THE UNITED STATES
ENVIRONMENTAL PROTECTION AGENCY
Legislation,
Programs
and
Organization
(Revised January 1979)
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This document has been prepared to introduce to you the Environmental
Protection Agency and its programs. The document is organized to acquaint
you with the legislation authorizing EPA activities, the history and
present organization of EPA, the pollution control programs operated by
the Agency, and the EPA budget.
I. EPA LEGAL AUTHORITIES 2
II. HISTORY AND ORGANIZATION 13
ORGANIZATION DIRECTORY 16
MAJOR FACILITIES OF EPA 18
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III. PROGRAM SUMMARIES
AIR 19
WATER QUALITY 24
Wastewater Treatment Plant Construction Grants -
State Allocations 27
WATER SUPPLY 28
SOLID WASTES 30
PESTICIDES 32
RADIATION 33
NOISE 36
TOXIC SUBSTANCES 39
RESEARCH AND DEVELOPMENT 41
ENERGY 45
AGENCY & REGIONAL MANAGEMENT 48
PROGRAM MANAGEMENT & SUPPORT 50
V. EPA BUDGET
APPROPRIATIONS STRUCTURE 52
APPROPRIATION HISTORY 56
JANUARY 1979
OFFICE OF RESOURCES MANAGEMENT
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I. EPA LEGAL AUTHORITIES
AIR
The Clean Air Act as amended in 1970 and 1977 is the basic authority for
the air pollution control program designed to protect the public health
and welfare. The major features of the Act are as follows:
National Ambient Air Quality Standards - The Act directs EPA to establish
national ambient air quality standards for specific pollutants to protect
the public health and welfare. Standards have been set for sulfur di-
oxide, particulates, oxides of nitrogen, carbon monoxide, hydrocarbons,
ozone and lead.
State Implementation Plans - To meet, maintain and enforce the standards
each State must formulate an implementation plan. EPA must review each
plan; if a State fails to submit a satisfactory plan, EPA is required to
prepare a plan. If a State fails to enforce its plan, EPA may enforce it.
The 1977 amendments delay the attainment dates of areas violating the
ambient air standards and require each State to submit a revised plan
which must provide for attainment of standards as soon as practicable, but
not later than December 1982 (1987 under some circumstances).
New Source Performance Standards - The Act requires EPA to set standards
of performance for new and modified stationary sources of pollution.
These standards are not ambient standards; they are direct emission
limitations for specific types of sources, such as Portland cement plants
and coal-fired power plants.
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Hazardous Air Pollutants - For stationary source pollutants which are
particularly hazardous, the Act directs EPA to set National emission
standards. These standards apply to existing as well as new sources.
Auto Emission Controls - The Act requires EPA to establish regulations
requiring a 90 percent reduction in the emissions of carton monoxide and
hydrocarbons from 1970 model year levels. The hydrocarbon reduction is to
be effective with 1980 model year cars. (The Act originally established a
compliance date of the 1975 model year to meet this reduction.) Nitrogen
oxide emissions are to be reduced to 0.1 grams per mile in 1981, a re-
duction of approximately 75% from pre-control emission levels. Particulate
emissions standards for classes or categories of vehicles are also
required beginning with the 1981 model year. Reductions in emissions from
heavy duty vehicles, generally corresponding to the degree of stringency
imposed on passenger cars, are also imposed in 1983 and 1985.
WATER QUALITY
The Clean Water Act of 1972 as amended in 1977 is the primary authority
for the water pollution control programs. The act is designed to make our
waters fishable and swimable.
Effluent Limitations - The law directs EPA to set effluent limitations to
limit discharges of pollutants from industrial and municipal sources.
Municipalities not achieving a mid 1977 goal of "secondary treatment" can
apply for an extension. These extensions, issued on a case by case basis,
can not be valid beyond mid 1983. The law also provides the choice of
three enforcment options for industries failing to meet the mid 1977 goal
of reaching "best practicable control technology". Effluent limitations
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requiring the application of "best available technology" for industrial
non-toxic and non-conventional sources must be achieved no later than July
1, 1987. The Act also requires the setting of effluent limitations for
certain toxic chemicals by mid 1980 and the implementation of these
standards by no later than mid 1984.
Wastewater Discharge Permits - The Act authorized EPA or States to issue
permits for discharges of pollutants by municipal and industrial sources.
Ihe permits generally conform with effluent limitations.
Water Quality Standards - Water quality standards are established for all
navigable surface waters. Standards consist of a designation of the use of
the stream (recreational purposes, agricultural and industrial, public
water supply, etc.) and water quality criteria sufficient to protect the
stream for such uses. Criteria are established for such parameters as
temperature, dissolved oxygen, microbiological content, toxic pollutants,
etc. Wherever the effluent limitations are inadequate to achieve water
quality standards more stringent limitations will be applied to the
sources discharging into these bodies.
Municipal Pollution Control - The Clean Water Act provides a program of
Federal grants for construction or major modification of wastewater treat-
ment plants. The Federal share for most projects is 75 percent, however,
in some cases may rise to 85 percent. The Clean Water Act authorizes
$24.5 billion from FY 78 - FY 82.
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Planning - The Act places major emphasis on planning. Facility planning
is carried out by local agencies to ensure that the most effective and
efficient type of waste treatment will be selected. Integrated planning
and management agencies are required to be established for all major
metropolitan areas; Statewide planning is also required. The Act
authorizes Federal financial support to these State and local agencies.
Ocean Dumping - Under the Marine Protection, Research and Sanctuaries Act
of 1972, EPA is authorized to designate ocean dumping sites, issue permits
for ocean dumping which may include'implementation plans to phase out
ocean dumping, and assess penalties for improper ocean dumping.
WATER SUPPLY
The Safe Drinking Water Act of 1974 is the basic authority for the Water
Supply Program.
Drinking Water Regulations - The Safe Drinking Water Act directs EPA to
establish national drinking water regulations to protect public health
and welfare.
State Enforcement Responsibility - Safety of drinking water is primarily
the concern of State and local governments. However, if a State fails to
comply with national public health standards or to satisfy minimum State
program requirements, EPA is required to establish and enforce a program
to supervise public water systems in the State.
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Protection of Underground Sources of Drinking Water - The Safe Drinking
Water Act requires control of underground injections which could endanger
underground sources of drinking water. EPA is required to publish
regulations containing minimum requirements for State programs, including
prohibition of underground injections which are not authorized by State
permits.
SOLID WASTES
The Resource Conservation and Recovery Act of 1976 is the authority for
the Solid Wastes Program.
Hazardous Waste Management - The Act requires that each facility that
treats, stores or disposes of hazardous wastes have a permit issued by a
State or EPA. EPA will publish criteria for identifying hazardous waste
and a list of such wastes by January 1980. Standards governing the gen-
eration, transport, treatment, storage or disposal of hazardous wastes
will also be published by January 1980. The Act authorizes Federal grant
support for States that wish to operate hazardous waste programs,
including the issuance of permits. If States do not establish hazardous
waste programs, EPA must assume the responsibility required by the Act.
Solid Waste Disposal Planning - The Act encourges States to develop
environmentally sound plans for solid waste disposal. The Act requires
that an inventory be conducted of all waste disposal sites. Federal grant
support of State and local programs is authorized through FY 1979.
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Research, Development and Demonstration - The Act authorizes the Agency to
conduct research, development and demonstrations in areas such as resource
recovery, resource conservation and solid waste disposal.
Technical Assistance - EPA is to provide State and local governments with
technical assistance through teams of Federal, State and local employees
or contractors.
PESTICIDES
The Federal Insecticide, Fungicide and Podenticide Act as amended in 1972,
1975, and 1978 is the basic authority for the Pesticides program. It
authorizes a comprehensive program to regulate the manufacturing,
distribution and use of pesticides as well as major research efforts into
the effects of pesticides.
Pesticide Registration - All pesticides must be registered and classified
for "general" use or "restricted" use. Those placed in the restricted
category may be used only by, or under the supervision of, certified
applicators.
Applicator Certification - States with EPA-approved certification plans
train and certify pesticide applicators to use restricted pesticides. EPA
must train and certify applicators in the remaining few States without
plans.
Prohibition of Misuse - The use of registered pesticides in a manner in-
consistent with label instructions is prohibited by the Act. The label
directions and precautions are approved by EPA at the time of registration.
