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# OlOo]ffK-j-/ 3

Tuesda y Jul y 11 , 198 9



# Par t V I 

# Environmenta l Protectio n Agency
4 0 CF R Part 30 2 an d 35 5 Reportin g an d Liability Exemption s fo r Federall y Permitte d Release s o f Hazardou s Substances ; Supplementa l Notic e t o Propose d Rul eP. 2

2930 6 Federa l Registe r / Vol

. 54 , No

. 13 1 /

Tuesday , Jul y 11 , 198 9 /Propose dRule s
ENVIRONMENTA L PROTECTIO N AGENC Y 4 0 CF R Part 30 2 an d 35 5 [FRL-3613-8 1 Reportin g an d Liability Exemption s fo r Federall y Permitte d Release s o f Hazardou s Substance s AGENCY : U.S

. Environmenta l Protectio n Agenc y [EPA)

. ACTION : Supplemental notic e t o propose drule

. SUMMARY : O n Jul

y 19,1988 , th e U.S

. Environmental Protectio n Agenc y (EPA ) publishe daNotic e o

f Propose d Rulemakin g (NPRM

) t o defin e th e scop e o f th e exemptio n fro

mreportin g an d liability fo

r "federall y permitte d releases " unde r

th e Comprehensiv e Environmental Response , Compensation , an dLiabilit y Ac t o f 1980 (CERCLA) , a s amended

. Thi s Notic e clarifie s certai n aspect s o f th e propose d

. scop e o f th e CERCL

A exemptio n fo

r release s permitte dunde r

th e Clean Ai r Ac t (CAA ) an dsolicit s comment s o n th e clarification

. DATES : Comment s mus t

b e submitte do n o r before Augus t

10,1989

. ADDRESSES : Comments: Comment s shoul db e submitte di n triplicat e to : Emergenc y Respons e Division , Superfun dDocket

Clerk , Attention : Docket Number 101(10 ) FPR, Room 2427M , (OS-240) , U.S

. Environmental Protectio n Agency , 40 1 M Street , SW , Washington , DC 20460

. Docket: Copie s o

f material s relevan t

, t o thi s rulemakin g ar e kep t i n Room 2427M , a t th e abov e address

. Th e docke t i s availabl e fo

r inspectio n betwee n 9:0

0 a.m
. ari d4:0

0 p.m
. Monday throug h Friday , excludin g Federa l holidays ! Appointment s t o revie w th e docke t ca n b e mad e b y callin g 202/382-3046

. A s provide di n 40 CF

RPart 2 , areasonabl e fe e (th e firs t

5 0 page s ar e free an deac h additiona l pag e cost s $.20 ) ma y b e charge dfo

r copyin g services

. FO R FURTHE R INFORMATIO N CONTACT : Mr

. Hubert

Watters , Projec t

Officer , Respons e Standard s an dCriteri a Branch , Emergenc y Respons e Divisio n (OS-210) , U.S

. Environmenta l Protectio n Agency , 40 1 M Street , SW , Washington , DC 20460 , (202

) 382-2463 ; or

th e RCRA

/ Superfun dHotlin e a t

1-600/424-9356 ; i n Washington , DC , 1-202/382-3000

. Th e toll-fre e telephon e numbe r o f th e Nationa l Respons e Cente r i s 1-800/424

- 8802 ; i n Washington , DC , 1-202/426

- 2675

. SUPPLEMENTAR Y INFORMATION : Th e Comprehensiv e Environmental Response , Compensation , an dLiabilit y Ac t o f 1980 (CERCLA) , a s amended , establishe s broa dFedera l authority t o respon dt o release s o r

threat s o f release s o f hazardou s substances , pollutants , an dcontaminants

. I n orde r t o aler t Federa l official s o

f potentiall y dangerou s release s o

f hazardou s substances , sectio n 103 o

f CERCL A require s an y perso n i n charg e o f avesse l o r facilit y t o immediatel y notif

