment. The proposed standards Include a pro hibition on discharge of PCBs by any PCB manufacturer. With respect to any manufacturer of transformers or capac Press. 1974. lire unique physical and chemical properties of PCBs include low vnj>or pressure at ambient tem|>eraturcs. re sistance to combustion, remarkable chemical stability, high dielectric con upon a preponderance of erldence adduced itors. a prohibition of any PCBs in any stant and high specific electrical resist tv- at such hearings, such standard (or prohibi effluent discharge of process wastes la Ity and low water solubility. At the same tion) shall be promulgated. . proposed, with limited exceptions, and an time, PCBs are lipid soluble and hence ftVgrWge 1Hl| Unnl the potential for absorption into mtty mnnUi nl 1 L. imimtil tor nv ollirr tissue and Into the liver is high, 'thus discharge. For new sources, a prohibition once Ingested PCBs are retained by most mmrIHHlgniMIlMa wR .. 'LW. BlMIUnrds are proposed for both existing and new sources. The following, topelhcr with the mn* Isrish and information hereinafter re* farm! to and incorporated by rofercnce. Mil forth the basis and purpose of the effluent standards proposed at this Unto. on discharge ol PCBs in process wastes in conjunction with an average daily concentration limit per month of 0.1 fcg/1 for other discharges Is proposed. Regulation of discharges under the Act cannot, by Itself, guarantee an ample margin of safety for nil organisms and human health even 1/ All point source discharges were prohibited, in light of organisms rather than excreted. The qualities of persistence which make PCBs useful for many tndustrhil pur poses greatly aggravate their potential for harm in Uie ecosystem. Although the principal uses of PCBs. today are In "closed" electrical systems (transformer* and capacitors), PCBs have been used over the years for a Summary op Principal Feature* anr Bbncnvs op the Paoi'osso Rboulation* the serious environmental problem which already exists. Data available to the Agency Indicate that the standards pro variety of more "open" uses resulting in greater direct contamination of Ihe en vironment. These other usos Include an The regulations here proposed would posed at this time will however result additive In Investment casting waxes, establish effluent standard* for all man* in maximum feasible progress, within lubricant additives, hydraulic and com- KDCftAl REGISTER, VOL 41, NO. 143--ERIDAY, iUtY 23, 1474 HONS 057097 PROPOSED RULES *M9 pressor fluid, carbonless copy paper, cologies data concerning PCBs, 41 FR at the conclusion of the hearings that plastlclEers, paints, heat exchange fluids, 8409. FDA has also banned PCBs for use the record did not eontaln sufficient evi certain types of paper and sealants. Most In food and feed processing. dence on which to promulgate responsible *f these uses have been substantially The American National Standards In and defensible standards. Accordingly, curtailed, but the PCBs which have stitute has Issued guidelines for industry tho Agency decided to gather additional entered the environment as a result of on the use, disposal and labelling of data and repropose its standards, sup these uses, and which continue to be PCBs, and is currently considering more ported by an expanded data base. The plated 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 mulling In effluent dlschnrocs which are ment containing PCBs. of December 27, 1973. not subject to the standards proposed at The General Services Administration The Agency's decision to gatbpr addi this time ewlna to insufficient data. As meh data become available, however, the (GSA) has banned PCBs in carbonless copy paper purchased by the Federal tional data and to repropose standards was discussed at considerable length in Agency expects to take appropriate measures to control such discharges pur- government and the Department of the Interior (POD* has prohibited the use tiic Preamble to the Notlco of Proposed Toxie Pollutant Effluent Standards for uant to the Act or other applicable of PCBs In offshore oil operations. Aldrln/Dleldrln, DDT, Endrin and Toxn statutory authority. The Environmental Protection Agency phene, published in the Federal Rrcisrrn It Is estlmatod that over the past 45 (EPA) has proposed regulations pursuant on June 10, 1978, 41 FR 23976, to which yean approximately 1.4 billion pounds of PCBs have been produced in the United to section 311 of the Federal Water Pollu tion Control Act to control spills of num the reader Is referred and which Is here by Incorporated Into this TCD statement States, of which 1.25 billion have been erous identified hazardous substances, of basis and purpose by reference. Uied 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 II. Tub Proposed Standards proximately 550 million pounds have ments, to establish harmful quantities, been used In electrical equipment. In ad and to fix civil penalties for spills. The oensral rionsiOMs dition, It to estimated that only approxi Agency further anticipates use of Its au The notice of proposed rulemaking mately 50 million pounds have degraded, thority under section 311 to require published on June 10. 1976. proposed that 150 million pounds are presently In Mrvlce, and that 450 million pounds are In landfills (ostensibly as a result of dis posal) and in air, water, sou and sedi ment*. ' Industry to prepare spill prevention con trol plans. Hie Agency, In October, 1975, Issued In draft form a set of water qunllty cri teria pursuant to section 504(a) of the provisions of general applicability to all standards Issued under section 307(a). These were set forth as If 120.1 through 129.8. Those Sections are promulgated will be applicable to standards estab In contrast, It to estimated that dls- Act recommending maximum permissi eharges to the aquatle environment each ble concentrations In the ambient water Kir from the approximately 37 rnanii- for numerous pollutants, including PCBs. turersof capacitors and transformers, The concentration level proposed at that plus Monsanto, probably do not exceedtime was 0.001 for PCBs. ThAt docu 10,000 pounds, with direct dlschsrges ment la currently being reviewed prior from these sources accounting for less to final publication. limn one-third this amount. Although On April 1. 1976, the Agency Issued efforU to roduce substantially and even recommended procedures for disposal of tually eliminate this source of environ PCBs by industrial users, pursuant to mental contamination will have a rela tively minor effect on the overall PCS section 205(b) of the 80lid Waste Dis posal Act, 41 FR 14134. . problem os It currently exists, such On July 6. 1073, the Agency published efforts are-likely to have a more signif In the Fbdxral Ricister a proposed list icant Impact In reducing luture environ of nine toxic pollutants pursuant to sec mental contamination and In alleviating tion 307(a) (1) Of the Act, 36 FR 18044. lished hereunder (or polychlorinated biphenyls/Owners and operators of facil ities which are or may be subject to the standards proposed herein are expressly referred to that notice of proposed rule making for provisions rotating to scope and purpose, definitions, abbreviations, compliance procedures (including noti fication to the Regional Administrator or State Director of an approved NPDES permit program, as appropriate), 0;' 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 date. the specific environmental problems In the Immediate receiving waters. Conse quently Die Agency believes that the standards proposed at this time will con stitute an Important element in the over all effort to reduce and ultimately elimi nate any further addition of PCBs to the environment. e. raioa scoulatory action and related The nine substances were: aldrln/dieidrln, benzidine, cadmium, cynanlde. DDT <DDD, DDE), endrln, mercury, polychlo- rina ted biphenyls and toxnphene. Follow ing receipt of public comment, the list was promulgated on September 7, 1973, together with a discussion of the Agency's selection criteria and n response <0 com ments received on the proposed list, 38 FR 24342 et seq. The promulgated list The Standasds roa Polychlorinated .. BirttCKTLS In the notice of proposed Toxic Po'lutant Effluent Standards published June 10. 1970. standards were proposed for aldrin/dieldrln, DDT (DDL). DDE*, en drin and toxnphene in Sections 129.100 through 129.103 respectively. In addition, tiie Agency hns proposed to add a nnv EFFORTS TO REDUCE ENVIRONMENTAL EX- rosuRt consisted of tho ssraa nine substances previously proposed. 