Misuse of a pesticide is subject to civil and criminal penalties.
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State Authorities - Under the Act, a State may register certain pesticide
products or issue experimental permits to meet special local needs.
Federal Assistance - The Act authorizes Federal assistance to the States
for enforcement and to help develop and administer applicator certifica-
tion programs.
Research and Monitoring - EPA may conduct research on pesticides and
alternatives, issue experimental use permits, and monitor pesticide use
and presence in the environment.
Tolerance Levels - Under authority of the Federal Food, Drug, and Cosmetic
Act, EPA establishes tolerance levels for pesticide residues on food and
animal feed.
RADIATION
There is no single Act which establishes the authority for EPA's radiation
abatement and control program. Under Reorganization Plan No. 3 of 1970,
which established EPA, certain broad authorities were transferred to EPA.
These together with authorities vested under other Federal Acts, but
applicable to the EPA radiation program, establish the parameters for the
program.
Standards and Guidelines - Under Reorganization Plan No. 3 the functions
of the Federal Radiation Council were transferred to EPA. EPA issues
radiation protection guidance to all Federal agencies. In addition, under
the Atomic Energy Act of 1954, EPA was tranferred the function of the
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Atonic Energy Commission to establish generally applicable environmental
radiation protection standards.
Monitoring and Analysis - Under the Public Health Service Act, (42 USC 241)
Section 301, EPA has the authority to monitor radiation levels in the
environment.
State Assistance - Ihe Public Health Service Act (42 USC 243), Section 311
provides the authority to assist States in radiation control efforts; the
Federal Radiation Guidance authorizes the establishment of cooperative
programs with States.
Ocean Dumping - Ihe Marine Protection Research and Sanctuaries Act of 1972
provides EPA with the authority to control the ocean disposal of radio-
active wastes.
NOISE
The Noise Control Act of 1972 is the basic legislation for EPA's noise
abatement and control program. This act was amended in what is known as
the Quiet Communities Act of 1978.
Noise Emission Standards - The Act directs EPA to identify products which
are major sources of noise, and to establish noise emission standards,
necessry to protect the public health and welfare, taking into considera-
tion technology and costs. EPA is to enforce compliance with these
standards.
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Aircraft and Airport Noise Standards - The Act directs EPA to submit pro-
posed regulations to control aircraft and airport noise to the Federal
Aviation Agency (FAA) which shall consider them prior to prescribing the
same regulations, a modified regulation or no regulation. If EPA believes
the FAA's action does not protect the public health and welfare, it may
request the FAA to review its decision and make public the reason for its
action.
Labeling - The Act requires EPA to prescribe labeling regulations for any
product which emits noise capable of affecting the public health and
welfare or which is sold on the basis of its effectiveness in reducing
noise.
Railroad Noise Standards - The Act directs EPA to establish noise emission
standards for railroads taking into account the best available technology
and the cost of compliance. These regulations are enforced by the
Department of Transportation.
Interstate Motor Carrier Noise Standards - The Act directs EPA to
establish standards for motor carriers similar to those for railroads.
Noise Research - EPA is directed, under the 1978 amendments, to determine
the psychological and physiological effects of noise on the public welfare
with special emphasis on the non-auditory effects of noise.
State & Local Grants - The 1978 amendments gives EPA specific authority to
assist State and local governments in order to encourage the development
of effective noise control. EPA is empowered to provide direct technical
assistance in the areas of monitoring, manpower development and other areas.
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TOXIC SUBSTANCES
The Toxic Substances Control Act of 1976 is the authority for the Toxic
Substances Program.
Testing - If the EPA finds (1) that a chemical substance may present an
unreasonable risk to health or the environment, and (2) there are in-
sufficient data to predict health or environmental effects, manufacturers
may be required to conduct tests to evaluate a chemical's characteristics
such as persistence, acute toxicity, or carcinogenic or mutagenic effects.
Priority of Chemicals to be Tested - The Act establishes an interagency
committee to develop a priority list of chemical substances to be tested.
Up to 50 chemicals may be listed by the committee; within one year of a
chemical's listing EPA must initiate testing requirements or publish
reasons for not requiring testing. The chemicals for which EPA may
require testing are not limited to those on the list.
Premarket Notification - Manufacturers of new chemical substances must
notify EPA 90 days prior to their manufacture. EPA may determine if there
is inadequate information to evaluate the health and environmental effects
of new chemicals and require the acquisition of additional data before the
chemical is manufactured or distributed in commerce. The manufacture of a
chemical for a significant new use also requires premarket notification.
Regulation of Chemical Substances - EPA may prohibit the manufacture,
sale, use or disposal of new or existing chemical substances if the Agency
finds these activities to present an unreasonable risk to health or
environment. EPA may also regulate the amount of a chemical that may be
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manufactured and used or the manner in which the chemical is used, or
require chemicals to be labeled with instructions as to proper use or
disposal.
Polychlorinated Biphenyls - Ihe Act requires EPA to issue labeling and
disposal regulations for polychlorinated biphenyls as well as prohibit
their production and distribution after July 1979.
Research and Monitoring - The Act directs EPA, in cooperation with the
Department of Health, Education and Welfare, to undertake research and
monitoring programs.
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II. HISTORY AND ORGANIZATION
EPA was created through an executive reorganization plan designed to
consolidate certain Federal Government environmental activities into a
single agency. The plan (Reorganization Plan No. 3 of 1970) was sent by
the President to Congress on July 9, 1970, and EPA was established as an
Independent Agency in the Executive Branch an December 2, 1970.
EPA was formed by amalgamating 15 components from 5 departments and in-
dependent agencies. Water quality responsibilities were transferred from
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the Interior Department (the Federal Water Quality Administration) and the
Department of Health, Education and Welfare (the Bureau of Water Hygiene).
Other activities transferred from HEW included the National Air Pollution
Control Administration and the Bureau of Solid Waste Mangement.
In addition, EPA acquired the Department of Agriculture's authority to
register pesticides and to regulate their use; the Food and Drug
Administration's authority to set tolerance levels for pesticides which
occur in or on food and to monitor compliance with those limits; and a
portion of the Department of Interior's pesticides research program.
Finally, EPA assumed some of the Atomic Energy Commission's and HEW's
authority for setting environmental radiation protection standards. The
Agency also absorbed the duties of the Federal Radiation Council.
Organizationally, EPA is headed by an Administrator, who is supported by a
Deputy Administrator and six Assistant Administrators (See chart). Three
of the Assistant Administrators are responsible for "functionalized"
activities, i.e., activities which cut across all programs. These
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activities are planning and management, enforcement, and research and
development. The remaining program activities have been grouped under
three other Assistant Administrators on a media or pollutant basis, e.g.,
water pollution, air pollution, solid waste, toxic substances, etc. The
activities carried out by these offices are primarily policy development,
standards and criteria development, and support and evaluation of regional
activities.
EPA has made major progress in decentralizing its operating programs. It
has established regional offices in conformance with the standard Federal
regional boundaries and has assigned major responsibilities for carrying
out EPA programs and policies to the regional offices. These include the
authority to implement and enforce standards, to conduct monitoring and
surveillance programs, and to provide technical and financial assistance
to State and local governments.
EPA is working to increase State participation type activities thru
delegation where permitted and desired by the States. One of the larger
activities where selective delegations is occuring is the Wastewater
Construction Grants Program.
