742098001
A Multimedia Strategy
for Priority Persistent, Bioaccumulative, and
toxic (PBT) Pollutants
Prepared By
The USEPA Persistent, Bioaccumulative and
Toxic Pollutants (PBT) Plenary Group
and
The USEPA Office Directors Multimedia and
Pollution Prevention Forum
November 16, 1998
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CONTRIBUTORS
The PBT Plenary Group is comprised of program and technical experts from seven EPA
Program Offices (i.e., the Office of Air and Radiation; the Office of Enforcement and
Compliance Assurance; the Office of International Activities; the Office of Prevention,
Pesticides and Toxic Substances; the Office of Research and Development; the Office of Solid
Waste and Emergency Response, and the Office of Water), the Great Lakes National Program
Office, and the Regions. OPPTS chairs the group. The mission of the Plenary Group is to
develop the PBT strategy and identify and resolve issues associated with strategy
implementation. '...".
The Office Directors' Multi-Media and Pollution Prevention (M2P2) Forum was
established by Deputy Administrator Fred Hansen in 1997 to examine a variety of multi-media
and pollution prevention issues. The PBT Strategy is a central focus of the M2P2 Forum. More
than 20 of EPA's program offices and regions are represented in the Forum. The Office of
Prevention, Pesticides and Toxic Substances (OPPTS) and the Office of Water currently co-chair
the Forum.
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., TABLE OF CONTENTS
Page
EXECUTIVE SUMMARY
" -. '.
AN AGENCY-WIDE MULTIMEDIA STRATEGY FOR PRIORITY
PERSISTENT, BIOACCUMULATIVE, AND TOXIC (PBT) POLLUTANTS
... .
I. PURPOSE .................... .....;. '',-
II. GOAL ...,...., ,..,.................
III. FOUNDATION AND GUIDING PRINCIPLES ......... 0
. . 2.
'- -.'".-, -.'=.'" . . - *
IV. APPROACH TO PBT RISK REDUCTIONS ......... o
'ปซ , ฃ
JActivities Underway or Planned for Near-Term Action'.'. ..". v . . . : . ...', 3
Strategy Elernents .. ; ......; ; ..." 6
..1. Develop and Implement National Action Plans ....... .". , .'.....,.. '''"' '.. Q
2. Screen and Select More Priority PBT Pollutants for Action '. ........... Q
3. Prevent the-Introduction of New PBT .Pollutants ..................'...- 9
4. Measure Progress by Linking Activities to Environmental Results . . . !' ; . . . '. .. . .10
V. MANAGING FOR SUCCESS . . . . ........................... 12
^Managing the Implementation of the Strategy ....-........;.. . . ... ..... 12
Establishing Linkages Among Current Program Efforts ....'...' 14
^Stakeholder Involvement" . ...... . .... . . . . . ...;..;........ {\ ^5
REFERENCES .;:....;,.' '''.'': - . 17
GLOSSAL :......., '............'.'/.'.'.'/.'.[]['.;;.;;;;;;;;;;;-.;;; \9
APPEND\X;;A -- GPRA Goals and Objectives supported by the PBT Strategy . ... . . . . Appendix A-l
APPENDIX B - Status of Developments on Bmational Toxics Strategy. Level 1 '
'Substances. . . ; . . ...>.;..... .'. . . ... ;/...;. . . .: Appendix B-1
ATTACHMENT 1. DRAFT MERCURY ACTION PLAN .................. Attachment t-1
Draft PBT Strategy
MI
November 16, ''1998 '
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EXECUTIVE SUMMARY
Purpose and Goal
. " ' *
The goal of this strategy is to further reduce risks to human health and the
environment from existing and future exposure to priority persistent, bioaccumulative, and
toxic (PBT) pollutants.
The U.S. Environmental Protection Agency (EPA) has developed this draft strategy to
overcome the remaining challenges in addressing priority PBT pollutants. These pollutants pose
risks because they are toxic, persist in ecosystems, and accumulate in fish and up the food chain.
The PBT challenges remaining stem from the pollutants' ability .to travel long distances, to
transfer rather easily among air, water, and land, and to linger for generations, making EPA's
traditional single-statute approaches less than the full solution to, reducing risks from PBTs. Due
tq a number of adverse health and ecological effects, linked to PBT pollutants ~ especially
mercury, PCBs, and dioxins -- it is key for EPA to aim for further reductions hi PBT risks. "The
fetus and child are especially vulnerable. EPA is committing, through this strategy, to create an
enduring cross-office system that will address the cross-media issues associated with priority
PBT pollutants.
Building on a Strong Foundation
This strategy reinforces and builds on existing EPA commitments related to priority PBTs,
such as the 1997 Canada- U.S. Binational Toxics Strategy (BNS), the North American
Agreement on Environmental Cooperation, and the recently released Clean Water Action Plan.
EPA is forging a new approach to reduce risks from and exposures to priority PBT pollutants
through increased coordination among EPA national and regional programs. This approach also
requires the significant involvement of stakeholders, including international;, state, local, and
tribal organizations, the regulated community, environmental groups, and private citizens.
Approach to PBT Reductions .
1. Develop and Implement National Action Plans for Priority PBT Pollutants. EPAis
initially focusing action on the 12 BNS Level 1 substances: aldrih/dieldrin, benzo(a)pyrene,
chlordane, DDT, hexachlorobenzene, alkyl-lead, mercury and compounds, mirex,
octachlorostyrene, PCBs, dioxins and furans, and toxaphene. EPA is developing action
plans that will use the full range of its tools to prevent and reduce releases of these 12 (and
later other) PBTs. These tools include international, voluntary, regulatory, programmatic,
remedial, compliance monitoring and assistance, enforcement, research, and outreach tools.
EPA will analyze PBT pollutant sources and reduction options as bases for grouping
pollutants, activities, and sectors to maximize efficiencies in achieving reductions. EPA will
integrate and sequence actions within and across action plans, and will seek to leverage
these actions on international and industry-sector bases.
Draft PBT Strategy . iv . November 16, 1998
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Activities ready for near-term action include:
V Conduct process-specific and pollution prevention (P2) projects un'der the mercury'
action plan, including regulatory actions to reduce mercury and voluntary reductions -
through potential partnerships with various industries (e.g., chloralkali industry,
hospitals using mercury-containing products'). ' -
* Focus enforcement and compliance assistance activities nn PRT^ analy^ng -.
compliance within PBT-related sectors for problems and opportunities.. Select
: industries/sectors, or-regulations that wouldbenefit from focused compliance
attention/assistance.. Target actions with high potential to reduce PBT releases.
,* Develop or revise" water quality criteria for mercury and other priority PRT^ and
revise methodology for mercury water quality criteria.
* Conduct research and analysis on PBTs."especially nn mPrri.ry^micgjon controi
approaches for coal-fired utility boilers, and on the transport, fate, arid risk
management of mercury. Develop P2 options for preventing mercury/dioxin risks
from industrial combustion.
.* EPA is actively engaged in international efforts hevond the RNS to reduce PBT risks.
including the recently negotiated Persistent Organic Pollutants (POPs) and Heavy
Metals protocols to the UN Economic'Commissiqri for Europe's Long Range
Transboundary Air Pollution Convention, the preparation for the upcoming
negotiation of a global POPs convention under UN Environmental Program auspices,
and the Regipnal Action Plans on DDT, chlordane, PCBs, and mercury developed
under auspices of the. North American Commission for Environmental Cooperation.
