95-22954. Hazardous Air Pollutant List; Proposed Modification  

  • [Federal Register Volume 60, Number 180 (Monday, September 18, 1995)]
    [Proposed Rules]
    [Pages 48081-48085]
    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 95-22954]
    
    
    
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    ENVIRONMENTAL PROTECTION AGENCY
    
    40 CFR Part 63
    
    [FRL-5296-2]
    RIN 2060-AF33
    
    
    Hazardous Air Pollutant List; Proposed Modification
    
    AGENCY: Environmental Protection Agency (EPA).
    
    ACTION: Notice of proposed rulemaking.
    
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    SUMMARY: The proposed rule, upon promulgation, will amend the Clean Air 
    Act (Act) list of hazardous air pollutants (section 112(b)(1), by 
    removing the compound caprolactam (CAS No. 105-60-2). This action is 
    being taken in response to a petition to delete the substance 
    caprolactam which was filed by AlliedSignal, Inc., BASF Corporation, 
    and DSM Chemicals North America under section 112(b)(3) of the Act. The 
    EPA is granting the petition by issuance of this proposed rule. The 
    decision to grant the petition is based on the Agency's examination of 
    the available information concerning the potential hazards of and 
    projected exposures to caprolactam. Based on this information, EPA has 
    made an initial determination that there are adequate data on the 
    health and environmental effects of caprolactam to determine that 
    emissions, ambient concentrations, bioacccumulation, or deposition of 
    the compound are not reasonably anticipated to cause adverse human 
    health or environmental effects. This determination also takes into 
    consideration the likelihood of adverse effects in light of the very 
    limited potential for ambient inhalation exposure.
    
    DATES: Written comments must be received on or before November 2, 1995. 
    The EPA will hold a public hearing if EPA receives a written request 
    for such a hearing on or before October 18, 1995. If a hearing is 
    requested in a timely manner, EPA will keep the record open for thirty 
    days after such hearing to receive rebuttal or supplementary 
    information.
    
    ADDRESSES: Submit written comments (duplicate copies preferred) to: 
    Central Docket Section (A-130), Environmental Protection Agency, 
    Attention: Docket No. A-94-33, 401 M St. SW., Washington, D.C. 20460. 
    The docket includes a copy of the original petition, comments submitted 
    concerning that petition, and additional materials supporting the 
    proposed rule. The docket may be inspected between 8:00 a.m. and 4:30 
    p.m. on weekdays at EPA's Central Docket Section, West Tower Lobby, 
    Gallery 1, Waterside Mall, 401 M St., SW, Washington, D.C. 20460. A 
    reasonable fee may be charged for copying.
    
    FOR FURTHER INFORMATION CONTACT: Dr. Nancy B. Pate, Office of Air 
    Quality Planning and Standards, (MD-12), U.S. EPA, Research Triangle 
    Park, NC 27711, telephone (919) 541-5347.
    
    SUPPLEMENTARY INFORMATION:
    
    Table of Contents
    
    I. Background
    II. Criteria for Delisting
    III. Summary of the Petition
    IV. EPA Analysis of Petition
        A. Hazard Evaluation
        B. Exposure Evaluation
        C. Human Risk Determination
        D. Environmental Effects
        V. Proposal to Delete
        VI. Interim Relief
        VII. Miscellaneous
    A. Executive Order 12866
        B. Regulatory Flexibility Analysis
        C. Unfunded Mandates
    