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U. S. ENVIRONMENTAL PROTECTION AGENCY
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UNITED STATES ENVIRONMENTAL PROTECTION AGENCY
ORGANIZATIONAL DIRECTORY
Administrator, Douglas M. Costle (202) 755-2700
Deputy Administrator, Barbara Blum (202) 755-2711
Office of Administrative Law Judges
Herbert L. Perlman (202) 755-5509
Office of Civil Rights
Doris C. Thompson (202) 755-0555
Office of Federal Activities
William N. Hedeman, Jr (202) 755-0777
Office of General Counsel
Joan Z. Bernstein (202) 755-2511
Office of International Activities
Alice B. Popkin (202) 755-2780
Office of Legislation
Charles S. Warren (202) 755-2930
Office of Public Awareness
Joan M. Nicholson (202) 755-0700
Office of Regional and Intergovernmental Operations
J. Edward Roush (202) 755-0444
Assistant Administrator for Planning and Management
William Drayton, Jr (202) 755-2900
Office of Administration
Edward Hanley (202) 755-2911
Office of Planning and Evaluation
Roy N. Gamse (202) 755-2920
Office of Resources Management
Paul J. Elston (202) 755-2744
Assistant Administrator for Enforcement
Marvin B. Durning (202) 755-2500
Office of General Enforcement
Richard Wilson (202) 755-2640
Office of Water Enforcement
Jeffrey Miller (202) 755-0440
Office of Mobile Source and Noise Enforcement
Benjamin R. Jackson (202) 755-2530
Assistant Administrator for Water and Waste Management
Thomas C. Jorling (202) 755-2800
Office of Water Planning and Standards
Swep T. Davis (202) 755-0402
Office of Water Programs Operations
John T. Rhett (202) 426-8856
Office of Drinking Water
Victor J. Kinun (202) 426-8847
Office of Solid Waste
Steffen W. Plehn (202) 755-9170
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Assistant Administrator for Air, Noise, and Radiation
David G. Hawkins (202) 755-2640
Office of Air Quality Planning and Standards
Walter Barber, Jr (919) 688-8146
Office of Mobile Source Air Pollution Control
Michael Walsh (202) 426-2464
Office of Noise Abatement and Control
Charles L. Elkins (202) 557-7777
Office of Radiation Programs
Dr. William D. Rowe (202) 755-4894
Assistant Administrator for Research and Development
Stephen J. Gage (202) 755-2600
Office of Monitoring and Technical Support
Albert C. Trakowski, Jr (202) 426-2202
Office of Energy, Minerals and Industry
Steven R. Reznek, (Acting)...- (202) 755-4857
Office of Air, Land and Water Use
Dr. Thomas A. Murphy (202) 426-0803
Office of Health and Ecological Effects
Dr. Thomas A. Murphy, (Acting) (202) 755-0820
Assistant Administrator for Toxic Substances
Steven D. Jellinek (202) 755-0310
Office of Pesticide Programs
Edwin L. Johnson (202) 755-8033
Office of Chemical Control
John DeKany (202) 755-5483
Office of Testing and Evaluation
Warren R. Muir (202) 755-4895
Office of Program Integration and Information
Marilyn C. Bracken (202) 755-8040
Region I
William R. Adams (617) 223-7210
Region II
Eckardt C. Beck (212) 264-2525
Region III
Jack J. Schramm. , (215) 597-9814
Region IV
John C. White (404) 526-5727
Region V
John McGuire (312) 353-5250
Region VI
Adlene Harrison (314) 749-1962
Region VII
Kathleen Q. Camin (816) 374-5493
Region VIII
Alan Merson (303) 837-3895
Region IX
Paul DeFalco, Jr (415) 556-2320
Region X
Donald P- DuBois (206) 442-1220
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MAJOR FACILITIES OF EPA
Environmental Research Laboratory
Narragansett, Bhode Island
Office of Air Quality Planning and Standards
Durham, North Carolina
Motor Vehicle Emission Laboratory
Ann Arbor, Michigan
Environmental Research Laboratories
Research Triangle Park, North Carolina
Environmental Research Laboratory
Athens, Georgia
Environmental Research Laboratory
Gulf Breeze, Florida
Eastern Environmental Radiation Facility
Montgomery, Alabama
Environmental Research Laboratories
Cincinnati, Ohio
Environmental Research Laboratory
Duluth, Minnesota
Robert S. Kerr Environmental Research Laboratory
Ada, Oklahoma
National Environmental Investigation Center
Denver, Colorado
Environmental Monitoring and Support Laboratory
Las Vegas, Nevada
Environmental Research Laboratory
Corvallis, Oregon
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III. PROGRAM SUMMARIES
AIR
The fundamental objective of the air pollution program is the protection
of public health and welfare from the harmful effects of air pollution.
The Clean Air Act mandates this goal be attained through the prevention
and control of harmful substances in the ambient air. Existing clean air
is to be protected from significant deterioration, and future increases in
emissions are to be minimized in a manner which does not place particular
regions of the country at a competitive disadvantage.
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The Clean Air Act envisions the development and implementation of air
pollution control strategies as State responsibility, while the Federal
government is responsible for setting minimally acceptable standards to
assure the protection of public health and welfare. There are State
controls on stationary sources and transportation systems, and Federal
controls on new motor vehicles, certain new industrial sources and sources
emitting hazardous pollutants.
As a basis for setting standards the Environmental Protection Agency (EPA)
identifies those air pollutants which are a major national problem. EPA
compiles all scientific evidence relating to the impact and effect of each
pollutant after which a standard is set establishing allowable ambient
concentrations. Two types of standards are developed: primary standards
provide a margin of safety to protect public health, while secondary
standards protect public welfare (the effect of air pollution on plants,
animals and materials).
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National Ambient Air Quality Standards have been established for sulfur
dioxide, nitrogen oxides, carbon monoxide, particulates, hydrocarbons,
ozone and lead. With the exception of ozone, these pollutants are
directly produced by sources such as automobiles, power plants and
industrial processes. Ozone is formed by photochemical reactions in the
atmosphere involving hydrocarbons and oxides of nitrogen.
Sulfur oxides result from burning fuel containing sulfur or from chemical
processes involving sulfur compounds. Major sources include coal and oil
fired power plants and boilers, copper and lead smelters, chemical plants
and petroleum refineries. Particulates include compounds ranging from
ordinary wind-blown dust to a fly ash emitted by power plant boilers and
highly toxic compounds escaping from various industrial processes.
Hydrocarbons are a major component of automobile exhaust, but are also
emitted from petroleum refineries, gasoline stations, dry cleaning plants,
paints and solvents, the use of asphalt in pavement and the spraying of
pesticides. Carbon monoxide is emitted mostly by automobiles, although
industrial and residential boilers add a small amount.
Nitrogen oxides can be emitted from any situation in which fuels are burned
at high temperatures. Major sources are automobiles and power plants.
Lead is emitted into the air from two principal sources: automobiles and
industrial plants, such as non-ferrous smelters. The need for other
standards for pollutants such as sulfates and inhalable particulates are
under review for future action. In addition, existing standards are
periodically reviewed and evaluated in light of new scientific evidence.
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EPA sets New Source Performance Standards (NSPS), which establish strict
limits on emissions/ to insure that new factories built in polluted areas
do not exacerbate the air pollution problem. Ihese standards also help
clean the air in areas with lower pollution levels. By establishing and
enforcing uniform rules for new plants, such standards help insure that
the stringency of air pollution regulations is not the basis for a State's
gaining or losing industries. New Source Performance Standards have been
set for 28 categories of sources, including iron and steel plants, copper,
zinc and lead smelters, and fossil-fuel-fired steam generators. By 1982,
the most significant industrial.sources of air pollution will have New
Source Performance Standards, which require that they use the best
pollution control technology available.
Another area where Federal regulation is the primary method of control is
the establishment of National Emission Standards for Hazardous Air
Pollutants which apply directly to all facilities that emit toxic
substances. EPA has set standards for asbestos, beryllium, mercury and
vinyl chloride, and is considering control of benzene and arsenic as
hazardous air pollutants.
Motor vehicles are responsible for most of the man-made emissions of
carbon monoxide and a substantial proportion of hydrocarbon and oxides of
nitrogen emissions. EPA, through its mobile source air pollution control
program, regulates allowable emissions from new vehicles and controls the
pollution performance of in-use vehicles. Specifically, the Agency sets
emission standards for automobiles, trucks, motorcycles and aircraft,
assesses the performance of vehicles in-use in relation to those
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standards, assures that new motor vehicles and engines covered by
emissions standards are capable of meeting them for their useful life, and
assures the quality of the data used for determining compliance with fuel
economy standards. Implementation of vehicle inspection and maintenance
programs and transportation control measures such as carpools, bus lanes
and mass transit, are important aspects of State strategies for meeting
clean air goals.