ซ - ' ^ _ . , '
2. Screen and Select More Priority PBT Pollutants for Action. Beyond the BNS Level 1
substances, EPA will select additional PBT pollutants for action. EPA will apply
selection criteria in consultation with a technical panel. Candidate chemicals will be ,
those highly scored .by EPA's Waste Minimization Prioritization Tool and other
chemicals of high-priority to EPA offices. EPA will seek internal and external comment
on the proposed selection methodology in 1999.
3. Prevent Introduction of New PB Ts., EPA is acting to prevent new PBT chemicals from
entering commerce by: (a) proposing criteria for: requiring testing/restrictions on new
PBT chemicals; (b) developing a rule to control attempts to re-introduce out-of-use PBT
chemicals into commerce; (c) developing incentives to reward the development of lower-
risk chemicals as alternatives to PBTs; and (d) documenting how PBT-related screening
criteria are taken into account for approval of new pesticides and re-registration of old
pesticides., ' ''_ ; ' ,
4. . Measure Progress. EPA is defining measurable objectives to assess progress.. EPA will
use direct .and indirect progress measures, including: (a) human health or environmental
. indicators (such as National Health and Nutritional Examination Surveys and a national
study of chemical residues in fish); (b) chemical release, waste .generation or use
indicators (such as enhancing the Toxics .Release Inventory and using other release
Draft PBT Strategy ' . . v . 'November 16, 1998
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reporting and monitoring mechanisms); and, (c) program activity measures (such as EPA
compliance/enforcement data).
Mercury -- An Action Plan Example
EPA's PBT Strategy is a living document that supports the development and
implementation of action plans on priority PBTs. Attached to the strategy is EPA's draft,
Mercury Action Plan. It illustrates an action plan that is national and even international in
scope, and describes the kinds of actions EPA may take to reduce risks posed by other priority
PBT pollutants. Each substance or group of substances will present its own set of action
opportunities.
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vi November 16, 1998
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A MULTIMEDIA STRATEGY FOR PRIORITY
PERSISTENT, BIOACCUMULATIVE, AND TOXIC (PBT) POLLUTANTS
I. PURPOSE--THE CASE FOR COORDINATION
A' key purpose of this strategy is to overcome the remaining challenges in addressing
priority persistent and bioaccumulati've toxic (PBT) pollutants. EPA has a long history of, -
: successful programs in. controlling PBT pollutants - pollutants that are toxic, persist in the
environment, and bioaccumuiate in food chains, and thus pose.'risks to human health and
ecosystems. The challenges remaining on PBT pollutants stem'from the fact that they transfer
rather easily'among air, water, and land, and span boundaries of programs, geography, and
generations, making single-statute approaches less than the full solution, to reducing these risks.
To achieve further reductions, a multi-media approach is necessary. Accordingly, EPA is
committing, through this strategy, to create an enduring cross-office system that will address the
cross-media issues associated with priority PBT pollutants,
Many single-medium offices have established a sequence of activities aimed at further
reducing PBT risks within their media. To better address the cross-media aspects of PBT
pollutants, however, EPA programs must integrate their work across media more thoroughly and
align their domestic and international activities more effectively. The intention of this strategy is
to make the whole of the Agency's efforts on PBT pollutants more than the sum of its parts.
EPA will coordinate its use of statutory authorities and resources to maximize public health and
environmental protection. Environmental results anticipated from implementing this strategy
will derive from stronger multi-media coordination among national and regional EPA programs,
and through the significant involvement of stakeholders.
(jroups outside EPA also-recognize the need for a cross-program, multi-media approach
to environmental problems like PBTs. Recommendations consistent with this strategy are in
three recent reports: (a) the 1998 Natural Resources Defense Council Report, "Contaminated
Catch - The Public Health Threat from Toxics in Fish" (prevent persistent pollution, control
pollutants that cross media); (b) the National Academy of Public Administration's 1995 Report,
"Setting Priorities, Getting Results - A New Direction for EPA" (set priorities by risk, integrate
'efforts across media/statutes); and, (c) the Organization for Economic Cooperation and
Development's (OECD) 1996 Report, "Environmental Performance Review of the United
States" (coordinate/integrate EPA chemical programs with EPA media programs).
II. GOAL -- REDUCE RISKS FROM PBT POLLUTANTS
The goal of this strategy must be measurable in terms of environmental results. EPA's
strategic goal is to identify and reduce risks to human health and the environment from
Draft PBT Strategy , ' " 1 , "; November16, 1998
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current and future exposure to priority PBT
pollutants. PBTs are associated with a range of
adverse human health effects, including effects on
the nervous system, reproductive and
developmental problems, cancer, and genetic
impacts. People who eat large amounts of fish
from local waters contaminated with certain
PBTs are at risk for adverse effects. The
developing fetus and young child are at particular
risk for developmental problems. Birds and
mammals at the top of the food chain are also at
risk. The most famous example is the serious
decline of the bald eagle in the 1960's because the
fish they ate contained DDT. The DDT did not
kill them or make them sick, but it did make their
eggshells so thin it seriously threatened their
ability to reproduce.
HI. FOUNDATION AND GUIDING
PRINCIPLES
Characterizing Chemicals as
Persistent, Bioaccumulative, and
Toxic
This strategy characterizes
PBT chemicals as those that partition
primarily to water,, sediment or soil,
and are not removed at rates adequate
to prevent their bioaccumulation in
aquatic or terrestrial species..
Chemicals characterized as suspected
persistent bioaccumulators typically .
have been confirmed as such based on
accepted test methods. Follow-on
toxicity testing leads to their
identification as persistent and
bioaccumulative toxic chemicals.
Building on a Strong Foundation. This strategy reinforces and builds on an existing
federal commitment to deal with PBT pollutants. EPA's commitment to control, remediate, and
prevent releases of PBTs (such as lead, mercury, PCBs, and DDT) is reflected in efforts that span
25 years. Among EPA's current commitments on PBTs are the 1997 Canada-U.S. Strategy for
the Virtual Elimination of Persistent Toxic Substances in the Great Lakes (Binational Toxics
Strategy or BNS), its cross-Agency Task Forces on lead, mercury, and dioxin, its Waste
Minimization National Plan, its Contaminated Sediment Management Strategy, its recently
announced Clean Water Action Plan, and the PBT emphasis in its new Chemical Right-to-Know
program announced by the Vice President in April 1998.
Identifying and managing PBT pollutants is a priority for key international-
organizations at both regional and global levels.1 Recognizing that many PBTs circulate at '**
regional and even global scales, nations find they must cooperate to reduce PBT risks. Often**
spurred by U.S. Government leadership, these international organizations are developing and
implementing risk reduction measures ranging from technical assistance programs to build
.institutional capacities for dealing with PBTs to legally-binding international agreements for
phasing out production and use of selected PBTs.
1 PBT pollutants are addressed by such fora as the North American Commission for Environmental
Cooperation (CEC), the UN Economic Commission for Europe Convention on Long Range Transboundary Air
Pollution (LRTAP), the Arctic Council, the UN Environment Program (especially its negotiations on.a global
Persistent Organic Pollutants Convention), and the Intergovernmental Forum on Chemical Safety (IFCS).
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November 16, 1998
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- . Guiding Principles. EPA will follow these principles in carrying putlts PBT strategy:
*: Address problems- on multi-media bases through integrated use of all Agency tools
Coordinate with and build on relevant international efforts.
* Coordinate with relevant Federal programs and agencies. -'' '
* Emphasize cost-effectiveness (e.g., amount-ofTBT removed per dollar spent) '
>Involve stakeholders. . .
Emphasize use of innovative technologies and pollution prevention. : "
* - Protect vulnerable sub-populations. ' "-' '
* Base decisions on sound science. . .