    I. Background
    
        Section 112 of the Act contains a mandate for EPA to evaluate and 
    control emissions of hazardous air pollutants. Section 112(b)(1) 
    includes an initial list of hazardous air pollutants that is composed 
    of specific chemical compounds and compound classes to be used to 
    identify source categories for which the EPA will promulgate emissions 
    standards. The listed categories are subject to emission standards 
    subsequently developed under section 112. The EPA must periodically 
    review the list of hazardous air pollutants and, where appropriate, 
    revise this list by rule. In addition, any person may petition EPA 
    under section 112(b)(3) to modify the list by adding or deleting one or 
    more substances. A petitioner seeking to delete a substance must 
    demonstrate that there are adequate data on the health and 
    environmental effects of the substance to determine that emissions, 
    ambient concentrations, bioaccumulation, or deposition of the substance 
    may not reasonably be anticipated to cause any adverse effects to human 
    health or the environment. To sustain this burden, a petitioner must 
    provide a detailed evaluation of the available data concerning the 
    substance's potential adverse health and environmental effects, and 
    estimate the potential exposures through inhalation or other routes 
    resulting from emissions of the substance.
        On July 19, 1993, EPA received a petition from AlliedSignal, Inc., 
    BASF Corporation, and DSM Chemicals North America, Inc. 
    (``petitioners''), to delete caprolactam (CAS No. 105-60-2) from the 
    hazardous air pollutant list in section 112(b)(1), 42 U.S.C., section 
    7412(b)(1). Following receipt of the petition, EPA conducted a 
    preliminary evaluation to determine whether the petition was complete 
    according to Agency criteria. To be deemed complete, a petition must 
    consider all available health and environmental 
    
    [[Page 48082]]
    effects data. A petition must also provide comprehensive emissions 
    data, including current peak and annual average emissions for each 
    source, and must estimate the resultant exposures of people living in 
    the vicinity of the source. In addition, a petition must address the 
    environmental impacts associated with emissions to the ambient air and 
    impacts associated with the subsequent cross-media transport of those 
    emissions. The EPA found the petition to delete caprolactam to be 
    complete and published a notice of receipt and request for comments in 
    the Federal Register on August 26, 1993 (58 FR 45081).
        The EPA received ten submissions in response to the request for 
    comments concerning the caprolactam petition. Eight of these 
    submissions related to an AlliedSignal facility that emits caprolactam 
    which is located in Irmo, South Carolina. A number of Irmo residents 
    reported health problems that they believed were associated with 
    caprolactam emissions from this plant. The EPA subsequently met with a 
    local citizens' group, representatives of AlliedSignal, and the South 
    Carolina Department of Health and Environmental Control to discuss the 
    citizens' concerns regarding caprolactam emissions from the facility, 
    and to explore mechanisms which could lead to prompt installation of 
    additional controls of such emissions.
        On March 13, 1995, EPA executed two detailed agreements with 
    AlliedSignal concerning the Irmo manufacturing facility and another 
    facility located in Chesterfield, Virginia, copies of which are 
    included in the public docket for this rulemaking. AlliedSignal agreed 
    that, if caprolactam is delisted pursuant to this proposal, 
    AlliedSignal will install emissions controls which EPA believes are 
    equivalent to the controls which would have been required had EPA 
    issued a standard to control these sources under section 112. The 
    agreed emissions controls will be incorporated in federally enforceable 
    operating permits for the affected facilities, and will be in place 
    years earlier than controls would have otherwise been required. In 
    addition, AlliedSignal has agreed to establish a citizen advisory panel 
    concerning the Irmo facility in order to improve communications with 
    the community and to assure that citizens have an ongoing role in 
    implementation of the agreed emission reductions.
    
    II. Criteria for Delisting
    
        Section 112(b)(2) of the Act requires EPA to make periodic 
    revisions to the initial list of hazardous air pollutants set forth in 
    section 112(b)(1) and outlines criteria to be applied in deciding 
    whether to add or delete particular substances. Section 112(b)(2) 
    identifies pollutants that should be listed as:
    
        * * * pollutants which present, or may present, through 
    inhalation or other routes of exposure, a threat of adverse human 
    health effects (including, but not limited to, substances which are 
    known to be, or may reasonably be anticipated to be, carcinogenic, 
    mutagenic, teratogenic, neurotoxic, which cause reproductive 
    dysfunction, or which are acutely or chronically toxic) or adverse 
    environmental effects whether through ambient concentrations, 
    bioaccumulation, deposition, or otherwise * * *
    
        To assist EPA in making judgments about whether a pollutant causes 
    an adverse environmental effect, section 112(a)(7) defines an ``adverse 
    environmental effect'' as:
    
        * * * any significant and widespread adverse effect, which may 
    reasonably be anticipated, to wildlife, aquatic life, or other 
    natural resources, including adverse impacts on populations of 
    endangered or threatened species or significant degradation of 
    environmental quality over broad areas.
    
