311 (b) (2) (B) (ii-iv) — Rates of penalty for Non-removable
311 (b) (4) - Harmful quantities
                        UJ
                        C3
                                Prepared  by


                         Office of Water  Program

                    Environmental Protection Agency

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                           PREFACE
    This staff paper on methodologies, calculations and questions still
outstanding was prepared to present our view on the suhjoet of regu-
lations  required to determine:  a) harmful quantities of hazardous
substances and, b) the rates of penalties which may be applicable to
the discharge of non-removable hazardous substances.  This paper was
developed to provide a basis for technical discussions at the October
21, 22,  and 23, 1974, Hazardous Substance Regulation Symposium
held in  Washington, D. C.  A contractor  report was presented at this
symposium detailing four methodologies and the calculated harmful
quantities and rates of penalties for each substance by each method.

    Comments developed during this symposium will be useful to the
Working Group and the Steering Committee in the process of regu-
lation development within the Agency.  Also, the symposium provides
opportunity for the public to assume a definite role in the rulemaking.
This  staff paper should be used for the purpose  intended  and the reader
should  recognize that his suggestions and comments will be considered
in addition to those of others as the regulations  are developed.

    The staff would be most interested in receiving comments and
suggestions and meeting with parties interested in the subject of this
paper.  Inquiries and comments should be directed to Dr. Allen L.
Jennings or myself at:

                Hazardous and Toxic Substances Branch
                WH-595
                Office of Water and Hazardous Materials
                 U. S. Environmental Protection Agency
          or call (202) 245-3036
                                 Dr. C. Hugh Thompson
                                        Chief
                          Hazardous and Toxic Substances Branch

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             ENVIRONMENTAL PROTECTION AGENCY

                         [40 CFR Part 1 17]

                     HAZARDOUS StmSTANCUS

                          STAFF PAPER

FOR DETERMINATION OF HARMFUL QUANTITIES,  RATES OF PENALTY,

                  AND UNITS OF MEASUREMENT



    The Environmental  Protection Agency is hereby giving advance

notice of intent to create a new part 117 of Title 40 of the Code of

Federal Regulations pursuant to the authority contained in Sections

311(b)(2)(B)(iv) and 311(b)(4) of the Federal Water Pollution  Control

Act Amendments of 1972 (33 U.S. C.  1251 et seq.  (the Act)).



    Section 31 l(b)(2)(B)(iv) of the Act provides as follows:
               "The Administrator shall establish by
               regulation,  for each hazardous substance
               designated under subparagraph (A) of
               this paragraph,  and within 180 days of
               the date of such designation, a unit of
               measurement based upon the usual trade
               practice and, for the purpose of  determining
               the penalty under clause (iii)(bb) of this
               subparagraph, shall establish for each
               such unit a fixed monitary amount which
               shall be not less than $100 nor more than
               $1, 000 per unit.  He shall establish such
               fixed amount based on the toxicity, degrad-
               ability, and dispersal characteristics of the
               substance."

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                               -2-
    Section 311(b)(4) of the Act states:
                  "The President shall by regulation,  to be
                  issued as soon as possible after the date
                  of enactment of the paragraph, determine
                  for the purposes  of this section, those
                  quantities of oil and any hazardous sub-
                  stances the discharge of which,  at such
                  times, locations, circumstances,  and
                  conditions,  will be  harmful to the  public
                  health or welfare of the United States,
                  including, but not limited to, fish, shell-
                  fish,  wildlife, and public  and private
                  property, shorelines, and beaches except
                  that in the case of the discharge of oil
                  into or upon the waters  of the  contiguous
                  zone, only those  discharges which
                  threaten the fishery resources of  the
                  contiguous zone or  threaten to pollute
                  or contribute to the pollution of the
                  territory or the territorial sea of  the
                  United States may be determined to be
                  harmful. "
    Executive Order 11735 dated August 3,  1973,  delegated the authority

of the President under Section 311(b)(4) to the Administrator of the

Environmental Protection Agency.