y th e Nationa l Respons e Cente r whe n ther e ha s bee n areleas e o

f ahazardou s substanc e fro

mavessel or

facilit y i n a n amoun t equa l t o or

greate r tha n th e "reportabl e quantity " (RQ ) fo r tha t substance

. RQ s ar e establishe dunde r CERCL A sectio n 10

2 an dar e publishe d i n 4 0 CF RPart 302

. Unde r

sectio n 10

7 of CERCLA, responsibl e partie s ar e liabl e fo r th e cost s incurre di n respondin g t o release s o f hazardou s substances , regardles s of

whethe r th e amoun t release dequal s o r

exceed s a n RQ

. CERCL A sectio n 103(a

) exempt s "federall y permitte dreleases " fromth e reportin g requirement s fo r release s o

f hazardou s substances

. Similarly , sectio n 107(j ) exempt s federall y permitte d release s fro

mCERCL A liability

. I n addition , sectio n 304(a)(2)(A) o f th e Emergenc y Plannin g an dCommunit y Right-to-Kno w Ac t

o f 198 6 (als o know n a s Titl e II I o f th e Superfun d Amendment s an dReauthorizatio n Ac t o f 1986 ) exempt s federall y permitte d release s fro

mStat e an dloca l emergenc y releas e notificatio n requirements

. Sectio n 101(10

) o f CERCL A define s th e term"federall y permitte drelease " b y specificall y enumeratin g certai n release s subjec t

t o permit s o r authorization s unde r

othe r Federa l o r Stat e environmenta l laws

. EP A discusse dan dsolicite dcomment s o n possibl e interpretation s o f th e CERCL

A sectio n 101(10

) federall y permitte d releas e exemption s i n th e preambl e t o a propose drul e publishe do n Ma y 25,198 3 (4 8 F R23552)

. O n Jul

y 19,198 8 (5 3 F

R 27268) , EP A propose darul e definin g th e scop e o f thes e exemptions

. Today' s Notic e addresse s th e propose d exemptio n fo

r on e category o

f release : release s permitte dunde r

th e Clea n Ai r Ac t (CAA)

. Publi c commen t

i s requeste d o n thi s approac h fo

r determinin g whic h ai r release s shoul db e reporte dunde r sectio n 10 3 an dfo

r definin g th e scop e o

f th e exemptio n fo

r federall y permitte dai r release s unde r

CERCL A an dTitl e III

. CERCL A sectio n 101(10)(H

) define s "federall y permitte drelease " t o include : an y emissio n int o th e ai r subjec t t o apermi t o r contro l regulatio n unde r sectio n ill , sectio n 112 , title I par t C , title I par t D

. o r Stat e implementatio

n plan s submitte

di n accordance wit

h sectio n ll O o f th e Clea n Ai r Ac t (an dno t disapprove

db y th e Administrato

r o f th e Environmenta

l Protectio

n Agency) , includin

g an y schedul e o r waive r granted , promulgated, o

r approve d unde r thes e section s * * * In th e Jul y 19,198 8 proposa l (5 3 F

R 27273-27274) , EP

A discusse dthre e option s fo r definin g th e scop e o

f thi s exemption

. Unde r

th e first option , EP

A woul dinclud e unde r

th e exemptio n only thos e ai r release s for

whic h th e constituent

hazardou s substance s hav e bee n expressl y identifie do n th e record , reviewe ddurin g th e permi t o r rulemakin g proceeding , an dsubjec t t o a specifi c o r

categorica l limitatio n i n th e permi t or contro l regulation

. Optio n tw o woul dinclud e a s federall y permitte d thos e release s o

f specificall y name d criteri apollutant s a s wel l a s constituent s o

f th e pollutant , i.e. , particulat e matte r

(includin g it s constituents ) an dfou

r othe r CA A criteri apollutant s i n complianc e with a permi t o r regulatory standards