        Section 112(b)(3) establishes general requirements for petitioning 
    EPA to modify the hazardous air pollutant list by adding or deleting a 
    substance. Although the Administrator may add or delete a substance on 
    his own initiative, the burden is on a petitioner to include sufficient 
    information to support the requested addition or deletion under the 
    substantive criteria set forth in sections 112(b)(3) (B) and (C). The 
    Administrator must either grant or deny a petition within 18 months of 
    receipt. If the Administrator decides to grant a petition, the Agency 
    publishes a written explanation of the Administrator's decision, along 
    with a proposed rule to add or delete the substance. If the 
    Administrator decides to deny the petition, the Agency publishes a 
    written explanation of the basis for denial. A decision to deny a 
    petition is final Agency action subject to review in the D.C. Circuit 
    Court of Appeals under Section 307(b) of the Act.
        To promulgate a final rule deleting a substance from the hazardous 
    air pollutant list, section 112(b)(3)(C) provides that the 
    Administrator must determine that:
    
        * * * there is adequate data on the health and environmental 
    effects of the substance to determine that emissions, ambient 
    concentrations, bioaccumulation, or deposition of the substance may 
    not reasonably be anticipated to cause any adverse effects to the 
    human health or adverse environmental effects.
    
        The EPA will grant a petition to delete a substance, and publish a 
    proposed rule to delete that substance, if it makes an initial 
    determination that this criterion has been met. After affording an 
    opportunity for comment and for a hearing, EPA will make a final 
    determination whether the criterion has been met.
        The EPA does not interpret section 112(b)(3)(C) to require absolute 
    certainty that a pollutant will not cause adverse effects on human 
    health or the environment before it may be deleted from the list. The 
    use of the terms ``adequate'' and ``reasonably'' indicate that the 
    Agency must weigh the potential uncertainties and their likely 
    significance. Uncertainties concerning the risk of adverse health or 
    environmental effects may be mitigated if EPA can determine that 
    projected exposures are sufficiently low to provide reasonable 
    assurance that such adverse effects will not occur. Similarly, 
    uncertainties concerning the magnitude of projected exposures may be 
    mitigated if EPA can determine that the levels which might cause 
    adverse health or environmental effects are sufficiently high to 
    provide reasonable assurance that exposures will not reach harmful 
    levels. However, the burden remains on a petitioner to resolve any 
    critical uncertainties associated with missing information. The EPA 
    will not grant a petition to delete a substance if there are major 
    uncertainties which need to be addressed before EPA would have 
    sufficient information to make the requisite determination.
    III. Summary of the Petition
    
        The petition to delete caprolactam stated that the petitioners 
    comprise 100 percent of the U.S. caprolactam producers and caprolactam 
    by-product ammonium sulfate manufacturers, 88 percent of the Nylon 6 
    fiber producers, 72 percent of the Nylon 6 plastic producers, and the 
    only major supplier of Nylon 6 films. The petition contained the 
    following information:
        (A) Identification and location of all facilities producing or 
    using caprolactam;
        (B) Estimated current and future air emissions of caprolactam, 
    atmospheric modeling and monitoring data supporting the estimation of 
    peak short-term and annual average ambient concentrations, estimates of 
    the number people potentially exposed to those concentrations, and 
    estimated deposition of caprolactam to the land and surface water;
        (C) Documentation of a literature search conducted within 6 months 
    prior to the petition filing, including identification of the data 
    bases searched, the search strategy, and printed results; 
    
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        (D) Printed copies of all human, animal, in vitro, or other 
    toxicity studies cited in the literature search. In addition, the 
    petition contained unpublished occupational health data and studies 
    collected at the AlliedSignal facility in Hopewell, Virginia;
        (E) Printed copies of environmental effect data characterizing the 
    fate of caprolactam when it is released into the atmosphere. This 
    information includes atmospheric residence time, solubility, phase 
    distribution, vapor pressure, octanol/water partition coefficient, 
    particle size, adsorption coefficients, information on atmospheric 
    transformations, potential degradation or transformation products, and 
    bioaccumulation potential; and
        (F) A list of all support documents in the petition.
    
