[Federal Register Volume 59, Number 53 (Friday, March 18, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-4753]


[[Page Unknown]]

[Federal Register: March 18, 1994]


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Part II





Environmental Protection Agency





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40 CFR Parts 9 and 82




Protection of Stratospheric Ozone; Final Rule
ENVIRONMENTAL PROTECTION AGENCY

40 CFR Parts 9 and 82

[FRL-4839-7]
RIN 2060-AD48

 
Protection of Stratospheric Ozone

AGENCY: Environmental Protection Agency (EPA).

ACTION: Final rule.

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SUMMARY: This final rule promulgates the U.S. Environmental Protection 
Agency's (EPA) program for evaluating and regulating substitutes for 
ozone-depleting chemicals being phased out under the stratospheric 
ozone protection provisions of the Clean Air Act (CAA). In section 612 
of the CAA, the Agency is authorized to identify and restrict the use 
of substitutes for class I and II ozone-depleting substances where the 
Administrator has determined that other alternatives exist that reduce 
overall risk to human health and the environment. EPA is referring to 
the program that provides these determinations as the Significant New 
Alternatives Policy (SNAP) program. The intended effect of this final 
rule is to expedite movement away from ozone-depleting compounds by 
identifying substitutes that offer lower overall risks to human health 
and the environment.
    In this final rule, EPA is both issuing decisions on the 
acceptability and unacceptability of substitutes and promulgating its 
plan for administering the SNAP program. To arrive at determinations on 
the acceptability of substitutes, the Agency completed a crossmedia 
analysis of risks to human health and the environment from the use of 
various substitutes in different industrial end-uses. Results of this 
analysis are summarized in this final rule, which covers substitutes in 
the following sectors: Refrigeration and air conditioning, foam 
blowing, solvents cleaning, fire suppression and explosion protection, 
tobacco expansion, adhesives, coatings and inks, aerosols, and 
sterilants. Analysis of substitutes in a ninth sector, pesticides, will 
be completed, and the resulting decisions will be added to future SNAP 
determinations published in the Federal Register. These sectors 
comprise the principal United States industrial sectors that 
historically consumed large volumes of ozone-depleting compounds.

EFFECTIVE DATE: This rule is effective on April 18, 1994.

ADDRESSES: Materials relevant to the rulemaking are contained in Air 
Docket A-91-42, Central Docket Section, South Conference room 4, U.S. 
Environmental Protection Agency, 401 M Street SW., Washington, DC 
20460. The docket may be inspected between 8 a.m. and 12 noon, and from 
1:30 p.m. and 3:30 p.m. on weekdays. As provided in 40 CFR part 2, a 
reasonable fee may be charged for photocopying.
    Notifications, petitions or other materials required by this final 
rule should be sent to: SNAP Coordinator, U.S Environmental Protection 
Agency, (6205-J), 401 M Street SW., Washington, DC 20460.

FOR FURTHER INFORMATION CONTACT: The Stratospheric Ozone Information 
Hotline at 1-800-296-1996 can be contacted for information on weekdays 
from 10 a.m. to 4 p.m. Eastern Time or contact Sally Rand at (202) 233-
9739, Substitutes Analysis and Review Branch, Stratospheric Protection 
Division, Office of Atmospheric Programs, Office of Air and Radiation 
(6205-J), 401 M Street SW., Washington, DC 20460.

SUPPLEMENTARY INFORMATION: In this preamble, EPA describes the final 
SNAP program in sections III through VIII. Although EPA may include 
responses to certain comments throughout the description of the 
program, readers should see section III.D. for a discussion of EPA's 
responses to public comment on major issues. See also the Response to 
Comment document found in Docket A-91-42 for a detailed response to 
comments on all issues.

I. Overview of Final Rule

     This final rule is divided into eleven sections, including this 
overview:

I. Overview of Final Rule.
II. Background.
    A. Regulatory History.
    B. Subgroup of the Federal Advisory Committee.
III. Section 612 Program.
    A. Statutory Requirements.
    B. Guiding Principles.
    C. Implementation Strategy.
    D. Response to Public Comment.
IV. Scope of Coverage.
    A. Definition of Substitute.
    B. Who Must Report.
V. Information Submission.
    A. Overview.
    B. Information Required.
    C. Submission of Confidential Business Information.
    D. Display of OMB Control Numbers.
VI. Effective Date of Coverage.
    A. General Provisions.
    B. Grandfathered Use of Unacceptable Substitutes.
VII. Notice, Review, and Decision-Making Procedures.
    A. Substitutes Reviewed under SNAP Only.
    B. Joint Review of New Substitutes under SNAP and the Toxic 
Substances Control Act Premanufacture Notice (TSCA PMN) Program.
    C. Joint Review of Substitutes under SNAP and the Federal 
Insecticide, Fungicide, and Rodenticide Act (FIFRA).
    D. Shared Statutory Authority with the Food and Drug 
Administration (FDA).
VIII. Petitions.
    A. Background.
    B. Content of the Petition.
    C. Sufficiency of Data.
    D. Criteria for Evaluating Petitions.
    E. Petition Review Process.
IX. Listing of Substitutes.
    A. Overview.
    B. Format for SNAP Determinations.
    C. Decisions Universally Applicable.
    D. Refrigeration and Air Conditioning.
    E. Foam Blowing.
    F. Solvents Cleaning.
    G. Fire Suppression and Explosion Protection.
    H. Sterilants.
    I. Aerosols.
    J. Tobacco Expansion.
    K. Adhesives, Coatings and Inks.
X. Additional Information.
XI. References.
Appendix A: Class I and Class II Ozone-Depleting Substances.
Appendix B: Summary of Listing Decisions.
Appendix C: Data Confidentiality Claims.

II. Background

A. Regulatory History

    The stratospheric ozone layer protects the earth from dangerous 
ultraviolet-B (UV-B) radiation. Depletion of stratospheric ozone allows 
more UV-B radiation to penetrate to the earth's surface. Increased 
radiation, in turn, has been linked to higher incidence of certain skin 
cancers and cataracts, suppression of the human immune system, damage 
to crops and aquatic organisms, and increased formation of ground-level 
ozone. Further, increased radiation can cause economic losses from 
materials damage such as more rapid weathering of outdoor plastics. 
(See 53 FR 30566 (August 12, 1988) for more information on the effects 
of ozone depletion.)
    In response to scientific concerns and findings on ozone depletion, 
the United States and twenty-three other nations signed the Montreal 
Protocol on Substances that Deplete the Ozone Layer on September 16, 
1987. The original agreement set forth a timetable for reducing the 
production and consumption of specific ozone-depleting substances, 
including CFC-11, CFC-12, CFC-113, CFC-114, CFC-115, Halon 1211, Halon 
1301, and Halon 2402. EPA implemented the original Protocol through 
regulations allocating production and consumption allowances equal to 
the total amount of production and consumption granted to the United 
States under the Protocol. (See 53 FR 30566.)
    The Parties to the Montreal Protocol met in London June 27-29, 1990 
to consider amendments to the Protocol. In response to scientific 
evidence indicating greater than expected stratospheric ozone 
depletion, the Parties agreed to accelerate the phaseout schedules for 
the substances already controlled by the Protocol. They also added 
phaseout requirements for other ozone-depleting chemicals, including 
methyl chloroform, carbon tetrachloride, and other fully-halogenated 
chlorofluorocarbons (CFCs).
    On November 15, 1990, then-President Bush signed the Clean Air Act 
Amendments (CAAA) of 1990. Title VI, section 604 of the amended CAA 
requires a phaseout of CFCs, halons, and carbon tetrachloride by 2000, 
which is identical to the London Amendments to the Montreal Protocol, 
but with more stringent interim reductions. Title VI also differs from 
the London Amendments by mandating a faster phaseout of methyl 
chloroform (2002 instead of 2005), a restriction on the use of 
hydrochlorofluorocarbons (HCFCs) after 2015, and a ban on the 
production of HCFCs after 2030. In Title VI, section 602, the CFCs, 
halons, carbon tetrachloride, and methyl chloroform are defined as 
class I substances; HCFCs are referred to as class II substances. 
Appendix A of this final rule lists the class I and class II substances 
identified in the CAA.
    In addition to the phaseout requirements, Title VI includes 
provisions to reduce emissions of class I and II substances to the 
``lowest achievable level'' in the refrigeration sector and to maximize 
the use of recycling and recovery upon disposal (section 608). It also 
requires EPA to ban certain nonessential products containing ozone-
depleting substances (section 610); establish standards and 
requirements for the servicing of motor vehicle air conditioners 
(section 609); mandate warning labels on products made with or 
containing class I or containing class II substances (section 611); and 
establish a safe alternatives program (section 612). The development 
and implementation of the safe alternatives program under section 612 
is the subject of this final rule.
    In October 1991, the National Aeronautics and Space Administration 
(NASA) announced new findings documenting ozone depletion over the last 
decade that was more severe than had previously been predicted by 
atmospheric modeling or measurements. In particular, NASA found 2.9 
percent ozone depletion over the northern mid-latitudes over the past 
decade in summertime--the first time a trend showing ozone depletion 
had been detected in the U.S. during that time of year, when risks from 
depletion are greatest.
    Partly in response to these findings, on February 11, 1992, then-
President Bush announced an accelerated phaseout schedule for class I 
substances as identified in the CAA, as amended, section 606. This 
final schedule, published in the Federal Register (58 FR 65018; 
December 10, 1993), implements a January 1, 1996 phaseout of class I 
chemicals. The President also ordered an accelerated review of 
substitutes that reduce damage to the ozone layer. The expedited 
phaseout schedule and the President's directive regarding alternatives 
added urgency to EPA's effort to review and list substitutes for class 
I and II substances under section 612.

B. Subgroup of the Federal Advisory Committee

    In 1989, EPA organized the Stratospheric Ozone Protection Advisory 
Committee (STOPAC) in accordance with the requirements of the Federal 
Advisory Committee Act, 5 U.S.C. app. section 9(c). The STOPAC 
consisted of members selected on the basis of their professional 
qualifications and diversity of perspectives and provided 
representation from industry, academia, federal, state, and local 
government agencies, non-governmental and environmental groups, as well 
as international organizations. The purpose of STOPAC was to provide 
advice to the Agency on policy and technical issues related to the 
protection of stratospheric ozone.
    In 1991, the Agency asked STOPAC members to participate in 
subgroups to assist in developing regulations under title VI of the 
CAA. EPA established a subgroup of the standing STOPAC to guide the 
Agency specifically on development of the safe alternatives program. 
The subgroup on safe alternatives met twice. At the first meeting in 
May 1991, subgroup members reviewed a detailed description of EPA's 
plans for implementing section 612. At this meeting, there was general 
agreement on the need to issue a request for data to provide the 
general public with an opportunity to furnish the Agency with 
information on substitutes. The group also agreed on the need to review 
substitutes as quickly as possible to avoid any delay in industry's 
efforts to phase out ozone-depleting substances.
    At the second meeting of the subgroup, in July 1991, subgroup 
members provided EPA with comments on a draft of the Advance Notice of 
Proposed Rulemaking (ANPRM), which was prepared in response to the 
conclusions of the first meeting. The comments focused primarily on the 
draft discussion of EPA's plans for implementing section 612 and 
refinements to a list of preliminary substitutes that the Agency 
intended to review. Based on comments received from the subgroup and 
other offices within EPA, a final ANPRM was prepared and published in 
the Federal Register on January 16, 1992 (57 FR 1984). Because the bulk 
of regulatory development required under title VI has been completed, 
the STOPAC has since been disbanded.

III. Section 612 Program

A. Statutory Requirements

    Section 612 of the Clean Air Act authorizes EPA to develop a 
program for evaluating alternatives to ozone-depleting substances. EPA 
is referring to this new program as the Significant New Alternatives 
Policy (SNAP) program. The major provisions of section 612 are:
     Rulemaking--Section 612(c) requires EPA to promulgate 
rules making it unlawful to replace any class I or class II substance 
with any substitute that the Administrator determines may present 
adverse effects to human health or the environment where the 
Administrator has identified an alternative that (1) reduces the 
overall risk to human health and the environment, and (2) is currently 
or potentially available.
     Listing of Unacceptable/Acceptable Substitutes--Section 
612(c) also requires EPA to publish a list of the substitutes 
unacceptable for specific uses. EPA must publish a corresponding list 
of acceptable alternatives for specific uses.
     Petition Process--Section 612(d) grants the right to any 
person to petition EPA to add a substance to or delete a substance from 
the lists published in accordance with section 612(c). The Agency has 
90 days to grant or deny a petition. Where the Agency grants the 
petition, EPA must publish the revised lists within an additional 6 
months.
     90-day Notification--Section 612(e) requires EPA to 
require any person who produces a chemical substitute for a class I 
substance to notify the Agency not less than 90 days before new or 
existing chemicals are introduced into interstate commerce for 
significant new uses as substitutes for a class I substance. The 
producer must also provide the Agency with the producer's unpublished 
health and safety studies on such substitutes.
     Outreach--Section 612(b)(1) states that the Administrator 
shall seek to maximize the use of federal research facilities and 
resources to assist users of class I and II substances in identifying 
and developing alternatives to the use of such substances in key 
commercial applications.
     Clearinghouse--Section 612(b)(4) requires the Agency to 
set up a public clearinghouse of alternative chemicals, product 
substitutes, and alternative manufacturing processes that are available 
for products and manufacturing processes which use class I and II 
substances.

B. Guiding Principles

    EPA has followed several guiding principles in developing the SNAP 
program:
1. Evaluate Substitutes Within a Comparative Risk Framework
    The Agency's risk evaluation compares risks of substitutes to risks 
from continued use of ozone-depleting compounds as well as to risks 
associated with other substitutes. This evaluation considers effects 
due to ozone depletion as well as effects due to direct toxicity of 
substitutes. Other risk factors considered include effects on water and 
air quality, the potential for direct and indirect contributions to 
global warming, and occupational health and safety. Any effects found 
to pose a concern will be evaluated further to determine if controls 
are required. EPA does not believe that a numerical scheme producing a 
single index to rank all substitutes based on risks is appropriate. A 
strict quantitative index would not allow for sufficient flexibility in 
making appropriate risk management decisions that consider issues such 
as the quality of information supporting the decision, the degree of 
uncertainty in the data, the availability of other substitutes, and 
economic feasibility.
2. Do Not Require That Substitutes Be Risk-Free To Be Found Acceptable
    Section 612(c) requires the Agency to publish a list of acceptable 
and unacceptable substitutes. The Agency interprets this as a mandate 
to identify substitutes that reduce risks compared to use of class I or 
II compounds or to other substitutes for class I or II substances, 
rather than a mandate to list as acceptable only those substitutes with 
zero risks. In keeping with this interpretation, the Agency believes 
that a key goal of the SNAP program is to promote the use of 
substitutes for class I and II chemicals that minimize risks to human 
health and the environment relative to other alternatives. In some 
cases, this approach may involve designating a substitute acceptable 
even though the compound may be toxic, or pose other environmental risk 
of some type, provided its use reduces overall risk to human health and 
the environment as compared to use of class I or class II substances or 
other potential substitutes.
3. Restrict Only Those Substitutes That are Significantly Worse
    As a corollary to the above point, EPA does not intend to restrict 
a substitute if it poses only marginally greater risk than another 
substitute. Drawing fine distinctions concerning the acceptability of 
substitutes would be extremely difficult given the variability in how 
each substitute can be used within a specific application and the 
resulting uncertainties surrounding potential health and environmental 
effects. The Agency also does not want to intercede in the market's 
choice of available substitutes, unless a substitute has been proposed 
or is being used that is clearly more harmful to human health and the 
environment than other alternatives.
4. Evaluate Risks by Use
    Section 612 requires that substitutes be evaluated by use. 
Environmental and human health exposures can vary significantly 
depending on the particular application of a substitute. Thus, the risk 
characterizations must be designed to represent differences in the 
environmental and human health effects associated with diverse uses. 
This approach cannot, however, imply fundamental tradeoffs with respect 
to different types of risk to either the environment or to human 
health. For example, in the Agency's consideration of global warming as 
a criterion under SNAP, EPA has principally compared different global 
warming gases among themselves, as opposed to attempting to establish 
some methodology for comparing directly the effects of global warming 
and ozone depletion.
5. Provide the Regulated Community With Information as Soon as Possible
    The Agency recognizes the need to provide the regulated community 
with information on the acceptability of various substitutes as soon as 
possible. Given this need, EPA has decided to expedite the review 
process by conducting initial risk screens for the major substitutes 
now known to the Agency and to include them in this final rulemaking. 
Future determinations on the acceptability of new substitutes will be 
published in quarterly updates to the SNAP lists.
6. Do Not Endorse Products Manufactured by Specific Companies
    While the goal of the SNAP program is to identify acceptable 
substitutes, the Agency will not issue company-specific product 
endorsements. In many cases, the Agency may base its analysis on data 
received on individual products, but the addition of a substitute to 
the acceptable list based on that analysis does not represent 
endorsement of that company's products. Generally, placement on the 
list merely constitutes an acknowledgement that a particular product 
made by a company has been found to be acceptable under SNAP.
7. Defer to Other Environmental Regulations When Warranted
    In some cases, EPA and other federal agencies have developed 
extensive regulations under other statutes or other parts of the CAA 
that address any potential cross- or inter-media transfers that may 
result from the use of alternatives to class I and II substances. For 
example, ceasing to use an ozone-depleting compound may in some cases 
entail increased use of chemicals that contribute to tropospheric air 
pollution. These chemicals, such as volatile organic compounds (VOCs) 
or hazardous air pollutants (HAPs), are already regulated under other 
sections of the CAA, and determinations under the SNAP program will 
take these existing regulations into account. Where necessary, the 
Office of Air and Radiation will confer with other EPA program offices 
or federal agencies to ensure that any regulatory overlap is handled 
efficiently.

C. Implementation Strategy

    Implementation of the SNAP program is directed towards fulfilling 
the general policy contained in section 612 of identifying substitutes 
that can serve as replacements for ozone depleting substances, 
evaluating their effects on human health and the environment, and 
encouraging the use of those substitutes believed to present lower 
overall risks relative both to the ozone depleting compounds being 
replaced and to other substitutes available for the same end-use. 
Implementation of this policy involves four key activities. The first 
is to develop, promulgate, and administer a regulatory program for 
identifying and evaluating substitutes. The second activity is to 
undertake a review of the existing substitutes based on criteria 
established for the program and then to publish a list of acceptable 
and unacceptable substitutes by application. The third activity is to 
review additional substitutes as they are developed to allow their 
timely introduction into the marketplace. The fourth is to aggressively 
disseminate information about those substitutes found to pose lower 
overall risk through a clearinghouse and outreach program.
    To expedite implementation of the SNAP program, EPA has not only 
developed a screening process for examining the alternatives, as 
discussed in this final rule, but has also completed an analysis of 
many key substitutes based on the criteria presented here. Section IX 
summarizes the results of this assessment. More detail on the steps 
leading up to this final rule and the implementation of the SNAP 
program is given below.
1. ANPRM and Request for Data
    On January 16, 1992, EPA published in the Federal Register an 
Advance Notice of Proposed Rulemaking (ANPRM) and Request for Data (57 
FR 1984). The ANPRM described in general terms EPA's plans for 
developing the SNAP program and solicited public comment on the 
Agency's planned approach. The ANPRM also included an appendix listing 
substitutes that the Agency planned to include in its initial 
substitute determinations. The ANPRM invited industry to submit 
information on these substitutes and to identify additional 
alternatives to be considered in the SNAP program. The Agency received 
approximately one hundred comments from industry, trade groups, and 
other federal agencies. These comments contained information on 
potential substitutes for ozone-depleting chemicals, as well as 
comments on the SNAP program as described in the ANPRM.
2. Notice of Proposed Rulemaking on SNAP Process and Proposed 
Determinations
    On May 12, 1993 EPA published in the Federal Register a Notice of 
Proposed Rulemaking (NPRM) for SNAP (58 FR 28094). The NPRM described 
the proposed structure and process for administering the SNAP program 
and proposed determinations on the acceptability of key substitutes. 
The Notice also contained the proposed regulatory language that would 
serve as the legal basis for administering and enforcing the SNAP 
program.
    In the NPRM, EPA recognized that notice-and-comment rulemaking 
procedures were necessary to establish regulations governing SNAP. EPA 
further concluded that rulemaking was required to place any substance 
on the list of unacceptable substances, to list a substance as 
acceptable only with certain use restrictions, or to remove a substance 
from either the list of unacceptable or acceptable substitutes. EPA did 
not believe, however, that rulemaking procedures were required to list 
alternatives as acceptable with no restrictions. Such listings would 
not impose any sanction, nor remove any prior license to use a 
substance.
3. Final Rulemaking
    This final rule promulgates the SNAP process and the first set of 
determinations on SNAP substitutes. The Agency may revise these 
decisions in the future as it reviews additional substitutes and 
receives more data on substitutes already covered by the program. 
However, EPA expects future changes to the SNAP lists to be minor, and 
thus not to represent an undue burden on the regulated community. The 
principal changes the Agency expects to make in the future are to add 
new substitutes or sectors to the lists, rather than to change a 
substitute's acceptability. Further, once a substitute has been placed 
on either the acceptable or the unacceptable list, EPA will conduct 
notice-and-comment rulemaking to subsequently remove a substitute from 
either list, as described below in section VII. This final rule also 
addresses comments that the Agency received on the NPRM, and 
incorporates further data on substitutes received during the comment 
period.
4. Updates of SNAP Determinations
    Three mechanisms exist for revising or expanding the list of SNAP 
determinations published in this final regulation. First, under section 
612(d), the Agency will review and either grant or deny petitions to 
add or delete substances from the SNAP list of acceptable or 
unacceptable alternatives. Section VIII of this final rule presents 
EPA's method for handling petitions.
    The second means of revising or expanding the list of SNAP 
determinations is through the notifications, described below, which 
must be submitted to EPA 90 days before introduction of a substitute 
into interstate commerce for significant new use as an alternative to a 
class I or class II substance. These 90-day notifications are required 
by section 612(e) of the CAA for producers of alternatives to class I 
substances for new uses and by EPA regulations issued under sections 
114 and 301 of the Act to implement section 612(c) in all other cases. 
Section VII of this final rule discusses the Agency's approach for 
processing these notifications, including a strategy for integrating 
SNAP notifications with other chemical review programs already being 
implemented by EPA under authorities provided in the Toxic Substances 
Control Act (TSCA) and the Federal Insecticide, Fungicide, and 
Rodenticide Act (FIFRA). Other parts of this final rule also explain 
how the Agency addresses the overlap between SNAP regulations and 
regulations issued under other titles of the CAA.
    Finally, the Agency believes that section 612 authorizes it to 
initiate changes to the SNAP determinations independent of any 
petitions or notifications received. These amendments can be based on 
new data on either additional substitutes or on characteristics of 
substitutes previously reviewed.
5. Outreach and Substitute Clearinghouse
    Public outreach and the substitute information clearinghouse 
comprise the technical assistance component of the SNAP program. The 
purpose of this effort is to provide information for the public to use 
in selecting acceptable substitutes. Sections VII.A.3.f. and VII.A.3.g 
describe the Agency's approach for establishing the clearinghouse and 
performing outreach.

D. Response to Public Comment

    A document summarizing public comment on the NPRM in greater detail 
is available in the public docket supporting this final rule. The major 
programmatic issues raised by the commenters and the Agency's response 
to them are described below. Major comments specific to the eight SNAP 
industry sectors are addressed in sections IX.D. through IX.K. of this 
final rule.
1. Scope of the SNAP Rule
    a. Class II substances. One commenter supported EPA's position that 
the Agency has the authority to review class II substances under SNAP, 
particularly EPA's view that where little reduction in ozone depletion 
potential (ODP) can be gained in going from a class I substance to a 
class II substance, such as from methyl chloroform to HCFC-141b, the 
substitution should be disallowed under SNAP. Other commenters 
criticized this position, arguing that the omission of any reference to 
class II substitutes in section 612(e) clearly indicated Congressional 
intent that class II substitutes not be subject to the SNAP program.
    For this final rule, the Agency is including class II substances 
under the scope of SNAP. The Agency disagrees with one commenter's 
interpretation of the limitation in section 612(e). Section 612(c) 
specifically mandates that the Agency list unacceptable and acceptable 
alternatives for class I or II substances. In addition, the Agency 
believes that Congressional intent under section 612 is to reduce the 
overall risk from the continued use of ozone depleting substances 
(ODSs). The class II substances range in ozone depletion potential 
(ODP) from 0.11 for HCFC-141b to 0.02 for HCFC-123. In the evaluation 
of substitutes completed for the NPRM, use of some class II substitutes 
up to the time of their phaseout was identified as representing 
significantly greater overall risk than use of other alternatives 
available for a number of end-uses. Consequently, the Agency believes 
lower overall risk to human health and the environment can be achieved 
by including class II substitutes in SNAP. Despite the limitation in 
section 612(e) to producers of class I substances, EPA believes it has 
authority under section 114 and section 301(a) to require submission of 
SNAP notifications with respect to class II substances as necessary to 
enable EPA to carry out its obligation under section 612 to evaluate 
both class I and class II substances, as explained in the NPRM.
    b. Review of existing versus new substitutes. A number of 
commenters believed that EPA's SNAP program has no authority to 
restrict existing substitutes, which companies may have switched to in 
an effort to eliminate the use of CFCs prior to the publication of this 
final rule. Arguments in support of this position include the 
prospective language of the statute, which says EPA must make it 
``unlawful to replace'' an ODS with a substitute deemed unacceptable. 
Many of these commenters recommended grandfathering of these existing 
uses, so as not to disrupt industry's transition away from ODSs. An 
extension of this concern appears in several comments, in which 
commenters expressed the fear that SNAP will revisit prior decisions, 
removing substitutes previously deemed acceptable as newer and more 
environmentally benign substitutes are developed.
    Under the Agency's interpretation of section 612, in order to 
fulfill the Congressional mandate to review ``any'' substitute 
substance that may present adverse effects to human health and the 
environment, both new and existing substitutes must be included under 
SNAP. In addition, section 612(e) specifically requires notifying the 
Agency before new or existing chemicals are introduced into interstate 
commerce. EPA believes that class I and II substances are ``replaced'' 
within the meaning of section 612(c) each time a substitute is used, so 
that once EPA identifies an unacceptable substitute, any future use of 
such substitute is prohibited. Under any other interpretation, EPA 
could never effectively prohibit the use of any substitute, as some 
user could always start to use it prior to EPA's completion of the 
rulemaking required to list it as unacceptable. EPA believes Congress 
could not have intended such a result, and must therefore have intended 
to cover future use of existing substitutes.
    c. Grandfathering in SNAP. Many commenters supported the idea of 
grandfathering uses of existing substitutes, but felt that the 
grandfathering should be broadened to include existing uses of all 
substitutes which companies have invested in prior to the promulgation 
of the SNAP final rule, and not just HCFC-141b as proposed in the NPRM. 
Commenters argued that not doing so would delay transition by creating 
uncertainty about the useful life of alternatives.
    One commenter argued that the grandfathering scheme EPA has 
proposed with respect to HCFC-141b should be extended to existing uses 
of perfluorocarbons (PFCs). The commenter notes that title VI calls for 
regulation and elimination of ozone-depleting substances while in the 
commenter's opinion precluding regulation based on global warming 
potential. Since PFCs have no ozone depletion potential, the commenter 
argued that they are a better candidate than HCFC-141b for 
grandfathering. One commenter proposed two years past the date of an 
unacceptability determination as the general grandfathering period.
    In this final rule, the Agency will not grandfather existing uses 
except in specifically identified cases. The grandfathering provisions 
under SNAP do give the Agency flexibility to address unacceptable 
listings that might disrupt industry's transition away from ODSs. For 
this final rule, the Agency was not presented with significant evidence 
from the public comments to believe universal grandfathering of 
existing substitutes is warranted. The Agency believes that given the 
diversity of the industries covered under the SNAP program, a case-by-
case review of applications using the banned substitute would be 
necessary to protect human health and the environment. Moreover, EPA 
must be able to justify any grandfathering on a case-by-case basis 
under the grandfathering criteria established in the Sierra Club case, 
as described below in section VI.B.
    In the case of HCFC-141b, the Agency has elected to maintain the 
proposed grandfathering period for existing uses, since many users 
switched to HCFC-141b when it was believed to offer sufficient risk 
reduction. In comparison, for perfluorocarbons, the Agency has made 
clear from the beginning of their suggested use as substitutes that the 
Agency has concerns about the global warming potential of these 
chemicals. EPA believes, therefore, that an extended grandfathering 
period in this case is not warranted.
    However, the Agency agrees to grandfather for use, existing 
supplies of a substitute in the possession of an end-user as of March 
18, 1994. Therefore, persons who transitioned to a substitute for an 
end-use prior to this final rule may continue use of all existing 
supplies of the substitute purchased prior to March 18, 1994 until that 
supply is exhausted. As of the effective date of this final rule, only 
substitutes purchased prior to March 18, 1994 can be used. Under the 
four-part test to judge the appropriateness of grandfathering (see 
section VI.B of this final rule), the Agency determined that, on 
balance, the results of this test favors this action.
    Existing inventory of final products manufactured with or 
containing a substitute designated unacceptable as a result of final 
EPA rule-making within an end-use covered under SNAP could 
theoretically be legally sold after listing. Producers should be aware, 
however, that they will be effectively barred from selling a substitute 
for use once it has been deemed unacceptable under SNAP, because 
potential purchasers will not be able to use it. After the effective 
date of this final rule, users will not be able to use any additional 
supply of a banned substitute purchased after the publication date of 
the unacceptable listing.
    d. Exemption for small sectors and small volume uses. In the NPRM, 
EPA proposed to exempt small volume use applications requiring less 
than 10,000 pounds per year of an ODS substitute from SNAP review. This 
proposal generated substantial confusion. Many commenters pointed out 
that the 10,000 pounds exemption from reporting and review under SNAP 
was vague, and asked for additional clarification. Specifically, 
commenters asked whether EPA intended the 10,000 pound limit to apply 
at the process, plant, company, or sector level. If applied at the 
sector level, some commenters noted that an individual end-user might 
have enormous difficulty compiling volume information related to the 
behavior of an entire industry sector.
    In response to these comments, EPA has decided to maintain the 
small use exemption but provide the needed additional clarification of 
the Agency's intent. The Agency will exempt from the section 612(e) 
notification requirements substitutes used in quantities of 10,000 
pounds or less per year within a major industrial sector covered under 
SNAP. The responsibility for reporting under the notification 
requirement for SNAP falls on those introducing substitutes into 
interstate commerce, not on the individual end-user. Similarly, relief 
from reporting, if within the bounds of the small use and sector 
exemption as defined, rests with the same person.
    The Agency believes the burden of responsibility for determining 
whether use of a substitute will be small should reside at the same 
level as the notification requirement. That is, it should be the 
responsibility of the introducing agent to determine whether use of a 
particular substitute in a given sector is likely to remain below 
10,000 pounds per year. The Agency continues to believe that focusing 
the listing decisions on the substitutes sold in the largest volumes 
will allow the Agency to target its regulatory efforts to those 
applications that offer the maximum risk reduction potential.
    Many commenters generally supported EPA's exemption for small 
industrial sectors, arguing that the administrative burden imposed by a 
SNAP review of all possible substitutions is unjustified by the likely 
risks posed by these uses. For this final rule, the Agency will 
continue to exempt small sectors and small volume uses within major 
industrial sectors from reporting responsibilities under SNAP.
    e. Designation of submitters/reporting responsibilities. Many of 
the public comments on the NPRM expressed general support for the 
flexibility of the reporting requirements, noting it is sensible to 
require notification from the person most suited to have the relevant 
information. However, some confusion has arisen as to the 
implementation and enforcement of these requirements.
    The Agency agrees with public comment that the designation of 
submitters or reporting responsibility needed clarification in this 
final rule. For this final rule then, reporting responsibility rests 
with the person who introduced the substitute into interstate commerce 
in its final form. As such, the producer could potentially be a 
manufacturer, formulator, or an end-user. Identification of designated 
submitters is further detailed in section IV.B.
    f. Exemption for second-generation substitutes. Many commenters 
supported EPA's exemption for second-generation substitutes. However, 
several asked for clarification of regulatory language setting out this 
exemption. They note that the definition left plenty of room for 
advances in the science to calculate increasingly small contributions 
to ozone depletion added by hitherto unsuspected compounds, thereby 
constantly broadening the scope of SNAP as new concerns develop. They 
ask that EPA clarify that SNAP should only apply to substitutes for 
class I or class II compounds.
    EPA agrees with these comments and has clarified in section 
IV.A.2.f. that the definition of second-generation applies only to 
substitutes for class I or class II compounds in this final rule.
2. SNAP Determination and Listing Process
    a. Allowing for assured minimum periods of use. Numerous commenters 
expressed a need for a minimum assured time period of use for 
acceptable substitutes in order to facilitate the fastest possible 
transition away from class I substances. Some commenters suggested that 
this assured minimum period should be established based on some 
economic measure, such as the lifetime of equipment in which the 
compound is to be used, or the overall payback period for investment in 
modifications to allow the use of a transitional compound. One 
commenter suggested the use of risk analysis to define the assured 
minimum period. Other commenters suggested 10 years as the appropriate 
period.
    The Agency believes Congress enacted provisions under section 612 
which make a minimum assured time period for use of a substitute 
neither authorized nor necessary under SNAP. As described in section 
VIII of this final rule, a petition under section 612(d) to change a 
listing from acceptable to unacceptable or vice versa must include 
adequate data. In addition, any change will be formally promulgated as 
a rulemaking, which requires EPA to propose, take public comment, and 
complete final action for any decision. If the decision is made to 
change a listing for a substitute from acceptable to unacceptable, the 
grandfathering provisions of this final rule provide the Agency with 
the flexibility in appropriate cases to provide time after a substitute 
is removed from the list of acceptable substitutes to allow persons who 
are then using the substance, or who have expended considerable efforts 
in good faith toward its use, to find a different substitute and 
recover their investment in prior substitutes.
3. SNAP Information Form
    a. Use of global warming potential. Some commenters argue that EPA 
has no legal authority under section 612 to regulate substitutes based 
on global warming. One commenter noted that during the development of 
title VI, Congress deliberately excised global warming from the 
statute, and that legislative history of title VI thus argues against 
reliance on global warming as a regulatory criterion under SNAP. 
Finally, a commenter asserted that not only the Congress, but the 
President also believes that ozone depletion and global warming should 
be treated separately.
    The Agency believes that the Congressional mandate to evaluate 
substitutes based on reducing overall risk to human health and the 
environment authorizes use of global warming as one of the SNAP 
evaluation criteria. Public comment failed to identify any definition 
of overall risk that warranted excluding global warming. Further, in 
October 1993, the President directed EPA through the Climate Change 
Action Plan (CCAP) to use its authority under section 612 of the Clean 
Air Act to narrow the uses allowed for hydrofluorocarbons and 
perfluorocarbons with high global warming potential.
    EPA disagrees with the statutory and legislative history arguments 
raised by the commenter. The commenter points to language that relates 
only to the listing of ozone depleting and global warming substances, 
which is not relevant to EPA's authority under section 612(c) to 
regulate substitutes based on an assessment of overall risk. The fact 
that Congress may have deleted authority for EPA to phase out use of 
substances based solely on their global warming potential without 
regard to available substitutes certainly imposes no limitation on 
consideration of global warming potential as a factor in assessing the 
overall risk of using any class I or II substitute. Especially in light 
of President Clinton's recent commitment to use section 612 authority 
specifically to narrow uses of high global warming potential CFC 
substitutes based on an overall risk assessment, EPA has concluded that 
it is appropriate to consider global warming potential as one factor in 
the SNAP analysis. Therefore, in this final rule, the Agency will 
continue to exercise its statutory authority to review substitutes for 
listing as unacceptable or acceptable alternatives, using the criteria 
for evaluation set out in the NPRM, including global warming.
4. Definitions
    a. Definition of potentially available. Several commenters 
supported EPA's definition of potentially available because it would 
speed the review process and encourage innovation in development of new 
substitutes. Other commenters expressed the concern that EPA's 
definition of ``potentially available'' could allow EPA to review and 
accept a substitute which may be several years from general commercial 
availability, and on that basis to ban some other commonly used 
chemical with relatively higher risk. These commenters argued that EPA 
should at least wait until test marketing has begun to consider an 
alternative ``potentially available'' for the purpose of SNAP review. 
Another commenter argued that a knowledge of the economic viability of 
a substitute is crucial in assessing its potential availability as a 
substitute under SNAP.
    Under section 612(c) of the CAA, the Agency is specifically 
required to identify alternatives that are either ``currently or 
potentially available.'' For this final rule, the Agency is defining as 
potentially available any alternative for which adequate health, 
safety, and environmental data, as required for the SNAP notification 
process, exist to make a determination of acceptability, and which the 
Agency reasonably believes to be technically feasible, even if not all 
testing has yet been completed and the alternative is not yet produced 
or sold. EPA would not prohibit use of a substitute where no substitute 
that reduces overall risk is currently available, to avoid situations 
where the only available substitute to allow transition away from 
ozone-depleting compounds is unacceptable under SNAP.
    b. Definition of a substitute. Several commenters expressed support 
for EPA's definition of a substitute as used in the NPRM. One commenter 
proposed the use of the word ``alternative'' instead of ``substitute,'' 
while supporting the Agency's general construction of the statute to 
allow SNAP's purview to extend beyond chemical substitutes to a broader 
range of alternative technologies, including process changes. Another 
commenter, while also generally supporting EPA's definition of a 
substitute, pointed out that the language ``could replace'' is overly 
broad. This commenter noted that this language suggests that someone 
who is not using a compound as an ODS replacement, but is aware that it 
could be used in this way, should report to EPA under SNAP.
    For the purpose of this final rule the Agency is using the word 
``substitute'' as a synonym for alternative. As discussed in section 
IV.A, this definition includes chemical substitutes, alternative 
manufacturing processes, and alternative technologies. In response to 
the public comment described above, the Agency has also clarified in 
this final rule that SNAP addresses only those substitutes or 
alternatives actually replacing the class I and II compounds listed 
under section 602 of the CAA within the eight industrial sectors 
identified in sections IX.D. through K.
5. General Comments on Substitutes
    a. Perfluorocarbons. Under the NPRM for SNAP, EPA proposed 
perfluorocarbons (PFCs) as acceptable for limited use as replacements 
for ozone depleting chemicals in the solvent cleaning, and fire 
suppression and explosion protection sectors. Several commenters 
supported the Agency's cautious approach toward PFCs, given the high 
global warming potential of these compounds as well as their extreme 
atmospheric persistence. Other commenters sought clarification with 
respect to the scope of the Agency's proposed restrictions on PFCs.
    PFCs are fully fluorinated compounds, unlike CFCs, HCFCs, or 
hydrofluorocarbons (HFCs). These chemicals are nonflammable, have low 
toxicity, are exempt from federal VOC regulations, and do not 
contribute to stratospheric ozone depletion. The environmental 
characteristics of concern for these compounds are high global warming 
potential (5,000-10,000 times greater than CO2) and long 
atmospheric lifetimes (3,000-5,000 years). Although the actual 
contributions to global warming depend upon the quantities emitted, 
because of their long atmospheric lifetimes, the warming effects of 
PFCs are essentially irreversible.
    In the proposed rule, EPA identified specific solvent cleaning 
applications for which PFCs were acceptable. In response to public 
comment seeking clarification of these limitations, EPA is finding PFC 
use acceptable in electronics and precision cleaning for only high-
performance, precision-engineered applications where no other 
substitute for CFC-113 or MCF would meet performance or safety 
requirements. Additional detail on PFC use in the solvent cleaning 
sector can be found in section IX.F.
    In this final rule, EPA has also clarified the limitations placed 
in its proposed rule on the use of PFCs to replace halons. PFC-410 
(C4F10) and PFC-614 (C6F14) will be limited to fire 
suppression and explosion protection applications where other 
alternatives are not technically feasible to meet safety or performance 
requirements due to the physical or chemical properties of the agent, 
or where human exposure to the extinguishing agent may approach 
cardiosensitization levels or result in other unacceptable health 
effects under normal operating conditions. Additional detail on PFC use 
in the fire suppression and explosion protection sector can be found in 
section IX.G.
    Before replacing ozone-depleting compounds with PFCs, users must 
first investigate whether other alternatives would meet performance or 
safety standards. This may include contacting vendors or testing using 
other substitutes and equipment. Although special forms or reporting to 
EPA is not required, companies must maintain documentation of the 
review of alternatives on file. Where users must rely on PFCs for lack 
of other options, they should make every effort to adopt closed systems 
and recover, recycle and destroy the chemicals where possible. EPA also 
encourages PFC users to reduce emissions to a minimum through 
conservation practices that address idling losses and operator 
variables. Above all, PFC users should continue the search for long-
term alternatives.

IV. Scope of Coverage

A. Definition of Substitute

1. Statutory Language
    Based on the language of section 612(a) of the CAA, the Agency 
defines within the SNAP program a ``substitute'' as any chemical, 
product substitute, or alternative manufacturing process, existing or 
new, that could replace a class I or II substance. While subsequent 
subsections of section 612 refer only to ``substitute substances'' or 
``substitute chemicals,'' EPA interprets these provisions for purposes 
of the SNAP program as incorporating the general definition of 
substitute presented in section 612(a). The Agency believes that this 
definition is consistent with the overall intent of section 612 and is 
necessary to enable EPA to identify and analyze the universe of 
substitutes for class I and II substances.
    Section 612(c) prohibits users from replacing class I or II 
substances with any substitute substance which the Administrator 
determines may present adverse effects to human health and the 
environment, where the Administrator has identified an alternative to 
such replacement that: (1) Reduces overall risk to human health and the 
environment, and (2) is currently or potentially available. EPA 
believes that in addition to authorizing the Agency to ban the use of a 
given substitute substance where other alternatives exist, section 612 
confers the legal authority to allow the use of a substance only with 
certain restrictions--conditions of use or narrowed use limits--while 
banning its use otherwise. This authority is inherent in the 
Administrator's authority to totally ban use of the substitute where 
other acceptable alternatives exist that reduce overall risk. EPA only 
intends to use this authority where a viable substitute exists that 
would otherwise have to be disallowed because of risk associated with 
its uncontrolled use.
    a. Use conditions. In imposing conditions on use, EPA does not 
intend to preempt other regulatory authorities, such as those exercised 
by the Occupational Safety and Health Administration (OSHA) or other 
government or industrial standard-setting bodies. Rather, EPA hopes to 
fill existing regulatory gaps during the interim period of substitution 
away from ozone-depleting compounds and provide the needed margin of 
protection to human health and the environment until other regulatory 
controls or standards are developed under appropriate authorities.
    EPA anticipates applying use conditions only in the rare instances 
where clear regulatory gaps exist, and where an unreasonable risk would 
exist in the absence of any condition. These restrictions will remain 
in place only until the appropriate standard-setting agency acts. Where 
appropriate, EPA's use conditions will terminate by their own terms 
once the appropriate standard-setting Agency takes action. The 
mechanism for informing the public of this change will be the quarterly 
Federal Register notices updating the status of the SNAP lists. These 
are discussed further in Section VII.A below.
    b. Narrowed use limits. In imposing narrowed use limits, the Agency 
has sought to expand the list of alternatives available to all 
applications within a sector end-use category. EPA recognizes that 
certain sector end-uses encompass a broad range of applications, 
manufacturing processes, and products. Where EPA narrows uses, a 
substitute will be acceptable for use only in certain applications, as 
where other alternatives are not technically feasible due to 
performance or safety requirements. Conditions on use discussed in 
section IV.A.1.a. above refer to how (under what operating conditions) 
an otherwise unacceptable substitute may be used; narrowed use limits 
define where (in which end-uses and applications) an otherwise 
unacceptable substitute may be used.
    c. Potentially available. Section 612(e) makes clear that a 
chemical can be a substitute whether it is existing or new. Also, the 
language in section 612(c) clearly states that a new substitute may be 
currently or potentially available. In this final rule, the Agency is 
defining as potentially available any alternative for which adequate 
information exists to make a determination of acceptability, and which 
the Agency reasonably believes to be technically feasible, even if not 
all testing has yet been completed and the substitute is not yet 
produced and sold.
2. Additional Clarification
    EPA believes that the statutory language included in section 612 is 
written broadly to allow for a reasonably comprehensive evaluation of 
substitutes that will be introduced as replacements for ozone-depleting 
chemicals. However, additional clarification is presented below to 
further explain the Agency's definition of a ``substitute'' in specific 
circumstances based on section 612.
    a. Chemicals already listed under TSCA. Section 612(e) explicitly 
requires producers of chemicals, both new and existing, to notify the 
Agency before introducing such chemicals into interstate commerce for 
significant new uses as class I alternatives. In addition, section 
612(c) requires the Agency to produce lists of acceptable and 
unacceptable substitutes, without regard to the status of each chemical 
alternative, whether new or existing.
    These interrelated provisions of section 612 serve as the basis for 
the Agency's belief that all substitutes, whether ``new or existing'' 
chemicals, should be subject to SNAP review. This regulatory purview 
would thus necessarily extend to those chemicals already listed on the 
TSCA inventory of existing chemicals. EPA believes SNAP review is 
critical for such chemicals given the differing statutory objectives of 
TSCA and the CAA, and the new and expanded applications of many 
existing chemicals as class I and II replacements, which could alter 
existing release and exposure profiles.
    b. Significant new use of existing alternatives. There has also 
been some question regarding whether an existing alternative already 
being sold commercially within a SNAP sector (e.g., use of semi-aqueous 
cleaners in the electronics industry) would be subject to review under 
section 612. The Agency believes that it should be subject to review 
under SNAP. Because of the phaseout, uses of existing substitutes can 
reasonably be expected to increase significantly beyond current 
consumption, which could translate into greater releases and risks from 
use of a substitute. Existing substitutes are therefore subject to SNAP 
review because EPA believes that their use can be expected to 
significantly expand to new users or product lines. Users should note 
that the SNAP determinations discussed in section IX of this final rule 
demonstrate that with few exceptions, all substitutes already on the 
market meet the conditions for acceptability under the SNAP program.
    c. Authority to review substitutes for class II compounds. Section 
612(c) authorizes the Administrator to prohibit the use of substitutes 
for class II, as well as class I substances, and requires the Agency to 
compile lists of substitutes for class II as well as class I compounds 
upon making the requisite findings. EPA believes that this is in part 
because of the considerable overlap in sectors that use class I and II 
substances. More importantly, this mirrors the statute's general 
emphasis on moving away from class I compounds in a way that does not 
create new and unintended environmental problems. Clearly, for the same 
reasons class I substitutes require review under the SNAP program, 
class II substitutes should also be reviewed.
    To obtain the data necessary to analyze class II substitutes, the 
Agency is using statutory authority provided in sections 114 and 301 of 
the CAA in conjunction with 612(c). As explained in the NPRM, these 
sections, when read together, authorize the Administrator to promulgate 
such regulations as needed to require companies to provide information 
EPA may reasonably need to identify acceptable and unacceptable 
substitutes for class II substances. EPA is exercising this authority 
to subject class I and II substitutes to the same information reporting 
requirements and listing process.
    d. Designation of class I and II chemicals as substitutes. EPA 
believes that review authority under section 612 extends also to use of 
class I and II chemicals as substitutes, even though these chemicals 
are subject to the phaseout provisions of the CAA. While one comment 
received by the Agency in response to the NPRM questions EPA's 
authority under section 612 to review class I and II chemicals as 
substitutes (e.g., methyl chloroform used to replace CFC-113), it is 
clear that these compounds can be used as substitutes for other class I 
and II substances in certain applications. Since section 612 authority 
extends to ``any'' substitutes, both class I and II substances are 
subject to review under the SNAP program just as any other substitute. 
Given the potential for the class I and II chemicals used as 
substitutes for other ozone-depleting chemicals to continue depleting 
stratospheric ozone and thus affect human health and the environment, a 
close examination of these alternatives in the context of both their 
effect on the environment and the availability of other substitutes for 
particular uses is especially warranted under section 612.
    e. Alternative products and manufacturing processes. EPA believes 
that section 612(c) broadly charges EPA to identify alternatives to 
ozone-depleting substances. For example, EPA believes that alternative 
products can include no-clean fluxes in electronics manufacturing 
processes that currently use class I or II compounds as cleaning 
solvents. EPA believes it appropriate to consider substitute processes 
and products for review under the SNAP program, since many of these 
alternatives are viable substitutes and could reduce overall risks to 
human health and the environment. EPA believes that such alternative 
products and processes, therefore, fall within the definition of 
substitutes under section 612.
    Similarly, new production techniques and/or processing equipment 
are important developments that can minimize environmental releases. 
Accordingly, alternative manufacturing processes will also be examined 
under section 612 in the context of use and emissions of substitutes. 
EPA believes that section 612's reference to ``alternative,'' instead 
of ``alternative substance,'' or ``alternative chemical,'' implies a 
statutory intent that ``alternative'' be read broadly. This furthers 
the statutory desire to shift use to alternatives that reduce overall 
risk.
    EPA will encourage, where appropriate, alternative processes and 
technologies that reduce environmental and human health effects. In 
many applications, reliance on alternative processes and/or equipment 
may be associated with the use of particular substitute chemicals. In 
these instances, EPA encourages the filing of joint submissions where 
information is provided by both the chemical manufacturer and, for 
example, an equipment manufacturer whose equipment makes use of such a 
substitute. Such joint filings will provide the most comprehensive data 
on an alternative and its effect on human health and the environment.
    f. Second-generation substitutes. A key issue is whether there 
exists a point at which an alternative should no longer be considered a 
class I or II substitute as defined by section 612. The Agency believes 
that as long as class I or II chemicals are being used, any substitute 
designed to replace these chemicals is subject to review under section 
612. In this final rule, the Agency has determined that second-
generation replacements, if they are non-ozone depleting and are 
replacing non-ozone depleting first-generation alternatives, are exempt 
from reporting requirements under section 612. Other regulatory 
programs (e.g., other sections of the CAA, or section 6 of TSCA) exist 
to ensure protection of human health and the environment in these 
situations.
    Where second-generation substitutes replace first-generation 
substitutes that are themselves ozone-depleters (e.g., HCFCs), these 
second-generation substitutes are bound by the same notification and 
review requirements under section 612 as first-generation substitutes 
to ozone-depleting chemicals. For example, if a hydrofluorocarbon (HFC) 
is introduced as a first-generation refrigerant substitute for either a 
class I (e.g., CFC-12) or class II chemical (e.g., HCFC-22), it is 
subject to review and listing under section 612. Future substitutions 
to replace the HFC would then be exempt from reporting under section 
612 because the first-generation alternative did not deplete 
stratospheric ozone. If, however, a class I or class II chemical is 
used as a first-generation substitute (e.g., use of HCFC-141b as a 
transitional replacement in foam blowing), the second-generation 
substitute is still subject to review under section 612 because it is 
replacing a class I or class II chemical.
    The key to determining whether a substitute is exempt or not as a 
second-generation substitute is, as discussed above, what it is 
designed to replace. For example, SNAP reviews are not meant to cover 
cases in which a technology is designed for use primarily in replacing 
existing non-ozone depleting evaporative cooling systems. In general, 
if most intended uses for a possible substitute are to replace a non-OD 
substitute for a class I or class II substance, then this substance 
would therefore be a second-generation substitute, and SNAP review is 
unlikely to be required. In those situations where class I or class II 
substitutes have already been replaced in most applications, the small 
use exemption could also eliminate the need for review of next 
generation substitutes.
    g. Applicability to existing uses. The prohibition on use of an 
alternative applies only to substitutions to unacceptable substitutes 
made after the effective date of any final rulemaking for 
unacceptability. However, for this final rule, any person who has 
transitioned to a substitute for an end-use prior to any SNAP final 
rulemaking designating it as unacceptable may continue to use the 
substitute until their existing supply of the chemical, as of March 18, 
1994, is depleted.
    Existing inventory of final products manufactured with or 
containing a substitute designated unacceptable as a result of final 
EPA rule-making within an end-use covered under SNAP could 
theoretically be legally sold after listing. Producers should be aware, 
however, that they will be effectively barred from selling a substitute 
for use once it has been deemed unacceptable under SNAP, because 
potential purchasers will not be able to use it. After the effective 
date of this final rule, users will not be able to use any additional 
supply of a banned substitute purchased after the publication date of 
the unacceptable listing.
    h. Substitutes produced outside of the United States. Companies 
manufacturing substitutes outside the U.S. who are producing solely for 
use by entities outside the U.S. are not subject to the requirements of 
these section 612 rules. EPA believes that its authority under section 
612 extends only to use of substitutes in areas under the jurisdiction 
of the United States government. This principle does not apply to 
substitutes introduced as replacements for class I and II chemicals at 
offshore U.S. installations (e.g., U.S. military bases located in 
foreign countries) that are subject to the legal provisions of section 
612.
    Substitutes manufactured within the U.S. exclusively for export are 
subject to SNAP since the definition of use in the rule includes use in 
the manufacturing process, which occurs within the United States.

B. Who Must Report

1. General Provisions
    As required by section 612(e), anyone who produces a substitute for 
a class I substance must provide the Agency with that person's 
unpublished health and safety studies on the substitute, as well as 
notify the Agency at least 90 days before introducing the substitute 
into interstate commerce for significant new use as an alternative. 
Also, as discussed in section IV.A.2.c. of this final rule, pursuant to 
sections 114, 301 and 612(c) of the CAA, producers of class II 
substitutes must abide by the same reporting requirements. Under the 
authority of sections 114, 301(a) and 612(c), EPA has determined that 
in certain cases, formulators or end-users of substitutes could be 
considered to be producers and would therefore be subject to reporting 
requirements. This approach is discussed below, in section IV.B.2. To 
analyze substitutes under section 612(c), the Agency finds it necessary 
under section 301(a) to require that any person who introduces a 
substitute in its final form into interstate commerce be considered to 
be a producer of the substitute and required to submit information 
describing the substitute under section 114. With respect to 
substitutes for both class I and II substances, EPA needs all of the 
types of information described below, not just health and safety 
studies. Such data are needed to allow EPA to fully analyze the overall 
risks to human health and the environment presented by alternative 
substitutes, as required by section 612(c).
2. Designated Submitters
    Several commenters requested clarification on who has primary 
responsibility to notify EPA under SNAP. EPA recognizes that a 
potential substitute can be developed for introduction into one of the 
SNAP sectors at several points in the manufacture-to-use chain. EPA 
considers responsibility for notification under SNAP to reside with the 
person who first introduces a substitute not otherwise exempted from 
reporting requirements into interstate commerce. Therefore, for 
example, if a chemical manufacturer introduces a substitute into 
interstate commerce for sale as a fire extinguishing agent to replace 
an ODS-based extinguishing method, the manufacturer is a designated 
submitter under SNAP. If a system manufacturer or a chemical formulator 
buys an agent from a chemical manufacturer and subsequently formulates 
or engineers it for introduction into interstate commerce as a 
substitute for an ozone-depleting means of fire suppression, then in 
this case, the system manufacturer or formulator is the designated 
submitter. If an end-user develops a proprietary blend or means of fire 
suppression using chemical or physical inputs purchased from 
manufacturers or formulators and then enters that product into 
interstate commerce as a replacement for ozone-depleting means of fire 
suppression, then the end-user is in this case the designated 
submitter.
    a. Chemical manufacturers. Chemical manufacturers producing a 
substitute in its final form are required to notify the Agency of the 
existence of that substitute. For instance, if a chemical manufacturer 
intends to market a new chemical as a substitute foam blowing agent to 
companies that manufacture insulation products, the chemical 
manufacturer would be required to notify the Agency about the existence 
of the substitute.
    b. Formulators. A formulator is engaged in the preparation or 
formulation of a substitute, after chemical manufacture of the 
substitute or its components, for distribution or use in commerce. 
Formulators usually only sell substitutes based on existing chemicals, 
since they do not ordinarily possess chemical manufacturing 
capabilities. Chemicals used in such substitutes are frequently in 
common use and have already been accepted for general use through other 
chemical review programs such as under TSCA or FIFRA.
    However, to the extent that these formulators can be considered to 
be directly responsible for production of the substitute for an end-
use, for example by offering a tailored formulation for an industrial 
cleaning process, these formulators would be subject to reporting 
requirements as outlined in this final rule. In such cases, the 
formulator is best suited in the manufacture-to-use chain to present 
information on how substitutes based on existing chemicals are or could 
be used. In cases where the manufacturer of a chemical is also the 
formulator of a blend, the manufacturer would be responsible for 
meeting reporting requirements on the substitute.
    The Agency does not foresee a situation where any person who simply 
re-packages a substitute, i.e. does not in any way alter the chemical 
or physical characteristics of the substitute, would be the designated 
submitter. However, if the act of re-packaging a product is intended 
solely to allow for the introduction of a substitute into interstate 
commerce, that person would be the designated submitter under SNAP.
    c. End-users. In general, end-users of substitutes will not be 
obligated to meet the reporting requirements discussed in this final 
rule, except in rare cases where the end-user and the producer of the 
substitute for commercial introduction in final form are the same 
person. While the Agency expects that this situation will occur 
infrequently, several large companies have developed substitutes for 
their own use and subsequently have notified EPA of their intent to 
offer those substitutes for commercial sale. Because EPA intends to 
require end-users to report only on those substitutes they plan to 
introduce into interstate commerce, evaluating and listing such 
substitutes will not stifle research and development innovations by 
end-users.
3. Exemptions From Reporting
    The Agency has identified several situations in which notification 
under the provisions of section 612 will not be required. These 
exemptions from reporting are discussed below.
    a. Substitutes already listed by EPA. As part of this final rule, 
the Agency has already completed the review of numerous class I and II 
alternatives and has determined that these substitutes are either 
acceptable or unacceptable. In preparing these determinations, the 
Agency evaluated information either on file or supplied in response to 
the NPRM published in the Federal Register on May 12, 1993. The 
substitutes list and supporting risk screens are described in more 
detail in section IX. No further submission is needed for any of those 
substitutes already listed as acceptable or unacceptable in this final 
rule. However, further information may be required for those 
substitutes listed as pending review in appendix B.
    b. Small sectors. Most ozone-depleting substances have been or are 
currently used in large industrial sectors such as refrigeration and 
air conditioning or foam blowing. However, there are also numerous 
small uses of class I or II substances that fall outside of these major 
use sectors. While small use applications for class I and II compounds 
are varied and numerous, in the aggregate these small uses do not 
contribute substantially to ozone depletion. The Agency estimates that 
across all sectors these varied but small sector uses comprise in 
aggregate at most seven percent of total U.S. consumption of ozone-
depleting substances. For more detail on the Agency's analysis and 
rationale for exempting small sectors, readers should refer to the 
Notice of Proposed Rulemaking for SNAP (58 FR 28094) published May 12, 
1993.
    Accordingly, eight major industrial use sectors are covered in this 
final rule. They are refrigeration and air conditioning, foam blowing, 
fire suppression and explosion protection, solvents cleaning, 
adhesives, coatings, and inks, aerosols, sterilization and tobacco 
expansion. Analysis of substitutes in a ninth sector, pesticides, will 
be completed, and the resulting decisions will be added to future SNAP 
determinations published in the Federal Register as part of EPA's 
quarterly updates to the lists of acceptable and unacceptable 
substitutes. EPA does not plan to add sectors other than the nine 
principal sectors listed above to the formal analyses performed under 
SNAP, unless the Agency receives additional data indicating that 
inclusion of additional sectors is warranted based on the potential for 
high risks to human health and the environment due to class I and II 
alternatives.
    c. Small volume use within SNAP sectors. As noted above, most 
ozone-depleting substances have been or are currently used in large 
industrial sectors such as refrigeration or fire extinguishing. 
However, even within these sectors, the potential for adverse effects 
on human health and the environment is related to the aggregate amount 
of ozone-depleting material consumed in an end-use. Thus, the Agency is 
focusing the SNAP determinations on large-volume uses in the major 
industrial sectors. Given the breadth of EPA's required overall risk 
assessment, the imposition on small volume uses within any sector of a 
requirement for a full SNAP submission seems unjustified by the 
potential for risk posed by these small uses.
    Moreover, a key policy interest in the SNAP program is promoting 
the quickest possible shift from the ODSs into alternatives posing 
lower overall risk. The speed and orderliness of this shift depends in 
part on clear early determinations from EPA on the acceptability of key 
substitutes. Focusing the SNAP program on all possible substitutes in 
every conceivable use could diminish EPA's ability to provide an early 
and clear message on those substitutes which can contribute most to 
solving the problem of general reliance on ozone-depleting chemicals.
    Further, the small volume use exemption is an exemption from the 
notification requirement only. It does not, for example, authorize the 
use in any quantity of a substitute otherwise deemed unacceptable under 
SNAP. Since the responsibility for meeting the notification requirement 
resides with the person introducing the substitute into interstate 
commerce, whether manufacturer, formulator, or end-user, this person is 
also responsible for ascertaining whether annual use of the substitute 
in its intended sector will exceed 10,000 pounds per year.
    Thus, those introducing substitutes for ozone-depleting compounds 
in annual quantities of 10,000 pounds per year or less for any given 
major industrial sector identified in this rule need not notify EPA of 
their activities under SNAP. The exemption applies regardless of 
whether the Agency is notified for the same substitute for any 
conceivable application in the other major sectors covered under SNAP, 
or whether the introducer's total sales are 10,000 pounds or less for 
any or all of the other major SNAP sectors.
    Those taking advantage of the exemption for small uses must 
maintain documentation describing the basis for their view that any 
substitute being used meets this small use definition. This 
documentation must include annual production and sales information by 
sector, and could be necessary in the event the Agency receives a 
petition to add such substitutes to its evaluations under SNAP, or to 
assure adequate enforcement of the notification requirement.
    d. Research and development. Substitutes manufactured or imported 
solely for research and development are exempt from reporting 
requirements under section 612. Several commenters, including Federal 
agencies involved in research on CFC-related substitutes, support this 
exemption. Amounts used in research are assumed to be the minimum 
necessary for reasonable scientific experimentation. For new chemicals, 
the provisions of 720.36 of the PMN rule (40 CFR part 720) are in 
effect.
    e. Test marketing. Use of alternatives for the sole purpose of test 
marketing is exempt from any reporting requirements under section 612. 
Persons taking advantage of this exemption, are, however, required to 
notify the Agency in writing that they are conducting test marketing 
prior to the commencement of sale into interstate commerce. 
Notification must be sent 30 days prior to the test marketing period, 
and must include the name of the substitute used, the volume used in 
the test marketing, and the expected duration of the test marketing. 
Once a company decides to sell an alternative as a class I or II 
substitute, it must provide the Agency with formal notification at 
least 90 days prior to the introduction of the substitute into 
interstate commerce for significant new use as a substitute for a class 
I or II chemical.
    For new substitute chemicals that are being test marketed, the 
producer must abide by the provisions of section 5(h)(1) of TSCA, which 
authorizes the EPA, upon application, to grant exemptions from TSCA-
reporting requirements, provided that test marketing will not present 
an unreasonable risk to human health or the environment.
    f. Formulation changes. In general, the Agency believes that 
changes in formulation needed to accommodate replacement of class I and 
II compounds should not be subject to the provisions of section 612. 
Such changes may be necessary, for example, when a new blowing agent in 
foam manufacture necessitates the replacement of the catalyst formerly 
used with the class I blowing agent. The Agency believes that other 
regulatory mechanisms (e.g., TSCA) are available for examining and 
controlling, as needed, any adverse environmental and human health 
effects associated with subsequent formulation modifications. However, 
the manufacturer overseeing the formulation change is required to 
notify the Agency if these modifications may significantly influence 
the environmental and human health risk characteristics associated with 
the class I or II substitute. Also, the Agency reserves the right to 
exercise its discretion to examine formulation changes if a problem 
appears to exist.
    g. Substitutes used as feedstock. Commenters to the NPRM supported 
the Agency's proposal to exempt substitutes that could replace class I 
chemicals used solely as intermediates in the production of other 
chemicals. To the extent that any feedstock substitutions occur, the 
Agency believes that they will not contribute substantially to any 
incremental risk to human health and the environment. This is because 
intermediates are used as inputs in production of other compounds, and 
as a result are largely consumed in the chemical manufacturing process.