1 129.104 containing effluent standards for benzidine, 41 FR 27012 (June 30. Bocausc of (he demonstrated toxicity On December 27,1973, the Agency pro 1978). Of PCIIs and the human health threat posed toxic pollutant effluent standards The standards proposed herein would nosed by Ingestion of PCBs through the for each of theso nine substances, to add a new Section 129.10S to provtrio rood chain, the Pood And Drug Adminis gether with a summary of Use 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 Welforo estab a list of point source categories of dis gories: Manufacturers of PClis. manu lished temporary tolerances for PCBs in chargee proposed for coverage, 38 FR facturers of transformers, and manufac feed pursuant to the Federal Food, Drug 39358 et seq. In accordance with section turers of capacitors. Coverage Is pro end Cosmetic Act. 21 CFR 122.10 (July 6, 307(a) (3) of Uie Act, a formal rulemak vided lor both new and existing sources, 1113). These tolerances Included, for ex ing hearing on the proposed standards and for purposes of these standards, a ample, 5 parts per million <ppm> in the was scheduled. A prehearing conference new source is defined as any source on edible portion of fish and shellfish. 2-5 was held on January 26, 1974, followed which construction Is begun followlm* ppm In milk and dairy products, 5 ppm by a thirty day evidentiary hearing held the date of this proposed rulemaking, if In poultry, 0.6 p|un In eggs and 0.2 ppm during April and May. During the course standards are subsequently promuir.'ted In Infant and Junior foods. On Febru of ihoso hearings, which were held under pursuant to this proceeding. The ary 20, 1010, FDA announced that It Is severe Ume constraints, the Agency be Agency's data Indicate Umt these stand actively considering a lower temporary came aware of certain gaps in lie data ards will cover at least three plants tolerance for fish In light of recent toxi base. As a result, the Agency determined manufacturing transformers, and at least ftDIRAl tfCISTEK, VOL 41, HO. 143--MIDAV, JULY 33, 1974 HONS 057098 *0470 PROPOSED RULES even plant* manufacturing etpicilori, til of which are existing direct dis chargers. Each section includes specialised definitions of the point source category covered and prescribes acceptable analytSeal methods. In addition, provision is anade for determination of weights and concentrations. In cases where a dis- Charfe to allowed, the standard will be Specified as an average monthly conccn- ' (ration limit and a maximum concentra tion at any time. In developing the standards proposed herein the Administrator has (riven care ful consideration to each of the factors numerated In section 307(a) (2>. These (acton include "the toxicity of the pol lutant, Its persistence, degradability, the Usual or potential presence of the af fected organisms in any waters, the im portance of the affected organisms and. the nature and extent of the effect of the toxic pollutant on such orcanisms/' In light of the Act's manifest concern for nubile health, which to reflected both In the statuto and the legislative history, the Administrator has also considered available data concerning human health fleets attributable to PCBs. The data considered by the Administrator relating to these faotors of toxicity and environ mental effect are set forth In a^'Crltcria Document/' The Agency was assisted in the preparation of this criteria document by lan C. T. Nlsbet, Ph.D., of the Mossa husotto Audubon Society, a nationally recognised expert on the toxicology of PCBs. Tills document Is hereby Incor porated by reference as a part of the abatement of basis and purpose for the atandarde hereinafter proposed. In addition, the Administrator has considered the availability of various -methods of control and related technol ogy by which discharge of PCBs might be eliminated or reduced. His authority to consider technology os well ns eco nomic tmpnet to discussed in detail in the preamble porl-lon of the Notice of Pro posed Toxic Pollutant EtUuont Ctnndards published on Juno 10,1070. to which Use reader to referred. > In order to obtain relevant data for this function, the Agency engaged the aervlcee of venar inc., ol Springfield. Virginia, who nre recognised experts In the etudy of wastewater treatment tech nology and the control of pollutants ' 01111110(1 by Industrial sources. Vcrsar Inc. has prepared and submitted a report to the Agency concerning Industrial dis charge of PCBa and the assessment of wmtownter management end treatment technology, Including technologies which are actually in use or which are or may be available to Industries to control or eliminate the discharge of PCBs. This re port Is entitled "Assessment of Waste water Management. Treatment Technol ogy, and Associated Costs for Abatement Of PCB Concentrations In Industrial Ef fluents." and Is hereby Incorporated by reference ns a part of the statement of basin and purpose of the standards here in proposed, along with a supplement thereto entitled "PCBs Water Eltmtna- tlon/Reduction Technology and Associ ated costs. Manufacturers of Electrical Capacitors and Transformers; Adden dum to Final Report, Task U." Copies of the aforesaid criteria docu ment and reports and supporting mate rials, as 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 for pub lic Inspection and copying at the U.8. Environmental Protection Agency, Publlo Information Unit, Room 2322 <EPA Library). 401 M 6t,, SW.. Washington. D.C. 20406. during normal business hours. Copies of the criteria document and technology report and supplement may also be Inspected and copied at libraries in each of the 10 EPA regional offices/ The approach utilised In arriving at the standards herein proposed may be generally stated as follows. First, because the most Important ele ment In setting the standards to the toxicity considerations enumerated in section 307(a)(3). the starting point to the development of the criteria docu ment, which sets forth extensive data with respect to the environmental effects and behavior of PCBs. A principal-ob jective of the criteria document to to seek to arrive at an ambient level of PCBs based upon the data which will provide an ample margin of safety for all impor tant aquatic organisms and others up the food chain, Including man. who may become exposed to It. This ambient wa ter criterion to expressed as a concentra tion of the pollutant In the water In terms of micrograms per liter (a/1) (1 ag/^one part per billion). For sub stances such as PCBs where the data In diralo that chronic toxic effects may oc cur at extremely low conentr&Uons, It becomes virtually Impossible to state with confidence that any number above sere provides an ample margin of safety for man. In such cases any criterion level chosen should be appropriately qualified to reflect these circumstances. The toxicity data used In developing these proi>osed standards were derived from laboratory studies as well as field observations on the effects and behavior of rCBs. These studies have been con ducted on a variety of organisms Includ ing Invertebrate, vertebrate, and mam malian test species, and are 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 of aquatic organisms. Studies documenting bioaccumulation In the food chain organisms and bloconcentratlon by organisms directly from tho water provided on Important additional component data base. Appro priate human toxicity data and studies 'Tho Agency also intends that the criteria document and technology report and supple ment be made available through the National Technical information Service in Springfield, Virginia. of mammalian carcinogenesis, where available, were also considered, as were datA on persistence and degradability. Data on toxic effects of pollutants are not available for all species Umt may be exposed to toxic pollutants in inc com plex ecosystem. There to a vast number of species throughout tho entire ecosys tem. and it would be impractical to try to gather test data on every one. or even most of them. Because such data are not available on all species, the range of sen sitivity of a smaller number of tested species is used to provide a measure of the ranee of sensitivity of all species. Tire 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. 