    IV. EPA Analysis of Petition
    
    A. Hazard Evaluation
    
        The EPA reviewed the discussion of health effects in the petition 
    and determined that it comprehensively describes the toxicologic and 
    epidemiologic data concerning caprolactam which is currently available. 
    There is extensive toxicologic information concerning caprolactam, but 
    most of the available studies involve ingestion rather than inhalation 
    of the substance.
        The toxicologic information on ingestion of caprolactam includes 
    long-term bioassays in mice and rats, a three generation reproduction 
    study in rats, subchronic studies in rats, developmental toxicity 
    studies in rats and rabbits, and even administration to humans. In 
    general, the oral studies indicate that caprolactam has low toxicity. 
    In the available studies, caprolactam was not found to be carcinogenic 
    or mutagenic. Caprolactam caused neurotoxicity in some acute studies at 
    high doses. The most sensitive endpoint in the available oral studies 
    was reduced mean body weight of offspring in a reproductive study in 
    rats (no observed adverse effect level of 50 mg/kg/day).
        The no-observed adverse effect level (NOAEL) for reduced mean body 
    weight of offspring in the rat study was used by EPA to derive its 
    current reference dose (RFD) for caprolactam of 0.5 mg/kg/day. The RFD 
    is defined as an estimate (with uncertainty spanning perhaps an order 
    of magnitude) of the daily exposure to the human population (including 
    sensitive subpopulations) that is likely to be without deleterious 
    effects during a life time. The EPA has assigned a ``high'' confidence 
    level to the RFD for oral exposure to caprolactam.
        The available animal data on inhalation of caprolactam consist of 
    two acute toxicity studies, one in guinea pigs and the other in rats. 
    Caprolactam is a highly water soluble solid with a very low vapor 
    pressure at ambient temperatures. These physical properties make it 
    difficult to generate stable atmospheres of caprolactam for use in 
    inhalation toxicity studies and to exclude secondary exposure to 
    caprolactam by other routes.
        Given the present lack of suitable inhalation data, EPA concluded 
    that derivation of an inhalation reference concentration (RfC) for 
    caprolactam was infeasible. The petitioners sought to derive an 
    equivalent human inhalation dose from the oral RFD for caprolactam by 
    adjusting for human body weight and inhalation rate. The similarity 
    between the LC50 by the inhalation route and the LD50 by the 
    oral route in rats does not suggest any important differences in 
    systemic effects from acute exposures between the two routes. However, 
    it is inappropriate to utilize an inhalation dose derived from the oral 
    RFD for all potential adverse effects because caprolactam is a 
    respiratory irritant. Portal of entry effects preclude use of route-to-
    route extrapolation for such a purpose. Moreover, any comparison 
    between the oral and inhalation routes must consider the possibility of 
    pharmacokinetic and metabolic differences between the routes.
        As noted above, the most sensitive endpoint in the available oral 
    studies was reduced mean body weight of offspring in a reproductive 
    toxicity study in rats (no observed adverse effect level of 50 mg/kg/
    day). The EPA is reluctant to make quantitative comparisons between the 
    oral and inhalation routes and EPA has been unable to validate any 
    general procedures for extrapolation between these routes. Although EPA 
    considers it questionable to evaluate inhalation risks for many chronic 
    effects based on oral data, EPA sometimes evaluates the risk of 
    developmental/reproductive effects by the inhalation route based on an 
    appropriate oral study. In this instance, the oral NOAEL of 50 mg/kg/
    day would be equivalent to approximately 175 mg/m\3\, after adjusting 
    for a human body weight of 70 kg, 100 percent absorption, and a human 
    inhalation rate of 20 m\3\/day.
        Limited occupational studies of workers with chronic caprolactam 
    exposure have not found any measurable change in pulmonary function 
    compared to matched controls. Chronic workplace exposures to 
    caprolactam in these studies ranged as high as 9,900 g/m\3\ 
    (9.9 mg/m\3\). However, respiratory tract irritation from caprolactam 
    vapor has been recorded to occur in workers at 46 mg/m\3\. The 
    recommended worker exposure limit for caprolactam vapor, established to 
    reduce the potential for irritation, is 23 mg/m\3\ (ACGIH TWA). Both 
    concentrations are far below the figure of 175 mg/m\3\ extrapolated 
    above.
    