A State Implementation Plan is the basic document in which a State out-
lines its strategy for meeting clean air goals. The plan includes the
State's regulations for specific sources; the dates by which these sources
must meet certain emission standards; how the State proposes to review new
industrial facilities to see that they do not violate air pollution rules;
what it plans to do about inspecting in-use vehicles to insure that
pollution control equipment is properly maintained; alternative trans-
portation control measures; and other air pollution programs and
regulations the State has adopted. The State Implementation Plan is
reviewed by EPA to make sure it meets the requirements of Federal law and
EPA regulations.
As a result of the 1977 Amendments all States will have to revise their
State Implementation Plans. States have divided their air quality control
regions into two types — non-attainment and attainment areas. A non-
attainment area is any region which violates an air quality standard for a
given pollutant and is subject to the non-attainment area requirements of
the Act. Regions which do not violate air quality standards for specific
pollutants are called attainment areas and are subject to the Prevention
of Significant Deterioration requirements of the Act.
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The non-attainment amendments set new attaimient dates for areas
violating the air quality standards. The new attainment date for all
pollutants is 1982. For ozone and carbon monoxides, extensions to
1987 are available in certain cases. By January 1, 1979, States must
submit revised State Implementation Plans which provide for attainment of
the standards. If adequate plans are not approved by EPA by July 1979,
the States are subject to sanctions, such as loss of Federal highway
funds and sewage treatment plant grant funds.
The State Implementation Plan revision required by the 1977 Amendments for
non-attainment areas is an important process involving state and local
governments as well as the public. The plan requires the use of reasonably
available control technology, an inventory of actual emission from all
sources, and new construction permits for all new sources. A State must
show that it will achieve emission reductions to comply with the standards
by the appropriate date. States which ask for the additional extension
until 1987 must establish a program to weigh alternative sites for new
sources, establish a timetable for vehicle inspection and maintenance
programs and identify other measures necessary to attain and maintain the
air quality standards.
The basic idea behind maintaining clean air in attainment areas (i.e.,
those areas where air quality is better than the national ambient air
quality standards) is to limit additional pollution to minimal amounts.
The section of the law Preventing Significant Deterioration (PSD) is
specifically aimed at protecting regions of the U.S. such as National parks,
Indian lands and recreation areas, which have clean air. New construction
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in areas relating to the prevention of significant deterioration require
a case-by-case determination of best available pollution control tech-
nology in addition to the limits on incremental air pollution.
Long-term progress (1972-1977) can be seen in achieving compliance with
the National Ambient Air Quality Standards for total suspended particu-
lates, sulfur dioxide, and carbon monoxide nationally. The long-term
national trend in ozone has been stable, with a decreasing trend in
California and slightly increasing trend in the rest of the Nation.
Nitrogen dioxide trends are stable in California. However, nationally
nitrogen dioxide levels tend to be increasing based on three to four
years of data.
WATER QUALITY
Despite many noted improvements, over half of the country's river basins
are affected by pollution. This pollution includes oxygen demanding
bacteria, nitrogen and phosphorous compounds, algae, suspended solids, and
industrial waste including toxic liquids and heavy metals. These
pollutants come from the discharge of waste from industrial, commercial,
agricultural, and municipal sources as well as runoff from activities that
cover a broad land area and are associated with agriculture, silviculture
(forestry), mining and construction.
The emphasis of the water quality program has been on controlling the
discharge of pollutants into the waterways from specific industrial and
municipal sources. Pollution from these sources is generally easier to
control (as compared to controlling runoff from agriculture and similar
activities) the composition of the pollutants can be more easily
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determined, and control measures are easier to implement. Three major
methods are utilized under the Clean Water Act to control point source
pollution; issuing wastewater discharge permits, promulgating effluent
guidelines and improving the coverage and efficiency of publicly owned
waste treatment works.
Wastewater discharge permits generally require industrial sources to
reduce the level of pollution to that achievable with the "best
practicable technology". Permits to be issued in the future will require
the reduction of pollution to the level attainable with the "best
available technology economically achievable" by no later than July 1,
1987. The permits include schedules for installation of control equip-
ment or process changes. Virtually all of the major industrial and
municipal dischargers have permits. EPA encourages State assumption of
this program; 32 States have accepted this responsibility.
EPA is developing Best Available Technology (BAT) guidelines to regulate
65 classes of priority toxic pollutants for 21 industrial sources. These
guidelines must be set by mid 1980 and implemented no later than
July 1, 1984.
Through the wastewater treatment construction grants program, the
coverage and effectiveness of publicly owned sewage treatment plants is
being upgraded. A large proportion of the Nation's population is
presently served by sewage systems that do not provide adequate waste-
water treatment. The grants cover 75 to 85 percent of the eligible costs
of planning, designing and constructing sewage treatment plants — either
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the construction of new plants or modifications in existing plants. The
Clean Water Act authorizes $24.5 billion of Federal assistance for FY
1978-FY 1982. Of this, $8.7 billion has been appropriated thru FY 1979.
Other aspects of the water quality program include planning assistance to
control pollution in major segments of river basins, including storm water
runoff and runoff from broad land areas. Ihis effort is currently being
coordinated through the newly developed State EPA agreement process.
Additional programs include technical assistance to State and local
authorities and research and development into the health and environmental
effects of pollutants and means of controlling them. Grant assistance is
also provided to State agencies to assist them in their permit issuance,
monitoring and enforcement activities.
The major emphasis in the water quality program has been on issuing
"first round" wastewater discharge permits (those designed to reduce the
level of non-toxic or conventional pollutants, to that achievable with
the best practicable technology) and awarding construction grants. The
current objective is to successfully address threats to public health and
aquatic ecosystems. To achieve this goal, the program will emphasize a
reorientation from conventional to toxic pollutant control, the environ-
mental rather than the public works nature of the construction grants
program, and the delegation of more water quality management functions to
the States.
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EPA Construction Grants
FY 1979 Allotments
State Allotments
Alabama $53,189,100
Alaska 20, 709,000
Arizona 32,128,000
Arkansas 31, 117,400
California 329,323,400
Colorado 38,050,800
Connecticut 45,858,100
Delaware 20,709,000
Dist of Col 20,709,000
Florida 158,904,600
Georgia 80,425,600
Hawaii 32,836,300
Idaho 20,709,000
Illinois 215,137,900
Indiaua 114,637,000
Iowa , 53,648,800
Kansas 36,460,300
Kentucky 60,545,000
Louisiana 52,290,300
Maine 31,042,900
Maryland 115,047,000
Massachusetts 122,357,300
Michigan 171,081,500
Minnesota 77,414,600
Mississippi 40,009,900
Missouri 103,367,100
Montana 20,709,000
Nebraska 22,800,700
Nevada 20,709,000
New Hampshire 36,489,300
New Jersey 147,924,700
New Mexico 20,709,000
New York 439,897,200
North Carolina 82,040,900
North Dakota 20,709,000
Ohio 267,788,600
Oklahoma 38,431,900
Oregon 53,735,800
Pennsylvania 180,649, 100
Rhode Island 21,752,800
South Carolina 48,732,500
South Dakota 20,709,000
Tennessee 64,140,000
Texas 180, 723,600
Utah 20,709,000
Vermont 20,709,000
Virginia 81, 187, 700
Washington 73,260,300
West Virginia 74,150,800
Wisconsin 80, 777 , 700
Wyoming 20, 709,000
American Samoa 2,551,400
Guam 3,081,500
Northern Mariana Islands 570,300
Puerto Rico 48,600,000
Trust Territory of Pacific 5, 766, 700
Virgin Islands 1,565,600
Total $4,200,000,000
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WATER SUPPLY
The primary objective of the water supply program is to assure that the
public is provided with safe drinking water. Today there are more than
240,000 public water supply systems serving approximately 170 million
people. Many of these systems are not using the most effective equipment
and techniques to collect, purify and deliver potable water to the public.
Federal studies in selected States have shown that (1) more than half of
the facilities providing drinking water have serious deficiencies, (2)
more than three quarters of the operators are inadequately trained, (3)
the vast majority of systems are unprotected from accidental connection
with contaminated water, and (4) more than three quarters of the systems
are not subjected to adequate surveillance or monitoring. Other studies
report that during the period 1971-1977, there were 192 reported outbreaks
of disease or poisoning attributed to drinking water which resulted in
36,800 illnesses. This represents only those acute clinical cases that
were reported and does not include the chronic effects whose impact may
take many years to accumulate.