V. Information Submission

A. Overview

    To develop the list of unacceptable and acceptable substitutes for 
various end-uses as required by section 612(c), the Agency must assess 
and compare the ``overall risks to human health and the environment'' 
posed by use of substitutes, and this assessment must be performed in 
the context of particular applications. To conduct this overall 
examination, the Agency must consider a wide range of health and 
environmental factors. In order to reduce the burden on the regulated 
community, the Agency will defer to data collection requirements under 
other regulatory authorities to the maximum extent practicable. In the 
section that follows, the Agency presents information required by the 
SNAP program to evaluate class I and II substitutes. A copy of the SNAP 
Information Notice can be obtained from the SNAP program at the address 
listed in the beginning of this final rule.

B. Information Required

1. Name and Description of the Substitute
    A chemical substitute should be identified by its chemical name, 
trade name(s), identification numbers (e.g. Chemical Abstract Service 
(CAS) registry), chemical formula and chemical structure. If a 
substitute is a blend, the percentage of each component must also be 
provided. Alternative technologies or manufacturing processes should be 
described in sufficient detail as to uniquely identify its use as a 
class I and II substitute.
2. Physical and Chemical Information
    Key properties needed to characterize chemical substitutes include: 
molecular weight; physical state; melting point; boiling point; 
density; odor threshold; solubility; partition coefficients (Log 
Kow, Log Koc); and vapor pressure. For alternative 
technologies or manufacturing processes, technical details on health, 
environmental or safety issues associated with use should be provided.
3. Substitute Applications
    Identification of the end-use in which the substitute is likely to 
be used is required. It is essential to provide a complete list of 
potential end-uses and of applications within those end-uses because 
section 612(c) requires the Agency to list substitutes by specific 
uses.
4. Process Description
    For each identified end-use application, the Agency requires 
descriptive data on processing, including in-place pollution controls. 
Such information will be used to characterize workplace and 
environmental releases and exposures.
5. Ozone Depletion Potential
    The predicted 100-year ozone depletion potential (ODP) of 
substitute chemicals relative to CFC-11 is required. The submitter 
should also provide sufficient supporting documentation--either a 
citation or the background information used to develop the ODP. For 
purposes of calculating ODP, the Agency recommends the methodology used 
in the most recent Scientific Assessment of Ozone Depletion: 1991, 
which was prepared for the United Nations Environment Programme. (1)
6. Global Warming Potential
    The Agency requires data on the potential total global warming of 
the substitute in its particular end-use (e.g., as a refrigerant, foam 
blowing agent, etc.). The total global warming considers both direct 
and indirect impacts. Direct impacts refer to the direct contribution 
to global warming of using a substitute. Calculation of the global 
warming potential (GWP) index for a 100, 500, and 1000 year time 
horizon, as well as the atmospheric lifetime and infrared adsorption 
spectrum of the substitute used to calculate the GWP is required. The 
Agency is requesting that all GWPs be referenced to CO2 using the 
methodology recommended by the Intergovernmental Panel for Climate 
Change (IPCC).(2) Indirect impacts explicitly consider the effect on 
global warming arising from changes in energy consumption associated 
with the use of a substitute (e.g., an alternative refrigerant). This 
latter measure can be identified as changes in energy efficiency 
resulting from use of the substitute relative to that of the substance 
being replaced.
7. Toxicity Data
    To assess the overall risks to human health and the environment, 
information is required on the acute and chronic toxicity of a 
substitute chemical, its impurities, and its degradation products on 
any organism (e.g., humans and other mammals, fish, wildlife, and 
plants). To characterize the risk to humans, the Agency is requesting a 
minimum submission of the following mammalian tests: A rangefinding 
study that considers the appropriate exposure pathway for the specific 
use (e.g. inhalation, oral, etc), and a 90-day subchronic repeated dose 
study in an appropriate rodent species (e.g. rats or mice). For some 
substitutes, a cardiotoxicity study, usually measuring cardiotoxic 
effects in the dog, is also required. Additional mammalian toxicity 
tests will be identified by EPA on a case-by-case basis depending on 
the particular substitute and application being evaluated. To 
characterize aquatic toxicity, both acute and chronic toxicity data for 
a variety of species are required. The Agency requires a minimum 
aquatic data set to be submitted as described in ``Guidelines for 
Deriving Numerical National Water Quality Criteria for the Protection 
of Aquatic Organisms and Their Uses,'' which is available through the 
National Technical Information Service (#PB 85-227049). All toxicity 
data in the submitter's possession and any other available hazard 
information, including Material Safety Data Sheets (MSDS), must also be 
submitted. Submission of the actual toxicity studies is recommended; 
however, it is not necessary to submit these reports if they have been 
supplied to the Agency as part of other regulatory submissions. If 
studies are not submitted, however, the submitter must provide 
sufficiently clear references that the Agency can locate the studies 
without delay. As discussed below in section V.C.3., data concerning 
the objectives, methodology, results or significance of any toxicity, 
metabolism, translocation, or persistence test for a substitute and its 
degradation products cannot be held as CBI where such data are also 
submitted under TSCA and FIFRA to the extent that confidential 
treatment is prohibited under those statutes. Submitters providing 
information on new chemicals for joint review under the TSCA and SNAP 
programs may be required to supply additional toxicity data under TSCA 
section 5.
8. Environmental Fate and Transport
    Where available, EPA requests information on the environmental fate 
and transport of substitutes. Such data shall include information on 
bioaccumulation, biodegradation, adsorption, volatility, 
transformation, and other data necessary to characterize a substitute's 
movement and reaction in the environment.
9. Flammability
    Data on the flammability of a substitute chemical or mixture is 
required. Specifically, the flash point and flammability limits are 
needed, as well as information on the procedures used for determining 
the flammability limits. Testing of blends should identify the 
compositions at which the blend itself is flammable, and the changes in 
the composition of the blend during various leak scenarios. For 
substitutes that will be used in consumer applications, documentation 
of testing results conducted by independent laboratories (e.g., 
Underwriters Laboratories) should be submitted, where available. If a 
substitute is flammable, the submitter must analyze the risk of fire 
resulting from the use of such a substitute and suggest measures to 
minimize these risks.
10. Exposure Data
    The submitter must provide available modeling or monitoring data on 
exposures associated with the manufacture, formulation, transport, and 
use of a substitute. Descriptive process information for each 
substitute application, as required above, will be used to develop 
exposure estimates where exposure data are not readily available. 
Depending on the end-use, exposure profiles will be needed for workers, 
consumers, and the general population.
11. Environmental Release Data
    Data on emissions from the substitute application and equipment, as 
well as pollutant releases or discharge to all environmental media 
(ambient air, surface and groundwater, hazardous/solid waste) are 
needed to complete the risk characterization. Submitters should provide 
information on release locations, if known. Available information on 
pollution controls that are used or could be used in association with 
the substitute (e.g., emissions reduction technologies, wastewater 
treatment, treatment of hazardous waste) and the costs of such 
technology is also requested.
12. Replacement Ratio for a Chemical Substitute
    The Agency requires information on the replacement ratio for a 
chemical substitute versus the class I or II substances being replaced. 
The term ``replacement ratio'' refers to how much more or less of the 
substitute chemical is needed to substitute for the original ozone-
depleting compound being replaced. This ratio will affect the estimated 
incremental cost and environmental effects associated with use of the 
substitute.
13. Required Changes in Technology
    Data on any changes in technology needed to use the alternative are 
required. Such information should include a description of whether the 
substitute can be used in existing equipment--with or without some 
retrofit--or only in new equipment.
14. Cost of Substitute
    The Agency requires data on the expected average cost of the 
alternative. The cost of the substitute can be expressed, for example, 
in terms of $/pound (for a chemical substitute) or as incremental 
capital and operating costs associated with a retrofit or new 
equipment. In addition, information is needed on the expected equipment 
life for an alternative technology. Other critical cost considerations 
should be identified, as appropriate. For example, it is important to 
understand the incremental costs associated with losses or gains in 
energy efficiency associated with use of a substitute relative to 
current experience with existing substances.
15. Availability of Substitute
    The Agency needs to understand the extent to which a substitute is 
already commercially available or the date on which it is expected to 
become available. The timing of availability is an important factor in 
assessing the overall health and environmental effects of the 
substitute.
16. Anticipated Market Share
    Data on the anticipated near-term and long-term (over the next ten 
years) nationwide substitute sales are also required. This information 
can be presented in several ways, for example: a percentage of existing 
nationwide use of class I or II chemicals that would be replaced in a 
particular end-use; number of units/products to be produced; or pounds 
of substitute to be sold. This information is required to assess the 
potential effects of a substitute related to total consumption and 
environmental releases.
17. Applicable Regulations Under Other Environmental Statutes
    The submitter is required to provide information on whether the 
substitute is regulated under other statutory authorities, in 
particular the Clean Water Act; the Safe Drinking Water Act; the 
Resource Conservation and Recovery Act; the Federal Insecticide, 
Fungicide, and Rodenticide Act; the Toxic Substances Control Act; the 
Comprehensive Environmental Response, Compensation and Liability Act; 
the Emergency Planning and Community Right-to-Know Act, and other 
titles of the CAA. The Agency will evaluate substitutes under the SNAP 
program subject to existing regulatory constraints.
18. Information Already Submitted to the Agency
    Individuals may have already submitted information required in the 
SNAP Information Notice to the Agency as part of past regulatory and 
information-gathering activities. In this case, to minimize reporting 
burden, the submitter need not resubmit the data but instead should 
provide the following information to help EPA locate the data already 
maintained at EPA: Type of information submitted; the date of 
submission; the EPA office to which the data were sent; description of 
the regulatory program under which the data were submitted; and a 
document-control number, if assigned (e.g., a PMN number). If the 
submitter cannot provide adequate references for data sent previously 
to the Agency as described above, all required information should be 
included in the SNAP notice. To facilitate review under SNAP, reports 
already submitted to the Agency as part of other regulatory submissions 
should be resubmitted if the original information was claimed as 
Confidential Business Information when previously submitted.
19. Information Already Available in the Literature
    If any of the data needed to complete the SNAP program notice are 
available in the literature, the submitter should provide the Agency 
with references for such information. Failure to provide the Agency 
with an accurate and complete citation may delay review of the notice. 
Additionally, submitters are encouraged to provide copies of any 
literature to expedite review, particularly if the citation is from a 
source not readily available. Any references from sources in foreign 
languages should be translated into English prior to submission.
    Submissions should be sent to the SNAP Coordinator at the address 
referenced at the beginning of this final rule. All submissions must be 
provided in three complete copies. If information is claimed as 
confidential, all confidential information must be excised from one of 
the three copies. This copy will be placed in the public docket. The 
other two copies should include the confidential material. If no claims 
of confidentiality are made for the submission, all three copies should 
be identical. (See below, as well as appendix C, for further guidance 
on handling of confidential information under SNAP.)

C. Submission of Confidential Business Information

1. Clean Air Act Provisions
    Anyone submitting information for which Confidential Business 
Information (CBI) status is requested must assert a claim of 
confidentiality at the time of submission. Failure to assert a claim of 
confidentiality at the time of submission may result in disclosure of 
the information by the Agency without further notice to the submitter. 
Further, it should be noted that information which is publicly 
available (e.g., in journals, trade magazines, product literature, 
etc.) cannot be claimed as CBI. Requesting CBI status for such 
information could delay review under section 612. All claims of 
confidentiality will be treated in a manner consistent with 40 CFR part 
2, subpart B.
    The submitter should be advised that under CAA section 114(c), 
emissions data may not be claimed as confidential. Moreover, there are 
further instances in which confidentiality assertions may later be 
reconsidered by the Agency even when confidentiality claims are 
originally received. These circumstances are provided in the provisions 
of 40 CFR part 2, subpart B. The submitter will be contacted as part of 
this evaluation process when such a circumstance occurs.
2. Substantiation of Confidentiality Claims
    In the NPRM, EPA proposed to require substantiation of any 
confidentiality claims at the time of submission. In making these 
claims, the following provisions apply:

--The specific information to which the claim applies must be clearly 
marked in the body of the study as subject to a claim of 
confidentiality;
--A Supplemental Statement of Data Confidentiality Claims must be 
submitted, identifying each section claimed confidential and describing 
in detail the basis for the claim. (A list of points to address in such 
a statement is included in appendix C);
--The Supplemental Statement of Data Confidentiality Claims must be 
signed and dated and must include the typed name and title of the 
official who signed it.

    EPA also stated that if required substantiation is not provided 
when submitting information claimed as confidential, the complete 
submitted information may be made available to the public without 
further notice to the submitter.
    Several commenters indicated that EPA should contact the submitter 
before releasing information marked as confidential to the public even 
if it does not contain adequate substantiation. One commenter also 
indicated that complete substantiation should not be required until the 
end of the 90 day review period and that any issue regarding the 
adequacy of CBI substantiation should not delay the review process.
    EPA agrees with the comment that submitters should be notified 
prior to disclosure to the public of information marked as confidential 
where substantiation, although it may be inadequate, has been provided. 
This will give the submitter opportunity to provide the necessary 
additional substantiation or withdraw the submission. However, an 
acceptability determination on a substitute will not be published until 
all claims of CBI have been fully substantiated under the provisions 
described above. Additionally, should no substantiation of CBI claims 
be provided, EPA may make the complete submittal available to the 
public without further notice to the submitter.
3. Confidentiality Provisions for Toxicity Data
    In the event that toxicity or health and safety studies are listed 
as confidential, the submitter should be advised that this information 
cannot be maintained as confidential where such data are also submitted 
under TSCA or FIFRA to the extent that confidential treatment is 
prohibited under those statutes. However, any information other than 
emissions data contained in the toxicity study that is not health and 
safety data and is not relevant to the effects of a substance on human 
health and the environment (e.g., discussion of process information, 
proprietary blends) can be maintained as confidential subject to the 
provisions of 40 CFR part 2, subpart B. The Agency is therefore 
requesting that submitters not identify the following information as 
confidential when submitting information under TSCA or FIFRA: All 
information concerning the objectives, methodology, results, or 
significance of any toxicity test or experiment performed on or with a 
substitute or its degradation products; any information concerning the 
effects of the substitute on any organism (e.g., fish, wildlife, humans 
and other mammals) or the environment (e.g., studies related to 
persistence, translocation, and fate); and pharmacokinetics/metabolism 
studies.
4. Federal Register Requirements
    As discussed below in Section VII.A.3.g., the Agency will publish 
quarterly notices in the Federal Register updating the list of 
acceptable and unacceptable alternatives. If the name of a specific 
substitute contained in any studies supporting such notices must be 
maintained as confidential, the submitter and the Agency will together 
develop a generic name that will protect the proprietary nature of the 
substitute, but will provide sufficient detail for the public to 
evaluate the health and safety studies. If appropriate, the submitter 
may reference any generic names identified for use in the PMN program.

D. Display of OMB Control Numbers

    EPA is also amending the table of currently approved information 
collection request (ICR) control numbers issued by OMB for various 
regulations. This amendment updates the table to accurately display 
those information requirements contained in this final rule. This 
display of the OMB control number and its subsequent codification in 
the Code of Federal Regulations satisfies the requirements of the 
Paperwork Reduction Act (44 U.S.C. 3501 et seq.) and OMB's implementing 
regulations at 5 CFR part 1320.
    The ICR was subject to public notice and comment prior to OMB 
approval. As a result, EPA finds that there is ``good cause'' under 
section 553(b)(B) of the Administrative Procedures Act (5 U.S.C. 
553(b)(B)) to amend this table without prior notice and comment. Due to 
the technical nature of the table, further notice and comment would be 
unnecessary. For the same reasons, EPA also finds that there is good 
cause under 5 U.S.C. 553(d)(3).

VI. Effective Date of Coverage

A. General Provisions

    This final rule includes a list of acceptable substitutes and a 
list of unacceptable substitutes. Unacceptable substitutes cannot be 
used in manufacturing or in final applications as substitutes for 
ozone-depleting compounds. The list of unacceptable substitutes and 
acceptable substitutes subject to use restrictions becomes binding 30 
days after March 18, 1994. In contrast, the list of fully acceptable 
substitutes is furnished for the purpose of assisting users in 
understanding the full range of available, acceptable substitutes in 
each application. Many of the substitutes listed as pending or proposed 
in the NPRM have since been added to the final acceptable or 
unacceptable lists.
    As noted above, the Agency does not believe that determinations on 
substitutes that are acceptable with no use restrictions need be made 
through rulemaking. Consequently, EPA believes that it is within its 
discretion to supplement the list of acceptable substitutes at any time 
upon making determinations consistent with the criteria established in 
this rulemaking. Until the Agency reaches a final decision restricting 
the use of a substitute, vendors are not barred from selling such 
substitutes once notification is given and the 90 day prior-to-sale 
notification period expires.

B. Grandfathering of Unacceptable Substitutes

    EPA is authorized to permit the continuation of activities 
otherwise restricted where the balance of equities supports such 
grandfathering. Consequently, where appropriate, EPA may grandfather 
the production and use of particular substitutes by setting the 
effective date of unacceptability listings in the future.
    The United States District Court for the District of Columbia 
Circuit has established a four-part test to judge the appropriateness 
of Agency grandfathering (see Sierra Club v. EPA, 719 F.2d 436 (DC Cir. 
1983)). This test involves balancing the results of four analyses, 
including whether the new rule represents an abrupt departure from 
previously established practice, the extent to which a party relied on 
the previous rule, the degree of burden which application of the new 
rule would impose on the party, and the statutory interest in applying 
the new rule immediately. In each rulemaking listing a substitute as 
unacceptable where grandfathering seems appropriate, EPA will conduct 
these four analyses and weigh their results. Where the balance of 
equities favors grandfathering, EPA will set a delayed effective date 
for such listings.
    Setting future effective dates to ban the sale and distribution of 
specific substitutes will allow the Agency to avoid penalizing those 
who in specific applications may have already invested in good faith in 
alternatives the SNAP program determines to be unacceptable. For 
example, the Agency in this final rule finds unacceptable the use of 
HCFC-141b in solvent applications. New information on stratospheric 
ozone depletion has increased concern over possible adverse human 
health and environmental effects, and the Agency's unacceptable 
determination in the case of HCFC-141b reflects these concerns.
    However, the Agency recognizes that some solvent users may have 
switched to HCFC-141b in good faith, expecting that this substitute 
would sufficiently lower the risk of ozone depletion relative to 
earlier materials. To provide for these users, the Agency has extended 
the effective date for certain end users of HCFC-141b. See the listing 
determination narrative discussion in section IX.F., as well as the 
listing tables in appendix B, for a full discussion of HCFC-141b and 
associated effective dates. Finally, to balance the desire not to 
penalize those who switched early in good faith with the need to avoid 
creating an incentive for continued investment in alternatives the 
Agency wishes to discourage, the longer-term effective dates discussed 
above will affect only existing uses.

VII. Notice, Review, and Decision-making Procedures

    The purpose of this section is to summarize the procedures for 
submitting the required information to the Agency, the steps EPA will 
take in reviewing SNAP submissions, and the process of making 
determinations based on these reviews. This section focuses on three 
procedures, summarized in Exhibit 1, depending on the nature of the 
submission received by the Agency. Some substitutes may already be 
approved or may not need approval under other environmental statutes, 
especially TSCA and FIFRA. These substitutes, in consequence, would 
only require review under the SNAP program. Section VII.A. discusses in 
greater detail the submission and review process for alternatives that 
fall into this category. In other cases, a substitute will require 
review under section 612 as well as relevant provisions of TSCA and 
FIFRA. With respect to any substitute that is a new chemical (i.e., not 
currently listed on the TSCA inventory), information must be submitted 
to the Agency for review both under the SNAP program and the PMN 
program. Section VII.B. describes steps for this review in more detail. 
For alternatives to class I and II chemicals that will be used in 
pesticide products, the substitute manufacturer will need to file 
notification jointly with EPA's Office of Pesticide Programs (OPP) and 
EPA's SNAP program. Section VII.C. discusses the latter procedure. The 
SNAP program has coordinated closely with each of these regulatory 
programs to establish a joint review process that will ensure 
consistency in the final decisions, while minimizing the time for 
review, the reporting burden, and the costs for both the submitter and 
the Agency.

Billing Code 6560-50-P

TR18MR94.000


TR18MR94.001


BILLING CODE 6560-50-C

A. Substitutes Reviewed under SNAP Only

1. Applicability
    Sections IV. and V. describe the conditions dictating review under 
the SNAP program only and the general reporting requirements under 
section 612. If any of these conditions are met and the substitutes are 
not exempt as described in section IV.B.3., Exemptions from Reporting, 
a SNAP notice must be submitted.
2. Pre-Notice Communication
    Prior to submitting the SNAP notice, each submitter is encouraged 
to contact EPA's SNAP Coordinator to discuss the notification process. 
Among other things, the SNAP Coordinator will: (1) Assist the potential 
submitter in determining whether a SNAP notice is needed; (2) answer 
questions regarding how to complete a submission; (3) provide all 
necessary forms and the guidance manual; (4) serve as the initial point 
of contact when the notice is submitted; and (5) oversee the assignment 
of a SNAP program tracking number to the notice once it is received by 
the Agency. A copy of the SNAP Information Notice and Guidance Manual 
may be obtained from the SNAP Coordinator at the address listed at the 
beginning of this final rule. Specific data requested are described in 
section V.

3. Processing of Completed SNAP Submission

    a. 90-Day review process. As required under section 612(e), a 
manufacturer of a substitute for a class I chemical must provide the 
Agency with notification at least 90 days prior to introducing into 
interstate commerce any new or existing chemicals for significant new 
uses as class I alternatives. The same requirements apply to 
manufacturers of substitutes for class II substances, although in this 
case the Agency is drawing on general authorities contained in sections 
114 and 301 of the CAA in order to fulfill the purpose of section 
612(c). EPA intends to review these substitutes within a 90-day period 
to ensure prompt response for manufacturers initiating production of 
substitutes. EPA's 90-day review period for SNAP submissions begins 
once EPA receives a submission, as described in section V.B. above. If 
a submission does not include adequate data, EPA may return the 
submission to request specific additional information. Section 114 and, 
in the case of petitions, section 612(d) authorizes EPA to require 
manufacturers to support their SNAP submissions with data adequate to 
facilitate EPA's review.
    b. Initial receipt of the SNAP submission. (1) Initial review of 
submission. EPA will conclude a completeness review of each submission 
within fifteen days of receipt of the submission. Within the 15-day 
period, EPA will inform the submitter of any additional information 
needed. If EPA makes no such request, then after the 15-day period is 
concluded, the 90-day review period will automatically commence. If EPA 
does request any additional data, the 90-day period shall not commence 
until the additional data are received and themselves reviewed for 
completeness.
    During the 15-day completeness review, the SNAP Coordinator will 
first review the SNAP Information Notice to ensure that basic 
information necessary to process the submission is present (i.e., name 
of company, identification of substitute, etc.). A more detailed review 
of supporting technical data will then ensue, as well as an examination 
of substantiation provided for any claim for confidentiality of 
information. Should additional information be required, EPA will 
contact the submitter within 15 days of receipt of the original 
submission.
    During the 90-day review period, EPA may ask for additional 
information from submitters as necessary, although manufacturers of a 
new substitute may introduce the substitute into interstate commerce 90 
days after EPA receives a submission for the product if the Agency has 
not already rendered an unacceptability determination. In the case of a 
substitute which already exists in the marketplace prior to the 
issuance of this final rule, manufacturers must submit a completed SNAP 
Information Notice as soon as possible, and not later than 90 days 
after the effective date of this rule. During EPA's review, use of an 
existing substitute may continue, and need not cease unless and until 
EPA adds the substitute to the list of unacceptable substitutes as a 
result of notice-and-comment rulemaking.
    (2) Letter of receipt. The SNAP Coordinator will send a letter of 
confirmation to the submitter once the Agency has received the SNAP 
Information Notice and reviewed it for completeness. This letter will 
include the date of advance notification to the Agency, the starting 
date of EPA's 90-day review period, and the SNAP program tracking 
number assigned to the submission.
    c. Determination of data adequacy. As part of the review for a SNAP 
submission, the Agency will complete a preliminary determination of the 
adequacy of data supporting the application. The Agency will issue this 
determination within 15 days after receipt of the application. At any 
time during the review period, if information is not adequate to allow 
the Agency to reach a SNAP determination, EPA will contact the 
submitter and request the missing data. EPA believes it appropriate and 
authorized under section 114 to require the submitter to provide all 
data needed to complete the review of the SNAP notice. Depending on the 
type of information needed and the time necessary to compile and submit 
the requested data to the Agency, EPA may suspend or extend the review 
period. This will not affect the ability of a manufacturer to begin 
marketing a new substitute 90 days after advance notification to the 
Agency, or in the case of a pre-existing substitute, to continue 
marketing.
    In a few cases, the Agency and the submitter may disagree on a 
schedule for furnishing additional data EPA deems necessary to 
determine the acceptability of the substitute. If in these cases EPA 
has reason to believe that such a substitute may be unacceptable, the 
Agency may exercise the option of proposing to list the substitute as 
unacceptable based on existing data until the necessary data are 
provided, due to the uncertainty of the risks associated with use of 
the substitute.
    d. Availability of new information during review period. If 
critical new information becomes available during the review period 
that may influence the Agency's evaluation of a substitute, the 
submitter must notify the Agency about the existence of such 
information within ten days of receiving such data. The submitter must 
also inform the Agency of new studies under way, even if the results 
will not be available within the 90-day review period. The Agency may 
extend or suspend the review period depending on the type of 
information at issue and the stage of review. Again, this will not 
affect a manufacturer's ability to market a substitute 90 days after 
initial notification to the Agency.
    e. Completion of detailed review. Once the submission is found to 
be supported by adequate data, the Agency will commence a detailed 
evaluation of the notice. As this review proceeds, EPA may contact the 
submitter for additional scientific and technical information to assist 
in the evaluation. This will ensure that the review is completed 
quickly and that it reflects the best available information. Final 
decisions will be based on detailed analysis completed during this 
stage of review.
    f. Vendor lists. As part of EPA's outreach and clearinghouse under 
SNAP, the Agency will use the SNAP determinations to compile a list of 
vendors for the convenience of potential users. Companies could then 
ask EPA to review their specific substitute, to ensure that it is 
covered by the listing decisions on acceptable substitutes, and to add 
the company to the vendor list. The Agency believes that specific 
information on vendors of acceptable substitutes would be useful to 
companies switching out of class I and II compounds.
    g. Communication of SNAP determination. (1) SNAP determinations on 
90-Day notifications. EPA's determinations on SNAP submissions that 
come as a result of the 90-day advance notification requirement will 
take the form of either adding substances to the list of acceptable 
substitutes or by proposing to add them to one of the following lists: 
acceptable subject to use conditions, acceptable subject to narrowed 
use limits, or unacceptable substitutes.
    (2) Communication of SNAP determination to the submitter. Once 
Agency review has been completed, the submitter will be notified in 
writing of the determination under SNAP. At this time, the submitter 
will also be informed if any restrictions are attached to the 
acceptability of a substitute. Following the expiration of 90 days 
after submitting advance notification to EPA, companies may begin sale 
or manufacture of a new substitute. They may continue to sell or 
manufacture an existing substitute through the review period, unless 
and until the Agency places such substitute on the list of unacceptable 
substitutes as a result of rulemaking. Sale or manufacture may begin 
and continue even if the Agency fails to reach a decision or notify the 
submitter of that decision within 90 days of advance notification of 
EPA.
    (3) Communication of SNAP determination to the public. (a) Federal 
Register notice. To provide the public with updated information on SNAP 
determinations, the Agency will publish in the Federal Register a 
complete list of the acceptable and unacceptable alternatives reviewed 
to date. This list will be published four times each year and will 
include recent decisions made under the SNAP program. In addition to 
the quarterly publications, the Agency will communicate decisions 
through a clearinghouse and outreach program, as discussed in the next 
section, as well as through the Stratospheric Ozone Protection hotline.
    (b) Outreach and clearinghouse. Section 612(b)(4) requires the 
Agency to maintain a public clearinghouse of alternative chemicals, 
product substitutes, and alternative manufacturing processes that are 
available as replacements for class I and II chemicals. The 
clearinghouse will distribute information on substitutes that are 
acceptable under the SNAP program. For the convenience of companies 
wishing to identify substitutes, the Agency will maintain a list of 
vendors selling substitutes as discussed in section VII.A.3.f.
    In addition, the Agency will enter data on substitutes into the 
Pollution Prevention Information Exchange System (PPIES) database, 
which is maintained by EPA's Office of Research and Development. This 
database contains information on numerous pollution prevention options 
for a wide variety of industrial sectors and chemicals. PPIES can also 
be accessed from a variety of other pollution prevention databases 
maintained by other federal agencies and industry.
4. Decision-Making Framework
    a. Decisions by substitute and use. As required by section 612(c), 
the Agency must publish a list of substitutes unacceptable under the 
SNAP program and a list of acceptable alternatives for specific uses. 
Given that environmental exposure and risk profiles can change 
significantly from one end-use to the next, it is essential to evaluate 
and list substitutes in the context of their intended use. The Agency 
identified a number of end-uses in each sector by which to list 
substitutes, and section IX provides risk management decisions for many 
existing substitutes in each of the principal sectors.
    The Agency will be as specific as possible in listing substitutes 
by providing exact chemical names of substitutes. For most substitutes, 
a broad chemical classification (e.g., aromatic hydrocarbons, or HCFCs) 
is not specific enough because of differences among chemicals belonging 
to each of these groups. Thus, where appropriate, EPA will provide a 
more specific description of the substitute by application.
    The Agency anticipates two possible exceptions to this practice. 
The first is where release of the chemical identity of a substitute 
constitutes release of proprietary information. In that event, the 
Agency will report generic chemical names based on chemical classes as 
described in section V.C. The other exception would be in cases where 
the Agency believes that a more general categorization is needed to 
account for the diversity of possible chemicals used in a particular 
set of substitutes. For example, in the solvents cleaning sector, many 
substitutes are formulations composed of compounds drawn from several 
categories of chemicals. In this case, the toxicity profile of each 
chemical is similar to those of other chemicals in that class.
    b. Decision categories. Under section 612, the Agency has 
considerable discretion in the risk management decisions it can make in 
SNAP. In this final rule, the Agency has identified five possible 
decision categories, as described below. Commenters suggested that 
there was confusion with the Agency's intent to designate some 
substitutes as acceptable subject to narrowed use limits versus 
unacceptable except for critical use exemptions. In response to these 
comments, the Agency has determined that the goal of both categories 
was to limit the use of a substitute that had generally unacceptable 
characteristics yet provide relief for specialized applications within 
an end-use where no other alternatives exist. Given the similarity in 
goals, the decision categories have been streamlined by eliminating the 
category listed in the NPRM as ``unacceptable except for critical use 
exemptions.'' Those substitutes that were listed in the NPRM as 
proposed unacceptable except for critical use exemptions are listed as 
unacceptable in this final rule, and the concerns which the critical 
use exemption petition process was created to address will now be 
addressed as part of EPA's responsibilities under the section 612(d) 
petition process.
    (1) Acceptable. Where the Agency has reviewed a substitute and 
found no reason to prohibit its use, it will list the alternative as 
acceptable in the end-uses for which the submitter provided 
information. Where appropriate, the Agency may provide some additional 
comment (e.g., general recommendations encouraging recapture and 
recycling). However, these comments are not conditions for use of the 
substitute.
    (2) Acceptable subject to use conditions. As proposed in the NPRM, 
after reviewing a submission, the Agency may determine that a 
substitute is acceptable if certain conditions on use are adopted. The 
Agency cannot predict at this time all necessary restrictions, but has 
imposed some conditions based on substitute reviews already completed 
for this final rule. Several commenters supported the application of 
use conditions as necessary in providing important guidance to 
companies in reviewing alternative replacements for ODSs. While also 
supporting use conditions generally, other commenters noted that they 
should be used sparingly, so as to create the minimum uncertainty in 
the regulated community and encourage swift transition.
    The Agency agrees with these comments. In this final rule, any 
conditions imposed will depend on the risks involved and the substitute 
and application in question. For example, the Agency may impose 
conditions on the use of a substitute and require recycling equipment 
to limit workplace and ambient releases or require use of other control 
practices within a certain application. Where a substitute is found 
acceptable subject to conditions on uses, use without adherence to the 
conditions in the relevant end-use is prohibited in this final rule. 
Determinations of acceptability subject to use conditions will only be 
made pursuant to notice-and-comment rulemaking.
    In implementing conditions on use, the Agency has sought to avoid 
overlap with existing regulatory authorities. EPA has taken a number of 
steps to mitigate this potential for duplication. First, EPA intends to 
restrict the use of conditions to cases in which clear regulatory gaps 
exist. Second, these existing regulatory gaps must render the use of a 
substitute an unreasonable risk in the absence of any additional 
controls. Third, in the limited cases in which conditions may be 
necessary, the Agency will impose them only as a result of formal 
notice-and-comment rulemaking. Finally, use conditions will be 
effective only until other appropriate regulatory controls are imposed 
under other authorities and will be withdrawn by the Agency when they 
are superseded by such controls.
    (3) Acceptable subject to narrowed use limits. The Agency cannot 
restrict use of a substitute under SNAP if there are no technically 
feasible alternatives to the use of an ozone-depleting compound. Thus, 
EPA may approve a compound not for general use within a sector, but for 
use only within certain specialized applications within a sector end-
use. EPA refers to these restrictions as narrowed use limits. For 
example, the Agency could list a substitute with a generally 
unfavorable environmental or human health effect as acceptable in 
certain specific metals cleaning applications in the solvents cleaning 
sector. This would allow transition away from the damaging ozone-
depleting compounds to proceed, by allowing industry the flexibility to 
use in narrow niche applications a substitute which provides the only 
means of transition. At the same time, the narrowed use determination 
prevents a widespread shift of an entire sector to substitutes which 
overall do not offer the risk reduction available through the use of 
other alternatives.
    Clearly, any limits imposed will depend on the risks involved and 
the substitute and application in question. To provide adequate 
opportunity for comment by the regulated community, EPA will complete 
notice-and-comment rulemaking before promulgating any finding that a 
substitute is acceptable only subject to a narrowed use limit.
    In implementing narrowed use limitations, the Agency has sought to 
allow agents for specific uses that would otherwise be deemed 
unacceptable. This policy serves the larger goal of facilitating the 
fastest possible transition from ozone-depleting compounds by expanding 
the list of alternatives available to all applications within a sector 
end-use category. EPA recognizes that certain sector end-uses encompass 
a broad range of applications, manufacturing processes and products. 
Under the acceptable for narrow use category, EPA will accept a 
substitute for use only in certain specialized uses within the broader 
end-use. The intent of the narrowed use limitation is to restrict the 
use of a substitute that the Agency deems unacceptable for the full 
range of applications or products within a sector end-use category. 
Where a substitute is found acceptable subject to narrowed use limits, 
general use within the relevant end-use is prohibited.
    Before users adopt a restricted agent within the narrowed use 
limits category, they must make a reasonable effort to ascertain that 
other substitutes or alternatives are not technically feasible. Users 
are expected to undertake a thorough technical investigation of 
alternatives before implementing the otherwise restricted substitute. 
The Agency expects users to contact vendors of alternatives to explore 
with experts whether or not other acceptable substitutes are 
technically feasible for the process, product or system in question. To 
further assist users in their evaluation, EPA has prepared a list of 
vendors manufacturing other substitutes. Although users are not 
required to report the results of their investigation to EPA, companies 
must document these results, and retain them in company files for the 
purpose of demonstrating compliance. Both the Vendor List and the 
Guidance Manual are available from the SNAP program, or through EPA's 
Stratospheric Ozone Protection Hotline.
    In October 1993, the President directed EPA through the Climate 
Change Action Plan (CCAP) to use its authority under section 612 of the 
Clean Air Act to narrow the uses of CFC substitutes with high global 
warming potential. Because EPA is simultaneously also interested in 
promoting the broader shift away from ozone-depleting compounds, EPA 
will make every effort to assure that these limits on use will be 
imposed in ways that preserve as much flexibility as possible for those 
trying to move to alternatives.
    In this final rule, EPA has imposed narrowed use limitations on the 
acceptability of perfluorocarbon (PFC) substitutes when used in solvent 
cleaning, and fire suppression. EPA has imposed these limitations 
because of the high global warming potential and long atmospheric 
lifetimes of the PFC compounds as compared with other alternatives 
available for the same end-uses. Comparable limitations on the use of 
refrigerants and aerosols containing PFCs are also likely to be 
proposed shortly. In the case of fire suppression and explosion 
protection, EPA has taken the approach of narrowing uses to prevent or 
delay emissions of global warming gases. This is preferable to the 
outright prohibitions EPA would otherwise be authorized to impose where 
other alternatives are available, because in these limited cases users 
may have no other feasible alternatives to continued reliance on ozone-
depleters.
    Through the notice and comment rulemaking process, other companies 
or vendors will be able to scrutinize the proposed narrowed use limits. 
This may bring to light new alternatives or processes of which the user 
and EPA are unaware, and these new alternatives may pose lower overall 
risks than the substances which have been the subject of the narrowed 
use designation. If an acceptable listing is revoked based on the 
availability of a new, lower-risk alternative, companies that have made 
investments in technology which was earlier deemed as having no 
alternatives available may be granted permission to extend their use 
for a limited period of time, consistent with EPA's grandfathering 
approach described above in section VI.B.
    The Agency has prepared guidance describing additional 
documentation users should include for narrowed use applications. This 
information includes descriptions of:
     Process or product in which the substitute is needed;
     Substitutes examined and rejected;
     Reason for rejection of other alternatives, e.g., 
performance, technical or safety standards; and/or
     Anticipated date other substitutes will be available and 
projected time for switching.
    In addition to this basic information, the guidance includes 
specific data for end-uses in each sector. The guidance is available 
from the SNAP program.
    (4) Unacceptable. The Agency has the authority under section 612(c) 
to prohibit the use of a substitute believed to present adverse effects 
to human health and the environment where alternatives that reduce 
overall risk are available. The Agency will only use this provision 
where it has identified other substitutes that are currently or 
potentially available and that pose lower overall risks. Substitutes 
will be listed as unacceptable through the rulemaking process.
    (5) Pending. The Agency will describe submissions for which the 90-
day review period is underway and for which EPA has not yet reached a 
final decision as pending. For all substitutes in the pending category, 
the Agency will contact the submitter to determine a schedule for 
providing the missing information if the Agency needs to extend the 90-
day review period. EPA will use the authority under section 114 to 
gather this information, if necessary. Again, a delay of the review 
period will not affect a manufacturer's ability to sell a product 90 
days after notification of the Agency as described above.
    c. Implications of other regulatory requirements. In evaluating 
substitutes, the SNAP program takes into consideration the regulatory 
requirements of other environmental and health protection statutes 
(e.g., the Clean Water Act or the Occupational Safety and Health Act). 
In considering the framework of existing regulatory constraints, the 
Agency's evaluation of alternatives will assume compliance with their 
provisions.
    However, it will not be possible to factor in regulatory 
requirements that are still under development (e.g., more stringent 
requirements to control volatile organic compounds and hazardous air 
pollutants under title I and title III of the CAA). In these instances, 
a substitute may be deemed acceptable under SNAP, but is not thereby 
excused from compliance with any future regulations. The Agency does 
not believe that it was the intent of Congress to use the authority 
under section 612 to compromise other regulatory requirements. Should 
future regulations severely limit the availability of the only 
acceptable substitute for a specific end-use, EPA would reconsider the 
advisability of keeping any other alternatives which could be used in 
that application on the list of unacceptable substitutes.
5. EPA-Generated Review of Substitutes
    In addition to SNAP notifications received under section 612 for 
substitute review, the Agency is authorized by section 612(c) to add or 
delete alternatives to the list of reviewed substitutes on its own 
initiative. EPA has many efforts under way to identify and communicate 
the availability of promising new alternatives. These include support 
for research efforts to study and focus attention on future 
substitutes, involvement in the United Nations Environment Programme's 
biannual assessment of technologies for key sectors currently using 
ozone-depleting chemicals, and technology transfer projects with 
industry, other federal agencies, and developing nations. Based on 
information available through these activities, EPA may initiate review 
of new substitutes under section 612. In each case, the next planned 
quarterly Federal Register notice updating the status of SNAP 
determinations will inform the public that EPA is initiating a review, 
subject to the provisions discussed in this final rule. Similarly, 
determinations ultimately reached as a result of these internally-
generated reviews will be included in these quarterly updates.

B. Joint Review of New Substitutes under SNAP and TSCA PMN

1. Applicability
    Any potential SNAP submitter who intends to introduce a new 
chemical (i.e., a chemical not currently included in the TSCA 
inventory) as an alternative for a class I or class II chemical must 
undergo review not only under section 612, but under section 5 of TSCA 
(the Premanufacture Notice program) as well. Because of the overlap in 
statutory authority, the Agency has established a joint review process 
between the SNAP and TSCA Premanufacture Notice (PMN) programs. This 
process has been structured to minimize reporting burden and to ensure 
consistency in decisions between the two programs. The following 
sections describe the joint review and decision-making process in more 
detail.
2. Data Submission Requirements and Process
    a. SNAP and PMN forms. The Agency has reviewed the data submission 
needs for the SNAP and PMN programs and found significant overlap. In 
general, the Agency has identified only a few additional data elements 
beyond those already required by the PMN program that should be 
included for review under the SNAP program. These elements are:
     Ozone depletion potential.
     Global warming potential.
     Cost of using the substitute, including:

--Chemical replacement data.
--Chemical cost data.
--Incremental equipment expenditures (either new or retrofit) needed to 
use substitute.
--Information on the cost implications of changes in energy consumption 
(e.g., from the use of a less or more energy-efficient refrigerant).

     Documentation of testing results regarding the 
flammability of substitutes, especially when proposed for consumer 
applications.
    Given this overlap, a submitter requesting a review under both the 
SNAP and PMN programs should provide the above information by following 
these steps:
     Complete the PMN form (EPA Form 7710-25) following the 
Instructions Manual currently available through the TSCA Assistance 
Information Service.
     Indicate on page 11 of the PMN form, ``Optional Pollution 
Prevention Information,'' that the chemical to be reviewed is also to 
be considered under the SNAP program.
     Complete a SNAP addendum that requests information only on 
those items listed above. (The addendum can be obtained from the SNAP 
program, or EPA's Stratospheric Ozone Protection Hotline.)
    The completed PMN form (EPA Form 7710-25) will remain the basis for 
all information needed to complete review of the new chemical under 
section 5 of TSCA. The completed PMN form and the SNAP addendum 
together will comprise the data submission for section 612 review and 
listing decisions for new chemicals. This approach is intended to 
minimize the reporting burden on submitters.
    The Agency will modify the PMN Instructions Manual to provide more 
explicit direction on how to complete the SNAP addendum. A SNAP 
submitter may also consult the SNAP Guidance Manual, which is available 
from the Stratospheric Ozone Protection Hotline. Any questions 
regarding the completion of these forms can be directed to either the 
PMN Pre-notice Coordinator or the SNAP program.
    b. Submission of completed forms. Both the PMN and SNAP programs 
have a review period of 90 days, subject to suspensions and extensions 
described in section VII.A. for the SNAP program and in the PMN final 
rule (40 CFR 720.75). To ensure that new chemical submissions are 
reviewed and decided on jointly, the Agency encourages submitters to 
provide both the PMN form and SNAP addendum to the PMN and SNAP 
coordinators. Failure to provide both programs with the requested 
information at the same time could result in delays in the review of a 
submitter's notice seeking acceptance of a new chemical as a class I or 
II substitute concurrent with review under the PMN program.
    c. Procedures for handling confidential business information. The 
Agency recognizes that, where appropriate, information submitted to the 
PMN and SNAP programs may need to be held confidential. EPA has 
determined that all CBI submitted as part of the joint PMN/SNAP review 
should be maintained and treated in a manner consistent with TSCA 
security procedures. Confidentiality claims will be processed and 
reviewed in a manner consistent with 40 CFR part 2, subpart B. This 
approach was selected because the majority of data provided to SNAP 
under the joint review process will come from the PMN form. Submitters 
should note that while TSCA and CAA may have different language 
describing CBI handling procedures, there is no substantive difference 
in how CBI is maintained under the two statutes.
3. Agency Review of New Substitutes under PMN and SNAP
    a. Preparation of public docket and Federal Register notices. Once 
the letter of receipt has been issued, the PMN program will prepare a 
public docket and Federal Register notice, as described in the final 
rule for the PMN program (40 CFR 720.75). The PMN program manager will 
consult with the SNAP program in preparing the notice.
    b. Joint review process. EPA will complete joint evaluations of new 
chemicals serving as class I or II substitutes under section 5 of TSCA 
and section 612 of the CAA. This joint review process will be 
coordinated to ensure that there is consistency in the final decisions 
made under the PMN and SNAP programs. To ensure agreement in the 
decisions, EPA offices will work in concert to develop toxicity, 
exposure, and risk profiles for those substitutes and applications that 
come under joint TSCA and CAA review authority. The Agency will also 
coordinate its review of the completeness of the information supplied 
and any subsequent data requests to minimize the reporting burden on 
the submitter. Submitters should note that Agency decisions to restrict 
production of particular chemicals under TSCA will, in the case of 
joint PMN/SNAP applications, also have the effect of restricting 
production of substitutes undergoing review under the SNAP program. 
However, companies that produce substitutes only being reviewed under 
the SNAP program are not required to cease production during the SNAP 
review period in the case of existing substitutes, and in the case of 
new substitutes, manufacturers may introduce the substitute into 
interstate commerce 90 days after submitting their complete 
notification to EPA.
    As part of the review, the PMN and SNAP programs will work to 
arrive at a consistent decision regarding the new chemical under 
review. Consequently, listing decisions under SNAP will reference any 
conditions also incorporated into the PMN review (e.g., submission of 
additional toxicity information, restrictions on use, etc.).
    If a substitute meets the conditions for general PMN approval but 
not for SNAP acceptability, the company may produce and market the 
substance in question once the 90-day period has elapsed. However, EPA 
will commence a rulemaking to prohibit the use of the substitute as a 
class I or II substitute. If the chemical fails to meet the conditions 
for PMN approval, the submitter is barred from producing the chemical 
and consequently is effectively barred from marketing the product as a 
substitute for a class I or II compound. Submitters should note, 
however, that CAA section 612 places considerable emphasis on 
identifying and promoting the use of substitutes which, relative to 
others, reduce overall risks to human health and the environment. To 
the extent a substitute offers such risk reduction, EPA will make every 
effort to facilitate production and use of that alternative.
    c. Communication of decision. The PMN program will use the existing 
TSCA regulatory framework for communicating decisions on the new 
substitute to the submitter. The SNAP program will provide public 
notice of decisions regarding the acceptability or unacceptability of a 
substitute following the process described in section VII.A.3.g. EPA 
will contact the submitter to determine how best to list the substitute 
under the SNAP program if necessary to protect the confidentiality of 
the alternative.

C. Joint Review of Substitutes under SNAP and FIFRA

1. Background on Use of Ozone-Depleting Chemicals in Pesticides
    Certain pesticides are formulated with class I and II chemicals. 
Examples include the use of methyl chloroform (1,1,1-trichloroethane) 
as an inert ingredient, or the use of methyl bromide as an active 
agent. Pesticide products that contain class I and II compounds must be 
reformulated as these chemicals are phased out of production pursuant 
to Clean Air Act section 604. This section describes how the Agency 
will handle reviews of these changes.
2. Applicability
    Any new pesticide or amendment of an existing formulation is 
already subject to Agency approval under current provisions of the 
Federal Insecticide, Fungicide and Rodenticide Act (FIFRA), Public Law 
100-460, 100-464 to 100-526, and 100-532. However, as of the effective 
date of the SNAP program, new pesticides or formulation changes based 
on class I or class II substitutes will also be subject to review under 
section 612 of the CAA. These authorities apply in all cases where a 
manufacturer amends a pesticide product to replace chemicals being 
phased out under CAA section 602 or 604. Similarly, registrations of 
new pesticide products will also be subject to SNAP review if the new 
formula contains chemicals functionally replacing class I or class II 
compounds which would otherwise have been used in the new pesticide 
formulation.
3. Review Responsibilities Under FIFRA and CAA/SNAP
    In general, review responsibilities for pesticide products under 
the CAA SNAP program will focus on a substance's ozone depletion and 
global warming potential. The FIFRA reviews will address factors 
commonly examined during pesticide amendments and registrations. The 
two program offices responsible for these reviews will coordinate their 
efforts at critical junctures and share pertinent data to ensure 
appropriate technical consideration of the substitute.
4. Data Submission Requirements and Process
    a. Preparation of applications. The Agency has reviewed the data 
submission needs for the SNAP and FIFRA pesticide amendment/
registration process and found no significant overlap. Because there is 
so little overlap, the Agency requires that a submitter requesting 
review under both SNAP and the Office of Pesticide Programs' (OPP) 
pesticide amendment/registration process submit all information 
ordinarily required for the OPP process as well as a fully completed 
SNAP information form. A copy of the FIFRA form should be submitted to 
OPP, and a copy of the SNAP form should be submitted to the SNAP 
Coordinator. The SNAP form can be obtained from the SNAP program. For 
further guidance, SNAP submitters may also consult the SNAP Guidance 
Manual, which is available from the Stratospheric Ozone Protection 
Hotline.
    If a registrant is submitting an amendment to a product 
registration under FIFRA that currently contains a class I or II 
substance, he or she should note in section II (``Amendment 
Information'') of the FIFRA form that the amendment was filed in 
response to the CAA production phase-out. Similarly, if a registrant is 
submitting an application for a new pesticide registration that would 
otherwise have been based on a class I or II compound, he or she should 
note in Section II of the FIFRA form that the registration includes a 
class I or II substitute.
    The submitter should also identify in Section II both the 
substitute chemical and the class I or II compound it is replacing. 
Further, if a registrant is aware that a particular chemical intended 
for use as a class I or II substitute in a pesticide formulation has 
already been accepted through earlier SNAP/FIFRA determinations, the 
registrant should also reference the relevant part of the prior review.
    b. Review of applications. When the Agency receives the FIFRA 
application and SNAP submission, it will log each into the relevant 
tracking systems: the OPP's tracking system for the FIFRA application 
and the SNAP tracking system for SNAP submissions. If the FIFRA 
application is identified in section II as a Clean Air Act 
substitution, the FIFRA program coordinator will contact EPA's SNAP 
program to ask if the substitute has been the subject of any prior SNAP 
reviews. If the registrant's substitute is already on the list of 
unacceptable substitutes, EPA will notify the registrant that the 
amendment request cannot be granted. If the registrant's substitute is 
already on the list of acceptable substitutes, EPA will proceed with 
the standard FIFRA application review. If a chemical substitute is not 
listed under existing SNAP determinations but is a substitute for an 
ozone-depleting compound, EPA will inform the registrant that a SNAP 
review must commence.
5. Communication of Decision
    Once EPA review is complete, the Agency will notify the registrant 
whether the new formulation or proposed formulation change is 
acceptable. At the same time, the Agency will amend the SNAP 
determinations to reflect these findings and will publish the revised 
determinations in the next quarterly Federal Register notice. 
Submitters should note that, because of the shared authority to review 
substitutes under both SNAP and FIFRA, formulators may not sell amended 
or new formulations subject to FIFRA until they have received FIFRA 
approval.

D. Shared Statutory Authority with the Food and Drug Administration

    The Federal Food, Drug and Cosmetic Act (FDCA), 21 U.S.C. 321, 
provides for the safety and effectiveness of drugs and therapeutic 
devices, the purity and wholesomeness of foods, and the harmlessness of 
cosmetics. Under this statute, the Food and Drug Administration (FDA) 
regulates the packaging of food products and incidental additives and 
requires predistribution clearance of medical devices.
    As defined in the FDCA, medical devices can include any devices, 
diagnostic products, drugs, and drug delivery systems. Devices covered 
under this jurisdiction are subject to review under the FDCA. Some 
medical devices and food packaging currently contain class I or II 
compounds. The Agency has determined that such products are exempt from 
further review for human health effects under the SNAP program where 
FDA approval of such effects is required before a product can be 
introduced into commerce. EPA will rely in its SNAP determination on 
FDA's conclusions regarding health effects. The Agency believes this 
exemption is justified because of the higher burden of proof placed on 
submitters under the FDCA. However, the Agency will continue to 
evaluate all other environmental effects of the proposed substitute, 
and will consult with the FDA to determine the appropriate course of 
action.

VIII. Petitions

A. Background

1. Role of Petitions
    Section 612(d) of the CAA explicitly states that ``any person may 
petition the Administrator to add a substance * * * or to remove a 
substance from either of such (prohibited or safe use) lists.'' The 
petition provision serves two principal needs. The first is to permit 
the appeal of existing Agency determinations under the SNAP program. 
The second is to provide a mechanism for individuals and organizations 
to bring to the Agency's attention new information on substitutes that 
could affect existing listing determinations or result in new ones.
    The opportunity for outside parties to comment on existing listing 
decisions is an important aspect of the petition process. As discussed 
in the section on notifications, companies that produce substitutes 
must submit specific data on the substitutes to the Agency for review. 
However, organizations and private citizens other than those required 
to submit SNAP notices may have additional information about existing 
substitutes or information on new substitutes not yet reviewed by the 
Agency. To ensure that the SNAP determinations are based on the best 
information on substitutes, it is essential that the Agency offer a 
means for such information to be incorporated into the SNAP analyses on 
a continuing basis.
    Before individuals, organizations, or companies may initiate legal 
action against EPA for the purpose of changing the lists of acceptable 
or unacceptable substitutes, they must first exhaust all administrative 
remedies for receiving such relief, including remedies like the 
petition process described in this section.
2. Types of Petitions
    Five types of petitions exist:
    (1) Petitions to add a substitute not previously reviewed under the 
SNAP program to the acceptable list;
    (2) Petitions to add a substitute not previously reviewed under the 
SNAP program to the unacceptable list;
    (3) Petitions to delete a substitute from the acceptable list and 
add it to the unacceptable list or to delete a substitute from the 
unacceptable list and add it to the acceptable list;
    (4) Petitions to add or delete use restrictions on an acceptability 
listing, and
    (5) Petitions to grandfather general use of an unacceptable or 
acceptable subject to narrowed use limits in specified applications 
substitute.
    Petitioners should note that the first type of petition is 
comparable to completing a SNAP submission, except that the latter is 
submitted by substitute producers prior to the introduction into 
interstate commerce of the substitute for a significant new use as a 
class I or II substitute. The first type of petition, by contrast, 
would generally be initiated by entities other than the company 
responsible for producing the substitute. Companies that manufacture, 
formulate, or use a substitute themselves and want to have their 
substitutes added to the acceptable list should submit information on 
the substitute under the 90-day advance notification review program.
3. Basis for Petition
    A petitioner may submit a petition for several reasons, including:
     Availability of new information on substitutes or 
applications not covered in the existing SNAP determinations;
     Requests to extend effective date for existing 
prohibitions on uses of an unacceptable substitute;
     New technologies or practices that reduce exposures to a 
substitute previously unacceptable under SNAP due to toxicity concerns; 
or
     Requests for acceptability subject to narrowed use limits 
listing for specialized applications within a sector end-use for an 
unacceptable substitute where no other technologically viable 
substitute can be found.
    All of the above are examples of valid justifications for 
submitting a petition. Other bases for petitioning the Agency may exist 
as well, and all petitions with adequate supporting data will receive 
consideration under the SNAP program.
4. Nature of Response
    The Agency will only review and grant or deny petitions based on 
the sector and end-use application identified in the petition. For 
example, simply because the Agency ultimately deletes a substitute from 
the list of acceptable substitutes for a particular end-use in the 
solvents cleaning sector does not mean the substitute is unacceptable 
for any specific end-use as a refrigerant. A similar caveat applies for 
petitions on applications within a sector. If a substitute, for 
instance, is found acceptable for a specific end-use within an 
application, it will not automatically be deemed acceptable for any 
other end-use in that sector.

B. Content of the Petition

    The Agency requires the following information: A brief statement 
describing the type of petition, substitute, sector and end-uses to 
which it applies; and a brief summary of the basis for the petition and 
the data that support the petition. As with SNAP submissions, the 
Agency will issue a determination letter on the completeness of the 
petition to the petitioner within 15 calendar days of its receipt.
    Petition types (1) and (2) must contain the information described 
in section V.B. of this notice, which lists the items to be submitted 
in a 90-day notification. Information requirements for such petitions 
and 90-day notifications are the same, since the Agency will be 
applying the same level of analysis to petitions submitted by outside 
parties as to notifications received from the producing companies 
themselves. For petition types (3) and (4), which request a 
reexamination of a substitute previously reviewed under the SNAP 
program, the submitter may reference the prior submission rather than 
submit duplicate information. In this case, the petitioner should 
provide and submit as appropriate any new or additional data. Petitions 
to grandfather use of an unacceptable substitute must describe the 
applicability of the four-part test to judge the appropriateness of 
Agency grandfathering as described in section VI.B. of this final rule.

C. Sufficiency of Data

    Petitioners should be aware that insufficient data may prevent the 
Agency from reaching a timely decision on whether to grant or deny a 
petition. EPA will conclude a completeness review of each petition 
received within fifteen days of receipt of the petition. Within the 15-
day period, EPA will inform the petitioner of any additional 
information needed. If EPA makes no such request, then after the 15-day 
period is completed, the 90-day review period will automatically 
commence. If EPA does request any additional data, the 90-day period 
shall not commence until the additional data are received and 
themselves reviewed for completeness.
    As provided in section 612(d), any petition must ``include a 
showing by the petitioner that there are data on the substance adequate 
to support the petition.'' Petitioners may provide citations to 
scientific literature, where appropriate. However, submitters are 
advised that furnishing copies of supporting articles, reports, or 
letters will expedite the review process.
    If the Agency receives a petition with insufficient data, EPA will 
not commence review until the petitioner submits the missing 
information to the best of the petitioner's ability. EPA will inform 
the petitioner when the petition is complete for purposes of initiating 
the 90-day review period. To the extent the petitioner does not have 
the required information, EPA may also seek data from sources other 
than the petitioner, including manufacturers or users of products that 
contain the substitute. In such cases, section 612(d) explicitly 
provides that ``the Administrator shall use any authority available to 
the Administrator, under any law administered by the Administrator, to 
acquire such information.'' These authorities include section 114 of 
the CAA as well as information collection provisions of other 
environmental statutes. Where EPA cannot obtain sufficient data within 
the statutory 90-day review period, the Agency may deny the petition 
for lack of adequate technical support.

D. Criteria for Evaluating Petitions

    In evaluating petitions, the Agency will follow the same criteria 
as for review of the SNAP Information Notice which notifies EPA of the 
intent to introduce a substitute into interstate commerce. This will 
ensure that both petitions and notifications are judged by the same 
standards.

E. Petition Review Process

1. Petition Submittal
    This final rule describes a generic petition process. Petitions 
should be sent to the docket number listed in the beginning of this 
final rule as well as to the SNAP Coordinator.
2. Petition Reviews
    When the Agency receives a petition, it will log the petition into 
the SNAP tracking system. If the petition concerns a substitute 
previously either found acceptable or unacceptable under the SNAP 
program, the Agency will as a courtesy contact the initial submitter of 
that substitute.
    The Agency will grant or deny the petition within 90 days of 
receiving a complete application. If the Agency grants a petition to 
add a substitute to the list of unacceptable substitutes or to remove a 
substitute from either list, the decision will be made through notice 
and comment rulemaking. In such cases, the statute requires EPA to 
propose, take comment on, complete final action, and publish the 
revised lists within six months of the grant of the petition. 
Otherwise, responses to petitions, including explanations of petition 
denials, will be included in the next 3-month Federal Register notice 
updating the SNAP determinations. Regardless of the final 
determination, the Agency will inform petitioners within 90 days 
whether their request has been granted or denied.