    B. Exposure Evaluation
    
        The primary use of caprolactam is as the monomer for manufacture of 
    Nylon 6 fiber, resin, and film. Approximately 83 percent of 
    domestically-manufactured caprolactam is used in the production of 
    Nylon 6 fibers, and virtually all of the rest is used to produce Nylon 
    6 resins and films.
        The EPA believes that inhalation is the only important route of 
    nonoccupational exposure resulting from caprolactam emissions. Dermal 
    absorption is likely to be insignificant compared to inhalation. The 
    rapid biodegradation of caprolactam in water as well as the ease of 
    treatability in sewage treatment systems indicates that humans are 
    unlikely to be exposed to significant amounts of caprolactam in 
    drinking water. In addition, caprolactam emitted to the air would be 
    unlikely to concentrate in food sources.
        The EPA source category list identifies three categories of sources 
    which emit caprolactam: caprolactam manufacturers, ammonium sulfate 
    manufacturers, and Nylon 6 manufacturers. In their petition, the 
    petitioners evaluated caprolactam releases by each of these types of 
    facilities, as well as two additional categories of facilities: Nylon 6 
    film manufacturers and facilities that heat set Nylon 6 fiber as part 
    of the manufacture of other products.
        The highest annual emissions of caprolactam by an individual 
    facility reported in the petition were at the AlliedSignal Nylon 6 
    manufacturing plants in Chesterfield, Virginia (233.5 tons/year), and 
    Irmo, South Carolina (164.4 tons/year). As noted above, AlliedSignal 
    has committed to install emission controls at each of these facilities 
    which will be fully operational well before any controls would be 
    required based on any standard promulgated under section 112. These 
    commitments will be implemented through legally enforceable permit 
    terms and are expected to reduce aggregate caprolactam emissions 
    (including uncontrolled fugitive emissions) at these facilities by more 
    than one half, to approximately 111 tons/year and 79 tons/year.
        The petitioners presented modeled maximum exposure levels for every 
    
    
    [[Page 48084]]
    major source of caprolactam (sources emitting more than 10 tons 
    annually). The highest estimated caprolactam exposures were for 
    AlliedSignal's Chesterfield manufacturing facility, at which the 
    petitioners estimated that the maximum 1-hour concentration would be 
    1107.8 g/m\3\ and the maximum annual concentration would be 
    44.7 g/m\3\. After controls are installed at the Chesterfield 
    and Irmo facilities, the projected maximum 1-hour concentrations will 
    be 543 g/m\3\ and 482 g/m\3\ respectively, and the 
    projected maximum annual concentrations will be 19 g/m\3\ and 
    21 g/m\3\.
        Once the agreed emission controls are installed at the AlliedSignal 
    facilities, the highest modeled caprolactam concentrations will be at 
    certain of the facilities that heat set Nylon 6 fiber. However, the 
    annual caprolactam emissions at these facilities will still be less 
    than the emissions at the AlliedSignal manufacturing facilities, even 
    after controls have been installed at the AlliedSignal facilities. The 
    higher modeled concentrations at facilities that heat set Nylon 6 fiber 
    reflect the more conservative modeling techniques used for these 
    facilities (the petitioners used ISCST modeling for their own 
    manufacturing facilities and Tier II screen modeling for other 
    sources).
    C. Human Risk Determination
    