    Sections 311(b)(2)(A) and 311(b)(2)(B)(i) of the Act require that the

Administrator designate hazardous substances and make a determination

whether any such designated substance can actually be removed.   On

August 22, 1974, the Assistant Administrator for Water and  Hazardous

Materials published an Advance Notice of Proposed Rulemaking (Federal

Register. Vol. 39,  No. 164, p. 30466-30471)  setting forth tentative

criteria by which substances are considered for designation as hazardous

substances, substances currently under consideration,  factors which

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                               -3-
influence the determination of removability, and an initial determination



of the removability of substances currently under consideration.  In



addition, public comment and data were requested on all aspects of



the proposed action.








    As a result of technical studies recently conducted by the Agency,



several alternative approaches to the determination of harmful quantities,



units of measurement,  and penalty rates have been developed and



are under consideration.   This Advance Notice  of Proposed Rulemaking



sets forth the basis of those alternative approaches and makes  an initial



determination of the harmful quantities, penalty rates,  and units of



measurement associated with substances under consideration and listed



in Federal Register,  Vol.  39, No.  164, p. 30466-30471,  August 22,



1974.  Certain questions of cost, benefit, simplicity in implementation,



required accuracy of the determination, and equitability of enforcement



make it necessary to examine these methodologies from as wide  a



public exposure as is feasible.  This Advance Notice  of Proposed



Rulemaking is being issued to solicit public comment on the method-



ologies  under consideration and the appropriateness of harmful quantities,



penalty rates, and units of measurement derived from the methodology



tentatively selected as the most appropriate.

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                                -4-
            Methodologies for Determining Harmful Quantities



A.  DOHM Methodology

    This approach involves the use of a simplified plug-flow model to

determine harmful quantities of hazardous materials based on the amount

of material  required^to pollute a critical volume of water to a level

equal to the lethal concentration  of the substance.  Statistical analysis

of information for U. S. drainage basins was used to  determine the
                                                           3
critical volume.  The average median flow rate chosen was 1m  /sec
     3
(36 ft /sec)  which is equaled or exceeded by 95% of the streams in

the United States.  A factor was  derived for modifying the model  to

consider spills compressed to higher concentrations in smaller duration

plugs.  The factor is used to translate readily available 96 hour bio-

logical  test  data to shorter exposure periods.  A means of modifying

general case harmful quantities to apply to specific  stationary sources

was also developed.



B.  Resource Value Methodology

    A water resource value of $10, 000 is employed as a threshold for

defining substantial harm.  Spilled quantities capable of producing

environmental damage in excess  of that amount are  defined as greater

than harmful quantities.   Various types of water bodies are associated

with per unit economic values based on their non-withdrawl uses.

Locational variables  are  derived to account for variable dispersive

capacity of individual water bodies.

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                                 -5-
C.  IMCO Methodology

    Potentially hazardous materials are grouped into four categories

in this approach.  The basic categories were originally developed by

a joint Group of Experts on the Scientific Aspects of Marine Pollution

(GESAMP) under the aegis of the Intergovernmental Maritime Consul-

tative Organization (IMCO).  The critical concentration used to deter-

mine a harmful quantity by this method is the mean value for the

hazard category rather than that for individual materials.  This dimin-

ishes the number of calculations required in establishing harmful

quantities and lends itself to coded labeling of shipment containers for

rapid recognition and reporting of discharges in excess of harmful

quantities.




    Like the "resource value" method described above, a harmful quantity

is defined as that amount capable of contaminating $10, 000 worth of

aquatic environment.




D.  Units of Measure Methodology

    The spectrum of liquid and dry shipping containers is reviewed and

divided at the apparent break between bulk  containers  and individual
                     t
package units.  The smallest bulk unit is defined as the harmful

quantity for the least noxious hazardous materials as classified in the

IMCO groupings.  Harmful quantities for the remaining groups of

materials are designated on the basis of their toxicities relative to

the least hazardous grouping and then rounded to the nearest actual

container size.

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                               -6-
           Methodologies for Determining Rates of Penalty








A.  DOHM Methodology



    Base rates of penalty are established to equal the cost of reasonable



spill prevention measures so as to provide an incentive for spill



reduction.  Rates are based on industrial cost estimates  and historical



spill experience.  Appropriate factors are developed to vary rates of



penalty up to twice the base rate as a function of the dispersion potential,



toxicity and degradability of individual substances under consideration.