IX. Listing of Substitutes

A. Overview

    This section presents EPA's listing decisions for class I 
substitutes in the following industrial sectors: Refrigeration and air 
conditioning, foam blowing, solvents cleaning, fire suppression and 
explosion protection, sterilants, aerosols, tobacco expansion and 
adhesives, coatings and inks. Parts D through K below present a 
detailed discussion of the substitute listing determinations for each 
of the major use sectors. Tables that summarize listing decisions in 
this section are included in appendix B. Listings of substitutes within 
the pesticides sector will be added in future notices, as information 
on these substitutes becomes available to the Agency. This final rule 
focuses on substitutes for class I substances, given the accelerated 
production phaseout schedule for class I substances. One of the goals 
of SNAP is to encourage transition away from class I substances as 
rapidly as possible. SNAP will begin analyzing alternatives to class II 
substances in the near future. Results of these analyses will appear in 
quarterly updates to the SNAP lists, which will be published in the 
Federal Register as described in Sections III.C.4. and VII.A.3.g. of 
this final rule.
    To develop the lists of unacceptable and acceptable substitutes, 
EPA conducted screens of health and environmental risks posed by 
various substitutes for class I compounds in each use sector. These 
screens are presented in individual background documents entitled 
``Risk Screen on the Use of Substitutes for Class I Ozone-Depleting 
Substances'' for each use sector. These background documents are 
available for review in the public docket supporting this rulemaking. 
Whenever the initial risk screen indicated a potential risk, the 
substitute was evaluated further to ascertain whether the potential 
risk was accurately estimated and if management controls could reduce 
any risk to acceptable levels.
    Based on these analyses, EPA classified as unacceptable only uses 
of substitutes that pose significantly higher human health and 
environmental risks than those risks that would accrue through either 
continued use of the class I substances themselves or through use of 
other available substitutes.
    The assessments presented in the background documents are screens 
of the comparative risks posed by use of substitutes, not assessments 
or rankings of the absolute risks associated with use of each 
substitute. Designating a substitute as acceptable does not imply the 
absence of risks for that substitute, but rather that the substitute in 
question is believed to present lower overall risks than both the class 
I compound it is replacing and other substitutes available for the same 
end-use. For instance, in some cases, ozone-depleting substances can be 
replaced by chemicals with known toxicity or ability to contribute to 
ground-level ozone formation. The Agency's risk screen analyzes these 
effects, and the SNAP determinations generally describe as acceptable 
those substitutes for which risks from replacements would be lower on 
an overall basis compared to risks from other existing alternatives, or 
for which such risks could be managed by developing and implementing 
appropriate regulatory controls. Additionally, in cases where the 
Agency has listed a substitute as unacceptable, it has assessed--as 
required in section 612--the availability of other substitutes and 
concluded that alternatives with reduced overall risk are currently or 
potentially available.
    As a rule, the Agency did not evaluate the technical performance of 
a substitute, since the purpose of the SNAP program is to examine 
environmental effects of substitutes identified as being of commercial 
interest regardless of technical acceptability. However, in certain 
sectors, performance of the substitute does pertain directly to 
environmental or health effects. For example, in refrigeration, the 
ability of a refrigerant replacement to serve as a coolant will 
directly influence the substitute's energy efficiency, which in turn 
will affect the substitute's environmental effects. Similarly, in fire 
suppression, the ability of a substitute to put out fires and thereby 
save human lives will directly affect a substitute's health effects. 
Further, in the case of narrowed use listings, the Agency's decision to 
grant or deny a narrowed use petition may hinge on the ability of 
potential substitutes to meet technical performance criteria. For 
example, in the case of certain specialized solvents, some substitutes 
otherwise considered unacceptable may require special consideration 
because they are the only available substitute offering performance 
characteristics deemed essential in a certain application. In cases 
such as these, the SNAP analyses do consider the performance of a 
substitute as necessary.
    EPA's evaluation of each substitute in an end use is based on the 
following types of information and analyses:
     Atmospheric effects are assessed by predicting ozone 
depletion and analyzing total global warming potential, including 
chemical properties relevant to global warming. Ozone depletion is 
based on market penetration of a substitute and is measured in terms of 
cumulative Clx loadings and its effect in terms of increased 
incidence of skin cancer cases and skin cancer mortalities. Analysis of 
total global warming potential includes changes consideration of 
inherent properties such as atmospheric lifetime and absorption 
spectra, as measured by the GWP index, and from changes in fossil fuel 
use due to increases or decreases in energy efficiency resulting from 
production or use of the substitutes. Atmospheric lifetime is 
considered as an indicator of the likely persistence of an 
environmental effect or of the time lag to reverse any known or unknown 
effect associated with an emission. The model used by the Agency to 
determine atmospheric effects--the Atmospheric Stabilization Framework 
model--has been used by the Agency in calculating the benefits from the 
phase-out of class I substances. The model was peer-reviewed in 
connection with this earlier analysis.
    Although scientific studies have pointed to the possibility of 
ecological effects due to ozone depletion, such as crop damage, the 
scope of existing studies is limited and therefore these effects were 
not part of this analysis.
     Exposure assessments are used to estimate concentration 
levels of substitutes to which workers, consumers, the general 
population, and environmental receptors may be exposed, and over what 
period of time. These assessments are based on personal monitoring data 
or area sampling data if available. Otherwise, exposures are assessed 
using measured or estimated releases as inputs to mathematical models. 
Exposure assessments may be conducted for many types of releases, 
including releases in the workplace and in homes, releases to ambient 
air and surface water, and releases from the management of solid 
wastes.
     Toxicity data are used to assess the possible health and 
environmental effects from exposure to the substitutes. If Occupational 
Safety and Health Administration (OSHA)-approved or EPA-wide health-
based criteria such as Permissible Exposure Limits (PELs, for 
occupational exposure), inhalation reference concentrations (RfCs, for 
noncarcinogenic effects), or cancer slope factors (for carcinogenic 
risk) are available for a substitute, exposure information is combined 
with this toxicity information to explore any basis for concern. 
Otherwise, toxicity data are used with existing EPA guidelines to 
develop health-based criteria for interim use in these risk 
characterizations.
     Flammability is examined as a possible safety concern for 
workers and consumers. EPA assesses flammability risk using data on 
flash point and flammability limits (e.g., OSHA flammability/
combustibility classifications), data on testing of blends with 
flammable components, test data on flammability in consumer 
applications conducted by independent laboratories, and information on 
flammability risk minimization techniques.
     Some of the substitutes are volatile organic compounds 
(VOCs), chemicals that increase tropospheric air pollution by 
contributing to ground-level ozone formation. Local and nationwide 
increases in VOC loadings from the use of substitutes is also 
evaluated.

In conducting these assessments, EPA made full use of previous analyses 
performed by the Agency, including EPA's 1990 interim hazard 
assessments and supporting documentation. These analyses were modified 
in some cases to incorporate more recent data, such as data received in 
public comment on the May 12, 1993 NPRM, or to accommodate different 
analytical approaches as needed. Finally, these analyses assume that 
the regulated community complies with applicable requirements of other 
statutes and regulations administered by EPA (e.g., recycling 
requirements promulgated under the CAA) and other Federal agencies 
(e.g., any occupational exposure limits set by OSHA).
    Acceptable substitutes within specific use sectors may be listed as 
hazardous wastes or, because of flammability, corrosivity, reactivity 
or toxicity characteristics, must be managed as hazardous wastes. The 
regulatory status of three chlorinated hydrocarbons (trichloroethylene, 
methylene chloride, perchloroethylene) which could serve as substitutes 
for ODCs are highlighted in section IX. of this final rule. However, 
other chemicals listed as acceptable substitutes are also RCRA-
regulated, and the RCRA regulations should be consulted when 
application of a specific substitute for an ozone-depleting substance 
is being considered.
    Should additional data become available that would help 
characterize the risks of substitutes, the Agency will incorporate this 
data into its risk screens. For example, the risk screen does not at 
present include assessment of the environmental transformation products 
of substitutes. Research efforts of the Agency in cooperation with the 
Alternative Fluorocarbons Environmental Acceptability Study (AFEAS) are 
in progress and are intended to define the chemical, biological and 
photochemical sinks for these substances in the biosphere. Ultimately, 
these research activities will contribute to the development of more 
complete ecological risk assessments for substitutes. However, the 
Agency generally does not believe that a more detailed characterization 
of risks would lead to a different listing decision for individual 
substitutes unless effects are characterized as highly severe, since 
the critical comparison for policy purposes remains the adverse effects 
posed by continued use of a class I compound.
    The listing of acceptable and unacceptable substitutes under SNAP 
will continue. Thus, if a company is not yet able to provide the Agency 
with the information needed to complete a review of a substitute, a 
review can be completed in the future, when data become available. Once 
the data are complete, Agency review will begin, as discussed in 
sections IV. through IX. of this final rule.

B. Format for SNAP Determinations

    Sections IX.D. through IX.K. below present the decisions on 
acceptability of substitutes that EPA has made based on available 
information and the evaluation criteria (see Section V of this final 
rule). These sections describe the sector end-uses (e.g., industrial 
process refrigeration), the substitutes evaluated, the decision (i.e., 
acceptable or unacceptable) and associated rationale, any conditions 
for or limitations on the use of a substitute, and any general 
comments.
    In most cases, the end-use descriptions have been written broadly 
to encompass numerous industrial applications or uses. Based on 
discussions with industry, the Agency felt that this approach was 
preferable to listing substitutes by narrowly-defined applications, 
which would increase needlessly the number of SNAP notices that would 
be received by the Agency. The objective of section 612 is to ensure 
that replacement of class I and II substances with available 
substitutes will reduce adverse effects on human health and the 
environment. In general, the Agency can look at exposures from very 
broad classifications of use (e.g., metals cleaning) and perform the 
screening analysis to ensure that this statutory objective is being 
met. It is not necessary or helpful, for example, to list acceptable 
substitutes by each specific type of metal being cleaned in the 
solvents cleaning sector. This is especially true when conservative 
assumptions used in the screening analysis demonstrate the 
acceptability of an alternative in a wide range of end-uses. Where 
possible, the substitutes presented in sections D. through K. have been 
identified by their chemical name. Generally speaking, EPA has not 
listed substitutes by product or company name in order to avoid implied 
endorsement of one substitute over another. However, there are two 
circumstances in which specific chemical names have not been included. 
First, where proprietary blends have been identified as substitutes, 
the Agency has worked with the manufacturers to identify generic ways 
in which the substitute could be listed. Before a user invests in a 
substitute in these categories, they may wish to contact the SNAP 
program to confirm that the specific substitute they intend to use has 
been reviewed and found acceptable by EPA. EPA believes that if a 
potential user identifies the substitute by a product name that EPA has 
on record, but was not included on the list for the reasons stated 
above, EPA can confirm the listing of the substitute without violating 
safeguards important to protect any proprietary business information 
provided in confidence to the Agency.
    The second situation in which EPA does not anticipate listing 
specific chemicals arises in the solvents cleaning sector, primarily 
for aqueous and semi-aqueous cleaners. In this area, numerous cleaning 
formulations exist and are comprised of a wide variety of chemicals. As 
discussed in the section below on solvents cleaning alternatives (see 
section IX.F.), the Agency performed its screening assessment by 
identifying representative chemicals. These were then used to screen a 
wide variety of chemicals grouped into categories of solvent-cleaning 
constituents (e.g., saponifiers, surfactants, etc.). Information on 
these chemicals presented in the risk screen was used as a basis for 
determining that aqueous and semi-aqueous cleaners present lower risk 
than the chemicals they are replacing.
    EPA has selected this strategy for listing as acceptable aqueous 
and semi-aqueous cleaners for several reasons. First, it should 
minimize the need to submit SNAP notices for blends of compounds that 
are combinations of the chemicals which have already been approved. 
Second, it will allow EPA to avoid listing proprietary formulations.
    Any conditions for use included in listing decisions are part of 
the decision to identify a substitute as acceptable. Thus, users would 
be considered out of compliance if using a substitute listed as 
acceptable without adhering to the conditions EPA has stipulated for 
acceptable use of the alternative. Alternatively, where restrictions 
are set which narrow the acceptable applications within an end-use, a 
user would be considered out of compliance if using the compound in an 
end-use application where such use is unacceptable. Conditions, if any, 
are listed when it is clear that a substitute can only be used safely 
if certain precautions are maintained. As noted previously, any 
conditions will be imposed in the listing of substitutes as acceptable 
through rulemaking.
    The comments contained in the table of listing decisions found in 
summary form in Appendix B provide additional information on a 
substitute. Since comments are not part of the regulatory decision, 
they are not mandatory for use of a substitute. Nor should the comments 
be considered comprehensive with respect to other legal obligations 
pertaining to the use of the substitute. However, EPA encourages users 
of acceptable substitutes to apply any comments in their use of these 
substitutes. In many instances, the comments simply allude to sound 
operating practices that have already been identified in existing 
industry and/or building-code standards. Thus, many of the comments, if 
adopted, would not require significant changes in existing operating 
practices for the affected industry.

C. Decisions Universally Applicable

    Recently, the Agency has become aware of substitute mixtures that 
are being marketed as replacements for both class I and II chemicals. 
In situations where these mixtures are a combination of class I and II 
chemicals, they may serve as transitional chemicals because they offer 
environmental advantages in that they have a lower combined ODP than 
use of a class I compound by itself. However, where EPA has identified 
a non-ozone depleting alternative that reduces overall risk to human 
health and the environment, mixtures of class I and II substances shall 
be unacceptable or subject to use limits.
    There have been a few instances in which mixtures of class I and II 
chemicals have been marketed as replacements for class II chemicals. 
Because the ODP of such alternatives is clearly higher than the class 
II substances, the Agency is prohibiting the use of any class I and 
class II mixture as a replacement for a class II chemical. Where the 
Agency is aware of specific mixtures falling into this category, they 
are listed by individual use sector below. The remainder of this 
section presents the initial listing decisions for each of the 
following end use sectors:

D. Refrigeration and Air Conditioning
E. Foam Blowing
F. Solvents Cleaning
G. Fire Suppression and Explosion Protection
H. Sterilants
I. Aerosols
J. Tobacco Expansion
K. Adhesives, Coatings and Inks

D. Refrigeration and Air Conditioning

1. Overview
    The refrigeration and air conditioning sector includes all uses of 
Class I and Class II substances to transfer heat. Most end-uses in this 
sector involve mechanically moving heat from a cool region to a warmer 
one. For example, a car's air conditioner moves heat from the cooled 
interior to the hot ambient air.
    This sector also includes heat transfer end-uses, i.e. those uses 
of Class I and Class II substances to move heat from a warm region to a 
cool one. For example, CFC-114 is currently used to remove excess heat 
from a very hot uranium enrichment process to cooler ambient air. 
Hence, the process requires no additional energy, and does not create 
refrigeration by mechanical means.
    Mechanical systems generally use a vapor compression cycle. 
However, several alternative cycles have been used for decades; these 
and other alternatives are being re-examined in light of the phaseout 
of commonly used CFC-based refrigerants in 1996. Substitutes reviewed 
under SNAP may use alternative cycles; review is not restricted solely 
to applications based on replacing the working fluid in vapor 
compression equipment. Similarly, simple heat transfer end-uses will 
also be included.
    The refrigeration and air conditioning sector is divided into the 
following end-uses:
     Commercial comfort air conditioning;
     Industrial process refrigeration systems;
     Industrial process air conditioning;
     Ice skating rinks;
     Uranium isotope separation processing;
     Cold storage warehouses;
     Refrigerated transport;
     Retail food refrigeration;
     Vending machines;
     Water coolers;
     Commercial ice machines;
     Household refrigerators;
     Household freezers;
     Residential dehumidifiers;
     Motor vehicle air conditioning;
     Residential air conditioning and heat pumps; and
     Heat transfer.
    EPA has not necessarily reviewed substitutes in every end-use.
    The following discussion provides some distinctions among the 
various end-uses in the refrigeration and air conditioning sector.
    a. Chillers. CFCs are used in several different types of mechanical 
commercial comfort air conditioning systems, known as chillers. These 
chillers cool water, which is then circulated through a building. They 
can be classified by compressor type, including centrifugal, 
reciprocating, scroll, screw, and rotary. The selection of a particular 
compressor type generally depends on the cooling capacity required. 
Reciprocating and scroll compressors are used in small capacity 
applications (less than 200 tons), screw compressors are used in medium 
capacity applications (50 to 400 tons), and centrifugal compressors are 
used in large capacity applications (greater than 300 tons). The 
majority of the chillers used in the United States are centrifugal 
chillers. Chillers have a lifetime of 23 to 40 years. EPA anticipates 
that over time, existing cooling capacity will be either retrofitted or 
replaced by systems using non-CFC refrigerants in a vapor compression 
cycle or by alternative technologies.
    b. Industrial process refrigeration systems. Many industrial 
applications require cooling of process streams. These applications 
include systems designed to operate in a wide temperature range. 
Included within this category are industrial ice machines and ice 
rinks. The choice of substitute for specific applications depends on 
ambient and required operating temperatures and pressures.
    c. Ice skating rinks. Skating rinks frequently use secondary 
refrigeration loops. They are used by the general public for 
recreational purposes.
    d. Industrial process air conditioning. Ambient temperatures near 
200 degrees Fahrenheit and corrosive conditions make this application 
distinct from commercial and residential air conditioning. Units in 
this end-use provide comfort cooling for operators and protect process 
equipment.
    e. Uranium isotope separation processing. This end-use includes 
operation of a heat transfer cycle to cool uranium isotope separation 
processing. Substitutes must meet an extremely rigorous set of criteria 
to be applicable in this end-use.
    f. Cold storage warehouses. Cold storage warehouses are used to 
store meat, produce, dairy products and other perishable goods. The 
majority of cold storage warehouses in the United States use ammonia as 
the refrigerant in a vapor compression cycle.
    g. Refrigerated transport. Refrigerated transport moves products 
from one place and climatic condition to another, and include 
refrigerated ship holds, truck trailers, railway freight cars, and 
other shipping containers. Refrigerated transport systems are affected 
by a number of inherent complications not found with other 
refrigeration and air conditioning end-uses. In route, the refrigerated 
units may be subject to a broad range of ambient temperatures. Engine-
driven transport units suffer power interruptions when either the unit 
or the vehicle is out of use for brief periods of time (e.g., loading 
and unloading and fuel stops). Refrigerated units are designed to 
provide the maximum amount of space available for containment of the 
product to be transported. Refrigerated transport equipment must be 
versatile to allow for the different temperature requirements for the 
different products (e.g., ice cream versus fresh produce) which may be 
transported.
    h. Retail Food Refrigeration. This end-use includes all cold 
storage cases designed to chill food for commercial sale. Equipment in 
this end-use is generally designed for two temperature regimes: Low 
temperature cases operating below freezing and medium temperature units 
merely chilling food. In addition to grocery cases, the end-use 
includes convenience store reach-in cases and restaurant walk-in 
refrigerators. Icemakers in these locations are discussed under 
commercial ice machines.
    i. Vending machines. Vending machines are self-contained units 
which dispense goods that must be kept cold or frozen. Like equipment 
in other end-uses, the choice of substitute will strongly depend on 
ambient conditions and the required operating temperature.
    j. Water coolers. Water coolers are also self-contained and provide 
chilled water for drinking. They may or may not feature detachable 
containers of water.
    k. Commercial ice machines. These units are used in commercial 
establishments to produce ice for consumer use, e.g., in hotels, 
restaurants, and convenience stores. Thus, the cleanliness of the ice 
is important. In addition, the machines are typically smaller in size 
than industrial equipment. Commercial ice machines are typically 
connected to a building's water supply.
    l. Household refrigerators. Household refrigerators are intended 
primarily for residential use, although they may be used outside the 
home. Approximately 159 million units exist in the U.S., where the 
average residential refrigerator is an 18.4 ft3 automatic defrost 
unit with a top mounted freezer. Cooling is provided by a conventional 
single evaporator unit in a vapor compression cycle. The evaporator is 
located in the freezer compartment, and cooling to both compartments is 
typically achieved by mechanically driven air exchange between the 
compartments.
    m. Household freezers. Household freezers only offer storage space 
at freezing temperatures, unlike household refrigerators. Two model 
types, upright and chest, provide a wide range of sizes.
    n. Residential dehumidifiers. Residential dehumidifiers are 
primarily used to remove water vapor from ambient air for comfort 
purposes. While air conditioning systems often combine cooling and 
dehumidification, this application serves only the latter purpose. 
Since air is cooled as it flows over the evaporator, it loses moisture 
through condensation. It is then warmed as it passes over the condenser 
coil. Dehumidifiers actually slightly warm the surrounding air, since 
the compressor adds heat to the cycle.
    o. Motor vehicle air conditioning. Motor vehicle air conditioning 
systems (MVACS) provide comfort cooling for passengers in cars, buses, 
planes, trains, and other forms of transportation. MVACS pose risks 
related to widely varying ambient conditions, accidents, do-it-yourself 
maintenance, and the location of the evaporator inside the passenger 
compartment. Given the large number of cars in the nation's fleet, and 
the variety of designs, new substitutes must be used in accordance with 
established retrofit procedures.
    Flammability is a concern in all applications, but the conditions 
of use and the potential for accidents in this end-use increase the 
likelihood of a fire. In addition, the number of car owners who perform 
their own routine maintenance means that more people will be exposed to 
potential hazards. Current systems are not designed to use flammable 
refrigerants.
    p. Residential air conditioning and heat pumps. HCFC-22, a class II 
substance, is the dominant working fluid in residential air 
conditioning and heat pumps. This end-use includes both central units 
and window air conditioners. SNAP will begin analyzing class II 
substance substitutes in the near future. Results of these analyses 
will appear in quarterly updates in the Federal Register.
    q. Heat transfer. This end-use includes all cooling systems that 
rely on convection to remove heat from an area, rather than relying on 
mechanical refrigeration. There are, generally speaking, two types of 
systems: Systems with fluid pumps, referred to as recirculating 
coolers, and those that rely on natural convection currents, referred 
to as thermosiphons.
2. Substitutes for Refrigerants
    Substitutes fall into eight broad categories. Seven of these 
categories are chemical substitutes generally used in the same cycle as 
the ozone-depleting substances they replace. They include 
hydrochlorofluorocarbons (HCFCs), hydrofluorocarbons (HFCs), 
hydrocarbons, blends of refrigerants, ammonia, perfluorocarbons (PFCs), 
and chlorine systems. The eighth category includes alternative 
technologies that generally do not rely on vapor compression cycles.
    a. Hydrochlorofluorocarbons (HCFCs). EPA believes that 
hydrochlorofluorocarbons have an important role to play as transitional 
refrigerants. HCFCs are chemically similar to CFCs except that they 
contain hydrogen in addition to chlorine and fluorine. Because their 
thermophysical properties are, in many cases, similar to CFCs, 
equipment designed to use CFCs can often be retrofitted to operate with 
HCFCs. In addition, new equipment can be designed specifically for 
these compounds.
    HCFCs contribute to the destruction of stratospheric ozone, but to 
a much lesser extent than CFCs. Use of HCFCs as transitional 
refrigerants will allow industry to move away from CFCs more rapidly 
and, therefore, will offer significant environmental and health 
benefits over the continued use of CFCs. Because they contain hydrogen, 
the HCFCs break down more easily in the atmosphere than do CFCs, and 
therefore have lower ODPs. Their global warming potentials are also 
lower than those for the CFCs. Production of HCFCs is controlled under 
the international agreement set forth in the Montreal Protocol, which 
is being implemented in the U.S. through the Clean Air Act. HCFCs were 
initially scheduled to be phased out by 2030. As a result of growing 
evidence indicating greater risks of ozone depletion, however, the 
international community agreed in Copenhagen in November 1992 to 
accelerate the phaseout of the ozone-depleting compounds, including 
HCFCs. As a result, EPA published an accelerated phaseout of HCFCs on 
December 10, 1993 (58 FR 65018). The proposed accelerated schedule 
places production and consumption limits on the most potent ozone-
depleting HCFCs first, with the production of HCFCs with lower ozone 
depletion potentials (ODPs) permitted over a longer period of time. 
There are clear environmental and health benefits to be gained by 
allowing near-term use of HCFCs until substitutes with zero ODP are 
developed.
    b. Hydrofluorocarbons (HFCs). Hydrofluorocarbons do not contain 
chlorine and do not contribute to destruction of stratospheric ozone. 
However, some HFCs do have significant global warming potentials 
(GWPs). Although a few HFCs have been in use for some time, the 
potential for HFCs as a replacement for CFCs has grown rapidly over the 
last several years. EPA is concerned that rapid expansion of the use of 
some HFCs could contribute to global warming. Nonetheless, HFCs as a 
class offer lower overall risk than continued use of CFCs, as well as a 
near-term option for moving away from CFCs.
    c. Hydrocarbons. Hydrocarbons do not contain chlorine or bromine; 
they therefore also have zero ODP. Hydrocarbons degrade in the lower 
atmosphere, contributing to ground-level pollution such as smog, but 
they do not contribute directly to global warming. Propane, ethane, 
propylene, and to some extent butane are used as refrigerants in 
specialized industrial applications, primarily in oil refineries and 
chemical plants, where they are frequently available as part of the 
process stream and where their use contributes only a slight increment 
to the overall risk of fire or explosion. Because of the overall risks, 
these systems are designed to meet rigid requirements for reliability, 
durability, and safety.
    Hydrocarbon refrigerants are also used in some home appliances. In 
general, they are effective refrigerants and may provide some gains in 
efficiency over CFCs. EPA believes refrigeration end-uses may exist for 
this class of compounds, but such determinations will require analysis 
of appropriate controls to address the risk of fire.
    d. Blends. Blends of refrigerants offer significant opportunities 
for alternatives to class I substances. The number of single-substance 
substitutes is limited; combinations greatly expand the number of 
possible refrigerants. By varying the concentrations of the 
constituents, manufacturers may design blends for specific end-uses.
    Blends generally fall into two categories: azeotropes and 
zeotropes. Azeotropes behave like single refrigerants under normal 
conditions. They boil and condense at constant temperature and do not 
change composition across a phase change. Zeotropes, however, exhibit 
temperature glide, meaning that as the refrigerant flows across a heat 
exchanger, the temperature changes in response to differential boiling 
or condensing of different constituents in the blend. Known as 
fractionation, this process may pose additional risks if any of the 
blend's components are flammable, even if the blend as formulated is 
not. On the other hand, equipment designed to take advantage of 
zeotropic blends may reap energy efficiency gains. EPA expects blends 
to play an important role in the transition away from ODSs.
    In some cases, the specific components of blends, as well as their 
proportions, are confidential business information; in others, only the 
proportions are confidential. With respect to both types of blends, 
however, listings in this final rule and in future updates will refer 
to only those blends which have been submitted for review. Although 
several companies may submit blends with the same components, only 
those compositions specifically reviewed under SNAP will be listed as 
acceptable. ASHRAE has issued numerical designations for many blends. 
All blends will be assigned a generic name for use in public notices. 
Substitutes that were included in the proposed rule will retain the 
same generic names, but the listing will include any available ASHRAE 
designations. Blends submitted since the proposed rule will be listed 
using the ASHRAE designation when available. If ASHRAE has not issued 
its designation, they will be assigned new names. In most cases, the 
discussion in the listings will include the blends' components. Blends 
that contain HCFCs will be labeled ``HCFC Blend Alpha'', ``HCFC Blend 
Beta'', etc. This designation is intended to ease identification of 
blends which must be handled in accordance with other regulations 
described below. Blends that have zero ODP will be given similar names 
that describe their major components. An information sheet listing the 
trade names and manufacturers of the blends, along with a vendor list, 
may be obtained by contacting the SNAP refrigerants sector expert.
    e. Ammonia. Ammonia has been used as a medium to low temperature 
refrigerant in vapor compression cycles for more than 100 years. 
Ammonia has excellent refrigerant properties, a characteristic pungent 
odor, no long-term atmospheric risks, and low cost. It is, however, 
moderately flammable and toxic, although it is not a cumulative poison. 
OSHA standards specify a 15 minute short-term exposure limit of 35 ppm 
for ammonia.
    Ammonia is used as the refrigerant in meat packing, chicken 
processing, dairy, frozen juice, brewery, cold storage, and other food 
processing and industrial applications. It is also widely used to 
refrigerate holds in fishing vessels. Some absorption refrigeration and 
air conditioning systems use ammonia as well.
    f. Perfluorocarbons. Unlike CFCs, HCFCs or HFCs, perfluorocarbons 
(PFCs) are fully fluorinated compounds. The principal environmental 
characteristic of concern for these compounds is that they have 
extremely long atmospheric lifetimes, often orders of magnitude longer 
than those of the CFCs. These long lifetimes cause the PFCs to have 
very high global warming potentials. Technology for containment and 
recycling of PFCs is commercially available and is recommended by 
manufacturers to offset any possible adverse environmental effects.
    One advantage of the PFCs is that, like HFCs, they do not 
contribute to ozone depletion. In addition, these chemicals are 
nonflammable and exhibit low toxicity, and they are not subject to 
federal regulations concerning volatile organic compounds (VOCs), since 
they do not contribute to ground-level ozone formation.
    The Agency anticipates that in widespread use, these compounds pose 
higher overall risk compared to other available alternatives because of 
their relatively long lifetimes and associated high GWPs. Because of 
these concerns, the Agency has found acceptable only certain narrowly 
defined uses of perfluorinated compounds, prohibiting their use where 
other alternatives with lower overall risk are available. EPA has 
described these limited acceptable uses as specifically as possible. 
Further, users should be aware that, because of the environmental 
concerns detailed above, any proposed uses of PFCs outside those 
described in this final rule should be submitted for future review 
under SNAP.
    g. Chlorine. Chlorine was listed in the proposed regulation as an 
alternative refrigerant in chlorine liquefaction, a processing step in 
the manufacture of the chemical. When chilled below its boiling point, 
chlorine can be stored as a liquid at atmospheric pressure, a method 
that for safety reasons is preferable to storing the chemical as a 
pressured gas at ambient temperatures. Although the refrigeration 
system will generally be physically separate from the actual chlorine 
process stream, compatibility of the refrigerant with liquid chlorine 
is critical because of chlorine's high reactivity. CFC-12 has been 
widely used because it does not react with chlorine.
    Systems using chlorine as a refrigerant require specialized 
compressors designed to resist chemical attack by liquid and gaseous 
chlorine. EPA has determined that chlorine can be safely used in 
refrigeration systems associated with chlorine-containing industrial 
process streams. Such systems must be designed and operated with the 
same safety considerations that apply to the process stream. In 
particular, OSHA regulates this use under its standard for Process 
Safety Management of Highly Hazardous Chemicals (29 CFR 1910.119).
    h. Alternative technologies. Several technologies already exist as 
alternatives to equipment using class I substances. As a result of the 
CFC phaseout, they are gaining prominence in the transition away from 
CFCs. Examples of these technologies include evaporative cooling, 
desiccant cooling, and absorption refrigeration and air conditioning. 
In addition, several technologies are currently under development. 
Significant progress has expanded the applicability of these 
alternatives, and their environmental benefits generally include zero 
ODP and low direct GWP. In addition, evaporative cooling offers 
significant energy savings, which results in reduced indirect GWP.
3. Comment Response
    a. Comments on acceptable substitutes. A commenter opposed listing 
the use of HCFC-123 as acceptable because of toxicity concerns. EPA has 
conducted worker exposure studies which indicate that exposure can be 
limited to 1 ppm, substantially below the industry-established 
acceptable exposure limit (AEL) of 30 ppm. Based on these studies, EPA 
remains confident that HCFC-123 can be used safely when standard 
industrial hygiene practices are followed. It is important to note, 
too, that the AEL is a long-term exposure limit. Safety measures to 
limit short-term exposures are important for all refrigerants.
    Another commenter informed EPA that chlorine-based refrigeration 
systems are generally physically separated from chlorine-containing 
process streams. This separation invalidates the analogy to 
hydrocarbon-based systems for industrial process refrigeration. Hence, 
EPA's final determination that chlorine is acceptable for this end-use 
includes the acknowledgement of OSHA standards dictating safety 
considerations in the design and operation of such systems.
    b. Other comments. Several commenters requested additional end-use 
categories, while others requested greater aggregation. Some 
aggregation is necessary to minimize confusion and the analysis of 
small differences among similar applications. Yet EPA also recognizes 
that certain end-uses are fundamentally different from others. In the 
NPRM, EPA identified major end-uses within the refrigeration and air 
conditioning sector. For purposes of the final rule, EPA is reluctant 
to change the end-use categories from those listed in the proposed 
rule. Retaining the original end-uses serves the goal of creating the 
certainty needed to encourage transition away from ozone-depleting 
substances.
    However, this final rule does combine substitute listings for 
various refrigerants within each end-use. For example, industrial 
process refrigeration now includes substitutes for CFC-11, CFC-12, and 
R-502. The risk screens conducted by EPA analyzed the use of 
substitutes within an end-use; the chemical being replaced was usually 
not relevant to the analysis. Because it may be important to 
distinguish among substitutes for certain substances if they exhibit 
significantly different operational characteristics, such as condensing 
pressure or typical ambient conditions, the listings do not combine 
centrifugal chillers into one end-use. Rather, retrofitted CFC-11, CFC-
12, CFC-113, and CFC-114 chillers remain separate.
    A commenter proposed that all blends consisting of individually 
acceptable components be deemed acceptable. EPA believes that blends 
pose analytical difficulties not encountered with single refrigerants. 
Blends, unlike single compounds, have the potential to separate into 
components during normal use and during leaks. This process is called 
fractionation, and it is caused by differences in vapor pressure among 
the constituents.
    For example, as a zeotropic blend enters the evaporator, it is a 
liquid until it absorbs enough heat to reach the boiling point of the 
component with the highest vapor pressure. As this portion boils away, 
the remaining components will have a higher overall boiling point, and 
the temperature will rise until the second component begins to 
vaporize. This process may continue until all the refrigerant is in 
vapor phase, or some may remain a liquid even at the exit from the 
evaporator. Azeotropes and near-azeotropes, however, exhibit small 
changes in temperature in these two-phase parts of the system, and do 
not undergo significant composition changes during normal use.
    During normal operation, pressure across the condenser and 
evaporator remains relatively constant. During a leak, however, system 
pressure decreases. In addition, the refrigerant is exposed to ambient 
temperatures. As a result, fractionation is possible during a leak when 
both vapor and liquid are present, even for azeotropes.
    As with all substitutes, flammability and materials compatibility 
testing are necessary for blends. For azeotropes, these data are 
necessary for the single composition during normal operation. For 
zeotropes, such testing is necessary at all compositions occurring 
during normal operation. In addition, such tests should be conducted 
during multi-phase leaks for all blends to determine the extent and 
effects of fractionation. Even if the blend is nonflammable as 
formulated, enrichment of a flammable component through fractionation 
could result in a flammable mixture. In addition, materials compatible 
with the blend as formulated may not retain that compatibility if 
fractionation results in a substantially different composition. 
Therefore, EPA believes it is not appropriate to automatically find all 
blends of acceptable components also acceptable. Only specific 
compositions will be designated acceptable, as described earlier.
    Several commenters believed EPA was unclear in its distinctions 
between new and retrofit substitutes. In response, EPA has clarified 
this difference in this final rule. A tension exists between deeming 
substitutes acceptable for as wide a range of end-uses as possible and 
providing some guidance to users on effective substitutes.
    Several commenters suggested duplicating listings for retrofits and 
new equipment, but that duplication does not always serve the goal of 
disseminating information about viable substitutes. Certain substances 
may not be attractive for long-term use because they contain HCFCs, and 
thus may only be listed for retrofits. Alternatively, substitutes may 
not be easily implemented as a retrofit. It should be noted, however, 
that an acceptability determination for use in new equipment or as a 
retrofit option does not imply that the alternative is unacceptable for 
use in the other category.
    The retrofit category within each end-use refers to the use of 
substitutes with some modification to existing equipment but without 
changing every component. Generally speaking, retrofit refrigerants 
will not require completely new systems or redesign. Drop-in 
replacements require minimal retrofitting, as in cases where only the 
refrigerant needs to be replaced.
    The new equipment category within each end-use refers to the use of 
substitutes in entirely new systems. No existing components will be 
used. This designation may be used for refrigerants which may require 
significant design changes. For example, use of a flammable substitute 
may require some design changes to mitigate potential risk. Submitters 
must demonstrate how those risks can be addressed in new designs. In 
addition, alternative technologies often require entirely different 
systems. For example, evaporative cooling does not use a vapor 
compression cycle, and therefore cannot be used as a retrofit option.
    For purposes of submissions, the retrofit and new use categories 
should be considered separate end-uses and listed separately on the 
submission form.
4. Listing Decisions
    a. Acceptable substitutes. These determinations are based on data 
submitted to EPA and on the risk screen described in the draft 
background document entitled ``Risk Screen on the Use of Substitutes 
for Class I Ozone-Depleting Substances: Refrigerants''. In accordance 
with the guiding principles for SNAP, substitutes were compared both to 
the substance they replace and to each other.
    EPA believes the use of all acceptable substitutes presents lower 
overall risk than the continued use of an ozone-depleting substance. 
Not all substitutes will necessarily be appropriate choices for all 
systems within an end-use. Engineering decisions must take into account 
factors such as operating temperatures and pressures, ambient 
conditions, and age of equipment, especially during retrofits. For 
example, under industrial process refrigeration, both HFC-134a and 
HCFC-22 are listed as acceptable for retrofits. However, these 
substances exhibit significantly different thermodynamic 
characteristics, and both may not be appropriate for use within a given 
system. EPA believes such decisions are most appropriately made by the 
equipment owner, manager, or contractor.
    Users of HCFCs should be aware that an acceptability determination 
shall not be construed to release any user from compliance with all 
other regulations pertaining to class II substances. These include: (a) 
The prohibition against venting during servicing under section 608, 
which was effective July 1, 1992; (b) recycling requirements under 
section 608, which were effective July 13, 1993; (c) section 609 
regulations regarding MVACS which were effective August 13, 1992; and 
(d) the revised production phaseout of class II substances under 
section 606, which was published on December 10, 1993. In addition, 
users of non-chlorine refrigerants should be aware that an 
acceptability determination shall not be construed to release any user 
from conformance with the venting prohibition under section 608(c)(2), 
which takes effect November 15, 1995, at the latest.
    Substitutes are listed as acceptable by end-use. These substitutes 
have only been found acceptable for use in the specific end-uses for 
which they have been reviewed, as described in this section. Users of 
blends should be aware that EPA has evaluated and found acceptable in 
each case only the specific percentage composition submitted for 
review; no others have been evaluated. EPA strongly recommends that 
users of alternative refrigerants adhere to the provisions of ASHRAE 
Standard 15--Safety Code for Mechanical Refrigeration. ASHRAE Standard 
34--Number Designation and Safety Classification of Refrigerants is a 
useful reference on refrigerant numerical designations. Users are also 
strongly encouraged to contain, recycle, or reclaim all refrigerants.
    (1) CFC-11 Centrifugal Chillers, Retrofit. (a) HCFC-123. HCFC-123 
is acceptable as a substitute for CFC-11 in retrofitted centrifugal 
chillers. Because HCFC-123 contributes to ozone depletion, it is 
considered a transitional alternative. Since it poses much lower ozone-
depleting risk than continued use of CFCs, EPA has determined that its 
use is acceptable for these end-uses. In addition, HCFC-123's GWP and 
atmospheric lifetime are significantly lower than almost any other 
alternatives. HCFC-123 is not flammable. Since HCFC-123 is classified 
as a B1 refrigerant pursuant to ASHRAE standard 34, ASHRAE requires 
that a refrigerant vapor detector be placed in the machinery room. EPA 
strongly recommends that users of HCFC-123 adhere to this requirement 
and any other requirements provided in ASHRAE Standards 15 and 34. 
Worker-monitoring studies conducted by EPA demonstrate that HCFC-123's 
8-hour time-weighted average concentration can be maintained at or 
under 1 ppm (less than the industry-established AEL of 30 ppm), 
provided that such standards are followed.
    (2) CFC-12 Centrifugal Chillers, Retrofit. (a) HFC-134a. HFC-134a 
is acceptable as a substitute for CFC-12 in retrofitted centrifugal 
chillers. HFC-134a does not contribute to ozone depletion. HFC-134a's 
GWP and atmospheric lifetime are close to those of other alternatives 
which are acceptable in this end-use. While HFC-134a is compatible with 
most existing refrigeration and air conditioning equipment parts, it is 
not compatible with the mineral oils currently used in such systems. An 
ester-based lubricant should be used rather than mineral oils.
    (3) CFC-113 Centrifugal Chillers, Retrofit. No substitutes have 
been identified for CFC-113 in retrofitted centrifugal chillers.
    (4) CFC-114 Centrifugal Chillers, Retrofit. (a) HCFC-124. HCFC-124 
is acceptable as a substitute for CFC-114 in retrofitted centrifugal 
chillers. Because HCFC-124 contributes to ozone depletion, it is 
considered a transitional alternative. However, it represents a much 
lower ozone-depleting risk than the continued use of CFCs. In addition, 
HCFC-124's GWP and atmospheric lifetime are significantly lower than 
other alternatives. HCFC-124 is not flammable.
    (5) R-500 Centrifugal Chillers, Retrofit. (a) HFC-134a. HFC-134a is 
acceptable as a substitute for R-500 in retrofitted centrifugal 
chillers. See the discussion on HFC-134a under retrofitted CFC-12 
centrifugal chillers.
    (6) CFC-11, CFC-12, CFC-113, CFC-114, and R-500 Centrifugal 
Chillers, New. (a) HCFC-123. HCFC-123 is acceptable as a substitute for 
CFC-11, CFC-12, CFC-113, CFC-114, and R-500 in new centrifugal 
chillers. See the discussion on HCFC-123 under retrofitted CFC-11 
centrifugal chillers.
    (b) HCFC-124. HCFC-124 is acceptable as a substitute for CFC-114 in 
new centrifugal chillers. See the discussion on HCFC-124 under 
retrofitted CFC-114 centrifugal chillers.
    (c) HCFC-22. HCFC-22 is acceptable as a substitute for CFC-11, CFC-
12, CFC-113, CFC-114, and R-500 in new centrifugal chillers. HCFC-22 
has been used in a variety of air conditioning and refrigeration 
applications for many years. Like HCFC-123, HCFC-22 contributes to 
ozone depletion and is considered a transitional alternative. HCFC-22 
exhibits a higher ODP than HCFC-123, and production of it will be 
phased out according to the accelerated phase out schedule. HCFC-22's 
GWP and atmospheric lifetime are higher than other HCFCs. HCFC-22 is 
not flammable and is it compatible with existing oils used in most 
refrigeration and air conditioning equipment.
    (d) HFC-134a. HFC-134a is acceptable as a substitute for CFC-11, 
CFC-12, CFC-113, CFC-114, and R-500 in new centrifugal chillers. See 
the discussion on HFC-134a under retrofitted CFC-12 centrifugal 
chillers.
    (e) HFC-227ea. HFC-227ea is acceptable as a substitute for CFC-11, 
CFC-12, CFC-113, CFC-114, and R-500 in new centrifugal chillers. HFC-
227ea is a new chemical that has not seen widespread use. It contains 
no chlorine, so it does not contribute to ozone depletion. HFC-227ea's 
GWP and atmospheric lifetime are higher than those of other 
alternatives which are acceptable in this end-use. HFC-227ea is also 
being investigated as a component of several blends.
    (f) Ammonia. Ammonia is acceptable as a substitute for CFC-11, CFC-
12, CFC-113, CFC-114, and R-500 in new centrifugal chillers. Ammonia 
does not deplete the ozone or contribute to global warming. Ammonia is 
flammable and toxic, but it may be used safely if existing OSHA and 
ASHRAE standards are followed. Users should check local building codes 
related to the use of ammonia.
    (g) Evaporative cooling. Evaporative Cooling is acceptable as an 
alternative technology to centrifugal chillers using CFC-11, CFC-12, 
CFC-113, CFC-114, or R-500. Evaporative cooling does not contribute to 
ozone depletion or global warming and has the potential to be more 
energy efficient than current refrigeration and air conditioning 
systems. Evaporative cooling uses no chemicals, but relies instead on 
water evaporation as a means of cooling. It is in widespread use in 
office buildings in the western U.S. Recent design improvements have 
greatly expanded its applicability to other regions.
    (h) Desiccant cooling. Desiccant cooling is acceptable as an 
alternative technology to centrifugal chillers using CFC-11, CFC-12, 
CFC-113, CFC-114, or R-500. Desiccant cooling systems do not contribute 
to ozone depletion or global warming. They offer potential energy 
savings over the use of CFC-11. Desiccant cooling is an alternate 
technology to the vapor compression cycle.
    (i) Ammonia/water absorption. Ammonia/water absorption is 
acceptable as an alternative technology to centrifugal chillers using 
CFC-11, CFC-12, CFC-113, CFC-114, or R-500. Ammonia/water absorption is 
an alternative technology to vapor compression cycles. Ammonia is the 
refrigerant, and water is the absorber. This alternative has zero ODP 
and GWP. For information on toxicity, see the discussion of ammonia 
above. Users should check local building codes related to the use of 
ammonia.
    (j) Water/lithium bromide absorption. Water/lithium bromide 
absorption is acceptable as an alternative technology to centrifugal 
chillers using CFC-11, CFC-12, CFC-113, CFC-114, or R-500. Some 
absorption systems use water as the refrigerant and lithium bromide as 
the absorber. Lithium bromide has zero ODP and GWP. It is low in 
toxicity and is nonflammable.
    (k) Stirling cycle. Stirling Cycle systems are acceptable as an 
alternative technology to centrifugal chillers using CFC-11, CFC-12, 
CFC-113, CFC-114, or R-500. These systems use a different thermodynamic 
cycle from vapor compression equipment. Helium is frequently used as 
the refrigerant. The Stirling cycle does not include a phase change. 
Heat transfer is accomplished through compression and expansion. These 
systems have been used for several decades, primarily in refrigerated 
transport and cryogenics.
    (7) CFC-12 Reciprocating Chillers, Retrofit. (a) HFC-134a. HFC-134a 
is acceptable as a substitute for CFC-12 in retrofitted reciprocating 
chillers. See the discussion on HFC-134a under retrofitted CFC-12 
centrifugal chillers.
    (8) CFC-12 Reciprocating Chillers, New. (a) HCFC-22. HCFC-22 is 
acceptable as a substitute for CFC-12 in new reciprocating chillers. 
See the discussion on HCFC-22 under new CFC-11, CFC-12, CFC-113, CFC-
114, and R-500 centrifugal chillers.
    (b) HFC-134a. HFC-134a is acceptable as a substitute for CFC-12 in 
new reciprocating chillers. See the discussion on HFC-134a under 
retrofitted CFC-12 centrifugal chillers.
    (c) HFC-227ea. HFC-227ea is acceptable as a substitute for CFC-12 
in new reciprocating chillers. See the discussion on HFC-227ea under 
new CFC-11, CFC-12, CFC-113, CFC-114, and R-500 centrifugal chillers.
    (d) Evaporative cooling. Evaporative Cooling is acceptable as an 
alternative technology to reciprocating chillers using CFC-12. See the 
discussion on evaporative cooling under new CFC-11, CFC-12, CFC-113, 
CFC-114, and R-500 centrifugal chillers.
    (e) Desiccant cooling. Desiccant cooling is acceptable as an 
alternative technology to reciprocating chillers using CFC-12. See the 
discussion on desiccant cooling under new CFC-11, CFC-12, CFC-113, CFC-
114, and R-500 centrifugal chillers.
    (f) Stirling cycle. Stirling Cycle systems are acceptable as an 
alternative technology to reciprocating chillers using CFC-12. See the 
discussion on the Stirling cycle under new CFC-11, CFC-12, CFC-113, 
CFC-114, and R-500 centrifugal chillers.
    (9) CFC-11, CFC-12, and R-502 Industrial Process Refrigeration, 
Retrofit. Please note that different temperature regimes may affect the 
applicability of substitutes within this end-use.
    (a) HCFC-22. HCFC-22 is acceptable as a substitute for CFC-11, CFC-
12, and R-502 in retrofitted industrial process refrigeration. See the 
discussion on HCFC-22 under new CFC-11, CFC-12, CFC-113, CFC-114, and 
R-500 centrifugal chillers.
    (b) HFC-134a. HFC-134a is acceptable as a substitute for CFC-11, 
CFC-12, and R-502 in retrofitted industrial process refrigeration. See 
the discussion on HFC-134a under retrofitted CFC-12 centrifugal 
chillers.
    (c) R-401A and R-401B. R-401A and R-401B, which consist of HCFC-22, 
HFC-152a, and HCFC-124, are acceptable as substitutes for CFC-11, CFC-
12, and R-502 in retrofitted industrial process refrigeration. Two of 
the constituents in these blends are HCFCs and contribute to ozone 
depletion, and production of these compounds will be phased out 
according to the accelerated schedule. While the GWP of HCFC-22 is 
somewhat high, refrigerant leak regulations should reduce its 
contribution to global warming. The GWPs of the other components are 
low. Although these blends do contain one flammable constituent, HFC-
152a, the blends themselves are not flammable. In addition, each blend 
is a near azeotrope, and it does not fractionate in normal operation. 
Finally, leak testing of each blend demonstrated that while the vapor 
and liquid compositions changed, neither phase became flammable. 
Testing of these blends with centrifugal compressors is inadequate, and 
therefore such use is not recommended by the manufacturer. Further 
testing may resolve this uncertainty.
    (d) R-402A and R-402B. R-402A and R-402B, which consist of HCFC-22, 
propane, and HFC-125, are acceptable as substitutes for CFC-11, CFC-12, 
and R-502 in retrofitted industrial process refrigeration. HCFC-22 
contributes to ozone depletion, and will be phased out according to the 
accelerated schedule. Although these blends contain one flammable 
constituent, propane, the blends themselves are not flammable. In 
addition, the blends are near azeotropes, meaning they do not change 
composition between the vapor and the liquid phase. Therefore, it is 
unlikely that the blends would fractionate during normal operation, 
resulting in an enrichment of the flammable component. Finally, while 
testing demonstrated that the vapor and liquid compositions changed 
during leaks, neither phase became flammable. Testing of these blends 
with centrifugal compressors is inadequate, and therefore such use is 
not recommended by the manufacturer. Further testing may resolve this 
uncertainty.
    (e) R-404A. R-404A, which consists of HFC-125 and HFC-143a, is 
acceptable as a substitute for CFC-11, CFC-12, and R-502 in retrofitted 
industrial process refrigeration. None of this blend's constituents 
contains chlorine, and thus this blend poses no threat to stratospheric 
ozone. However, HFC-125 and HFC-143a have very high GWPs. EPA strongly 
encourages recycling and reclamation of this blend in order to reduce 
its direct global warming impact. Although HFC-143a is flammable, the 
blend is not. It is an azeotrope, so it will not fractionate during 
operation. Leak testing has demonstrated that its composition never 
becomes flammable.
    (f) R-507. R-507, which consists of HFC-125, HFC-143a, and HFC-
134a, is acceptable as a substitute for CFC-11, CFC-12, and R-502 in 
retrofitted industrial process refrigeration. None of this blend's 
constituents contains chlorine, and thus this blend poses no threat to 
stratospheric ozone. However, HFC-125 and HFC-143a have very high GWPs, 
and the GWP of HFC-134a is somewhat high. EPA strongly encourages 
recycling and reclamation of this blend in order to reduce its direct 
global warming impact. Although HFC-143a is flammable, the blend is 
not. It is a near azeotrope, so it will not fractionate during 
operation. Leak testing has demonstrated that its composition never 
becomes flammable.
    (g) Ammonia. Ammonia is acceptable as a substitute for CFC-11, CFC-
12, and R-502 in retrofitted industrial process refrigeration. See the 
discussion on ammonia under new CFC-11, CFC-12, CFC-113, CFC-114, and 
R-500 centrifugal chillers.
    (h) Propane. Propane is acceptable as a substitute for CFC-11, CFC-
12, and R-502 in retrofitted industrial process refrigeration 
equipment. Propane does not contribute to ozone depletion and it 
exhibits a negligible GWP. Propane is flammable, and as such EPA 
recommends but does not require that it only be used at industrial 
facilities which manufacture or use hydrocarbons in the process stream. 
Such facilities are designed to comply with the safety standards 
required for managing flammable chemicals.
    (i) Propylene. Propylene is acceptable as a substitute for CFC-11, 
CFC-12, and R-502 in retrofitted industrial process refrigeration. 
Propylene does not contribute to ozone depletion, nor does it 
contribute significantly to global warming. Propylene is a flammable 
refrigerant and as such, EPA recommends but does not require that it 
only be used at industrial facilities which already manufacture or use 
hydrocarbons in the process stream. Such facilities are designed to 
comply with the safety standards required for managing flammable 
chemicals.
    (j) Butane. Butane is acceptable as a substitute for CFC-11, CFC-
12, and R-502 in retrofitted industrial process refrigeration. Butane 
does not contribute to ozone depletion, nor does it contribute 
significantly to global warming. Butane is a flammable refrigerant and 
as such, EPA recommends but does not require that it only be used at 
industrial facilities which already manufacture or use hydrocarbons in 
the process stream. Such facilities are designed to comply with the 
safety standards required for managing flammable chemicals.
    (k) Hydrocarbon Blend A. Hydrocarbon Blend A is acceptable as a 
substitute for CFC-11, CFC-12, and R-502 in retrofitted industrial 
process refrigeration equipment. This blend does not contribute to 
ozone depletion, nor does it contribute significantly to global 
warming. This blend contains flammable refrigerants and as such, EPA 
recommends but does not require that it only be used at industrial 
facilities which already manufacture or use hydrocarbons in the process 
stream. Such facilities are designed to comply with the safety 
standards required for managing flammable chemicals.
    (l) Chlorine. Chlorine is acceptable as a substitute for CFC-11, 
CFC-12, and R-502 in retrofitted industrial process refrigeration 
equipment. Chlorine is a highly reactive chemical and as such, EPA 
recommends but does not require that chlorine only be used at 
industrial facilities which manufacture or use chlorine in the process 
stream. Note, however, that OSHA's Process Safety Management Standards 
apply to the use of chlorine.
    (10) CFC-11, CFC-12, and R-502 Industrial Process Refrigeration, 
New. Please note that different temperature regimes may affect the 
applicability of substitutes within this end-use.
    (a) HCFC-22. HCFC-22 is acceptable as a substitute for CFC-11, CFC-
12, and R-502 in new industrial process refrigeration. See the 
discussion on HCFC-22 under new CFC-11, CFC-12, CFC-113, CFC-114, and 
R-500 centrifugal chillers.
    (b) HFC-134a. HFC-134a is acceptable as a substitute for CFC-11, 
CFC-12, and R-502 in new industrial process refrigeration. See the 
discussion on HFC-134a under retrofitted CFC-12 centrifugal chillers.
    (c) HFC-227ea. HFC-227ea is acceptable as a substitute for CFC-12 
in new industrial process refrigeration. See the discussion on HFC-
227ea under new CFC-11, CFC-12, CFC-113, CFC-114, and R-500 centrifugal 
chillers.
    (d) R-402A and R-402B. R-402A and R-402B, which consist of HCFC-22, 
propane, and HFC-125, are acceptable as substitutes for CFC-11, CFC-12, 
and R-502 in new industrial process refrigeration. See the discussion 
on these blends under retrofitted CFC-11, CFC-12, and R-502 industrial 
process refrigeration.
    (e) R-404A. R-404A, which consists of HFC-125 and HFC-143a, is 
acceptable as a substitute for CFC-11, CFC-12, and R-502 in new 
industrial process refrigeration. See the discussion on this blend 
under retrofitted CFC-11, CFC-12, and R-502 industrial process 
refrigeration.
    (f) R-507. R-507, which consists of HFC-125, HFC-143a, and HFC-
134a, is acceptable as a substitute for CFC-11, CFC-12, and R-502 in 
new industrial process refrigeration. See the discussion on this blend 
under retrofitted CFC-11, CFC-12, and R-502 industrial process 
refrigeration.
    (g) Ammonia. Ammonia is acceptable as a substitute for CFC-11, CFC-
12, and R-502 in new industrial process refrigeration. See the 
discussion on ammonia under new CFC-11, CFC-12, CFC-113, CFC-114, and 
R-500 centrifugal chillers.
    (h) Propane. Propane is acceptable as a substitute for CFC-11, CFC-
12, and R-502 in new industrial process refrigeration equipment. See 
the discussion on propane under retrofitted CFC-11, CFC-12, and R-502 
industrial process refrigeration.
    (i) Propylene. Propylene is acceptable as a substitute for CFC-11, 
CFC-12, and R-502 in new industrial process refrigeration. See the 
discussion on propylene under retrofitted CFC-11, CFC-12, and R-502 
industrial process refrigeration.
    (j) Butane. Butane is acceptable as a substitute for CFC-11, CFC-
12, and R-502 in new industrial process refrigeration. See the 
discussion on butane under retrofitted CFC-11, CFC-12, and R-502 
industrial process refrigeration.
    (k) Hydrocarbon Blend A. Hydrocarbon Blend A is acceptable as a 
substitute for CFC-11, CFC-12, and R-502 in new industrial process 
refrigeration equipment. See the discussion on this blend under 
retrofitted CFC-11, CFC-12, and R-502 industrial process refrigeration.
    (l) Chlorine. Chlorine is acceptable as a substitute for CFC-11, 
CFC-12, and R-502 in new industrial process refrigeration equipment. 
See the discussion on chlorine under retrofitted CFC-11, CFC-12, and R-
502 industrial process refrigeration.
    (m) Evaporative cooling. Evaporative cooling is acceptable as an 
alternative technology to industrial process refrigeration using CFC-
11, CFC-12, or R-502. See the discussion on evaporative cooling under 
new CFC-11, CFC-12, CFC-113, CFC-114, and R-500 centrifugal chillers.
    (n) Desiccant cooling. Desiccant cooling is acceptable as an 
alternative technology to industrial process refrigeration using CFC-
11, CFC-12, or R-502. See the discussion on desiccant cooling under new 
CFC-11, CFC-12, CFC-113, CFC-114, and R-500 centrifugal chillers.
    (o) Nitrogen direct gas expansion. Nitrogen direct gas expansion is 
acceptable as an alternative technology to industrial process 
refrigeration using CFC-12, R-500, or R-502. Nitrogen is expanded 
within an enclosed area to absorb heat. The cycle is open; the nitrogen 
is released to the atmosphere after absorbing heat from the container. 
Nitrogen is a common gas that is nontoxic and nonflammable.
    (p) Stirling cycle. Stirling cycle systems are acceptable as an 
alternative technology to industrial process refrigeration using CFC-
11, CFC-12, or R-502. See the discussion on the Stirling cycle under 
new CFC-11, CFC-12, CFC-113, CFC-114, and R-500 centrifugal chillers.
    (11) R-400(60/40) and CFC-114 Industrial Process Air Conditioning, 
Retrofit. (a) HCFC-124. HCFC-124 is acceptable as a substitute for R-
400 (60/40) and CFC-114 in industrial process air conditioning. HCFC-
124 has a very low ODP and GWP. HCFC-124 is the only refrigerant that 
has been submitted for this end-use, and EPA invites more submissions 
and information related to substitutes.
    (12) R-400(60/40) and CFC-114 Industrial Process Air Conditioning, 
New. (a) HCFC-124. HCFC-124 is acceptable as a substitute for R-400 
(60/40) and CFC-114 in industrial process air conditioning. HCFC-124 
has a very low ODP and GWP. It is nonflammable. HCFC-124 is the only 
refrigerant that has been submitted for this end-use, and EPA invites 
more submissions and information related to substitutes.
    (13) CFC-12 and R-502 Ice Skating Rinks, Retrofit. Please note that 
different temperature regimes may affect the applicability of 
substitutes within this end-use.
    (a) HCFC-22. HCFC-22 is acceptable as a substitute for CFC-12 and 
R-502 in retrofitted ice skating rinks. See the discussion on HCFC-22 
under new CFC-11, CFC-12, CFC-113, CFC-114, and R-500 centrifugal 
chillers.
    (b) HFC-134a. HFC-134a is acceptable as a substitute for CFC-12 and 
R-502 in retrofitted ice skating rinks. See the discussion on HFC-134a 
under retrofitted CFC-12 centrifugal chillers.
    (c) R-401A and R-401B. R-401A and R-401B, which consist of HCFC-22, 
HFC-152a, and HCFC-124, are acceptable as substitutes for CFC-12 and R-
502 in retrofitted ice skating rinks. See the discussion on these 
blends under retrofitted CFC-11, CFC-12, and R-502 industrial process 
refrigeration.
    (d) Ammonia. Ammonia is acceptable as a substitute for CFC-11, CFC-
12, and R-502 in retrofitted ice skating rinks. See the discussion on 
ammonia under new CFC-11, CFC-12, CFC-113, CFC-114, and R-500 
centrifugal chillers.
    (14) CFC-12 and R-502 Ice Skating Rinks, New. Please note that 
different temperature regimes may affect the applicability of 
substitutes within this end-use.
    (a) HCFC-22. HCFC-22 is acceptable as a substitute for CFC-12 and 
R-502 in new ice skating rinks. See the discussion on HCFC-22 under new 
CFC-11, CFC-12, CFC-113, CFC-114, and R-500 centrifugal chillers.
    (b) HFC-134a. HFC-134a is acceptable as a substitute for CFC-12 and 
R-502 in new ice skating rinks. See the discussion on HFC-134a under 
retrofitted CFC-12 centrifugal chillers.
    (c) Ammonia. Ammonia is acceptable as a substitute for CFC-11, CFC-
12, and R-502 in new ice skating rinks. See the discussion on ammonia 
under new CFC-11, CFC-12, CFC-113, CFC-114, and R-500 centrifugal 
chillers.
    (15) CFC-114 Uranium Isotope Separation Processing, Retrofit. (a) 
Cycloperfluorobutane (C4F8). Cycloperfluorobutane 
(C4F8) is acceptable as a substitute for CFC-114 in uranium 
isotope separation processing. C4F8 is a PFC. It has a very 
long lifetime and a very high GWP. The Department of Energy (DOE) has 
examined several other substitutes and none meets the requirements for 
this application. DOE is pursuing a leak reduction program which should 
further restrict emissions of this refrigerant.
    (b) Perfluoro-n-butane (C4F10). Perfluoro-n-butane 
(C4F10) is acceptable as a substitute for CFC-114 in uranium 
isotope separation processing. C4F10 is a PFC. It has a very 
long lifetime and a very high GWP. The Department of Energy (DOE) has 
examined several other substitutes and none meets the requirements for 
this application. DOE is pursuing a leak reduction program which should 
further restrict emissions of this refrigerant.
    (c) Perfluoropentane (C5F12). Perfluoropentane 
(C5F12) is acceptable as a substitute for CFC-114 in uranium 
isotope separation processing. C5F12 is a PFC. It has a very 
long lifetime and a very high GWP. EPA strongly encourages users to 
pursue leak reduction strategies and to recover the fluid when the unit 
is retired.
    (d) Perfluorohexane (C6F14). Perfluorohexane 
(C6F14) is acceptable as a substitute for CFC-114 in uranium 
isotope separation processing. C6F14 is a PFC. It has a very 
long lifetime and a very high GWP. EPA strongly encourages users to 
pursue leak reduction strategies and to recover the fluid when the unit 
is retired.
    (e) Perfluoro-n-methyl morpholine (C5F11NO). Perfluoro-n-
methly morpholine (C5F11NO) is acceptable as a substitute for 
CFC-114 in uranium isotope separation processing. C5F11NO is 
a PFC. It has a very long lifetime and a very high GWP. EPA strongly 
encourages users to pursue leak reduction strategies and to recover the 
fluid when the unit is retired.
    (16) CFC-12 and R-502 Cold Storage Warehouses, Retrofit. Please 
note that different temperature regimes may affect the applicability of 
substitutes within this end-use.
    (a) HCFC-22. HCFC-22 is acceptable as a substitute for CFC-12 and 
R-502 in retrofitted cold storage warehouses. See the discussion on 
HCFC-22 under new CFC-11, CFC-12, CFC-113, CFC-114, and R-500 
centrifugal chillers.
    (b) HFC-134a. HFC-134a is acceptable as a substitute for CFC-12 and 
R-502 in retrofitted cold storage warehouses. See the discussion on 
HFC-134a under retrofitted CFC-12 centrifugal chillers.
    (c) R-401A and R-401B. R-401A and R-401B, which consist of HCFC-22, 
HFC-152a, and HCFC-124, are acceptable as substitutes for CFC-12 and R-
502 in retrofitted cold storage warehouses. Testing of these blends 
with centrifugal compressors is inadequate, and therefore such use is 
not recommended by the manufacturer. Further testing may resolve this 
uncertainty. For further information, see the discussion on these 
blends under retrofitted CFC-11, CFC-12, and R-502 industrial process 
refrigeration.
    (d) R-402A and R-402B. R-402A and R-402B, which consist of HCFC-22, 
propane, and HFC-125, are acceptable as substitutes for CFC-12 and R-
502 in retrofitted cold storage warehouses. Testing of these blends 
with centrifugal compressors is inadequate, and therefore such use is 
not recommended by the manufacturer. Further testing may resolve this 
uncertainty. For further information, see the discussion on these 
blends under retrofitted CFC-11, CFC-12, and R-502 industrial process 
refrigeration.
    (e) R-404A. R-404A, which consists of HFC-125 and HFC-143a, is 
acceptable as a substitute for CFC-12 and R-502 in retrofitted cold 
storage warehouses. See the discussion on this blend under retrofitted 
CFC-11, CFC-12, and R-502 industrial process refrigeration.
    (f) R-507. R-507, which consists of HFC-125, HFC-143a, and HFC-
134a, is acceptable as a substitute for CFC-12 and R-502 in retrofitted 
cold storage warehouses. See the discussion on this blend under 
retrofitted CFC-11, CFC-12, and R-502 industrial process refrigeration.
    (17) CFC-12 and R-502 Cold Storage Warehouses, New. Please note 
that different temperature regimes may affect the applicability of 
substitutes within this end-use.
    (a) HCFC-22. HCFC-22 is acceptable as a substitute for CFC-12 and 
R-502 in new cold storage warehouses. See the discussion on HCFC-22 
under new CFC-11, CFC-12, CFC-113, CFC-114, and R-500 centrifugal 
chillers.
    (b) HFC-134a. HFC-134a is acceptable as a substitute for CFC-12 and 
R-502 in new cold storage warehouses. See the discussion on HFC-134a 
under retrofitted CFC-12 centrifugal chillers.
    (c) HFC-227ea. HFC-227ea is acceptable as a substitute for CFC-12 
in new cold storage warehouses. See the discussion on HFC-227ea under 
new CFC-11, CFC-12, CFC-113, CFC-114, and R-500 centrifugal chillers.
    (d) R-402A and R-402B. R-402A and R-402B, which consist of HCFC-22, 
propane, and HFC-125, are acceptable as substitutes for CFC-12 and R-
502 in new cold storage warehouses. Testing of these blends with 
centrifugal compressors is inadequate, and therefore such use is not 
recommended by the manufacturer. Further testing may resolve this 
uncertainty. For further information, see the discussion on these 
blends under retrofitted CFC-11, CFC-12, and R-502 industrial process 
refrigeration.
    (e) R-404A. R-404A, which consists of HFC-125 and HFC-143a, is 
acceptable as a substitute for CFC-12 and R-502 in new cold storage 
warehouses. See the discussion on this blend under retrofitted CFC-11, 
CFC-12, and R-502 industrial process refrigeration.
    (f) R-507. R-507, which consists of HFC-125, HFC-143a, and HFC-
134a, is acceptable as a substitute for CFC-12 and R-502 in new cold 
storage warehouses. See the discussion on this blend under retrofitted 
CFC-11, CFC-12, and R-502 industrial process refrigeration.
    (g) Ammonia. Ammonia is acceptable as a substitute for CFC-12 and 
R-502 in new cold storage warehouses. See the discussion on ammonia 
under new CFC-11, CFC-12, CFC-113, CFC-114, and R-500 centrifugal 
chillers.
    (h) Evaporative cooling. Evaporative cooling is acceptable as an 
alternative technology to cold storage warehouses using CFC-12 or R-
502. See the discussion on evaporative cooling under new CFC-11, CFC-
12, CFC-113, CFC-114, and R-500 centrifugal chillers.
    (i) Desiccant cooling. Desiccant cooling is acceptable as an 
alternative technology to cold storage warehouses using CFC-12 or R-
502. See the discussion on desiccant cooling under new CFC-11, CFC-12, 
CFC-113, CFC-114, and R-500 centrifugal chillers.
    (j) High to low pressure stepdown. High to low pressure stepdown 
process is acceptable as an alternative technology to cold storage 
warehouses using CFC-12 or R-502. This process takes advantage of the 
work potential of pressurized natural gas. As its pressure is reduced 
from transmission pipes to the distribution system, the gas cools. This 
refrigeration is then used to cool a transfer medium such as water, 
which then cools the refrigerated space. It uses very little energy and 
produces no global warming emissions, since the gas is not burned.
    (k) Stirling cycle. Stirling cycle systems are acceptable as an 
alternative technology to cold storage warehouses using CFC-12 or R-
502. See the discussion on the Stirling cycle under new CFC-11, CFC-12, 
CFC-113, CFC-114, and R-500 centrifugal chillers.
    (18) CFC-12, R-500, and R-502 Refrigerated Transport, Retrofit. 
Please note that different temperature regimes may affect the 
applicability of substitutes within this end-use.
    (a) HCFC-22. HCFC-22 is acceptable as a substitute for CFC-12, R-
500, and R-502 in retrofitted refrigerated transport. See the 
discussion on HCFC-22 under new CFC-11, CFC-12, CFC-113, CFC-114, and 
R-500 centrifugal chillers.
    (b) HFC-134a. HFC-134a is acceptable as a substitute for CFC-12, R-
500, and R-502 in retrofitted refrigerated transport. See the 
discussion on HFC-134a under retrofitted CFC-12 centrifugal chillers.
    (c) R-401A and R-401B. R-401A and R-401B, which consist of HCFC-22, 
HFC-152a, and HCFC-124, are acceptable as substitutes for CFC-12, R-
500, and R-502 in retrofitted refrigerated transport. See the 
discussion on these blends under retrofitted CFC-11, CFC-12, and R-502 
industrial process refrigeration.
    (d) R-402A and R-402B. R-402A and R-402B, which consist of HCFC-22, 
propane, and HFC-125, are acceptable as substitutes for CFC-12, R-500, 
and R-502 in retrofitted refrigerated transport. See the discussion on 
these blends under retrofitted CFC-11, CFC-12, and R-502 industrial 
process refrigeration.
    (e) R-404A. R-404A, which consists of HFC-125 and HFC-143a, is 
acceptable as a substitute for CFC-12, R-500, and R-502 in retrofitted 
refrigerated transport. See the discussion on this blend under 
retrofitted CFC-11, CFC-12, and R-502 industrial process refrigeration.
    (f) R-507. R-507, which consists of HFC-125, HFC-143a, and HFC-
134a, is acceptable as a substitute for CFC-12, R-500, and R-502 in 
retrofitted refrigerated transport. See the discussion on this blend 
under retrofitted CFC-11, CFC-12, and R-502 industrial process 
refrigeration.
    (19) CFC-12 and R-502 Refrigerated Transport, New. Please note that 
different temperature regimes may affect the applicability of 
substitutes within this end-use.
    (a) HCFC-22. HCFC-22 is acceptable as a substitute for CFC-12, R-
500, and R-502 in new refrigerated transport. See the discussion on 
HCFC-22 under new CFC-11, CFC-12, CFC-113, CFC-114, and R-500 
centrifugal chillers.
    (b) HFC-134a. HFC-134a is acceptable as a substitute for CFC-12, R-
500, and R-502 in new refrigerated transport. See the discussion on 
HFC-134a under retrofitted CFC-12 centrifugal chillers.
    (c) R-402A and R-402B. R-402A and R-402B, which consist of HCFC-22, 
propane, and HFC-125, are acceptable as substitutes for CFC-12, R-500, 
and R-502 in new refrigerated transport. See the discussion on these 
blends under retrofitted CFC-11, CFC-12, and R-502 industrial process 
refrigeration.
    (d) R-404A. R-404A, which consists of HFC-125 and HFC-143a, is 
acceptable as a substitute for CFC-12, R-500, and R-502 in retrofitted 
new refrigerated transport. See the discussion on this blend under 
retrofitted CFC-11, CFC-12, and R-502 industrial process refrigeration.
    (e) R-507. R-507, which consists of HFC-125, HFC-143a, and HFC-
134a, is acceptable as a substitute for CFC-12, R-500, and R-502 in new 
refrigerated transport. See the discussion on this blend under 
retrofitted CFC-11, CFC-12, and R-502 industrial process refrigeration.
    (f) Stirling cycle. Stirling cycle systems are acceptable as an 
alternative technology to refrigerated transport using CFC-12, R-500, 
or R-502. Stirling cycle systems have been in use for many years in 
this end-use. For further information, see the discussion on the 
Stirling cycle under new CFC-11, CFC-12, CFC-113, CFC-114, and R-500 
centrifugal chillers.
    (g) Nitrogen direct gas expansion. Nitrogen direct gas expansion is 
acceptable as an alternative technology to refrigerated transport using 
CFC-12, R-500, or R-502. Nitrogen is expanded within a refrigerated 
transport unit to absorb heat. The cycle is open; the nitrogen is 
released to the atmosphere after absorbing heat from the container. 
Nitrogen is a common gas that is nontoxic and nonflammable. It has been 
used successfully for many years in this end-use.
    (20) CFC-12 and R-502 Retail Food Refrigeration, Retrofit. Please 
note that different temperature regimes may affect the applicability of 
substitutes within this end-use.
    (a) HCFC-22. HCFC-22 is acceptable as a substitute for CFC-12 and 
R-502 in retrofitted retail food refrigeration. See the discussion on 
HCFC-22 under new CFC-11, CFC-12, CFC-113, CFC-114, and R-500 
centrifugal chillers.
    (b) HFC-134a. HFC-134a is acceptable as a substitute for CFC-12 and 
R-502 in retrofitted retail food refrigeration. See the discussion on 
HFC-134a under retrofitted CFC-12 centrifugal chillers.
    (c) R-401A and R-401B. R-401A and R-401B, which consist of HCFC-22, 
HFC-152a, and HCFC-124, are acceptable as substitutes for CFC-12, R-
500, and R-502 in retrofitted retail food refrigeration. See the 
discussion on these blends under retrofitted CFC-11, CFC-12, and R-502 
industrial process refrigeration.
    (d) R-402A and R-402B. R-402A and R-402B, which consist of HCFC-22, 
propane, and HFC-125, are acceptable as substitutes for CFC-12, R-500, 
and R-502 in retrofitted retail food refrigeration. See the discussion 
on these blends under retrofitted CFC-11, CFC-12, and R-502 industrial 
process refrigeration.
    (e) R-404A. R-404A, which consists of HFC-125 and HFC-143a, is 
acceptable as a substitute for CFC-12, R-500, and R-502 in retrofitted 
retail food refrigeration. See the discussion on this blend under 
retrofitted CFC-11, CFC-12, and R-502 industrial process refrigeration.
    (f) R-507. R-507, which consists of HFC-125, HFC-143a, and HFC-
134a, is acceptable as a substitute for CFC-12, R-500, and R-502 in 
retrofitted retail food refrigeration. See the discussion on this blend 
under retrofitted CFC-11, CFC-12, and R-502 industrial process 
refrigeration.
    (21) CFC-12 and R-502 Retail Food Refrigeration, New. Please note 
that different temperature regimes may affect the applicability of 
substitutes within this end-use.
    (a) HCFC-22. HCFC-22 is acceptable as a substitute for CFC-12 and 
R-502 in new retail food refrigeration. See the discussion on HCFC-22 
under new CFC-11, CFC-12, CFC-113, CFC-114, and R-500 centrifugal 
chillers.
    (b) HFC-134a. HFC-134a is acceptable as a substitute for CFC-12 and 
R-502 in new retail food refrigeration. See the discussion on HFC-134a 
under retrofitted CFC-12 centrifugal chillers.
    (c) HFC-227ea. HFC-227ea is acceptable as a substitute for CFC-12 
in new retail food refrigeration. See the discussion on HFC-227ea under 
new CFC-11, CFC-12, CFC-113, CFC-114, and R-500 centrifugal chillers.
    (d) R-402A and R-402B. R-402A and R-402B, which consist of HCFC-22, 
propane, and HFC-125, are acceptable as substitutes for CFC-12, R-500, 
and R-502 in new retail food refrigeration. See the discussion on these 
blends under retrofitted CFC-11, CFC-12, and R-502 industrial process 
refrigeration.
    (e) R-404A. R-404A, which consists of HFC-125 and HFC-143a, is 
acceptable as a substitute for CFC-12, R-500, and R-502 in new retail 
food refrigeration. See the discussion on this blend under retrofitted 
CFC-11, CFC-12, and R-502 industrial process refrigeration.
    (f) R-507. R-507, which consists of HFC-125, HFC-143a, and HFC-
134a, is acceptable as a substitute for CFC-12, R-500, and R-502 in new 
retail food refrigeration. See the discussion on this blend under 
retrofitted CFC-11, CFC-12, and R-502 industrial process refrigeration.
    (g) Ammonia. Ammonia is acceptable as a substitute for CFC-12 and 
R-502 in new retail food refrigeration. See the discussion on ammonia 
under new CFC-11, CFC-12, CFC-113, CFC-114, and R-500 centrifugal 
chillers.
    (h) Stirling Cycle. Stirling cycle systems are acceptable as an 
alternative technology to retail food refrigeration using CFC-12 or R-
502. See the discussion on the Stirling cycle under new CFC-11, CFC-12, 
CFC-113, CFC-114, and R-500 centrifugal chillers.
    (22) CFC-12 and R-502 Commercial Ice Machines, Retrofit. Please 
note that different temperature regimes may affect the applicability of 
substitutes within this end-use.
    (a) R-401A and R-401B. R-401A and R-401B, which consist of HCFC-22, 
HFC-152a, and HCFC-124, are acceptable as substitutes for CFC-12 and R-
502 in retrofitted commercial ice machines. See the discussion on these 
blends under retrofitted CFC-11, CFC-12 and R-502 industrial process 
refrigeration.
    (b) R-402A and R-402B. R-402A and R-402B, which consist of HCFC-22, 
propane, and HFC-125, are acceptable as substitutes for CFC-12 and R-
502 in retrofitted commercial ice machines. See the discussion on these 
blends under retrofitted CFC-11, CFC-12, and R-502 industrial process 
refrigeration.
    (c) R-404A. R-404A, which consists of HFC-125 and HFC-143a, is 
acceptable as a substitute for CFC-12, R-500, and R-502 in retrofitted 
commercial ice machines. See the discussion on this blend under 
retrofitted CFC-11, CFC-12, and R-502 industrial process refrigeration.
    (d) R-507. R-507, which consists of HFC-125, HFC-143a, and HFC-
134a, is acceptable as a substitute for CFC-12, R-500, and R-502 in 
retrofitted commercial ice machines. See the discussion on this blend 
under retrofitted CFC-11, CFC-12, and R-502 industrial process 
refrigeration.
    (23) CFC-12 and R-502 Commercial Ice Machines, New. Please note 
that different temperature regimes may affect the applicability of 
substitutes within this end-use.
    (a) HCFC-22. HCFC-22 is acceptable as a substitute for CFC-12 and 
R-502 in new commercial ice machines. See the discussion on HCFC-22 
under new CFC-11, CFC-12, CFC-113, CFC-114, and R-500 centrifugal 
chillers.
    (b) HFC-134a. HFC-134a is acceptable as a substitute for CFC-12 and 
R-502 in new commercial ice machines. See the discussion on HFC-134a 
under retrofitted CFC-12 centrifugal chillers.
    (c) R-402A and R-402B. R-402A and R-402B, which consist of HCFC-22, 
propane, and HFC-125, are acceptable as substitutes for CFC-12 and R-
502 in new commercial ice machines. See the discussion on these blends 
under retrofitted CFC-11, CFC-12, and R-502 industrial process 
refrigeration.
    (d) R-404A. R-404A, which consists of HFC-125 and HFC-143a, is 
acceptable as a substitute for CFC-12, R-500, and R-502 in new 
commercial ice machines. See the discussion on this blend under 
retrofitted CFC-11, CFC-12, and R-502 industrial process refrigeration.
    (e) R-507. R-507, which consists of HFC-125, HFC-143a, and HFC-
134a, is acceptable as a substitute for CFC-12, R-500, and R-502 in new 
commercial ice machines. See the discussion on this blend under 
retrofitted CFC-11, CFC-12, and R-502 industrial process refrigeration.
    (f) Ammonia. Ammonia is acceptable as a substitute for CFC-12 and 
R-502 in new commercial ice machines. See the discussion on ammonia 
under new CFC-11, CFC-12, CFC-113, CFC-114, and R-500 centrifugal 
chillers.
    (g) Stirling cycle. Stirling cycle systems are acceptable as an 
alternative technology to commercial ice machines using CFC-12 or R-
502. See the discussion on the Stirling cycle under new CFC-11, CFC-12, 
CFC-113, CFC-114, and R-500 centrifugal chillers.
    (24) CFC-12 Vending Machines, Retrofit. (a) HCFC-22. HCFC-22 is 
acceptable as a substitute for CFC-12 in retrofitted vending machines. 
See the discussion on HCFC-22 under new CFC-11, CFC-12, CFC-113, CFC-
114, and R-500 centrifugal chillers.
    (b) HFC-134a. HFC-134a is acceptable as a substitute for CFC-12 in 
retrofitted vending machines. See the discussion on HFC-134a under 
retrofitted CFC-12 centrifugal chillers.
    (c) R-401A and R-401B. R-401A and R-401B, which consist of HCFC-22, 
HFC-152a, and HCFC-124, are acceptable as substitutes for CFC-12 and R-
502 in retrofitted vending machines. See the discussion on these blends 
under retrofitted CFC-11, CFC-12 and R-502 industrial process 
refrigeration.
    (25) CFC-12 Vending Machines, New. (a) HCFC-22. HCFC-22 is 
acceptable as a substitute for CFC-12 in new vending machines. See the 
discussion on HCFC-22 under new CFC-11, CFC-12, CFC-113, CFC-114, and 
R-500 centrifugal chillers.
    (b) HFC-134a. HFC-134a is acceptable as a substitute for CFC-12 in 
new vending machines. See the discussion on HFC-134a under retrofitted 
CFC-12 centrifugal chillers.
    (c) Stirling cycle. Stirling cycle systems are acceptable as an 
alternative technology to vending machines using CFC-12. See the 
discussion on the Stirling cycle under new CFC-11, CFC-12, CFC-113, 
CFC-114, and R-500 centrifugal chillers.
    (26) CFC-12 Water Coolers, Retrofit. (a) HFC-134a. HFC-134a is 
acceptable as a substitute for CFC-12 in retrofitted water coolers. See 
the discussion on HFC-134a under retrofitted CFC-12 centrifugal 
chillers.
    (b) R-401A and R-401B. R-401A and R-401B, which consist of HCFC-22, 
HFC-152a, and HCFC-124, are acceptable as substitutes for CFC-12 and R-
502 in retrofitted water coolers. See the discussion on these blends 
under retrofitted CFC-11, CFC-12 and R-502 industrial process 
refrigeration.
    (27) CFC-12 Water Coolers, New. (a) HCFC-22. HCFC-22 is acceptable 
as a substitute for CFC-12 in new water coolers. See the discussion on 
HCFC-22 under new CFC-11, CFC-12, CFC-113, CFC-114, and R-500 
centrifugal chillers.
    (b) HFC-134a. HFC-134a is acceptable as a substitute for CFC-12 in 
new water coolers. See the discussion on HFC-134a under retrofitted 
CFC-12 centrifugal chillers.
    (c) Stirling cycle. Stirling cycle systems are acceptable as an 
alternative technology to water coolers using CFC-12. See the 
discussion on the Stirling cycle under new CFC-11, CFC-12, CFC-113, 
CFC-114, and R-500 centrifugal chillers.
    (28) CFC-12 Household Refrigerators, Retrofit. (a) HCFC-22. HCFC-22 
is acceptable as a substitute for CFC-12 and R-502 in retrofitted 
household refrigerators. See the discussion on HCFC-22 under new CFC-
11, CFC-12, CFC-113, CFC-114, and R-500 centrifugal chillers.
    (b) HFC-134a. HFC-134a is acceptable as a substitute for CFC-12 in 
retrofitted household refrigerators. See the discussion on HFC-134a 
under retrofitted CFC-12 centrifugal chillers.
    (c) R-401A and R-401B. R-401A and R-401B, which consist of HCFC-22, 
HFC-152a, and HCFC-124, are acceptable as substitutes for CFC-12 and R-
502 in retrofitted household refrigerators. See the discussion on these 
blends under retrofitted CFC-11, CFC-12 and R-502 industrial process 
refrigeration.
    (d) HCFC Blend Alpha. HCFC Blend Alpha, which consists of HCFC-22 
and HCFC-142b, is acceptable as a substitute for CFC-12 in retrofitted 
household refrigerators. This blend's components contribute 
significantly less to ozone depletion than CFC-12. However, the two 
components have the highest ODPs of all refrigerant alternatives, and 
will be phased out under the accelerated phaseout schedule. In 
addition, the GWPs of the components are high compared to most of the 
other alternatives in this end-use. Although this blend does contain a 
flammable constituent, testing has shown that the blend itself is not 
flammable and that it must experience significant fractionation before 
flammability becomes a risk. Given the small refrigerant charge size 
and the hermetic nature of refrigerators, it is unlikely for a leak 
resulting in such fractionation to occur.
    (29) CFC-12 Household Refrigerators, New. (a) HCFC-22. HCFC-22 is 
acceptable as a substitute for CFC-12 and R-502 in new household 
refrigerators. See the discussion on HCFC-22 under new CFC-11, CFC-12, 
CFC-113, CFC-114, and R-500 centrifugal chillers.
    (b) HFC-134a. HFC-134a is acceptable as a substitute for CFC-12 in 
new household refrigerators. See the discussion on HFC-134a under 
retrofitted CFC-12 centrifugal chillers.
    (c) HFC-152a. HFC-152a is acceptable as a substitute for CFC-12 in 
new household refrigerators. HFC-152a does not contribute to ozone 
depletion. In addition, HFC-152a's GWP and atmospheric lifetime are 
significantly lower than those of most alternatives. Although HFC-152a 
is flammable, a risk assessment demonstrated it could be used safely in 
this end-use.
    (d) HCFC Blend Alpha. HCFC Blend Alpha, which consists of HCFC-22 
and HCFC-142b, is acceptable as a substitute for CFC-12 in new 
household refrigerators. See the discussion on this blend under 
retrofitted CFC-12 household refrigerators.
    (e) R200b blend. R200b blend is acceptable as a substitute for CFC-
12 in new household refrigerators. R200b does not contribute to ozone 
depletion. In addition, the GWPs and atmospheric lifetimes of the 
blend's constituents are less than those of CFC-12. However, the GWP of 
one component is high compared to those of other alternatives for this 
end-use. One component of R200b is flammable, but a risk assessment has 
shown that use of R200b in household refrigerators poses negligible 
additional risk of fire, given the hermetic nature of the equipment, 
the small charge, and the low probability of ignition.
    (f) Stirling cycle. Stirling cycle systems are acceptable as an 
alternative technology to household refrigerators using CFC-12. 
Research and development efforts are underway to produce household 
refrigerators using this cycle. Further information is discussed under 
new CFC-11, CFC-12, CFC-113, CFC-114, and R-500 centrifugal chillers.
    (30) CFC-12 and R-502 Household Freezers, Retrofit. (a) HCFC-22. 
HCFC-22 is acceptable as a substitute for CFC-12 and R-502 in 
retrofitted household freezers. See the discussion on HCFC-22 under new 
CFC-11, CFC-12, CFC-113, CFC-114, and R-500 centrifugal chillers.
    (b) HFC-134a. HFC-134a is acceptable as a substitute for CFC-12 and 
R-502 in retrofitted household freezers. See the discussion on HFC-134a 
under retrofitted CFC-12 centrifugal chillers.
    (c) R-401A and R-401B. R-401A and R-401B, which consist of HCFC-22, 
HFC-152a, and HCFC-124, are acceptable as substitutes for CFC-12 and R-
502 in retrofitted household freezers. See the discussion on these 
blends under retrofitted CFC-11, CFC-12 and R-502 industrial process 
refrigeration.
    (31) CFC-12 and R-502 Household Freezers, New. (a) HCFC-22. HCFC-22 
is acceptable as a substitute for CFC-12 and R-502 in new household 
freezers. See the discussion on HCFC-22 under new CFC-11, CFC-12, CFC-
113, CFC-114, and R-500 centrifugal chillers.
    (b) HFC-134a. HFC-134a is acceptable as a substitute for CFC-12 and 
R-502 in new household freezers. See the discussion on HFC-134a under 
retrofitted CFC-12 centrifugal chillers.
    (c) HFC-152a. HFC-152a is acceptable as a substitute for CFC-12 and 
R-502 in new household refrigerators. HFC-152a does not contribute to 
ozone depletion. In addition, HFC-152a's GWP and atmospheric lifetime 
are significantly lower than those of most alternatives. Although HFC-
152a is flammable, a risk assessment demonstrated it could be used 
safely in this end-use.
    (d) Stirling cycle. Stirling cycle systems are acceptable as an 
alternative technology to household freezers using CFC-12 or R-502. See 
the discussion on the Stirling cycle under new CFC-11, CFC-12, CFC-113, 
CFC-114, and R-500 centrifugal chillers.
    (32) CFC-12 and R-500 Residential Dehumidifiers, Retrofit. Please 
note that different temperature regimes may affect the applicability of 
substitutes within this end-use.
    (a) HCFC-22. HCFC-22 is acceptable as a substitute for CFC-12 in 
retrofitted residential dehumidifiers. See the discussion on HCFC-22 
under new CFC-11, CFC-12, CFC-113, CFC-114, and R-500 centrifugal 
chillers.
    (b) HFC-134a. HFC-134a is acceptable as a substitute for CFC-12 in 
retrofitted residential dehumidifiers. See the discussion on HFC-134a 
under retrofitted CFC-12 centrifugal chillers.
    (c) R-401A and R-401B. R-401A and R-401B, which consist of HCFC-22, 
HFC-152a, and HCFC-124, are acceptable as substitutes for CFC-12 and R-
502 in retrofitted residential dehumidifiers. See the discussion on 
these blends under retrofitted CFC-11, CFC-12 and R-502 industrial 
process refrigeration.
    (33) CFC-12 and R-500 Residential Dehumidifiers, New. Please note 
that different temperature regimes may affect the applicability of 
substitutes within this end-use.
    (a) HCFC-22. HCFC-22 is acceptable as a substitute for CFC-12 in 
new residential dehumidifiers. See the discussion on HCFC-22 under new 
CFC-11, CFC-12, CFC-113, CFC-114, and R-500 centrifugal chillers.
    (b) HFC-134a. HFC-134a is acceptable as a substitute for CFC-12 in 
new residential dehumidifiers. See the discussion on HFC-134a under 
retrofitted CFC-12 centrifugal chillers.
    (34) CFC-12 Motor Vehicle Air Conditioners, Retrofit. (a) HFC-134a. 
HFC-134a is acceptable as a substitute for CFC-12 in retrofitted motor 
vehicle air conditioners. HFC-134a does not contribute to ozone 
depletion. HFC-134a's GWP and atmospheric lifetime are close to those 
of other alternatives which have been determined to be acceptable for 
this end-use. However, HFC-134a's contribution to global warming could 
be significant in leaky end-uses such as MVACS. EPA has determined that 
the use of HFC-134a in these applications is acceptable because 
industry continues to develop technology to limit emissions. In 
addition, the number of available substitutes for use in MVACS is 
currently limited. HFC-134a is not flammable and its toxicity is low. 
While HFC-134a is compatible with most existing refrigeration and air 
conditioning equipment parts, it is not compatible with the mineral 
oils currently used in such systems. An ester-based lubricant should be 
used rather than mineral oils.
    (b) R-401C. R-401C, which consists of HCFC-22, HFC-152a, and HCFC-
124, is acceptable as a substitute for CFC-12 in retrofitted motor 
vehicle air conditioners. HCFC-22 and HCFC-124 contribute to ozone 
depletion. The production of HCFC-22 will be phased out according to 
the accelerated phaseout schedule. The GWP of HCFC-22 is somewhat 
higher than other alternatives for this end-use. Experimental data 
indicate that HCFC-22 may leak through flexible hosing in mobile air 
conditioners at a high rate. In order to preserve the blend's 
composition and to reduce its contribution to global warming, EPA 
strongly recommends using barrier hoses when hose assemblies need to be 
replaced during a retrofit procedure. The GWPs of the other components 
are low. Although this blend does contain one flammable constituent, 
the blend itself is not flammable. In addition, this blend is a near 
azeotrope, meaning it does not change composition during evaporation 
and compression. Finally, although testing demonstrated that the vapor 
and liquid compositions changed during leaks, neither phase became 
flammable.
    (35) CFC-12 Motor Vehicle Air Conditioners, New. (a) HFC-134a. HFC-
134a is acceptable as a substitute for CFC-12 in new motor vehicle air 
conditioners. HFC-134a does not contribute to ozone depletion. HFC-
134a's GWP and atmospheric lifetime are close to those of other 
alternatives which have been determined to be acceptable for this end-
use. However, HFC-134a's contribution to global warming could be 
significant in leaky end-uses such as MVACS. EPA has determined that 
the use of HFC-134a in these applications is acceptable because 
industry continues to develop technology to limit emissions. In 
addition, the number of available substitutes for use in MVACS is 
currently limited. HFC-134a is not flammable and its toxicity is low. 
While HFC-134a is compatible with most existing refrigeration and air 
conditioning equipment parts, it is not compatible with the mineral 
oils currently used in such systems. An ester-based lubricant should be 
used rather than mineral oils.
    (b) R-401C. R-401C, which consists of HCFC-22, HFC-152a, and HCFC-
124, is acceptable as a substitute for CFC-12 in new motor vehicle air 
conditioners. HCFC-22 and HCFC-124 contribute to ozone depletion. The 
production of HCFC-22 will be phased out according to the accelerated 
phaseout schedule. The GWP of HCFC-22 is somewhat higher than other 
alternatives for this end-use. Experimental data indicate that HCFC-22 
may leak through flexible hosing in mobile air conditioners at a high 
rate. In order to preserve the blend's composition and to reduce its 
contribution to global warming, EPA strongly recommends using barrier 
hoses when hose assemblies need to be replaced during a retrofit 
procedure. The GWPs of the other components are low. Although this 
blend does contain one flammable constituent, the blend itself is not 
flammable. In addition, this blend is a near azeotrope, meaning it does 
not change composition during evaporation and compression. Finally, 
although testing demonstrated that the vapor and liquid compositions 
changed during leaks, neither phase became flammable.
    (c) Evaporative cooling. Evaporative cooling is acceptable as an 
alternative technology to motor vehicle air conditioners using CFC-12. 
Evaporative cooling does not contribute to ozone depletion or global 
warming and has the potential to be more energy efficient than current 
refrigeration and air conditioning systems. Evaporative cooling uses no 
chemicals, but relies instead on water evaporation as a means of 
cooling. It is in widespread use in transit buses in the western U.S. 
Recent design improvements have greatly expanded its applicability to 
other regions.
    (d) CO2 cooling. CO2 cooling systems are acceptable as an 
alternative technology to motor vehicle air conditioners using CFC-12. 
CO2 systems for motor vehicle air conditioning are currently under 
development. EPA believes that with continued development, such systems 
could be available within 5 years, and thus they are potentially 
available substitutes. CO2 was historically used in refrigeration 
systems. It is a well-known, nontoxic, nonflammable gas. Its GWP is 
defined as 1, and all other GWPs are indexed to it. Since it is readily 
available as a waste gas, no additional chemical will need to be 
produced. Thus, the use of CO2 as a refrigerant will not 
contribute to global warming.
    (e) Stirling cycle. Stirling cycle systems are acceptable as an 
alternative technology to motor vehicle air conditioners using CFC-12. 
A full scale Stirling cycle motor vehicle air conditioning system has 
been built. Further development is necessary to facilitate practical 
implementation. For further information see the discussion on the 
Stirling cycle under new CFC-11, CFC-12, CFC-113, CFC-114, and R-500 
centrifugal chillers.
    (36) Heat transfer. Although EPA did not originally intend to 
review this end-use, the Agency reconsidered after reexamining the 
potential size of annual sales of substitutes. Thus, EPA is currently 
reviewing submissions for the use of PFCs in heat transfer systems. EPA 
anticipates including its final determination in the first SNAP update.
    b. Unacceptable substitutes. (1) HCFC-22/HCFC-142b/CFC-12 blend. A 
HCFC-22/HCFC-142b/CFC-12 blend is unacceptable as a substitute for CFC-
12 in:
     Commercial comfort air conditioning;
     Industrial process refrigeration systems;
     Ice skating rinks;
     Cold storage warehouses;
     Refrigerated transport;
     Retail food refrigeration;
     Vending machines;
     Water coolers;
     Commercial ice machines;
     Household refrigerators;
     Household freezers;
     Residential dehumidifiers; and
     Motor vehicle air conditioning.
It is also unacceptable as a substitute for HCFC-22 in residential and 
packaged HCFC-22 air conditioning. Other substitutes for CFC-12 exist 
which contain no class I substances. In addition, because this blend 
contains CFC-12 (which has an ODP 20 times that of HCFC-22), it poses a 
greater risk to stratospheric ozone than the use of HCFC-22 alone.