8ectIon 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 its relationship to Uie food chain within the aquatic community and the consumers of aquatic life. Including man. Thus, toxicity data (or the carnivores at the top of the food chain in a Riven eco system, as well as 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 and aquatic Insects nre 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 is sought which, it to believed, will provide that decree 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 cose of PCBs. as dis cussed below, this proved to be an ex tremely difficult task In view of tho al ready dangerously high levels of PCBs In some water bodies. After arriving at an ambient water criterion, Uie Agency examined feasible control technology to ascertain what concentration levels Industrial discharg ers might be able to achieve In their dilu ents, the nvnilabllUy of substitute prod ucts for PCBs, and other Inctors rele vant to the setting of standards. This process to discussed more Rixfclflenffy below (see "Rationale for Standard"), after the following summary of the Agency's consideration of the available data base. (1) Composition, chemical and phys ical charactcrisUct of PCBs, The com mercial nitxtures of PCBs have been rea sonably well characterized. Earh mixture contains 10 to 20 major component* and a number of minor components: more than 80 of the 209 chlorinated binhenvl (CB) Isomers have been Identified In the commercial mixtures. Aflrr release Into the environment the constitution of the mixtures changes as some components are degraded while others persist. Binee fEDIRAl RtOllfCR, VOL 41, NO. 143--FRIDAY, JULY 23. WS MOMS 057099 PROPOSED RULES 3047! lint component* or* more toxic than The raw wastae from tho manufactur Effluents from plants In this catcgonr tuti*. thto complicates the evaluation ing area at Monsanto consist of tho rang* between 2,500 gallons per day to p| the hesards posed br environmental liquor from tho scrubber, the condensate 1.36 MOD. These effluents are discharged from the steam jet ejectors, water used into the navigable waters or are Intro Highly toxlo Impurities, polychlori for showers and eye baths, miscellaneous duced Into POTWs without any treat nated dlbenr.ofurons tPCDFs), are pres floor wash drains, waste oil collected in ment directed toward PCB removal. Ef ent In small quantities In the range of drip pans and drums, and so-called fluent information obtained for 14 plants I to M milligrams per liter <mg/D in 'montnrs'' which are tho bottoms from Indicated that average effluent PCD con most commercial mixtures. Products their stills. The composition and quanti centrations ranged from less than 16 manufactured overseas frequently con ties of the Individual waste streams are gg/1 to more than 6.000 *g/l. Average tain more PCDPs than American-made not monitored. All effluent streams gen mass emissions of PCBs from these plants Aroelor mixtures. There Is evidence that erated In the manufacturing area are ranged from leas than 0.01 Ib/day to fQUfl may be formed from PCBs both collected In sumps located In this area. nearly 2J lb/day. In eervtot. and in the environment by photochemical and metabolic processes. Accordingly, the toxicity of PCli mix ture* Is variable and environmental resi dues are sometimes more toxie than Reportedly the aqueous discharges amount to 750 ug/1 PCBs in 0.433 million gallons per day l"MOD") or 3.7 Ib/day. The raw wastes generated in the incin erator area at Montaneo consist of the (c) TKAMirOOMCi MANUrACTUUNC There are eighteen transformer plants operated by thirteen companies which manufacture transformers using PCB- freshly manufactured products. However. venturi scrubber liquor and the waste cont&inlng Askarel dielectric fluids. As- It |a not possible* to separate the toxlo phase from the oil-water separator sump. kare! transformer oils are blends of 60 ffoeU of PCDPs and PCBs satisfactorily, 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 trichlorobenzene. This type of trans must be considered together. '0.388 MOD or 0.36 Ib/day. The total plant former constitutes only five to ten per PCBs are viscous liquids or waxes. Urey uses a maximum of 0.380 MOD of water cent of these plants' transformer manu on freely soluble In organic solvents and principally for cooling and a maximum facturing volume. The remaining In lipids (faU), but have very low solu of 360.000 lbs of steam. manufacturing volume uses mineral oil bility In water. In general, those PCBs In addition to the aqueous discharges. as the dielectric fluid, and there is some wHh fewer chlorine atoms per molecule It has been estimated that about 25 lbs. manufacture of air-cooled or gas-cooled gM more soluble In water and more vola of scrap oil and "monstar" are produced transformers as well. Askarel trans tile than those with greater chlorine per ton of PCB produced, that about 5ti formers are used when other types are 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 are landfilled dally and tions or where flammability Is a prob tutaation and solution, the lower CBs that less than 1 ib/day of PCBs Is lost lem. The PCB usage In tills 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 equaUc environment their behavior <s> CAPACITOl lUWOFACTUipiO At least three of these plants have direct discharges and are therefore subject to II often controlled by the presence end There arc nineteen plant* operated by the standards proposed at this time. movement of sediment*. seventeen companies manufacturing PCB There are two principal types of trans (I) Relevant use and wastewater Impregnated capacitors In the United formers produced: electrical distribution characteristics--(A) Manufacturing of States. At the present time approx transformers which are used to step PCBs. Hie sole domestic manufacturer imately 93 percent of all liquid-filled down voltages, and power transformers Of PCBs Is tho Monsanto Industrial capacitors manufactured In the United which are primarily used to step up volt Chemicals Company ("Monsanto"), Stales are of the PCB impregnated type. ages. Distribution transformer applica whoso manufacturing operations are The two most frequent applications of tions Include use In networks, part- oondueted at Its William O. Krummrich these capacitors are for phase corrections mounted and pole-mounted, and special plant in Bauget, Illinois. Aroclors 1381 on power lines connected to electrical precipitator power supplies located in and 1016 are used by capacitor manu motors and for use os ballast for fluores closed, proximity to hot gas stacks. facturers as dielectrics. Aroclors 1343 cent lighting systems. The PCB usage in Quantities of Askarel used In trans and 1314 are used at principal Ingredi this category was approximately 22,000. formers of tills type range from 500 to ent* In formulating the Asknrcls used 000 lbs. In 1974 with most of this being 5,000 lbs each. Many of these trans tor transformer manufacturers. Aroelor 1016. At least seven of the nine formers have provisions for venting with Monsanto discharges Us effluent to teen capacitor manufacturing plants spring loaded venting devices or dia Uio Bauget 1'OTW. and therefore U not have direct discharges to the navigable phragm rupture discs. covered by (he standards proposed at this waters and are therefore covered by the Askarel power transformer applica time. The Agency expects In due course standards proposed at this time. tions Include use In primary and second to propose pretree tment standards ap Most plant* manufacture either large ary substations, industrial furnaces, rec plicable to this facility and to any other power capacitors or small Industrial type tifiers, rail transportation, and tor react facility which may in the future manu- units but not both. The large capacitors ance and grounding functions. Quanti faeturo PCBs. A brief discussion of Mon are either flood filled or manifold filled. ties of Askarel used In trnmiormers of santo's operations and wastownter All small capacitors are flood filled either this type range up to 19.000 lbs. characteristics is appropriate hero, how- In a vacuum tank or in an automatic Various transformer assembling and over, In view of Uro fact that standards "carousel" arrangement. Ailing procedures are being practiced hit proposed at thin Ume for direct dis The raw wastes originating from these throughout the Industry. In pencrnJ, the chargers for the rco manufacturing plants consist of scrap PCBs collected transformer assembling and filling oper category for existing and new sources. In sumps, drums and drip pans; con ations consist of a prcdrylng step for re Monsanto's ability to achtovo sero dlroct taminated vacuum pump oils; the frac moving moisture from the tnui.s/uiincr dtoeliavge was also considered In propos tionator bottoms from the trichloroethyl Interiors, several stages of Askarel filling ing these standards. * ene recovery; the caustic bath used at Th* Krummrich plant has a design some plants, for purposes of paint strip capacity to produce 48 mtlltou pounds of ping; spent detergent wash and rinse PCBs per year. In 1974. Monsanto pro water from capacitor or component duced 40.460.000 pounds, of which 94. cleaning operations: rlnxo water used in 400,000 pounds were sold domestically. the welding and plating operations; Approximately two-Uilrds of 1074 domes steam condcnsato from jet ejectors; the tic sales were of Aroelor 1016 with most Of the remaining production evenly divided between Aroclors 1242 and 1254. Only small quantities of Aroelor 1231 seal water used In vacuum pumps; water used In phosphatiring and fluoride bath; water spray usod In paint booths; boiler and topping, addition of electrical con ned Ions and bushings, electrical testing and sealing. Water Is not an essential component of transformer manufacturing. In general, the process raw wastes from these plnnls consist of waste Askarel collected in eumpe or pans at th* filling stations, contaminated vacuum pump seal oil. eontmlnatd keroseno-llke petroleum ' were produced. blowdown; and cooling tower blowdowns. distillate, and contaminated Askarel used . KOIKAl ICOlITtR, VOl. 41, NO. 143--FRIDAY, JlflY i. m. HONS 057100 90172 , PROPOSED RULES far transformer Interior flushing. PCD most characteristic effects in rats are en milar In many respects to those observed wastes which reach water streams et largement of the liver, induction of hepa among the population contaminated in these plants are due