Use measurable objectives and assess performance (see page 10 on GPRA).
IV. APPROACH TO PBT RISK REDUCTIONS
. Four elements are central to EPA's PBT strategy. They are: (1) developing and
implementing national action plans for priority PBT pollutants using the full range ofEPA tools
to achieve risk reduction; (2) screening and selecting more priority PBT pollutants for action-
.(3) preventing :the introduction, of new PBT pollutants into commerce; and, (4) measuring '
progress by linking activities to environmental results. All of these elements require a
heightened level of multi-office integration in planning, budgeting, and implementation Figure
1 on page 7 shows the framework EPA is using to carry Out .these elements. . :
Below is a description of activities being undertaken in 1998-1999. Following that is a
more detailed explanation of each of the four strategy elements.
Activities Underway or Planned for Near-Term Action2
Offices abbreviated in parentheses are funding the stated.activity. Generally, all other
offices are also participating: . ' '."
Develop and Integrate National Action Plans.
* Support/build upon evolving BNS Level 1 action plans as bases for developing Y
national action plans on 12 Level 1 pollutants (as listed on p. 6) (GLNPO OIA OW
--Fall 1998-ongoing). . . ' , '
/ * Focus on appropriate risk, use, and release reduction actions, and sequence them as
needed for implementation. When possible, group chemicals for action to achieve
' efficiency and consistency (Fall/Winter 1998-ongoing). <
Office abbreviations'for this se'ction are OAR (Office of Air arid Radiation), OEC A (Office of
Enforcement and Compliance Assurance), OIA (Office of International Activities), OPPTS (Office of Prevention,
Pesticides, and Toxic Substances), ORD (Office of Research and Development), OSWER (Office of Solid Waste'
.and Emergency Response), OW (Office of Water) andGLNPO (Great Lakes National Program.Office). "
i '
1 ' . "". ' ' ' , ' ' ' . '
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> Align work and roles across Headquarters and Regional programs to prepare for
implementing action plans (OPPTS, OSWER, Regions -- Fall 1998 - ongoing).
Engage Stakeholders Nationwide (OPPTS).
ป Engage stakeholders on (1) draft strategy, (2) development/implementation of action
plans, and (3) criteria for selecting more PBTs for action (Fall 1998 -- ongoing).
Implement Process-Specific and Pollution Prevention (P2) Projects Under Draft
Mercury Action Plan (OAR, OECA, OPPTS, -OS WER, O W, Regions).
> Use regulatory authorities to reduce mercury emissions. (Recently-final municipal
waste combustor and medical waste incinerator rules will get significant reductions.)
. Evaluate linkages between air emissions and water quality impacts for targeted,
regulatory action. Develop pollution prevention (P2) guidelines and incentives in
rulemakings addressing mercury (Summer 1998 arid ongoing).
> Seek voluntary reductions in uses of mercury through partnerships with the chlor-
alkali industry, hospitals using mercury-containing products, laboratories, and
manufacturers and users of mercury switches (Fall 1998 and ongoing).
> ' To improve citizens' right-to-know on mercury, seek to lower the reporting'
, , threshold for.mercury under the Toxics Release Inventory, which could lead to more
reporting of mercury releases (end of 1998).
Focus Enforcement and Compliance Assurance Activities on PBTs (OECA, Regions,
Winter 98/99 - ongoing).
* Analyze compliance within PBT-related sectors to identify problems and
opportunities for action.
* Select industries, sectors, or regulations that would benefit from focused compliance
attention and/or assistance.
> Target actions with best potential to reduce PBT releases.
> Develop Supplemental Environmental Projects and models to use with enforcement
actions to enhance P2/reduction opportunities. .
ป Identify PBT chemicals to measure national reductions in hazardous wastes (OS W,
Regions).
* Using the Waste Minimization Prioritization Tool and selection criteria reflecting
Resource Conservation and Recovery Act (RCRA) concerns, publish a draft RCRA
PBT List hi a Federal Register notice (early November 1998).
> . Hold stakeholder meetings to discuss criteria (Fall 1998).
- Finalize and release list of RCRA PBT chemicals (Winter 1998/99).
Develop or Revise Water Quality Criteria for mercury and other specific priority PBTs.
Revise methodology for mercury water quality criteria. (OW, Spring 1999)
Support International Efforts beyond the Binational Toxics Strategy (OAR, OECA,
OIA, OPPTS, ORD, OSWER, OW, 1998 and ongoing).
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> Support the North American Commission for Environmental Cooperation's (CEC)
Sound Management of Chemicals work program, including the implementation of "
the Regional Action Plans on DDX, chlordane, PCBs? and mercury. ;
> Promote the early implementation of the Persistent Organic Pollutants (POPs) and
Heavy Metals Protocols recently negotiated under the UN ECE's Convention on '
Long Range Transboundary Air Pollution. "
* Provide leadership in the negotiations on a global POPs convention under the
auspices of the UN Environment Program. "-'.'
. * Continue working with developing countries to phase o,ut use of lead in gasoline.
Conduct Research and Analysis oti PBTs (ORD, OAR, OPPTS, OS WER, OIA,
Regions, 1999 and ongoing). ' ' .
* Develop/promote mercury emission control approaches for coal-fired utility boilers':
> . Conduct research on mercury and POPs transport, fate, and risk management.
Use P2 tools (Design for the Environment tools, environmental accounting materials
management, etc.) in voluntary components of action plans.
* Develop and improve test methodologies for environmental persistence.
* Coriduct Science Workshops on mercury and emerging PBTs.
> Develop P2 options for mercury and dioxin risks from industrial combustion.
ป Publish "Status and Needs" paper on use of bioaccumulation data to assess sediment
quality (Fall 1998).
Screen and Select Additional Priority PBTs for Action (OPPTS, OS WER, Regions).
* Finalize Waste Minimization Prioritization Tool for use in prioritizing PBTs
(Summer 1998).
* Catalog chemicals and modify data systems as needed (Fall 1998 -ongoing).
> Select chemicals beyond the Level 1 list (1999). ; . - . .
Prevent the Introduction q/'New PET Chemicals (OPPTS-led).
ป Propose criteria for requiring testing/restrictions on new PBTs (Fall 1998).
..ป_ Develop rule to-control ' re-introducing out-of-use PBTs into commerce (1999).
> Develop incentives to reward development of lower-risk alternatives to PBTs
(Ongoing). ...
* Document how PBT screening criteria are taken into acc9unt when approving new
pesticides and re-registering existing ones (Fall 1998).
"Measure Progress (OAR, OECA, OPPTS, OS WER, OW, OIA, Regions).,
> Help develop National Health and Nutrition Examination Surveys to analyze .U.S.
population for pesticides/dioxin in serum, and mercury in blood/hair (Summer '98).
. '.*- Begin working with the National Institutes of Health (NIH) to monitor PBTs in fetal
cord blood of Alaskan native groups (Fall 1998-ongoing).
> .Design and peer review National Study of Chemical Residues in Fish for estimating
. trends in environmental measures (1998-early 1999). Begin sampling in 1999.
> Propose.a rule adding dioxins/possibly other PBTs to the Toxics Release Inventory
(TRI); lower reporting thresholds for dioxins and PBTs listed on TRI (end of 1998).
Draft PBT Strategy. ' 5 . ' November 16, 1998
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Update air emission inventory, especially for dioxin/mercury sources (Fall 1998 - '
ongoing), and support coal sampling and stack testing for mercury at utilities (Fall
1998-ongoing).
* Design activity measures (1999).