. Releases , o f constituent s o

f particulat e matte r

tha t ar e hazardou s substance s woul db e federall y permitte dwhethe r o r no t th e specifi c constituent

hazar dsubstance s - ar e identifie do n th e record. Unde r Optio n two , release s o

f volatil e organi c compound s (VOCs ) tha t

ar e regulate d unde r sectio n 10

9 o f th e CA A woul dno t b e federall y permitte dbecaus e the y ar e no t criteri apollutants , bu t

rathe r ar e precursor s o

f ozone
. Th e thir doptio n woul dad dt o release s define da s federall y permitte dunde r Optio n on e an y "routine " emissio n tha t th e permi t o r contro l regulatio n i s designe dt o address. 1
EP A i s toda y clarifyin g Optio n on e a s describe dabove

. Unde r

Optio n one , EP A woul dexemp t

a s federall y permitte dunde r

CERCL A sectio n 101(lO)(H ) only thos e ai r

release s i n complianc e with aCA

A permi t o r contro l regulatio n tha t

specificall y identifie s th e hazardou s substanc e an d i s specificall y designe dt o limi t or eliminat e th e emissio n o

f tha t hazardou s substance

. Thus , ahazardou s substanc e constituent

o f release dparticulat e matte r 2 or ahazardou s substanc e

1 Release s o f

particulat e matte rgenerall y woul d b e considere d federall y permitte d unde rOption s tw o an d three , a s thos e option s ar e describe d i n th e Jul y 19.198 8 NPRM ; release s o f VOC s woul d generall y b e considere d federall y permitte d onl y unde rOptio n three . * Particulat e matte ri s regulate d unde rth e Nationa l Ambien tAi rQualit y Standard s o f th e CA A i f i tha s adiamete ro f

1 0 micrometer s (know n a s "PM10" ) o rles s (4 0 CF R50.6(c))
. Fin e particle s o f CERCL A hazardou s substances , suc h a s lea d an d othe rmetals , ma y b e amon g th e constituent s release d i n particulat e matter .P. 3

Federa l Registe r

/ Vol

. 54 , No

. 13 1 /

Tuesday , Jul y 11 , 198 9 / Propose dRules

. 2930 7
constituen t

o f VOC s woul dno t

b e considere dfederall y permitte dunles s i t wa s specificall y addresse dan d controlle dunde r

aCA A permi t or regulation

. Identificatio n i n th e public , recor dwithou t

specifi c contro l i n a permi t or regulatio n woul db e
. insufficient

. Even i

f th e limitatio n or contro l i s designe dt o addres s particulate s or

VOC s a s aclass , thes e emission s woul dno t

b e federall y permitted

. Unde r Optio n on e a s clarifie di n today' s Supplemental Notice , reportin g woul db e require dfo

r release s o

f a n R Q or more o f aCERCL A hazardou s substance , unles s th e direc t health an d environmenta l effect s o

f tha t substanc e hav e bee n explicitl y considere di n developin g th e permi t

or contro l regulatio n fo

r th e release

. Specifi c consideratio n o

f th e healt h an d environmentaleffect s o

f th e hazardou s substanc e constituen t

o f particulat e matte r or VOC s mus t

b e clearl y manifeste di n th e permi t

or contro l regulation , eithe r

throug h aspecifi c limi t o n th e hazardou s substanc e constituen t o r astatemen t

tha t th e limitatio n o n th e criteri apollutan t

sufficiently control s th e toxi c effect s o

f th e hazardou s substanc e constituent

. Moreover , person s i n charg e o

f facilitie s o r

vessel s wit h release s o

f particulat e matte r

o r VOC s tha t

ar e no t federall y permitte d woul db e subjec t

t o th e liability provision s o

f CERCL A sectio n 107

. Ther e ar e severa l reason s fo r today' s > Supplemental Notice

. First , Optio n one , whic h woul dexclud e release s identified , reviewed , an dmad e par t of th e publi c recor dfo

r th e permit , wa s base di n par t

oh th e statutor y languag e concernin g th e exemptio n fo r release s permitte dunde r

th e Clean Wate r

Act

. (Se e CERCL

A sectio n 101(10)(B).),A s note db y severa l commenters , however , sectio n 101(10)(B ) doe s no t relat e t o ai r release s an dth e languag e i s difficul t t o appl y outsid e th e contex t