to occasional loss tic microsomal enzymes and porphyria. the Yusho incident. during handling and residuals accumu- Reproduction Is adversely affected aft (6) PcrsUtcnce, mobility end degrad laded around drainage systems from past dietary levels at and above 20 parts per ability. PCBs have a long life In the envi operations when insufficient precautions million (ppm; 1 ppm Is comparable to a ronment, often In excess of 2ft years, but were taken against PCD losses. liquid measurement of 1 milligram per components with three or less chlorine Based on information irom five plants, liter a mg/i)>. atoms disappear rapidly. Mono-, <M. and cBuents from plants In this subcategory Rhesus monkeys are extremely sensi til-CBs are to some extent degraded or ranged from 19,500 galAtay to nearly 1.0 tive to PCBs. which Induce skin lesions metabolized by bacteria, but higher PCD-< MOD. These effluents (predominantly and gastrlo ulceration. Monkeys exposed are resistant to microbial degradation. tooling water) are discharged Into the to 2.5 ppm suffered reproductive dystunc- Tetra-ehlorinated PCBs can be metabo MVlgAblc waters or oro Introduced Into tions and some died after exposure to lized by birds and mammals, but penta- FOTWs without any treatment directed only 3 ppm. Adult female Rhesus mon chlorlnated PCBs are resistant and toward PCU removal. Average effluent keys fed 25 ppm of Aroclor 124ft not only higher CBs ore metabolized only xtry FOB concentrations ranged from less accumulated the PCBs in Lhclr adipose slowly. Most environmental residues have than 2 *g/l to nearly 30 ,,n/l Average tissue, but the PCBs were transferred been reported In the form of tetra ai>d mass amissions of PCBs from these across the placenta of one female which higher chlorinated PCBs. plants range from less than 0.002 )b/day gave birth and concentrated at high PCBs are mobile in the environment to nearly o.l Ib/day. levels in the fat and adrenals of the In and are carried freely In the air and the *<3) Toxicity. PCBs inhibit growth and fant. ' water attached to airborne or water asll*division In certain spocles of phyto-' Mink ore also very sensitive to PCBs. borne particles. Conventional Incinera plankton (slngle-edicd aquatic plants). In one experiment, most females died on tion and other disposal techniques do not Borne sensitive species are affected at a diet containing 10 ppm and none pro completely destroy PCBs. - Very low concentrations (0.1 <g/l>. The duced young at 5 ppm. In another test (7> Bioaccumviation and bfomagm/t- offocU are particularly marked In mixed 0.64 ppm caused total reproductive fail cation. PCBs are strongly concentrated cultures, where sensitive diatoms are re ure end a few deaths. ("btoaccumulated') from water Into placed by resistant green algae. (4) Carcinogenesis. On prolonged ex aqu&ttc invertebrates and fish. Bioaccum PCBs are toxio to aquatto Insects, crus posure of rats and mice. PCBs cause a ulation 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 pg/l. Re liver. Including hypertrophy, hyperplasia, water) for these organisms are com production and growth In aquatic in adenoflbrosls and nodular hyperplasia. monly in the range.of 20.000-274.000 after vertebrates are adversely affected at At high dose levels (100 ppm and above) prolonged exposure in the laboratory. concentrations as low as 0.4-0.5 pg/l. PCBs induce hepatomas, neopJaatie However, wnere measurement* of con PCBs offset the sottlsmcnt of larvae and nodules and carcinomas in rates and mice centrations In natural waters are avail reduce the diversity of marine Inverte and therefore pose a presumptive carcin able. bloMceumulatlon factors in fish and brates communities at concentrations as ogenic risk to man. In one experiment, Invertebrates are generally larger than low as 0.1 ag/1. PCB-lreated rats also displayed an In those measured hr the laboratory. There PCBs are acutely toxic to estuarine creased Incidence of pituitary tumors. havo been reporta that certain animals aquatic organisms. Per Aroclors 1010. Metabolism ol PCBs In mammals and - captured from the aquatic environment IMS and 125-1, the 48-hour LC50 values birds proceeds primarily through artne have apparently bloaccumulatrri PCBs in far brown shrimp, pink shrimp, and grass oxide (epoxide) intermediates, which are their flesh to levels of between 3 and 10 brtmp fall In the range between 9 and biologically active and believed to be million times that of the water concen IS ag/1. In longer-term bioassnys of two highly toxic and carcinogenic, hcds also tration In which the animals were rap weeks or more. Aroclor 1254 Is toxic to have immunosuppressive effects in rab tured. It Is Important to note, however, the commercially valuable penaeid bits and guinea pigs. In several experi that tho level ol PCB contamination in shrimp and grass shrimp at concentra ments treatment with PCBs has in the food of the captured aquatic life, as tions as low as 0.9 to 1.4 /g/l. Arthropods creased the susceptibility of animals to well as the concentration of PCBs In art affected at 0.1 tig/I. various diseases. which these organisms redded lor the Rainbow trout have been killed by ex (5) Human Araffft effects. Humans oc predominance of their Ufo periods, are posure to Aroclor 1248 at concentrations cupationally exposed to PCBs sometimes unknown. Of 2.4 rl/1 In 25 days, and by exposure suffer from an occupational disease Fish In Escambia Bay, Florida, had to Aroclor 1280 at 8 *g,1 in 10 days. Spot known as eliloracne, charact/rincd by PCBs levels In their flesh 670,000 over and plnflsh died when exposed for 14 to long-lasting skin lesions and sometimes the ambient water In which they were 49 days to ft *g/l of Aroclor 1254. The systemic disturbances. c-aptumt. PCB levels In the waters of loiigno*.c kUliflah has been killed by long In a large-scale poisoning incident In Lake Michigan average around .01 j.g/1 term exposure to Aroclor 1254 at a con Japan In I96S. more than 1,000 persons However. PCB levels in fish In Lake centration of 1 yg/l. became sick with Yusho disease slier Michigan range in the 2 to 20 ppm PCBs have adverse effects on survival, ingesting rice oil contaminated with range, wet weight < 16-200 ppm, growth, and reproduction of fish at con centrations as low as 1 *g/l. In one caso. both PCBs and PCDFs. Their symptoms were similar to those of occupational f^uinuiniloil^^u^^angin^up11^1^*- ages from fish exposed to only 0.1 g/l ehlorncne. but also Included hyperplR- Itasi a.UW.OWl ln whole nsh. Levels of failed to hatch after being iriuccd in PCD- mentation of the skin, persistent eye dis PCilB til RHnc whnlo and seal blubber free water. A variety of other sublctlial charge and gastric disturbances. Chil i$rg fuunirw U8 In excess of 1 iiiiiiiuinn toxio effects have been olwcrvod on a wide dren were affected not only by direct the* luiiblotn fflfci1 mrrr,**,`"~ Hi range of freshwater and marine fish Ingestion of the contaminated oil, but whten tne animals were taxon, .present In waters thoughout the country, also prior to birth by IrnmpiaccntAt pas WJls are runner concentrated < b)o- and. these are set forth In detail In the sage and In one case a child was contami mngnlAcd) from the food of birds and Agency's criteria document for PCBs. PCBs generally have low acute toxicity nated by Its mother's milk. The af fected persons have improved only slowly mammals Into their tissues, especially into their fat. Blomagniflcauoii factors lo birds and mammnls. but long-term sinco 1868 and there are already Indica (ppm ln organlsms/ppm In food) aro dietary exposure leads to a variety of tions of excess cancer incidence. often In the range 1 to 10 after prolonged . chronic toxic effects. The Rhesus monkey provides an Im exposure In tho laboratory, but arc oilen - Hats are relatively resistant to PCBs portant Indication for human sensitivity as high ns 10 to 100 in wild animals and and usually do not show the characteris to PCBs and, as noted above, is extremely birds. Humans store PCBs in their fat tic lesions of the skin and stomach In sensitive to low* levels of exposure. The more efficiently than any animal for duced In several oilier mammals. The symptoms following exposure appear si which precise measurements have been ItDtftAt IICIMI*, VOI. 41, NO. MS--MtOAY, MIIV SS. MM HONS 057101 HOPOSED RULES 30173 nude. This leads to greater exposure to "ample margin of safety" for all organ exceptions), a prohibition on discharge anslUve organs and tissues In humans isms under all circumstances. However, Is achievable based upon currently avail than In animals exposed to Ute same eon* the data do establish, at this time, that able technology and handling methods. . cenlraUons of PCBs In Uie diet. The data an ambient water quality level of .001 Based upon detailed plant lns(>cclion* Indicate. In particular, that Aroclors 1019 *a/l should not be exceeded. and examinations of the process steps In and 1243 are widely present in fish in Uie To assess risks to humans, the most the use of PCBs In the manufacture of United Slates. This In turn leads to sub* critical toxic effects of PCBs are those