The passage of the Safe Drinking Water Act in [December 1974, and
amendments passed in November 1977, have broadened EPA's authority and
responsibility to regulate the quality of the nation's drinking water
regulations, with the States having the major responsibility for enforcing
these regulations. Primary regulations are designed to protect public
health to the extent feasible, taking technology, treatment techniques,
and costs into consideration. Secondary regulations will describe the
contaminant level required to protect public welfare and will apply to
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such characteristics as the odor and appearance of drinking water.
Interim primary regulations were promulgated by the EPA in December 1975
with an effective date for State enforcement of June 1977. Secondary
regulations will be promulgated in 1979.
The Safe Drinking Water Act also requires EPA to develop regulations for
the protection of underground sources of drinking water. The Act
specifically requires that a State program: (1) shall prohibit any under-
ground injection which is not authorized by a permit issued by the State,
(2) shall require that the applicant for a permit to inject must satisfy
$
the State that drinking water sources are free from danger; and (3) shall
include inspection, monitoring, record-keeping, and reporting require-
ments. The responsibility for controlling underground injections remains
a State function.
EPA is aiding States to develop water supply enforcement and underground
permit programs by providing technical and financial assistance through
grant programs. EPA is compiling a survey of the quality and availability
of rural drinking water supplies which is expected to be completed during
1979.
Federal financial assistance for the Drinking Water program has increased
from its fiscal 1977 total of $52.5 million to the fiscal 1979 level of
$70.6 million. Approximately 74 percent of the 1979 appropriation will be
used to assist State and local governments in abatement and control
efforts. By fiscal year 1979, 52 States will have submitted applications
for public water systems supervision grants, 48 States will have accepted
primary enforcement responsibilities, and 18 States will have submitted
applications for underground injection control grants.
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SOLID WASTES
Many billions of tons of waste are generated in the United States every
year, of which at least 35 million are potentially hazardous — that is
toxic, flammable, corrosive, or reactive. Potential health and environ-
mental effects vary considerably, from the direct threat of hazardous
wastes to the less direct threat from wastes such as abandoned cars,
municipal refuse, and wastes from confined animal feeding operations.
The Resource Conservation and Recovery Act of 1976 gives EPA broad
authority to regulate the disposal of hazardous wastes; encourages the
development of solid waste management plans and non-hazardous waste
regulatory programs by States; prohibits open dumping of wastes; and
provides for a national research, development and demonstration program
for improved solid waste management and resource conservation techniques.
The control of hazardous wastes will be undertaken by identifying and
tracking hazardous wastes as they are generated, insuring that hazardous
wastes are properly contained and transported, and regulating the
storage, disposal or treatment of hazardous wastes. EPA will develop
criteria for identifying hazardous wastes, and promulgate a list of
hazardous wastes by January 1980. Regulations applicable to generators,
transporters and operators of facilities that dispose of solid wastes will
also be promulgated by January 1980. The regulations will include
requirements for recordkeeping, labeling, and the use of a manifest system
to insure that all hazardous waste is designated only for authorized
treatment, storage or disposal facilities. These facilities will be
authorized by permits, issued by EPA or States; permits will be issued to
facilities that comply with standards to be promulgated by EPA. EPA will
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encourage States to develop hazardous waste management programs and issue
permits, and Federal grant support of State hazardous waste programs is
authorized by the Act. If States do not develop hazardous waste manage-
ment programs EPA will be required to do so.
A major objective of the Resource Conservation and Recovery Act is to
protect the environment and conserve resource through the development
and implementation of solid waste plans by States. EPA will publish
guidelines to assist States to develop plans which will establish
environmentally sound waste disposal and resource conservation practices
and provide for the establishment of necessary State regulatory powers.
The Act also requires that an inventory be conducted of all waste disposal
sites to determine whether they are in compliance with sanitary landfill
criteria to be established by EPA. Open dumps are to be closed or up-
graded within 5 years of being inventoried. A major objective of this
provision is to protect the quality of ground and surface water from
leachate and surface runoff contamination. The Act authorizes Federal
financial and technical assistance to encourge States to develop solid
waste programs.
The Act recognizes the need to develop and demonstrate waste management
practices that are not only environmentally sound and economical but also
conserve resources. The Act requires EPA to undertake a number of special
studies on subjects such as resource recovery from glass and plastic waste,
and managing the disposal of sludge and tires. An Interagency Resource
Conservation Committee has been established to report to the President and
the Congress on the economic, social and environmental consequences of
present and alternative resource conservation and resource recovery
techniques.
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PESTICIDES
Pesticides are of enormous benefit to man, particularly in the area of
agriculture production, sanitation, and disease control. Nearly a billion
pounds of pesticides, embracing 30,000 to 35,000 pesticide products
formulated from more than 1,400 chemical compounds, are used annually in
the United States. The use of pesticides, especially in agriculture and
particularly for cotton and corn production, is widespread, and has
increased the health risk to humans and the potential of damage to the
environment. In 1973 there were over 2800 hospital admissions resulting
from the improper use of pesticides that involved farmworkers,
applicators, formulating plant workers, and children. Hazardous levels of
pesticides found in wild life tissues demonstrate the potential for
adverse effects from less toxic but slower degrading pesticides like DOT,
aldrin, dieldrin, chlordane, heptachlor, and toxaphene (chlorinated
hydrocarbons). These compounds, soluble in body fat, are passed on to
humans through the food chain, and their effects on human health may take
too many years to appear.
Three specific approaches comprise EPA's pesticide program: (1)
registration, (2) use management, and (3) research and monitoring. The
1972, 1975, and 1978 amendments to the Federal Insecticide, Fungicide, and
Podenticide Act require EPA to register pesticide products for general or
restricted use. Products are registered only if they perform their in-
tended functions without unreasonable adverse effects on the environment,
including humans. The registration of a pesticide may be cancelled at any
tijne that available information indicates continued use of the pesticide
may result in unreasonable adverse effects on the environment. If a
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registered pesticide poses an imminent threat to human health or the
environment, EPA may suspend its registration immediately, and take the
product off the market.
The use of pesticides is controlled. Only certified applicators or
persons under their direct supervision may apply pesticides registered for
restricted use. States certify the applicators, and training is provided
through a joint effort by EPA, the Department of Agriculture's Extension
Service, and State agencies. 1b date, 1,341,000 private applicators and
282,474 commercial applicators have received training, and of these,
approximately 85 percent have been certified.
EPA conducts monitoring and research activities to determine the health
and environmental effects of pesticides. Researchers consider both acute
and chronic, long-term, health effects in their epidemiological studies of
pesticide exposure, with particular emphasis on new pesticides. In
addition, National Science Foundation and Department of Agriculture
researchers help to develop environmentally safe, alternative pest control
techniques. EPA rountinely samples pesticide products from manufacturing
establishments and the market place as part of an enforcement program to
insure compliance with registration requirements and labeling instructions.
RADIATION
The EPA radiation program focuses on preventing all available exposure of
people to ionizing radiation without offsetting benefits (An example of
ionizing radiation is x-ray ). EPA pursues this goal through three
interdependent roles: (1) the development of standards and criteria,
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(2) assessment of the environmental impact of technology employed by other
Federal agencies, and (3) surveillance of radiation levels in the environ-
ment.
Ihe need for EPA to set standards for exposure to non-ionizing radiation,
such as microwave, radar, etc., is being reviewed. EPA and the Nuclear
Regulatory Commission have divided rsponsibilities with respect to
standard setting and guidance for radiation exposure from nuclear fuel
cycles. EPA has the authority for issuing standards for the protection of
the environment from sources of radiation, and has issued standards for
the total amount of radiation exposure from facilities in the uranium fuel
cycle. EPA also develops radiation standards and guidelines for other
Federal agencies, which are then implemented by these agencies in their
own facilities and through regulations that they promulgate and enforce.
The Nuclear Regulatory Commission is responsible for developing,
implementing and enforcing standards for individual nuclear facilities in
the uranium fuel cycle.
EPA is working on standards for both short-lived and long-lived radio-
nuclides. Long-lived nuclides are relatively permanent pollutants and
their control is particularly important in view of the expected growth in
the nuclear industry. Presently EPA is developing standards for disposal
of high level wastes, for the control of hazards at active and inactive
uranium mill tailing sites, nuclear accident protective action guidelines,
cleanup guidelines for areas contaminated by plutonium and guidance for
occupational exposure to radiation. EPA provided guidance to Federal
agencies on appropriate limitation of exposure from medical x-rays. This
has been promulgated and work is underway to control exposure from radium
and uranium from phosphate plants.