        The maximum modeled concentrations for caprolactam of approximately 
    1 mg/m \3\ for 1-hour, 0.25 mg/m \3\ for 24-hour, and 0.05 mg/m \3\ for 
    annual are well below the lowest documented nose and throat irritation 
    level of 46 mg/m \3\. Moreover, the emission controls which 
    AlliedSignal has agreed to install at its manufacturing facilities will 
    significantly reduce the prospect that any person will be exposed to 
    caprolactam concentrations as great as the maximum estimates presented 
    in the petition.
        As noted above, some citizens living near the AlliedSignal facility 
    in Irmo, South Carolina, report that they have experienced adverse 
    health effects in the past which they believe are a result of 
    caprolactam emissions from that facility. The EPA has discussed these 
    concerns at length with local citizens, and has made considerable 
    efforts to assure that prompt and enforceable reductions in caprolactam 
    emissions are achieved at the Irmo facility. However, EPA cannot 
    conclude that there is any relation between caprolactam emissions and 
    the reported health effects based on the information currently 
    available. In 1993, in response to the concerns of citizens living near 
    the Irmo facility, the Agency for Toxic Substance and Disease Registry 
    (ATSDR) conducted a preliminary screening study and recommended that a 
    full study not be conducted since ``the concentrations of hazardous 
    substances found in the ambient air sampling were not of health concern 
    and were not plausibly related to the release of hazardous 
    substances.'' While the ATSDR investigators acknowledged that hazardous 
    substances were present in air releases from the facility, they also 
    stated that the reported symptoms could be associated with naturally 
    occurring allergens in the local environment.
        The available oral toxicology data do not suggest that caprolactam 
    is appreciably toxic in humans or test animals. The emission controls 
    which AlliedSignal has agreed to install at its manufacturing plants 
    should further reduce the prospect for actual exposures as great as the 
    maximum exposures estimated in the petition. Even though extrapolation 
    of oral data to the inhalation route of exposure is suspect and 
    uncertainties remain about portal of entry effects from long-term 
    exposure, the available information as a whole indicates that adverse 
    health effects would not be reasonably anticipated in the human 
    populations located near facilities emitting caprolactam. This 
    conclusion is reinforced by consideration of the likelihood of adverse 
    effects given the very limited potential for ambient inhalation 
    exposure. Based on this information, EPA has made an initial 
    determination that there are adequate data on the health and 
    environmental effects of caprolactam to determine that emissions, 
    ambient concentrations, bioacccumulation, or deposition of caprolactam 
    are not reasonably anticipated to cause adverse human health effects.
        As explained above, the physical properties of caprolactam tend to 
    make additional inhalation testing difficult to conduct and to 
    interpret. As a result of discussions with EPA, the petitioners 
    conducted an inhalation feasibility study and have now agreed to 
    conduct a 90-day subchronic inhalation study in rats. The variations in 
    exposure concentrations at the targeted exposure levels in the 90 day 
    subchronic inhalation study will likely be high. In addition, the 
    inhalation concentrations generated may not reach the levels which 
    would cause any of the potential systemic effects predicted by studies 
    using the oral route but may achieve concentrations that would produce 
    portal of entry effects.
        The EPA anticipates that the results from the 90-day study which 
    the petitioners have agreed to conduct will not materially alter the 
    current EPA assessment. Moreover, EPA does not intend to defer final 
    action in this rulemaking pending submission and analysis of the 
    results from this inhalation study. If the results of this study 
    indicate that there are portal of entry effects or systemic effects 
    from inhalation exposure at levels significantly below those suggested 
    by the Agency's present assessment, EPA will review any final action 
    taken in this rulemaking in light of such data.
    D. Environmental Effects
    