capacitors and transformers It has been atantial exposure ol humans and oUicr observed In mammals at the lowest ex determined that the characteristics of Ash-eatlng animals. ' posure levels. These include: these wastes are sufficiently similar so (|> Ambient water criterion for effedt (1) Mortality and reproductive failure that the same kinds of control snd treat h natural system*. The foregoing sum* In mink at a dietary level of 0.64 ppm. ment technologies are applicable. nary briefly highlight* the extensive (ID Increased liver weight In weanling The wastewater characteristics for data bate act forth in the criteria docu rats In the second generation of animals manufacturers of capacitors and trans ment. This data base demonstrates that PCBs peat a serious threat to a wide exposed to 1 ppm. and liver pathology (including nodules) In the second gene formers have been described above. Date available to the Agency Indicate that wa gangs of aquatle and other food chain ration exposed to 20 ppm. ter can be eliminated from most U not all organisms, as well as to human health, at Tory low concentration level*. There ap (Ill) Stomach nodules and ulcerations in dogs at a dietary level ol 1 ppm: of the manufacturing-related processes, with the result that potential effluents pear to bo some variations In Uie toxic Sect* for different Isomers. Thus, the more highly chlorinated isomers appear to be somewhat more persistent tn the environment, while the lower chlorin* 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 can be sufficiently reduced In quantity so th^t they can be Incinerated or other wise disposed of so as to reduce greatly or eliminate any discharge of prnecs* wastes to the navigable waters. Where ated Isomert appear to be somewhat posed to 2.5 ppm and deaths at 3.0 ppm. 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 ah Isomers which are significant constituent*) of commcr* crosomal entymes In rate fed at 0.5 ppm for 4 weeks. duce quantities of unavoidable blow downs to amounts suitable for treatment etal mixtures of PCBs are highly persist* (vl) Carcinogenic effects in rats and by activated carbon and discharge or by ent and mobile In the environment, end all Isomers display a degree of toxicity Which Is a matter for grave public con* etm. Moreover, the compotlUon of PCB mixtures changes as thev are transported through the environment. There Is also evidence that toxic metabolites, or break* down products, may be formed, so that mice at dietary levels of 100 ppm and above. (vti) Apparent increase in incidence of pituitary tumors In rats at dietary levels of 1 ppm and above. (viil) Widespread presence of PCBs In fish and other organisms regularly con sumed by humans. Incineration. With respect to capacitor manufactur ing wastes, the scrap PCBs collected In sumps, drums, and drip pans, as well as fractionator bottoms from trichloroeth ylene recovery, are malt In amount, and ean be Incinerated. The same is true for contaminated vaeuum pump oils 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 be the same as the weighing potential adverse effects of With respect to capeeitor and component tooeles distribution of the substence dis PCBs on humans. In particular, Uie cleaning operations, cleaning solvents charged. For all these reasons, there ap* symptoms of poisoning In monkeys, in rather than water tan be used, and then poors to be no sound basis for setumr 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- phosphatistng and fluoride baths by some different Isomers, and accordingly, the syme Induction Is a baste biochemical plants can be eliminated, along with the eilterlon and standards herein proposed effect which has been observed iu many entire process, by use of aluminum con are for PCBs genetically. species; carcinogenic effects In rodenta tainers. A criterion level of 0.001 *g/l would are generally used to predict potential Capacitor manufacturers who use steel appear to avoid adverse effects to most carcinogenicity In humans. - containers generally paint their product*, aquaUe organisms, based upon an an* It Is difficult to use the results oi these which produces a waste resulting from alytli of both laboratory and field data. experiments to establish acceptable levels water spray used to control paint par This level Is based primarily on the of exposure for humans: (a) Because ticles and fumes. This process ean be Moaccumulatlon properties of PCBs. many of tho listed effects were reported eliminated through use of aluminum Fish have been shown to accumulate at the lowest dietary levels investigated: containers which need not be painted. If PCBs by factors as high ns 974.000 in the (b) because humans are exposed for painting is nevertheless desired, diluent laboratory, while considerably higher much longer periods (Including prenatal discharge can be avoided by use of on factors appear to occur tn their natural exposure) than the experimental ani air or electrostatic system instead of a environments. Based upon a bloaccuinu- mals; and <c) because humans are waterfall for trapping paint particles end laUon factor of 274.000 a concentration known to store PCBs tn their tissues more fumes. Of 0.001 pg/1 could result In bloaccumula- cfDclcnUy than the experimental ani Aqueous discharge from eooling tower Won to 0.274 ppm in flesh, which Is below mals. These data do, however, further blowdowns can be reduced by use of a re the dietary levels whleh have been support the proposition that nn ambient cycling system based on deminerfilia Shown Injurious to aquatic birds and water quality level of .001 pg/1 should tion or, alternatively, by tnctnrrntfon of mammals who may feed upon them, in not be exceeded, and, beyond this, that blowdown. Any solid waste residue, which addition, however, there Is evidence that every reasonable effort should be made to will not Include PCBs, can be disposed of In some waters some fish blonccumulate limit discharges of PCBs in order to mini by landfill. Boiler blowdown, which is not at rates roughly ten times this, and in mise human exposure. likely to contain any PClis. can be sealed waters where the chronic level generally (0) Control technology available. At In drums and landfilled or treated by the exceeds .001 *g/l, such as Lake Michigan, tho present Umc there are no direct dis activated carbon treatment system. Uterf It evidence of sublethal toxic ef charges of PCBs from a PCB manufac With respect to transformer manu fects ou the fish. turer and thus no tn-place technology to facturers. as with capacitor manufactur Xn proposing this ambient water cri evaluate. Tho only U.S. manufacturer, ing, all scrap PCBs collected in sumps or terion the Agency recormlxes the possi Monsanto, discharges to the Saugct. Illi pans can be Ineineratcd. Contaminated bility Will such water quality level may nois POTW. With respect to process vacuum pump seal oil. petroleum distil not provide absolute safety for all or waste effluents from PCBs users, water late, and nskarel used for transformer ganisms In all waters. Indeed there prob Is unnecessary to the processes Involved Interior flushing can also be Incinerated. ably Is no mtmerleal concentration Icrcl in the manufacture of liquid-filled ca Each of these controls has been demon above r.cro which one ran at this tJmo pacitors or transformers. Consequently strated by use by at least one of the say with great confidence provides an for process waste (with certain specified covered plants. FfOtKAl MOIITU, VOL 41, MO. UJ--MtOXY, Wit 91, W* MOMS 057102 >0474 ' PROPOSED RULES -Several potential source* of procesa-rt- sufficient Information was available to those permit proceedings are less strin laud waste may m Mint eases result in evaluate these systems. gent than the limitations which would be Bosnia which cannot be avoided feasi (10) Economic impact. The Aecncy required by these proposed standards bly tn the near term: Rinscwater used In recognises that there may be significant under section 307(a). The Agency invites Wtldtnf, painting or plating operations, costs and economic bnpacia associated comments on the comparative tech lMl scrubber and quench water from with the standards proposed at this time. nology, costs, end resulting economic im Inelnerator operations. The Agency has mode a preliminary as pacts associated with those limitations as These categories of process-related dls- sessment of costs and economic Impact, compared with the standards hereinafter ehafgea, as well as non-process related which Is summarised below. Preliminary proposed. If interested persons believe elhwnts, Including plant washdown, non- cost estimates, as set form in the report that a modified standard Is preferable to oontaot cooling water, and runoff from submitted by Versar. Xnc. (See Apixsndix that proposed, they should take appro stormwater or spills, can be treated by A hereto, item 4), Indicate that com priate measures to develop end enter Into carbon adsorption as described below. pliance with tho proposed standards may the record the appropriate supporting It should be noted that EPA-sponsored result tn additional