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In the area of technology assessment, EPA performs independent environ-
mental analyses of radiation technologies being used or proposed for use
by other Federal agencies. Environmental Impact Statements, required by
the National Environmental Policy Act, are prepared by other agencies
whenever nuclear power plants are authorized or whenever new technologies
are proposed for introduction. The statements are analyzed by EPA; these
analyses have had considerable effect on proposed programs and the
public's acceptance of them. The storage of spent fuel from power
reactors and related policies have been assessed. Proposals for the
solidification and disposal of the ^defense waste at Savannah River were
reviewed. An active role was taken in the Interagency Review Group (IRG)
for radioactive waste management including the leadership role of the sub-
group for Federal Involvement. A continuing effort in this area is
evaluation of the probabilities and potential consequences of accidental
release of radioactive material. This work will provide a basis for
establishing guidance in the area of emergency response planning.
EPA carries on long range studies such as evaluation of land burial
techniques to dispose of low level radioactive wastes and assessment of
the level of containment at the two inactive sites where ocean disposal of
radioactive wastes has taken place. Environmental standards for disposal
of low level radioactive wastes using various methods will be developed
from these studies.
The radiation surveillance function performed by EPA provides an indepen-
dent assessment of the overall radiological quality of the environment.
An air monitoring network of 22 continuously operating samplers measures
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ambient radioactivity. This network is expanded to 67 sites when nuclear
weapon testing is carried out above ground and radioactivity is widely
distributed in the Northern hemisphere. Other specific air monitoring
activities are carried on to measure plutonium, carbon-14 and krypton-85
radionuclides. Water analysis and sampling programs are carried on to
measure levels of tritium and other radionuclides in surface water near
specific sources of radioactive materials. Samples are also taken at 77
drinking water sites for comparison with EPA's regulations. Another
aspect of radiation surveillance is the computation of population radia-
tion exposure using data on specific radionuclides released from different
sources. Special population studies are also conducted to determine the
degree of exposure to non-ionizing radiation in major metropolitan areas.
NOISE
Noise is a pervasive form of pollution which is increasingly being re-
garded as an environmental stressor with possible adverse health effects.
Noise induced hearing loss is a recognized problem particularly in highly
mechanized industries and high noise exposure occupations. Excessive
levels of noise appear to act as stressors which may pose the risk of
increased susceptibility to disease and infection/ notably heart disease
and ulcers. An estimated 14.7 million workers are exposed to an 8 hour
average sound level above 75 decibels, a level at which there is risk of
hearing damage. An additional 13.5 million Americans are exposed to sound
levels averaging above 75 decibels for 8 hours as operators of or
passengers in transportation or recreation vehicles.
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Noise is also a strong factor in degrading the quality of life. Since
1973 the Department of Housing and Urban Development, with support from
the Census Bureau, has performed an Annual Housing Survey in an effort to
determine the quality of housing in the United States. In this survey,
noise has ranked consistently number one - three times as often as crime -
as the most frequently mentioned undesirable condition in residential
neighborhoods.
EPA has identified 55 decibels as the day-night sound level necessary to
protect the general population against activity interference. Outdoor day-
night sound levels above 55 decibels are likely to interfere with speech
communication, sleep and relaxation. An estimated 103 million people live
in areas where the decibel level exceeds 55.
The EPA noise pollution control program has several major objectives: (1)
to reduce environmental (non-occupational) noise to a day-night sound
level of 75 decibels as scon as possible. Attaining this goal will
essentially eliminate the risk of hearing loss due to environmental noise
and reduce extreme annoyance and activity interference, (2) as a longer
term objective, to reduce environmental noise levels to day-night sound
level of 55 decibels which would be most desirable to achieve health and
welfare protection. An interim objective is to obtain a day-night sound
level of 65 decibels.
EPA utilizes four major approaches to meet these objectives: (1) new
product standards directed principally at surface transportation and con-
struction noise sources, (2) in-use controls directed principally at
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aviation, interstate motor carrier and railroad noise sources, (3) product
labeling to provide protection against voluntary high level individual
exposure, and (4) development of State and local programs to control
noise.
EPA is in the process of promulgating or has already promulgated standards
to reduce noise from newly produced portable air compressors, medium and
heavy duty trucks, earth moving machinery, buses, truck mounted solid
waste compactors, motorcycles, jackhammers and lawnmowers. As older
equipment is replaced with products conforming with the standards, there
will be a gradual reduction in environmental noise levels.
Other regulatory activity in the noise program centers around the devel-
opment of labeling regulations which gives notice to prospective buyers of
the level of noise the product emits or its effectiveness in reducing
noise. Work is currently underway which will lead to the labeling of
devices to protect hearing.
EPA also provides technical assistant to State and community noise control
programs. Noise control at the State and local level is essential to
complement Federal activities. Congress has identified the need for
increased State and local programs in its 1978 amendment to the Noise
Control Act of 1972, called the Quiet Communities Act. EPA will be
carrying out a variety of programs under this new authority to stimulate
State and local noise control activity.
Enforcement activities of noise standards and labeling requirements
applicable to new products will be increasing as these regulations are
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completed. The basic enforcement approach will be to verify that
regulated products comply with standards when manufactured. Testing is
done both by manufacturers and by EPA. A noise enforcement test facility
has been established to test new products for which regulations are being
developed.
TOXIC SUBSTANCES
In recent years a number of significant epidsodes of environmental con-
tamination by toxic substances have occured which posed substantially
serious hazards to human health or to environmental quality. Chemicals
found posing hazards include mercury/ polychlorinated biphenyls (PCBs),
and vinyl chloride; chemicals suspected of hazards include nitrilotri-
acetate (NTA), proposed for use in detergents but withheld from production
in the U.S., and chloroflorocarbons (trade name, Freon), which may
threaten the stratosphere ozone layer.
In the past, each of these problems was dealt with on an ad hoc basis.
No existing law provided authority to deal comprehensively with the
problems associated with toxic materials until passage of the Toxics
Substances Control Act, which became effective January 1, 1977. It gives
EPA an important new tool for addressing toxic chemical problems.
Basically, the Act does three things: (1) it seeks to prevent pollution
incidents through requirements for premarket testing, (2) it places the
burden of proof of safety on the manufacturer or distributor of the
chemical, and (3) it provides authority to control toxic chemicals not
subject to existing laws. The basic new authorities include premarket
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notification and premarket testing if required; direct regulation of
chemicals, including possible controls on production, use, or disposal;
the opportunity for a comprehensive assessment of hazards posed by a
chemical; and extensive testing and record keeping authorities.
Under the Act, EPA may require testing of new or existing chemicals if
they are suspected of presenting an unreasonable risk to health or the
environment and if there are insufficient data to predict health or
environmental effects. An interagency committee recommends the chemicals
which EPA should give priority attention to testing. Members of the
committee are from agencies dealing with health, safety and science such
as the National Cancer Institute and the National Science Foundation. EPA
must initiate testing requirements for any chemical substances listed by
the committee within one year or publish reasons why not. A maximum of 50
chemicals may be listed by the committee at any time. EPA may require
testing for chemical substances not recommended by the committee.
Ninety days before initiating production of the new chemicals, or manu-
facturing chemicals for significant new uses, manufacturers must notify
EPA. The Agency will then determine if there is adequate information to
evaluate the health and environmental effects of the chemicals. If the
information is inadequate EPA may require a manufacturer to develop
additional data before the chemical is approved for manufacture or
distribution.
After considering the effects of a chemical on health, the environment,
the benefits, the availability of substitutes, and the economic
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consequences of regulating the chemical, a number of steps may be taken.
If EPA finds a chemical to present an unreasonable risk of injury to
health or the environment, the Agency may prohibit the manufacture or
distribution of the chemical, limit the amount of the chemical that may be
produced, regulate the use of a chemical, require the chemical to be
labeled with warnings or instructions, and regulate the chemical's
disposal. EPA may also require a chemical manufacturer to improve his
quality control procedures if the manufacturing process causes a chemical
to present an unreasonable risk to health or the environment. In the event
that the iinmediate regulation of ,a chemical is necessary, EPA will publish
in the Federal Register the action it proposes to take, be it initiation
of a civil action for seizure of the chemical or article containing the
substance, recall of the chemical, or public notification of the hazards
of the chemical.