B.  Resource Value Methodology



    Contamination of water resources whose economic  value is equal



to or greater than $10, 000 is defined as substantial harm.  Rates of



penalty are established which approximate the value of the damaged



resource.  Therefore, initial rates are $10, 000 per harmful quantity



and lesser discharges are proportionally reduced.  These rates are



subsequently modified by coefficients  reflecting persistence and



physical /chemical differences between materials which enhance or



inhibit movement in the environment.







C.  IMCO Methodology



    Rates of penalty are derived in the same manner as the resource



value methodology.  However, the critical concentration  employed is



that for the hazard group rather than for each individual material.



Further adjustments are made to reflect the effect of particular



physical/chemical properties of the material  on the environment.

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                              -7-
D.  Units of Measure Methodology



    Rase rate* of penalty art' set at $1. 000 per- harmful quantity unit



derived by this methodology as outlined above and modified through



use of adjustment factors for individual materials.








    Based on an evaluation of the technical  study, the Agency is con-



sidering use of the following approaches and is giving advance notice



of intent to propose rules along these lines.  Information provided



to the Agency will be considered in the adoption of proposed rules.








    Tentative Approach for the Determination of Harmful Quantities








A.  DOHM Methodology for Streams



    The use of a plug-flow model to characterize a stream requires



a number of simplifying assumptions.  The spilled hazardous material



is assumed to mix  instantaneously to a uniform concentration equal to



the critical concentration.  After this initial mixing,  the plug is assumed



to proceed downstream without further mixing or disipation.  Consequently,



time of exposure at any point in the stream is a function of spill size



and stream flow rate.








    In order to define a harmful quantity (mass) of pollutant based



on a critical concentration,  (mass per unit volume), one must specify



a stream flow rate and a time interval to derive a volume.  A rep-



resentative stream flow was found by dividing the continental United



States into drainage basins,  classifying them according to runoff

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volume,  and then performing a detailed statistical analysis on represen-

tative basins.  Streams whose median flow rate equals 1. 0 cubic meter

per second (36 cubic feed per second) have been selected to be the

minimum size considered.   Ninety-five percent of the total water runoff

in the United States occurs in streams of this size or larger.



    The mathematical relationship arising from this model is given by

the equation (HQ) = 0TFK,  where HQ -  "harmful quantity" = mass
                                                3
of pollutant spilled (kg), F  = stream flow rate (m  /second), © = time

for plug to pass a fixed point (hours), T - critical concentration (mg/1)
                                                     3
and K - a constant  to convert units (sec-kg-1/hr-mg-m   ).



    Toxicity to aquatic  life  as measured by the  96 hour LC50 (that

concentration lethal to  50% of the test animals in 96 hours) is used

as the basis for determining the critical concentration.



    Because of variation in sensitivity to chemical toxicants is found

among various species of aquatic life and no single  aquatic species

is common to the entire United States,  96 hour LC50 data for median

sensitivity species  have been selected as representative of the important

species found in  different environments.



    When 96 hour LC50 data are employed to define substantial harm

without further qualification, substantial harm  can only be interpreted

as exposure of the aquatic population to a concentration equal to the

LC50 for 96 hours or more.  However,  condensation of this harmful

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                              -9-
quantity into a plug requiring less time to pass will result in still



higher and potentially more harmful concentrations.  A time of passage



range must therefore be defined.  Correlation of data on fish kills




reveals that 95% have a duration of six hours or more.  Thus the



appropriate range of interest is 6-96 hours.








    Available time-dose mortality relations were gathered and reviewed



to determine the average relation of the 96 hour LC50 to the 6  hour



LC50.   A correction factor of 2. 0 was established to convert 96 hour



LC50 data to 6 hour LC50 data.  Finally,  an additional term is needed



to reflect the reduced time of passage of a contaminated plug; 6 hours/



96 hours = 1/16.  Therefore an overall factor of (1/16)  x 2.0 = 0.125  = S



must be applied to harmful quantity found from the equation shown



earlier,  i. e.  (HQ) =  OTFKS.