costs of production data and Information (see Public Par hSTtsUtatlont have revealed that there equal to or greater than five percent of ticipation in Rulemaking Process, below). are no ln-place processes being employed tho selling price of the products (trans (11) Rationale for ttandard. in dis whereby dissolved or sorbed PCBs in formers and capacitors), thus identifying cussing the establishment of an ambient water streams are being either ex Uiis regulation tentatively os a major water criterion number above, it was em tracted from those streams or destroyed action requiring the preparation of an phasised that a concentration of .001 Within them. In general, these waste Inflation Impact Statecmnt <ns> pur pg/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 less than 1 *g/J up to about soo detailed assessment is currently being be made to limit discharge* of PCBs in pg/1 with many Instances occurring in prepared by the Agency, and will be ac order to minimize human exposure. In |ha 10 to W *g/l range. While several companied by an 118. If necessary, The deed the data sugiest that to provide nn f the plants have practiced PCB segre availability of these documents upon 'ample margin of safety'* for human gation to keep the quantity of con their completion will be announced Jn health, and possibly for some other or taminated wastewaters as low as possible, the Federal Register, and public com ganisms as well, an ambient water ert- none has Installed full scale terminal ments thereon will be Invited. These terJor farlower than .001 *gj may be re KB removal facilities. Hie BPA through Its contractor. Versor, Xne., has Identified a technology documents, together with ail public com ments thereon which are received by the Hearing Clerk postmarked not Inter than quired. though at this time one cannot confidently Identify any specific number above zero. which will reduce the PCB concentration thirty days following the aforesaid notice At the present time, even if every point In wastewaters to 1 sr/1 or less and which Is capable of being Installed within flme year. The identified system is based Upon activated carbon adsorption, fol lowing primary treatment consisting ox of availability of these documents, shall be made a part of the record of these rulemaking proceedings (see Public Par ticipation In Rulemaking Process, below), The standards are being proposed at this source discharge were prohibited. PCD concentrations in the water would remain for a Jong time not only above zero, but in sume water bodies, above .001 ,,a/) Moreover, since the capability docs not sedimentation, filtration, end skimming. time prior to completion of the economic exist presently to measure PCB concen The feasibility of achieving the 1 *g/l or Hob level has been demonstrated in laboratory testa conducted cooperatively between Versar, Inc., and two activated earbon suppliers, Carborundum Com- pany and ICI-V.8. The system consists of an equalisation-settling tank and Mixed media filtration followed by car impact assessment in light of the order and decree entered by the United States District Court In Natural Resources De fense Council el of. v. Train, Civ. Ho. 2153-73. and consolidated cases, on June 9,1976, requiring proposal of these stand ards by July 14, 1976. The Agency's preliminary assessment trations below 0.001 a/) with any rea sonable degree of reliability, no useful purpose would be served In establishing a criterion number below Uils. In light of the foregoing considera tions. the Administrator has weighed carefully the desirability and feasibility of Imposing a prohibition on any dis bon adsorption. FIoatables and sludges of costs and economic Impact suggests charge of PCBs from any point source. from the equalizeUon-Mtuir.g tank and that transitional impacts may be signifi In the case of existing manufacturers, kpent carbon are disposed of by Incinera cant. The preliminary estimate of the this can be done since the only present tion. Carbon adsorption has also been cost of compliance Indicates aggregate PCB manufacturer docs not have a direct onoeessfully used In full-scale operation capital costs for the direct dischargers of discharge. A similar requirement is im to achieve removal of pollutants other ' than PCBs down to comparably low $12 million and total annual costs of 67 million (based on a 3-yar depreciation posed upon new PCB manufacturing sources, who would be required in effort levels. schedule). The annualised costs repre to either achieve a completely closed sys Based on work performed cooperatively between Versar, Jnc.t and Houston Re sent 6 to 31 percent of current selling .prices for transformers and 3 to 17 per tem or discharge into a POTW. With re spect to transformers and capacitors, * search on one system and Westgate Ho cent for capacitors, the Indicated ranges both these industries provide important . search on another system, it was Indi resulting from the types of transiormers products to tho United Slates economy cated that systems employing ooonntlon and enpneitors produced. These costs may for which there arc no presently proven la conjunction with ultraviolet radiation bo of sufficient magnitude to induce clo substitutes. Moreover, the best reduction can be designed to achieve sny desired sures of some small nnd/or marginal levels which available technology can gghient PCI! concentration. Preliminary plant* and conversion to substitute ma arheive with respect (o an eittiicni dis comparisons of the capital costs between terials for olliers. It Is not certain that charge containing PCBs appear to be l the ooone-UV system and activated car such conversions could be carried out in fig/l through the use of carbon adsorp bon system show at least a too percent the one year allowed by the Act without tion treatment. This exccsda Uic nmbiunt greater cost for the ooone-UV system. causing disruption of the supply of trans water criterion by three orders of magni When prctrantmcnl costs are Included former* and capacitors. Additional anal tude. the ooone-UV system Is only about 10 percent higher than activated carbon. It Is dOQbUul however, that Use ozone-UV ysis will be carried out to assess more completely these types of impacts, as well as to Identify other types of economic Discharge of relatively modest amount* of a pollutant into the water at many times the ambient water criterion may be system could be installed within one year, effects. allowed, however, without ncccKsnrdy Ihs maximum period of time between In addition, the EFA is currently en- fniling to provide safety for nifcctcd or promulgation and the effective date of . gaged In Issuing HPDES permits pur ganisms. First, the acluol 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, ealnlytlo by those proposed standards. In some in fluent disperses following discharge and reduction and catalytic oxidation. In stances the limitations being proposed-!?) becomes greatly diluted. Tire area of dl- KDfctAt REGIVKR, VOl. 41, HO. 14--ftlDAY, JutV 23, 1V7* MCNS 057103 FKOPOSEO RULES 30473 hiUon Is often referred tout "mixing Type of technology one**, end will very In size end shape Wastewater type mott receiving mien. In the tehlevement of the degree of prelection envi from one body of water to the next and from one discharge to the next. The re mit of this phenomenon U that once the fluent reaches the outside of the mixing one, the pollutant concentration may have become diluted by a factor of sev Boiler blowdowns. PUter, dealaorattso, and recycle. Incinerator scrub Pretrcatmsnt and ear- ber water. bon adsorptlou to I -g/l or leu. Proccso-Moclated pratroatment and car wastea.* bon adsorption to 1 sioned by the Act. The Agency recog nizes. however, that there may be a few cases where, because of local receiving water conditions, notably with respect to hydrology, sufficient dispersion and dilu tion may not take place. To deal with eral hundred or more, and Indeed may m%n or leu. such coses. 1129.7 of Subpart A <lhe not even be detectable by the most so Sanitary waste TO VOTW. general provisions of Part 129: see stand phisticated monitoring equipment. Conoododfy, In some Instances there may be adverse effects on some organisms In the Immediate vicinity of the outfall. How waters. Rainfall runoff-... Stwlono arcaa or protroatmen* and car bon adsorption. ards proposed on June 10, 1976. 41 FR 23576) allows the applicable NPDES per mit issuing authority to impose such more stringent effluent limitations as may ever, for chronio effects to be observed, tbs exposure time would have to be quite tanglhy--perhaps a lifetime. Even acute tonic effects, which normally occur at much higher dotage levels than chronic effects, are generally recorded based upon Includes hot solder dip rlnae water. be required in order to achieve or ap Ehospitalising bath wastewaters, tin plating eth and rinse water*, fluoride bath and tlnat waters and painting water spray. These are small In volume and may occur In only a single plant. . proach the ambient water criterion level. In this case .001 yg/l, at least beyond the boundaries of any reasonable mixing son*. In addition, more stringent levels may be Imposed to meet any applicable a M-hour exposure. Because of the ex Using this technology results In a pro water quality standard, see ! 