        In order to delete a substance from the hazardous air pollutant 
    list, EPA must also evaluate potential environmental effects associated 
    with emissions of the substance. In the case of caprolactam, the 
    information in the petition demonstrates that caprolactam will be 
    rapidly degraded, and is not likely to bioaccumulate, in aquatic 
    ecosystems. Caprolactam also has low toxicity to fish, invertebrates, 
    and higher terrestrial plants. Based on this information, EPA has made 
    an initial determination that there are adequate data on the health and 
    environmental effects of caprolactam to determine that emissions, 
    ambient concentrations, bioacccumulation, or deposition of caprolactam 
    are not reasonably anticipated to cause environmental effects.
    
    V. Proposal to Delete
    
        The EPA hereby proposes to modify the Act list of hazardous air 
    pollutants (section 112(b)(1), 42 U.S.C. 7412(b)(1)) by deleting the 
    compound caprolactam (CAS No. 105-60-2).
    
    VI. Interim Relief
    
        Although EPA has proposed to modify the hazardous air pollutant 
    list by deleting caprolactam, it will remain on the list for most 
    purposes during the pendency of the rulemaking initiated by this 
    notice. However, if caprolactam remains on the hazardous air pollutant 
    list for all purposes during the pendency of the rulemaking to delist 
    caprolactam, certain facilities which would not otherwise be required 
    to obtain operating permits under title V of the Act will be required 
    to prepare and submit applications for operating permits. The EPA has 
    determined that retention, during the rulemaking to delist caprolactam, 
    of permit application requirements which will no longer exist after the 
    delisting process has been completed would result in unnecessary 
    private and public expenditures on preparation, submission, and 
    processing of such 
    
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    applications, and would yield no environmental benefits.
        Because retention of the listing of caprolactam for purposes of 
    determining the applicability of title V operating permit requirements 
    during the rulemaking to delist would be burdensome and costly, and 
    would not effectuate the objectives of the Act, and because it would be 
    impracticable and contrary to the public interest to defer 
    administrative relief until after the rulemaking has been completed, 
    EPA has determined that there is good cause to immediately suspend the 
    listing of caprolactam for this limited purpose. Accordingly, EPA is 
    today suspending the listing of caprolactam, for the duration of the 
    rulemaking to delist caprolactam, for purposes of determining the 
    applicability of title V permitting requirements. This action provides 
    sensible regulatory relief for those facilities which manufacture or 
    utilize Nylon 6 products, and who will not otherwise be subject to 
    title V requirements once the delisting of caprolactam has been 
    completed. Any facilities which emit caprolactam but which are 
    otherwise subject to title V requirements are not affected by this 
    action, and must satisfy the applicable permitting requirements.
        While the proposed rule to delist caprolactam is pending, State 
    permitting authorities should make any revisions or adjustments in 
    their title V operating programs necessary to implement today's action 
    suspending caprolactam from the hazardous air pollutant list for 
    purposes of determining the applicability of permitting requirements. 
    In the event that the Agency decides at the conclusion of the 
    rulemaking not to delete caprolactam from the list, the Agency will 
    work with affected facilities and State permitting authorities to 
    assure that any title V requirements resulting solely from that 
    decision are implemented in a fair and orderly manner.
    
    VII. Miscellaneous
    
    A. Executive Order 12866
    
        Under Executive Order 12866 (58 FR 57735, October 4, 1993), the 
    Agency must determine whether this regulation, if promulgated, is 
    ``significant'' and therefore subject to review by the Office of 
    Management and Budget under the Executive Order. The Order defines 
    ``significant regulatory action'' as one that is likely to result in a 
    rule that may:
        1. Have an annual effect on the economy of $100 million or more or 
    adversely affect in a material way the economy, a sector of the 
    economy, productivity, competition, jobs, the environment, public 
    health or safety, or State, local or tribal governments or communities;
        2. Create a serious inconsistency or otherwise interfere with an 
    action taken or planned by another agency;
        3. Materially alter the budgetary impact of entitlements, grants, 
    user fees, or loan programs or the rights and obligations of recipients 
    thereof; or
        4. Raise novel legal or policy issues arising out of legal 
    mandates, the President's priorities, or the principles set forth in 
    the Executive Order.
        This action will not result in an annual effect on the economy of 
    $100 million or another adverse economic impact, does not create a 
    serious inconsistency or interfere with another agency's action, and 
    does not materially alter the budgetary impacts of entitlements, 
    grants, user fees, etc. However, since this proposal reflects the 
    Agency's first decision to grant a petition to modify the hazardous air 
    pollutant list, EPA has concluded that it might be construed as raising 
    novel legal or policy issues and has therefore submitted the proposal 
    for OMB review under Executive Order 12866.
    