RESEARCH AND DEVELOPMENT
The EPA research and development program is designed to produce the
scientific information and technical tools on which to base guidelines,
standards, and strategies for controlling pollution. The major thrusts of
the program are in air and water pollution research, with growing emphasis
on the problem of toxic pollutants in all media. There are also signifi-
cant programs dealing with such environmental problems as solid wastes,
pesticides, non-ionizing radiation, and energy.
The research activities in each of these programs encompass the deter-
mination of the health and ecological effects of pollutants, the
identification and characterization of pollutant sources, and the study
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of transport, transformation, and ultimate disposition of pollutants in
the environment. Improved methodologies for pollutant measurement and
monitoring are being developed, as well as better technologies and pro-
cesses for pollution control and resource recovery.
The air pollution research and development program is specifically
designed to respond to the requirements of the Clean Air Act to protect
public health and welfare from the adverse effects of air pollution.
Health and ecological effects studies are conducted to provide criteria
for establishing and revising air quality standards. For example, the
potential health impact of diesel emissions are being assessed, along with
the health and ecological effects of such air pollutants as sulfur
oxides, oxone, and nitrogen oxides. Other work is directed at identifying
the sources of airborne pollutants and the manner in which they are trans-
formed and transported through the environment to man, including the
development of models to provide estimates of pollution concentrations in
the atmosphere. Research is conducted to understand the composition of
pollutant emissions and to develop improved monitoring methods and
associated quality assurance procedures. In addition, the control tech-
nology R&D program seeks to assess the capabilities of existing control
approaches and to develop economical control technologies for major air
pollution sources.
The water quality research and development program is designed to develop
cost effective wastewater control and treatment technologies for munici-
palities and industries. Program activities also include the development
of monitoring methods, methods for controlling accidental spills,
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quality assurance techniques, and processing alternatives designed to
avert pollution while conserving energy and natural resources. Strategies
for the management of pollution from non-point sources, such as agricul-
tural, mining, and construction activities are being developed. Emphasis
is also being placed on determining the health and ecological effects of
land disposal of sludges resulting from municipal wastewater treatment,
recycling and reuse of industrial wastewater, assessing the ecology of
shellfish-growing water, studying the health effects of recreational water
use, and determining the ecological effects of ocean dumping.
The water supply research and development program is designed to provide
scientific data on which to base drinking water standards, and develop new
or improved technologies for effective and economical control of drinking
water contaminants. Research efforts focus on detecting and identifying
the existence of contaminants, determining the health effects of organic,
inorganic, and microbiological matter in drinking water, and investigating
the suitability of reusing treated municipal or industrial effluents as
potable water. Epidemiological studies will be conducted for major
organic pollutants so maximum contaminant levels can be established.
Treatment techniques for the removal of particulates (including asbestos)
are also being developed. New efforts are being directed at determining
the nature and extent of groundwater contamination and, untimately,
developing protective measures.
Solid waste research emphasizes the assessment and development of tech-
nologies for managing hazardous wastes, as well as study of the transport
process of hazardous materials into groundwater systems, and resource
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conservation and recovery. The program involves the study of landfilling
techniques, research on the treatment and disposal of hazardous waste,
evaluation of remedial actions at pollution sites, and assessment of
control technologies.
The pesticides research program emphasizes research on the health and
ecological effects of pesticide use, and integrated pest management
studies of selected ecosystems. The program studies the biological
effects of pesticide exposure and conducts research on human exposure
levels. Research on biological methods of pest control is also under-
taken. In addition, methods for improving the quality assurance of
pesticide research are being developed.
The toxic substances research program conducts studies to improve
screening techniques used to predict deleterious health effects from
exposure to chemical substances. The program also examines industrial
processes that use or create toxic substances and evaluates alternative
procedures. Other activities include the development of improved tech-
niques for identifying and quantifying toxic substances in the environment,
developing methodologies for understanding the movement of these
substances through the environment and evaluating the impacts of these
substances on the environment.
The radiation research program provides an information base for standard
setting and regulatory actions, with a primary focus on the health effects
of non-ionizing (microwave) radiation.
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EPA also undertakes research of a longer term and more basic nature. This
anticipatory research is being performed to identify emerging problems
before serious crisis occur and to provide a base of knowledge in support
of more applied research efforts.
The research and development program has responsibility for preparing
Agency-wide guidelines for assessing the health risk of various pollutants
and for reviewing completed assessments. Por certain media, the Office of
Research and Development performs the risk assessments itself and develops
the scientific criteria used in regulatory decision making.
fi
EPA's research and development effort includes.a technical information
program to communicate EPA's research findings to the environmental
community.
EPA's energy program is also part of the Office of Research and
Development, this program is described in the following section.
ENERGY
The EPA energy-related environmental research and development program is
part of a national effort to increase domestic energy production. The
purpose of the program is to avoid unnecessary delays in energy develop-
ment without sacrificing environmental quality. Delays may be caused by
either inadequate knowledge on the health and ecological effect of energy-
related pollutants or the unavailability of control options. Most of the
program focuses on environmental problems associated with the use of coal
as a fuel, since coal is likely to be used much more in the future due to
its domestic availability.
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In FY 1979, EPA will spend $111 million on this program. These funds will
be spent on in-house research, grants to universities, contracts with
private firms, and programs of other agencies. As the lead agency in the
Interagency Energy and Environment Research and Development Program, EPA
has responsibility for funding, coordinating, and overseeing the research
activities of 17 other agencies.
The program is based upon the goals stated in the 1973 report entitled The
Nation's Energy Future (often referred to as the Pay Report), and upon two
1974 interagency task force reports commissioned by the Office of
Management and Budget and the Council on Environmental Quality to
recommend how Federal research and development funds in energy and
environment could be allocated most efficiently. Though the program is
not authorized by a statute specifically geared at establishing an energy
and environment research and development program, Sections of the Clean
Air Act, of the Federal Water Pollution Control Act and the 1977
Department of Energy Act provide authorization for our energy activities.
EPA's energy program has both long-term and short-term focuses. In the
long-term we are concentrating on new technologies which are likely to
supplement or supplant existing technologies. In the short-term we are
concentrating on existing, commercially available technologies.
Many new energy technologies with potentially adverse environmental
impacts will not be available before 1985 or in commercial use before 1995.
Given the substantial lead time for health and environmental effects
assessment and control technology development, EPA is implementing re-
search programs now to insure that energy development does not threaten
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future environmental integrity. In coordination with the Department of
Energy, the Department of Health, Education and Welfare, and 15 other
agencies, EPA is working to identify the health and environmental effects
of several advanced technologies. In addition, EPA and the Department of
Energy are developing procedures for establishing environmental protection
standards for new technologies.
The primary short-term goals of the energy program are: (1) to provide a
sound data base necessary for the Agency to establish regulations and in-
centives to encourage the use of environmentally acceptable practices in
extraction, processing and utilization of energy resources, and (2) to
provide environmental control options, as soon as practicable, for those
extraction, processing, and utilization practices which cause significant
health or ecological damage.
The EPA energy research and development program is divided into two broad
segments: health and ecological effects and control technology. Ihe
health and ecological effects program consists of the research activities
associated with the behavior and effects of energy-related pollutants once
they are in the environment. Inis segment of the energy program has four
components—the effects of energy pollutants on organisms and ecosystems;
transport and fate of energy-related pollutants in the environment;
measurement systems and instrumentation development; and human health
effects of energy-related pollutants. Ihe majority of the health and
ecological effects program is carried out by ten Federal agencies which
receive passthrough funding from EPA. In FY 1979, for instance, $36
million of the $53 million available for the health and ecological effects
program will go to the other agencies participating in the interagency
program.
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The second major segment of the energy research program, the control
technology program, is designed to provide information on the types and
quantities of pollutants released by energy supply activities and to
develop or stimulate the development of control options where necessary.