    In addition to general comments on the appropriateness of  this



methodology, the Agency is specifically interested in information on:








    1).  the validity of assumptions used  in plug-flow models;



    2).  the applicability of plug-flow models to geographic locations;



    3).  the use of an adjusted 96 hour LC50 value as the critical



        concentration;



    4).  the use of a median flow as opposed to a mean,  maximum  or



        low-flow value;



    5).   time-dose mortality relationships of toxicants of aquatic life;

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                               -10-
    6).  the potential number of discharges of each substance in excess

        of the harmful quantity; and

    7).  the effectiveness and impact of calculated harmful quantities.



Example of Harmful Quantity Calculation

    For cadmium sulfate the fresh water critical concentration, T,

equals 12.5 mg/1.  Substituting into the  equation derived from the

plug-flow model,

    (HQ) = 0TFSK
                                   3                    3-6
         - (96 hrs)(12.5 mg/l)(1.0m /sec)(0.125)(3. 60x10 sec/hr)(10   kg/mg)
              3    3
         x (10  1/m )

    (HQ) = 540 kg (1200 Ibs).



    Harmful quantities in streams calculated by the above method for

other potentially hazardous substances may be found in  the following

table.



    At this time, the Agency is considering that listed harmful quantities
                                    3           3
based on the model stream flow of 1m  /sec (36 ft  /sec) may be

applicable only to transportation sources.  In the case of fixed facilities,

consideration is being given to the use of actually determined median

flows for the receiving stream at risk rather than the model stream

flow.  Furthermore,  consideration  is being given to the identification

of vessels as  a special source for which harmful quantities  would be

determined by the use of a model flow-rate representative of those

rivers actually used for waterborne commerce.  Comments regarding

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                              -li-
the advisability, functionality,  and technical implications of these




considerations are especially invited.








B.  Resource Value Methodology for Other Water Bodies



    An economic value of $10, 000 is employed as a threshold for defining



substantial harm by this approach.  Spilled quantities capable of pro-



ducing environmental damage in excess of that amount are defined as



greater than a harmful quantity.   The maximum criminal penalty for



failure to report spilling more than a harmful quantity of hazardous



substances has been set  by law at $10, 000 and/or one year in prison.








    The threshold of $10, 000 is selected as an incentive to polluters



to report thus avoiding possible criminal penalties.   In light  of the



specified criminal penalties, a higher threshold may encourage the



discharger to risk going undetected in the hope of avoiding any penalty.








    The association of dollar values with  volumes of water is necessary



because  the designation of potentially hazardous substances based on



harmful  effects observable at levels specified in mass per unit volume



e.g., mg/1 while harmful quantities are to be specified in units of



mass e. g.,  kg.








Lakes



    Data were collected on the size of various lakes throughout the



country and the value attributable to them. Among the valuation



processes considered were; (1) bond levels passed for water treatment

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                               -12-
facilities or for cleaning up lakes, (2) the present worth of annual



recreation benefits, (3)  purchase prices, and (4) the cost of constructing



and maintaining an artificial lake. Of these,  only recreation benefits



deal with uses directly affected by hazardous material spills i.e.,



sports fishing and water contact sports.  The first process merely



sets a minimum value level while the third and fourth processes



include additional land values and other considerations which cannot



be separated out.  Consequently,  the values for fresh water lakes are



best based on evaluations of the recreational uses of the water.







    Normalizing these values to a cost per unit volume quickly reveals



that as a lake becomes larger the value per unit volume of water becomes



smaller.  Pertinent data suggests a present worth value of $0.16 per



cubic meter ($200 per acre-foot) for lakes of volume equal to or greater



than 61,650 cubic meters (50 acre-feet).  The "total value"  of the



minimum-size lake is then set at $10, 000.  This unit value is approxi-



mately 2.5 to 4 times  that used by the National Water Commission.



The  lower value arises from the Commission's averaging over all water



bodies in the United States, obviously including very large ones.







Estuaries
    The same basic evaluation method used for lakes was also used for



estuaries.  The annual dollar value of commercial and sport fishing



activities were determined for various estuaries.  Normalizing to val;ue



per unit volume, assuming an average depth of 3 meters (approximately



10 feet),  reveals much less variation in this parameter among estuaries

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                               -13-
than among lakes and suggests a present-worth value of $400 per acre-

foot or $0*32 per cubic meter.  The associated minimum volume worth

a total of $10, 000 is then 25 acre-feet or 30, 825  cubic' motors.