    (2) HCFC-141b. HCFC-141b is unacceptable as a substitute for CFC-11 
in new centrifugal chillers. This substance has a high ozone depletion 
potential. At least one other substitute exists that presents lower 
overall risk.
    (3) Hydrocarbon Blend A. Hydrocarbon Blend A is unacceptable as a 
substitute for CFC-12 in:
     Commercial comfort air conditioning;
     Ice skating rinks;
     Cold storage warehouses;
     Refrigerated transport;
     Retail food refrigeration;
     Vending machines;
     Water coolers;
     Commercial ice machines;
     Household refrigerators;
     Household freezers;
     Residential dehumidifiers; and
     Motor vehicle air conditioning.

Flammability is the primary concern. EPA believes the use of this 
substitute in very leaky uses like motor vehicle air conditioning may 
pose a high risk of fire. EPA requires a risk assessment be conducted 
to demonstrate this blend may be safely used in any CFC-12 end-uses.

E. Foams

1. Overview
    Foam plastics accounted for approximately 18 percent of all U.S. 
consumption of ozone-depleting chemicals on an ODP-weighted basis in 
1990. Five class I chemicals--CFC-11, CFC-12, CFC-113, CFC-114, and 
methyl chloroform--are used as blowing agents in foam production. These 
five compounds are used in a wide variety of applications.
    Foam plastics manufactured with CFCs fall into four major 
categories: polyurethane, phenolic, extruded polystyrene, and 
polyolefin. Historically, CFC-11 and CFC-113, which remain in a liquid 
state at room temperature, have been used as blowing agents in 
polyurethane and phenolic foams. CFC-12 and CFC-114, which have lower 
boiling points than CFC-11 and CFC-113 and are gases at room 
temperature, are used in polyolefin and polystyrene foams. In addition 
to CFCs, methyl chloroform is used as a blowing agent in some flexible 
polyurethane foams.
    Due to the wide variety of applications that foams represent, the 
Agency has divided its analysis of foam plastics into the following ten 
distinct end-use sectors:
     Rigid polyurethane and polyisocyanurate laminated 
boardstock;
     Rigid polyurethane appliance;
     Rigid polyurethane spray and commercial refrigeration, and 
sandwich panels;
     Rigid polyurethane slabstock and other foams;
     Polystyrene extruded insulation boardstock and billet;
     Phenolic insulation board;
     Flexible polyurethane;
     Polyurethane integral skin;
     Polystyrene extruded sheet; and
     Polyolefin.

The SNAP determinations in this final rule distinguish between these 
ten end-use sectors because the mix of potential alternatives to Class 
I blowing agents, and potential emission and exposure profiles, differ 
for each. Appendix B at the end of this preamble lists in tabular form 
the Agency's determinations on substitutes in the foam sector. These 
determinations are based on the risk screens described in the 
background document entitled, ``Risk Screen on the Use of Substitutes 
for Class I Ozone-Depleting Substances: Foam-Blowing Agents'' and 
discussed in supporting memoranda. The table also includes as 
``pending'' substitutes for which the Agency has not yet issued 
determinations. Vendors or users of substitutes not described in 
Appendix B should submit information on these uses, so that the Agency 
can review them and issue a SNAP determination.
2. Alternative Blowing Agents
    Under the SNAP program, the evaluation of alternatives for CFCs 
depends on a number of factors. These include toxicity, flammability, 
environmental concerns, and, in the case of insulating foams, the 
insulating efficiency of alternatives.
    Toxicity concerns associated with the use of alternative chemicals 
relate to the exposure of workers and consumers to the chemicals or to 
the decomposition products these chemicals may form slowly over time in 
foam products. The likely degree of human health risk associated with 
an alternative depends not only on the nature of a substitute chemical 
but also on the chemical composition, manufacturing process, and 
product applications that characterize the foam end-use sector into 
which that substitute will be introduced.
    Flammability concerns, like toxicity concerns, have to do with 
possible danger to workers and consumers. Such danger includes possible 
ignition of materials during manufacturing, storage, or transportation, 
and the fire hazard posed by the final product. Alternatives to CFCs 
have varying degrees of flammability. As in the case of toxicity, 
however, the composition, production processes, and end-use 
applications that characterize each foam type dictate the potential 
risks associated with flammability.
    In addition to posing toxicity and flammability risks, alternatives 
may have deleterious effects on the environment. Such effects may 
include stratospheric ozone depletion, global warming, and contribution 
to smog or tropospheric ozone formation. HCFCs have, in varying 
degrees, the potential to deplete ozone; both HCFCs and HFCs have 
global warming potential; and various potential alternatives, 
especially hydrocarbons, are volatile organic compounds (VOCs) that 
contribute to the formation of ozone, or smog, in the lower atmosphere.
    The use of alternative blowing agents can have an adverse affect on 
the insulating capacity of foam products due to higher thermal 
conductivity of the substitute. The overall risk screen for substitutes 
under SNAP takes into account indirect contributions to global warming.
    a. Hydrochlorofluorocarbons. Because of their relatively low 
thermal conductivity, hydrochlorofluorocarbons (HCFCs) are considered 
necessary transitional alternatives to CFC blowing agents in thermal 
insulating foams. Two HCFCs, HCFC-123 and HCFC-141b, can serve as 
replacements for CFC-11 in many end-use applications. Because of 
limited availability of HCFC-123, HCFC141b represents the more likely 
short-term possibility for replacing CFC-11 in several of the 
insulating foam sectors. As a result, the Agency has determined that 
HCFC-141b, despite its relatively high ODP of 0.11, is an acceptable 
transitional alternative to CFC-11 for several foam end-uses. Other 
HCFC alternatives are HCFC-22 and HCFC-142b. Although these compounds 
are commercially available and have lower ODPs than HCFC-141b, each has 
a boiling point significantly lower than CFC-11. As a result, 
conversion to HCFC-22 or HCFC-142b from CFC-11 generally entails 
significant investment in technical and process modification. HCFC-22 
and HCFC-142b do, however, present viable, near-term alternatives to 
CFC-12 in extruded polystyrene boardstock and billet foams.
    Production of HCFCs is controlled by the Clean Air Act and under 
section 605 is scheduled for phase-out by 2030. However, due to new 
data concerning greater risks of ozone depletion, EPA promulgated an 
accelerated phase-out schedule (58 FR 65018, 12/10/93). Given the 
technical and safety concerns associated with many non-HCFC 
alternatives, however, disallowing the interim use of HCFCs in 
insulating foam end-uses, including the use of HCFC-141b and HCFC-22, 
would have adverse effects on human health and the environment.
    Effective January 1, 1994, plastic foam products which contain or 
are manufactured with HCFCs are banned from sale or distribution into 
interstate commerce under section 610 of the CAA. Under section 610, 
thermal insulation foam products are, however, exempted from this ban. 
Foam insulation product means a product containing or consisting of the 
following types of foam: (1) Closed cell rigid polyurethane and 
polyisocyanurate foam; (2) closed cell rigid polystyrene boardstock 
foam; (3) closed cell rigid phenolic foam; and (4) closed cell rigid 
polyethylene foam when such foam is suitable in shape, thickness and 
design to be used as a product that provides thermal insulation around 
pipes used in heating, plumbing, refrigeration, or industrial process 
systems. Any use of acceptable HCFC substitutes listed under SNAP must 
comply with restrictions under the section 610 Non-Essential Ban.
    b. Hydrofluorocarbons. Hydrofluorocarbons (HFCs) represent a zero-
ODP alternative to CFC blowing agents in many sectors. From the 
standpoint of stratospheric ozone depletion alone, HFCs are preferable 
to HCFCs as alternative blowing agents. The relatively higher thermal 
conductivity of HFCs, however, is likely to hamper the insulating 
capabilities of HFC-blown foams unless significant changes in the foam 
formulation or process modifications are adopted.
    The HFCs hold more promise as near- or intermediate-term 
alternatives for CFC-12 in extruded polystyrene foams, particularly in 
extruded polystyrene sheet foams. However, issues such as flammability, 
global warming potential, cost, and the solubility of HFCs in 
polystyrene polymer remain of concern for the industry.
    Conversion to HFC-152a may entail significant capital investment in 
order to ensure worker safety against fire hazards. Moreover, in the 
case of insulating foams, manufacturers will need to guarantee that 
foams blown with HFC-152a meet the building code requirements that 
apply to the flammability of building materials.
    c. Saturated light hydrocarbons C3-C6. Saturated light hydrocarbons 
C3-C6, most of which are readily available as bulk chemicals, have the 
advantage of being low cost. These chemicals are also halogen free, 
thus they are both zero-ODP and zero-GWP. Saturated light hydrocarbons 
C3-C6 are currently being used in extruded polystyrene, polyurethane, 
and polyolefin non-insulating foam end-uses.
    Hydrocarbons have significantly higher thermal conductivities than 
do any of the CFCs. Conversion to hydrocarbons could thus lead to the 
production of foams with lower insulating efficiency and, possibly, to 
a reduction in the energy efficiency of insulated items. Formulation 
changes and process modifications have been introduced to increase the 
thermal insulating efficiency of hydrocarbon-blown foams. Cyclopentane 
is a leading alternative blowing-agent candidate for insulating foams 
because of its high boiling point and other physical properties similar 
to CFC-11.
    Conversion to hydrocarbons may entail significant capital 
investment in order to ensure worker safety against fire hazards. 
Moreover, in the case of insulating foams, manufacturers will need to 
guarantee that foams blown with hydrocarbons meet the building code 
requirements that apply to the flammability of building materials.
    Hydrocarbons are VOCs and may contribute to the formation of 
ground-level ozone, or smog, in the lower atmosphere. Any use of 
hydrocarbon blowing agents is subject to the federal, state and local 
restrictions that apply to VOCs, and conversion to hydrocarbons could 
therefore involve further capital investment to comply with these 
restrictions.
    d. Other blowing agents. Two other blowing agents, methylene 
chloride and acetone, have been identified as substitutes for CFC-11 in 
flexible polyurethane foams. Methylene chloride, which already serves 
as an auxiliary blowing agent for most grades of flexible polyurethane 
foam, is commercially available, and is relatively low cost. Because of 
its toxicity, it poses a potential risk to workers and residents in 
nearby communities. However, the Agency's analysis of use of this 
chemical as a blowing agent indicates risks can be controlled by 
adhering to existing regulatory standards. Methylene chloride use is 
further restricted in several states and localities, and is listed as a 
hazardous waste under RCRA and, thus, users must comply with applicable 
RCRA waste disposal requirements. The Agency is also in the process of 
addressing residual risks to the general population through emissions 
to air under title III section 112 of the CAA. The Agency expects to 
issue maximum achievable control technology (MACT) rules governing 
methylene chloride use in the foams sector by 1997. Methylene chloride 
is not a VOC, and thus, does not contribute to the formation of 
tropospheric ozone.
    When used as a blowing agent, acetone is capable of yielding all 
grades of flexible polyurethane foam. It can serve as an alternative 
blowing agent where methylene chloride use is infeasible. Acetone is a 
VOC, and must be controlled as such. In addition, plant modifications 
may be necessary to accommodate acetone's flammability.
    Carbon dioxide (CO2) is an acceptable substitute for all foam 
end-uses. Any CO2 blend is acceptable as long as the other 
constituents of the blend are acceptable under SNAP. CO2 does 
contribute to global warming. In addition, CO2 has the highest 
thermal conductivity of the SNAP-listed chemical alternatives, and will 
lower the thermal capacity of insulating foams unless significant foam 
formulation or process modifications are adopted.
    e. Alternative manufacturing processes. The AB Technology is a 
commercially available and technically feasible process for replacing 
CFCs or other auxiliary blowing agents for most conventional flexible 
foam grades. AB Technology employs formic acid in conjunction with 
water as the blowing agent for producing flexible polyurethane foam. 
The process is based on using the reaction of formic acid with an 
isocyanate to produce carbon monoxide in addition to the water/
isocyanate reaction normally used to generate carbon dioxide gas for 
the expansion of foam. OSHA has set a permissible exposure level (PEL) 
for carbon monoxide of 35 ppm of a time weighted average with a ceiling 
not to exceed 200 ppm.
3. Comment Response
    The majority of public comments received on the foams sector in the 
proposed rule focused on three issues: The viability or availability of 
substitutes; the need for listing of alternative technologies or 
manufacturing processes, and the need for notification under SNAP for 
use of blends or mixture of blowing agents.
    a. Viability or availability of listed substitutes. Several 
commenters suggested that the NPRM did not sufficiently address the 
performance and practicality of use of acceptable substitutes. 
Commenters were especially concerned about alternative blowing agents 
used in thermal insulation applications, and whether acceptable 
substitutes represented existing or experimental use. For example, 
several commenters stated that if the alternative blowing agent will 
affect the insulating capacity of a foam it should be part of the SNAP 
analysis, and the outcome should be discussed as part of the listing 
decision. Another commenter contended that for many of the end-uses, 
not all of the listed HCFC substitutes are technically viable, but each 
should be listed anyway to maximize the breadth of options. This 
commenter also reported that uses of some of the HFCs and hydrocarbons 
are still in development and, therefore do not represent actual 
alternatives.
    EPA recognizes that the use of alternative blowing agents in 
insulation products can affect the energy efficiency of the final 
product. In this final rule, the overall risk characterization for 
substitutes under SNAP specifically takes into account indirect 
contributions to global warming. However, EPA also recognizes that the 
changes in foam formulation or product thickness can result in products 
with insulation efficiency equivalent to CFC-blown foam. Therefore, EPA 
believes it is appropriate to consider and comment on the difference in 
thermal conductivity of alternative blowing agents as compared to the 
CFC being replaced, and compared to other acceptable substitutes. 
However, it would be inappropriate to comment on the expected 
performance of a foam product using one blowing agent versus another, 
given that formulations are highly proprietary and can vary 
significantly from manufacturer-to-manufacturer. Further, EPA believes 
it is preferable to identify a broad range of alternatives, and let the 
market determine which alternative produce the best performing 
insulation products.
    Several commenters requested clarification on the definition of 
hydrocarbons. One commenter suggested a more specific definition for 
hydrocarbons of ``saturated light hydrocarbons, C3-C6.''
    The Agency agrees with these commenters. Since the broad use of 
hydrocarbon in the NPRM may be viewed as potentially precluding other 
viable substitutes, and because the alternate definition suggested by 
the commenter encompasses those specifically listed hydrocarbons as 
well as more recently identified materials being tested in foams such 
as cyclopentane, this definition has been adopted by EPA in the final 
rule.
    b. Alternative technologies or manufacturing processes. Several 
commenters argued that EPA should not issue its seal of approval for 
substitutes that are alternative products, unless and until the Agency 
evaluates them with the same degree of detail that HCFCs were 
evaluated, particularly with regard to toxicity, technical feasibility, 
flammability, and energy impacts.
    The Agency believes that alternative products and alternative 
manufacturing processes will play an important role in the transition 
from ODSs in many sectors. In light of public comment, the Agency 
recognized that the SNAP data requirements and the SNAP evaluation 
process proposed in the NPRM were biased toward chemical substitutes. 
The Agency also agrees with public comment that review of non-chemical 
alternatives must be supported by appropriate analysis. In this final 
rule, the Agency has made revisions to the SNAP Information Notice to 
better account for the different information requirements associated 
with non-chemical alternatives and increased the discussion of the 
Agency's analysis of non-chemical alternatives in the background 
documents.
    c. Use of blends. Several commenters argued that EPA's proposed 
requirement for notification and review of chemical alternative blends 
was unnecessary and burdensome for the foams sector. The comments 
proposed that any combination or blend of individually acceptable 
blowing agents should be permitted without additional notification to 
SNAP. One commenter suggested EPA clarify that the term ``blend'' when 
used in the SNAP rule does not refer to individual, separately-
``acceptable'' substitutes, two or more of which may be used in the 
same manufacturing process.
    In light of these public comments, the Agency re-examined the 
analytical basis for reviewing blends, to determine whether the 
potential human health and environmental risks would be different for 
blends or mixtures of chemicals than those of individual chemicals that 
were determined to be acceptable for use in the foams manufacturing 
process under SNAP. In particular, the Agency was concerned with 
potential synergistic effects of the chemical blends, and that the 
decomposition product profile would differ from that of a single 
chemical.
    The Agency has determined that because of the potential for 
formation and emission of decomposition products in rigid closed cell 
foams, notification and review under SNAP is required for blends of 
chemical alternatives in foam end-uses that encompass residential 
products where chronic consumer exposure could occur. These end-uses 
are: Polyurethane rigid laminated boardstock, polystyrene extruded 
boardstock and billet foams, phenolic foams, and polyolefin foams. This 
analysis is detailed in the SNAP technical background document, ``Risk 
Screen on the Use of Substitutes for Class I Ozone-Depleting 
Substances: Foam Blowing Agents.'' In contrast, for open-celled foams 
where the blowing agent is fully emitted from the foams within hours or 
days of manufacture, the formation of decomposition products is not a 
factor in decisionmaking. For this final rule, use of blends or 
mixtures of substitutes listed as acceptable under the SNAP program in 
open-celled or closed-cell or semi-rigid end-uses not designated above 
does not require notification.
4. Listing Decisions
    a. Acceptable substitutes. (1) Rigid polyurethane and 
polyisocyanurate laminated boardstock. (a) HCFC-123. HCFC-123 is 
acceptable as an alternative blowing agent to CFC-11 in rigid 
polyurethane and polyisocyanurate laminated boardstock foam. From the 
standpoint of technical feasibility, HCFC-123 represents a viable 
alternative to CFC-11 as a potential blowing agent. More specifically, 
the physical properties, thermal conductivity, and aging of foams blown 
with HCFC-123 are similar to those blown with CFC-11. As a result, 
HCFC-123, which has an ozone depleting potential significantly lower 
than that of CFC-11, has the potential to replace CFC-11 in many 
applications. Nonetheless, availability of HCFC-123 is limited at 
present. The acceptable exposure limit (AEL) for HCFC-123 is 30 ppm.
    (b) HCFC-141b. HCFC-141b is acceptable as an alternative to CFC-11 
in rigid polyurethane and polyisocyanurate laminated boardstock foam. 
Although its ODP of 0.11 is relatively high, HCFC-141b offers almost 
immediate transition out of CFC uses in this sector. Not only does 
HCFC-141b offer a technically feasible alternative to CFC-11, but it is 
currently available in quantities sufficient to meet industrial demand. 
HCFC-141b is scheduled for phase-out from production on January 1, 2003 
under the accelerated phase out rule (58 FR 65018) under section 606 of 
the CAA.
    (c) HCFC-22. HCFC-22 is acceptable as a substitute for CFC-11 in 
rigid polyurethane and polyisocyanurate laminated boardstock foam. 
HCFC-22 offers an alternative with significantly less potential to 
deplete ozone than CFC-11. Plant or process modifications may be 
required to allow use of blowing agents like HCFC-142b that have 
significantly lower boiling points than CFC-11. HCFC-22 is subject to 
the accelerated phase out rule (58 FR 65018) under section 606 of the 
CAA.
    (d) HCFC-142b. HCFC-142b is acceptable as a substitute for CFC-11 
in rigid polyurethane and polyisocyanurate laminated boardstock foam. 
HCFC-142b offers an alternative with significantly lower potential to 
deplete ozone than CFC-11. Plant or process modifications may be 
required to allow use of blowing agents like HCFC-142b that have 
significantly lower boiling points than CFC-11. HCFC-142b is subject to 
the accelerated phase out rule (58 FR 65018).
    (e) HCFC-22/HCFC-141b. The HCFC-22/HCFC-142b blend is acceptable as 
a substitute for CFC-11 in rigid polyurethane and polyisocyanurate 
laminated boardstock foam. HCFC-22 has an occupational exposure limit 
(OEL) of 250 ppm, whereas HCFC-141b has an OEL of 1000 ppm.
    (f) HCFC-22/HCFC-142b. HCFC-22/HCFC-142b blends are acceptable as a 
substitute for CFC-11 in rigid polyurethane and polyisocyanurate 
laminated boardstock foam. This blend offers an alternative with 
significantly less potential to deplete ozone than CFC-11. Plant or 
process modifications may be required to allow use of blowing agents 
like HCFC-22 and HCFC-142b that have low boiling points than CFC-11.
    (g) HCFC-141b/HCFC-123. The HCFC-141b/HCFC-123 blend is acceptable 
as an alternative to CFC-11 in rigid polyurethane and polyisocyanurate 
laminated boardstock foam. As noted above, HCFC-141b, because of its 
commercial availability offers an immediate opportunity to replace CFC-
11. HCFC-123 has limited availability. However, because the ODP of 
HCFC-123 is lower than that of HCFC-141b, the blend has a lower ODP 
than HCFC-141b alone.
    (h) HCFC-22/HCFC-141b. The HCFC-22/HCFC-142b blend is acceptable as 
a substitute for CFC-11 in rigid polyurethane and polyisocyanurate 
laminated boardstock foam. Because both components of the blend are 
commercially available in large enough quantities to meet industry 
demand, it offers a near-term vehicle for replacing CFC-11 in laminated 
boardstock foams. HCFC-22 has an occupational exposure limit (OEL) of 
250 ppm, whereas HCFC-141b has an OEL of 1000 ppm.
    (i) HFC-134a. HFC-134a is acceptable as a substitute for CFC-11 in 
rigid polyurethane and polyisocyanurate laminated boardstock foam. HFC-
134a offers the potential for a non-ozonedepleting alternative to CFC-
11 blowing agents in rigid polyurethane and polyisocyanurate laminated 
boardstock foams. Plant modifications may be necessary to accommodate 
the use of HFC-134a because its boiling point is lower than that of 
CFC-11. In addition, the cost of HFC-134a is relatively high, and the 
use of HFC-134a may cause significant increases in thermal 
conductivity, with a concomitant loss in the insulating capacity of 
foams blown with HFC-134a. HFC-134a also has a relatively high global 
warming potential compared with other available alternatives.
    (j) HFC-152a. HFC-152a is acceptable as a substitute for CFC-11 in 
rigid polyurethane and polyisocyanurate laminated boardstock foam. HFC-
152a offers the potential for a non-ozonedepleting alternative to CFC-
11 blowing agents in rigid polyurethane and polyisocyanurate laminated 
boardstock. Use of HFC-152a as a blowing agent in rigid polyurethane 
and polyisocyanurate laminated boardstock foam has raised concern over 
the potential for significant increases in thermal conductivity. 
Process changes may be necessary to accommodate the use of HFC-152a, 
and plant modifications may be necessary to manage its flammability. 
Also, foams blown with HFC-152a will need to conform with building code 
requirements that relate to flammable materials.
    (k) Saturated light hydrocarbons C3-C6. Saturated Light 
Hydrocarbons C3-C6 are acceptable as substitutes for CFC-11 in rigid 
polyurethane and polyisocyanurate laminated boardstock foam. These 
hydrocarbons have zero-ODP and zero-GWP. Plant or process modifications 
may be necessary to accommodate the use of saturated light hydrocarbons 
C3-C6. These materials also pose flammability concerns which may 
require capital investment to manage. Foams blown with hydrocarbons 
will need to conform with building code requirements that relate to 
flammable materials. Finally, the thermal conductivity is greater than 
CFC-11 blowing agents which may effect the thermal capacity of final 
products. Saturated light hydrocarbons are VOCs and must be controlled 
as such under Title I of the CAA.
    (l) 2-Chloropropane. 2-Chloropropane is acceptable as a substitute 
for CFC-11 in rigid polyurethane and polyisocyanurate laminated 
boardstock foam. At present, because 2-chloropropane is a proprietary 
process, its commercial availability may be limited. Moreover, 2-
chloropropane is flammable and its use may require extensive 
modification of existing equipment.
    (m) Carbon dioxide. Carbon dioxide is acceptable as a substitute 
for CFC-11 in rigid polyurethane and polyisocyanurate laminated 
boardstock foam.
    (2) Polyurethane, rigid appliance foam. (a) HCFC-123. HCFC-123 (or 
blends thereof), for the reasons described in the section on rigid 
polyurethane and polyisocyanurate laminated boardstock, is acceptable 
as an alternative to CFC-11 in rigid polyurethane appliance foam.
    (b) HCFC-141b. HCFC-141b (or blends thereof), for the reasons 
described in the section on rigid polyurethane and polyisocyanurate 
laminated boardstock, is acceptable as an alternative to CFC-11 in 
rigid polyurethane appliance foam. The Appliance Research Consortium 
(ARC), a subsidiary of the Association of Home Appliance Manufacturers 
(AHAM), convened an independent panel of toxicologists to evaluate the 
risk of potential exposure from foods stored in refrigerators 
manufactured with HCFC-141b as the blowing agent in the insulating 
foam. The panel evaluated the same toxicological data available to EPA, 
and concluded that the use of HCFC-141b in this intended application is 
generally recognized as safe (GRAS) per section 201(s) of the Food, 
Drug, and Cosmetic Act, 21 USC section 321(s).\1\
---------------------------------------------------------------------------

    \1\Peter de la Cruz, Evaluation of HCFC-141b Potential Dietary 
Exposure, Keller and Heckman, January, 1994.
---------------------------------------------------------------------------