120.5(e). It traordinary persistence of PCBs reliance hibition on discharge of PCBs from any la possible (hat an exercise of these pro eo mixing tones, while of assistance In point source to the navigftble waters In visions could result in a plant cloture. the immediate future, cannot be regarded volving solely proeoss wastes with the However, by allowing some considera as ft long-term solution to the problem. exceptions noted In the above table, which tion for technology In the initial stand Ill developing the proposed standards, would be treated with activated carbon ard-setting. even though consideration of the Agency also considered the availa to the l yg/1 level or lower. This tech ecological and health effects are para bility of substitutes for PCBs In trans nology substantiates ft standard of a mount, the approach taken under these formers and capacitor*. Beverat 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 are to be any shutdowns, they beUeve are an adequate substitute treatment of other discharges with acti they will occur only after a slte-speclAa for PCBs In transformers and efforts are vated carbon, reducing PCBs to 1 yg/1 examination, and only because of a fail wider way to develop substitutes for or leas. Although occasional deviations ure to meet the safety requirements of PCBs In1 capacitors as well. At this time, are unavoidable, at co time may any section 307(a). however. It U still too early to determine such allowed discharge exceed 6 yfA for Finally, it Is recognised that to allow a With confidence whether the substitutes samples representing a working day. discharge at the proposed levels may pose are not only functionally effective but, In For new sources, where further tech some risk of adverse effects to some or addition, are safe In terms of potential nology advances can be reasonably ex ganisms, particularly thorn located near Hr# hasard and other safety considera pected. a more stringent limitation may the outfall, and possibly to the consumers tions, and are environmentally safe. The bo set to take such expected advance* thereof. However, based upon prelimi Agency has eonoluded that It eannot at Into account, Ineluding advances in con nary information, this risk is deemed to this time set a toxic pollutant effluent trol technology and In substitutes for be outweighed at this time by the social standard, or prohibition on discharge, PCBs. Limitations of 0.1 g/l on the dally and economic benefits represented by not upon the assumption ol the ready avail average per month and 0.5 yg/1 maxi setting a standard which would force ability of ft substitute product. However, mum at any time should be achievable widespread closures of plants manufac the Agency Is pursuing an active policy lo (the ozonatlon-UV date so indicate) and turing capacitor# and transformers, encourage Industry to develop as rapidly are therefore proposed os new source which would In turn be likely to sharply aa possible feasible substitutes for PCBs. standards lor non-proo-- wastewater curtail tho 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 recognised that to Impose a pro quench water from Incinerator oper (12) Subsequent review of standards. hibition on all PCB-containing effluents ations. For (he reasons discussed above, It continues to be the goal of the Agency at this time would probably cause a se vere lmtttct on Uto transformer and ca no new source discharge of PCBs will be allowed which result from jet ejectors to reduce the presence of PCBs in the environment to the greatest extent pos pacitor manufacturing Industries which or rinsewater from welding or plating sible as rapidly as feasible, for all of Uie utDteo PCBs. and deprive the nation of operations. reasons outlined above. Indeed, as addi the future availability of products which The maximum dally permissible con tional data become available to the Agen utilise such transformers and capacitors. centration Is based upon an application cy, It may be necessary to revise in sub Accordingly, In the proposed standards factor of five times the maximum aver sequent proceedings both the standards the Administrator is requiring that dis age monthly concentration factor. This and 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 doily concentrations ing in the direction of greater stringency very beet results which available tech nology can achieve. For the manufactur may exceed the required maximum monthly average. They should not be In order to provide the degree of safety required by the Act. ing of transformers and capacitors, tire allowed at any time to exceed the lowest The Agency Is obligated to review and standards ore based on the following tab- feasible celling, however, and the where necessary, revise Ha section 307ia> wtaUon: Agency's Information with respect to standards at least every three years. The Type o/ technology WasUmitr fype *ppttc4 Man-tonUst cool Coot in closed radiator ing water. system *mf recyejs. team Jet eonfltn- Iteplaea steam ]*u carbon absorption and analogous treat ment techniques Indicate that a variabil ity factor of five is achievable and reasonable. Translating an.ambient water criteri Agency Intends to review the proposed standard one year following promulga tion. with the expectation that Industry will have made significant strides to wards the development of rclinble sub with maehanleal on number to an cnd-of-lhe-plpe stand stitutes for PCBs. as well as In the field pump*. ard Is at best an imprecise calculation. of control technology, so that a prohibi Detergtnt washing Iteplaea with solvent water. vapor dcgrtMing. The dispersion and dilution factors dis cussed above are expected to result, in tion on all discharges of PCUs In any In dustrial effluent can be considered at that rtPEtAt ftcotsm, VOL 41, NO. 143--rsiDAY, JULY 23, 147ft MOMS 057104 10479 PROPOSED RULES time, Including sources net covered by thirty days following the aforesaid notice See. * tfw standards proposed at this time. of availability. All parties to the public 120.7 Requirement sad procedure fee St Pviuc PanapinoK in Rvummwo PKOCCBI A publlo hearing to consider the pro posed effluent standards wtn be held pur suant to section 307(a)(2) of the Act hearing on the proposed standards shall be allowed a reasonable opportunity to examine this economic impact assess ment and any comments therein, and to respond thereto on the record. To this limited extent and for this limited pur establishing a more effluent limitation. 139 9 Compliance del*. 1299-129.99 (Reserved! 129.100 Aldrtn/Dleldrln. 129.101 DDT. DDD and DDE. 129.103 Etkdrln. stnngcns qommencing on August 30.1070. fit 10:00 pose only, I hereby waive the time dead 120.103 Toxapheu*. a.m. In Room 2100, Waterside Mall. U.S. line requirements for the flllng of pub 129.104 Benzidine. Environmental Protection Agency, 401 lic comments under 1104.3(d) of the 120.106 Polychlorinated Biphenyls (PCBs). M Btreet, SW.. Washington. D.c. In ac Agency's Rules of Practice lor Public Aothoutt.--Secs. 907. 900. and 601 of lb* cordance with the Agency's rules of prac Hearings on Effluent Standards for Toxic Federal Water Pollution Control Act Amend tice governing public hearings on effluent Pollutants, 40 CFR Part 104, os omendod, ments of 1972 (Pub. L. 99-500. 90 Stat. 019. standards for toxic pollutants. 40 CFR 41 FR 17898 (April 29, 1976), so as to 33 UA.C. 1351 et seq.). Part 104 as amended. 41 P.R. 17898 et oq. (April 20. 1070). the lint hearing day shall Include a prehearing confer allow tire filing of materials and com ments described In this paragraph within the time period herein set forth, and I 2. Subpart A of Fart 129 Is further amended by adding new paragraph to to 1129.4 to read as follows: ence at the above time and place. All persons interested In participating In accordingly direct the presiding oflicer at the public hearings to be conducted on S 129.4 Toxic pollutants. those hearings ae objecting parties these proposed standards to ensure that should refer to the emended rules of the record includes all materials which (f) Polychlorinated Biphenyls (PCBs) preeUco. 41 PH, 17808 et seq., and should are filed In conformity with this para --polychlorinated biphenyls (PCBs) pot rely on previous editions. Any per graph. The Agency has the legal author means a mixture of compounds composed son who has sny objection to any stand ity to modify or waive strict compliance of the bipenhyl molecule which has been ard proposed herein may file with the with its rules of practice In exceptional chlorinated to varying degrees. Hearing Clerk (A-100). Room 1019 WBMB, UJB. Environmental Protection Ageney, 401 M Street. SW., Wasliington, DO. 20400, within 20 days of the date of circumstances such as the foregoing when the ends of Justice require. Cf, American Farm Lines v. Black Ball Freight Service. 