Strategy Elements
1. Develop and Implement National Action Plans
Developing National Action Plans. In this strategy, EPA is affirming the priority given
by the United States and Canada to the Level 1 substances under the Binational Toxics Strategy
(BNS), and making these substances the first focus for action. The Level 1 substances are: , .
aldrin/dieldrin mercury and compounds
benzo(a)pyrene mirex
chlordane octachlorostyrene ' ,
DDT(+DDD+DDE) PCBs .
hexachlorobenzene PCDD (Dioxins) and PCDF (Furans)
alkyl-lead toxaphene ...
EPA is focusing on these substances first because the BNS reduction goals for them are
national, and most of these substances are already targets of existing and pending international
agreements. EPA believes there is much to gain by building on the efforts of its Great Lakes
National Program Office (GLNPO) and EPA Region 5 to virtually eliminate these PBT
pollutants in the Great Lakes Basin.
EPA will use the work plans being developed by BNS multi-stakeholder work groups as
starting points for national action plans under this strategy. The BNS framework relies heavily
on stakeholder involvement, and has a preference for voluntary action when adequate to meet
BNS goals. BNS work plans will likely yield regionally-specific model actions that can serve as
foundations for national action plans under this strategy. EPA is evaluating whether, for the
Level 1 substances, assembling national workgroups (or some other configuration) to involve
Regions and complement BNS workgroups may help in the timely development of national
action plans. For a-summary of linkages between this strategy and the BNS, see page 15.
National action plans will draw on the full array of EPA statutory authorities and
national programs. EPA may use regulatory action where voluntary efforts are insufficient.
EPA will likewise pursue, in the short-term or longer-term as appropriate, actions for
enforcement of and compliance with current regulations, international coordination, place-based
remediation of existing PBT contamination, research, technology development and monitoring,-
community and sector-based projects, and use of outreach and public advisories. EPA will focus
on action, while bearing hi mind the need to address uncertainties and data gaps through data
.collection and scientific and technical research. EPA will sequence activities to lay any
groundwork necessary for longer-term action.
*Draft PBT Strategy " ' 9 . NOvember16,1998
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Strategy Elements Framework
Candidate Pool of
PBTs(WMPT)
Coordinate
with Binational
Toxics Strategy
on Level 1
Substances
Screen &
Select PBTs
for Action
Fill PBT
Data
Gaps
Develop
Action Plans
Define measurable
goals
Implement
Actions
Define roles &
allocate resources
JMeasure
& Evaluate
Progress
Prevent
Introduction of
New PBTs
Draft PBT Strategy
Figure 1.
7
1 November 16, 1998
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The. Draft Mercury Action Plan in Attachment 1 illustrates how EPA can coordinate the
.use of its tools to achieve reductions for a PBT pollutant. This plan represents EPA's preferred
approach, since it involves multi-media and cross-office actions, quantitative challenge goals,
stakeholder engagement, international coordination, and long-term emphasis on pollution
prevention. Such an action plan is possible because EPA has extensive knowledge of and a
mature program on mercury, more so than for most other PBT pollutants. Action plans for
banned substances like canceled pesticides or PCBs, or substances with much less risk
characterization like octachlorostyrene, will differ substantially from the draft mercury action
plan. EPA has begun implementing some reduction activities for mercury. See the next section
and Appendix B for the status of developments on all 12 BNS Level 1 substances.
Maximizing Opportunities for Integration. As EPA develops action plans, it will align
program efforts and integrate actions across media. Whenever possible, EPA will address groups
of pollutants rather than individual pollutants, to prevent or reduce risks for multiple pollutants at
the same time. As individual action plans mature, EPA may see opportunities to integrate
activities hi ways that achieve greater cost savings in amounts of each PBT removed per dollar
spent. EPA may also be able to identify facility-wide pollution prevention and technology
transfer opportunities for specific industry sectors. Maximizing opportunities for integration will
avoid transferring problems across media or to chemical substitutes!
Implementing PBT Reduction Actions. Some of the activities being planned for the 12
BNS Level 1 substances-are already reasonably well outlined. This is especially true for
mercury, as noted above on pages 4 and 6. What follows highlights some of the activities on
some of the other 11 substances on the BNS Level 1 list.
ป . EPA will prepare a BNS status report by December 31, 1998 on the use or release of
chlordane, DDT, aldrin-dieldrin, mirex, and toxaphene from sources that enter the Great
Lakes Basin. EPA will continue "Clean Sweeps"3 in the Great Lakes Basin, and will seek
to extend Clean Sweeps on a national basis. EPA will work with Mexico to reduce
DDT/dSftrdane reliance, speed registration of reduced-risk pesticides, and encourage
states' promotion of biological controls through State Management Plans.
> EPA will prepare a BNS status report by December 31, 1998 on alkyl-lead to confirm no
use in automotive gasoline. EPA will encourage stakeholder minimization of use/release
from aviation and racing sources in the Great Lakes Basin, and will seek to extend these
. efforts on a national basis. .
> EPA will publicly release the fina| Dioxin Reassessment hi Spring 1999.
3 Agricultural "Clean Sweeps" is a popular term for waste pesticide collections undertaken at State and
local levels to dispose of pesticides that are suspended, canceled, or no longer fit for use. States conduct Clean
Sweeps as a prudent investment to avoid potential spills- and costly clean-up.
Draft PBT Strategy 8 November 16, 1998
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2. Screenand Select More Priority PBT Pollutants for Action
Looking beyond its initial focus on the BNS Level 1 substances;"the Agency 'will screen
.and select additional PBT pollutants for action. It is likely that the opportunities Yor pollution '
-/prevention; will.be greater for the additionally selected PBT pollutants; EPA will use a primary '
and secondary screening process to make these selections.
Primary Screening: Preliminary Criteria. EPA: will apply a primary, screening process
to candidate PBT pollutants. EPA is defining candidate pollutants as (a) those highly scored by
EPA's Waste Minimization Prioritization fool (WMPT) for human or ecological, concern, and
(b) other high-priority chemicals for EPA headquarters and regional .program offices. The
.WMPT prioritizes chemicals based on their cumulative persistence, bioaccumulation, and .
chronic human and ecological toxicity. The purpose of the primary screen is to reduce the.
. number of candidate pollutants under consideration. A chemical will pass the primary screen if it
meets at least one of the following criteria: '
. The chemical is currently produced within the U.S. or impprted; >
The chemical is being released to the environment; ."..
" . The chemical is generated/managed in waste; or .
The chemical has been detected in the environment at levels of concern (as- yet
undefined). ':' . . ;; . .
Secondary Screening: Ranking Criteria and Technical Panel EPA will then use
secondary criteria to rank those PBT pollutants that pass the primary screen. EPA's Office
Directors and the PBT Plenary Group are developing the.secondary criteria. EPA is carefully
crafting these criteria to represent its priorities and will define them, in part, by the availability of
sound scientific and technical data. The criteria will be related to PBT characteristics (especially
hazard), potential exposure, pollution prevention opportunity, and suitability for an EPA-wide
national focus (including-potential for grouping chemicals for action). EP'A will apply the
secondary criteria in consultation with a technical panel which, in turn, may consult with a .
network of experts to ensure that chemical selection is based on sound science. Details about the
selection criteria, process, and technical panel remain under development. ' -:
, ; The proposed methodology will undergo internal and external review in 1999. The
methodology and decisions will also be periodically reassessed as more data become available
that may affect EPA's selection process. , . '
-. ' ~ ป
. . - . . ".('
3. Prevent the Introduction^ New PBT Pollutants
EPA will be taking four actions to prevent.new PBT chemicals from entering commerce,
1 using authorities'under the Toxics Substances Control Act (TSCA) and the Federal Insecticide,
Fungicide and Rpdenticide Act. " .