    (c) HCFC-22. HCFC-22 (or blends thereof), for reasons described in 
the section on rigid polyurethane and polyisocyanurate laminated 
boardstock, is acceptable as a substitute for CFC-11 in rigid 
polyurethane appliance foam.
    (d) HCFC-142b. HCFC-142b (or blends thereof) is acceptable as a 
substitute for CFC-11 in rigid polyurethane appliance foam. HCFC-142b 
offers an alternative with significantly less potential to deplete 
stratospheric ozone than CFC-11. Nevertheless, certain technical 
problems persist. Namely, plant modifications may be required to allow 
the use of blowing agents like HCFC-142b that have low boiling points.
    (e) HFC-134a. HFC-134a (or blends thereof), for the reasons 
described in the section on rigid polyurethane and polyisocyanurate 
laminated boardstock, is acceptable as an alternative to CFC-11 in 
rigid polyurethane appliance foam.
    (f) HFC-152a. HFC-152a (or blends thereof), for the reasons 
described in the section on rigid polyurethane and polyisocyanurate 
laminated boardstock, is acceptable as an alternative to CFC-11 in 
rigid polyurethane appliance foam.
    (g) Saturated light hydrocarbons C3-C6. Saturated light 
hydrocarbons C3-C6 (or blends thereof) are acceptable as substitutes 
for CFC-11 in rigid polyurethane appliance foam. Saturated light 
hydrocarbons C3-C6 offer the potential of a non-ozone-depleting 
alternative to the use of CFC-11 blowing agents in rigid polyurethane 
appliance foam. Plant modifications may be necessary to accommodate the 
flammability of Saturated Light Hydrocarbons C3-C6. In addition, the 
potential for significant increases in thermal conductivity may reduce 
insulating capacity. Foams blown with saturated light hydrocarbons C3-
C6 must conform with building code requirements that relate to 
flammable materials. Saturated light hydrocarbons C3-C6 are VOCs and 
will be subject to control as such under Title I of the CAA.
    (h) Carbon dioxide. Carbon dioxide (or blends thereof) is 
acceptable as a substitute for CFC-11 in rigid polyurethane appliance 
foam.
    (3) Rigid polyurethane commercial refrigeration foam, spray foam, 
and sandwich panels. (a) HCFC-123. HCFC-123, for the reasons described 
in the section on rigid polyurethane and polyisocyanurate laminated 
boardstock, is acceptable as an alternative to CFC-11 and CFC-12 in 
rigid polyurethane commercial refrigeration foam, spray foam, and 
sandwich panels.
    (b) HCFC-141b. HCFC-141b (or blends thereof), for the reasons 
described in the section on rigid polyurethane and polyisocyanurate 
laminated boardstock, is acceptable as an alternative to CFC-11 and 
CFC-12 in rigid polyurethane commercial refrigeration foam, spray foam, 
and sandwich panels.
    (c) HCFC-22. HCFC-22 (or blends thereof) is acceptable as a 
substitute for CFC-11 and CFC-12 in rigid polyurethane commercial 
refrigeration foam, spray foam, and sandwich panels. HCFC-22 offers an 
alternative with significantly less potential to deplete ozone than 
either CFC-11 or CFC-12. However, significant process changes could be 
necessary to accommodate the low boiling point of HCFC-22.
    (d) HCFC-142b. HCFC-142b (or blends thereof), for the reasons 
described in the section on rigid polyurethane and polyisocyanurate 
laminated boardstock, is acceptable as an alternative to CFC-11 and 
CFC-12 in rigid polyurethane commercial refrigeration foam, spray foam, 
and sandwich panels.
    (e) HFC-134a. HFC-134a (or blends thereof), for the reasons 
described in the section on rigid polyurethane and polyisocyanurate 
laminated boardstock, is acceptable as an alternative to CFC-11 and 
CFC-12 in rigid polyurethane commercial refrigeration foam, spray foam, 
and sandwich panels.
    (f) HFC-152a. HFC-152a (or blends thereof), for the reasons 
described in the section on rigid polyurethane and polyisocyanurate 
laminated boardstock, is acceptable as an alternative to CFC-11 and 
CFC-12 in rigid polyurethane commercial refrigeration foam, spray foam, 
and sandwich panels.
    (g) Saturated light hydrocarbons C3-C6. Saturated light 
hydrocarbons C3-C6 (or blends thereof), for the reasons described in 
the section on rigid polyurethane and polyisocyanurate laminated 
boardstock, are acceptable alternative blowing agents for CFC-11 and 
CFC-12 in rigid polyurethane commercial refrigeration foam, spray foam, 
and sandwich panels.
    (h) Carbon dioxide. Carbon dioxide (or blends thereof) is an 
acceptable alternative blowing agent for CFC-11 in rigid polyurethane 
commercial refrigeration foam, spray foam, and sandwich panels.
    (4) Polyurethane slabstock and other foams. (a) HCFC-123. HCFC-123 
(or blends thereof) is acceptable as an alternative to CFC-11 in rigid 
polyurethane slabstock and other foams. From the standpoint of 
technical feasibility, HCFC-123 represents a viable alternative to CFC-
11 as a potential blowing agent. More specifically, the physical 
properties, thermal conductivity, and aging of foams blown with HCFC-
123 are similar to those blown with CFC-11. As a result, HCFC-123, 
which has an ozone depleting potential significantly lower than that of 
CFC-11, has the potential to replace CFC-11 in many applications. 
Nonetheless, commercial availability of HCFC-123 is limited at present.
    (b) HCFC-141b. HCFC-141b (or blends thereof) is acceptable as an 
alternative to CFC-11 in rigid polyurethane slabstock and other foams. 
Although its ODP of 0.11 is relatively high, HCFC-141b offers almost 
immediate transition out of CFCs in this sector. Not only does HCFC-
141b offer a technically feasible alternative to CFC-11, it is 
currently available in sufficient quantities to meet industry demand. 
The use of HCFCs in polyurethane slabstock and other foams is subject 
to further restriction under section 610 of the CAA, which banned the 
use of class II substances in noninsulating foams after January 1, 
1994.
    (c) HCFC-22. HCFC-22 (or blends thereof) is acceptable as a 
substitute for CFC-11 in rigid polyurethane slabstock and other foams. 
HCFC-22 offers an alternative with significantly less potential to 
deplete ozone than either CFC-11 or CFC-12. However, significant 
process changes may be necessary to accommodate the low boiling point 
of HCFC-22.
    (d) HFC-134a. HFC-134a (or blends thereof), for the reasons 
described in the section on rigid polyurethane and polyisocyanurate 
laminated boardstock, is acceptable as an alternative to CFC-11 and 
CFC-12 in rigid polyurethane slabstock and other foams.
    (e) HFC-152a. HFC-152a (or blends thereof), for the reasons 
described in the section on rigid polyurethane and polyisocyanurate 
laminated boardstock, is acceptable as an alternative to CFC-11 and 
CFC-12 in rigid polyurethane slabstock and other foams.
    (f) Saturated light hydrocarbons C3-C6. Saturated light 
hydrocarbons C3-C6 (or blends thereof), for the reasons described in 
the section on rigid polyurethane and polyisocyanurate laminated 
boardstock, are acceptable alternative blowing agents for CFC-11 and 
CFC-12 in rigid polyurethane slabstock and other foams.
    (g) Carbon Dioxide. Carbon dioxide (or blends thereof) is an 
acceptable alternative blowing agent for CFC-11 and CFC-12 in rigid 
polyurethane slabstock and other foams.
    (5) Extruded Polystyrene Boardstock and Billet. (a) HCFC-22. HCFC-
22 is an acceptable alternative blowing agent for CFC-12 in extruded 
polystyrene boardstock and billet foam. HCFC-22 offers an alternative 
with significantly less potential to deplete ozone than CFC-12. HCFC-
22, however, has a relatively high permeation rate out of polystyrene, 
thus affecting insulation performance. Users must be in compliance with 
the section 610 Nonessential Products Containing Class II Substances 
Ban.
    (b) HCFC-142b. HCFC-142b is an acceptable alternative blowing agent 
for CFC-12 in extruded polystyrene boardstock foam. HCFC-142b offers an 
alternative with significantly less potential to deplete ozone than 
either CFC-11 or CFC-12. Users must be in compliance with the section 
610 Non-essential Products Containing Class II Substances Ban.
    (c) HCFC-22/HCFC-142b. The HCFC-22/HCFC-142b blend is acceptable as 
a substitute for CFC-12 in extruded polystyrene boardstock and billet 
foam. The blend offers an alternative with significantly less potential 
to deplete ozone than CFC-12. Users must be in compliance with section 
610 Nonessential Products Containing Class II Substances.
    (d) HFC-134a. HFC-134a is acceptable as a substitute for CFC-12 in 
extruded polystyrene boardstock and billet foam. HFC-134a offers the 
potential for a non-ozone-depleting alternative to CFC-12 blowing 
agents in extruded polystyrene boardstock and billet foam. HFC-134a, 
because of its low flammability and encouraging performance in 
toxicological testing, exhibits definite advantages from the 
standpoints of environmental risk and worker and consumer safety. 
However, HFC-134a has relatively high thermal conductivity, is costly, 
and has the potential to contribute to global warming. In addition, the 
compound has poor solubility in polystyrene polymer, which could limit 
its usefulness as an alternative blowing agent from a technical 
standpoint. HFC-134a also has a relatively high global warming 
potential compared to other available alternatives.
    (e) HFC-152a. HFC-152a is acceptable as a substitute for CFC-12 in 
extruded polystyrene boardstock and billet foam. HFC-152a offers the 
potential for a non-ozone-depleting alternative to CFC-12 blowing 
agents in extruded polystyrene boardstock. However, the high 
flammability of HFC-152a when combined with its properties of high 
thermal conductivity, low solubility in polystyrene polymer, and high 
permeability through polystyrene limit the extent to which HFC-152a is 
likely to replace CFC-12. Plant modifications may be needed to 
accommodate the flammability of HFC-152a, and foams blown with HFC-152a 
will need to conform with building code requirements that relate to 
flammable materials.
    (f) Saturated light hydrocarbons C3-C6. Saturated light 
hydrocarbons C3-C6 are acceptable as substitutes for CFC-12 in 
polystyrene boardstock and billet foam. Of the Saturated Light 
Hydrocarbons C3-C6, pentane, isopentane, butane, and isobutane have 
been demonstrated as feasible blowing agents in polystyrene. In fact, 
saturated light hydrocarbons C3-C6 have been used for years in the 
manufacture of extruded polystyrene sheet products. However, saturated 
light hydrocarbons C3-C6 have several disadvantages as blowing agents 
in extruded polystyrene boardstock and billet foam. Replacement of CFC-
12 blowing agents with Saturated Light Hydrocarbons C3-C6 may reduce 
the insulating efficiency in this end-use. Controlling the flammability 
of saturated light hydrocarbons C3-C6 may entail significant investment 
in plant conversion to accommodate them as alternatives to CFC-12. 
Foams blown with saturated light hydrocarbons C3-C6 will need to 
conform with building code requirements that relate to flammable 
materials. Finally, saturated light hydrocarbons C3-C6 are VOCs and 
must be controlled as such under Title I of the CAA.
    (g) HCFC-22/Saturated Light Hydrocarbons C3-C6. Blends of HCFC-22/
saturated light hydrocarbons C3-C6, for the reasons described and with 
the caveats outlined above for HCFC-22 and Saturated Light Hydrocarbons 
C3-C6, are acceptable substitutes for CFC-12 in extruded polystyrene 
boardstock and billet foam.
    (h) Carbon dioxide. Carbon dioxide is an acceptable alternative 
blowing agent for CFC-12 in extruded polystyrene boardstock and billet 
foam.
    (6) Phenolic insulation board. (a) HCFC-141b. HCFC-141b, for the 
reasons described in the section on rigid polyurethane and 
polyisocyanurate laminated boardstock, is acceptable as an alternative 
to CFC-11 and CFC-113 in phenolic insulation board.
    (b) HCFC-142b. HCFC-142b, for the reasons described in the section 
on rigid polyurethane and polyisocyanurate laminated boardstock, is 
acceptable as an alternative to CFC-11 and CFC-113 in phenolic 
insulation board.
    (c) HCFC-22. HCFC-22, for the reasons described in the section on 
rigid polyurethane commercial refrigeration foams, spray foams, and 
sandwich panels, is acceptable as an alternative to CFC-11 and CFC-113 
in phenolic insulation board.
    (d) HCFC-22/HCFC-142b. Blends of HCFC-22/HCFC-142b, for reasons 
described above and with the caveats outlined above for HCFC-22 and 
HCFC-142b, are acceptable as an alternative to CFC-11 and CFC-113 in 
phenolic insulation board.
    (e) Saturated Light Hydrocarbons C3-C6. Saturated light 
hydrocarbons C3-C6, for the reasons described in the section on rigid 
polyurethane and polyisocyanurate laminated boardstock, are acceptable 
alternatives to CFC-11 and CFC-113 in phenolic insulation board.
    (f) HCFC-22/Saturated light hydrocarbons C3-C6. HCFC-22/Saturated 
light hydrocarbon C3-C6 blends are acceptable as substitutes for CFC-11 
and CFC-113 in phenolic insulation board. HCFC-22/saturated light 
hydrocarbon C3-C6 blends offer an alternative with significantly less 
potential to deplete ozone than either CFC-11 or CFC-113. However, 
extensive plant modifications may be necessary to accommodate use of 
these blends. In addition, there are concerns about the potential for 
significant increases in thermal conductivity resulting from the 
replacement of CFC-11 and CFC-113 with a blend. Also, foams blown with 
saturated light hydrocarbons C3-C6 will need to conform with building 
code requirements that relate to flammable materials. Saturated light 
hydrocarbons C3-C6 are VOCs and must be controlled as such under Title 
I of the CAA, and HCFC-22 is subject to the phase-out of Class II 
compounds under sections 605 and 606 of the CAA.
    (g) HFC-143a. HFC-143a is acceptable as a substitute for CFC-11 and 
CFC-12 in phenolic insulation board. HFC-143a has a higher global 
warming potential than other substitutes available.
    (h) 2-Chloropropane 2-Chloropropane is acceptable as a substitute 
for CFC-11 and CFC-12 in phenolic insulation board. At present, because 
2-chloropropane is a proprietary technology. Moreover, 2-chloropropane 
is flammable and its use may require extensive modification of existing 
equipment.
    (i) Carbon dioxide. Carbon dioxide is an acceptable alternative 
blowing agent for CFC-11 and CFC-12 in phenolic insulation board.
    (7) Flexible polyurethane foam. (a) Methylene chloride. Methylene 
chloride (or blends thereof) is acceptable as a blowing agent in 
flexible polyurethane foams. Methylene chloride is already used as an 
auxiliary blowing agent in the manufacture of most flexible 
polyurethane slabstock foams and has proven adequate in yielding foams 
of many densities and degrees of softness. Replacement of CFC-11 or 
methyl chloroform blowing agents with methylene chloride can reduce the 
potential for stratospheric ozone depletion resulting from the 
production of flexible polyurethane foams.
    Nevertheless, there is concern over the potential health and safety 
issues posed by methylene chloride. In fact, due to these concerns, 
some local and regional restrictions apply to the use of methylene 
chloride. To assess these risks in the application under discussion, 
EPA used data collected by the Occupational Safety and Health 
Administration (OSHA) for the proposed revision of the permissible 
exposure level (PEL) for methylene chloride. The Agency's estimate for 
total population risk for methylene chloride was based on average plant 
emissions derived from OSHA's analysis, and while not negligible, was 
within the range of existing Agency decisions on acceptable risk. For 
further detail, refer to the background document entitled ``Risk Screen 
on the Use of Substitutes for Class I Ozone-Depleting Substances: 
Foams''.
    In light of the results of Agency analysis, EPA decided to find 
acceptable the use of methylene chloride subject to existing or future 
restrictions because it will allow immediate transition from class I 
substances in this end-use. Potential users should note that methylene 
chloride use will be subject to future controls for hazardous air 
pollutants under Title III section 112 of the CAA. In addition, use of 
the compound must conform to all relevant workplace safety standards; 
OSHA has proposed permissible exposure levels (PELs) for methylene 
chloride of 25 ppm on a time-weighted average (TWA). Once such 
additional controls have been adopted, use of this substitute must 
comply with any other applicable requirements, such as state 
restrictions. Use is also subject to waste disposal requirements under 
RCRA.
    (b) Acetone. Acetone (or blends thereof) is acceptable as a blowing 
agent for flexible polyurethane foams. In those areas where methylene 
chloride use is deemed unacceptable, acetone may provide another non-
ODP alternative to CFC-11 and methyl chloroform. All grades of flexible 
polyurethane foam produced with CFCs can be produced using acetone as 
an auxiliary blowing agent. Acetone does not have an ozone depletion 
potential, and its global warming potential is negligible. 
Nevertheless, acetone is highly flammable and its use requires 
precautions to ensure safety to workers as prescribed by OSHA. In 
addition, use of this compound is subject to various federal, state, or 
local controls as a VOC under Title I of the CAA.
    (c) HFC-134a. HFC-134a (or blends thereof) is acceptable as a 
substitute for CFC-11 in flexible polyurethane foam. HFC-134a is a non-
ozone-depleting alternative to CFC-11 blowing agents in flexible 
polyurethane foam. Plant modifications may be necessary to accommodate 
the use of HFC-134a because its boiling point is lower than that of 
CFC-11.
    (d) HFC-152a. HFC-152a (or use thereof) is acceptable as a 
substitute for CFC-11 in flexible polyurethane foam. HFC-152a is a non-
ozone-depleting alternative to CFC-11 blowing agents in flexible 
polyurethane foam. Process changes may be necessary to accommodate the 
use of HFC-152a, and plant modifications may be necessary to manage its 
flammability.
    (e) AB Technology. AB Technology is acceptable as an alternative 
process in flexible polyurethane foams. The AB Technology generates 
carbon monoxide as the chemical blowing agent. Precautions should be 
taken to insure the safety of workers from exposure to elevated levels 
of carbon monoxide, particularly at the latter phases of production 
where ventilation is generally not as efficient as on the foam line. 
OSHA has set a permissible exposure level (PEL) for carbon monoxide of 
35 ppm on a time-weighted average (TWA) with a ceiling of 200 ppm.
    (f) Carbon dioxide. Carbon dioxide (or blends thereof) is an 
acceptable alternative process in flexible polyurethane foams.
    (8) Polyurethane integral skin foams. (a) HCFC-123. HCFC-123 (or 
blends thereof) is acceptable as an alternative to CFC-11 in integral 
skin foams. The physical and chemical properties of HCFC-123 are 
similar to CFC-11. As a result, HCFC-123, which has an ozone depleting 
potential significantly lower than that of CFC-11, has the potential to 
replace CFC-11 in many integral skin applications. Nonetheless, 
commercial availability of HCFC-123 is limited at present. The use of 
HCFC-123 in integral skin foams is subject to significant restriction 
under section 610 of the CAA, which bans the use of class II substances 
in noninsulating foams after January 1, 1994. The ban exempts only 
certain integral skin foams used to provide for motor vehicle safety.
    (b) HCFC-141b. HCFC-141b (or blends thereof) is acceptable as an 
alternative to CFC-11 in integral skin foams. Although its ODP of 0.11 
is relatively high, HCFC-141b offers an acceptable transition 
substitute out of CFC-11 in integral skin foams. The use of HCFC-141b 
in integral skin foams, however, is subject to significant restriction 
under section 610 of the CAA, which banned the use of class II 
substances in noninsulating foams after January 1, 1994. The ban 
exempts only certain integral skin foams used to provide for motor 
vehicle safety.
    (c) HCFC-22. HCFC-22 (or blends thereof) is acceptable as a 
substitute for CFC-11 in integral skin foam. HCFC-22 offers an 
alternative with significantly less potential to deplete ozone than 
CFC-11. However, process changes may be necessary to accommodate the 
low boiling point of HCFC-22. The use of HCFC-22 in integral skin foams 
is subject to significant restrictions under section 610 of the CAA, 
which banned the use of class II substances in noninsulating foams 
after January 1, 1994. The ban exempts only certain integral skin foams 
used to provide for motor vehicle safety.
    (d) HFC-134a. HFC-134a (or blends thereof) is acceptable as a 
substitute for CFC-11 in polyurethane integral skin foam. HFC-134a is a 
non-ozone-depleting alternative to CFC-11 blowing agents in 
polyurethane integral skin foam. Plant or process modifications may be 
necessary to accommodate the use of HFC-134a because its boiling point 
is lower than that of CFC-11.
    (e) HFC-152a. HFC-152a (or blends thereof) is acceptable as a 
substitute for CFC-11 in polyurethane integral skin foam. HFC-152a is a 
non-ozone-depleting alternative to CFC-11 blowing agents in 
polyurethane integral skin. Plant or process changes may be necessary 
to accommodate the use of HFC-152a, and plant modifications may be 
necessary to manage its flammability. Also, foams blown with HFC-152a 
will need to conform with any product safety requirements that relate 
to flammable materials.
    (f) Saturated light hydrocarbons C3-C6. Saturated light 
hydrocarbons C3-C6 (or blends thereof) are acceptable as substitutes 
for CFC-11 in integral skin foams. Saturated light hydrocarbons C3-C6 
offer the possibility of a non-ODP replacement for CFC-11 in integral 
skin foams. Plant or process modifications may be necessary to 
accommodate the flammability of saturated light hydrocarbons C3-C6 and 
to make the necessary technical and process modifications.
    (g) Methylene chloride. Methylene chloride (or blends thereof) is 
acceptable as a blowing agent in integral skin foam. See methylene 
chloride discussion under Polyurethane Flexible Foams for additional 
details on toxicity issues. Use is subject to waste disposal 
requirements under RCRA.
    (h) Carbon dioxide. Carbon dioxide (or blends thereof) is 
acceptable as a blowing agent in integral skin foams.
    (9) Extruded polystyrene sheet foam. (a) HFC-134a. HFC-134a (or 
blends thereof) is acceptable as a substitute for CFC-12 in extruded 
polystyrene sheet foam. HFC-134a is a non-ozone-depleting alternative 
to CFC-12 blowing agents in polystyrene sheet foam.
    (b) HFC-152a. HFC-152a (or blends thereof) is acceptable as a 
substitute for CFC-12 in extruded polystyrene sheet foam. HFC-152a is a 
non-ozone-depleting alternative to CFC-12 blowing agents in extruded 
polystyrene sheet foams. The compound is commercially available and its 
low molecular weight suggests that its blowing efficiency will be 
double that of CFC-12. Plant or process modifications may be needed to 
accommodate the flammability of HFC-152a.
    (c) Saturated light hydrocarbons C3-C6. Saturated light 
hydrocarbons C3-C6 (or blends thereof) are acceptable as substitutes 
for CFC-12 in extruded polystyrene sheet foam. Saturated light 
hydrocarbons C3-C6 offer the potential of a non-ozone-depleting 
alternative to the use of CFC-12 blowing agents in extruded polystyrene 
sheet. At present, pentane and butane are used extensively as blowing 
agents in extruded polystyrene sheet. These compounds are widely 
available at low cost and offer excellent solubility with the 
polystyrene polymer.
    (d) Carbon dioxide. Carbon dioxide (or blends thereof) is 
acceptable as a substitute for CFC-12 in extruded polystyrene sheet 
foam.
    (10) Polyolefin foams. (a) HCFC-22. HCFC-22 is acceptable as a 
substitute for CFC-11, CFC-12, and CFC-114 in polyolefin foams. HCFC-22 
offers an alternative with significantly less potential to deplete 
ozone than CFC-11, CFC-12, or CFC-114. Under the section 610 Non-
Essential Use Ban, HCFC use in polyolefin foams is restricted to 
thermal insulating applications of polyethylene foams where such foam 
is suitable in shape, thickness and design to be used as a product that 
provides thermal insulation around pipes used for heating, plumbing, 
refrigeration, or industrial process systems.
    (b) HCFC-142b. HCFC-142b is acceptable as a substitute for CFC-11, 
CFC-12, and CFC-114 in polyolefin foams. HCFC-142b offers an 
alternative with significantly less potential to deplete ozone than 
CFC-11, CFC-12, or CFC-114. Under the section 610 Non-Essential Use 
Ban, HCFC use in polyolefin foams is restricted to thermal insulating 
applications of polyethylene foams where such foam is suitable in 
shape, thickness and design to be used as a product that provides 
thermal insulation around pipes used for heating, plumbing, 
refrigeration, or industrial process systems.
    (c) HCFC-22/HCFC-142b. HCFC-22/HCFC-142b blends are acceptable, for 
reasons described and the caveats outlined above, as a substitute for 
CFC-11, CFC-12 and CFC-114 in polyolefin foam. Under the section 610 
Non-Essential Use Ban, HCFC use in polyolefin foams is restricted to 
thermal insulating applications of polyethylene foams where such foam 
is suitable in shape, thickness and design to be used as a product that 
provides thermal insulation around pipes used for heating, plumbing, 
refrigeration, or industrial process systems.
    (d) HFC-134a. HFC-134a is acceptable as a substitute for CFC-11, 
CFC-12, and CFC-114 in polyolefin foams. HFC-134a offers the potential 
for a non-ozone-depleting alternative to CFC-11, CFC-12, and CFC-114 in 
polyolefin foams. HFC-134a, because of its low flammability and 
encouraging performance in toxicological testing, exhibits definite 
advantages from the standpoints of worker and consumer safety. HFC-134a 
does, however, contribute to global warming.
    (e) HFC-143a. HFC-143a is acceptable as a substitute for CFC-11, 
CFC-12, and CFC-114 in polyolefin foams. HFC-143a has a higher global 
warming potential than other acceptable substitutes in this end-use.
    (f) HFC-152a. HFC-152a, for the reasons described in the section on 
extruded polystyrene sheet foam, is acceptable as an alternative to 
CFC-11, CFC-12, and CFC-114 in polyolefin foams. Plant or process 
modifications may be needed to accommodate the flammability of HFC-
152a.
    (g) Saturated light hydrocarbons C3-C6. Saturated light 
hydrocarbons C3-C6 are acceptable as substitutes for CFC-11, CFC-12, 
and CFC-114 in polyolefin foams.
    (h) HCFC-22/Saturated light hydrocarbons C3-C6. HCFC-22/Saturated 
light hydrocarbons C3-C6 blends, for the reasons described and with the 
caveats outlined above, are acceptable substitutes for CFC-11, CFC-12 
and CFC-114 in polyolefin foams. Under the section 610 Non-Essential 
Use Ban, HCFC use in polyolefin foams is restricted to thermal 
insulating applications of polyethylene foams where such foam is 
suitable in shape, thickness and design to be used as a product that 
provides thermal insulation around pipes used for heating, plumbing, 
refrigeration, or industrial process systems.
    (i) Carbon dioxide. Carbon dioxide is acceptable as a substitute 
for CFC-11, CFC-12, and CFC-114 in polyolefin foams.
    b. Unacceptable substitutes. The final rule listing a foam blowing 
agent as unacceptable in a specific foam use sector constitutes a ban 
on the use of that alternative to Class I compounds. This decision will 
be effective 30 days after publication of this final rule.
    (1) Polyolefin foams. The use of HCFC-141b (or blends thereof) is 
unacceptable as an alternative blowing agent in polyolefin foams. HCFC-
141b has an ODP of 0.11, almost equivalent to that of methyl 
chloroform, a Class I substance. The Agency believes that non-ozone 
depleting alternatives are sufficiently available to render the use of 
HCFC-141b unnecessary in this application.

F. Solvent Cleaning

1. Overview
    On an ozone-depletion weighted basis, solvents constitute 
approximately 15 percent of the chemicals targeted for phase-out under 
the Montreal Protocol. In the U.S., the two class I chemicals used as 
industrial solvents are CFC-113 (C2F3C13--trifluorotrichloroethane) and 
methyl chloroform (C2H3C13--1,1,1-trichloroethane). The SNAP 
determinations issued in the solvent cleaning sector focus on 
substitutes for CFC-113 and methyl chloroform (MCF) when used in 
industrial cleaning equipment, since this application comprises the 
largest use of ozone-depleting solvents.
    Other cleaning applications for ozone-depleting solvents exist as 
well, such as in dry cleaning of textiles or in hand cleaning or 
maintenance cleaning as a spray. In addition, these solvents are used 
as bearer media (such as lubricant carriers), mold release agents, 
component testing agents, or in other non-cleaning applications. CFC-11 
is also occasionally used as a cleaning solvent in specialized 
applications. For the reasons described earlier in this Preamble, the 
Agency intends to exclude cleaning substitutes for CFC-113, MCF and 
CFC-11 in these applications--with the exception of aerosol 
substitutes--from the SNAP determinations at this time. As a result, 
the Agency is not at this time issuing any determinations on 
acceptability of such substitutes, and will neither approve nor 
restrict their uses. Aerosol substitutes are covered in a separate 
section of this Preamble.
    Appendix B at the end of this Preamble lists in tabular form the 
Agency's determinations on substitutes in the cleaning sector. These 
listings are based on the risk screens described in the background 
document entitled ``Risk Screen on the Use of Substitutes for Class I 
Ozone-Depleting Substances: Solvent Cleaning'' and discussed in 
associated supporting memoranda. The table includes as ``pending'' a 
few substitutes for which the Agency has not yet issued determinations. 
Vendors or users of cleaning substitutes not described in appendix B 
should submit information on these uses, so that the Agency can review 
them and issue a SNAP determination.
    The three major end uses that in the past employed CFC-113 and MCF 
are metals cleaning, electronics cleaning, and precision cleaning. 
Metals cleaning applications usually involve removing cutting oils and 
residual metal filings. This sector relies principally on MCF as a 
cleaning solvent. In contrast, the electronics industry uses 
principally CFC-113, for instance, to remove flux residues left after 
mounting parts on printed circuit boards. Precision cleaning also uses 
mostly CFC-113. This last application comprises a broad category of 
industrial cleaning operations and can cover uses ranging from 
preparation of pacemakers to manufacture of direct access storage 
devices (DASDs) for computers. The following sections present 
substitutes for CFC-113 and MCF in these three end uses and discuss the 
acceptability listings presented in appendix B.
2. Substitutes in Solvents Cleaning
    a. Hydrochlorofluorocarbons (HCFCs). HCFC-141b or HCFC-141b blends 
with alcohols are the principal HCFC alternative solvents to CFC-113/
MCF cleaning. These alternatives can be used in vapor degreasing 
equipment, principally for electronics or precision cleaning, and in 
some cases existing CFC-113 or MCF equipment can be retrofitted for use 
with HCFC-141b alternatives. From an environmental standpoint, the 
critical characteristic of HCFC-141b is that it has a relatively high 
ODP--0.11--the highest of all the HCFCs.
    Another HCFC, HCFC-123, is generally not considered to have 
widespread application as a cleaner. Although this HCFC has the 
capacity to remove many soils, it is such an aggressive cleaner that it 
frequently degrades the surface of the part being cleaned. The company-
set AEL for HCFC-123 was recently raised from 10ppm to 30ppm based on 
new toxicity findings. These new data mean that the exposure limit 
could be met with existing equipment, and the Agency intends to list 
HCFC-123 under separate rule-making as acceptable subject to adherence 
to the exposure limit.
    HCFC-225, a third HCFC, is widely viewed as having potential as a 
cleaning agent, especially for manufacture and maintenance of precision 
parts and equipment. However, this chemical is not yet in widespread 
production or use and is only now starting to be commercially 
available. Preliminary toxicity findings suggest that of the two HCFC-
225 isomers, HCFC-225ca and HCFC-225cb, toxicity concerns associated 
with the ca-isomer may warrant a comparatively low company-set 
occupational exposure limit. As a result, EPA intends under separate 
rule-making to propose HCFC-225 as acceptable subject to adherence to 
this limit. The Agency anticipates that companies will readily be able 
to meet this requirement since the ca-isomer is sold commercially in a 
blend with the less toxic cb-isomer. In addition, equipment using HCFC-
225 is usually designed for precision operations and has inherently low 
emissions.
    b. Semi-aqueous cleaners. Semi-aqueous cleaners are alternatives 
for cleaning in all three sectors. These cleaners employ hydrocarbons/
surfactants either emulsified in water solutions or applied in 
concentrated form and then rinsed with water. Since both approaches 
involve water as part of the formulation, the system is commonly 
referred to as ``semi-aqueous.'' The principal categories of chemicals 
used in these formulations are terpenes, C6-C20 petroleum hydrocarbons 
(both naturally or synthetically derived), or oxygenated organic 
solvents (such as alcohols). An extensive discussion of various semi-
aqueous cleaning alternatives may be found in the Industry Cooperative 
for Ozone Layer Protection (ICOLP) documents on the subject. Users can 
obtain these documents from the EPA.
    c. Aqueous cleaners. Aqueous cleaners, unlike semi-aqueous, uses 
water as the primary solvent. These formulations are used mostly for 
metals cleaning, but companies are beginning to explore options using 
these substitutes in other cleaning applications. In aqueous 
formulations, detergents and surfactants are combined in water with a 
variety of additives such as organic solvents (e.g., high-boiling point 
alcohols), builders, saponifiers, inhibitors, emulsifiers, pH buffers 
and antifoaming agents. The cleaning process is comparable to that used 
in semiaqueous applications and consists of combinations of a wash 
phase, a rinse phase, and a drying phase. An important difference is 
that the wash tank is frequently heated to improve soil removal. The 
final step, drying, is separate from the cleaning step and can be 
accomplished by use of heat or a drying agent. These alternatives are 
discussed extensively in the ICOLP documents.
    d. Straight organic solvent cleaning. Organic solvents can be used 
to replace CFC-113 and MCF in certain cleaning operations. This 
classification is defined to include terpenes, C6-C20 petroleum 
hydrocarbons (both naturally and synthetically derived), and oxygenated 
organic solvents such as alcohols, ethers (including propylene glycol 
ethers), esters and ketones. These compounds are commonly used in 
solvent tanks at room temperature, although the solvents can also be 
used in-line cleaning systems or be heated to increase solvency power. 
If heated, the solvents must be used in equipment designed to control 
vapor losses.
    These solvents, unlike class I and II compounds, do not contribute 
to stratospheric ozone depletion, and generally have short atmospheric 
lifetimes. Yet many of the organic solvents are regulated as VOCs 
because they can contribute to ground-level ozone formation. In 
addition, certain of the organic solvents are toxic to human health and 
are subject to waste handling standards under the Resource Conservation 
and Recovery Act (RCRA) and to workplace standards set by Occupational 
Safety and Health Administration (OSHA). For example, xylene and 
toluene may be used as substitutes but are, once they become wastes, 
regulated under RCRA as listed or characteristic wastes.
    e. Other chlorinated solvents. In addition to MCF and CFC-113, the 
three other commonly used chlorinated solvents are trichloroethylene 
(``TCE''), methylene chloride (``meth''), and perchloroethylene 
(``perc''). Unlike MCF and CFC-113, these chlorinated solvents have 
very short atmospheric lifetimes and are not considered to contribute 
to ozone depletion. However, all three have known toxicity problems and 
are regulated as Hazardous Air Pollutants under section 112 of title 
III of the Clean Air Act. They are also subject to waste handling 
standards under RCRA and to workplace standards set by OSHA. 
Additionally, TCE and perc exhibit photochemical reactivity, and are 
regulated as smog precursors.
    The phaseout of CFC-113 and MCF has prompted a renewed interest in 
meth, TCE, and perc, despite these toxicity concerns. The three 
solvents are mostly viewed as potential metal cleaning substitutes, 
especially since they can be used in conventional vapor degreasing 
equipment. In fact, these three solvents were the preferred industrial 
solvents until concerns about their toxicity and anticipated lowering 
of the OSHA Permissible Exposure Limits (PELs) resulted in a switch by 
some users to MCF.
    In response to such concerns, equipment vendors have now developed 
equipment for using these solvents that significantly limit their 
emissions. The availability of such equipment has prompted 
environmental agencies in other western countries, such as Germany, to 
relax restrictions on the use of these chemicals. Such equipment, 
although expensive, can now be purchased in the United States.
    f. No-clean alternatives. No-clean alternatives involve the use of 
fluxes or cutting oils that need not be removed after the manufactured 
part is fully formed. It offers an efficient solution to the cleaning 
problem, since it sidesteps the need for cleaning altogether. This type 
of substitute represents one of the few process changes possible in the 
solvents cleaning sector. Water-removable products are products where 
the soils or fluxes can be removed using water as opposed to other 
types of chemical solvents. In electronics cleaning, where these two 
approaches are in more widespread use, no-clean or water-removable 
alternatives rely either on special fluxes or on a soldering process 
that eliminates or reduces the residues otherwise removed through the 
cleaning step.
    In metal preparations, an increasing common process change is to 
use vanishing oils. These oils are refined mineral spirits, usually 
odorless, that flash off after the metal forming step is completed thus 
eliminating the need for cleaning. Technically, this process can be 
referred to as a ``no-clean'' process, although that term is usually 
reserved for electronics manufacture.
    g. Perfluorocarbons. Perfluorocarbons (PFCs) are fully fluorinated 
compounds, unlike either CFCs, HCFCs or HFCs. Perfluorocarbons 
presently employed or being investigated for commercial applications 
for cleaning are C5F12, C6F12, C6F14, C7F16, C8F18, C5F11NO, C6F13NO, 
C7F15NO, and C8F16.
    These compounds are being discussed as part of innovative cleaning 
and drying systems to replace ozone-depleting solvents used in 
cleaning. These systems would use an aqueous or solvent cleaner bath 
with PFCs for rinsing and/or drying. Although the PFCs technically are 
being used as drying agents in this system, it is due to the 
replacement of CFC-113 as a cleaner that the PFCs are being used, which 
is why PFCs are addressed in the solvent cleaning sector. PFCs also 
have solvent displacement properties (including for displacement of 
water), that may make their use necessary. Although these systems have 
the technical potential to meet a number of cleaning needs, the expense 
of the PFCs may limit widespread commercial interest in systems that 
use these compounds.
    The environmental characteristics of concern for these compounds 
are high global warming potential (5,000-10,000 times greater than 
CO2) and long atmospheric lifetimes (3,000-5,000 years). Although 
the actual contributions to global warming depend upon the quantities 
of PFCs emitted, the warming effects of PFCs are essentially 
irreversible. In other respects, PFCs are benign and are generally 
nontoxic, nonflammable, and do not contribute to ground-level ozone 
formation. Environmental concerns associated with use of PFCs are 
discussed in the comment response section of this preamble, section 
III.D. Technology for containment and recycling of PFCs is commercially 
available and is recommended by manufacturers to offset any possible 
adverse environmental effects.
    h. Monochlorotoluene/benzotrifluorides. Monochlorotoluene and 
benzotrifluorides are of commercial interest as solvent substitutes in 
a variety of cleaning applications. These compounds can be used either 
in isolation or in various mixtures, depending on desired chemical 
properties. The Agency is still receiving toxicity and exposure 
information on these formulations and will issue a SNAP determination 
for these substitutes when SNAP review is complete.
    i. Volatile methyl siloxanes. Cyclic and linear volatile methyl 
siloxanes (VMSs) are currently undergoing investigation for use as 
substitutes for class I compounds in metals, electronics and precision 
cleaning. Because of their chemical properties, these compounds show 
promise as substitutes for cleaning precision guidance equipment in the 
defense and aerospace industries. In addition, the volatile methyl 
siloxanes have high purity and are therefore relatively easy to recover 
and recycle. In the cleaning system using VMSs, the fluids are used to 
clean parts in a closed header system using a totally enclosed process. 
The parts are drained and then dried using vacuum baking.
    j. Supercritical fluid cleaning, plasma cleaning, UV-ozone 
cleaning. Supercritical fluid cleaning, plasma cleaning and UV-ozone 
cleaning are all three high-technology methods of cleaning parts. These 
substitutes are mostly of interest for cleaning electronic parts or for 
precision cleaning, although supercritical carbon dioxide is being 
investigated for metal cleaning applications as well.
    k. Dibromomethane. The Agency has received notification that 
dibromomethane (also referred to as methylene bromide) can be used as a 
substitute cleaning agent. This chemical has an ozone depletion 
potential of .17, although it is not yet listed under the Clean Air 
Act. In addition, dibromomethane is believed to be more toxic than 
methylene chloride, although toxicity studies are scarce since 
industrial applications in the past have been limited. As a result, the 
Agency intends to propose this substitute as unacceptable in a separate 
rule-making.
    l. HFC-4310mee. HFC-4310mee will soon be commercially available as 
a solvent cleaning agent. The Agency has received preliminary data on 
this chemical, and anticipates that its use will be limited due to 
global warming concerns to applications where it can replace longer-
lived PFCs or where its special chemical properties make it the only 
viable substitute for a class I or II compound. This chemical will be 
undergoing review under the Premanufacture Notice program of the Toxic 
Substances Control Act.
    Other HFCs are also being developed for solvent usage, although 
their composition is still proprietary.
3. Comment Response
    The majority of public comments received on the proposed solvents 
cleaning SNAP decisions focused on the determinations for 
perfluorocarbons (PFCs) and for chlorinated solvents. Most commenters 
on PFCs requested that the Agency expand the acceptability 
determination for PFCs to parts other than computer components, as 
stated in the SNAP Notice of Proposed Rule-Making (NPRM). Although many 
commenters agreed that a measure of control due to global warming 
effects was necessary, several companies described in detail situations 
where PFCs are believed to be the only viable alternative to CFC-113 
and methyl chloroform. The Agency agrees with these commenters, and the 
final SNAP determination lists the PFCs as acceptable in all cases 
where no other alternative meets performance or safety standards. This 
approach does not diverge significantly from that described in the 
NPRM, in which EPA noted its intention to examine the possibility that 
PFCs may be necessary for cleaning other parts in addition to computer 
components.
    Opinions on the chlorinated solvents diverged widely. A number of 
commenters disagreed with the Agency's decision to list these chemicals 
as acceptable substitutes for solvents cleaning. This viewpoint was 
countered by other commenters who strongly agreed with the continuing 
need to use chlorinated solvents. The Agency has not altered its 
decision on these chemicals, and remains convinced that with 
responsible control measures and housekeeping practices, potential 
risks from these solvents can be significantly reduced and that overall 
risks to human health and the environment will not increase 
significantly as a result of substitution.
4. Listing Decisions
    a. Acceptable substitutes. (1) Metals cleaning. (a) Semi-aqueous/
aqueous cleaners. Semi-aqueous and aqueous cleaners are acceptable 
substitutes for CFC-113 and MCF in metals cleaning. The determinations 
in this action cover semi-aqueous cleaners using terpenes, petroleum 
hydrocarbons, and alcohols. To complete its modeling of the ability of 
aqueous and semi-aqueous substitutes to replace CFC-113 and MCF in 
existing applications, the Agency examined their ability to meet 
cleaning requirements in the metals cleaning sector. Each of these 
alternatives has the potential to service as much as 70 percent of the 
metals cleaning market. To date, companies have shown the greatest 
interest in aqueous formulations for metals cleaning, which is why the 
Agency has reviewed this option in its first round of SNAP 
determinations.
    Concern over the water-based cleaners has historically focussed on 
the potential for adverse effects on aquatic life following discharge 
of wastewaters to surface water bodies. Examples of these effects 
include death to aquatic microorganisms, fish teratogenicity, or 
ecosystem effects such as inhibition of algal growth or 
bioconcentration. In this case, the Agency wanted to ensure that, in 
restricting the use of CFC-113 and methyl chloroform, it would not 
simply be replacing risks from air emissions with equal risks from 
contaminated water effluent.
    To complete its risk analysis for the aqueous and semi-aqueous 
formulations, the Agency developed a screening methodology designed to 
characterize risks presented by typical manufacturing setups using 
these formulations. The diversity of chemicals used in aqueous and 
semi-aqueous cleaning complicated this undertaking. To complete its 
screen, the Agency projected concentrations in water for the most toxic 
chemical that could be used in the water-based formulations. These 
concentrations were based on the maximum possible concentration in the 
formulation and case studies documenting actual release profiles for 
several sample processes. The predicted concentrations obtained using 
this approach were then compared with toxicity values for this 
``worst'' chemical.
    This analysis suggests that most risks presented by use of water-
based cleaners can be controlled by standard process management 
practices (e.g., planned discard schedules for wash and rinse solutions 
in cleaner tanks) and by adhering to existing requirements for 
wastewater treatment imposed by municipal or state authorities. This 
screening approach, although it does not examine the toxicity of each 
chemical and mixture or project exposures for each possible 
formulation, does provide adequate perspective on the risks of these 
compounds compared with risks from continued use of CFCs.
    Although the Agency is listing water-based substitutes as 
acceptable, it urges companies to install systems that permit re-use 
and recycling of the formulation wherever possible to limit discharge 
of these chemicals. This step can offer both important benefits to 
aquatic systems as well as reduce operating costs of cleaning systems.
    Users should also note that EPA is preparing new effluent 
limitations and standards that will affect metals cleaning under the 
Clean Water Act for the Metal Products and Machinery sector. These 
standards, the first portion of which is expected to be issued in 
November 1994, will address any remaining uncontrolled risks deriving 
from the use of water-based cleaners in this industry. Phase I covers 
sectors such as stationary industrial equipment, hardware, and 
aircraft. Phase II, to be issued later, covers among other sectors 
manufacture, rebuild, or maintenance of buses, trucks, railroads, and 
shipbuilding.
    (b) Straight organic solvent cleaning. Straight organic solvent 
cleaning is an acceptable substitute for CFC-113 and MCF in the metals 
cleaning sector. This acceptability determination extends to organic 
solvents used as individual chemicals as well as in combinations. 
Although these compounds can be toxic to human health and are 
considered VOCs, the Agency's risk screen shows that these risks can be 
addressed through existing regulatory controls. In occupational 
settings where toxicity is a concern, such as for acetone or for 
certain ketones, OSHA has set PELs designed to control risks. One class 
of organic solvents about which there has recently been increased 
concern for possible health effects is glycol ethers. However, the 
glycol ethers identified in this case are ethylene glycol ethers, 
whereas for solvent cleaning purposes companies customarily use 
propylene glycol ethers. Propylene glycol ethers are generally not 
believed to exhibit the same degree of toxicity as the ethylene glycol 
ethers. Controls also exist for sources of VOC emissions and for 
handling of the organic solvents as hazardous wastes under RCRA.
    Regulatory standards are not the only method of mitigating the 
environmental effects of these chemicals. Many manufacturers and 
distributors of these solvents have instituted programs or can refer 
companies to programs that will reclaim and process spent solvent--
either on or off-site--for further use. The Agency encourages companies 
using organic solvents to seek out such programs. In addition, 
companies should consider the principles of pollution prevention when 
instituting cleaning with organic solvents and adopt emissions control 
measures such as appropriate freeboard and automated hoists that will 
reduce pollution at its source.
    (c) Other chlorinated solvents. Trichloroethylene (TCE), 
perchloroethylene (perc) and methylene chloride (meth) are all 
acceptable substitutes for CFC-113 and MCF in the metals cleaning 
sector. These alternatives have the chemical properties to meet the 
cleaning needs of up to 80 percent of the metals cleaning sector, 
although the Agency anticipates that the actual market share for the 
non-ozone-depleting chlorinated solvents will not expand to the maximum 
extent feasible. Because of the high toxicity of these compounds, they 
have the potential to pose risks to workers and residents in nearby 
communities. However, the Agency's analysis of use of these compounds 
as cleaning agents indicates that these risks can be controlled by 
adhering to existing regulatory standards. OSHA has determined, for 
instance, that it is possible to use these solvents in a manner that 
minimizes risks to workers. To reach this conclusion, OSHA conducted 
extensive analyses of the toxicity and technical feasibility of using 
perchloroethylene, trichloroethylene, or methylene chloride (54 FR 
2329-2984, January 19, 1989, and 56 FR 57036-57141, November 7, 1991). 
OSHA found that the new PEL of 50 ppm for trichloroethylene was 
feasible in metal cleaning operations (54 FR 2433) and after conducting 
an extensive study of metal degreasing control technologies, the 
National Institute of Occupational Safety and Health concluded that an 
exposure limit of 25 ppm for TCE could also be achieved. More recently, 
in its proposed standard for methylene chloride, OSHA found that a PEL 
of 25 ppm is technically feasible during metal cleaning operations with 
the use of appropriate local exhaust ventilation and work practices.
    In addition, these solvents are all listed as hazardous wastes 
under RCRA (F001, U080, U210, U228) and thus must comply with 
applicable RCRA waste disposal requirements. The SNAP risk screen did 
note the potential for adverse effects without additional controls. 
However, the Agency is in the process of addressing residual risks to 
the general population through releases to air under section 112 of the 
Clean Air Act. Section 112 requires EPA to establish Maximum Achievable 
Control Technology (MACT) standards for use of Hazardous Air Pollutants 
(HAPs). All three non-OD chlorinated solvents are listed as HAPs, and 
the Agency issued a proposal describing MACT rules governing their use 
in industrial cleaning in November 1993. The final regulation is 
expected to be issued by the end of 1994.
    Finally, through the voluntary ``33/50'' pollution prevention 
program, the EPA is encouraging companies to decrease emissions of TCE, 
perc, and meth, in addition to 14 other specific chemicals. Companies 
participating in this program voluntarily commit to decreasing 
emissions 33 percent by the end of 1992 and 50 percent by the end of 
1995, using pollution prevention strategies. The Agency is committed in 
the long term to urge companies to participate in pollution prevention 
programs such as 33/50, and to continue to find new ways to use and 
emit less polluting and lower toxicity compounds. EPA urges even 
companies not participating in the 33/50 program to explore and adopt 
housekeeping practices, chemical handling procedures, and equipment 
configurations that lead to lower chemical consumption.
    (d) Supercritical carbon dioxide. Supercritical carbon dioxide is 
acceptable as a substitute for CFC-113 and MCF in the metals cleaning 
sector. The Agency's risk screen did not identify any environmental 
effects with significant concerns for this substitute.
    (e) Vanishing oils. Vanishing oils are acceptable substitutes for 
CFC-113 and MCF in the metals cleaning sector. Although these materials 
are VOCs, extensive regulations exist at the Federal, state, and local 
level to control any new VOC uses. In addition, newer vanishing oils 
often have higher flashpoints, enabling them to be flashed and captured 
in ovens.
    (f) Volatile methyl siloxanes (dodecamethylcyclohexasiloxane, 
hexamethyldisiloxane, octamethyltrisiloxane, decamethyltetrasiloxane). 
The volatile methyl siloxanes dodecamethylcyclohexasiloxane, 
hexamethyldisiloxane, octamethyltrisiloxane, and 
decamethyltetrasiloxane are acceptable substitutes for CFC-113 and MCF 
in the metals cleaning sector. The Agency's risk screen for these 
chemicals indicated that exposure to these substitutes are generally 
below levels that would raise concern for health risks. Two of the 
volatile methyl siloxanes, octamethylcyclotetrasiloxane and 
decamethylcyclopentasiloxane, have low company-set exposure limits, and 
these chemicals will be handled under a separate rulemaking.
    (2) Electronics cleaning. a. (Semi-aqueous/aqueous cleaners).Semi-
aqueous and aqueous cleaners are acceptable substitutes for CFC-113 and 
MCF in electronics cleaning. The justification for this determination 
is described in the section on metals cleaning. In this case, the 
Agency estimated that up to 80 percent of the cleaning market could be 
captured by semi-aqueous cleaners and that up to 60 percent of the 
market could be served by aqueous cleaners. As in metals cleaning, the 
Agency urges companies to adopt pollution prevention practices and to 
select formulations with low overall toxicity.
    Effluent limitations and standards that affect use of water-based 
formulations in the electronics cleaning sector will be proposed under 
the Clean Water Act for the Phase I Metal Products and Machinery sector 
by November 1994. Phase I includes electronic equipment along with 
other manufacturing areas such as aerospace, hardware and mobile 
industrial equipment. Phase II, to be issued later, covers household 
and office equipment in addition to sectors such as motor vehicles and 
shipbuilding.
    (b) No-clean substitutes. No-clean processes are acceptable 
substitutes for CFC-113 and MCF in electronics cleaning. The Agency's 
analysis estimates that, over time, as much as seventy percent of the 
electronics cleaning market could switch to no-clean processes--a 
projection that is borne out by the high degree of interest shown by 
electronics companies in these substitutes.
    Concerns for risks deriving from use of no-clean processes focus 
primarily on worker safety. To examine these risks, the Agency looked 
at critical factors that distinguish no-clean processes from 
conventional electronics assembly. These differences center on changes 
in the proportions of chemicals used in formulations, rather than on 
differences in the identity of chemicals selected. The analysis 
determined that occupational risks deriving from these differences are 
already well-documented and controlled, for example, through 
requirements specified on key Materials Safety Data Sheets and existing 
workplace regulations implemented by OSHA.
    Additionally, the shifts in proportions of chemicals used in the 
formulation result in less waste than is normally generated through the 
traditional manufacturing process, resulting in a lower probability of 
overall adverse effects to the general population. The Agency also 
investigated the production of waste before and after the actual 
cleaning process and found that waste generation at these points in the 
production process would not be greater than what is seen with CFC-113 
or MCF use.
    This acceptability listing also applies to water-removable fluxes 
and inert gas soldering.
    (c) Straight organic solvent cleaning. Straight organic solvent 
cleaning is an acceptable substitute for CFC-113 and MCF in the 
electronics cleaning sector. This acceptability determination extends 
to organic solvents used as individual chemicals as well as in 
combinations. The Agency's justification for this decision is described 
in the section on acceptable substitutes for metals cleaning.
    (d) Other chlorinated solvents. Trichloroethylene (TCE), 
perchloroethylene (perc) and methylene chloride (meth) are all 
acceptable substitutes for CFC-113 and MCF in the electronics cleaning 
sector. The reasons for this decision are described in the metals 
cleaning discussion. Although these solvents have not received as much 
commercial interest for electronics cleaning as for metals cleaning 
applications, the Agency did receive a request to review these 
chemicals for electronics cleaning.
    Although the Agency's risk screen focused on use of these chemicals 
in metals cleaning operations, the screen suggests that release 
profiles for these chemicals in electronics cleaning will be either the 
same or lower. As a result, the Agency has reached the same conclusion 
with respect to electronics cleaning as in the metals cleaning 
analysis, namely that any risks due to the inherent toxicity of these 
chemicals could be controlled by existing and future regulatory 
standards.
    (e) Supercritical fluid cleaning, plasma cleaning, UV-ozone 
cleaning. Supercritical fluid cleaning, plasma cleaning, UV-ozone 
cleaning are all acceptable as substitutes for CFC-113 and MCF in 
electronics cleaning. The Agency did not identify any environmental 
issues associated with use of these substitutes. While ozone is 
hazardous to human health, OSHA has already set standards for use of 
this compound in the workplace.
    (f) Volatile methyl siloxanes (dodecamethylcyclohexasiloxane, 
hexamethyldisiloxane, octamethyltrisiloxane, decamethyltetrasiloxane). 
The volatile methyl siloxanes dodecamethylcyclohexasiloxane, 
hexamethyldisiloxane, octamethyltrisiloxane, and 
decamethyltetrasiloxane are acceptable substitutes for CFC-113 and MCF 
in the electronics cleaning sector. The Agency's risk screen for these 
chemicals indicated that exposure to these substitutes are generally 
below levels that would raise concern for health risks. Two of the 
volatile methyl siloxanes, octamethylcyclotetrasiloxane and 
decamethylcyclopentasiloxane, have low company-set exposure limits, and 
these chemicals will be handled under a separate rule-making.
    (3) Precision cleaning. (a) Semi-aqueous/aqueous cleaners. Semi-
aqueous and aqueous cleaners are acceptable substitutes for CFC-113 and 
MCF in precision cleaning. The reasons for this decision are the same 
as those described in the metals cleaning section. Each of these 
alternatives has the potential to service approximately 65 percent of 
the precision cleaning market. This figure may overestimate the 
technical potential for water-based cleaners in this sector, since this 
end use sector faces the greatest technical constraints in implementing 
new cleaning alternatives.
    The Agency did not specifically examine risks from water-based 
formulations used in precision cleaning since the processes are 
typically either similar to those used in metals cleaning or have lower 
throughputs and therefore fewer discharges. Therefore, the analysis 
assumed that these risks from precision cleaning would be either 
comparable to or less than risks associated with use of water-based 
formulations for metals cleaning.
    (b) Other chlorinated solvents. Other chlorinated solvents are 
acceptable substitutes for CFC-113 and MCF in precision cleaning. The 
reasons for this decision are described in the section on metals 
cleaning. For the analysis of risks from these substitutes in the 
precision cleaning end use sector, the Agency made the same assumptions 
as in its analysis for electronics cleaning applications of water-based 
formulations, namely that exposures would be equal to or less than 
exposures in the metals cleaning sector since the processes for 
precision cleaning are similar or even of lower emissions than those 
for metals cleaning. Consequently, the Agency believes that risks would 
also be either equivalent or lower.
    (c) Straight organic solvent cleaning. Straight organic solvent 
cleaning is an acceptable substitute for CFC-113 and MCF in precision 
cleaning. This acceptability determination extends to organic solvents 
used as individual chemicals as well as in combinations. The Agency's 
justification for this decision is described in the section on 
acceptable substitutes for metals cleaning.
    (d) Supercritical fluid cleaning, plasma cleaning, UV-ozone 
cleaning. Supercritical fluid cleaning, plasma cleaning, UV-ozone 
cleaning are all acceptable as substitutes for CFC-113 and MCF in 
precision cleaning. The Agency did not identify any environmental 
issues associated with use of these substitutes. While ozone is 
hazardous to human health, OSHA has already set standards for use of 
this compound in the workplace.
    (e) Volatile Methyl Siloxanes (dodecamethylcyclohexasiloxane, 
hexamethyldisiloxane, octamethyltrisiloxane, decamethyltetrasiloxane). 
The volatile methyl siloxanes dodecamethylcyclohexasiloxane, 
hexamethyldisiloxane, octamethyltrisiloxane, and 
decamethyltetrasiloxane are acceptable substitutes for CFC-113 and MCF 
in the precision cleaning sector. The Agency's risk screen for these 
chemicals indicated that exposure to these substitutes are generally 
below levels that would raise concern for health risks. Two of the 
volatile methyl siloxanes, octamethylcyclotetrasiloxane and 
decamethylcyclopentasiloxane, have low company-set exposure limits, and 
these chemicals will be handled under a separate rule-making.
    b. Substitutes acceptable subject to use conditions. (None).
    c. Substitutes acceptable subject to narrowed use limits. (1) 
Metals Cleaning. (None). (2) Electronics Cleaning. (a) 
Perfluorocarbons. Perfluorocarbons (PFCs) are acceptable substitutes 
for CFC-113 and MCF in the electronics cleaning sector for high-
performance, precision-engineering cleaning applications only where 
reasonable efforts have been made to ascertain that other alternatives 
are not technically feasible due to performance or safety requirements. 
PFCs covered by this determination are C5F12, C6F12, C6F14, C7F16, 
C8F18, C5F11NO, C6F13NO, C7F15NO, and C8F16O. The uses of PFCs in 
solvent cleaning are restricted due to global warming concerns. PFCs 
display intrinsic properties that point to their potential to be 
contributors to global warming. All PFCs, for instance, have very long 
atmospheric lifetimes. As an example, C5F12 (perfluoropentane) has a 
lifetime of approximately 4,100 years. This means that for practical 
purposes, any global warming effects from PFCs are irreversible. In 
contrast, the lifetime of CFC-113 is, at 110 years, 40 times smaller. 
Since greenhouse gases come from many diverse sources, even small 
emissions of PFCs warrant controls if global warming is to be 
successfully mitigated. The risk screen for the solvent cleaning sector 
discusses the atmospheric properties of PFCs and provides a more 
detailed discussion of why PFCs merit being listed as acceptable only 
for narrowed uses.
    Despite concerns about the global warming potential of PFCs, the 
Agency has listed this niche application as an acceptable use of 
perfluorocarbons because, for certain high-performance, precision-
engineered components and equipment, a PFC-based cleaning system may be 
the only viable alternative available to replace use of class I or II 
compounds.
    The characteristics of components or equipment that may require 
PFC-based cleaning are if the part:
     Requires extremely low levels of remaining particulate and 
residue for adequate performance (as opposed to cosmetic appearance).
     Possesses complex geometric configurations and or 
capillary spaces (as small as 1 micron) which greatly hinder cleaning 
and drying.
     Contains or is made of materials sensitive to corrosion, 
oxidation or other damage from water (such as ceramics, gallium 
arsenide, silicon nitride, or magnesium), where that damage would 
degrade subsequent performance of the product.
     Contains temperature-sensitive materials that cannot 
maintain their integrity at the high drying temperatures of alternative 
systems.
     Contains materials that are hydrophilic or otherwise 
impaired by contact with water.
     Is extremely fragile, requiring the use of a low 
viscosity, very low surface tension fluid.
     Is contaminated with specialized halogenated lubricants or 
damping fluids such as perfluoropolyethers.
     Is a low-volume prototype under development for research, 
testing and evaluation purposes.
    Users should note that the presence of one of these parameters 
alone does not necessarily indicate the need to use a PFC. For 
instance, a water-sensitive part could potentially also be cleaned 
using a solvent wash, solvent rinse without PFCs.
    Examples of components where PFCs may be necessary are:
     Precision optical and electro-optical systems such as 
components for highpowered lasers or weapon targeting systems.
     Specialized electrical, semiconductor and electronic 
components, connectors and assemblies such as precision electronic 
components used for military and avionics applications.
     Sensitive medical devices and medical equipment components 
such as electronic circuitry for pacemakers (does not include 
prosthetic devices).
     Precision telecommunications and communications components 
such as microwave hybrid components for electronic warfare.
     High-performance computer components and computer electro-
mechanical assemblies such as direct access storage devices.
    Other examples are listed in the section on precision cleaning. 
Examples of parts where alternatives other than PFCs exist are 
electronic parts for low-value, mass-produced consumer or standard 
machined metal parts.
    A specific example under electronics cleaning where PFCs may be 
necessary exists in manufacture of certain direct access storage 
devices (DASDs) for computers. To make the technical improvements 
demanded of the storage devices, such as faster access times and higher 
recording densities, companies have been required to use magnetically 
superior materials. These materials are extremely prone to corrosion 
from water and are vulnerable to any contamination introduced in the 
manufacturing process, such as organic or particulate matter. 
Consequently, the storage device itself must be a miniature ``clean 
room'' if it is to perform correctly. Manufacturers of some DASDs can 
use water-based cleaners in much of the production process, but may 
need to rely on the PFCs as water-displacement agents to achieve the 
required high degree of cleanliness while protecting the water-
sensitive materials in the device.
    As the acceptability determination states, before users adopt PFCs 
as part of a substitute cleaning system, they must ascertain that 
``other alternatives are not technically feasible due to performance or 
safety requirements.'' This statement implies users will undertake a 
thorough technical investigation of alternatives before implementing 
the PFCs. A determination, for instance, that PFCs are necessary simply 
``because my parts cannot tolerate water,'' is insufficient. Similarly, 
companies should avoid rejecting an alternative simply because it is 
flammable or toxic, since equipment now exists which may be feasible 
for some uses that makes it possible for a broad spectrum of 
alternatives to meet performance and safety standards.
    Users may contact vendors of alternatives to explore with experts 
on these alternatives whether or not they would work. This effort may 
involve a detailed discussion of the type of parts, e.g., function, 
substrate, geometry, and cleanliness standards. A possible approach is 
to actually arrange for the parts to be tested with other cleaning 
alternatives. For example, a concern regarding the flammability of 
isopropyl alcohol is not sufficient reason to reject this alternative, 
unless the user has contacted vendors and examined the newer styles of 
equipment and found them insufficiently safe. To assist users in their 
evaluation, EPA has prepared a list of vendors selling substitutes for 
cleaning solvents. Although EPA does not require users to report their 
test results in a certification to the Agency, companies must keep 
these results on file for future reference.
    In cases where users must rely on PFCs due to lack of other 
options, they should make every effort to:
     Adopt closed systems and recover, recycle and destroy 
where possible.
     Pre-clean where possible with other alternatives so as to 
avoid unnecessary use of PFCs.
     Reduce emissions to a minimum through equipment features 
and conservation practices that address idling losses, liquid dragout, 
and operator variables (adequate freeboard, chillers, welded piping, 
programmable hoists, operator training, etc.).
     Continue to search for long-term alternatives.
    The Agency believes that it is reasonable to expect users to 
achieve favorable CFC/PFC replacement ratios since PFCs have relatively 
higher boiling points. In addition, the high price of PFCs makes 
additional containment cost-effective. Companies forced to use PFCs due 
to lack of other alternatives may use the PFC-based equipment to clean 
and dry other precision parts, but only if the amount of PFCs needed to 
stock the equipment does not increase.
    Prospective users should also note that companies now investigating 
PFC use contend that within 2-3 years, it will be possible to replace 
the PFCs in cleaning equipment with HFCs or other options that have 
zero ozone depletion potential and significantly lower global warming 
potential. As a result, they view use of the PFCs as an important but 
transitional solution to their cleaning needs. If PFCs are chosen, it 
is important for users to begin working with chemical manufacturers to 
start testing and qualifying these new materials to help speed 
conversion when alternative chemicals become commercially available.
    Users of PFCs should note that if other alternatives such as HFCs 
or other cleaning substitutes are later found to meet performance or 
safety standards, the Agency could be subject to a petition requesting 
it to list PFCs as unacceptable substitutes due to availability of 
other alternatives. If such claims are determined to be accurate and 
EPA limits the acceptability listing even further, EPA may grandfather 
existing uses but only to the extent warranted by cost and timing 
considerations associated with testing and retrofitting.
    (3) Precision cleaning. (a) Perfluorocarbons. Perfluorocarbons 
(PFCs) are acceptable substitutes for CFC-113 and MCF in the precision 
cleaning sector only for high-performance, precision-engineering 
cleaning applications where reasonable efforts have been made to 
ascertain that other alternatives are not technically feasible due to 
performance or safety requirements. PFCs covered by this determination 
are C5F12, C6F12, C6F14, C7F16, C8F18, C5F11NO, C6F13NO, C7F15NO, and 
C8F16O. The electronics cleaning section discusses the justification 
for this narrowed use acceptability listing.
    Despite concerns about the global warming potential of PFCs, the 
Agency has listed this narrowed application as an acceptable use of 
perfluorocarbons in precision cleaning because, for certain high-
performance, precision-engineered components and equipment, a PFC-based 
system may be the only viable alternative available to replace use of 
class I or II compounds.
    Types of precision components that may require PFC-based cleaning 
include:
     High-performance guidance, navigation and tracking systems 
such as gyroscopes and accelerometers.
     High-performance aerospace and avionics components and 
equipment such as liquid oxygen systems or rotational hand controllers.
     Critical analytical devices and their components used for 
gas chromatography where low residue levels are essential.
     Optical components made from plastics damaged irreparably 
by water or other solvents or coated or mounted with specialized 
materials.
    Interested users should review the section on PFCs under 
electronics cleaning for a full discussion of the considerations, 
limitations, and requirements associated with selecting this 
alternative.
    d. Unacceptable substitutes. (1) Metals cleaning. (a) HCFC-141b and 
its blends. HCFC-141b and its blends are unacceptable as substitutes 
for CFC-113 and MCF in metals cleaning, with acceptability subject to 
narrowed use limitations to be granted by EPA, if necessary, as CFC-113 
replacements after the effective date of this listing. The effective 
date for this listing is 30 days after the date of the final rule for 
uses of HCFC-141b and its blends in new equipment (including retrofits 
made after the effective date) and as of January 1, 1996, for uses of 
HCFC-141b and its blends in existing equipment. For purposes of this 
SNAP determination, ``existing equipment'' is defined to include 
equipment that companies have shown a clear intention to use and have 
purchased before the effective date of the SNAP determination, even if 
that equipment has not yet been installed.
    As discussed earlier in this action in Section VI.B., the Agency is 
authorized to grandfather existing uses from a prohibition where 
appropriate under the four-part test established in Sierra Club v. EPA, 
supra. The Agency has conducted the four analyses required under this 
test, and has concluded that the balance of equities favors a 
grandfathering period of two years for uses of HCFC-141b in existing 
equipment in this application. The prohibition set forth in this action 
clearly represents a departure from previously established practice, as 
use of the substitute was allowed previously. Existing users of HCFC-
141b who switched from class I substances into this solvent invested in 
this substitute on the assumption that it would be a sufficient 
improvement over the class I use. Prohibiting their use of the 
substitute immediately would impose a severe economic burden on these 
users. These factors taken together outweigh any statutory interest in 
applying the new rule immediately to existing users. This is especially 
true since the restriction applies immediately to new equipment using 
HCFC-141b, which creates no incentive for continued investment in 
equipment using HCFC-141b in this application.
    The Agency's basis for proposing to restrict use of HCFC-141b is 
that this compound has a comparatively high ODP--0.11. This is the 
highest ODP of all the HCFCs; in fact, the ODP for HCFC-141b is nearly 
equal to the ODP for MCF (0.12). For this reason, the Agency concludes 
that replacing MCF with HCFC-141b is unacceptable, since using HCFC-
141b in place of MCF would not provide the environmental benefits that 
the phase-out was designed to achieve.
    To analyze the impacts from use of HCFC-141b as a CFC-113 
replacement, the Agency estimated HCFC-141b use over time in each of 
the cleaning end uses, and projected health effects due to ozone 
depletion with the help of the Atmospheric Stabilization Framework 
model. The modeling period starts in 1990 and measures health effects 
expected for people born before 2030.
    The findings of this modeling show adverse health effects of the 
magnitude commonly associated with the use of ozone-depleting 
compounds. For example, in the case of metals cleaning, the Agency 
projected that use of HCFC-141b to replace MCF where technically 
feasible could yield approximately 40,000 additional skin cancer cases 
and approximately 1,000 additional skin cancer fatalities compared to 
use of non-ozone-depleting substitutes.
    The Agency believes that these figures and the availability of 
superior substitutes as described in the section on acceptable 
substitutes justify the proposal to list HCFC-141b as an unacceptable 
substitute. The Agency believes that, in almost all applications, other 
solvent cleaning substitutes are available that meet industry 
performance and safety criteria. To reach its decision on HCFC-141b 
use, the Agency also took into account the cost of other alternatives. 
The analysis suggested that, although HCFC-141b can be used with 
modification to existing equipment, the capital costs for the retrofit 
and the materials costs in combination would be so high as to render 
other alternatives comparatively affordable, even though they require 
new equipment.
    HCFC-141b will be restricted as a substitute only where other 
alternatives exist to CFC-113 for the application in question. Several 
companies have already contacted the Agency, indicating that they have 
tested available alternatives to CFC-113, and that in some cases only 
HCFC-141b meets performance or safety criteria. The most commonly cited 
reasons for needing to use HCFC-141b are either applications where a 
non-flammable solvent is required or where sensitive parts could be 
destroyed by use of other cleaning systems.
    For these applications of HCFC-141b, the Agency may find that the 
uses are acceptable subject to limitations if it determines that these 
critical uses persist beyond the grandfathering period provided in the 
listing. For EPA to issue a narrowed use acceptability listing, 
companies who believe they may need to use HCFC-141b past the effective 
date must first contact EPA, since the Agency has not yet received any 
indication from users of a technical need to use HCFC-141b past the 
grandfathering period granted under the unacceptability listing. 
Narrowed use acceptability listings are described in more detail in 
section VII. of the Preamble. Companies interested in submitting a SNAP 
application for a narrowed use are encouraged to contact the Agency at 
least 90 days in advance of the expiration of the grandfathering 
period. Companies that intend to use HCFC-141b within the parameters of 
the final unacceptability listing and who will cease using HCFC-141b 
after the expiration of the grandfathering period need not contact the 
Agency.
    The Agency believes that the decision to restrict HCFC-141b use as 
a CFC-113/MCF substitute for metals cleaning will have little effect on 
industry since few vendors of HCFC-141b have been selling HCFC-141b as 
a metals cleaning substitute. Companies in this end use sector that 
want to replace CFC-113 with HCFC-141b and use it beyond the date 
described in this SNAP determination should review the section 
referenced above. The Agency expects to receive few such requests, 
however, since most metals cleaning is currently performed with MCF.
    (2) Electronics cleaning. (a) HCFC-141b and its blends. HCFC-141b 
and its blends are unacceptable as substitutes for CFC-113 and MCF in 
electronics cleaning, with acceptability subject to narrowed use 
limitations to be granted by EPA, if necessary, as CFC-113 replacements 
after the effective date of this listing. The effective date for this 
prohibition is 30 days after the date of the final rule for new 
equipment (including retrofits made after the effective date) and 
January 1, 1996 for existing equipment. The structure and reasons for 
this unacceptability listing are the same as those for the decision on 
HCFC-141b as a metals cleaning substitute. As in the metals cleaning 
sector, the Agency will grant narrowed use acceptability listings in 
limited cases for use beyond the grandfathering period of the listing, 
as necessary. As discussed earlier in this action in section VI.B., the 
Agency is authorized to grandfather existing uses from a prohibition 
where appropriate under the four-part test established in Sierra Club 
v. EPA, supra.
    The Agency has conducted the four analyses required under this 
test, and it has concluded that the balance of equities favors a 
grandfathering period of two years for existing equipment in this 
application. The prohibition set forth in this action clearly 
represents a departure from previously established practice, as use of 
the substitute was allowed previously. Existing users of HCFC-141b who 
switched from class I substances into this solvent invested in this 
substitute on the assumption that it would be considered an acceptable 
substitute. It would impose a severe economic burden on these users to 
prohibit their use of the substitute immediately, with no provision of 
time to allow them to recover their investment in existing equipment or 
acquire new equipment in a timely fashion. These factors taken together 
appear to outweigh any statutory interest in applying the new rule 
immediately to existing users, especially since the restriction would 
apply immediately to new equipment using HCFC-141b, which would serve 
to prevent further ozone depletion from use of HCFC-141b in this 
application.
    As with metals cleaning applications for HCFC-141b, the Agency 
modeled potential HCFC-141b use in electronics cleaning applications 
over time, and projected health effects due to ozone depletion with the 
help of the Atmospheric Stabilization Framework model. For electronics 
cleaning, the maximum market penetration for HCFC-141b as a replacement 
for CFC-113 is 90 percent. With this penetration, the model predicted 
approximately 400 additional skin cancer fatalities and 30,000 
additional skin cancer cases compared to uses of non-ozone-depleting 
substitutes.
    (3) Precision cleaning. (a) HCFC-141b. HCFC-141b and its blends are 
unacceptable as substitutes for CFC-113 and MCF in precision cleaning, 
with acceptability subject to narrowed use limitations to be granted by 
EPA, if necessary, as CFC-113 replacements after the effective date of 
this listing. The effective date for this listing is 30 days after the 
date of the final rule for new equipment and as of January 1, 1996, for 
existing equipment. The structure and reasons for this decision are 
described in the section on metals cleaning. As discussed earlier in 
this action in section VI.B., the Agency is authorized to grandfather 
existing uses from a prohibition where appropriate under the four-part 
test established in Sierra Club v. EPA, supra.
    The Agency has conducted the four analyses required under this 
test, and it has concluded that the balance of equities favors a 
grandfathering period of two years for existing equipment in this 
application. The prohibition set forth in this action clearly 
represents a departure from previously established practice, as use of 
the substitute was allowed previously. Existing users of HCFC-141b who 
switched from class I substances into this solvent invested in this 
substitute on the assumption that it would be considered an acceptable 
substitute. It would impose a severe economic burden on these users to 
prohibit their use of the substitute immediately, with no provision of 
time to allow them to recover their investment in existing equipment or 
acquire new equipment in a timely fashion. These factors taken together 
outweigh any statutory interest in applying the new rule immediately to 
existing users, especially since the restriction would apply 
immediately to new equipment using HCFC-141b, which would serve to 
prevent further ozone depletion from use of HCFC-141b in this 
application.
    In the case of precision cleaning uses of HCFC-141b, the Agency's 
modeling of HCFC-141b use as a CFC-113 replacement projected 
approximately 5,000 additional skin cancer cases when compared to use 
of non-ozone-depleting substitutes.
    As in the case of other cleaning applications, the Agency finds 
unacceptable substitutions of HCFC-141b to replace MCF, since these 
compounds have nearly identical ODPs. Here again, the Agency will 
grant, if necessary, a limited narrowed use acceptability listings for 
CFC-113 past the exemption granted in the grandfathering period. 
However, the Agency expects only few requests for permission to use 
HCFC-141b to come from this sector, since most companies who requested 
exemptions to date to have stated that they view their use of HCFC-141b 
only as an interim solution. EPA believes that, absent future 
indications from such companies, all uses of HCFC-141b can be 
terminated by the effective date of the unacceptability listing.