Coastal Waters

    Complications arise in placing a value on the resources threatened

by potential spills in coastal zones due to the great size of this zone

and the constant interchange between coastal waters and estuaries.



                                                              13
    The 12-mile contiguous zone contains approximately 3.5 x 10
                      10
cubic meters (2. 8x10   acre-feet) of water.  These waters have

direct effects on commercial fishing,  a limited amount of sport fishing,

and on recreational marine swimming.  Annual receipts from commercial

fishing are approximately $500 million while receipts related to

swimming are approximately $1.5 billion.



    If the present worth of these resources is considered an investment

yielding  six percent annual interest, $2 billion in interest implys an

investment of $33 billion.  The value per unit volume for coastal waters

is thus $973 per million cubic meters  ($1.20 per acre-foot).



    However,  pollution of coastal waters is also a potential threat to

estuaries.  On the average, half of the water in an estuary is derived

from the coastal zone.  That is, tidal  interchange of estuarine and

coastal waters averages fifty percent.  The nation's estuaries contain
                      11                     8
approximately 3.7 x 10   cubic meters (3  x 10  acre-feet) of water

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                               -14-
or, around one percent of the volume of the 12 mile coastal zone.

The combined probability of estuarine pollution due to pollution of the

coastal zone is thus (0.50) x (0.01) = 0.005 or 0.5%.  Since estuarine

waters have a value of $324, 400 per million cubic meters ($400 per

acre-foot),  the value of threatened estuarine water is (0. 005) x ($324, 400

per million cubic meters) = $1622 per million cubic meters ($2.00 per

acre-foot).



    The overall value of resources threatened by spills in the coastal

zone is then $973 per million cubic meters ($1.20 per acre-foot),  the

intrinsic value of coastal waters,  plus $1622 per million cubic meters

or $2595 per million cubic meters ($3.20 per acre-foot).  The minimum

volume worth of $10, 000 is then 3. 853 million cubic meters (3125

acre-feet).



Summary

    The results of considerations  detailed  above for lakes,  estuaries

and coastal waters are tabulated below:
                                                     Critical Volume
Water Body                Value                     ($10, OOP value level)
                                                     -         -5
Lakes                      $0.16/cu meter           6.165x10  cu meters
                            ($200/acre-foot)          (50 acre-feet)
                                                               4
Estuaries                   $0.32/cu meter           3.083x10  cu meters
                            ($400/acre-foot)          (25 acre-feet)
                                                               6
Coastal Waters              $0.0026/cu meter         3. 853 x 10  cu meters
                           ($3.20/acre-foot)         (3,125 acre-feet)

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                              -15-
Example Harmful Quantity Calculations

    The same potentially hazardous substance picked as an example

for stream harmful quantity calculation, cadmium sulfatc, is again

used as an example for other water bodies.



    fresh water critical concentration = 12. 5 mg/1

    salt water critical concentration   = 16.5 mg/1
                                          33           43
Harmful Quantity - Lake   = (12.5 mg/l)(10 1/m )(6. 16 x 10  m  )
                                -6                   1
                           x (10  kg/mg) - 77.0 x  10  kg

                           770 kg (1,694 pounds)
                                                  1
Harmful Quantity - Estuary = (16.5 mg/l)(3. 08 x 10  1 - kg/mg)

                           508 kg (1, 118 pounds)


                                                 33           63
Harmful Quantity - Coastal Zone   = (1.65 mg/lKlO  1/m  )(3. 85 x 10 m  )
                                       -6                   3
                                  x (10  kg/mg) = 63. 5 x 10   kg

                                  = 63, 500 kg (139, 700 pounds)
    Harmful quantities calculated by this method for other potentially

hazardous substances are listed in the following table.



    In regard to the selection of a suitable methodology for deriving

harmful quantities  for lakes,  estuaries, and coastal zones,  the Agency

is particularly interested in comments  and data pertaining to:

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                              -16-
    1).  the appropriateness of $10, 000 as a resource value threshold

        for calculation of the harmful quantity which results in man-

        datory reporting;

    2).  the method by which water body values are derived;

    3).  the effectiveness and impact of calculated harmful quantities;

        and

    4).  the potential number of discharges of listed substances in

        excess of the harmful quantity.