Draft PBT Strategy . 9 -November 16, 1998
-------
EPA will propose a'PBT category for screening new chemicals, to enhance EPA's ability
to evaluate the potential risks of new PBTs and to use testing requirements and other
restrictions as necessary to protect the public. Under its TSCA-based New Chemicals
Program, EPA groups new chemicals with shared structural and toxicological properties
into categories. These categories allow submitters of Premanufacture Notices and EPA
reviewers to benefit from accumulated data and decisionai precedents.' If EPA identifies a
new substance as .being in the PBT category, EPA will evaluate the potential health or
environmental concerns associated with the category, and the potential exposures and
. releases of the new chemical. If EPA concludes the new substance may pose an
unreasonable risk to human health or the environment, EPA may require testing and
restrictions. . ...
EPA will develop a significant new use rule to control attempts to re-introduce out-of-use
PBT chemicals into commerce. This rule will apply to PBTs previously hi commerce but
not being manufactured, as identified from updated reporting on U.S. production,
including polychlorinated terphenyls and hexachlorobenzene.
EPA is developing incentives to reward the development of lower-risk chemicals as
alternatives to existing, higher-risk PBT chemicals. EPA will create these incentives
through its New Chemicals Program and its green chemistry'activities.
ซ EPA will document how PBT-related screening criteria are taken into account for
approval of new pesticides and re-registration of existing ones. EPA will seek acceptance
of these criteria by international organizations working on persistent organic pollutants
(POPs), including the OECD chemical/pesticide program, the Binational Toxics Strategy,..
the IFCS, and the CEC.
4. Measure Progress: Link Activities to Environmental Results
EPA will measure progress on actions under this strategy through: (1) environmental or
human health indicators, (2) chemical release, waste generation, or use indicators, or (3)
programmatic output measures. EPA believes that tying its indicators of progress to
environmental results through real world measures (e.g., reduced levels of PBTs in human blood
or fish tissue) will encourage the Agency and its stakeholders to think creatively about how to
achieve the progress in risk reduction that both seek.
This approach to measuring progress meets the requirements of the Government
Performance and Results Act of 1993 (GPRA). GPRA requires federal agencies to define
measurable goals and objectives, measure progress, and report accomplishments. Appendix A
shows that the goal of this strategy matches EPA's goals and objectives under GRPA, including
.Goal # 1 clean air, Goal # 2 clean and safe water, Goal # 4 preventing pollution and reducing .
risk, Goal # 6 reducing global and cross-border environmental risks, Goal # 8 sound science, and
Goal # 9 credibly deterring pollution and increasing compliance with the law.
Draft PBT Strategy 10' November 16, 1998
-------
EPA will use the following measures to track progress m reducing risks from PBT
pollutants, as shown,in Figure 2. EPA will evaluate and use other progress measures as-
appropriate. : .
Human Biomarkers. EPA will use the National Health and Nutrition Examination ,
Surveys (NHANES) as its primary measure of human exposure. Conducted by the
CDC's National Center for Health Statistics (NCHS), NHANES trace the health and .
nutritional status of U!S. civilians. Surveys use adult, youth, and family questionnaires,
followed by standardized physical examinations. The primary NHANES objective is to
, obtain national population health and nutrition parameters; using suitably precise
, estimates for age, gender, and race/ethnicity (whites, blacks, and Mexican-Americans).
EPA expects NHANES IV to analyze most Level 1 substances. EPAihas worked with
NCHS to add analysis for mercury in blood and hair for some survey participants. EPA
also will begin working with NIH and other U.S. government entities to conduct fetal
cord blood monitoring for PBTs in Alaskan native groups. ..
Food Chain/Environmental Measures, A cornerstone of the measurement effort will
be a National Study of Chemical Residues in Fish. This EPA study will statistically
evaluate the incidence and severity of mercury and other PBT residues in fish, both
downstream from suspected problem areas and in background areas. On a national basis,
the study will calculate concentrations, of priority PBT chemicals hi fish. On a regional '
basis, it will also calculate concentrations of some .other PBT'chemicals in fish. The
study will-allow for estimating trends over time. EPA will work with.State Departments
of Health and Environmental Protection* coordinating with state fish advisory programs
to help fill data needs identified in the survey. Study design and peer review will be
completed in fiscal year 1998 (FY98) or early FY99. Sampling begins in FY99 and
.. concludes, in Summer FY01. Study results will be available in FY02..
* Environmental Release Data. To help characterize trends in*environmental releases and
waste management, EPA intends to propose a rule to add dioxins and possibly other PBT
substances to the Toxics Release Inventory (TRI). This rule will .also propose lowering
repprtirig thresholds for PBT chemicals ~ some already listed on TRI, like mercury and
' mercury compounds, and some being added, like dioxins. Lowering reporting thresholds
could increase reporting of PBT chemicals and thereby enhance TRI's value for tracking
progress in reducing PBT pollution. Plans are to propose the.TRI PBT rule by close of
1998. EPA expects a final rule by the end of 1999, with reporting to begin in 2000. The
first public release of the data obtained through the TRI PBT rule would.be in 2001.
Reductions of volumes of hazardous wastes containing PBTs will also be measured using
the 1991 Biennial Reporting System4 data-as a baseline on hazardous waste generation
4 The Biennial Reporting System contains data on hazardous waste generation and management for
facilities regulated by the Resource Conservation and Recovery Act (1976). EPA collects the data every two years
pursuant to the Hazardous and Solid Waste Amendments of 1984, and publishes it in the Biennial RCRA Hazardous
Waste Report. . '
-Draft PBT Strategy 11 .November 16, 1998
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trends. Reductions of specific high-priority PBT chemicals in hazardous wastes will also
be measured using TRJ data. Reductions of chemicals in hazardous wastes is one
indicator of whether the reductions are occurring at the source, prior to generation of
hazardous wastes. EPA will use these methods to report progress on reducing PBTs in
, hazardous wastes by 50% by 2005, a subobjective under GPRA Goal 4 (see discussion of
GPRAonpage 10). .
Beyond TRI, EPA Will also evaluate the results ofongoing monitoring programs, such as
the Integrated Atmospheric Deposition Network and those used by other Federal agencies
like the U.S. Geological Survey. EPA will also evaluate and support improving outputs
from international monitoring and modeling programs. These include national emission
inventories and related modeling of long-range transboundary fluxes, conducted pursuant
to the POPs and heavy metals protocols to the UN ECE's Convention on Long Range "
Transboundary Air Pollution.
Activity Measures. EPA will also use PBT-related activity measures, especially at the
start, since risk reductions might not be readily apparent in the short term. Activity
measures include negotiation and implementation of international agreements; Federal or
State compliance assistance; public/industry workshops and educational outreach-
pollution prevention agreements or other voluntary activities by the regulated community;
focused compliance monitoring and enforcement; and regulatory and. permitting changes.
V. MANAGING FOR SUCCESS
To manage the effort under this strategy, EPA will rely on sustained senior-level support,
a strong organizational structure for coordination, sustained resources, a well-defined framework
for carrying out the elements of this strategy, and stakeholder involvement.
Managing the Implementation of the Strategy
EPA is using the following organizational structure to coordinate and sequence activities
under this-strategy. .
ป The PBT Plenary Group, a body of EPA personnel instrumental in developing this
strategy, will be responsible for integrating actions across Agency programs and
recommending action priorities. This group will forward its recommendations to the
Office Directors for decisions. It will also help track progress toward the strategy's goals.