G. Fire Suppression and Explosion Protection

1. Overview
    Halons are gaseous or easily vaporizable halocarbons used primarily 
for putting out fires, but also for explosion protection. The two 
halons used most widely in the United States are Halon 1211 
(chlorodifluorobromomethane) and Halon 1301 (trifluorobromomethane). 
Halon 1211 is used primarily in streaming applications and Halon 1301 
is typically used in total flooding applications. Some limited use of 
Halon 2402 also exists in the United States, but only as an 
extinguishant in engine nacelles (the streamlined enclosure surrounding 
the engine) on older aircraft and in the guidance system of Minuteman 
missiles.
    Halons are used in a wide range of fire protection applications 
because they combine five characteristics. First, they are highly 
effective against solid, liquid/gaseous, and electrical fires (referred 
to as Class A, B, and C fires, respectively). Second, they are clean 
agents; that is, they dissipate rapidly, leaving no residue and thereby 
avoiding secondary damage to the property they are protecting. Third, 
halons do not conduct electricity and can be used in areas containing 
live electrical equipment. Fourth, halons are gaseous substances that 
can penetrate in and around physical objects to extinguish fires in 
otherwise inaccessible areas. Finally, halons are generally safe for 
limited human exposure when used with proper exposure controls.
    Despite these advantages, halons are among the most ozone-depleting 
chemicals in use today. Halon 1301 has an estimated ODP of 10; Halon 
1211 has an estimated ODP of 3. Thus, while total halon production 
(measured in metric tons) comprised just 2 percent of the total 
production of class I substances in 1986, halons represented 23 percent 
of the total estimated ozone depletion potential of CFCs and halons 
combined.
    The greatest releases of halon into the atmosphere occur not in 
extinguishing fires, but during testing and training, service and 
repair, and accidental discharges. Data generated as part of the 
Montreal Protocol's technology assessment indicate that only 15 percent 
of annual Halon 1211 emissions and 18 percent of Halon 1301 emissions 
occur as a result of use to extinguish actual fires. These figures 
indicate that significant gains can be made in protecting the ozone 
layer by revising testing and training procedures and by limiting 
unnecessary discharges through better detection and dispensing systems 
for halon and halon alternatives.
    Additional information on specific halon uses can be found in the 
Montreal Protocol 1991 Assessment or in other background material in 
the public docket. The determinations found in this section are based 
on the risk screen described in the background document entitled ``Risk 
Screen on the Use of Substitutes for Class I Ozone-Depleting 
Substances: Fire Extinguishing and Explosion Protection (Halon 
Substitutes)'', and in supplementary assessments included in the public 
docket.
2. Substitutes for Halons
    The fire protection community has made considerable progress in 
identifying and developing substitutes for halons in fire protection 
applications. Several manufacturers have submitted information 
regarding substitute streaming and total flooding agents, and the 
National Fire Protection Association (NFPA) has initiated efforts to 
develop standards for their use in total flooding scenarios (NFPA 
2001). In addition, manufacturers are seeking Underwriters Laboratories 
(UL) and Factory Mutual Research Corporation (FMRC) certification for 
systems employing the new agents. The Agency's review of halon 
substitutes is intended not to replace, but to complement the guidance 
of the fire protection community in directing the transition away from 
halons to substitutes posing lower overall risk.
    Many recent efforts to develop substitutes for halon have focused 
on halocarbon chemicals. These are considered potential 
``replacements'' for halon because they possess halon-like properties 
(gaseous, non-conducting) and because they can be used on Class A, B, 
and C fires. Some of the replacement chemicals are chemical action 
agents which, like halons, suppress fires by interfering with the free 
radical chain reactions that sustain a fire. Others are physical action 
agents which cool, dilute, or smother the fire (separating the air and 
fuel). In general, chemical action agents are much more effective fire 
suppressants than physical action agents.
    Halocarbons represent only a portion of agents available for fire 
protection, and in fact appear to be a decreasing portion as users more 
and more are choosing to install ``alternative'' systems. Water, carbon 
dioxide, foam, and dry chemical are already in widespread use as fire 
extinguishants and may capture some of the former halon market. Water 
mist, powdered aerosols and inert gases are new technologies that are 
also likely to claim part of the former halon market. EPA encourages 
users to assess their risk management schemes and, where possible, to 
minimize reliance on chemical agents. Nonchemical alternatives should 
be seriously evaluated to determine whether they afford the necessary 
level of protection in any given application.
    In assessing toxicity of a halocarbon, EPA pays special attention 
to consumer and worker exposure to discharges during fire emergencies 
and accidental discharges. In these acute, episodic exposures to the 
halon substitutes, cardiac sensitization is of particular interest. The 
term cardiac sensitization refers to an increased susceptibility of the 
heart to adrenaline (or other catecholamines) which may result in 
potentially fatal heart arrhythmias.
    Several studies involving human exposure in a laboratory setting 
establish the potential significance for human health of animal data on 
cardiac sensitization. Evaluating the safety of potential halon 
substitutes requires the measurement of the No Observed Adverse Effect 
Level (NOAEL) and the Lowest Observed Adverse Effect Level (LOAEL) of 
cardiac sensitization in an appropriate species, usually the dog. EPA 
uses the NOAEL value as the basis to ensure protection of the worker 
population. The protocols used to determine the cardiotoxic NOAEL and 
LOAEL concentrations for each agent are conservative. The 
cardiotoxicity effect levels are measured in animals that have been 
made more sensitive to these effects by the administration of 
epinephrine concentrations which are just below the concentrations at 
which epinephrine alone causes cardiotoxicity. The concentration of 
epinephrine required to cause this heightened sensitivity is 
approximately ten times greater than the concentration a human being 
would be likely to secrete under stress.
    The determination of the safety of either a flooding or streaming 
agent substitute is also dependent on a number of other related 
factors. For total flood systems, the magnitude of exposure will depend 
on the design concentration of the flooding agent (as determined by the 
substitute's extinguishing concentration plus 20 percent, as specified 
by NFPA guidelines) and the length of time it takes a person to 
evacuate the area in which the agent is released. In assessing exposure 
and consequent use conditions, the design concentration of a total 
flood substitute is compared to its cardiotoxic NOAEL and LOAEL levels. 
Generally, if the design concentration is higher than the agent's LOAEL 
level, then the agent is not suitable for use in normally occupied 
areas. EPA is adopting the OSHA standard (29 CFR 1910, subpart L) 
section 1910.162, which limits the exposure to an agent based upon the 
length of time it takes to evacuate an area. In addition, EPA makes 
note that OSHA standard 1910.160 also applies to gaseous total flood 
systems.
    In addition, EPA recognizes that agents should not be used at a 
concentration that significantly displaces oxygen in the lungs. Most of 
the CFC and halon substitutes are gaseous, heavier-than-air compounds, 
which following a leak or catastrophic emission may tend to pool near 
the ground, i.e. in the breathing zone. Since these agents are, in the 
main, colorless with minimal odor and little toxicity or irritant 
effect, they can lead to asphyxiation by oxygen displacement if the 
unwary inadvertently walk into an area of oxygen depletion. The 
designer of a total flood system should be particularly alert to this 
possibility during discharge and subsequent dispersion of the agent in 
the space. For compounds which do not elicit a cardiotoxic effect until 
very high concentrations have been reached, care should be taken that 
sufficient oxygen remains in the room so that asphyxiation will not 
occur.
    In contrast to total flooding agents, exposure to substitute 
streaming agents can be expected to vary greatly depending on the 
amount of agent released, the time needed to extinguish a fire, the 
size of the room or enclosure in which a fire occurs, the size of the 
fire, the proximity of the person to the point of discharge of the 
agent, the rate at which fresh air infiltrates the space, and the air 
exchange rate near the fire. Assessment of exposure in streaming 
applications is much more complicated. EPA employs the `box model' to 
assess consumer exposure, which has been widely used for many years to 
estimate probable exposures of workers to hazardous airborne materials, 
and has been described in detail by the National Institute for 
Occupational Safety and Health (NIOSH) and is discussed in detail in 
the background documents. The box model takes into consideration 
assumptions on volume of the space in which the extinguishant is used, 
rate at which fresh air infiltrates the space, amount and rate of agent 
release, area of the fire, location of the worker, and the air exchange 
rate in the vicinity of the fire. Values obtained through the box 
model, compared to cardiotoxic NOAEL/LOAEL values, provide a screen for 
assessing risk. However, EPA has found that the model often overstates 
the actual exposure to an agent, and therefore, EPA requires personal 
monitoring tests be conducted in actual use scenarios in order to 
complete the assessment.
    Evaluating halon substitutes also requires assessing the efficacy 
of substitute agents. The efficacy of a fire protection agent can be 
compared using a cup burner or full scale test to obtain the 
extinguishing concentration in a particular fuel. NFPA standards 
require an additional 20 percent be added to obtain the design 
concentration. Most values identified in this rule are obtained by cup 
burner, while some are obtained by full scale testing, and most are in 
heptane. This measure is included in the discussion of halon 
substitutes for information and comparative purposes, and EPA does not 
assert that the efficacy values listed here are appropriate for all 
fire or explosion hazards. The user community is cautioned to consult 
the appropriate NFPA standard, relevant OSHA regulations, and 
professional fire consultants to determine actual requirements.
    After concluding the analysis of halon alternatives, EPA in some 
cases finds acceptable the use of an agent only under certain 
conditions. In implementing its use of conditions, the Agency has 
sought to avoid overlap with other existing regulatory authorities. EPA 
believes that section 612 clearly authorizes imposition of use 
conditions to ensure safe use of replacement agents. EPA's mandate is 
to list agents that ``reduce the overall risk to human health and the 
environment'' for ``specific uses.'' In light of this authorization, 
EPA is only intending to set conditions for the safe use of halon 
substitutes in the workplace until OSHA incorporates specific language 
addressing gaseous agents into OSHA regulation. Under OSHA Public Law 
91-596, section 4(b)(1), OSHA is precluded from regulating an area 
currently being regulated by another federal agency. EPA is 
specifically deferring to OSHA, and has no intention to assume 
responsibility for regulating workplace safety especially with respect 
to fire protection. EPA's workplace use conditions will not bar OSHA 
from regulating under its Public Law 91-596 authority. The substitutes 
for halons in fire protection applications are discussed in the next 
section by class of chemical.
    a. Brominated hydrofluorocarbons. Brominated hydrofluorocarbons 
(HBFCs) are effective halon substitutes. Because these substances 
contain bromine, they act as chemical action agents in the same manner 
as the halons. In fact, some HBFCs are more effective than Halons 1211 
and 1301 in specific applications. For this reason, HBFCs can replace 
Halons 1211 and 1301 on nearly a one-to-one basis and appear to have 
significant applicability in existing systems. However, the presence of 
bromine also means that these agents have higher ozone-depleting 
potentials than other halon substitutes.
    At this time, only one HBFC, HBFC-22B1, is expected to be 
commercially available in the near term. HBFC-22B1 can, however, serve 
only as an interim substitute for halons. The substance has an ODP of 
0.74 and has been listed as a class I substances. Under the Montreal 
Protocol and the Clean Air Act, production of HBFC-22B1 is required to 
end January 1, 1996.
    b. Hydrochlorofluorocarbons. A number of hydrochlorofluorocarbons 
(HCFCs) have also been suggested as halon replacements. These include 
HCFC-22, HCFC-123, and HCFC-124. These HCFCs will extinguish fires but 
because they are physical action agents, they are considerably less 
effective than halons or HBFCs. Thus, high concentrations must be 
achieved to extinguish fires. Further, although the ozone depletion 
potential of HCFCs is considerably lower than that of either halons or 
HBFCs, they are listed as class II chemicals under the Clean Air Act. 
The production of HCFC-141b will be phased out beginning January 1, 
2003; HCFC-22 and HCFC-142b beginning January 1, 2020; and all other 
HCFCs beginning January 1, 2030 (58 FR 65018, December 10, 1993).
    In addition, under section 610(d) of the CAA as amended, HCFCs in 
pressurized dispensers are banned from sale or distribution after 
January 1, 1994. Under the final rulemaking for section 610 (58 FR 
69637, December 30, 1993) EPA interpreted section 610(d) to exclude 
HCFCs which are part of an installed `system.' The final rule exempts 
total flooding systems and those streaming applications which 
incorporate fixed, automatic systems. However, section 610(d) only 
allows the sale of an HCFC in a portable fire extinguisher where other 
unregulated agents are not suitable for the intended applications. 
Because alternatives are available for residential uses, EPA intends to 
publish a proposed rulemaking under section 612 to update the SNAP list 
of acceptable substitutes and to ban the sale and use of HCFCs in 
portable fire extinguishers for residential applications. However, in 
commercial (including industrial and military) settings, the variety of 
hazards are too broad to create standards through rulemaking, and 
therefore under section 610(d) EPA has established industry-based 
mechanisms for controlling the sale of HCFCs.
    Generally, while HCFCs can serve only as interim halon substitutes 
due to their scheduled phaseout as class II substances, EPA believes 
that they serve an important transitional role in the phaseout of class 
I substances. HCFC-22 has been suggested as a total flooding agent, but 
this compound is unlikely to be used as a single agent in normally 
occupied areas due to its cardiotoxic profile.
    HCFC-123 is being proposed as a streaming agent to replace Halon 
1211, both in pure form and in blends. HCFC-123 could replace Halon 
1211 at a ratio of 1.8 by weight--a ratio considerably better than that 
of most other streaming substitutes. HCFC-123 has the lowest ODP of all 
the HCFCs proposed as halon substitutes, and its global warming 
potential (GWP) is half that of other HCFC substitutes.
    HCFC-124 is being proposed as both a total flooding agent and a 
streaming agent, both alone and in blends. HCFC-124 has relatively low 
ODP and GWP values. Animal testing indicates that the substance may be 
lethal to rats at a level greater than 23 percent over a four hour 
period. Due to its cardiotoxic profile, this agent is not suitable for 
use in total flooding applications in normally occupied areas. However, 
pending personal monitoring tests to assess actual exposure, it is 
possible that this agent could be used as a streaming agent.
    c. Hydrofluorocarbons. Hydrofluorocarbons (HFCs) have also been 
suggested as halon substitutes. HFCs are physical action agents and are 
less effective than halons or HBFCs. Due to their reduced efficacy, 
larger storage volumes are required for use in fire protection systems. 
Their great advantage over halons, HBFCs, and HCFCs is that HFCs have 
an ozone depletion potential of zero. However, when exposed to fires, 
HFCs potentially decompose into greater amounts of hydrogen fluoride 
(HF) than do HCFCs, depending on the number of fluorines in the 
molecule. Discharge of these chemicals onto a fire must be rapid or 
early to prevent the buildup of large amounts of these decomposition 
products.
    In addition, HFCs can potentially contribute to global climate 
change. Because of this potential, HFCs are included in President 
Clinton's Climate Change Action Plan (CCAP). Under this plan, EPA is 
directed to limit uses of greenhouse gases as substitutes for ozone-
depleting compounds. Because EPA is simultaneously also interested in 
promoting the broader shift away from ozone-depleting compounds, any 
limits on use will be imposed wherever possible in ways that preserve 
as much flexibility for those trying to move to alternatives as 
possible. To minimize unnecessary emissions of greenhouse gases, EPA is 
recommending that users limit testing only to that which is essential 
to meet safety or performance requirements; recover HFCs from the fire 
protection system in conjunction with testing or servicing; and recycle 
recovered agent for later use or destruction. Manufacturers of these 
agents must recognize their responsibility to prevent unnecessary 
emissions of these gases. Product stewardship programs may be a useful 
mechanism to help users meet these requirements. EPA will reexamine how 
to control unnecessary emissions of greenhouse gases in the future.
    HFC-23, HFC-32, HFC-125, HFC-134a, and HFC-227ea have all been 
proposed as total flooding agents. HFC-134a and HFC-227ea have also 
been proposed as streaming agents. HFCs tend to possess less risk of 
acute cardiotoxicity than do the HCFCs or HBFC-22B1.
    HFC-32 has been determined to be flammable, with a large 
flammability range, and is therefore inappropriate as a halon 
substitute. In the next SNAP update, EPA intends to propose listing 
this agent as unacceptable in total flood applications.
    d. Perfluorocarbons. Perfluorocarbons (PFCs) are fully fluorinated 
compounds which do not contribute to ozone depletion. In addition, PFCs 
are nonflammable, essentially non-toxic, and are not VOCs. PFCs are 
effective fire protection agents, having the lowest required 
extinguishing concentration of any of the suggested substitutes other 
than HBFCs. However, these compounds have high molecular weights, which 
create weight and storage replacement ratios that are somewhat higher 
than the HCFCs and many of the HFC candidates. Two PFCs have been 
submitted as halon replacements: Perfluorobutane (C4F10) as a 
total flood replacement for Halon 1301, and perfluorohexane 
(C6F14) as a substitute for Halon 1211. In the NPRM, these 
agents were referred to as FC 3-1-10 and FC 5-1-14, respectively.
    The principal environmental characteristic of concern for PFCs is 
that they have long atmospheric lifetimes and have the potential to 
contribute to global climate change. PFCs are also included in the CCAP 
which broadly instructs EPA to use section 612, as well as voluntary 
programs, to control emissions.
    While PFCs are extremely persistent, their favorable toxicity 
profile makes these agents attractive for use in occupied areas. Thus, 
EPA believes that there are instances in which PFCs represent the only 
viable alternative to transition away from the CFCs or halons.
    The Agency is finding use of PFCs acceptable only for applications 
where reasonable efforts have been made to determine that no other 
alternatives are technically feasible due to performance or safety 
requirements. However, as with all of the substitutes which are 
greenhouse gases and ozone-depleting substances, EPA recommends that 
users limit testing only to that which is essential to meet safety or 
performance requirements; recover agent from the fire protection system 
in conjunction with testing or servicing; and recycle or destroy agent 
that is recovered from a system. In addition, EPA encourages 
manufacturers to develop aggressive product stewardship programs to 
help users avoid such unnecessary emissions. EPA will reexamine how to 
control unnecessary emissions of greenhouse gases in the future.
    e. Chlorofluorocarbons. Chlorofluorocarbons (CFCs) have also been 
proposed as halon alternatives, either individually or in blends. These 
compounds are also class I substances, however, and as a matter of 
policy EPA will not encourage shifting from one class I substance to 
another, despite the fact that the ODPs of the CFCs are significantly 
lower than those of Halons 1211 and 1301. EPA does not believe it is 
appropriate to encourage shifting to substitutes that are required to 
be phased out in the near term. In addition, the sale and distribution 
of CFCs in pressurized dispensers (in this sector, portable fire 
extinguishers) are controlled under section 610(b) of the CAA.
    f. Blends. A number of manufacturers have proposed proprietary 
blends of chemicals for fire protection applications. These blends 
combine a variety of CFCs, HCFCs, HFCs, PFCs, inert gases, and other 
additives to achieve desired levels of effectiveness, toxicity, and 
decomposition products. Most of these blends contain constituents that 
have non-zero ODPs and GWPs. In assessing the ODP and GWP of such 
blends, the Agency has examined both the weighted average of the 
constituents and the individual characteristics of the constituents. 
Because toxicity varies with the exact composition of the blend, EPA 
requires cardiotoxicity tests to be conducted on the blend itself, 
rather than being inferred from the constituents.
    g. Non-halocarbon alternative agents. Non-halocarbon alternative 
agents such as CO2, dry chemical, foams, and water that are 
currently in widespread use and that are covered in NFPA standards and 
OSHA regulations may also be used as substitutes for halon. These 
agents are not as widely applicable as the halocarbon substitutes, and 
must be used where recommended by the manufacturers and approved by 
standard-setting entities such as the NFPA.
    In addition, several manufacturers have developed new technologies 
to adapt traditional agents to the halon market. Two manufacturers have 
developed inert gas blends as Halon 1301 substitutes in total flood 
systems. One of them, containing CO2 mixed with inert gases has 
already been included in the new NFPA 2001 standard.
    Water sprinkler systems are capturing part of the halon substitute 
market, often in conjunction with improved detection systems and risk 
management programs which isolate the degree of liability in a given 
fire event. A promising new water technology incorporates fine water 
droplets to create a water mist or fog. It has been suggested that 
water mist systems are safe for use on Class A and B fires, and even 
can be used on Class C electrical fires without causing secondary 
damage. Because the environmental, health and safety issues of the 
various types of water mist systems have not yet been fully addressed, 
EPA is listing water mist as pending in this rule, and will work with 
NFPA, manufacturers, and others in order to include it in the next SNAP 
update.
    Again, while dry chemicals are in widespread use, another new 
technology for both the total flooding and streaming markets involves 
the use of powdered aerosols, which combine fine powder particulates 
with gas to achieve a total flood effect.
    While foams are also in widespread use, one manufacturer has 
prepared a blend of etoxylated linear alcohol and sulfonated soap for 
use in streaming applications. This blend is not a clean agent, but 
offers another alternative technology where secondary damage can be 
tolerated. It presents benefits of rapid cool-down, prevention of 
reignition, and decrease in the quantity of water required to 
extinguish fires.
3. Response to Comments
    Key issues included in the public comment are addressed in this 
section. For a complete discussion of public comments received, refer 
to the ``Response to Comments'' document in the public docket. The 
issues addressed in this section include: Alternative technologies, 
efficacy and design, use conditions, narrowed use restrictions, and 
halon categories and subdivisions.
    a. Alternative technologies. As halon is being phased out, there is 
a growing interest in not only clean chemical substitutes but also in 
reassessing the use of conventional substitutes, adopting new risk 
management strategies and using alternative technologies. Several 
commenters expressed the view that alternatives such as water and 
CO2 are not clean agent chemical substitutes, but rather 
conventional suppression system substitutes, and have been in 
widespread use for many years. Thus, these commenters stated that such 
alternatives are outside the scope of SNAP and that EPA should only 
list clean agent chemical substitutes. They indicated that it would be 
counterproductive to list all acceptable substitutes and alternatives 
under SNAP, which are better addressed by the entire fire protection 
community, and that doing so would restrict trade and development of 
new technology. One commenter said it was unclear what purpose would be 
served by attempting to list all substitutes and alternatives, 
including a variety of system technologies.
    Section 612 of the Clean Air Act specifies that class I and class 
II substances shall be replaced by ``chemicals, product substitutes, or 
alternative manufacturing processes that reduce overall risks to human 
health and the environment'' and directs EPA to assist in identifying 
such substitutes and alternatives, promote their development, maintain 
a public clearinghouse, and publish lists of acceptable and 
unacceptable substitutes for specific uses. EPA interprets this 
language as a broad mandate to include alternative technologies. For 
the fire suppression and explosion protection sector, EPA is defining 
alternative technology to be any non-halocarbon substance discharged 
for the purpose of fire suppression or explosion protection. Thus, 
water mist, inert gas mixtures, powdered aerosols and any other `not in 
kind' alternative to CFCs and halons are alternative technologies. EPA 
believes that its assessment of potential human health and 
environmental impacts of these new technologies does, in fact, speed 
their acceptance and adoption by removing uncertainty about their safe 
use. In addition, while water sprinklers, carbon dioxide, foam, and dry 
chemical are currently in use, these substances fall within the 
definition of alternative technology. EPA will simply list these as 
acceptable and note their applicable NFPA standards.
    EPA will assess each class of alternative technology and determine 
whether a separate review is prudent due to variations in formulation 
and design of similar technologies, or whether it is possible to 
construct a broad listing of acceptability that covers several 
manufacturers. In this final rule, EPA is listing each water mist 
technology as well as inert gas blends and powdered aerosols separately 
due to the unique formulation, design and intended use of each. An 
acceptable or unacceptable listing of a particular alternative 
technology is not generalizable to similar technologies from other 
manufacturers.
    b. Efficacy and design issues. Many commenters state that in the 
NPRM, EPA has assumed that a single design concentration (obtained from 
a cup burner test for heptane) is applicable for all fire hazards and 
requested that EPA remove all reference to design concentration. 
However, several commenters noted that listing of the design 
concentration was useful in comparing the relative efficacy of 
substitute agents, as long as EPA is clear about the source of the 
data.
    In addition, many commenters feel that while EPA states that the 
SNAP rule ``is intended not to replace, but to complement the guidance 
of the fire protection community,'' EPA has ``dangerously 
oversimplified'' the many factors that must be taken into consideration 
in designing a system, and a listing of ``acceptability'' implies that 
any alternative will work in a safe and effective manner. One commenter 
specifically requested that EPA remove all references to design and 
installation requirements.
    Many commenters believe that EPA should not comment on the efficacy 
of substitutes, as this is outside the scope of the SNAP rule, and that 
EPA should only comment on environmental and toxicological concerns. 
The commenters believe EPA should only list the agent name, EPA's 
decision, NOAEL, and any specific environmental or regulatory concerns 
(such as ODP, GWP, or future phaseout date.) One commenter is concerned 
that EPA's involvement in efficacy issues will cause users to select 
agents that will result in less effective and more expensive protection 
than is needed, and will make American industry less competitive in 
world markets.
    One commenter summed up the requests of many others, suggesting 
that, at a minimum, EPA should include cautionary wording that a 
listing of `acceptable' does not imply the agent will work in any given 
application. Further, EPA should point out that the efficacy of an 
agent is dependent on the application system and should encourage users 
to consult current consensus fire codes and standards such as those 
developed by NFPA.
    By contrast, EPA believes that efficacy of a substitute agent must 
be a consideration in decision making, because EPA's charge is to 
ensure that substitutes are not on balance more risky than the ozone-
depleting compounds being replaced. A substitute which is not effective 
cannot be considered safer than the halon being replaced. In addition, 
design concentration is germane to a discussion of potential exposure 
and its consequent effects on human health.
    In addition, while most agents submitted under SNAP are relatively 
effective, the analysis of efficacy assists in the assessment of the 
availability of substitutes in various niche markets. EPA intends to 
accept as many viable substitutes as possible. If, due to technical 
concerns such as weight or storage volume equivalency, there are few or 
no substitutes available in a given application, EPA must ensure that 
it does not restrict the few available choices based on other issues, 
such as environmental concerns. EPA's primary task in SNAP is to 
facilitate the move away from ozone-depleting compounds, and this goal 
cannot be served in the fire extinguishing sector without a full 
understanding of the characteristics of the available substitutes.
    However, the Agency agrees with the commenters that data sources 
should be clearly identified. EPA does not intend to imply that cup 
burner data for heptane dictates the proper design concentration for 
all applications and for all fire hazards, nor does EPA intend to imply 
that a listing of `acceptable' means that an agent may be used in any 
application without professional consultation. In this final rule, EPA 
reaffirms the need for all potential users to consult NFPA technical 
standards, OSHA regulations, and fire protection professionals for 
actual design considerations.
    c. Use conditions. In response to EPA's request for comment on 
whether section 612 authorizes the agency to set use conditions, 
several commenters argued that setting use conditions is not within the 
purview of section 612. Some commenters stated that EPA has exceeded 
its scope of authority under the Clean Air Act, and that EPA should 
defer regulation of workplace safety to OSHA, which is the appropriate 
entity. Other commenters stated that EPA failed to consult with OSHA 
and thus overstepped its authority by setting workplace conditions.
    Other commenters feel it is proper for EPA to establish exposure 
limits on new agents as it will ensure public safety until OSHA 
regulations are complete, especially where there is little historical 
exposure information to rely on.
    EPA believes that section 612 clearly authorizes imposition of use 
conditions to ensure safe use of replacement agents. EPA's mandate is 
to list agents that ``reduce the overall risk to human health and the 
environment'' for ``specific uses.'' Where use of a substitute without 
conditions would increase overall risk, EPA is authorized to find the 
use of such substitutes totally unacceptable. Included in this is the 
authority to find acceptable the use of the substitute only if used in 
a manner that reduces overall risk, and to find unacceptable its use in 
all other cases.
    Further, EPA's use conditions on workplace safety for halon 
substitutes will exist only in the interim, until OSHA incorporates 
specific language addressing gaseous agents in the OSHA law. Under OSHA 
Public Law 91-596, section 4(b)(1), OSHA is precluded from regulating 
an area currently being regulated by other federal agencies. EPA is 
specifically deferring to OSHA, and has no intention to assume 
responsibility for regulating workplace safety in regard to fire 
protection. Consequently, EPA's use conditions are effective only until 
OSHA acts and will terminate by their own terms once OSHA establishes 
standards.
    OSHA Sec. 1910.162 governs the use of all gaseous agents in fixed 
extinguishing systems, however EPA finds that the guidance is not 
sufficiently explicit on the allowable concentrations of the different 
agents. While paragraph 1910.162(b)(3) stipulates that ``[t]he employer 
shall assure that employees are not exposed to toxic levels of gaseous 
agent or its decomposition products,'' it does not define what a `toxic 
level' is. In examining paragraph 1910.162 (b)(6)(i) through 
(b)(6)(iii), EPA concludes that it is OSHA's intent to limit exposure 
to gaseous agents based upon cardiotoxicity levels. EPA's conclusion 
was confirmed in discussions with OSHA. EPA therefore concludes that it 
is appropriate under the SNAP program to stipulate what the cardiotoxic 
levels for each agent are, and, until OSHA incorporates clarifying 
language, to impose use conditions that apply OSHA standard 1910.162 in 
its entirety to these agents.
    References in Sec. 1910.162 to a Halon 1301 concentration of 7% 
imply a cardiotoxic NOAEL, and references to a Halon 1301 concentration 
of 10% imply a cardiotoxic LOAEL. In this regulation, EPA is clarifying 
the intent of Sec. 1910.162(b)(3) to allow the use of the substitute 
gaseous agents only according to paragraph (b)(6)(i) through 
(b)(6)(iii), using the cardiotoxic NOAEL and LOAEL of each agent as the 
concentration referenced in each subparagraph. Thus, until OSHA 
establishes applicable work-place requirements, the use conditions in 
this final rule on halocarbon substitutes, using the OSHA regulation as 
a standard, will be as follows:
     Where egress from an area cannot be accomplished within 
one minute, the employer shall not use this agent in concentrations 
exceeding its NOAEL.
     Where egress takes longer than 30 seconds but less than 
one minute, the employer shall not use the agent in a concentration 
greater than its LOAEL.
     Agent concentrations greater than the LOAEL are only 
permitted in areas not normally occupied by employees provided that any 
employee in the area can escape within 30 seconds. The employer shall 
assure that no unprotected employees enter the area during agent 
discharge.
    These conditions will no longer apply once OSHA establishes 
applicable workplace requirements.
    EPA will adopt the commenters' suggestion that the use conditions 
be stated once in the beginning of each section and will not repeat 
them for each agent.
    d. Narrowed use restrictions. Many commenters requested that EPA 
remove the narrowed use restrictions placed upon HFC-23, 
C4F10, and C6F14. These commenters argue that 
narrowed use restrictions are unnecessary, because the fire protection 
community (including entities such as NFPA, UL, FMRC and others) has 
successfully regulated fire protection historically and remains better 
able to determine which agents should be selected based on design and 
use criteria, including environmental and toxicological acceptability, 
efficacy, cost, engineering practice and specific risk.
    It is not the intent of EPA to interfere with the ability of the 
fire protection community to use its expertise in selecting agents and 
designing appropriate and cost-effective systems based upon technical 
criteria. EPA congratulates the industry on its excellent record of 
self-regulation, and seeks to work cooperatively with the regulated 
community in our efforts to address the phaseout of halon. However, use 
of fire protection agents is, in fact, already regulated under federal 
law, i.e. OSHA, to ensure their safe use.
    Under the Clean Air Act, EPA is mandated to evaluate substitutes to 
reduce ``overall risk to human health and the environment'' and to 
publish lists of acceptable and unacceptable substitutes ``for specific 
uses.'' EPA interprets section 612 as giving the Agency authority to 
limit use where there are concerns due to health or environmental 
factors. Because a primary goal of the SNAP program as a whole is to 
speed the market's transition away from ozone-depleting substances, 
conditional acceptances were accorded to many substitutes which might 
be unacceptable in the absence of any use conditions. EPA believes 
that, through the setting of narrowed use restrictions in the limited 
cases where they are warranted, it has actually expanded the list of 
available options for fire protection experts to choose from.
    Many commenters stated that the narrowed use restrictions as 
written in the NPRM by EPA are vague and confusing, and overly complex, 
leading to uncertainty. Commenters asked that EPA clarify such vague 
terms as ``high value,'' ``public safety,'' ``national security,'' 
``life support,'' and ``critical.'' They state that ambiguity will 
cause many users to be reluctant to use the new substitute agents. 
Concern was expressed that the fire protection community will have to 
spend an inordinate amount of time interpreting and deciphering whether 
a particular system meets EPA's requirements. Some commenters advised 
that, if EPA retains narrowed use restrictions, these restrictions 
should be better defined through work with the fire protection 
industry. One commenter suggested that a more easily enforced method 
would be to allow use only in applications where toxicity of other 
substitutes would not be acceptable. Furthermore, some commenters noted 
that EPA's publicly expressed concern about the environmental 
acceptability, particularly the global warming impacts, of certain 
agents has already slowed interest in the development of systems. They 
state that as a result, there is continued dependence on halon for 
certain critical applications where no other alternative agent is 
suitable, such as in explosion inerting applications.
    EPA agrees with the commenters that narrowed use restrictions must 
not contribute to uncertainty and a consequent reluctance to move away 
from ozone-depleting fire fighting agents. To address this concern, EPA 
has worked with agent manufacturers, system designers, and members of 
the regulated community to better clarify the intent and the wording of 
narrowed use restrictions. In this final rule, EPA is amending the 
means of controlling unwanted emissions of long-lived agents. In the 
NPRM, EPA attempted to narrow the scope of uses for the PFCs 
(C4F10 and C6F14) and for HFC-23 by listing the use 
categories that were acceptable. Because the regulated community found 
this listing ambiguous, and because EPA could not list all possible 
uses that would require this agent, EPA explored the technical criteria 
that would define where this agent was best applied, as one commenter 
suggested. This approach was appealing, but, again, tended to place the 
task of system design upon the Agency. Therefore, for the PFCs, the 
Agency has decided to adopt an approach that places the burden of proof 
upon the end-user for determining that no other alternative was 
technically feasible for that application.
    Users shall self-certify the need to use restricted agents. Before 
users adopt C4F10 or C6F14, both restricted agents, 
they must make reasonable efforts to ascertain that ``other substitutes 
or alternatives are not technically feasible due to performance or 
safety requirements.'' Users are expected to evaluate the technical 
feasibility of other substitutes or alternatives to determine their 
adequacy to control the particular fire or explosion risk. An example 
of where no other alternative is available due to the physical or 
chemical properties of the agent would be where, due to the 
environmental characteristics of the end-use, other agents would fail 
to vaporize or would not achieve the dispersion required for effective 
fire protection. Similarly, use of PFCs due to toxicological concerns 
would be appropriate where use of other alternative agents would 
violate the workplace safety use conditions set forth in this final 
rule. For example, use of a certain agent for explosion suppression in 
an occupied area might require high concentrations of an agent that 
exceed its LOAEL, or, in cases where egress is precluded such as in 
military vehicles during wartime, the required concentration of the 
alternatives might exceed their NOAEL. EPA intends that PFCs be used 
only as the agent of last resort.
    To assist users in their evaluation, EPA has prepared a list of 
vendors manufacturing halon substitutes and alternatives. Although 
users are not required to report the results of their investigation to 
EPA, companies must retain these results in company files for future 
reference.
    Several commenters requested that narrowed use restrictions on HFC-
23 be lifted because its cardiotoxicity profile is favorable compared 
to its design or inerting concentration and in some cases it may be the 
only acceptable alternative. As mentioned above, one commenter 
suggested that it would be more appropriate to qualify acceptability of 
a particular agent with respect to its technical applicability in 
defined situations. For example, this commenter identified several 
areas where HFC-23 is particularly applicable: (a) Where temperatures 
are likely to go below 0 deg. (b) where pre-inerting is required for 
occupied areas, and (c) where occupied areas can suffer considerable 
variation in fire volume.
    Most HFC-23 is a by-product of the manufacture of HCFC-22. While 
HCFC-22 is scheduled for a production phaseout under the Clean Air Act 
by the year 2020, HCFC-22 is also used as a feedstock for the 
manufacture of other products, such as Teflon. Thus, it can be expected 
that HFC-23 will likely be inadvertently produced in the future. As 
discussed above, Action 40 of the CCAP instructs EPA to limit emissions 
of greenhouse gases under the SNAP program. However, because this agent 
is typically a byproduct of HCFC-22 production, it is EPA's position 
that capture of HFC-23 and use as a fire suppression agent may delay 
the effects of this agent in the atmosphere while serving a valuable 
purpose. Thus, EPA is lifting the narrowed use restrictions imposed in 
the NPRM, and in this FRM EPA is finding acceptable the use of this 
agent wherever deemed applicable given technical or market 
considerations. However, to control unnecessary emissions of this 
agent, EPA recommends that users limit testing only to that which is 
essential to meet safety or performance requirements; recover HFC-23 
from the fire protection system in conjunction with testing or 
servicing; and recycle or destroy agent that is recovered from a 
system. EPA is encouraging development of product stewardship programs 
by the manufacturer and by Original Equipment Manufacturers (OEMs) 
marketing systems containing this agent.
    e. Halon categories and subdivisions. Many commenters requested 
that EPA remove the subdivisions within the use categories. In other 
words, agents should be classified as either ``total flooding'' or 
``streaming'' with no further distinction as to their use. This 
structure, states one commenter, is consistent with the separation 
addressed by UNEP and NFPA. They state that the proposed subdivisions 
over-complicate the rule.
    For example, in total flood applications, some commenters suggest 
simply referring to an agent's NOAEL which, along with OSHA regulations 
and NFPA standards, will determine its suitability for a given 
application. Thus, there would be no need to distinguish between 
normally occupied and normally unoccupied spaces.
    EPA is adopting the recommendation of the commenters. Two end-use 
categories are used in this final rule: Streaming Agents and Total 
Flooding Agents. Explosion inertion is included in the Total Flooding 
Agent category.
4. Listing Decisions
    In order to evaluate the acceptability of proposed halon 
substitutes, the Agency divided the fire protection sector into two 
end-uses: (1) Streaming Agents, and (2) Total Flooding Agents. The 
`Total Flooding' category includes all total flooding applications, 
including normally occupied, normally unoccupied, and explosion 
inertion and suppression applications.
    For some substitutes, data required by the Agency to complete a 
risk assessment is not yet available or has not been submitted to the 
Agency as requested. As a result, not all candidate substitutes have 
been fully evaluated by the Agency. Those substitutes which the Agency 
is currently reviewing, but for which a final determination cannot yet 
be made, are listed as pending review in the table in Appendix B. The 
evaluation of these pending submissions will continue, and the results 
of these continuing evaluations will be published in the Federal 
Register as part of EPA's quarterly updates to the SNAP lists.
    The listing decisions are compiled by type. Thus, for each end-use, 
an agent may be listed in one or more type of decision, including 
`acceptable,' `acceptable subject to use conditions,' `acceptable 
subject to narrowed use limits,' `unacceptable,' or `pending completion 
of review.'
    The table in appendix B summarizes EPA's decisions by each type of 
decision for each end-use.
    EPA's finding of acceptability of a halon substitute should be 
viewed only as a listing based on the criteria briefly set out in this 
Preamble as governing the SNAP program and described in detail in the 
background document entitled ``Characterization of Risk From the Use of 
Substitutes for Class I Ozone-Depleting Substances: Fire Extinguishing 
and Explosion Protection (Halon Substitutes)''. EPA's finding of 
acceptability should not be considered an endorsement of the substitute 
for the suppression or prevention of any given fire or explosion 
scenario, for which the user is referred to a fire protection 
specialist.
    a. Acceptable. (1) Streaming agents. (a) HCFC-123. HCFC-123 is 
acceptable as a Halon 1211 substitute. Because of its relatively low 
weight equivalency, HCFC-123 could replace Halon 1211 at ratio of 1.8 
by weight. However, testing has indicated that application of this 
agent may require special handling or nozzles to successfully 
extinguish a fire. Its extinguishment concentration based on cup burner 
tests is 6.3 percent.
    With an ODP of 0.02, HCFC-123 has the lowest ODP of all the HCFCs 
proposed as halon substitutes, and its 100-year GWP of 90 is lower than 
that of other proposed HCFC substitutes. In addition, it has a short 
atmospheric lifetime of 2 years. Since HCFC-123 has a cardiotoxic level 
(LOAEL) of 2.0 percent in the dog, with no effect (NOAEL) apparent at 
1.0 percent, potential users have expressed concern about using HCFC-
123 or blends containing HCFC-123 as the primary constituent. However, 
actual exposures were assessed using personal monitoring devices, and 
the Agency concludes that likely exposure levels from its use as a 
streaming agent do not exceed safe levels when used with good 
ventilation. Similar exposure concerns exist with the use of carbon 
dioxide or Halon 1211 streaming agents. All must be used only in areas 
with adequate ventilation. The manufacturer of portable extinguishers 
using these agents should include cautionary language on the label 
indicating the need for ventilation.
    The manufacturer has raised its allowable exposure limit (AEL) for 
HCFC-123 to 30 parts per million (ppm). The AEL is set at a level 
believed to protect workers who are regularly exposed from adverse 
chronic effects. As a practical matter, exposures should not exceed 
this limit for any working day; this practice is consistent with OSHA's 
enforcement of its own PELs. If it is likely that exposures may exceed 
30 ppm as an 8-hour time-weighted average (TWA), proper protective gear 
should be worn. For the purposes of determining the proper respiratory 
protection, the user should consult the manufacturer of the product for 
their specific recommendations for respirator use of the particular end 
use.
    As discussed in the section on HCFCs generally, this agent is 
subject to regulations under section 610(d) of the CAA. EPA intends to 
publish a proposed rulemaking that will ban the use of this agent in 
residential applications.
    (b) (HCFC blend) B. (HCFC blend) B is acceptable as a Halon 1211 
substitute. This blend consists largely of HCFC-123, therefore, as with 
HCFC-123, it has been shown in tests to have a weight equivalency ratio 
to Halon 1211 of 1.8. While HCFC-123 has a cardiotoxic level of 2.0 
percent in the dog, with no effect apparent at 1.0 percent, actual 
exposures from use of this blend as a streaming agent were assessed 
using personal monitoring devices. The Agency concludes that likely 
exposure levels do not exceed safe levels.
    The manufacturer of HCFC-123 has raised its allowable exposure 
limit (AEL) to 30 parts per million (ppm). The AEL is set at a level 
believed to protect workers who are exposed on a regular basis from 
chronic adverse effects. As a practical matter, exposures should not 
exceed this limit for any working day; this practice is consistent with 
OSHA's enforcement of its own PELs.
    If it is likely that exposures may exceed 30 ppm as an 8-hour time-
weighted average (TWA), proper protective gear should be worn. To 
determine proper respiratory protection, the user should consult the 
manufacturer of the product for any specific recommendations governing 
respirator use in the particular end-use.
    HCFC-123, which is the major component of this blend has an ODP of 
0.02, which is the lowest ODP of all the HCFCs proposed as halon 
substitutes, and its 100-year GWP of 90 is lower than that of other 
proposed HCFC substitutes. Although this agent contains a very small 
percentage of PFC, which has a long atmospheric lifetime and which 
could potentially contribute to global climate change, EPA believes 
that the quantities of PFC likely to be emitted are small, and that 
availability of this blend is an important aid in the transition away 
from ozone-depleting substances. As with any chemical replacement to 
halon, EPA recommends that unnecessary emissions be controlled by 
minimizing training and by the use of recycling during maintenance.
    As discussed in the section on HCFCs generally, this agent is 
regulated under section 610(d). Consistent with the intent of section 
610(d), EPA intends to publish a proposed rulemaking that will ban the 
use of this agent in residential applications.
    (c) (Surfactant blend) A. (Surfactant blend) A is acceptable as a 
Halon 1211 substitute. This product is a mixture of organic surfactants 
and water. In use, this concentrated mixture is diluted to strengths of 
1-10 percent with available water. The surfactants appear to enhance 
the heat absorbing capacity of the water.
    (Surfactant Blend) A acts on oil, gasoline, and petroleum based 
liquid fires (Class B fires) by encapsulating the fuel, thus removing 
the fuel source from the fire. This encapsulating feature prevents 
flame propagation and reduces the possibility of reignition.
    This blend was designed for use on Class B oil and gasoline fires, 
but can be used on all Class A and Class B fires, as well as Class D 
fires. The agent has passed Underwriters' Laboratories (UL) 
certification for Class A, B, and D fires, and UL testing for Class C 
fires is underway.
    This extinguishant is a blend of complex alcohols, lipids, and 
proteins, which are diluted in large volumes of water to the final 
commercial preparation. Each of the substances is biodegradable and in 
its shipping state the product has been assigned a hazardous materials 
identification system (HMIS) rating of 0-0-0 for health hazard, 
reactivity, and flammability, respectively. The HMIS rating was 
developed by the National Paint and Coatings Association (NPCA) to 
indicate the hazard potential of chemical substances, with zero 
representing the lowest hazard potential.
    Initial data provided by the manufacturer indicate some ocular 
irritation in rabbits, and thus EPA is recommending that the 
manufacturer label the product with a caution about possible eye 
irritation.
    (d) Carbon dioxide. Carbon dioxide is acceptable as a Halon 1211 
substitute. Carbon dioxide can be used as a direct substitute for Halon 
1211 in specified applications. Carbon dioxide systems are not rated 
for Class A fires and so must be used in conjunction with another type 
of extinguisher to ensure that all possible fires can be extinguished. 
In addition, discharge of carbon dioxide into confined spaces may 
result in CO2 concentrations above the Immediately Dangerous to 
Life and Health (IDLH) level. Areas into which carbon dioxide is 
discharged should be immediately evacuated and ventilated. Carbon 
dioxide extinguishers should be used only in accordance with 
manufacturer's guidelines and applicable NFPA standards.
    (e) Dry chemical. Dry chemical extinguishers are acceptable as 
Halon 1211 substitutes. Dry chemical extinguishers can be used as a 
substitute for Halon 1211 in most residential applications. While dry 
chemical extinguishers can be used on Class A, B, or C fires depending 
upon the type of powder used, they do not always penetrate well around 
obstacles, they do not inhibit re-ignition of fires, they do not cool 
surfaces, they can cause secondary damage, and discharge in confined 
spaces can result in temporary loss of visibility. Dry chemical 
extinguishers should be used only in accordance with manufacturer's 
guidelines and with relevant NFPA standards.
    (f) Water. Water is acceptable as a Halon 1211 substitute. Users 
should be aware, however, that water extinguishers cannot act as a 
substitute for Halon 1211 in all applications. Water is primarily a 
Class A fire extinguishant. It can be used on de-energized Class C 
fires, but should not be used with Class B fires. Water may damage 
objects onto which it is discharged. Water extinguishers should be used 
only in accordance with manufacturer's guidelines and with applicable 
NFPA standards.
    (g) Foam. Foam is acceptable as a Halon 1211 substitute. Foam 
extinguishers cannot be used as a substitute for halon in all 
applications. Portable foam extinguishers are intended primarily for 
use on flammable liquid fires and are somewhat effective on Class A 
fires. Foam can also cause secondary damage on objects onto which it is 
discharged. Foam extinguishers should be used in accordance with 
manufacturer's guidelines and with NFPA standards.
    (2) Total flooding agents. (a) Carbon dioxide. Carbon dioxide is 
acceptable as a Halon 1301 substitute. Exposure to carbon dioxide poses 
an imminent threat to life. However, because it displaces oxygen, it is 
an effective fire protection agent. As a result, both OSHA and the NFPA 
address CO2 systems for occupied areas. OSHA 1910.162(b)5 requires 
a pre-discharge alarm for systems with a design concentration of 4 
percent or greater. NFPA has written a standard (NFPA 12) that 
explicitly controls how such CO2 systems may be safely used in 
occupied areas. To protect life, the standard requires a system design 
such that no personnel may be present upon system discharge. The EPA 
recognizes both the OSHA regulation and the NFPA standard as industry 
practice and therefore defer to them in this rule. CO2 systems 
require a storage volume of three times that of Halon 1301.
    In the review of proposed substitutes, the Agency looks at a 
variety of health and environmental factors, including whether the 
agent contributes to global climate change. While carbon dioxide is a 
greenhouse gas, it is also a byproduct of many industrial processes and 
is recaptured and reformulated as a fire fighting agent and thus does 
not require new production. Therefore, the Agency has determined that 
its contribution to overall greenhouse gas emissions is low.
    (b) Water. Water sprinkler systems are acceptable as a Halon 1301 
substitute. Such systems are in widespread use and are governed by NFPA 
technical standards. EPA encourages adoption of water systems wherever 
feasible. Care should be taken when using water on Class C electrical 
fires, and it may not be suitable in instances in which secondary 
damage is considered unacceptable.
    (c) (Inert Gas Blend) B is acceptable for use in unoccupied areas. 
The decision for use of this agent in occupied areas is pending until 
the agency completes its review of low oxygen atmospheres, and will be 
included in a future rulemaking. Use conditions to limit the risk of 
inadvertent exposure to personnel in normally unoccupied areas may be 
included in future rulemakings.
    (d) (Powdered Aerosol) A is acceptable for use in unoccupied areas. 
The decision for use of this agent in occupied areas is pending until 
the agency completes its review of the potential health effects of this 
agent. In addition, use conditions to limit the risk of inadvertent 
exposure to personnel in normally unoccupied areas may be included in 
future rulemakings.
    (e) (Powdered Aerosol) B is acceptable for use in unoccupied areas. 
This SNAP submission included many different formulations. While the 
formulations pose little risk in a normally unoccupied area, the 
decision for use of the various formulations in occupied areas is 
pending further review of their potential health effects. In addition, 
use conditions to limit the risk of inadvertent exposure to personnel 
in normally unoccupied areas may be included in future rulemakings.
    b. Acceptable subject to use conditions. (1) Total flooding agents. 
In analyzing the acceptability of substitutes for total flooding 
applications in occupied spaces, the Agency considered cardiotoxicity 
one of the primary decision variables. Current OSHA limitations on use 
of Halon 1301 in total flooding applications assure that these uses do 
not pose a cardiotoxic risk to personnel at the design concentration.
    OSHA promulgated a safety and health standard (29 CFR 1910 subpart 
L) governing fire protection systems used at all workplaces which is 
designed to limit employee exposures to toxic levels of gaseous agents 
used in fixed total flood systems. OSHA section 1910.162 governs the 
use of all gaseous agents in fixed extinguishing systems, however the 
guidance is not explicit on the allowable concentrations of the 
different agents. While paragraph 1910.162(b)3 stipulates that ``[t]he 
employer shall assure that employees are not exposed to toxic levels of 
gaseous agent or its decomposition products,'' it does not define what 
a ``toxic level'' is. In examining paragraph 1910.162(b)(6)(i) through 
(b)(6)(iii), EPA concludes that it is OSHA's intent to limit exposure 
to gaseous agents based upon cardiotoxicity levels. EPA's conclusion 
was confirmed in discussions with OSHA. EPA's assessment is that the 
use of NOAEL/LOAEL values based on exposure scenarios is the proper 
method to ensure safe use of gaseous agents, and agrees with OSHA's 
approach. It is therefore EPA's intention to stipulate the cardiotoxic 
levels for each agent and, until OSHA incorporates clarifying language 
for the new agents, to impose use conditions that apply 1910.162 in its 
entirety to these agents.
    References in Sec. 1910.162 to a Halon 1301 concentration of 7 
percent imply a cardiotoxic NOAEL, and references to a Halon 1301 
concentration of 10 percent imply a cardiotoxic LOAEL. In this 
regulation, EPA is clarifying the intent of Sec. 1910.162(b)(3) to 
allow the use of the substitute gaseous agents only according to 
paragraph (b)(6)(i) through (b)(6)(iii), using the cardiotoxic NOAEL 
and LOAEL of each agent as the concentration referenced in each 
subparagraph.
    In addition, existing OSHA standard 1910.160 applies certain 
general controls to the use of fixed extinguishing systems in occupied 
workplaces, whether gaseous, dry chemical, water sprinklers, etc., and 
EPA has not reproduced those. These include, for example, the 
requirements for discharge and pre-discharge alarms, and availability 
of Self Contained Breathing Apparatus (SCBA) for emergency entry into 
an area where agent has been discharged.\2\
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    \2\29 CFR 459, Sec. 1910.160, paragraph (b) includes general 
provisions to ensure the safety of all fixed extinguishing systems. 
Paragraph (c) stipulates requirements for systems with ``potential 
health and safety hazards to employees'' such as might be posed by 
gaseous agents.
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    In many occupied areas, total flooding halons can be replaced by 
improved detection equipment and manually operated extinguishing 
systems. Improved detection systems, if they detect fires in their 
early stages, can alert occupants to the existence of a fire so they 
may respond appropriately without discharge of the total flood system. 
In those cases in which a total flooding system is deemed necessary, 
improved detection systems can also reduce false alarms that result in 
the unnecessary discharge of total flooding systems.
    In unoccupied areas, human exposure to potentially toxic 
substitutes or decomposition products are of less concern. The key 
criterion in the SNAP decision process therefore becomes environmental 
considerations. At the same time, the Agency must ensure that personnel 
are not exposed to toxic concentrations of fire protection agents or 
their decomposition products when the substances are vented or leak out 
from the extinguishment area. Precautions must also be taken to prevent 
exposures to personnel entering a normally unoccupied area after a 
discharge. In addition, if there is a possibility that someone must 
enter a room while an agent is likely to exceed the NOAEL level, SCBA 
must be worn.
    Design concentrations for explosion inertion must be higher than 
for fire suppression. In addition, design concentrations vary depending 
on the combustible material being considered. Thus, the system designer 
must be careful to ensure that system design precludes unacceptable 
cardiotoxic or oxygen depletion levels.
    Explosion inertion agents are currently regulated by OSHA through 
the general duty clause\3\, but use conditions are not explicitly 
stated as they are for fire suppression systems. However, since design 
concentrations for systems protecting against explosion of various 
gases or flammable liquids may expose personnel to cardiotoxic levels 
of inertion agents, it is industry practice to adopt standards provided 
under OSHA 1910.162. EPA is not intending to impose new regulations in 
this area, but defers to current OSHA practice in this regard, with the 
stipulation that the NOAEL and LOAEL values identified in this Final 
Rulemaking are the reference values for exposure limits.
---------------------------------------------------------------------------

    \3\Public Law 91-596, (29 U.S.C. 654), section 3, is known as 
the ``general duty clause:''
    (1) shall furnish to each of is employees employment and a place 
of employment which are free from recognized hazards that are 
causing or are likely to cause, death or serious physical harm to 
his employees;
    (2) shall comply with occupational safety and health standards 
promulgated under this Act.
---------------------------------------------------------------------------