         Tentative Approach for Calculation of Rates of Penalty



    An initial determination has been made that the most effective and

generally equitable base rate of penalty for all four water body types

is $10, 000 per harmful quantity with proportionate amounts assessed

for lesser quantities. Additional adjustments to this rate are made

based on the persistence and dispersibility of the pollutant.  The final

rate of penalty is derived by multiplying the base rate  of penalty ROP  ,
                                                                   b
times a persistence factor,  P, and a dispersibility factor, D, according

to the equation,

    ROP - (PXDKROP  ).
                      b



Persistence

    In many cases spills will devalue a water body for  only a finite period

of time.   Use of  the persistence factor alone is intended to give a

penalty representing the value (interest) lost to society if the resource

were considered an  investment yielding six percent interest per year,

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                              -17-
or, more precisely, an annuity which at six percent per annum over

infinite time,  equals the present worth of the  resource.



    Individual potentially hazardous substances were assigned to more

general classifications, as shown in the following table.  The average

time span for recovery from a spill of each class of material was

then estimated.
   IMPACT PERIODS ASSIGNED TO MATERIAL CLASSIFICATIONS IN
       DERIVING THE "P" FACTOR (PERIODS GIVEN IN YEARS)
                                              Water Body Type
Material Classification
Organic -


Inorganic

Degradable
Persistent
Bioconcentrative
- Bioconcentrative
Nonbioconcentrative
Lake
2
7
oo
oo
2
River
1
1
3
3
1
Estuary
3
5
oo
oo
4
Coastal Zone
1
2
2
2
1
    No material is credited with an impact duration of less than one

year.  While acute lethality may be exhibited in hours, repopulation,

particularly at higher trophic levels, takes far longer.  Similarly,

a minimum impact period of three years has been assigned for estuaries

where non-mobile shellfish species require the extra time to reach

maturity.  Bioconcentrative materials have been assigned an infinite

impact period for the more static water bodies where environmental

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                               -18-
cycling and accumulation in the food chain can extend the potential



effects of a spill over an essentially indefinite period.








    Using annuity tables, present worth factors can be associated with



the impact periods defined above,  at six percent.  The "P" factor



is then derived by the ratio of the present worth factor for a finite



period of years to the present worth factor for 100 years or essen-



tially an infinite period of time (16.7).








    Persistence factors  associated with the selected impact periods



are shown below.
                                               Water Body Type
Material
Organic -
Inorganic
Classification
• Degradable
Persistent
Bioconcentrative
- Bioconcentrative
Non -Bioconcentrative
Lake
0.
0.
1.
1.
0.
11
33
00
00
11
River
0.
0.
0.
0.
0.
06
06
16
16
06
Estuary
0.16
0.25
1.00
1.00
0.21
Coastal
0.
0.
0.
0.
0.
06
11
11
11
06
Dispersibility




    The second adjustment factor,  D, must consider physical/ chemical



properties of the material,  such as specific gravity, solubility, and



volatility,  as well as the resources which could be damaged in a given



type of water body.  In order to assign factors  the materials were



categorized into classifications based on their predicted response to

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                              -19-
spillage in water.  A panel of scientists was then asked to assign



factors for spillage of each classification of material into each type of



water body.  Miscible substances were identified with a D of 1.0 to



act as  the base comparator for the four water types.  Other classifi-



cations were then rated on the basis of their tendency to spread more



or less than a miscible substance and to affect the most critical sector



of the host environment.








    For the purpose of the classification process,  the following definitions



were employed:



    miscible  - liquid substances which can freely mix with water to



              any proportions or have a solubility greater than



              1,000, 000 ppm








    mixer -   solid substances which freely mix with water or have



              a solubility greater than 1, 000, 000 ppm








    precipitators - salts which dissociate in water with the subsequent



              precipitation of the toxic ion








    insoluble volatile floaters - materials lighter than water with a



              vapor pressure greater than 10 mm Hg and a solubility



              of less than 1, 000 ppm or materials with solubility less



              than 10, 000 ppm and vapor pressure greater than



              100 mm Hg

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                               -20-
    insoluble nonvolatile floaters - materials lighter than water with



              a vapor pressure less than 10 mm Hg and solubility



              less than 1, 000 ppm







    soluble floater - materials lighter than water and solubility greater



               than 1,000 ppm







    insoluble sinker - materials heavier than water and of solubility



               less than 1, 000 ppm





    soluble sinker - materials heavier than water and of solubility



                greater than 1,000 ppm








The results of the panel's independent scoring are  tabulated below.