397 UR. 532 (1970) and 3. Subpart A of Part 129 Is further amended by adding new 1129.109 to read as follows: this notice, a statement of objection in triplicate which shall meet all of the re quirements of 40 CFR 104.3 <a> and <b>. Htess Sections require, among other things, actual receipt by the Hearing Clerk of any objection within the aforesald time. The presiding officer may re fuse to permit any person to participate In ssM hearing who falls to comply with sny of the provisions of those sections. In addition to (he foregoing, sny per cases cited therein. Dated: July 14,1976. Russell E. T*aw. Administrator. Arramix A i. Criteria Document for PotyehlorlneUd Biphenyls (BFA. Ian C. T. Ntsbet. Fh. D. 1076), including genual Introduction. S. PCBe In the Onitad State* Industrial Use and Environmental Distribution (Doe. | 129.10S Polychlorinated biphenyls <PCOe). * () Eperioiiecd definitions. (l> "PCB Manufacturer" means a manufacturer who produces polychlorinated Wpenyl*. (2) `Electrical capacitor manufac turer" means a manufacturer who pro duces or assembles electrical caixicltors in which PCD or PCB-conlalmng com pounds are part of the dielectric. (3) "Electrical transformer manufac son Interested in this proposed rulemak Mo. EPA MO/e-ia-oos February 30. 107S). turer" means a manufacturer who pro ing but who does not participate as a 3. Assessment of Wastewater Manftgsmsnt, duces or assembles electrical trans party In the formal hearing may submit written comments to the Agency on the proposed rulemaking. Such comments should be filed in triplicate, if possible, end should be addressed to: Hearing Clerk (A-100), Room 10)9 W8ME, UR. Environmental protection Agency, 401 M Treatment Technology and Associated Cost* for Abatement of PCBe Concentrations In Industrial Effluents (Doc. No. EPA 500/0-70 004 February 3,1970). 4. POO* Wetsr Sllmtnatlon/Iteduction Technology and Associated Coats, Manufac turers of Electrical Capacitors and Trans formers; Addendum to Pinal neport. Task II formers In which PCD or PCB-contalnJng compounds arc part of the dielectric. i4) The ambient water criterion for PCBs in navigable waters is 0.001 cg/1. (b) PCB Manufacturer--U) Appli cability, (1) These standards or pro hibitions apply to: Btreet, 8W., Washington, D.C. 20460. All (July 3, 1070) (supplements item 8). (A) All discharges of process wastes: comments which aro received by the , hearing clerk and which aro postmarked on or before August 20,1970 shall become a pert of the hearing record In the man ner prescribed In 40 ent 104.3(d) and Shall be considered by the Administrator B. Conference Proceedings of the National Conference on fob* (doc. no. zpa seo/e-7e004; Conference held November 1076; pro ceedings published Xtarch 1070). 4. Nwilee of Proposed Rulemaking: EPA Proposal of Tonic Pollutant Effluent Stand ards for Aidrm/Dictdrto, dot (DDD. dde), (B) All discharges from the manu facturing or incinerator areas, loading and unloading areas storage arras, mui other areas which arc subject to direct contamination by PCBs as a mult of the manufacturing process, Including but not prior to the promulgation of Anal stand Fndrin and Toxapbeno, 41 Pit 33670 (Juno limited to: ards. . 10.1970). (1) Stormwater and other runoff: In addition, tn accordance with the discussion above concerning economic `Impact of ttie standards proposed at this time, the Ageney will publish in the ynnwL ltroisvca approximately ninety days following the date of publication of I. In 40 CFR Part 129. Subpart A (as proposed At 41 PR 23576 (June 10, 1976) and amended at 41 FR 2ioi7 (June 30, 1076) the tablo of contents Is further amended to read as follows: (2) Water used for routine cleanup or cleanup of spills. til) These standards do not apply to stormwater runoff or other discharges from areas subject to contamination solely by fallout from sir cmbsions of this notice of proposed rulemaking on PART 129*--TOXIC POLLUTANT PCBs: or to stormwater runoff that ex announcement of the availability of the EFFLUENT STANDARDS ceeds that from the ten year 24-hour Agency's economic impact assessment with respect to the proposed standards, lubMrt A--TasitieUPhoslluMtaknHt Ebfnfliuent tliniirit ' rainfall event. (2) Analytical Method Acceptable. En llw document or documents setting forth this assessment shall be made part of the record of the rulemaking proceed ings on these proposed standards, to gether with Ml comments directed spe cifically thereto which are received by the Hearing Clerk at the above address, Beo. 129.1 129.9 1294 129.4 129.6 129.9 - Scope and purpose. . Definitions. . Abbreviations. Tbxic pollutant*. Compliance. Adjustment of effluent standard for presence of toxic pollutant in the vironmental Protection Agency method specified tn Part 136 of tills chapter, except that a 1 liter sample size is re quired to Increase analytical scnsltivily. (3) Effluent standards--<i> Existing sources. PCBs are prohibited in any dis and which arc postmarked not later than intake water. charges from any PCD manufacturer. KbllAl MGISTit, VOL 41, NO. 143--4SIDAT, JUIY 23, 1776 HONS 05n5 PROPOSED RULES 30477 (ID Jfiw lovreei. PCD* are prohibited chlorinated biphenyls concentrations ex ceeds that from the ten year 14-hour in any dlachargo from any PCB ceeding an average per working day of rainfall event. manufacturer. I ^g/l calculated over any calendar (3) Analytical Method Acceptable En (c) Electrical capacitor mcxwfae- month; and shall not exceed 5 ?g/l in vironmental Protection Agency method Inrer--(1> A^teaUiUy. (D These stand- samp)o(s) representing any working day. specified in Part 136 of this chapter, ex ante or prohibitions apply to: (11) /Veto sources. (A) PCBs are prohib cept that a 1 liter sample slxc Is required (A) All dischargee of proeeae wastes; ited in any process *wastcs discharged to increase analytical sensitivity. and with the exception of scrubber and (3) Effluent standards--Hi Existing (B) AO 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 tal unloading areas, storage arena und other <B> All other discharges from a capac lowing exceptions: areas which are subject to direct con itor manufacturer shall not contain ll) Water used in welding, plating or tamination by PCUs as a result of the polychlorinated biphenyls concentrations painting operations: and manufacturing process, including but not exceeding an average per working day of (2) Scrubber and quench water from Malted to: 0.1 g/l calculated over any calendar incinerator operations. U) Btormwater and other runoff; and month; and shall not exceed 0.5 *g/l in <B) All other discharges (Including (t) Water usod for routine cleanup sample(s) representing any working day. each of the exceptions set forth In the or cleanup of spills. (4) The standards set forth in this preceding section (A>> from a trans (ID These standards do not apply to Subsection shall apply to the total com former manufacturer shall not contain stormwater runoff or other discharges bined weight or concentration of PCBs, polychlorinated biphenyls concentrations from areas subject to contamination excluding any associated element or exceeding an average per working day of solely by fallout from air emissions of 'compound. 1 ag/l calculated over any calendar KSs; or to stormwater runoff that ex- (d) Electrical transformer manttfac- . month; and shall not exceed 6 g/J In eoeds that from the ten year 34-hour furer --U) Applicability. (1) These sample**) representing any working day. rainfall event. standards or prohibitions apply to: 01) New sources. (A> PCBs arc pro (91 AMtyficof method acceptable. En (A) All discharges of process wastes; hibited In any process wastes discharged, vironmental Protection Agency method apeeMed In Part 130 of Uiis chapter, ex cept that a 1 liter sample else Is required to Increase analytical sensitivity. (I) Effluent Stamfords--(1) ftrtstfoo sources. (A) PCBs are prohibited in all proosss wastes discharged with the fol and (B> AU discharges from the manufac turing or Incineration areas, loading and unloading areas, storage areas, and other areas which are subject to direct con tamination by PCBs as a result of the manufacturing process, including but not with the exception of scrubber and quench water from incinerator opera tions; and (B) All other discharges from a trans former manufacturer shall not contain polychlorinated biphenyls concentra tions exceeding an average per working lowing exceptions: U> Water used In welding, plaUng or painting operations; and limited to: U) Stormwater and other runoff; and <2> Water used for routine cleanup or day of 0.1 *g/l calculated over any calendar month; and.ahall not exceed 0.5 si/1 In sample(s) representing any working day. (II Scrubber and quench water from cleanup of spUls. (4) The standards set forth In this sub Incinerator operations. (U> These standards do not apply to section shall apply to the total combined (Bl All other discharges (including stormwater runoff or other discharges .weight or concentration of PCBs, ex each of the exceptions set forth In the from areas subject 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 (PR O0C.74-3ISM Fil'd 7-SO-7*;g:3 en| v HDfctAL fcEOISm, VOL 41. NO. 143--MIOAY, JULY 39. 19F4 MONS 057106