o f permit s issue dunde r

th e Clean Wate r

Act

. For instance , unde r

th e Clea n Wate r

Act , suc h "identified " discharge s mus t b e subjec t t o on-sit e treatmen t

i n orde r t o qualif y fo r th e federall y permitte d releas e exemption

. Second , th e Jul

y 19,198 8 preambl e discussio n o

f Optio n on e state dtha t

a releas e woul db e federall y permitte di f i t wa s identifie di n th e permittin g record ; thi s positio n wa s inconsisten t wit h th e propose dregulatory language

. Th e intent o f th e regulatory languag e i n th e Jul y 19,198 8 propose drul e an dtoday's , clarificatio n o

f Optio n on e i s t o exemp t onl y thos e emission s whic h th e permi t o r contro l i s specificall y designe dt o limi t or eliminate

. Thus , Optio n on e woul dnot , contrar y t o th e expectation s o f some commenters , includ e release s o f constituent

hazardou s substance s i n particulat e matte r

unles s thos e constituent s ar e i n complianc e with a
. specifi c emissio n limit

. Third , a s discusse dabove , th e exemptio n fo

r federall y permitte d release s applie s t o liability unde r CERCL A sectio n 10

7 a s wel l a s emergenc y releas e notificatio n unde r sectio n 103 of

CERCL A an dsectio n 30

4 o f Titl e III

. Althoug h th e impac t o f th e rul e o n liability wa s state di n th e preambl e an di s asignificant facto r i n th e Agency' s decisio n concernin g th e breadt h o f th e exclusions , virtuall y al l commenter s o n th e Jury;19,198 8 NPR M addresse donl y th e impac t of th e option s o n thei r reportin g responsibilities

. Commenter s di dno t

addres s th e larg e potentia l impac t

o f th e option s o n liability o f responsibl e partie s fo

r CERCL A cleanups

. Therefore , thi s
. . Supplementa l Notic e i s intende dt o highlight th e fac t tha t th e "definitio n o

f "federall y permitte drelease " affect s both notificatio n an dliability unde r CERCLA, an dspecificall y solici t comment s o n th e impact s o n both notificatio n an dliability unde r CERCL A o f th e scop e o

f th e federall y permitte d releas e exemption s an dtoday' s clarificatio n o

f Optio n one
. A s state di n th e July 19,198 8 proposal , th e Agenc y i s considerin g Optio n on e becaus e VOC s ar e regulate dbase do n thei r contributio n t o ozone , no t o n th e direc t healt h effect s associate dwith ambien t concentration s o

f tota l VOC s o r VO C constituents

. Optio n on e woul d ensur e tha t

individua l VOC s ar e no t considere dfederall y permitte dunles s th e health effect s o

f thos e VOC s wer e considere di n th e permi t

o r regulatio n developmen t

process
. Similarly , EP

A i s awar e o f certai n particulat e matte r emission s tha t

contai n larg e amount s o

f hazardou s substance s (e.g. , lead) , bu t fo r which , th e particulat e matte r emissio n limi t wa s establishe dwithou t

regar dt o th e amoun t

or toxicity o f th e constituent hazardou s substances

. Some o f thes e emission s ca n result , an dhav e resulted , i n widesprea dsoi l contaminatio n i n th e are ao f th e facility

. EP

A solicit s comment s o n whethe r

suc h contamination , eve n thoug h i t may hav e resulte dfro

mrelease s i n complianc e with applicabl e categorica l control s fo r particulat e matte r

unde r th e CA A (whic h ar e riot

base do n th e toxicity o

f th e constituent

hazardou s substances) , shoul db e exemp t

fro mCERCL A notificatio n an dliability provisions

. Date : Jun e 28,1989 Jonatha n Z

. Cannon,

. Actin g Assistan t Administrator

. [F RDoc

. 89-1621 1 File

d7-10-89 ; 8:4

5 am ]
BILLIN G COD E 6560-50-* !