    B. Regulatory Flexibility Analysis
    
        Section 603 of the Regulatory Flexibility Act, 5 U.S.C. 603, 
    requires EPA to prepare and make available for comment an ``initial 
    regulatory flexibility analysis'' in connection with any rulemaking for 
    which there is a statutory requirement that a general notice of 
    proposed rulemaking be published. The ``initial regulatory flexibility 
    analysis'' describes the effect of the proposed rule on small business 
    entities. However, section 605(b) of the Act provides that an analysis 
    not be required when the head of an agency certifies that the rule will 
    not, if promulgated, have a significant impact on a substantial number 
    of small entities.
        Because adoption of this proposal would reduce regulatory burdens 
    which would otherwise result from retention of caprolactam on the 
    hazardous air pollutant list, EPA believes that this rule will have no 
    adverse effect on small businesses. For the preceding reason, I certify 
    that this rule will not have a significant economic impact on a 
    substantial number of small entities.
    
    C. Unfunded Mandates
    
        Under section 202 of the Unfunded Mandates Reform Act of 1995, EPA 
    must prepare a written statement to accompany any rules that have 
    ``Federal mandates'' that may result in the expenditure by the private 
    sector of $100 million or more in any one year. Under Section 205, EPA 
    must select the most cost-effective and least burdensome alternative 
    that achieves the objective of such a rule and that is consistent with 
    statutory requirements. Section 203 requires EPA to establish a plan 
    for informing and advising small governments that may be significantly 
    and uniquely affected by the rule.
        The Unfunded Mandates Act defines a ``Federal private sector 
    mandate'' for regulatory purposes as one that, among other things, 
    ``would impose an enforceable duty upon the private sector.'' This 
    proposal to modify the hazardous air pollutant list to delete 
    caprolactam is deregulatory in nature and does not impose any 
    enforceable duties upon the private sector. Therefore, this rulemaking 
    is not a ``Federal private sector mandate'' and is not subject to the 
    requirements of section 202 or section 205 of the Unfunded Mandates 
    Act. As to section 203, EPA finds that small governments will not be 
    significantly and uniquely affected by this rulemaking.
    
        Dated: September 8, 1995.
    Carol M. Browner,
    Administrator.
    [FR Doc. 95-22954 Filed 9-15-95; 8:45 am]
    BILLING CODE 6560-50-P
    
    

Document Information

Published:
09/18/1995
Department:
Environmental Protection Agency
Entry Type:
Proposed Rule
Action:
Notice of proposed rulemaking.
Document Number:
95-22954
Dates:
Written comments must be received on or before November 2, 1995. The EPA will hold a public hearing if EPA receives a written request for such a hearing on or before October 18, 1995. If a hearing is requested in a timely manner, EPA will keep the record open for thirty days after such hearing to receive rebuttal or supplementary information.
Pages:
48081-48085 (5 pages)
Docket Numbers:
FRL-5296-2
RINs:
2060-AF33: Decision on the Petition To Remove Caprolactam From the List of Hazardous Air Pollutants
RIN Links:
https://www.federalregister.gov/regulations/2060-AF33/decision-on-the-petition-to-remove-caprolactam-from-the-list-of-hazardous-air-pollutants
PDF File:
95-22954.pdf
CFR: (1)
40 CFR 63