EPA's Office Directors' Multi-Media and Pollution Prevention Forum will define actions
to be taken each fiscal year, based on Plenary Group recommendations. The Forum will ,
. also incorporate these actions into EPA's program planning process, and evaluate
progress on activities towards the strategy's goal.
Draft PBT Strategy
.12 November 16, 1998
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'.Figure 2
A Continuum of Activities that
Measure Environmental Results
Type
Example
Relevant
Measure
Human
Biomarkers
NHANES
Blood
Hair
1 Urine
1 Tissue
Most Level 1 substanced included
Direct measure of, human exposure
Food chain/
Environmental
Meas'ires
FISH
TISSUE
STUDY
Fish tissue
Animal tissue
Sediment
* Water column
Direct measure of ecological effect
. Close link to human exposure
.. Applicable to many PBTs '
1 Proposed addition of dioxin
Lower thresholds for other PBTs':,..-.
Data from international inventories-available
ivironmental
lease Data X
TOXICS
RELEASE
INVENTORY
Emissions
Disposal- '.
Activity
Measures ' ' . .
PROGRAM
OUTPUT
Education '
International outreach
Stakeholder Meetings
.Permits
Compliance monitoring
and enforcement
Easily. measured
Only available measure at times
t
I
Q
ฃ
2
" Draft PBT Strategy
13
November 16, 1998
-------
Program and Enforcement Offices at the Headquarters and Regional levels will
implement defined actions with the support of ad-hoc groups such as the Mercury Task
Force and Dioxin Assessment Group. EPA has also established a network of Regional
PBT contacts to facilitate .these efforts at the Regional level.
Establish Linkages Among Current Program Efforts
Establishing linkages among programs is key to achieving the goal of this strategy.
Linkages with the Canada - U.S. Binational Toxics Strategy. EPA is coordinating its
implementation of this strategy with that of ihe Binational Toxics Strategy. These efforts
mutually contribute to the success of one another, as summarized in Table 1.
i '.-'' ,
Table 1. Relationship Between the PBT Strategy and Binational Toxics Strategy
(BNS)
Stnatwjrval Stratsgy
Initial focus on Level 1 substances
Much of the focus is regional in scope for water,
and national in scope for air.
Establishes quantitative challenge goals for virtual
elimination of Level 1 substances
Progress tracking and accountability related to
specific reduction (use/release) goals.
Identify key stakeholders and bring stakeholders'
current technology to light
Specifies coordination with international efforts to
ensure consistency . .
, P8TStratซg*
Initial focus on Level 1 substances. 'Will
select additional substances, providing a basis
for BNS implementation decisions on Level 2
substances.
National in scope for all media, including
Everglades, Gulf of Mexico, Chesapeake Bay,
Lake Champlain.
Provides scientific support for deciding
whether more action is needed after challenge
goals are met.
Builds on use/release tracking of BNS and
expands progress tracking to measures closer ,
to human and ecological levels and effects. .
Coordinates research on new technologies and
provides Agency tools such as environmental
accounting, models, etc.
Expands coordination with international efforts .
Linkages with International Chemical Management Efforts. To the extent that
international voluntary activities and legally-binding agreements result in meaningful PBT risk
reductions in other countries, these international steps would be a positive complement to this
strategy. Likewise, domestic actions implemented by this strategy could serve as models for
other countries. A number of international efforts in which EPA participates, including those
listed below, are relevant to. this strategy, .
* ' The North American Commission for Environmental Cooperation (CEC), made up of the
U.S., Canada, and Mexico, is conducting a-Sound Management of Chemicals Program.
Draft PBT Strategy
14
November 16, 1998
-------
. V Through CEC, the U.S. is working to implement Regional Action Plans on DDT
chlordane, PCBs, and mercury, v '-
EPA is! continuing long-standing efforts to provide technical assistance to developing
countries to eliminate the-use of lead in gasoline.
->., '. EPA is supporting the implementation of the Persistent Organic Pollutants (POPs) and
Heavy Metal Protocols to the.UNECE's LRTAP Convention.
> EPA is a key US government participant in the ongoing negotiations of a global POPs
Convention under UNEP auspices.
Linkages with the Waste Minimization National Plan. EPA is coordinating this strategy
with its Waste Minimization National Plan which EPA launched four years ago Supporting this
National Plan is EPA's GPRA subobjective to "reduce the most persistent, bioaccurnulative and
toxic chemicals in hazardous waste 50% by the year 2005." In furtherance of the Plan and this '
subobjectiye, EPA: (1) has developed the Waste Minimization Prioritization Tool; (2) is
proposing this fall and finalizing this winter a list of those PBTs of most concern for tracking - ,
national reductions in hazardous,wastes; (3) is using the RCRA Implementation Plan and its
guidance/on core measures for National Environmental Performance Partnerships with states to
reinforce the PBT reduction goals for hazardous wastes; and, (4) will be finalizing methods this
year to measure reductions of PBTs in hazardous wastes 'and reductions of hazardous wastes
containing PBTs. The PBT Strategy will likewise be making use of the Waste Minimization
Prioritization Tool and will, seek consistency with other activities of the Waste Minimization
National Plan to the maximum extent possible.
Linkages with Sector- and Community-Based Efforts. The chemical-based PBT
Strategy is complementary to sector-based and place-based approaches. Aspects of this strategy
-. assessing risk, overcoming single-medium approaches in establishing national baseline
regulations and policies, targeting research, controlling more PBTs from entering commerce,
creating incentives for safer substitutes, and facilitating coordination with U.S. and international
agencies - can serve the needs of sector- and place-based approaches. Indeed,, constructive
collaboration can occur among all three approaches.
EPA, with the Common Sense Initiative Council, is developing a Sector-Based Action
Plan to integrate the sector-based approach into core Agency operations. The Plan will, among
other things, identify objective criteria for selecting future sector-based opportunities. EPA's
regulatory framework already starts with "source categories" of releases to air, water, or land,
and may serve as a point of reference. This PBT strategy may also be able to identify source'
categories by use or release of chemicals or chemical groups. Once a sector could be earmarked.
for significant PBT use or release, then-sector-based.and chemical-based approaches could use
complementary analysis and stakeholder outreach to tackle PBT problems on a sector-basis.
' '. - ' J ; ' ' -, ' ' - ''''.'
EPA also seeks to implement Community-Based Environmental Protection (CBEP), a
place-based, coUabprative, multi-media, and multi-disciplinary approach to environmental .'
protection. Embracing principles of ecosystem management and sustainable development, it
convenes stakeholders within a geographic area to identify local concerns (including urban
- Draft PBT Strategy ,15 , ' -V ' . November 16, 1998
-------
sprawl, shrinking biodiversity, and remediation of in-place PBT contaminants), set priorities and
goals, and forge comprehensive solutions. CBEP promotes integration of EPA programs and .
activities to complement and enhance community decision-making. Regional activities on the
Chesapeake Bay and Great Lakes exemplify the CBEP approach and are also integral to the PBT
Strategy (งgg Table 1). .
Linkages with EPA Regional Programs. EPA Regional programs are essential to
implementing this strategy. Among the roles they may take on are the following:
Participating in,GLNPO or national work groups as appropriate.
Identifying geographic sources and sinks of priority PBTs. ..
Participating in the chemical selection process.
Assuming lead responsibilities for action plan development teams.
Managing region-specific projects during action plan implementation.
Promoting compliance assurance and enforcement efforts.
Supporting States and Tribes in addressing PBT issues in their jurisdictions.
Carrying out PBT-related actions under EPA's National Waste Minimization Plan..