    Until OSHA establishes applicable workplace requirements, total 
flooding agents are acceptable by the Agency for use in occupied areas 
only under the following conditions:
    1. Where egress from an area cannot be accomplished within one 
minute, the employer shall not use the agent in concentrations 
exceeding its NOAEL.
    2. Where egress takes greater than 30 seconds but less than one 
minute, the employer shall not use the agent in a concentration greater 
than its LOAEL.
    3. Agent concentrations greater than the LOAEL are only permitted 
in areas not normally occupied by employees provided that any employee 
in the area can escape within 30 seconds. The employer shall assure 
that no unprotected employees enter the area during agent discharge. 
These conditions will no longer apply once OSHA establishes applicable 
workplace requirements.
    (a) HBFC-22B1. HBFC-22B1 is acceptable as a Halon 1301 substitute. 
This agent is subject to the use conditions delineated in the 
discussion of total flooding agents in this section. HBFC-22B1 can 
replace Halon 1301 at a ratio of 1.4 by weight and 1.3 by storage 
volume, making it technically suitable for use in existing total flood 
systems. Its required extinguishing concentration, based on the cup 
burner test in heptane, is estimated at 4.4 percent, and its design 
concentration is 5.3 percent. Its explosion inertion concentration is 
8.0 percent. The LOAEL for cardiotoxicity is 1 percent while its NOAEL 
is 0.3 percent. Its atmospheric lifetime is 7 to 15 years, but its GWP 
is uncalculated. This compound is unlikely to be feasible as a total 
flooding agent in occupied areas because its design concentration 
exceeds its cardiotoxic effect level.
    While HBFC-22B1 has an ODP of 0.74 and will be phased out on 
January 1, 1996, the Agency believes that the substance can serve a 
useful role in helping users transition away from Halon 1301, which has 
a much higher ODP, estimated at 10.
    This agent was submitted to the Agency as a Premanufacture Notice 
(PMN) and is presently subject to requirements contained in a Toxic 
Substance Control Act (TSCA) section 5(e) Consent Order and associated 
Significant New Use Rule (40 CFR 721.1296).
    (b) HCFC-22. HCFC-22 is acceptable as a Halon 1301 substitute. This 
agent is subject to the use conditions delineated in the discussion of 
total flooding agents in this section. HCFC-22 has an extinguishment 
concentration, as determined by cup burner in heptane, of 11.6 percent 
and a design concentration of 13.9 percent, the highest of the 
candidate HCFCs. Its estimated explosion inertion concentration is 18.8 
percent. Its weight and volume equivalence are 2.4 percent and 3.0 
percent, respectively. The cardiotoxic NOAEL is 2.5 percent and its 
LOAEL is 5.0 percent. This compound is unlikely to be feasible as a 
pure agent in occupied areas because its design concentration exceeds 
its cardiotoxic effect level.
    The ODP for HCFC-22 is 0.05, the 100 year-GWP is 1600, and the 
atmospheric lifetime is 16 years. Its ODP and GWP are both higher than 
those for other candidate HCFCs. This agent is schedule for production 
phaseout under the CAA for new equipment in the year 2010 and for 
existing equipment in the year 2020 (58 FR 65018).
    (c) HCFC-124. HCFC-124 is acceptable as a Halon 1301 substitute. 
This agent is subject to the use conditions delineated in the 
discussion of total flooding agents in this section. HCFC-124 has 
relatively low ODP of .022, and, compared to other candidate 1301 
substitutes for which GWP has been estimated, has a relatively low 100-
year GWP value of 440 with an atmospheric lifetime of 7 years. Animal 
testing indicates that the substance may be lethal to rats at a level 
greater than 23 percent over a four hour period. The substance has a 
cardiotoxic LOAEL of 2.5 percent and a NOAEL apparent at 1.0 percent. 
Its weight and volume equivalence is 2.6 and 2.9 respectively. The 
extinguishing concentration based on cup burner tests in heptane of 
HCFC-124 is 7.0 percent and its design concentration is 8.4 percent, 
while its explosion inertion concentration is 12.0 percent. This 
compound is unlikely to be feasible as a total flooding agent in 
normally occupied areas because its design concentration exceeds its 
cardiotoxic level.
    (d) (HCFC BLEND) A. (HCFC BLEND) A is acceptable as a Halon 1301 
substitute. This agent is subject to the use conditions delineated in 
the discussion of total flooding agents in this section. Based on full-
scale testing, the extinguishing concentration of this blend has been 
determined to be approximately 7.2 percent and therefore the design 
concentration is approximately 8.6 percent. The cardiotoxic NOAEL of 
this blend is 10.0 percent, and the LOAEL is at least 10.0 percent. 
Until further data is supplied, the Agency considers its LOAEL to be 10 
percent. The major component of this blend has an ODP of 0.05, higher 
than other proposed HCFC substitutes, but the blend appears somewhat 
more effective from a weight and storage volume equivalency basis, 
which is 1.6 and 2.3 respectively. This compound is a feasible 
candidate for use in a normally occupied area.
    This agent is a blend of different HCFCs. The predominant component 
of this blend is HCFC-22, which has an ODP of 0.05, an atmospheric 
lifetime of 16 years, and a GWP of 1600. HCFC-22 is scheduled for 
production phaseout under the CAA by the year 2020 and all other HCFCs 
by the year 2030 (58 FR 65018).
    (e) HFC-23. HFC-23 is acceptable as a Halon 1301 substitute. This 
agent is subject to the use conditions delineated in the discussion of 
total flooding agents in this section.
    HFC-23 is attractive for use as a total flooding agent in occupied 
areas because the cardiotoxic NOAEL is at least 30 percent without 
added oxygen and over 50 percent with added oxygen, compared to a 
design concentration of 14.4 percent, based on cup burner tests in 
heptane. EPA recognizes that no cardiotoxic effect was measured in the 
tests of HFC-23, and acknowledges that tests were terminated when 
oxygen levels decreased to a point posing risk of asphyxiation. 
However, EPA must examine this agent in the light of potential 
cardiotoxicity because this is a halocarbon which does possess 
cardiotoxic characteristics. It is an artifact of the test protocol 
that determines that the NOAEL and LOAEL must be interpreted from the 
data, and not interpolated. To observe a cardiotoxic effect would 
require quantities in such high concentration as to pose a risk of 
asphyxiation before risk of cardiotoxicity. Because testing was stopped 
at 30 percent without added oxygen and 50 per cent with added oxygen, 
EPA must use these values as the maximum allowable concentrations. In 
the NPRM, EPA did not refer to a specific LOAEL for this agent. 
However, the standard OSHA-derived language was included for all 
agents. In this rulemaking, EPA is using the values of 30 percent for 
the NOAEL and 50% for the LOAEL.
    Compared to an inerting concentration in methane of 20.5 percent 
and an inerting design concentration of 22.6 percent in methane, this 
agent is an excellent candidate for use in explosion inertion.
    As mentioned earlier, the risk of using agents in high 
concentrations poses a risk of asphyxiation by displacing oxygen. With 
an ambient oxygen level of 21 percent, a design concentration of 22.6 
percent will reduce oxygen levels to approximately 16 percent, the 
minimum oxygen level considered to be required to prevent impaired 
judgement or other physiological effects. The weight equivalent of HFC-
23 is 1.6 while its storage volume equivalent is 2.6. This agent 
requires a high pressure system for proper discharge and dispersion.
    Because this agent has an atmospheric lifetime of about 280 years 
and a 100-year GWP of 9,000, it is considered a potent greenhouse gas 
and should be handled accordingly. Since HFC-23 is typically a by-
product of manufacturing and is not expressly produced for use as a 
fire fighting agent, EPA is allowing the use of this agent wherever 
applicable given technical or market considerations. However, in order 
to minimize unnecessary emissions of greenhouse gases, EPA recommends 
that users limit testing only to that which is essential to meet safety 
or performance requirements; recover HFC 23 from the fire protection 
system in conjunction with testing or servicing; and destroy or recycle 
HFC-23 for later use. In addition, EPA encourages manufacturers to 
develop aggressive product stewardship programs to help users avoid 
such unnecessary emissions.
    (f) HFC-125. HFC-125 is acceptable as a Halon 1301 substitute. This 
agent is subject to the use conditions delineated in the discussion of 
total flooding agents in this section. The cardiotoxic NOAEL for HFC-
125 is 7.5 percent, and its LOAEL is 10.0 percent compared to a cup 
burner extinguishment concentration in heptane of 9.4 percent. While 
this agent would not be appropriate for use in normally occupied areas, 
it is not expected that human health would be threatened by use of HFC-
125 in normally unoccupied areas. This agent has a weight and volume 
equivalence of 2.6 and 3.2, respectively.
    HFC-125 does not deplete stratospheric ozone. Despite its zero ODP, 
HFC-125 has an atmospheric lifetime of 41 years, and the highest 
calculated GWP (100-year GWP of 3,400) than any other HFC (except HFC-
23) or HCFC currently planned for production as a halon or CFC 
substitute.
    (g) HFC-134a. HFC-134a is acceptable as a Halon 1301 substitute. 
This agent is subject to the use conditions delineated in the 
discussion of total flooding agents in this section. HFC-134a has a 
cardiotoxic NOAEL of 4.0 percent, a LOAEL of 8 percent, and a design 
concentration of 12.6 percent. This compound is unlikely to be feasible 
as a total flooding agent in occupied areas because its design 
concentration exceeds its cardiotoxic level. Like the other HFCs, HFC-
134a has an ODP of zero. It also has among the lowest GWP of the 
candidate 1301 replacements for which GWP has been estimated, with a 
100-year GWP of 1,200 and an atmospheric lifetime of 16.
    Cup burner tests in heptane indicate that this substance is less 
effective than 1301. Systems that use HFC-134a will require 
approximately 2.5 times more extinguishant by weight and 3.1 times more 
storage volume than 1301 systems.
    (h) HFC-227ea. HFC-227ea is acceptable as a Halon 1301 substitute. 
This agent is subject to the use conditions delineated in the 
discussion of total flooding agents in this section. The final report 
on cardiotoxicity of HFC-227ea indicates that its NOAEL is 9.0 percent 
and that its LOAEL is at least 10.5 percent. EPA is accepting 10.5 
percent as its LOAEL. Cup burner tests with heptane indicate that the 
extinguishment concentration for this agent is 5.8 percent, thus making 
its calculated design concentration 7.0 percent. These concentrations 
provide a sufficient margin of safety for use in a normally occupied 
area. HFC-227ea does not deplete stratospheric ozone. In addition, HFC-
227ea is the most effective of the proposed HFC substitutes for Halon 
1301. HFC-227ea can replace Halon 1301 at a ratio of 1.7 by weight and 
1.4 by volume.
    HFC-227ea has a 100-year GWP of about 2,050, with an atmospheric 
lifetime of 31 years.
    (i) C4F10. C4F10 is acceptable as a Halon 1301 
substitute where other alternatives are not technically feasible due to 
performance or safety requirements: (a) due to their physical or 
chemical properties or (b) where human exposure to the agents may 
approach cardiosensitization levels or result in other unacceptable 
health effects under normal operating conditions. This agent is subject 
to the use conditions delineated in the preceding discussion. In 
addition, because this agent can be used in high concentrations due to 
its cardiotoxicity profile, the design concentration must result in 
oxygen levels of at least 16%.
    Cup burner tests in heptane indicate that C4F10 can 
extinguish fires in a total flood application at concentrations of 5.5 
percent and therefore has a design concentration of 6.6 percent. The 
cardiotoxicity NOAEL of 40 percent for this agent is well above its 
extinguishment concentration and therefore is safe for use in occupied 
areas. This agent has a weight and volume equivalence of approximately 
3.1 and 3.0 respectively.
    Using agents in high concentrations poses a risk of asphyxiation by 
displacing oxygen. With an ambient oxygen level of 21 percent, a design 
concentration of 22.6 percent may reduce oxygen levels to approximately 
16 percent, the minimum level considered to be required to prevent 
impaired judgment or other physiological effects. Thus, the oxygen 
level resulting from discharge of this agent must be at least 16 
percent.
    This agent has an atmospheric lifetime of 2,600 years and a 100-
year GWP of 5,500. Due to the long atmospheric lifetime of 
C4F10, the Agency is finding this chemical acceptable only in 
those limited instances where no other alternative is technically 
feasible due to performance or safety requirements. In most total 
flooding applications, the Agency believes that alternatives to 
C4F10 exist. EPA intends that users select C4F10 
out of need and that this agent be used as the agent of last resort. 
Thus, a user must determine that the requirements of the specific end 
use preclude use of other available alternatives.
    Users must observe the limitations on C4F10 acceptability 
by undertaking the following measures: (i) Conduct an evaluation of 
foreseeable conditions of end use; (ii) determine that human exposure 
to the other alternative extinguishing agents may approach or result in 
cardiosensitization or other unacceptable toxicity effects under normal 
operating conditions; and (iii) determine that the physical or chemical 
properties or other technical constraints of the other available agents 
preclude their use.
    Some examples of potential end-uses where toxicity may possibly be 
of concern are: i. Applications involving confined spaces where egress 
is difficult, such as in civilian and military transportation 
applications including aircraft engines, armored vehicles (engine and 
crew compartments), and ship engines; ii. Applications where public 
safety or national security necessity may preclude personnel from 
evacuating, in event of emergency, such as nuclear power plants or 
guard/security facilities; iii. Explosion and fire protection 
applications where high suppression or inerting concentrations are 
required such as processing and pump stations, flammable liquid 
processing areas, and flammable metal processing areas; iv. Health care 
facility applications involving impaired populations, such as hospitals 
and nursing homes where there may be a preference for use of this agent 
due to the unique concerns within the facility; v. Military mission 
critical applications which are vital to national security; vi. Other 
applications where, due to physical or chemical properties, there are 
no other technically feasible alternatives.
    EPA recommends that users minimize unnecessary emissions of this 
agent by limiting testing of C4F10 to that which is essential 
to meet safety or performance requirements; recovering C4F10 
from the fire protection system in conjunction with testing or 
servicing; and destroying or recycling C4F10 for later use. 
EPA encourages manufacturers to develop aggressive product stewardship 
programs to help users avoid such unnecessary emissions.
    (j) IG-541. IG-541 is acceptable as a Halon 1301 substitute. This 
agent is subject to the use conditions delineated in the discussion of 
total flooding agents in this section. In the NPRM, this agent was 
referred to as (Inert Gas Blend) but is now referred to as IG-541, 
consistent with NFPA 2001. This agent is a non-reactive, non-halocarbon 
substance, and thus not carcinogenic, mutagenic, or teratogenic; the 
toxicity and cardiotoxicity tests normally applied to halon substitutes 
do not apply here. Rather, this agent is a potential asphyxiant, since 
it is designed to decrease the oxygen to a level at which combustion 
cannot be supported. This blend is designed to increase breathing 
rates, thus making the oxygen deficient atmosphere breathable for short 
periods of time. Data submitted by the manufacturer was peer-reviewed 
by pulmonary, cardiac, and stroke specialists. All have agreed that the 
blend does not pose significant risk to the working population and may 
even pose less risk than does exposure to halocarbon agents. However, 
to ensure safety, this blend is acceptable under the conditions that 
the design concentration results in at least 10 percent oxygen and 5 
percent carbon dioxide. In addition, if the oxygen concentration of the 
atmosphere falls below 10 percent, personnel must be evacuated and 
egress must occur within 30 seconds. Since a fire can be expected to 
consume oxygen and form decomposition products, personnel should treat 
any fire situation as an emergency and promptly exit the space.
    A fire suppression design concentration of 52 percent and 43 
percent would result in oxygen levels of 10 percent and 12 percent, 
respectively. The inerting concentration for this blend is 44 percent 
for methane/air mixtures and 50 percent for propane/air mixtures. A 50 
percent concentration would result in an atmosphere of only 10.5 
percent oxygen content, which is at the lower limit of acceptability of 
this agent.
    Concerns have been raised about the decibel level of this system 
upon discharge. The manufacturer has submitted a report indicating the 
decibel level to be 117 decibels for 3 seconds followed by a decay in 
noise level over 5 minutes, compared to 130 decibels for a typical 
halon system. The Time Weighted Average (TWA) of this system is 57 
decibels. These levels are in compliance with the OSHA workplace 
maximum allowed peak of 140 decibels and a maximum Time Weighted 
Average (TWA) of 90 decibels. This acceptability listing for use of IG-
541 does not apply to any other inert gas system. A manufacturer with a 
different formulation must prepare a separate SNAP submission to EPA.
    c. Acceptable subject to narrowed use limits. (1) Streaming agents. 
(a) HBFC-22B1. HBFC-22B1 is acceptable as a Halon 1211 substitute in 
non- residential applications. HBFC-22B1 is unacceptable for use in 
residential applications.
    Extinguishment testing indicates that HBFC-22B1 can replace Halon 
1211 at a ratio of 1.1 by weight, making it a viable substitute for use 
in hand-held extinguishers. Despite its high ODP of 0.74, this chemical 
can facilitate the shift away from Halon 1211, which has an even higher 
ODP of 3.0. However, given the potential market penetration and the 
high ODP of HBFC-22B1, widespread use of HBFC-22B1 in consumer 
applications was estimated to cause unacceptable damage to the ozone 
layer and an excessively high number of skin cancer cases and deaths. 
The total estimated skin cancer cases and fatalities from the use of 
HBFC-22B1 as a Halon 1211 replacement in all uses including consumer 
uses is approximately 30,000 and 600, respectively.
    In addition to concern about its ODP, use of HBFC-22B1 in 
residential applications may present risks of cardiosensitization. To 
assess this risk, the Agency modeled the peak concentration of HBFC-
22B1 that would be expected if such an extinguishant were used to 
suppress a kitchen fire and estimated the decline from the peak. Such 
analysis indicated that peak concentrations of HBFC-22B1 would exceed 
3300 ppm. This is in excess of NFPA ceilings for exposure. In light of 
the availability of other fire protection agents with lower associated 
risks, the Agency determined that the risks posed by HBFC-22B1 were too 
large to justify widespread use in the consumer sector. Thus, EPA finds 
HBFC-22B1 unacceptable for use in residential applications since other 
viable alternatives exist.
    Worker exposure may be a concern in small enclosed areas, but in 
larger areas and outdoors, modeling efforts indicate that HBFC-22B1 can 
be used safely. In most realistic fire scenarios, proper procedures 
should be in place regarding the operation of the extinguisher and 
workers will be properly trained in fire fighting procedures and 
ventilation of extinguishment areas can be expected after dispensing 
the extinguishant.
    Because it represents one of the few available substitutes in 
specific end-uses, EPA is finding use of HBFC-22B1 acceptable as a 
streaming agent except for residential uses. However, it can only be 
considered a transitional agent, because it will be phased out as a 
class I substance beginning January 1, 1996, in accordance with the 
Clean Air Act and with the requirements of the Montreal Protocol.
    This agent was submitted to the Agency in a Premanufacture Notice 
(PMN) and is presently subject to requirements contained in a Toxic 
Substance Control Act (TSCA) section 5(e) Consent Order and associated 
Significant New Use Rule (40 CFR 721.1296). Under the terms of the 
Consent Order, it may be used only for outdoor automotive and marine 
applications. In addition, to ensure safe use, the sale of this product 
is restricted to a size discouraging residential use, with a minimum UL 
rating of 5BC. The unit must be properly labeled. The label must ban 
residential use, indicate space volume restrictions that would limit 
exposure to 1 percent, and describe proper evacuation and reentry 
requirements. In addition, the agent may only be sold in rechargeable 
units to encourage reuse and recycling and to minimize the potential 
for the agent to escape to the atmosphere through improper disposal.
    (b) (CFC Blend). (CFC Blend) is acceptable as a Halon 1211 
substitute in non-residential applications. While this agent was listed 
in the SNAP NPRM as proposed acceptable, the sale and distribution of 
CFCs in pressurized dispensers (in this sector, portable fire 
extinguishers) are controlled under section 610 of the CAA. The section 
610 final rulemaking (58 FR 4768, January 15, 1993) bans the use of 
CFCs in portable fire extinguishers. Therefore, in the upcoming 
proposed SNAP rulemaking, EPA will list this agent as proposed 
unacceptable due to section 610 prohibitions.
    This agent is unacceptable for use in residential applications 
since other viable alternatives exist. (CFC-Blend) contains CFCs with 
ODPs of 1.0. The predominant constituent has a 100-year GWP of 3400, 
with an atmospheric lifetime of 55 years. The CFC constituent in this 
blend will be phased out of production on December 31, 1995.
    This agent is the most effective of all other halon substitutes 
except for HBFC-22B1 and HCFC-123, and does not pose the exposure risk 
of HBFC-22B1 in certain scenarios. (CFC Blend) is generally considered 
non-toxic and could serve as a transitional substitute in many 
streaming applications. However, in light of its high ODP relative to 
other substitute agents and the large potential market for consumer/
residential extinguishers, alternative agents such as water and dry 
chemical are considered sufficient for residential uses.
    (c) C6F14. C6F14 is acceptable as a streaming 
agent in non-residential applications: Where other alternatives are not 
technically feasible due to performance or safety requirements: (a) Due 
to the physical or chemical properties of the agent, or (b) where human 
exposure to the extinguishing agent may approach cardiosensitization 
levels or result in other unacceptable health effects under normal 
operating conditions. This agent is unacceptable for use in residential 
applications and for uses beyond the limits and conditions stipulated 
in this action.
    The extinguishment concentration of C6F14 is 4.4 percent, 
and a cardiotoxicity NOAEL of 40 percent. Its weight equivalence is 2.8 
and its storage volume equivalence is 3.1. While C6F14 has no 
ODP, its atmospheric lifetime is 3,000 years, and may potentially 
contribute to global climate change.
    EPA intends that users select C6F14 out of need and that 
this agent be used as the agent of last resort. Thus, a user must 
determine that the characteristics of the end-use preclude use of other 
available alternatives. In most streaming applications, the Agency 
believes that alternatives to C6F14 exist. These include the 
halocarbon replacements identified above as well as alternative agents 
such as water, CO2, foam, and dry chemicals. Users should attempt 
to use these other agents before deciding on an C6F14 system. 
At the time of publication of this rulemaking, EPA is unaware of any 
data which necessitates the use of any PFC as a streaming agent based 
on toxicological concerns.
    Users must observe the limitations on C6F14 acceptability 
by undertaking the following measures: (i) Conduct an evaluation of 
foreseeable conditions of end use; (ii) determine that human exposure 
to the other alternative extinguishing agents may pose a risk of 
cardiosensitization or other unacceptable toxicity effects under normal 
operating conditions; and (iii) determine that the physical or chemical 
properties or technical constraints of the other available agents 
preclude their use. Users must maintain documentation on measures taken 
to justify use of this agent.
    Some examples of potential end-uses where toxicity or physical 
characteristics may possibly be of concern are: i. Confined spaces 
which are difficult to egress, such as civilian and military 
transportation applications, including armored vehicles, marine 
engines, power boats, aircraft cabins, and race cars; ii. Applications 
where public safety or national security necessity may preclude 
personnel from evacuating, in event of emergency, such as nuclear power 
plants or guard/security facilities; iii. Emergency response 
applications such as crash rescue vehicles and aircraft flightlines; 
iv. Military applications involving mission critical applications which 
are vital to national security; v. Other applications where, due to 
physical or chemical properties, there are no technically feasible 
alternatives.
    EPA recommends that users minimize unnecessary emissions by 
limiting testing only to that which is essential to meet safety or 
performance requirements; recovering C6F14 from the fire 
protection system in conjunction with testing or servicing; and 
destroying C6F14 or recycling it for later use. EPA 
encourages manufacturers to develop aggressive product stewardship 
programs to help users avoid such unnecessary emissions.
    (2) Total Flooding Agents. (a) C4F10. C4F10 is 
acceptable as a Halon 1301 substitute (i) where other alternatives are 
not technically feasible due to performance or safety requirements: (a) 
Due to their physical or chemical properties or (b) where human 
exposure to the agents may approach cardiosensitization levels or 
result in other unacceptable health effects under normal operating 
conditions. This agent is subject to the use conditions delineated in 
the preceding discussion concerning use to total flooding agents in the 
workplace. In addition, because this agent can be used in high 
concentrations due to its cardiotoxicity profile, the design 
concentration must result in oxygen levels of at least 16%.
    Cup burner tests in heptane indicate that C4F10 can 
extinguish fires in a total flood application at concentrations of 5.5 
percent with a design concentration of 6.6 percent. The cardiotoxicity 
NOAEL of 40 percent for this agent is well above its extinguishment 
concentration and therefore is safe for use in occupied areas.
    Using agents in high concentrations poses a risk of asphyxiation by 
displacing oxygen. With an ambient oxygen level of 21 percent, a design 
concentration of 22.6 percent may reduce oxygen levels to approximately 
16 percent, the minimum level considered to be required to prevent 
impaired judgement or other physiological effects. Thus, the oxygen 
level resulting from discharge of this agent must be at least 16 
percent.
    While C4F10 has a no ODP, it has an atmospheric lifetime 
of 2,600 years. Due to its long atmospheric lifetime, the Agency is 
finding this chemical acceptable only in those limited instances where 
no other alternative is technically feasible due to performance or 
safety requirements. In most total flooding applications, the Agency 
believes that alternatives to C4F10 exist. It is EPA's 
intention that users not select C4F10 out of simple 
preference, but out of need and that this agent be used as the agent of 
last resort. Thus, a user must determine that the requirements of the 
specific end-use preclude utilization of other available alternatives.
    Users must observe the limitations on PFC use by undertaking the 
following measures: (i) Conduct an evaluation of foreseeable conditions 
of end use; (ii) determine that human exposure to the other alternative 
extinguishing agents may approach or result in cardiosensitization or 
other unacceptable toxicity effects under normal operating conditions; 
and (iii) determine that the physical or chemical properties or other 
technical constraints of the other available agents preclude their use.
    Some examples of potential end-uses where toxicity may possibly be 
of concern are: i. Applications involving confined spaces where egress 
is difficult, such as in civilian and military transportation 
applications including aircraft engines, armored vehicles (engine and 
crew compartments), and ship engines; ii. Applications where public 
safety or national security necessity may preclude personnel from 
evacuating, in event of emergency, such as nuclear power plants or 
guard/security facilities; iii. Explosion and fire protection 
applications where high suppression or inerting concentrations are 
required such as processing and pump stations, flammable liquid 
processing areas, and flammable metal processing areas; iv. Health care 
facility applications involving impaired populations, such as hospitals 
and nursing homes where there may be a preference for use of this agent 
due to the unique concerns within the facility; v. Military mission 
critical applications which are vital to national security; vi. Other 
applications where, due to physical or chemical properties, there are 
no other technically feasible alternatives.
    EPA recommends that users minimize unnecessary emissions by 
limiting testing of C4F10 to that which is essential to meet 
safety or performance requirements; recovering C4F10 from the 
fire protection system in conjunction with testing or servicing; and 
destroying or recycling C4F10 for later use. In addition, EPA 
encourages manufacturers to develop aggressive product stewardship 
programs to help users avoid such unnecessary emissions.
    b. Unacceptable substitutes. (1) Streaming agents. (a) (CFC-11). 
CFC-11 is unacceptable in its proposed application as a Halon 2402 
substitute or for use in controlling large outdoor fires. This agent 
has been proposed as a substitute for Halon 2402, as well as for use in 
controlling large outdoor fires, as when dropped from helicopters. 
Halon 2402 is not used in the U.S. and thus does not require a 
substitute agent. Other nonozone-depleting methods are already in use 
in fighting these large outdoor fires and, thus, EPA does not believe 
that introduction of this substitute is warranted.
    (2) Total flooding agents. There are no total flooding agents 
listed as unacceptable.

H. Sterilants

1. Overview
    CFC-12 is widely used in combination with ethylene oxide (EtO) to 
sterilize medical equipment and devices. The most prevalent combination 
consists of 12 percent EtO mixed with 88 percent CFC-12; the mixture is 
therefore referred to as ``12/88''. EtO serves as the actual sterilant 
in this mixture and can be used alone as a sterilant, but by itself, 
EtO is highly flammable. CFC-12 acts as a diluent to form a non-
flammable blend.
    Sterilants, including 12/88, are used in a variety of applications. 
These include hospital sterilization, medical equipment sterilization, 
pharmaceutical production, spice fumigation, commercial research and 
development, and contract sterilization. Hospitals are by far the most 
numerous users of sterilants. Within hospitals, 12/88 is the most 
popular sterilant. Estimates indicate that in 1989, EtO/CFC-12 was used 
for over 95 percent of all sterilization in hospitals. Other individual 
users of sterilant such as contract sterilizers and pharmaceutical 
producers, while less numerous than hospitals, typically consume more 
sterilant than the average hospital but are more likely to use other 
alternatives such as pure EtO sterilization.
    Despite the varied end uses of sterilants, the Agency did not 
divide its analysis and regulation of the sterilants sector into 
distinct end uses. This is because alternatives to 12/88 are consistent 
across end uses, and the sterilant sector as a whole represents one of 
the smallest use sectors for Class I substances being considered in the 
SNAP program. On an ODP-weighted basis, US consumption of CFC-12 for 
sterilization represented less than 4 percent of the total US 
consumption of ozone depleting substances in 1990.
    Several alternatives to 12/88 are currently in widespread use, but 
each is limited in applicability by material properties of the devices 
to be sterilized. These currently available alternatives are unlikely 
to serve as widespread substitutes for 12/88. Steam sterilizers, for 
example, are used in many applications and are less expensive to 
purchase and operate than 12/88 systems. However, steam can only be 
used to sterilize equipment that can resist high temperatures and high 
humidity. Pharmaceutical manufacturers already use steam to the maximum 
extent possible, but hospitals may be able to shift some of their 
current 12/88 use to steam by separating heat and moisture-resistant 
devices from sensitive ones. Other alternatives such as radiation, 
peracetic acid, and glutaraldehyde are also in use, but, like steam, 
are incompatible with many of the materials now sterilized with 12/88. 
For example, 30 to 50 percent of new products are initially sterilized 
with gamma radiation, but it is not possible to re-sterilize hospital 
surgical equipment with gamma radiation. Rather, 12/88 must be used.
    Several other alternatives, such as chlorine dioxide, gaseous 
ozone, vapor phase hydrogen peroxide, and ionized gas plasma, are 
currently under development. Many of these alternatives are also 
incompatible with materials currently sterilized with 12/88. Those that 
may be applicable as partial substitutes for 12/88, such as hydrogen 
peroxide, are not expected to be commercially available in the near 
term.
    Alternatives such as radiation and other currently available 
technologies should be used wherever applicable, but are not 
specifically addressed in this rule due to their limited potential to 
be widespread substitutes for 12/88. Additional information on such 
alternatives and on specific uses of 12/88 can be found in the 
supporting documentation retained in the public docket. The 
determinations in this section are based on the risk screen described 
in the background document titled ``Risk Screen on the Use of 
Substitutes for Class I Ozone-Depleting Substances: Sterilization.'' 
Responses to comments received on the sterilants sector can be found in 
the ``Response to Comment'' document, also found in the public docket.
2. Substitutes for Sterilization
    a. Halocarbons. A number of halocarbon substitutes have been 
suggested as alternatives to CFC-12 in EtO blends for sterilization. 
These include HCFC-123, HCFC-124, HFC-125, HCFC-141b, and HFC-134a and 
HFC-227ea. At present, however, only HCFC-124, a blend of HCFCs, and 
HFC-227ea have been proposed as near-term candidates. While HCFC-124 
has been fully evaluated by the Agency in this rule, final 
determinations on the HCFC Blend and HFC-227ea will be made as soon as 
complete data is available and the products are approved under FIFRA. 
Additional research will be required to determine the suitability of 
the other agents in EtO blends.
    Many of the proposed halocarbons offer good potential as EtO 
diluents. They demonstrate good flame retardation, low ODPs, low GWPs, 
low toxicity, materials compatibility, acceptable vapor pressures, and 
good blending properties. Mixtures of halocarbons with EtO would most 
likely be at ratios similar to 12/88, or with a slightly lower EtO 
content. HCFC-124 has been tested with 8.6 percent EtO, for example. 
Such properties would make halocarbon blends virtual drop-in 
replacements for 12/88 in existing systems. The blends would also be 
far less damaging to stratospheric ozone than is 12/88.
    b. Carbon dioxide. Carbon dioxide is already in widespread use as a 
sterilant in blends with EtO. Previously, the most common blend 
contained 10 percent EtO and 90 percent CO2 and was referred to as 
``10/90''. However, on October 1, 1993 the Department of Transportation 
(DOT) issued regulations on the transport of hazardous materials which 
listed EtO/CO2 mixtures as flammable if they contain more than 9 
percent EtO. To avoid changing safety and handling procedures, 
manufacturers of this blend are changing the formulation of the EtO/
CO2 blend to 8.5/91.5.
    While the 8.5/91.5 blend is compatible with most of the materials 
now sterilized with 12/88, it must be used at higher operating 
pressures than 12/88 systems and hence is not a direct drop-in 
replacement for 12/88. Use of CO2 blends requires that the 
sterilizing unit be retrofitted to handle higher operating pressures in 
order to prevent excessive leakages of EtO from the system.
    CO2 and EtO tend to separate while stored in pressurized 
containers. Thus, initial discharges from the canisters during use may 
contain excessively high amounts of flammable EtO; final discharges 
from nearly empty canisters may contain pure CO2 and may not 
effectively sterilize equipment. To overcome this problem, single 
``unit dose'' canisters have been developed for use in conjunction with 
CO2 sterilizers. For safe operation, these canisters must be 
connected and disconnected from the sterilizing unit before and after 
every use, thereby increasing the risk of accidental exposure. Improved 
training procedures will be required with such systems.
    c. Pure EtO. Pure EtO systems can also be used in place of current 
12/88 sterilizers. By itself, EtO is toxic, carcinogenic, and 
flammable. It is also explosive at concentrations above 3 percent in 
air. Thus, additional precautions must be taken to limit occupational 
exposures and conflagration. Present OSHA standards and proper 
engineering controls have demonstrated their ability to provide for 
safe operation of such systems. Pure EtO systems are currently used by 
many contract sterilizers, large hospitals, and other large users.
3. Listing Decisions
    a. Acceptable substitutes. (1) HCFC-124. HCFC-124 is acceptable as 
a substitute for CFC-12 in EtO blends. Initial testing in hospital, 
industrial, and laboratory settings indicates that an EtO/HCFC-124 
blend can serve as a virtual drop-in replacement for 12/88, enabling 
users to transition away from CFC-12 while still using their existing 
equipment.
    Use of HCFC-124 in sterilizers will allow significant reductions in 
skin cancer cases and deaths resulting from ozone depletion. HCFC-124 
has an ODP of only 0.02. Modeling results indicate that even if HCFC-
124 replaces all current use of CFC-12 in sterilization, resulting skin 
cancer deaths in the total US population born before 2030 will total 
only 600 more than if a zero ODP substitute were available. In 
addition, the low GWP of HCFC-124 ensures that use of the chemical in 
sterilizers will have a negligible effect on global warming.
    Under Title III of the Clean Air Act Amendments of 1990, the Agency 
is required to regulate any of the 189 hazardous air pollutants (HAPs). 
Ethylene oxide is a HAP, and the user is alerted to follow all upcoming 
regulations concerning the use of ethylene oxide, whether used alone or 
in a blend. For example, it is likely in the future that Title III will 
require a system that prevents venting of EtO into the atmosphere, 
therefore users installing new HCFC-124/EtO systems may choose to take 
this into consideration.
    (2) Carbon dioxide. Carbon dioxide is acceptable as a substitute 
for CFC-12 in EtO blends used for sterilization. Carbon dioxide can 
effectively reduce the flammability of EtO and does not deplete 
stratospheric ozone. Most CO2 currently used in sterilant mixtures 
is the recaptured by-product of other chemical processes, so its 
manufacture for use in sterilizers should not increase emissions to the 
atmosphere. Carbon dioxide is an asphyxiant in high concentrations, but 
engineering controls designed to limit occupational exposures from the 
more toxic EtO will also serve to prevent potentially lethal exposures 
to CO2.
    Blends of CO2 and EtO are commercially available at present, 
and proven process cycles already exist. Blends of CO2 and EtO 
have been in widespread use for years and dominated the market before 
the development of 12/88. Recent regulations issued by DOT have 
prompted manufacturers to change the formulation of the blend to 8.5/
91.5 EtO/CO2 due to flammability concerns. As mentioned above, 
ethylene oxide is a HAP, and the user is alerted to follow all upcoming 
regulations under Title III of the Clean Air Act Amendments concerning 
the use of ethylene oxide, whether used alone or in a blend.
    (3) Pure EtO. Pure EtO is acceptable as a substitute for 12/88 in 
sterilization. By itself, EtO is neither an ozone depleting substance 
nor a contributor to global warming. However, EtO is toxic, 
carcinogenic, and flammable. While these factors must be considered in 
the decision to approve EtO as a substitute for 12/88 and must be 
considered by users selecting appropriate substitutes for their current 
use of 12/88, the Agency considers current applicable standards and 
operating procedures (such as OSHA standards for occupational exposure) 
sufficient to protect human health and the environment. Thus, pure EtO 
systems are acceptable substitutes for 12/88. Users are advised to 
adhere to all existing workplace standards and to train workers in the 
proper operation of EtO equipment. Historical experience with pure EtO 
systems indicates that they can be used safely when operated in 
accordance with such guidelines. Because of the threat posed to the 
general population by vented EtO, the Agency also recommends that pure 
EtO systems be used in conjunction with emission control technologies 
such as catalytic converters or acid water scrubbers to prevent 
exposures of the general population to dangerous levels of EtO.
    As mentioned above, ethylene oxide is a HAP, and the user is 
alerted to the probability of future regulations under Title III of the 
Clean Air Act Amendments concerning the use of ethylene oxide, whether 
used alone or in a blend.
    (4) Steam. Steam sterilization is acceptable as a substitute for 
12/88 in sterilization. As mentioned above, steam sterilization can be 
used on devices that can withstand high temperature and very high 
humidity. The use of steam sterilization can be increased by separating 
heat and moisture sensitive devices from resistant ones.
    b. Unacceptable substitutes. (None).

I. Aerosols

    1. Overview
    To provide perspective on EPA's decisions in the aerosols sector, 
this section presents first an overview of important related 
regulations affecting aerosols. Subsequent parts of the section 
describe the substitutes in the aerosols sector and present EPA's 
decisions on the substitutes. The decisions are summarized in Appendix 
B at the end of this notice. The proposed decisions presented in this 
section are based on the risk screen contained in the draft background 
document entitled ``Risk Screen on the Use of Substitutes for Class I 
Ozone-Depleting Substances: Aerosols.''
    Following scientific concerns raised in 1974 regarding possible 
ozone depletion from CFCs, EPA and the Food and Drug Administration 
(FDA) acted on March 17, 1978 (43 FR 11301; 43 FR 11318) to ban the use 
of CFCs as aerosol propellants in all but essential applications. 
During the mid-1970s, use as aerosol propellants constituted over 50 
percent of total CFC consumption in the United States. The 1978 ban 
reduced aerosol use of CFCs in this country by approximately 95 
percent, eliminating nearly half of the then total U.S. consumption of 
these chemicals.
    Some CFC aerosol products were specifically exempted from the ban 
based on a determination of essentiality. (See reference Essential Use 
Determinations-Revised, 1978.) The other uses of CFCs in aerosol and 
pressurized dispenser products (e.g., as an active ingredient, a 
solvent, or as the sole ingredient) were excluded from the ban because 
they did not fit the narrow definition of ``aerosol propellant.'' 
Therefore, prior to the 1990 amendments to the Clean Air Act, the only 
aerosol products that still contained CFCs were products exempted from 
the 1978 ban on CFC propellants or products excluded from the 1978 ban.
    The Clean Air Act as amended in 1990 includes statutory authorities 
relevant to use of ozone depleting chemicals used in aerosol 
applications in several sections of Title VI. In addition to mandating 
the phaseout of class I and class II substances (sections 604 and 605) 
and mandating the review of substitutes (section 612), section 610 of 
title VI prohibits the sale of certain nonessential products made with 
class I and class II substances. Title VI divides controlled ozone-
depleting substances into two distinct classes. Class I is comprised of 
CFCs, halons, carbon tetrachloride, MCF, hydrobromofluorocarbons, and 
methyl bromide. Class II is comprised solely of HCFCs. The product bans 
for class I substances and class II substances are distinct from one 
another and are addressed in subsections 610(b) and 610(d), 
respectively. In section 610(b), Congress directed EPA to promulgate 
regulations that prohibit the sale or distribution of certain 
``nonessential'' products that release class I substances. Under this 
subsection, Congress specifies particular products as nonessential and 
directs EPA to identify other nonessential products.
    In the final regulations implementing the Class I Nonessential 
Products ban (58 FR 4767; January 15, 1993), EPA issued regulations 
that implement the requirements of section 610(b) and ban certain 
nonessential products that release class I substances. Under this rule, 
EPA banned, among other products, flexible and packaging foam, and 
aerosols and other pressurized dispensers using CFCs. The use of methyl 
chloroform, while a class I substance, is not restricted under this 
regulation.
    As directed by Congress, EPA researched the purpose or intended use 
of products containing class I substances, the technological 
availability of substitutes, safety and health considerations, and 
other relevant factors including the economic effect of banning 
selected products. EPA then banned the use of CFCs as propellants and 
solvents in all aerosol products with the following specific exemptions 
(58 FR 4767; January 15, 1993):

--Medical devices listed in 21 CFR 2.125(c).
--Lubricants for pharmaceutical and tablet manufacture.
--Gauze bandage adhesives and adhesive removers.
--Topical anesthetic and vapocoolant products.
--Lubricants, coatings, or cleaning fluids for electrical and 
electronic equipment that contain CFC-11, CFC-12 or CFC-113 for solvent 
purposes, but which contain no other CFC.
--Lubricants, coatings, or cleaning fluids for aircraft maintenance 
that contain CFC-11 or CFC-113, but which contain no other CFC.
--Release agents for molds using CFC-11 or CFC-113 in the production of 
plastic or elastomeric materials.
--Spinnerette lubricant/cleaning sprays used in the production of 
synthetic fibers that contain CFC-114, but contain no other CFCs.
--Containers of CFCs used as halogen ion sources in plasma etching.
--Document preservation sprays that contain CFC-113, but which contain 
no other CFCs.
--Red pepper bear repellant sprays that contain CFC-113, but which 
contain no other CFCs.

    Exemption from the class I ban does not imply exemption from the 
phase-out requirements.
    HCFCs also have current and potential applications as propellants 
and as solvents in aerosol products. Until recently, their use has been 
limited by the aerosol industry because of their high cost relative to 
traditional options such as CFCs and hydrocarbons. Increased regulation 
of CFCs, including taxation of these substances and an eventual phase-
out, has meant that HCFCs are, for an interim period, economically 
viable in some applications, particularly where concern about 
flammability limits the use of cheaper alternatives, such as 
hydrocarbons.
    However, section 610(d) of the CAA prohibits as of January 1, 1994, 
the sale or distribution of aerosol or foam products that contain or 
are manufactured with class II substances. All HCFCs are currently 
listed as class II substances. EPA believes that the ban on certain 
products containing class II substances is self-executing. Section 
610(d)(1) bans the sale of the specified class II products on its own 
terms, without any reference to required regulations. Thus, EPA is not 
required to determine which products will be banned.
    However, section 610(d)(2) allows EPA to grant exceptions and 
exclusions from the ban on aerosol and pressurized dispenser products 
containing class II substances. Specifically, EPA is authorized to 
grant exceptions from the prohibition where the use of the aerosol 
product or pressurized dispenser is determined by the Administrator to 
be essential as a result of flammability or worker safety, and where 
the only available alternative to the use of a class II substance is 
the use of a class I substance which legally could be substituted for 
such class II substance (i.e., use of a class I substance that is still 
allowed). In addition to these two criteria for exceptions, aerosol 
products may be excluded from the ban as a result of a third 
consideration in section 610 (d)(2); namely, that the ban on products 
containing class II substances shall not apply to any medical device. 
Reflecting the self-executing nature of the CAA ban, any aerosol 
product or pressurized dispenser containing a class II substance is 
banned as of January 1, 1994, unless EPA grants an exception.
    EPA published a final rule under 610(d)(2) December 30, 1993 (58 FR 
69637). The following products were exempted:
     Medical devices listed in 21 CFR 2.125(e);
     Lubricants, coatings or cleaning fluids for electrical or 
electronic equipment, which contain class II substances for solvent 
purposes, but which contain no other class II substances;
     Lubricants, coatings or cleaning fluids used for aircraft 
maintenance, which contain class II substances for solvent purposes but 
which contain no other class II substances;
     Mold release agents used in the production of plastic and 
elastomeric materials, which contain class II substances for solvent 
purposes but which contain no other class II substances, and/or mold 
release agents that contain HCFC-22 as a propellant where evidence of 
good faith efforts to secure alternatives indicates that, other than a 
class I substance, there are no suitable alternatives;
     Spinnerette lubricants/cleaning sprays used in the 
production of synthetic fibers, which contain class II substances for 
solvent purposes and/or contain class II substances for propellant 
purposes;
     Document preservation sprays which contain HCFC-141b as a 
solvent, but which contain no other class II substance; and/or which 
contain HCFC-22 as a propellant, but which contain no other class II 
substance and which are used solely on thick books, books with coated, 
dense or paper and tightly bound documents;
     Portable fire extinguishing equipment sold to commercial 
users, owners of marine vessels or boats, and owners of noncommercial 
aircraft that contains a class II substance as a fire extinguishant 
where evidence of good faith efforts to secure alternatives indicate 
that, other than a class I substance, there are no suitable 
alternatives; and
     Wasp and hornet sprays for use near high-tension power 
lines that contain a class II substance for solvent purposes only, but 
which contain no other class II substances.
    EPA did not propose any exceptions for propellant uses of class II 
substances since sufficient propellant substitutes are available.
    Uses of HCFCs granted an exemption under section 610 based on the 
lack of other alternatives will not face further restrictions under the 
SNAP program and authority under section 612, since the express purpose 
of the SNAP program is to restrict substitutes only in cases where 
other alternatives do exist.
2. Substitutes for Aerosols
    The class I substances that are currently being used in aerosol 
applications include CFC-11, CFC-12, CFC-113, CFC-114, and methyl 
chloroform (MCF). Class II substances that are currently being used are 
HCFC-22, HCFC-142b, and HCFC-141b.
    The Agency has elected only to discuss alternatives for CFC-11, 
CFC-113, MCF, HCFC-22, HCFC-142b, and HCFC-141b. The uses for CFC-12 
and CFC-114 are as propellants in medical applications and will not be 
discussed here because the substitutes for these applications are 
currently being developed and will have to undergo FDA review. Possible 
substitutes in this application include HFC-134a and HFC-227ea, which 
both have low toxicity and zero ozone depletion potential. Regulatory 
approval for these compounds, however, is contingent on FDA approval, 
which will likely occur over the next several years. EPA's review of 
these substitutes will focus exclusively on environmental effects.
    A variety of chemicals are currently being used or are being 
considered as substitutes for class I and II controlled substances used 
in non-inhalation aerosols and pressurized containers. The suitability 
of alternatives depends upon the product in which they are used. Each 
of these alternatives has its own physical and chemical characteristics 
which make it an optimal choice for the product in question, in terms 
of such factors as solvency properties, propellant characteristics, 
performance, cost, and environmental considerations. However, the 
Agency believes that the majority of the substitutes considered to 
replace the class I and II controlled substances used as propellants or 
solvents in aerosols and pressurized containers as propellants and 
solvents are currently available and easily integrated into existing 
aerosol production facilities.
    The primary substitutes for the propellant uses of CFC-11, HCFC-22 
and HCFC-142b are as follows:
     Saturated hydrocarbons (C3-C6).
     Dimethyl ether.
     HFCs.
     Compressed gases.
     Alternative processes.
    HCFC-22 and HCFC-142b could technically be used as substitutes for 
CFC-11, but their use is extensively controlled under section 610 of 
the CAA.
    The primary substitutes for the solvent/diluent uses of CFC-11, 
CFC-113, MCF, and HCFC-141b are as follows:
     Petroleum hydrocarbons (C6-C20).
     Oxygenated organic solvents (ketones, esters, ethers, and 
alcohols).
     HCFC-141b.
     Terpenes.
     Chlorinated solvents.
     Water-based systems.
    Other substitutes, including monochlorotoluenes/benzotrifluorides, 
hydrofluorocarbons, and perfluorocarbons, are also being investigated. 
This list of substitutes was compiled with the help of companies that 
submitted information on substitutes to the Agency in response to the 
January 16, 1992, Advance Notice of Proposed Rule-Making. Today's 
decisions on these substitutes are listed in appendix B. The remainder 
of this section discusses these substitutes, the decision on each 
substitute, and the Agency's reasoning behind each determination. 
Vendors or users of substitutes not included on the table for the SNAP 
determinations on aerosols should provide information on the 
substitutes so that the Agency can add these substitutes to the lists.
    a. Substitutes for propellants. (1) Saturated light hydrocarbons 
(C3-C6). Hydrocarbons are promising replacements for nonessential uses 
of HCFC-22 as a propellant in aerosols and pressurized containers. The 
specific category of hydrocarbons used as propellants are saturated 
light hydrocarbons (C3-C6). Examples of these small chain compounds 
include butane, isobutane, and propane. All have low boiling points, 
making them excellent propellants. They are used separately or in 
mixtures, are inexpensive compared to HCFC-22 (HCFC-22 is four times 
more expensive than hydrocarbons), and are readily available from most 
chemical distributors.
    The Agency believes that the major area of concern with the 
replacement of hydrocarbons for HCFC-22 is the flammability of 
hydrocarbons. In applications where a nonflammable propellant is 
needed, a hydrocarbon could not be used. For example, the use of 
hydrocarbons around electrical equipment could prove hazardous if 
sparks from the equipment were to ignite the hydrocarbon propellant.
    Saturated light hydrocarbons are adequate substitute propellants 
where flammability is not a concern. To reduce product flammability, 
hydrocarbons can be used with water-based formulations in products such 
as insecticides, where product quality would not be adversely affected. 
Manufacturers are also hindered from selling hydrocarbon-propelled 
aerosols in certain jurisdictions. In California, for example, the use 
of hydrocarbons is restricted because of their classification as 
volatile organic compounds which contribute to low level ozone or smog.
    (2) Dimethyl ether. Dimethyl ether (DME) is a medium pressure, 
flammable, liquefied propellant. Because of its chemical properties, it 
can be used as a combination propellant/solvent, although it is 
typically classified together with other propellants and is used in 
combination with other propellants. Practices for manufacture and use 
of aerosol products formulated with DME parallel practices employed 
with hydrocarbons.
    (3) Hydrofluorocarbons. Hydrofluorocarbons (HFCs) such as HFC-134a, 
HFC-125 and HFC-152a are partially fluorinated hydrocarbons and have 
been developed relatively recently. These compounds are less dense than 
HCFC-22, but with minor reformulation adjustments could function 
equally well as propellants except in products such as noise horns, 
which require a more dense gas. Because HFCs have only recently been 
developed, they are only now becoming readily available and are 
expected to be priced significantly higher than HCFC-22, at least in 
the near term.
    Preliminary studies show that HFC-134a and HFC-125 are nonflammable 
and have very low toxicity, which would make them good replacements for 
HCFC-22 as propellants in products where nonflammability is a 
requirement. Although HFC-152a is slightly flammable, it can be 
formulated with other materials--such as HFC-125--to control its 
flammability. HFCs also may be used in conjunction with other flammable 
chemicals to reduce the flammability of such mixtures. For example, 
HFCs are being tested for use with dimethyl ether (DME) in safety 
sprays and animal repellents. Although DME is flammable, the overall 
product formulation is not. HFC-134a and HFC-125 are also being tested 
as replacements for CFCs still used in medical applications because of 
their nonflammable, nontoxic properties.
    (4) Compressed gases. Compressed gases such as carbon dioxide, 
nitrogen, air, and nitrous oxide are common, low molecular weight gases 
used as propellants in aerosol products but not as drop-in 
replacements. First, alternative dispensing mechanisms and stronger 
containers are needed because these gases are under significantly 
greater pressure. Containers holding compressed gases are, therefore, 
larger and bulkier. Second, because these chemicals have low molecular 
weights, they are inadequate as replacements for HCFC-22 in products 
requiring a dense gas propellant, such as noise horns, or in products 
requiring fine dispersion of the product, such as surface lubricants 
and weld inspection developers. Third, compressed gases dispel material 
faster because they are under higher pressure, which contributes to 
wasted product.
    Compressed gases are readily available from most chemical 
distributors and are relatively inexpensive. Compressed gases cool upon 
expansion. Compressed gases are also nonflammable and can serve as 
propellants in applications where a nonflammable propellant is 
necessary, but not in applications where a fine even dispersion is 
required.
    (5) HCFC-22 and HCFC-142b. Limited use of these chemicals as 
substitutes is anticipated since section 610 imposes significant 
restrictions as of January 1, 1994, on their use as aerosol 
propellants.
    (6) Alternative processes. Alternative processes, such as manually 
operated pumps and sprays, provide an alternative delivery mechanism in 
place of the aerosol dispenser. Development of alternative process 
replacements depends on technological feasibility. Some products, such 
as aerosol foams, cannot now be easily formed with alternative 
processes, making the replacement of the propellant difficult. In other 
products, the alternative process may not provide proper dispersion or 
accurate application of the product, limiting its use. Persons using 
manual pumps or sprays (in applications where alternative processes 
function adequately as replacements) on a continuous basis may become 
fatigued with the constant pumping motion, thus producing poor product 
performance. Nonetheless, these substitutes can serve as viable 
alternatives in certain applications.
    b. Substitutes for solvent/diluents. (1) Petroleum hydrocarbons 
(C6-C20). Petroleum hydrocarbons are generally defined as C6-C20 
hydrocarbons fractionated from the distillation of petroleum. These 
compounds are loosely grouped into paraffins (six carbon chains to ten 
carbon chains--n-hexane, n-heptane, etc.) and light aromatics (toluene 
and xylene) and come in various grades of purity. Components with up to 
twenty carbons are now also being used in an effort to reduce 
flammability. These compounds have good solvent properties, are 
relatively inexpensive (about half the price of MCF), and are readily 
available from chemical distributors. When a controlled substance is 
used only as a diluent, such as in automotive undercoatings, 
substitution using petroleum hydrocarbons can be achieved with minor 
reformulation. Many of these products containing petroleum hydrocarbons 
even outperform their chlorinated counterpart.
    Petroleum hydrocarbons are, however, flammable, and thus cannot be 
used as replacement solvents in applications where the solvent must be 
nonflammable such as electronic cleaning applications. In addition, 
pesticide aerosols formulated with certain petroleum hydrocarbons must 
adhere to requirements imposed under the Federal Insecticide, 
Fungicide, and Rodenticide Act (FIFRA).
    (2) Oxygenated organic solvents. Oxygenated organic solvents are 
compounds based on hydrocarbons containing appendant oxygen (alcohols 
and ketones), integral oxygens (ethers), or both (esters). These 
compounds are relatively inexpensive compared to MCF--about half the 
cost--and are readily available from chemical distributors. These 
compounds are also flammable, however, and cannot be used as substitute 
solvents in applications where the solvent must be nonflammable.
    These compounds are currently being blended with class I substances 
to reduce the amount of class I substances used in a product's 
formulation. Since the quantity of these compounds is small, the 
product still remains nonflammable. Some manufacturers, however, are 
completely reformulating products such as spot removers with ketones, 
esters, ethers, or alcohols. To continue the safe use of these 
convenient products, consumers may have to be educated about the 
product's increased flammability.
    (3) Hydrochlorofluorocarbons (HCFCs). HCFC-141b is a potential 
substitute to replace CFC-11 and CFC-113 used in solvent/diluent 
applications in aerosols and pressurized dispensers. HCFC-141b's ODP is 
similar to that of MCF, making it unlikely that aerosol manufacturers 
would reformulate their products away from MCF towards HCFC-141b.
    HCFC-141b has a number of characteristics that make it a suitable 
alternative solvent, namely: It is nonconductive, nonflammable 
according to U.S. Department of Transportation specifications, and 
evaporates quickly. However, HCFC-141b is expensive compared to the 
pretax price of CFC-113--almost three times the cost. Further, HCFC-
141b is slightly corrosive to plastic parts, and could not serve as a 
drop-in replacement for all the uses of CFC-11 and CFC-113 as a 
solvent.
    (4) Terpenes. Terpenes are unsaturated hydrocarbons based on 
isoprene subunits. They have good solvent properties and could replace 
ozone-depleting compounds in some solvent cleaning applications. They 
are flammable, which limits their use in applications that require 
nonflammable solvents. Some terpenes have a slight citrus scent while 
others have stronger, unpleasant odors, making them difficult to use 
over an extended period of time.
    (5) Other chlorinated solvents. Other chlorinated solvents such as 
perchloroethylene, trichloroethylene, and methylene chloride can be 
used to replace CFC-11, CFC-113, and MCF in solvent applications in 
aerosol and pressurized containers. These chlorinated solvents are 
extremely effective and can dissolve compounds which are difficult to 
dissolve in other solvents, such as fluorinated polymers used in water 
and oil repellants. However, due to toxicity concerns associated with 
these substances, their use is likely to be limited, especially in 
products sold to the general public or in products used frequently by 
workers. In addition, pesticide aerosols formulated with these 
chlorinated solvents must adhere to applicable requirements under 
FIFRA.
    Because they are strong solvents and nonflammable, however, 
chlorinated solvents are promising substitutes in cleaning applications 
for electronic equipment or electric motors where safeguards could 
protect workers from the potentially toxic fumes. These compounds are 
readily available from chemical distributors at prices comparable to 
those for MCF.
    (6) Water-based formulations. Water-based formulations provide a 
replacement for the use of CFC-11, CFC-113, and MCF as solvents in 
aerosols and pressurized dispensers. These reformulated products 
usually contain new components/active ingredients that are water 
soluble. The overall function of the reformulated product remains the 
same, but the product's substituents are changed.
    Most formulations are nonflammable, yet may be difficult to use 
around sources of electricity because they may short out electrical 
equipment. Such products may also have short shelf-lives because the 
active ingredient may decompose in an aqueous environment. Also, these 
products when sprayed do not evaporate quickly, resulting in product 
accumulation. This may create problems in certain applications, such as 
where the accumulation of a water-based product contributes to rust or 
corrosion. The possibility of reformulating products is product-
specific, depending on the feasibility of finding active ingredients 
that are water soluble.
    (7) Monochlorotoluene/benzotrifluorides. Monochlorotoluenes and 
benzotrifluorides are of commercial interest as solvent substitutes for 
aerosols. These compounds can be used either in isolation or in various 
mixtures, depending on desired chemical properties. The Agency has not 
yet completed its review of these formulations, which will be included 
in the next SNAP update.
    (8) HFC-4310. HFC-4310mee will soon be commercially available as a 
solvent cleaning agent and may be useful in aerosol products. The 
Agency has not completed review of preliminary data on this chemical. 
This chemical will be undergoing review under the Premanufacture Notice 
program of the Toxic substances Control Act.
    Other HFCs are also currently in development for solvent usage, 
although their composition is still proprietary.
    (9) Perfluorocarbons (C6F14). The Agency recently received a 
request to evaluate the perfluorocarbon C6F14 as a substitute 
solvent in aerosols. While this agent has been reviewed as a substitute 
for use in solvent cleaning, the Agency has not completed review in 
this sector.
3. Comment Response
    Public comments on the aerosols decisions focused principally on 
technical issues, such as the flammability of various propellants or 
the length of hydrocarbons used as propellants. Several commenters 
noted that chlorinated solvents may be appropriate for use in consumer 
products where a nonflammable aerosol is necessary, such as for brake 
cleaners. The Agency recognizes this as a valid concern and has amended 
the comment made in the Notice of Proposed Rule-Making that stated that 
chlorinated solvents are not suitable for consumer applications. 
However, EPA still encourages manufacturers to formulate products with 
solvents of lower toxicity, where possible.
    A number of commenters requested clarification of the relationship 
between the section 612 SNAP program and the section 610 nonessential 
use ban. The Agency has added clarification to the relevant discussion 
of listing decisions.
4. Listing Decisions
    a. Acceptable Substitutes. (1) Propellants. (a) Saturated light 
hydrocarbons (C3-C6). Saturated light hydrocarbons (C3-C6) are 
acceptable substitutes for CFC-11, HCFC-22 and HCFC-142b as propellants 
in the aerosols sector. These hydrocarbons have several environmental 
advantages over other substitutes. For example, they have zero ozone 
depletion potential, and because of their extremely short atmospheric 
residence times they are estimated to contribute little to global 
warming. Yet their reactivity contributes to formation of tropospheric 
ozone. However, use of VOCs is already subject to stringent regulatory 
controls at the federal, state, and local level, and the Agency's risk 
screen suggests that these controls preclude the need for additional 
regulation of aerosols formulated with VOCs.
    Saturated light hydrocarbons have a long history of use, and the 
increase in use due to replacement of CFCs as aerosol propellants 
represents a fraction of current consumption. Hydrocarbon propellants 
acquired industrial importance in the U.S. in the early 1950s. By 1978, 
when the ban on CFC propellants in the U.S. was promulgated, nearly 
half of all aerosol units being produced in the U.S were already using 
hydrocarbon propellants. This percentage grew to nearly 90 percent in 
1979 as a result of the CFC ban.
    Most of the hydrocarbon propellants are essentially non-toxic. Very 
high concentrations of hydrocarbons are necessary to alter normal body 
functions. No temporary or permanent physiological malfunctions are 
produced by these chemicals; however, very high concentrations of 
hydrocarbons may result in asphyxiation because of lack of oxygen. '
    Hydrocarbon propellants are flammable. Precautions should be taken 
in receiving, unloading, transferring, storing, and filling hydrocarbon 
aerosol products. The listing of these compounds as acceptable 
substitutes does not exempt producers or users from other applicable 
regulatory or industrial standards such as those promulgated by OSHA. 
However, because of the widespread use of these materials, industry is 
already familiar with the safety precautions necessary in switching 
from a CFC filling operation to one using hydrocarbons.
    (b) HFC-134a, HFC-125 and HFC-152a. HFC-134a, HFC-125 and HFC-134a 
are acceptable substitutes for CFC-11, HCFC-22, and HCFC-142b as 
propellants in the aerosols sector. HFC-152a has both zero ozone 
depletion potential and a comparatively low global warming potential. 
However, HFC-152a by itself is flammable, and necessary precautions 
should be taken when using this chemical. HFC-134a and HFC-125 also 
have no ozone depletion potential, yet these compounds do have 
atmospheric lifetimes and could contribute to global warming. Despite 
these concerns, the Agency has listed these substitutes as acceptable 
in today's rule-making since they meet the needs of specialized 
applications where other substitutes do not provide acceptable 
performance. The use of these HFCs by themselves is acceptable, as are 
blends of these chemicals with other acceptable substitutes.
    (c) Dimethyl ether. Dimethyl ether is an acceptable substitute 
propellant for CFC-11, HCFC-22 and HCFC-142b in the aerosols sector. 
The principal environmental concern for the use of DME is its ability 
to contribute to ground-level ozone formation. However, the Agency's 
screen of effects from increased use of VOCs in aerosol products 
suggests that increases in groundlevel ozone formation from use of DME 
can be controlled through existing VOC regulations.
    (d) Compressed gases. Compressed gases are acceptable substitutes 
for CFC-11, HCFC-22 and HCFC-142b as propellants in the aerosols 
sector. The Agency believes that although compressed gases such as air, 
carbon dioxide, and nitrogen are presently only used in about 7-9 
percent of the aerosol products, their use will grow in the future. 
These gases have low toxicity and industrial practices for using these 
substitutes are well established. Since these gases are under 
significantly greater pressure than CFCs and HCFCs, containers holding 
these gases must be larger and bulkier, and safety precautions should 
be undertaken during filling operations. Carbon dioxide and nitrogen 
are non-flammable and do not require the use of explosion proof gassing 
equipment. Nitrous oxide, while non-flammable, can create a moderate 
explosion risk under certain temperature and pressure conditions.
    (e) Alternative processes. Alternative processes are acceptable 
substitutes for CFC-11, HCFC-22 and HCFC-142b as propellants in the 
aerosols sector. Alternative processes such as finger and trigger 
pumps, two-compartment aerosol products, mechanical pressure dispenser 
systems, and nonspray dispensers (e.g., solid stick dispensers) have 
found increasing use as replacement for conventional aerosol products. 
The Agency believes that these products do not pose any significant 
risks, since they rely on mechanical force to replace the propellant.
    (f) HCFC-22, HCFC-142b. HCFC-22 and HCFC-142b are acceptable 
substitutes for CFC-11 as aerosol propellants. Users should note, 
however, that under section 610 of the Clean Air Act, extensive 
restrictions already govern the use of HCFCs as aerosol propellants as 
of January 1, 1994. Only one exemption for HCFCs used as aerosol 
propellants was granted under section 610 (58 FR 69637). Today's 
listing allows the use HCFC-22 and HCFC-142b in the exempted 
application, but general use restrictions established under section 610 
must still be followed. Decisions taken under section 610 are described 
earlier in this chapter, as are the exemptions under section 610.
    The principal problem with HCFC-22 and HCFC-142b is that they have 
significant ODPs and are therefore classified as class II substances. 
Yet in limited where flammability is a technical impediment to use of 
other alternatives, HCFC-22 and HCFC-142b may be the only alternatives 
to replace other ozone-depleting propellants. The exemption for HCFC-
141b use as an aerosol solvent under section 610 reflects these user 
needs.
    (2) Solvents. (a) Petroleum hydrocarbons. C6-C20 petroleum 
hydrocarbons are acceptable substitutes for CFC-11, CFC-113, methyl 
chloroform (MCF) and HCFC-141b as solvents in the aerosol sector. 
Petroleum hydrocarbons, both naturally and synthetically derived, have 
a long history of safe use, and any risks due to increased tropospheric 
ozone formation or worker exposure can be controlled by existing 
regulations. Concerns for risks from these compounds in possible uses 
as pesticide aerosol solvents have already been addressed under FIFRA 
authorities.
    (b) HCFC-141b. HCFC-141b, either by itself or blended with other 
compounds, is an acceptable substitute for CFC-11, CFC-113 and MCF as 
an aerosol solvent. Under section 610 of the Clean Air Act, extensive 
restrictions already govern the use of HCFC-141b as an aerosol solvent 
as of January 1, 1994. Limited exemptions for HCFC-141b use as an 
aerosol solvent were granted under section 610 (58 FR 69637). Today's 
listing allows the use HCFC-141b in the exempted applications, but 
general use restrictions established under section 610 must still be 
followed. Decisions taken under section 610 are described earlier in 
this chapter, as are the exemptions under section 610.
    The principal problem with HCFC-141b is that it has a comparatively 
high ODP-0.11. This is the highest ODP of all HCFCs; in fact, the ODP 
of HCFC-141b is about twice as high as HCFC-22. Yet in certain cases, 
such as where flammability is a technical impediment to use of other 
alternatives, HCFC-141b may be the only alternative to replace other 
ozone-depleting solvents. Several companies contacted the Agency under 
both section 610 and 612 indicating that they have tested alternatives, 
and that in some cases only HCFC141b meets performance or safety 
criteria. The exemptions for HCFC-141b use as an aerosol solvent under 
section 610 reflect these user needs.
    (c) Other chlorinated solvents. Trichloroethylene, 
perchloroethylene, and methylene chloride are acceptable substitutes 
for CFC-11, CFC-113, MCF and HCFC-141b as solvents in the aerosols 
sector. These substitutes have the technical capability to meet a large 
portion of the needs of the aerosols industry. However, the Agency 
anticipates that, due to toxicity concerns associated with the use of 
these alternatives, the market share for these other chlorinated 
solvents will not increase substantially.
    The toxicity of these three solvents has been the subject of 
extensive analysis. Without regulation, their use has the potential to 
pose high risks to workers as well as to residents in nearby 
communities or consumers using household products containing such 
chemicals. However, while the Agency generally discourages the use of 
these chemicals in aerosol applications, they may be necessary in 
products where nonflammability is a critical characteristic. The Agency 
encourages formulators of aerosols to restrict their use of chlorinated 
solvents to products that must be nonflammable.
    Given that the use of chlorinated solvents may be necessary to 
offset risks of flammability, the Agency has determined chlorinated 
solvents to be acceptable substitutes since risks to workers can be 
reduced by adhering to OSHA standards. Residual risks to residents in 
nearby communities may remain. The Agency is aware of these potential 
risks and has the authority to address them under section 112 of the 
CAA. This section of the CAA lists three of these solvents as Hazardous 
Air Pollutants, and authorizes the Agency to establish controls for 
their use. EPA will pursue any appropriate regulations under this 
authority. Any risks arising from use of these compounds as pesticide 
aerosols in reformulated products can be addressed using FIFRA 
authorities.
    These solvents are occasionally found in consumer products. 
Consumer risks were not analyzed under the SNAP risk screens since 
these risks are controlled under authorities implemented by the 
Consumer Safety Product Commission, which has already established 
labeling requirements for use of these solvents.
    (d) Oxygenated organic solvents. Oxygenated organic solvents 
(ketones, esters, ethers, and alcohols) are acceptable substitutes for 
CFC-11, CFC-113, MCF and HCFC-141b as solvents in the aerosols sector. 
Most of these compounds have a long history of safe use, and 
regulations to control any risks due to tropospheric ozone formation or 
worker exposure are already in place under other relevant authorities.
    (e) Terpenes. Terpenes are acceptable substitutes for CFC-11, CFC-
113, MCF and HCFC-141b as solvents in the aerosols sector. Terpene-
based formulations have a long history of safe use as industrial 
solvents, and any increased risks due to increased tropospheric ozone 
formation can be controlled through existing regulations. Additionally, 
many of these chemicals are naturally occurring organic hydrocarbons 
and exhibit significant biodegradability.
    The use history of these chemicals does not negate the toxicity of 
these compounds to aquatic life. However, the Agency does not believe 
that in this case significant adverse effects are to be expected, since 
in aerosol applications the terpenes volatilize during use and would 
consequently not be discharged to surface or ground water where aquatic 
species are to be found.
    (f) Water-based formulations. Water-based formulations are 
acceptable substitutes for CFC-11, CFC-113, MCF and HCFC-141b as 
solvents in the aerosols sector. The Agency did not identify any 
significant environmental concerns associated with use of these 
products. They can contain small amounts of VOCs, but these amounts are 
minor in comparison to products formulated solely with organic 
solvents.
    b. Substitutes acceptable subject to use conditions. (None).
    c. Substitutes acceptable subject to narrowed use limits. (None).
    d. Unacceptable substitutes. (None).