This technology research program is further divided into six components—
fuel processing, preparation and advanced combustion, fuel extraction,
environmental impacts of conventional and advanced energy systems, flue
gas sulfur oxide control, nitrogen oxide control, and flue gas particulate
control. Unlike the health and ecological effects program, very little of
the control technology program is implemented by other agencies. Most of
it is contracted out to private firms. In fact, during FY 1979, $39
million of the $58 million program will be contracted out.
AGENCY AND REGIONAL MANAGEMENT
Agency and Regional Management is funded by a separate appropriation which
provides for the overall policy direction and administration of Agency
programs as well as for certain common services and functions which can be
most effectively managed on a centralized basis. Fbr purposes of clarity
it is useful to think of these activities as falling under two main
headings: first, "management" and second, "support."
Management covers the salaries and related expenses of personnel involved
in program direction or in the provision of management of administrative
services and includes the following specific activities:
* Agency management which covers the top level policy direction of
all Agency programs provided by the Administrator and his
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immediate staff and staff offices; the Agency-wide planning and
management functions of the Office of Planning and Management;
and the centralized administrative services provided to opera-
tions located in Washington, D.C., Research Triangle Park, N.C.
and Cincinnati, Chio.
* Regional management which includes the direction of program
operations by each of the 10 Regional Administrators and their
immediate staff as well as the general management and administra-
tive functions provided by the Management Division of each Region.
The support area does not involve personnel and consists mainly of house-
keeping or common service items; these can be characterized as follows:
* Agency support which covers the services required to support pro-
gram operations at EPA Headquarters, Research Triangle Park, N.C.,
and Cincinnati, Ohio such as office services, printing, communica-
tion costs, utilities, guard and janitorial services, etc. Also
included are certain Agency-wide services which are managed on a
centralized basis including facilities rental, postal service,
charges for the Federal Telecommunications Service, centralized
ADP services, security clearances and the like.
* Regional support which includes the support service requirements
of the 10 Regional offices which are not covered by the Agency-
wide services noted above, and covers items such as office
services and supplies, communications, guard and janitorial
services.
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In EPA's budget these activities are discussed under the Agency and
Regional Management appropriation. However, the estimates for that appro-
priation do not reflect the full amount of these costs. This is because
the total amounts required for Agency and Regional support activities are
allocated among the various EPA appropriations on a pro-rata basis so as
to associate these quite significant costs with the various programs which
benefit from them. The amounts allocated to the Abatement and Control,
Research and Development, and Enforcement appropriations are included
under a heading entitled "Program Support" which is common to each of
these appropriations. The residual amounts allocated to the Agency and
Regional Management appropriation are charged to headings under that
appropriation entitled "Agency Support" and "Regional Support."
PROGRAM MANAGEMENT AND SUPPORT
Each of EPA's appropriations includes an activity entitled "Program
Management and Support" which covers the direction and management of EPA's
major line organizations—Air, Noise and Radiation; Water and Waste
Management, Toxic Substances, Research and Development, and Enforcement as
well as the "overhead" services required to support these organizations.
Specifically it includes:
* Program management which covers the program direction and admin-
istrative/management activities of the Assistant Administrator
who direct EPA's major line organizations, their principal
deputies, office directors, and supporting staffs. Also included
are the management and supporting staff of the laboratories and
other field installations which are under the management of
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these major line organizations, as well as the Office of General
Counsel and the legal staffs of the 10 Regional offices.
* Program support - This includes general and technical support
services required by certain of the laboratories and other field
installations which are managed by EPA's major line organizations.
It also includes a pro-rata share of the Agency-wide support
costs which are allocated to the various EPA appropriations in
the manner described in the previous section on Agency and
Regional Management.
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IV. EPA BUDGET
EPA APPROPRIATIONS STRUCTURE
EPA currently has seven individual appropriation accounts. The first five
of the appropriations constitute the basic operating budget of the Agency;
the latter two are exclusively for grants and overseas activities.
Abatement and Control - This appropriation includes the development of
standards and regulations, grants and other assistance to States and
localities, and monitoring of the status of pollutants in the environment.
Enforcement - The primary activity in this appropriation is the enforce-
ment of Federal regulations, including compliance monitoring, water
quality permit issuance and initiation of legal action against violators.
Research and Development - This appropriation includes research activities
aimed at supporting the Agency's standard setting activities and develop-
ment of new technology for the control of pollution.
Agency and Regional Management - This appropriation provides for basic
central management and support activities, including overall program
direction, progress assessment, program evaluation, finance, personnel,
printing, facilities management, etc.
Buildings and Facilities - The design and construction of all new EPA
owned facilities as well as repairs and improvements to Federally owned
facilities is included in this appropriation.
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Scientific Activities Overseas - This appropriation is used to purchase
excess foreign currencies from the Treasury Department to finance coopera-
tive environmental activities in countries such as Egypt, India and
Pakistan.
Construction Grants - This appropriation finances grants to municipalities
for the construction of wastewater treatment facilities. Cbligational
authority consists of both budget authority and contract authority.
Appropriations to liquidate the contract authority are requested as
needed.
The appropriations structure has been changing continously since the
Agency was established in 1970. Initially, the operating budget was in-
cluded in a single appropriation, called Operations, Research and
Facilities. This account was split into four pieces in FY 1973 - Research
and Development, Abatement and Control, Enforcement, and Agency and
Regional Management. Energy Research and Development was added in FY 1975
to cover work related to new energy programs and in FY 1977 combined with
the Research and Development appropriation. The Buildings and Facilities
appropriation, constructed from portions of each of the four operating
budget appropriations, was also added in FY 1975. Scientific Activities
Overseas and Construction Grants have been separate appropriations from
the inception of the Agency.
Funds appropriated under the Enforcement and Agency and Regional Manage-
ment appropriations must be obligated in one year. Funds appropriated
under the Abatement and Control and Research and Development
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appropriations are available for obligations for two years. Funds
appropriated under the other appropriations are available until expended.
To provide flexibility between appropriations, Congress has approved
language to permit the Agency to transfer up to seven percent of any
appropriation except Construction to any other appropriation. This
provision enables EPA to make small fund shifts required in day-to-day
management without obtaining Appropriation Committee concurrence. Major
shifts exceeding seven percent and minor shifts accumulating to more than
seven percent are cleared with the committee.
In addition to the appropriation structure, EPA plans and budgets by
"media," or major program areas. The media are:
Air Noise
Water Quality Interdisciplinary
Water Supply Toxic Substances
Solid Waste Energy
Pesticides Program Management and Support
Radiation Agency and Regional Management
Media programs cross appropriation lines. For example, Air programs are
supported by funds from Abatement and Control, Enforcement and Research
and Development.
Program strategies are generally developed along media lines rather than
by appropriation. Consequently, it is generally easier to understand
major programs on a media basis. In the interest of clarity, therefore,
the EPA budget justification is organized by media. Program segments
corresponding to the appropriation breaks are separately described within
the total media section.
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The Appropriations Committees have also placed controls on shifts between
media. The Agency may add or subtract up to ten percent of the funds
provided for any media. Changes of $250,000 and greater require prior
notification to the Committees.
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EPA APPROPRIATION HISTORY
Research & Development
Abatement & Control
Enforcement
Agency & Regional Management
Energy, Research & Development If
Buildings & Facilities
Subtotal
Scientific Activities Overseas
Construction Grants
Total
(in thousands of dollars)
FY 1974
159,427
356,015
45,812
55,694
616,948
2.000
4,000,000
FY 1975
170,157
428,488
52,843
59,107
134,000
1,400
845,995
9,000,000
FY 1976
164,871
375,283
52,263
71,583
100,550
2,969
767,519
4,000
FY 1977
260,566
386,501
57,244
72,294
2,100
768.405
5,000
1,980,000
FY 1978
317,246
520,877
73,730
87,750
994,603
4,000
4,500,000
FY 1979
334,034
685,733
96,812
90,503
1,063
1,208,145
2,500
4,200,000
FY 1980
Estimate
368,741
718,300
95,676
95,858
1,425
1,280,000
4,000
3,800,000
2/
4,618,948 9,845,995 771,519 2,763,705 5,498,603 5,410.645 5,084,000
I/ Research and Development and Energy Research and Development combined in FY 1977 and outyears.
I/ FY 1980 excludes $3,238,000 for the U.S. Regulatory Council.
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