    RELATIVE "D" FACTORS FOR VARIOUS WATER BODY TYPES







                                          Water Body  Types
Material Classification
Miscible
Mixing
Precipitator
Insoluble Volatile Floater
Insoluble Nonvolatile Floater
Insoluble Floater
Insoluble Sinker
Soluble Sinker
Lake
1.0
0.84
0.73
0.31
0.74
0.86
0.59
0.83
River
1.0
0.80
0.71
0.31
0.62
0.86
0.58
0.85
Estuary
1.0
0.84
1.3
0.27
0.60
0.82
1.35
1.05
Coastal Zone
1.0
0.78
0.55
0.35
0.94
0.86
0.43
0.59

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                               -21-
    Several specific interpretations arise from the preceeding table.

In general,  miseible substances were felt to have the maximum potential

for spreading in the critical sector of the environment.  The three

exceptions were sinking and precipitating materials in estuaries where

shellfish are a major factor in the value of the resource.  Floating

substances  received somewhat higher ratings than sinkers in coastal

waters because of the  surface transport processes which would bring

spills into the beach and estuarine zone.



Example of Final Rate of Penalty Calculation

    The final rate of penalty for a spill of a minimum harmful quantity

of cadmium sulfate in  a river is  shown below:

    ROP = (P)(D)(ROP  )
                      b
         = (0. 16)(0.71)($10, 000)

         = $1136  per HQ

         - $2. 10  per kg ($0. 95/lb)



    Final rates of penalty which include considerations of persistence

and dispersibility for  other potentially  hazardous materials, are found

in the following table.



    Because attempts  to define units  of measure common  to the usual

trade practice failed to reveal any such common unit other than multiples

of mass  quantities  such as pounds or kilograms,  all penalty rates are

expressed on a dollar per pound  or kilogram basis for ease in com-

parison.  Actual  units of measure expressed in pound quantities may

-------
                               -22-
be derived from the tables by multiplying by 1, 10, 100, 1000, etc.



resulting in dollars per pound,  ten pounds, hundred pounds, thousand



pounds,  etc. such that the dollar value ranges between $100-$!, 000



as specified in Section 311.








    Regarding the derivation of penalty rates, the Agency is particularly



interested in comments and data relative to:








    1).  the effectiveness and equitability of utilizing the value of



        $10,000 per harmful quantity to establish base penalty



        rates;



    2).   the use and magnitude  of persistence factors;



    3).   the use and magnitude  of dispersibility factors;



    4).   the appropriateness of derived penalty rates;



    5).   the potential  impact of penalty rates on handlers of poten-



         tially hazardous substances; and



    6).  expression of units normalized to a per pound or kilogram



        base








    Because of the number of materials potentially included, the com-



plexity of evaluation methods and calculations,  and the potential impact



on affected parties, the Agency deems it appropriate to solicit comments



and data on the tentative approach as constituted above, through this



advance  notice.   This is being done with  a view toward obtaining infor-



mation relevant to subsequent rulemaking action.  In addition, the Agency



is interested in comments about whether the general magnitude of

-------
quantities and penalties is comensurate with the problems to be dealt



with and the intent of the  statute.








    It is  realized that the quantities and penalties tentatively set forth



herein may be over-protective in some instances and under-protective



in others.  To partially compensate for such discrepancies,  con-



sideration is being given  to the use of adjustment factors to be applied



to the rate of penalty which consider, on a case-by-case basis, the



size and character of the water body actually receiving the discharge.



Also under consideration is the categorization of potential hazardous



substances on the basis of relative toxicity or computed harmful



quantity. Such groupings may be beneficial to the overall workability



and clarity of the  proposed action by reducing the number of individual



harmful  quantities which  must be reported in the event of discharge.
                              -23-

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