Stakeholder Involvement
Building on the stakeholder involvement begun under the Binational Toxics Strategy is
essential to this strategy. EPA's Region 5 and GLNPO are successfully engaging state and tribal
program partners, industry, environmental groups, and others in taking actions on Level 1
substances. For example, the Council of Great Lakes Industries has helped educate and bring to
the table other industries and sectors to identify possible voluntary actions. In cooperation with
EPA, the National Wildlife Federation has begun mercury and dioxin reduction projects at Great
Lakes hospitals. EPA will build on these efforts to engage stakeholders in areas of the country
beyond the Great Lakes Basin.
EPA will seek' stakeholder input on this draft strategy, the development and
implementation of specific action plans for PBT pollutants, and the criteria for selecting more
PBTs for risk reduction action, EPA will make Federal Register announcements of meetings in
Washington, DC and EPA regional city locations for stakeholders to comment on the draft
strategy. EPA will invite State and tribal representatives to join the teams that develop the action
plans, and will invite all others to review and comment on draft action plans. EPA will also
invite all interested partners to join in developing voluntary agreements with EPA, agreements
EPA considers essential to reaching the goal of this strategy.
For answers to general questions about the PBT Strategy or to find out who to contact
regarding particular aspects of the PBT Strategy, please contact Sam Sasnett, (202)260-8020, .
sasnett.sam@epa.gov.
Draft PBT Strategy
16 November 16, 1998
-------
REFERENCES
CEC (1997). DRAFT Mercury North American Regional Action Plan, www.cec.org
The Great takes Binational Toxics Strategy: Canada - U.S. Strategy for the Virtual Elimination
of Persistent Toxic .Substances in the Great Lakes (1997). www.epa.gov/grtlakes/bns/strategy ' '
National Academy of Public Administration, Washington, D.C. (1995). Setting Priorities
Getting Results A New Direction for EPA.
Natural Resources Defense Council (1998). Contaminated Catch. The Public Health Threat
from Toxics in Fish. . , ". ' ' .
Organization for Economic Cooperation and Development (1996). Environmental Performance
Review of the United States. OECD Publications Center: (202)785r6323
t t i
U. S. Environmental Protection Agency (EPA) (1998). The Study of Hazardous Air Pollutant
Emissions from Electric Utility Steam Generating Units -- Final Repprt to Congress. Volumes 1
and 2. EPA-453/R-98-004a and EPA-4,13/R-98-004b.'
U. S. E.P.A. and U.S. Department of Agriculture (1998). Clean Water Action Plan: Restoring
and Protecting America's Waters. EPA-840-R-98-001.
U. S. E.P.A. (Sept 1997). EPA's Strategic Plan. EPA/190-R-97-002
U.S. E.P.A. (1997). Deposition of Air Pollutants to Great Waters: 2nd Report to Congress
EPA-453-R-97-011. , ' - . . ' ; . '.
U.S. E.P.A. (1997). EPA's Contaminated Sediment Management Strategy. EPA-823-R-98-001.
U. S. E.P.A. (1997). Mercury Study Report to Congress. EPA-452-R-97-003-009.
U.S. E.P.A. (Dec, 1996). Environmental Goals for America with Milestones for 2005, Draft for
Government Review. '.-'.-. .
U. S. E.P.A. and Agency for Toxic Substances Disease Registry (1996). National Alert on
Metallic Mercury Exposure.
U.'S. E.P.A. (1994). RCRA Waste Minimization National Plan (draft). OSW 530-D-44-001.
U.S. E.P.A. Biennial RCRA Hazardous Waste Report (1991 data) list of large-quantity
generators in the United States.
Draft PBT Strategy ,,17 ,, November 16, .1998
-------
U.S. E.P.A- (1993). Deposition of. Aft Pollutants'to the Great Waters: 1st Report to, Congress.
EPA-453-R-93-055. ' '
EPA Air Docket: (202)260-7548
EPA Water Docket: (202)260-3027
EPA RCRA Docket: (703)613-9230
Draft PBT Strategy ' .18 November 16. 1998
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GLOSSARY
BNS June 1997 Canada-U.S. Strategy for the Virtual Elimination of Persistent Toxic
Substances in the Great Lakes (also referenced as.'"Binational Toxics Strategy").
CEC North American Commission for Environmental Cooperation
GLNPO EPA's Great Lakes National Program Office '
GPRA Government Performance in Results Act of 1993 '.-.-
IFCS Intergovernmental Forum on Chemical Safety
LRTAP Convention - the UN.ECE's Convention on Long Range Transbbundary Air Pollution
NHANES, National .Health and Nutrition Examination Surveys
NIH National Institutes of Health (U.S. Department of Health and Human Services)
OAR EPA's Office of Air and Radiation
QECA EPA's Office of Enforcement and Compliance Assurance .'
OECD, Organization for Economic Cooperation and Development
OIA EPA's Office of International Activities .
OPPTS . EPA's Office of Prevention, Pesticides, and Toxic Substances
ORD EPA's Office of Research and Development '
OSWER ' EPA's Office of Solid Waste and Emergency Response "
OW EPA's Office of Water . . ,".
P2 Pollution prevention
PBTs Persistent, bioaccumulative, and toxic pollutants
POPs Protocol - the Persistent Organic Pollutants Protocol negotiated under the UN ECE's
LRTAP Convention ,
RCRA Resource Conservation and Recovery Act
TRI Toxics Release Inventory
UN ECE United Nations Economic Commission for Europe
UNEP United Nations Environment Program
WMPT ' Waste Minimization Prioritization Tool
Draft PBT Strategy ' 19... .November 16, 1938
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APPENDIX A
GPRA Goals and Objectives Supported by
the PBT Strategy
Appendix A-1
-------
Table A-1. The PBT Strategy Will Help Meet G6als and Objectives Stated in EPA's
Strategic Plan " .. ' ,
EPA Strategic Pjan Goals and Objectives
GPRA Goal 1: Clean Air
* By 2010, improve air quality for Americans living in areas that do not meet the National Ambient Air
Qual.ty Standards (NAAQS) for ozone and paniculate matter (PM). ' MmDlenl ซT
By 2010, reduce air toxics emissions by 75 percent from .1 993 levels to significantly reduce the risk
to Am.er.cans of cancer and other serious adverse health effects caused by airborne toxics
By 2005, .mprove air quality for Americans living in areas that do not meet the NAAQS for carbon
monoxide, sulfer dioxide, lead, and nitrogen dioxide.
By 2010, ambient sulfates and total sulfur deposition will be reduced by 20-40%; from 1980 levels
due to reduced sulfur dioxide emissions from utilities and industrial.sources. By 2000 ambient
nitrates and total nitrogen deposition will^be.reduced by 5-10% from 1980 levels due to reduced
emissions of nitrogen-oxides from utilities and mobile sources. -
GPRA Goal 2: Clean and Safe Water '.' .^~"
By 2005,,protect, human health so that 95 percent of the population served by community water
systems .will receive water that meets drinking water standards; consumption of contaminated fish
and shellfish will be reduced, and exposure to niicrobjal and other forms of contamination in waters
used for recreation will be reduced.
Conserve and enhance the ecological/health of the nation's (state, interstate/and tribal) waters and
aquatic ecosystems - rivers and streams, lakes, wetlands, estuaries, coastal areas, oceans, and
groundwater - so that 75 percent of waters will support healthy aquatic-communities, by 2005
- By 2005, pollutant discharges from key point sources and nonpoint source runoff will be reduced by
at least 20 percent from 1992 'evels. Air deposition of key pollutants impacting water bodies will" be
, reduced. ' -' ,
GPRA Goal 4: Preventing Pollution and Reducing Risk in Communities. Homes, Workplaces and
Ecosystems '
By 2005, public and ecosystem risk from pesticides will be reduced through migration to lower-risk
pesticides and pest management practices, improving education of the public and at-risk workers,
and forming "pesticide environmental stewardship" partnerships with pesticide user groups.
By 2005, the number of young children with high levels of lead in their blood will be Significantly
reduced from the early 1990's. . '
By 2005, of the approximately 2,000 chemicals and 40 genetically, engineered microorganisms
expected to enter commerce each year, we will significantly increase the introduction by industry of
safer or "greener" chemicals, which will decrease the need for regulatory management by EPA.
By 2005, 1 5 million more Americans will live "or work in homes., schools, or office buildings with .
healthier indoor air than in 1994. , < : , ,
By 2005, reduce, by 25% (frdm 1992 levels) the quantity of toxic pollutants released, disposed of,
treated, or combusted for energy recovery.. Half of this reduction will be achieved through poilutio'n
prevention practices. ,
By 2005; EPA and its partners will increase recycling and decrease the quantity and toxicity of waste
generated. ^ . - ''....'. ,,.
By 2003, 60% of Indian Country will be assessed for its environmental condition, and Tribes and
EPA will be'implementing plans to address priority issues. , ' '
Appendix A-2
-------
Table A-1. The PPT Strategy Will. Help Meet Goals and Objectives Stated in EPA's
Strategic Plan (Continued)
EPA Strategic Plan Goals and Objectives
GPRA Goal 6: Reduction of Global and Cross-Border Environmental Risks
By 2005, reduce transboundary threats to human health and shared ecosystems in North America,
including marine and Arctic environments, consistent with our bilateral and multilateral treaty
obligations in these areas, as well as our trust responsibility to tribes.
By 2000 and beyond, US greenhouse gas emissions will be reduced to levels consistent with
international commitments agreed under the Framework Convention on Climate Change, building on
initial efforts under the Climate Change Action Plan.
By 2005, ozone concentrations in the stratosphere will have stopped declining and slowly begun-the
process of recovery. . '
By 20O5, consistent with international obligations, the need for upward harmonization of regulatory
systems, and expansion of toxics release reporting, reduce the risks to U.S. human health and
ecosystems from selected toxics (including pesticides) that circulate in the environment at global and
regional scales. Results will include a 50%. reduction of mercury emissions from 1990 levels in the
United States. Worldwide levels of lead in gasoline will be below. 1993 levels.
By 2005, increase the application of cleaner and more cost-effective environmental practices and
technologies in the U.S. and abroad through international cooperation. '
GPRA Goal 8: Sound Science, Improved Understanding of Environmental Risk, and Greater Innovation
to Address Environmental Problems '
By 2008, provide the scientific understanding to measure, model, maintain, or restore, at multiple
scales, the integrity and sustainability of ecosystems now and in the future.
By 2008, improve the scientific basis to identify, characterize, assess, and manage environmental
exposures that pose the greatest health risks to the American public by developing models and
methodologies to integrate information about exposures and effects from multiple pathways.
By 2008, establish capability and mechanisms within EPA to anticipate and identify environmental or
other changes that may portend future risk, integrate futures planning into ongoing programs; and
promote coordinated preparation for and response to change.
By 2006, develop and verify improved tools, methodologies, and technologies for modeling,
measuring, characterizing, preventing, controlling, and cleaning up contaminants associated with high
priority human health and environmental problems.
Provide services and capabilities, including appropriate equipment, expertise, and intramural support
necessary to enable ORD to research innovative approaches to current and future environmental
problems and improve understanding of environmental risks.
By 2005; EPA will increase the number of places using integrated, holistic partnership approaches,
such as community-based environmental protection (CBEP), and quantify their tangible and
sustainable environmental results in places where EPA is directly involved.
By 2005, test innovative facility- and sector-based strategies to achieve improved environmental
protection, and make successful approaches broadly available. .
By 2005, Regions will have demonstrated capability to assess environmental conditipns in their
Region, compare the relative risk of health and ecological problems, and assess the environmental
effectiveness of management action in priority geographic areas.
Conduct peer reviews and provide guidance on the science underlying Agency decisions.
Incorporate innovative approaches to environmental management into EPA programs, so that EPA
and external partners achieve greater and'more cost-effective public health and environmental
1 protection.
GPRA Goal 9: A Credible Deterrent to Pollution and Greater Compliance with the Law.
Identify and reduce significant non-compliance in high priority program areas, while maintaining a
strong enforcement presence in all regulatory program areas. .
Promote the regulated communities' voluntary compliance with environmental requirements through
' compliance incentives and assistance programs.
Appendix A-3
-------
APPENDIX B
Status of Developments on Binational Toxics Strategy
Level 1 Substances
Appendix B-1
-------
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Beyond key steps already taken, ac
and PBT Strategy activities such as
air emissions using cross-media aul
residues in fish, new watershed de
research, and Gulf of Mexico activi
closely with PBT Strategy dioxin ef
partners to better quantify dioxin/fi
representative developing countries
negotiations.
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ge goal is 75% reduction in releases
-activity sources by 2006. EPA will
ction plan after public release of its
Reassessment, due Spring 1 999, an
t draft Cross-Media Dioxin Strategy.
the BNS work group will begin
duction efforts. EPA is addressing
ns in the negotiation of the global
ntion, which began 6/98.
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EPA heavily regulates PCBs. Problems include disposing of collecte
PCBs, remediating contaminated sediments, and motivating other
countries (e.g., Russia) to reduce risks from PCBs. Two rules (one
complete, one nearly so) will further facilitate industry's remediation
disposal, and replacement -of PCBs. Tlie BNS work group is pursuin
voluntary reductions through expanding Region 5's PCB phase dowi
program, encouraging national replication of the phase down progra
clean sweep pilot in Chicago, and encouraging a national PCB reduc
effort. International capacity building efforts for PCB identification,
management, and disposal are underway and will grow in volume ar
importance with the negotiation and conclusion of the UNEP POPs
convention. ' '
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U.S. challenge-goal is 90% reductii
used in electrical equipment by 20(
workgroup is developing a work pie
national action plan is expected in
will address PCBs in the implement
LRTAP POPs protocol and the nego
UNEP POPs convention, which beg
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EPA will continue clean sweeps to reduce stockpiles in GL Basin, an
work with stakeholders and GL states (NEPPS process) to reduce
pesticide reliance. The possible contribution of long range transport
U.S. loadings is a significant issue to be resolved. OPP will work wi
Mexico to reduce DDT/chlordane rfeliance, speed reaistration of redu
risk pesticides, and work with GLNPO to foster states' promotion of
biological controls through State Management Plans. OPPTS and 01
will lead the EPA component of the U.S. delegation to the UNEP POI
negotiations. -
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EPA will submit "confirmation of no use in automotive gasoline" rer.
under BNS by 12/31/98, broaden stakeholder involvement, encoura
stakeholder minimization of use/release from other sources (e.g.,
aviation, racing), and track efforts to develop unleaded alternatives
aviation and racing fuel. The OECO risk management program and
EPA's efforts to promote phasing out use of lead in gasoline are
ongoing. i
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Benzo(a)pyrene is a polycyclic aromatic hyrdocarbon, a subset of
polycyclic organic matter (POM), which is a large class of substance
that are by-products of incomplete combustion. POM is an area
needing more research. In the LRTAP POPs context, B(a)P will be u
as one of several indicators for overall releases of PAHs, with the
intention of ultimately reducina such releases.
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