 J. Tobacco Expansion

1. Overview
    Tobacco expansion is the process of puffing leaves of tobacco to 
decrease the volume of tobacco used in cigarette production. Currently, 
one of the primary technologies used to expand tobacco in the U.S. 
relies on CFC-11. One and one half million pounds of CFC-11 are used 
annually in the U.S. in this sector.
    In the CFC-11 process, tobacco is saturated with CFC-11 in a 
stainless steel vessel maintained at 120 degrees Fahrenheit and 
pressurized to 20 psi. The tobacco is then permeated with hot air (330 
F) which expands the tobacco. The CFC-11 is vaporized and recovered by 
cooling and compressing, and is continually recovered and recycled.
    The Agency received notification on two potential substitutes: (1) 
Carbon dioxide technology, an alternative process substitute, and (2) 
HFC-227ea. In this final rule, the Agency is listing carbon dioxide as 
an acceptable substitute for CFC-11 in tobacco expansion. Similarly, 
HFC-227ea is (currently under review and will be listed in the FRM 
pending completion of review of the data).
2. Comment Response
    The NPRM listed HCFC-123 as pending review for use as a substitute 
for tobacco expansion. One commenter proposed that HCFC-123 should not 
be listed as an acceptable substitute in the final rule because the 
sole U.S. manufacturer will not sell it for use in the tobacco 
expansion process. The sole U.S. manufacturer of HCFC-123 confirmed via 
public comment that HCFC-123 will not be sold to the tobacco industry 
for use in the tobacco expansion process. The manufacturer requested 
EPA to withdraw this compound from consideration as an alternative for 
this end-use. Subsequently, EPA terminated the review for HCFC-123 in 
tobacco expansion, and will not include HCFC-123 in the listing 
decisions for this sector.
3. Listing Decisions
    a. Carbon dioxide. The Agency has determined that the use of carbon 
dioxide as a substitute for CFC-11 in tobacco expansion is acceptable. 
Carbon dioxide has been successfully used in the tobacco industry for 
approximately twenty years. It is non-toxic, non-flammable, and it has 
zero ODP. A permissible exposure level (PEL) has been set at 5,000 ppm, 
a level that can easily be met during the well contained tobacco 
expansion process. The carbon dioxide process is similar to the process 
using CFC-11, though pressure and temperature parameters are different. 
For this reason carbon dioxide cannot be used as a retrofit for CFC-11 
equipment; new equipment must be purchased in order to use carbon 
dioxide for tobacco expansion.
    Although carbon dioxide is a greenhouse gas, increased use of 
carbon dioxide for tobacco expansion will not increase global warming 
because the carbon dioxide used in tobacco expansion is a by-product of 
the production of other gases. The carbon dioxide is captured from a 
stream of gas that otherwise would be emitted to the ambient air. 
Additionally, carbon dioxide recycling equipment is available, which 
will also help limit emissions of carbon dioxide to the atmosphere.
    b. Propane.  The Agency has determined that the use of propane as a 
substitute for CFC-11 in tobacco expansion is acceptable. Plant 
modifications may be necessary to control the flammability of this 
substitute to ensure worker safety. Propane is a VOC and must be 
controlled as such under Title I of the CAA.

K. Adhesives, Coatings, and Inks

1. Overview
    Methyl chloroform (MCF) is used as a solvent in the adhesives, 
coatings, and inks sector because of its unique and favorable 
properties: High solvency, non flammability, low toxicity, relative 
high stability, and low boiling point. For this section, coatings are 
defined to be durable and decorative coatings such as paints. Unlike a 
number of other solvents that are classified as volatile organic 
compounds (VOCs), MCF does not photochemically degrade in the lower 
atmosphere to lead to ground-level ozone formation. This key property 
caused many manufacturers to switch from formulations containing VOC 
solvents to MCF in the mid 1980s because regulatory pressure increased 
to reduce VOC emissions in nonattainment areas. Companies achieved 
compliance by altering their VOC solvent-borne formulations to MCF, 
thereby avoiding costly capital investment in new equipment, changes in 
operating procedures, and employee retraining. This trend has now been 
reversed as companies have begun to respond to the phase-out of MCF 
under the stratospheric ozone protection provisions of the Clean Air 
Act.
    This section examines substitutes that can be used in place of MCF 
in this sector, and presents the Agency's proposed decisions and 
supporting analysis on acceptability of these substitutes. These 
determinations are summarized in appendix B at the end of the sector 
discussions.
    Of the three uses for MCF in this sector, use of MCF is largest in 
the adhesives subsector. In 1989, manufacturers of adhesives consumed 
about 28,000 metric tons (MT) of MCF in their formulations, roughly 
nine percent of the total MCF produced in the U.S. (HSIA, 1991). 
Solvent-based adhesive formulations constitute 15 percent of all 
adhesive types. MCF is desirable as a solvent for adhesives because it 
evaporates rapidly, is nonflammable, exhibits a relatively high PEL, 
performs comparably to VOC-formulated products, and does not 
photochemically degrade in the lower atmosphere. The 1991 consumption 
of methyl chloroform as a solvent in the adhesives sector was estimated 
to be 32,000 MT. EPA believes that this consumption has declined since 
1991 due to increased excise taxes, the CFC labeling requirement of the 
CAA and the increasing awareness of the pending 1996 phaseout.
    MCF is used in five adhesive types:
     Laminate adhesives;
     Flexible foam adhesives;
     Hardwood floor adhesives;
     Metal to rubber adhesives; and
     Tire patch adhesives.
    MCF is no longer commonly used in the following adhesive 
applications where its use was once widespread:
     Pressure sensitive adhesives (tapes, labels, etc.);
     Flexible packaging adhesives;
     Aerosol-propelled adhesives; and
     Shoe repair glues and other consumer adhesives.
    In manufacture of coatings and inks, MCF usage rose steadily 
throughout the 1980s principally because of the VOC problems with other 
solvents. It began declining in the early 1990s because of the ozone 
depletion issue. In 1989, the consumption of MCF used in coatings and 
inks was 18,480 MT, six percent of the total 310,000 MT of MCF consumed 
in the U.S. The 1991 consumption in the coatings and inks sector was 
estimated to be 23,000 MT. This consumption figure has likely declined 
even more for the same reasons as cited in the adhesives section. MCF 
is the only ozone-depleting substance currently used in coatings and 
inks formulations. As with uses in adhesives, MCF has replaced some of 
the applications in coatings and inks which previously used VOC 
solvents and now the trend is reversing.
    The current use of MCF in coatings and inks applications occurs in 
four use areas:
     Flexographic and rotogravure printing inks;
     Wood stains;
     Metal coatings; and
     Aerospace coatings.
2. Substitutes in the Adhesives, Coatings, and Inks Sector
    Methyl chloroform-based adhesives, coatings, and inks can be 
replaced by either substitute solvents or alternative application 
technologies. In most instances, the alternatives are expected to 
perform as well as products containing MCF. Factors that determine 
which particular alternative is best in a given situation include 
physical and chemical properties, replacement chemical costs, capital 
investment costs, and product performance.
    The primary substitutes to replace methyl chloroform in adhesives, 
coatings, and inks include:
     Petroleum hydrocarbons;
     Oxygenated organic solvents (ketones, esters, ethers, 
alcohols);
     Chlorinated solvents;
     Terpenes;
     Water-based formulations;
     High-solids formulation; and
     Alternative process alternatives;
--Powder formulations;
--Hot melts;
--Thermoplastic plasma spray coatings;
--Radiation cured;
--Moisture cured;
--Chemical cured;
--Reactive liquids.
    These substitutes can be grouped into four basic categories: 
Solvent substitutes, water-based formulations, high-solids 
formulations, and alternative processes.
    a. Solvent substitutes. Petroleum hydrocarbons are hydrocarbons 
fractionated from the distillation of petroleum. These compounds are 
loosely grouped into paraffins (six carbon chains to ten carbon 
chains--hexane, heptane, etc.) and light aromatics (toluene and 
xylene), and come in various levels of purity. These compounds have 
good solvent properties, cost about half as much as MCF, and are 
readily available from chemical distributors.
    Oxygenated organic solvents such as alcohols, ketones, ethers, and 
esters dissolve a wide range of polar and semi-polar substances. These 
compounds are relatively inexpensive compared to MCF (about half the 
cost) and are readily available. They function well as solvents and 
dissolve most resins and binders used in adhesives, coatings, and inks.
    Chlorinated solvents such as perchloroethylene and methylene 
chloride are chlorinated hydrocarbons. These chemicals can be used to 
replace MCF used in adhesives, coatings and inks. These solvents are 
commercially available from chemical distributors at prices comparable 
to those for methyl chloroform.
    Chlorinated solvent compounds are chemically similar to MCF and 
thus are able to substitute directly for MCF with minor changes in the 
formulation of the product; product quality is expected to remain 
unchanged. Manufacturers can use chlorinated solvents in existing 
equipment with minor changes, resulting in low capital costs.
    Terpenes are unsaturated hydrocarbons based on isoprene subunits. 
They have good solvent properties and could replace MCF in some coating 
and ink products. Terpenes, such as d-limonene, cost about seven times 
more than MCF, and are commercially available from chemical 
distributors. Manufacturers can use terpenes in existing equipment with 
minor changes.
    Monochlorotoluene and chlorobenzotrifluorides are also of 
commercial interest as solvent substitutes for adhesives, coatings, and 
inks. These compounds can be used either in isolation or in various 
mixtures, depending on desired chemical properties. The Agency recently 
received information on these formulations, and will issue a SNAP 
determination for these substitutes in the next set of listing 
decisions.
    b. Water-based formulations. Water-based coatings contain water 
rather than conventional solvents. Primary uses of these coatings 
include coating of furniture, aluminum siding, hardboard, metal 
containers, appliances, structural steel, and heavy equipment. Water-
based coatings are priced roughly 20 to 30 percent more than methyl 
chloroform-based coatings.
    Water-based inks use water and other co-solvents such as alcohols 
and alkyl acetates to dissolve resins, binders, and pigments instead of 
conventional solvents. Water-based inks accounted for 55 percent of the 
flexographic inks and 15 percent of the gravure inks used in the U.S. 
in 1987. Water-based inks are priced roughly 10 percent less than 
methyl chloroform-based inks.
    Water-based adhesives currently account for about 45 percent of the 
world adhesive market. Water-based adhesives will likely dominate the 
market to replace MCF in general consumer uses and in areas where a 
rigid bond is not needed. Water-based adhesives--especially water-based 
latexes, which are stable dispersions of solid polymeric material in an 
essentially aqueous medium--can effectively replace MCF use in the 
flexible foams sector because of the flexibility of the bond they 
provide. Water-based latex adhesives have the potential to penetrate 
85-90 percent of the MCF-based adhesive market in flexible foams 
applications. They still pose some problems, however, including:
     Long set and dry times; newer developments seem to be 
solving this problem;
     Deterioration during storage especially if frozen; and
     The production of bacteria-contaminated waste water.
    Water-based replacements have not proven effective in binding high 
density laminates or hardwood flooring principally because moisture 
enhances the chances of warping. In cases where MCF is used for door 
assemblies or sealants, water-based urethane adhesives containing 
polyisocyanates can be used.
    c. High-solid formulations. High-solids coatings resemble 
conventional coatings in appearance and use, except high-solids 
coatings contain less solvent and a greater percentage of resin. High-
solids coatings are currently used on appliances, metal furniture, and 
farm and road construction equipment. High-solids coatings are priced 
20 to 30 percent higher than methyl chloroform-based coatings, yet the 
buyer receives more usable paint because the coatings contain less 
solvent, thus reducing the volume of coatings required.
    High-solids adhesives can reduce the amount of solvent used in 
adhesives by increasing the percentage of solids in the formulation. 
Adhesives formerly containing 30-50 percent solids contain about 80 
percent solids after reformulation. High-solids adhesives have good 
performance characteristics, including initial bond strength, and can 
be applied using existing equipment at normal line speeds with minimal 
modification. For bonding rubber assemblies, high solid adhesive films 
are often too thick, resulting in limited versatility and generally 
poor performance. High-solids formulations, however, are already used 
widely in the flexible foams, hardwood flooring, and high-pressure 
laminates industries. The solvent of choice in these industries remains 
MCF, but with a decreased portion of solvent in the formulations, so 
that less solvent is consumed overall. High-solids formulations are 
only a transitional replacement until adequate substitutes are found 
that do not contain MCF.
    d. Alternative process substitutes. Powder adhesives, the first 
category of alternative process substitutes, are composed of one-part 
epoxies, urethanes, and natural resins. These adhesives are often 
supplied as powders that require heat to cure. They are generally 
applied in one of three ways: (1) By sifting the powder onto preheated 
substrates, (2) by dipping a preheated substrate into the powder, and 
(3) by melting the powder into a paste or liquid and applying it by 
conventional means. Since high temperatures are required to activate 
and thermoset powder adhesives, their ability to replace MCF-based 
formulations will depend on the characteristics of the substrates being 
bonded: If the materials being bonded are heat sensitive, heat-
activated powder adhesives cannot be used.
    Powder coatings have no solvent, containing only resins and 
pigments in powder form. Typically, the powder is electrostatically 
applied and the coated object is heated above the powder's melting 
point, so that the resin fuses into a continuous film. Powder coating 
is a mature technology and is used on various types of metal products 
such as appliances, concrete reinforced bars, automobiles, steel 
shelving, lawn and farm equipment, and some furniture. The elevated 
temperatures necessary to melt the coatings, however, restrict the use 
of powder coatings on plastic and wood products. Powder coatings are 
priced comparably to methyl chloroform-based coatings.
    Hot melt adhesives are 100 percent solid thermoplastic binders that 
can be used to replace MCF formulations in applications that require a 
rigid bond. Hot melts currently account for about 20 percent of the 
adhesives market, and they, along with water-based adhesives, will 
likely benefit most from the move away from MCF-based adhesive 
formulations. Hot melts are now used instead of MCF formulations in 
laminating applications, especially those involving the lamination of 
flexible foam products. They can also replace MCF-based adhesive 
formulations in the original equipment manufacturer's (OEM) production 
of high-pressure laminates and possibly in the installation of hardwood 
flooring. The potential ability of hot melt adhesives to replace MCF-
based formulations in the flexible foams sector is limited to 10-15 
percent penetration because of the need for flexible bonds in most 
furniture and bedding applications.
    Thermoplastic plasma spray coatings are powder coatings that melt 
in transit towards the object to be coated propelled by a pressurized 
inert gas, such as Argon. An electric arc strips electrons from the 
plastic particles fusing them together as they move through the 
applicator gun. Thermoplastic plasma spray coatings can be used to coat 
large and small objects of metal, wood, plastic, or fiberglass.
    Radiation curing is a production technique for drying and curing 
adhesives with radiant energy in the form of ultraviolet (UV) or 
infrared (IR) light, electron beams (EB), and gamma or x-rays. The 
binding agents that can be cured with radiant energy are acrylics, 
epoxies, urethanes, anaerobic adhesives, and polyester resins. In many 
cases, if the materials are either heat sensitive or opaque, radiation 
curing cannot be employed.
    Radiation-dried coatings are applied as either a powder or as a 
high-solids form and dried using the same radiant energy forms as used 
in radiation-cured adhesives. The binder systems that can be dried with 
radiant energy are also similar. In cases where the radiant energy is 
harmful to a component, such as sensitive electronic equipment, 
radiant-dried coating cannot be employed.
    Moisture-cured, chemical-cured, and reactive liquid adhesives are 
still not widely used because they are still being developed or because 
performance or application problems still have to be addressed. They 
will not be widely commercially available for several years.
3. Comment Response
    a. Acceptable substitutes. It was suggested that the acceptable 
substitutes cited for MCF could also be extended to other ozone-
depleting solvents, such as CFC-113. Depending on the specific 
application, EPA believes that it is probable that the same substitutes 
would apply and has addressed such substitutes as appropriate.
    Another commenter noted that some terminology was inconsistent and 
should be clarified. The use of the collective term ``organic solvent'' 
when describing alcohols, ketones and esters was cited. EPA agrees and 
believes that ``Oxygenated organic solvent'' is more specific. This 
phrase was substituted in the final rule.
    b. Unacceptable substitutes--no comments received. c. Pending 
substitutes. One commenter suggested that other chlorinated solvents, 
glycol ethers, glycol ether acetates and N-methyl pyrollidone be 
forbidden as substitutes. EPA believes that when used as directed and 
within the specified controls, these substances are safe alternative 
processes.
    d. Other related issues--One commenter stated that ``coatings'' 
needs to be clarified to mean paint type coatings and not other 
coatings such as lubricants and mold releases. The phrase coatings is 
defined in the overview section to mean durable and decorative coatings 
such as paint to clarify this application.
    4. Preliminary Listing Decisions
    a. Acceptable substitutes. (1) Solvent substitutes. (a) Petroleum 
distillates. Petroleum hydrocarbons are acceptable substitutes for MCF 
in adhesives, coatings, and inks. The principal concern with these 
substitutes is over risk to workers during manufacture and use of the 
alternative solvent. However, the Agency's analysis of these 
alternatives indicated that risks from use of petroleum hydrocarbons 
are well understood and already subject to necessary controls. For 
instance, although these solvents are flammable, industry has a good 
record of safe use of these substitutes. Additionally, certain of the 
petroleum hydrocarbons, for example n-hexane, have low Permissible 
Exposure Limits (PELs), but the Agency's survey of exposures in the 
workplace found that these levels can successfully be attained if 
adequate ventilation and appropriate work practices are implemented.
    The Agency's analysis of the potential for risks to residents in 
nearby communities did indicate the potential for adverse effects near 
a site with industrial use of petroleum hydrocarbons if a relatively 
toxic petroleum hydrocarbon is used. However, the Agency does not 
believe that the risk screen describes the true risk presented by these 
chemicals. First, the agency has determined that petroleum hydrocarbons 
used in this sector are rarely as toxic as n-hexane. Second, the screen 
used as past MCF emissions as a proxy for emissions of n-hexane. This 
approach does not account for other regulatory controls, such as VOC 
controls, that limit emissions of hydrocarbons from industrial sites, 
and would consequently also serve to lower any other health risks to 
the general population from these chemicals.
    For this reason, the Agency believes that petroleum hydrocarbons 
merit use as substitutes, although it encourages manufacturers to 
formulate products where possible with compounds with lowest inherent 
toxicity.
    (b) Alcohols, ketones, ethers and esters. Alcohols, ketones, ethers 
and esters are acceptable substitutes for MCF in adhesives, coatings, 
and inks. The concerns for use of these solvents parallel the concerns 
associated with petroleum hydrocarbons. In this case, two of the 
typical oxygenated hydrocarbons examined in the Agency's risk screen, 
methyl ethyl ketone and methyl isobutyl ketone, also have comparatively 
low toxicity. For the same reasons described in the section on 
petroleum distillates, the Agency is approving these compounds as 
substitutes for MCF. This approval also includes the same guidance to 
manufacturers--to select chemicals for product formulations with lowest 
inherent toxicity.
    (c) Chlorinated solvents. Perchloroethylene, methylene chloride and 
trichloroethylene are acceptable substitutes for adhesives, coatings, 
and inks. Use of these solvents merit special caution, since they are 
suspected human carcinogens. However, as with other solvents, the 
Agency's risk screen indicates that proper workplace practices 
significantly reduce risks in occupational settings. The Agency's 
examination of risks to the general population determined the highest 
potential for adverse effects to be associated with use of 
trichloroethylene, since it has the greatest cancer potency. Clearly 
there is a need for further assessment of the hazards from use of this 
chemical, and the Agency notes that authorities exist to address any 
risks determined from such analyses under Title III of the Clean Air 
Act. Title III lists all three of the chlorinated solvents as Hazardous 
Air Pollutants, and mandates development of Maximum Achievable Control 
Technology standards to control emissions of these chemicals in various 
industrial settings.
    (d) Terpenes. Terpenes are acceptable substitutes for MCF in 
adhesives, coatings, and inks. The principal environmental concern with 
terpenes is their toxicity to aquatic life. In applications for 
terpenes in adhesives, coatings, and inks, however, the terpenes are 
both used and bound in the product formulation, meaning that there are 
no discharges of wastewater effluent that could present a risk. Other 
potential environmental hazards associated with these compounds arise 
from their flammability and unpleasant odors, but these can be 
controlled by good workplace practices.
    (2) Water-based formulations/high-solid. Formulations. Water-based 
formulations and high-solid formulations are acceptable substitutes for 
MCF in adhesives, coatings, and inks. The Agency did not identify any 
environmental or health concerns associated with use of these products. 
These formulations do contain small amounts of VOCs, but the increase 
in VOC loadings from these products is expected to be extremely small 
in comparison to VOC contributions from other sources.
    (3) Alternative processes. Alternative processes, including powder 
formulations, hot melt, thermoplastic plasma spray, radiation-based 
formulations, and moisture-cured, chemical-cured, and reactive liquid 
alternatives, are all acceptable substitutes for MCF in adhesives, 
coatings, and inks. The Agency did not identify any health or 
environmental concerns associated with use of these substitutes. Since 
this grouping includes such a wide variety of products for which it is 
difficult to complete an in-depth risk screen, the Agency solicits 
additional detail on any potential environmental or health effects that 
merit further investigation.

X. Additional Information

A. Executive Order 12866

    Under Executive Order 12866, (58 FR 51735 (October 4, 1993)) The 
Agency must determine whether the regulatory action is ``significant'' 
and therefore subject to OMB review and the requirements of the 
Executive Order. The Order defines ``significant regulatory action'' as 
one that is likely to result in a rule that may: (1) Have an annual 
effect on the economy of $100 million or more or adversely affect in a 
material way the economy, a sector of the economy, productivity, 
competition, jobs, the environment, public health or safety, or State, 
local, or tribal governments or communitites;
    (2) Create a serious inconsistency or otherwise interfere with an 
action taken or planned by another agency;
    (3) Materially alter the budgetary impact of entitlements, grants, 
user fees, or loan programs or the rights and obligations of recipients 
thereof; or
    (4) Raise novel legal or policy issues arising out of legal 
mandates, the President's priorities, or the principles set forth in 
the Executive Order.
    It has been determined that this is not a ``significant regulatory 
action'' under the terms of Executive Order 12866 and is therefore not 
subject to OMB review.

B. Regulatory Flexibility Act

    The Regulatory Flexibility Act, 5 U.S.C. 601-602, requires that 
federal agencies examine the effects of their regulations on small 
entities. Under 5 U.S.C. 604(a), whenever an agency is required to 
publish a final rule-making, it must prepare a regulatory flexibility 
analysis (RFA). Such an analysis is not required if the head of the 
Agency certifies that a rule will not have a significant economic 
effect on a substantial number of small entities, pursuant to 5 U.S.C. 
605(b).
    The Agency believes that this final rule will not have a 
significant effect on a substantial number of small entities and has 
therefore concluded that a formal RFA is unnecessary. Because costs of 
the SNAP requirements as a whole are expected to be minor, the rule is 
unlikely to adversely affect small businesses, particularly as the rule 
exempts small sectors and end-uses from reporting requirements and 
formal Agency review. In fact, to the extent that information gathering 
is more expensive and time-consuming for small companies, this rule may 
well provide benefits for small businesses anxious to examine potential 
substitutes to any ozone-depleting class I and II substances they may 
be using, by requiring manufacturers to make information on such 
substitutes available.

C. Paperwork Reduction Act

    The information collection requirements in this rule have been 
approved by the Office of Management and Budget (OMB) under the 
Paperwork Reduction Act, 44 U.S.C. 3501 et seq. and have been assigned 
control number 2060-0226.
    This collection of information has an estimated reporting burden 
averaging 166 hours per response and an estimated annual recordkeeping 
burden averaging 25 hours per recordkeeper. These estimates include 
time for reviewing instructions, searching existing data sources, 
gathering and maintaining the data needed, and completing and reviewing 
the collection of information.
    Send comments regarding the burden estimate or any other aspect of 
this collection of information, including suggestions for reducing this 
burden to Chief, Information Policy Branch; EPA; 401 M Street, SW., 
(Mail Code 2136); Washington, DC 20460; and to the Office of 
Information and Regulatory Affairs, Office of Management and Budget, 
Washington, DC 20503, marked ``Attention: Desk Officer for EPA.''

XI. References

    1. United Nations Environment Programme, World Meteorological 
Organization, et al. Scientific Assessment of Stratospheric Ozone: 1991 
(17 December 1991).
    2. Intergovernmental Panel on Climate Change, World Meteorological 
Organization, United Nations Environment Programme. Climate Change: The 
IPCC Scientific Assessment (1990).
    3. Halogenated Solvents Industry Alliance (HSIA), 1,1,1-
Trichloroethane (Methyl Chloroform) White Paper (May 1991).

Appendix A to the Preamble

Class I and Class II Ozone-Depleting Substances

Class I and Class II Ozone-Depleting Substances

Class I

Group I
Chlorofluorocarbon-11
    CFC-11 (CFCl3); Trichlorofluoromethane
Chlorofluorocarbon-12
    CFC-12 (CF2Cl2); Dichlorodifluoromethane
Chlorofluorocarbon-113
    CFC-113 (C2F3Cl3); Trichlorotrifluoroethane
Chlorofluorocarbon-114
    CFC-114 (C2F4Cl2); Dichlorotetrafluoroethane
Chlorofluorocarbon-115
    CFC-115 (C2F5Cl); Monochloropentafluoroethane
Group II
Halon--1211
    (CF2ClBr); Bromochlorodifluoromethane
Halon--1301
    (CF3Br); Bromotrifluoromethane
Halon--2402
    (C2F4Br2); Dibromotetrafluoroethane Group III
Chlorofluorocarbon-13
    CFC-13 (CF3Cl); Chlorotrifluoromethane
Chlorofluorocarbon-111
    CFC-111 (C2FCl5); Pentachlorofluoroethane
Chlorofluorocarbon-112
    CFC-112 (C2F2Cl4); Tetrachlorodifluoroethane
Chlorofluorocarbon-211
    CFC-211 (C3FCl7); Heptachlorofluoropropane
Chlorofluorocarbon-212
    CFC-212 (C3F2Cl6); Hexachlorodifluoropropane
Chlorofluorocarbon-213
    CFC-213 (C3F3Cl5); Pentachlorotrifluoropropane
Chlorofluorocarbon-214
    CFC-214 (C3F4Cl4); Tetrachlorotetrafluoropropane
Chlorofluorocarbon-215
    CFC-215 (C3F5Cl3); Trichloropentafluoropropane
Chlorofluorocarbon-216
    CFC-216 (C3F6Cl2); Dichlorohexafluoropropane
Chlorofluorocarbon-217
    CFC-217 (C3F7Cl); Monochloroheptafluoropropane
Group IV
Carbon Tetrachloride
    (CCl4)
Group V
Methyl Chloroform
    (C2H3Cl3); 1,1,1 Trichloroethane
Group VI
Methyl Bromide
    (CH3Br)
Group VII
Hydrobromofluorocarbons
(HBFCs)

Class II

Hydrochlorofluorocarbon-21
    HCFC-21 (CHFCl2); Dichlorofluoromethane
Hydrochlorofluorocarbon-22
    HCFC-22 (CHF2Cl); Monochlorodifluoromethane
Hydrochlorofluorocarbon-31
    HCFC-31 (CH2FCl); Monochlorofluoromethane
Hydrochlorofluorocarbon-121
    HCFC-121 (C2HFCl4); Tetrachlorofluoroethane
Hydrochlorofluorocarbon-122
    HCFC-122 (C2HF2Cl3); Trichlorodifluoroethane
Hydrochlorofluorocarbon-123
    HCFC-123 (C2HF3Cl2); Dichlorotrifluoroethane
Hydrochlorofluorocarbon-124
    HCFC-124 (C2HF4Cl); Monochlorotetrafluoroethane
Hydrochlorofluorocarbon-131
    HCFC-131 (C2H2FCl3); Trichlorofluoroethane
Hydrochlorofluorocarbon-132B
    HCFC-132B (C2H2F2Cl2); Dichlorodifluoroethane
Hydrochlorofluorocarbon-133A
    HCFC-133A (C2H2F3Cl); Monochlorotrifluoroethane
Hydrochlorofluorocarbon-141B
    HCFC-141B (C2H3FCl2); Dichlorofluoroethane
Hydrochlorofluorocarbon-142B
    HCFC-142B (C2H3F2Cl); Monochlorodifluoroethane
Hydrochlorofluorocarbon-221
    HCFC-221 (C3HFCl6); Hexachlorofluoropropane
Hydrochlorofluorocarbon-222
    HCFC-222 (C3HF2Cl5); Pentachlorodifluoropropane
Hydrochlorofluorocarbon-223
    HCFC-223 (C3HF3Cl4); Tetrachlorotrifluoropropane
Hydrochlorofluorocarbon-224
    HCFC-224 (C3HF4Cl3); Trichlorotetrafluoropropane
Hydrochlorofluorocarbon-225CA
    HCFC-225CA (C3HF5Cl2); Dichloropentafluoropropane
Hydrochlorofluorocarbon-225CB
    HCFC-225CB (C3HF5Cl2); Dichloropentafluoropropane
Hydrochlorofluorocarbon-226
    HCFC-226 (C3HF6Cl); Monochlorohexafluoropropane
Hydrochlorofluorocarbon-231
    HCFC-231 (C3H2FCl5); Pentachlorofluoropropane
Hydrochlorofluorocarbon-232
    HCFC-232 (C3H2F2Cl4) Tetrachlorodifluoropropane
Hydrochlorofluorocarbon-233
    HCFC-233 (C3H2F3Cl3); Trichlorotrifluoropropane
Hydrochlorofluorocarbon-234
    HCFC-234 (C3H2F4Cl2); 
Dichlorotetrafluoropropane
Hydrochlorofluorocarbon-235
    HCFC-235 (C3H2F5Cl); Monochloropentafluoropropane
Hydrochlorofluorocarbon-241
    HCFC-241 (C3H3FCl4); Tetrachlorofluoropropane
Hydrochlorofluorocarbon-242
    HCFC-242 (C3H3F2Cl3); Trichlorodifluoropropane
Hydrochlorofluorocarbon-243
    HCFC-243 (C3H3F3Cl2) Dichlorotrifluoropropane
Hydrochlorofluorocarbon-244
    HCFC-244 (C3H3F4Cl); Monochlorotetrafluoropropane
Hydrochlorofluorocarbon-251
    HCFC-251 (C3H4FCl3); Trichlorofluoropropane
Hydrochlorofluorocarbon-252
    HCFC-252 (C3H4F2Cl2) Dichlorodifluoropropane
Hydrochlorofluorocarbon-253
    HCFC-253 (C3H4F3Cl); Monochlorotrifluoropentane
Hydrochlorofluorocarbon-261
    HCFC-261 (C3H5FCl2); Dichlorofluoropropane
Hydrochlorofluorocarbon-262
    HCFC-262 (C3H5F2Cl); Monochlorodifluoropropane
Hydrochlorofluorocarbon-271
    HCFC-271 (C3H6FCl); Monochlorofluoropropane

Appendix B to the Preamble

Summary of Listing Decisions

                                                  Refrigerants                                                  
                                             Acceptable Substitutes                                             
----------------------------------------------------------------------------------------------------------------
           End-use                     Substitute                Decision                   Comments            
----------------------------------------------------------------------------------------------------------------
CF-11 centrifugal chillers    HCFC-123....................  Acceptable........  EPA worker-monitoring studies of
 (retrofit).                                                                     123 show that 8-hour TWA can be
                                                                                 kept within 1 ppm (well under  
                                                                                 the AEL of 30 ppm) when        
                                                                                 recycling and ASHRAE standards 
                                                                                 are followed. This substitute  
                                                                                 is subject to containment and  
                                                                                 recovery regulations concerning
                                                                                 HCFCs.                         
CFC-12 centrifugal chillers   HFC-134a....................  Acceptable........  EPA strongly recommends the     
 (retrofit).                                                                     containment and reclamation of 
                                                                                 this substitute.               
CFC-113 centrifugal chillers  None........................  Acceptable........  ................................
 (retrofit).                                                                                                    
CFC-114 centrifugal chillers  HCFC-124....................  Acceptable........  This substitute is subject to   
 (retrofit).                                                                     containment and recovery       
                                                                                 regulations covering HCFCs.    
R-500 centrifugal chillers    HFC-134a....................  Acceptable........  EPA strongly recommends the     
 (retrofit).                                                                     containment and reclamation of 
                                                                                 this substitute.               
CFC-11, CFC-12, CFC-113, CFC- HCFC-123....................  Acceptable........  EPA worker-monitoring studies of
 114, R-500 centrifugal                                                          123 show that 8-hour TWA can be
 chillers (new equipment/                                                        kept within 1 ppm (well under  
 NIKs).                                                                          the AEL of 30 ppm) when        
                                                                                 recycling and ASHRAE standards 
                                                                                 are followed. This substitute  
                                                                                 is subject to containment and  
                                                                                 recovery regulations concerning
                                                                                 HCFCs.                         
                              HCFC-124....................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              HCFC-22.....................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              HFC-134a....................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              HFC-227ea...................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              Ammonia vapor compression...  Acceptable........  Users should check local        
                                                                                 building codes related to the  
                                                                                 use of ammonia.                
                              Evaporative cooling.........  Acceptable........  Alternative technology that is  
                                                                                 currently commercially         
                                                                                 available; new developments    
                                                                                 have greatly expanded          
                                                                                 applicability.                 
                              Desiccant cooling...........  Acceptable........  Alternative technology that is  
                                                                                 currently commercially         
                                                                                 available; new developments    
                                                                                 have greatly expanded          
                                                                                 applicability.                 
                              Ammonia/water absorption....  Acceptable........  Alternative technology that is  
                                                                                 currently commercially         
                                                                                 available; new developments    
                                                                                 have greatly expanded          
                                                                                 applicability.                 
                              Water/lithium bromide         Acceptable........  Alternative technology that is  
                               absorption.                                       currently commercially         
                                                                                 available; new developments    
                                                                                 have greatly expanded          
                                                                                 applicability.                 
                              Stirling cycle..............  Acceptable........  Alternative technology.         
CFC-12 reciprocating          HFC-134a....................  Acceptable........  EPA strongly recommends the     
 chillers (retrofit).                                                            containment and reclamation of 
                                                                                 this substitute.               
CFC-12 reciprocating          HCFC-22.....................  Acceptable........  This substitute is subject to   
 chillers (new equipment/                                                        containment and recovery       
 NIKs).                                                                          regulations covering HCFCs.    
                              HFC-134a....................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              HFC-227ea...................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              Evaporative cooling.........  Acceptable........  Alternative technology that is  
                                                                                 currently commercially         
                                                                                 available; new developments    
                                                                                 have greatly expanded          
                                                                                 applicability.                 
                              Desiccant cooling...........  Acceptable........  Alternative technology that is  
                                                                                 currently commercially         
                                                                                 available; new developments    
                                                                                 have greatly expanded          
                                                                                 applicability.                 
                              Stirling cycle..............  Acceptable........  Alternative technology.         
CFC-11, CFC-12, R-502         HCFC-22.....................  Acceptable........  This substitute is subject to   
 industrial process                                                              containment and recovery       
 refrigeration (retrofit).                                                       regulations covering HCFCs.    
                              HFC-134a....................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              R-401A......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-401B......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-402A......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-402B......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-404A......................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              R-507.......................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              Ammonia vapor compression...  Acceptable........  Users should check local        
                                                                                 building codes related to the  
                                                                                 use of ammonia.                
                              Propane.....................  Acceptable........  EPA recommends that this        
                                                                                 substitute be used only at     
                                                                                 industrial facilities that     
                                                                                 manufacture or use hydrocarbons
                                                                                 in the process stream.         
                              Propylene...................  Acceptable........  EPA recommends that this        
                                                                                 substitute be used only at     
                                                                                 industrial facilities that     
                                                                                 manufacture or use hydrocarbons
                                                                                 in the process stream.         
                              Butane......................  Acceptable........  EPA recommends that this        
                                                                                 substitute be used only at     
                                                                                 industrial facilities that     
                                                                                 manufacture or use hydrocarbons
                                                                                 in the process stream.         
                              Hydrocarbon Blend A.........  Acceptable........  EPA recommends that this        
                                                                                 substitute be used only at     
                                                                                 industrial facilities that     
                                                                                 manufacture or use hydrocarbons
                                                                                 in the process stream.         
                              Chlorine....................  Acceptable........  EPA recommends that this        
                                                                                 substitute be used only at     
                                                                                 industrial facilities that     
                                                                                 manufacture or use chlorine in 
                                                                                 the process stream.            
CFC-11, CFC-12, R-502         HCFC-22.....................  Acceptable........  This substitute is subject to   
 industrial process                                                              containment and recovery       
 refrigeration (new                                                              regulations covering HCFCs.    
 equipment/NIKs).                                                                                               
                              HFC-134a....................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              HFC-227ea...................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              R-402A......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-402B......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-404A......................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              R-507.......................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              Ammonia vapor compression...  Acceptable........  Users should check local        
                                                                                 building codes related to the  
                                                                                 use of ammonia.                
                              Propane.....................  Acceptable........  EPA recommends that this        
                                                                                 substitute be used only at     
                                                                                 industrial facilities that     
                                                                                 manufacture or use hydrocarbons
                                                                                 in the process stream.         
                              Propylene...................  Acceptable........  EPA recommends that this        
                                                                                 substitute be used only at     
                                                                                 industrial facilities that     
                                                                                 manufacture or use hydrocarbons
                                                                                 in the process stream.         
                              Butane......................  Acceptable........  EPA recommends that this        
                                                                                 substitute be used only at     
                                                                                 industrial facilities that     
                                                                                 manufacture or use hydrocarbons
                                                                                 in the process stream.         
                              Hydrocarbon Blend A.........  Acceptable........  EPA recommends that this        
                                                                                 substitute be used only at     
                                                                                 industrial facilities that     
                                                                                 manufacture or use hydrocarbons
                                                                                 in the process stream.         
                              Chlorine....................  Acceptable........  EPA recommends that this        
                                                                                 substitute be used only at     
                                                                                 industrial facilities that     
                                                                                 manufacture or use chlorine in 
                                                                                 the process stream.            
                              Evaporative cooling.........  Acceptable........  Alternative technology that is  
                                                                                 currently commercially         
                                                                                 available; new developments    
                                                                                 have greatly expanded          
                                                                                 applicability.                 
                              Desiccant cooling...........  Acceptable........  Alternative technology that is  
                                                                                 currently commercially         
                                                                                 available; new developments    
                                                                                 have greatly expanded          
                                                                                 applicability.                 
                              Stirling cycle..............  Acceptable........  Alternative technology.         
CFC-114 industrial process    HCFC-124....................  Acceptable........  This substitute is subject to   
 air conditioning (retrofit).                                                    containment and recovery       
                                                                                 regulations covering HCFCs.    
CFC-114 industrial process    HCFC-124....................  Acceptable........  This substitute is subject to   
 air conditioning (new).                                                         containment and recovery       
                                                                                 regulations covering HCFCs.    
CFC-12, R-502 ice skating     HCFC-22.....................  Acceptable........  This substitute is subject to   
 rinks (retrofit).                                                               containment and recovery       
                                                                                 regulations covering HCFCs.    
                              HFC-134a....................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              R-401A......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-401B......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              Ammonia vapor compression...  Acceptable........  Users should check local        
                                                                                 building codes related to the  
                                                                                 use of ammonia.                
CFC-12, R-502 ice skating     HCFC-22.....................  Acceptable........  This substitute is subject to   
 rinks (new equipment/NIKs).                                                     containment and recovery       
                                                                                 regulations covering HCFCs.    
                              HFC-134a....................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              Ammonia vapor compression...  Acceptable........  Users should check local        
                                                                                 building codes related to the  
                                                                                 use of ammonia.                
CFC-114 uranium isotope       C4F8........................  Acceptable........  EPA strongly recommends the     
 separation processing                                                           containment and reclamation of 
 (retrofit).                                                                     this substitute.               
                              C4F10.......................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              C5F12.......................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              C6F14.......................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              C5F11NO.....................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
CFC-12, R-502 cold storage    HCFC-22.....................  Acceptable........  This substitute is subject to   
 warehouses (retrofit).                                                          containment and recovery       
                                                                                 regulations covering HCFCs.    
                              HFC-134a....................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              R-401A......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-401B......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-402A......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-402B......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-404A......................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              R-507.......................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
CFC-12, R-502 cold storage    HCFC-22.....................  Acceptable........  This substitute is subject to   
 warehouses (new equipment/                                                      containment and recovery       
 NIKs).                                                                          regulations covering HCFCs.    
                              HFC-134a....................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              HFC-227ea...................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              R-402A......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-402B......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-404A......................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              R-507.......................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              Ammonia vapor compression...  Acceptable........  Users should check local        
                                                                                 building codes related to the  
                                                                                 use of ammonia.                
                              Evaporative cooling.........  Acceptable........  Alternative technology that is  
                                                                                 currently commercially         
                                                                                 available; new developments    
                                                                                 have greatly expanded          
                                                                                 applicability.                 
                              Desiccant cooling...........  Acceptable........  Alternative technology that is  
                                                                                 currently commercially         
                                                                                 available; new developments    
                                                                                 have greatly expanded          
                                                                                 applicability.                 
                              High to low pressure          Acceptable........  Alternative technology.         
                               stepdown.                                                                        
                              Stirling cycle..............  Acceptable........  Alternative technology.         
CFC-12, R-500, R-502          HCFC-22.....................  Acceptable........  This substitute is subject to   
 refrigerated transport                                                          containment and recovery       
 (retrofit).                                                                     regulations covering HCFCs.    
                              HFC-134a....................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              R-401A......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-401B......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-402A......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-402B......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-404A......................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              R-507.......................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
CFC-12, R-500, R-502          HCFC-22.....................  Acceptable........  This substitute is subject to   
 refrigerated transport (new                                                     containment and recovery       
 equipment/NIKs).                                                                regulations covering HCFCs.    
                              HFC-134a....................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              R-402A......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-402B......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-404A......................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              R-507.......................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              Stirling cycle..............  Acceptable........  Alternative technology that is  
                                                                                 currently commercially         
                                                                                 available.                     
                              Nitrogen direct gas           Acceptable........  Alternative technology.         
                               expansion.                                                                       
CFC-12, R-502 retail food     HCFC-22.....................  Acceptable........  This substitute is subject to   
 refrigeration (retrofit).                                                       containment and recovery       
                                                                                 regulations covering HCFCs.    
                              HFC-134a....................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              R-401A......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-401B......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-402A......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-402B......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-404A......................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              R-507.......................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
CFC-12, R-502, retail food    HCFC-22.....................  Acceptable........  This substitute is subject to   
 refrigeration (new                                                              containment and recovery       
 equipment/NIKs).                                                                regulations covering HCFCs.    
                              HFC-134a....................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              HFC-227ea...................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              R-402A......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-402B......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-404A......................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              R-507.......................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              Ammonia vapor compression...  Acceptable........  Users should check local        
                                                                                 building codes related to the  
                                                                                 use of ammonia.                
                              Stirling cycle..............  Acceptable........  Alternative technology.         
CFC-12, R-502 commercial ice  R-401A......................  Acceptable........  This substitute is subject to   
 machines (retrofit).                                                            containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-401B......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-402A......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-402B......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-404A......................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              R-507.......................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
CFC-12, R-502 commercial ice  HCFC-22.....................  Acceptable........  This substitute is subject to   
 machines (new equipment/                                                        containment and recovery       
 NIKs).                                                                          regulations covering HCFCs.    
                              HFC-134a....................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              R-402A......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-402B......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-404A......................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              R-507.......................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              Ammonia vapor compression...  Acceptable........  Users should check local        
                                                                                 building codes related to the  
                                                                                 use of ammonia.                
                              Stirling cycle..............  Acceptable........  Alternative technology.         
CFC-12 vending machines       HCFC-22.....................  Acceptable........  This substitute is subject to   
 (retrofit).                                                                     containment and recovery       
                                                                                 regulations covering HCFCs.    
                              HFC-134a....................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              R-401A......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-401B......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
CFC-12 vending machines (new  HCFC-22.....................  Acceptable........  This substitute is subject to   
 equipment/NIKs).                                                                containment and recovery       
                                                                                 regulations covering HCFCs.    
                              HFC-134a....................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              Stirling cycle..............  Acceptable........  Alternative technology.         
CFC-12 water coolers          HFC-134a....................  Acceptable........  EPA strongly recommends the     
 (retrofit).                                                                     containment and reclamation of 
                                                                                 this substitute.               
                              R-401A......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-401B......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
CFC-12 water coolers (new     HCFC-22.....................  Acceptable........  This substitute is subject to   
 equipment/NIKs).                                                                containment and recovery       
                                                                                 regulations covering HCFCs.    
                              HFC-134a....................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              Stirling cycle..............  Acceptable........  Alternative technology.         
CFC-12 household              HCFC-22.....................  Acceptable........  This substitute is subject to   
 refrigerators (retrofit).                                                       containment and recovery       
                                                                                 regulations covering HCFCs.    
                              HFC-134a....................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              R-401A......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-401B......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              HCFC blend alpha............  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
CFC-12 household              HCFC-22.....................  Acceptable........  This substitute is subject to   
 refrigerators (new                                                              containment and recovery       
 equipment/NIKs).                                                                regulations covering HCFCs.    
                              HFC-134a....................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              HFC-152a....................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              HCFC blend alpha............  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R200b.......................  Acceptable........  This substitute's composition is
                                                                                 confidential. Its use may be   
                                                                                 governed by regulations        
                                                                                 concerning the use of ozone-   
                                                                                 depleting substances.          
                              Stirling cycle..............  Acceptable........  Alternative technology currently
                                                                                 under development for this end-
                                                                                 use.                           
CFC-12, R-502 household       HCFC-22.....................  Acceptable........  This substitute is subject to   
 freezers (retrofit).                                                            containment and recovery       
                                                                                 regulations covering HCFCs.    
                              HFC-134a....................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              R-401A......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-401B......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
CFC-12, R-502 household       HCFC-22.....................  Acceptable........  This substitute is subject to   
 freezers (new equipment/                                                        containment and recovery       
 NIKs).                                                                          regulations covering HCFCs.    
                              HFC-134a....................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              HFC-152a....................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              Stirling cycle..............  Acceptable........  Alternative technology.         
CFC-12, R-500 residential     HCFC-22.....................  Acceptable........  This substitute is subject to   
 dehumidifiers (retrofit).                                                       containment and recovery       
                                                                                 regulations covering HCFCs.    
                              HFC-134a....................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
                              R-401A......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              R-401B......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
CFC-12, R-500 residential     HCFC-22.....................  Acceptable........  This substitute is subject to   
 dehumidifiers (new                                                              containment and recovery       
 equipment/NIKs).                                                                regulations covering HCFCs.    
                              HFC-134a....................  Acceptable........  EPA strongly recommends the     
                                                                                 containment and reclamation of 
                                                                                 this substitute.               
CFC-12 motor vehicle air      HFC-134a....................  Acceptable........  EPA strongly recommends the     
 conditioners (retrofit).                                                        containment and reclamation of 
                                                                                 this substitute.               
                              R-401C......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
CFC-12 motor vehicle air      HFC-134a....................  Acceptable........  EPA strongly recommends the     
 conditioners (new equipment/                                                    containment and reclamation of 
 NIKs).                                                                          this substitute.               
                              R-401C......................  Acceptable........  This substitute is subject to   
                                                                                 containment and recovery       
                                                                                 regulations covering HCFCs.    
                              Evaporative cooling.........  Acceptable........  Alternative technology that is  
                                                                                 currently commercially         
                                                                                 available; new developments    
                                                                                 have greatly expanded          
                                                                                 applicability.                 
                              CO2.........................  Acceptable........  Alternative technology.         
                              Stirling cycle..............  Acceptable........  Alternative technology currently
                                                                                 under development for this end-
                                                                                 use.                           
----------------------------------------------------------------------------------------------------------------


                                                  Refrigerants                                                  
                                            Unacceptable Substitutes                                            
----------------------------------------------------------------------------------------------------------------
          End-use                      Substitute                Decision                   Comments            
----------------------------------------------------------------------------------------------------------------
CFC-11 centrifugal chillers   HCFC-141b...................  Unacceptable......  Has a high ODP relative to other
 (retrofit).                                                                     alternatives.                  
CFC-12 centrifugal chillers   HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 (retrofit).                                                                     Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon Blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-11, CFC-12, CFC-113, CFC- HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 114, R-500 centrifugal                                                          Class II substances, it has a  
 chillers (new equipment/                                                        higher ODP than use of Class II
 NIKs).                                                                          substances.                    
                              Hydrocarbon Blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
                              HCFC-141b...................  Unacceptable......  Has a high ODP relative to other
                                                                                 alternatives.                  
CFC-12 reciprocating          HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 chillers (retrofit).                                                            Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon Blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12 reciprocating          HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 chillers (new equipment/                                                        Class II substances, it has a  
 NIKs).                                                                          higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon Blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-11, CFC-12, R-502         HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 industrial process                                                              Class II substances, it has a  
 refrigeration (retrofit).                                                       higher ODP than use of Class II
                                                                                 substances.                    
CFC-11, CFC-12, R-502         HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 industrial process                                                              Class II substances, it has a  
 refrigeration (new                                                              higher ODP than use of Class II
 equipment/NIKs).                                                                substances.                    
CFC-12, R-502 ice skating     HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 rinks (retrofit).                                                               Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon Blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12, R-502 ice skating     HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 rinks (new equipment/NIKs).                                                     Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon Blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12, R-502 cold storage    HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 warehouses (retrofit).                                                          Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon Blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12, R-502 cold storage    HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 warehouses (new equipment/                                                      Class II substances, it has a  
 NIKs).                                                                          higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon Blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12, R-500, R-502          HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 refrigerated transport                                                          Class II substances, it has a  
 (retrofit).                                                                     higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon Blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12, R-500, R-502          HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 refrigerated transport (new                                                     Class II substances, it has a  
 equipment/NIKs).                                                                higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon Blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12, R-502 retail food     HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 refrigeration (retrofit).                                                       Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon Blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12, R-502 retail food     HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 refrigeration (new                                                              Class II substances, it has a  
 equipment/NIKs).                                                                higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon Blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12, R-502 commercial ice  HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 machines (retrofit).                                                            Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon Blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12, R-502 commercial ice  HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 machines (new equipment/                                                        Class II substances, it has a  
 NIKs).                                                                          higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon Blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12 vending machines       HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 (retrofit).                                                                     Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon Blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12 vending machines (new  HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 equipment/NIKs).                                                                Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon Blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12 Water coolers          HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 (retrofit).                                                                     Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon Blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12 water coolers (new     HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 equipment/NIKs).                                                                Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon Blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12 household              HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 refrigerators (retrofit).                                                       Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon Blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12 household              HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 refrigerators (new                                                              Class II substances, it has a  
 equipment/NIKs).                                                                higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon Blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12, R-502 household       HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 freezers (retrofit).                                                            Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon Blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12, R-502 household       HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 freezers (new equipment/                                                        Class II substances, it has a  
 NIKs).                                                                          higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon Blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12, R-500 residential     HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 dehumidifiers (retrofit).                                                       Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon Blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12, R-500 residential     HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 dehumidifiers (new                                                              Class II substances, it has a  
 equipment/NIKs).                                                                higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon Blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12 motor vehicle air      HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 conditioners (retrofit).                                                        Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon Blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12 motor vehicle air      HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 conditioners (new equipment/                                                    Class II substances, it has a  
 NIKs).                                                                          higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon Blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
----------------------------------------------------------------------------------------------------------------


                              Refrigerants                              
                            Pending Decisions                           
------------------------------------------------------------------------
     Application           Substitute                 Comments          
------------------------------------------------------------------------
CFC-11, CFC-113, CFC- Perfluoropropane...  EPA requests additional data 
 114 recirculating                          on the use. of all          
 coolers.                                   substitutes for this end-   
                                            use.                        
                      Perfluorobutane....  EPA requests additional data 
                                            on the use. of all          
                                            substitutes for this end-   
                                            use.                        
                      Perfluoropentane...  EPA requests additional data 
                                            on the use. of all          
                                            substitutes for this end-   
                                            use.                        
                      Perfluorohexane....  EPA requests additional data 
                                            on the use. of all          
                                            substitutes for this end-   
                                            use.                        
                      Perfluoroheptane...  EPA requests additional data 
                                            on the use. of all          
                                            substitutes for this end-   
                                            use.                        
                      Perfluorooctane....  EPA requests additional data 
                                            on the use. of all          
                                            substitutes for this end-   
                                            use.                        
                      Perfluoro-N-methyl   EPA requests additional data 
                       morphine.            on the use. of all          
                                            substitutes for this end-   
                                            use.                        
                      Perfluoro-N-ethyl    EPA requests additional data 
                       morphine.            on the use. of all          
                                            substitutes for this end-   
                                            use.                        
                      Perfluoro-N-         EPA requests additional data 
                       isopropyl morphine.  on the use. of all          
                                            substitutes for this end-   
                                            use.                        
CFC-11, CFC-113, CFC- Perfluoropropane...  EPA requests additional data 
 114 thermosyphons.                         on the use. of all          
                                            substitutes for this end-   
                                            use.                        
                      Perfluorobutane....  EPA requests additional data 
                                            on the use. of all          
                                            substitutes for this end-   
                                            use.                        
                      Perfluoropentane...  EPA requests additional data 
                                            on the use. of all          
                                            substitutes for this end-   
                                            use.                        
                      Perfluorohexane....  EPA requests additional data 
                                            on the use. of all          
                                            substitutes for this end-   
                                            use.                        
                      Perfluoroheptane...  EPA requests additional data 
                                            on the use. of all          
                                            substitutes for this end-   
                                            use.                        
                      Perfluorooctane....  EPA requests additional data 
                                            on the use. of all          
                                            substitutes for this end-   
                                            use.                        
                      Perfluoro-N-methyl   EPA requests additional data 
                       morphine.            on the use. of all          
                                            substitutes for this end-   
                                            use.                        
                      Perfluoro-N-ethyl    EPA requests additional data 
                       morphine.            on the use. of all          
                                            substitutes for this end-   
                                            use.                        
                      Perfluoro-N-         EPA requests additional data 
                       isopropyl morphine.  on the use. of all          
                                            substitutes for this end-   
                                            use.                        
CFC-12 Motor vehicle  HCFC Blend Beta....  EPA has requested additional 
 air conditioning.                          data.                       
CFC-12 Cold storage.  R200a..............  EPA has requested additional 
                                            data.                       
CFC-12 Chillers,      HFC-227ea..........  EPA has not yet concluded    
 heat pumps and                             review of the data.         
 commercial                                                             
 refrigeration                                                          
 systems.                                                               
CFC-13, R-503 very    HFC-23.............  EPA requests additional data 
 low temperature                            on the use. of all          
 refrigeration.                             substitutes for this end-   
                                            use.                        
                      PFC Blend Alpha....  EPA has not yet concluded    
                                            review of the data.         
                      PFC Blend Beta.....  EPA has not yet concluded    
                                            review of the data.         
CFC-114 Centrifugal   R200b..............  EPA has not yet concluded    
 chillers (new                              review of the data.         
 equipment/alternati                                                    
 ve substances).                                                        
                      R200c..............  EPA has not yet concluded    
                                            review of the data.         
                      R200g..............  EPA has not yet concluded    
                                            review of the data.         
                      R200i..............  EPA has not yet concluded    
                                            review of the data.         
                      R200j..............  EPA has not yet concluded    
                                            review of the data.         
CFC-114 chillers,     HFC-227ea..........  EPA has not yet concluded    
 heat pumps and                             review of the data.         
 commercial                                                             
 refrigeration                                                          
 systems.                                                               
R-502 Cold storage..  R200a..............  EPA has not yet concluded    
                                            review of the data.         
HCFC-22 Heat pumps..  HFC-134a...........  EPA has not yet evaluated    
                                            Class II substitutes.       
                      HFC-152a...........  EPA has not yet evaluated    
                                            Class II substitutes.       
                      HFC-32.............  EPA has not yet evaluated    
                                            Class II substitutes.       
                      HFC-125/HFC-134a/HF  EPA has not yet evaluated    
                       C-32.                Class II substitutes.       
                      R200a..............  EPA has not yet evaluated    
                                            Class II substitutes.       
HCFC-22 Conventional  HFC-125/HFC-134a/HF  EPA has not yet evaluated    
 (house.hold) air      C-32.                Class II substitutes.       
 conditioning.                                                          
                      R200a..............  EPA has not yet evaluated    
                                            Class II substitutes.       
------------------------------------------------------------------------


                                                   Foam Sector                                                  
                                             Acceptable Substitutes                                             
----------------------------------------------------------------------------------------------------------------
           End-use                     Substitute                Decision                   Comments            
----------------------------------------------------------------------------------------------------------------
CFC-11 Rigid polyurethane     HCFC-123....................  Acceptable........  Worker monitoring studies       
 and polyisocyanurate                                                            indicate AEL for 123 (30 ppm)  
 laminated boardstock.                                                           can be achieved with increased 
                                                                                 ventilation, where needed.     
                                                                                 Availability is limited.       
                              HCFC-141b...................  Acceptable........  Has highest ODP of HCFCs.       
                              HCFC-142b...................  Acceptable........                                  
                              HCFC-22.....................  Acceptable........                                  
                              HCFC-22/HCFC-141b blends....  Acceptable........  HCFC-141b.                      
                              HCFC-141b/HCFC-123 blends...  Acceptable........  Recent worker monitoring studies
                                                                                 indicate OEL for 123 (10 ppm)  
                                                                                 can be achieved with increased 
                                                                                 ventilation, where needed.     
                                                                                 Fairly good energy efficiency  
                                                                                 properties.                    
                              HCFC-22/HCFC-142b blends....  Acceptable........                                  
                              HCFC-134a...................  Acceptable........                                  
                              HCFC-152a...................  Acceptable........  Flammability may be an issue for
                                                                                 workers and consumers.         
                              Saturated light hydrocarbons  Acceptable........  Flammability may be an issue for
                               C3-C6.                                            workers and consumers. Major   
                                                                                 sources of VOC emissions are   
                                                                                 subject to the New Source      
                                                                                 Review (NSR) program.          
                              2-Chloropropane.............  Acceptable........                                  
                              Carbon dioxide..............  Acceptable........  Has highest thermal conductivity
                                                                                 relative to other acceptable   
                                                                                 substitutes in this end use.   
CFC-11 Polyurethane, rigid    HCFC-22 (for blends thereof)  Acceptable........                                  
 appliance.                                                                                                     
                              HCFC-123 (or blends thereof)  Acceptable........  Recent worker monitoring studies
                                                                                 indicate OEL for 123 (30 ppm)  
                                                                                 can be achieved with increased 
                                                                                 ventilation, where needed. Easy
                                                                                 to use as a retrofit; energy   
                                                                                 efficiency close to CFC-11.    
                                                                                 Current availability is        
                                                                                 limited.                       
                              HCFC-141b (or blends          Acceptable........  HCFC-141b has an ODP of 0.11,   
                               thereof).                                         almost equivalent to that of   
                                                                                 methyl chloroform, a Class I   
                                                                                 substance. Fairly good energy  
                                                                                 efficiency properties.         
                              HCFC-142b (or blends          Acceptable........                                  
                               thereof).                                                                        
                              HCFC-134a (or blends          Acceptable........                                  
                               thereof).                                                                        
                              HCFC-152a (or blends          Acceptable........  Flammability may be an issue for
                               thereof).                                         workers and consumers.         
                              Saturated light hydrocarbons  Acceptable........  Flammability may be an issue for
                               C3-C6 (or blends thereof).                        workers and consumers. Major   
                                                                                 sources of VOC emissions are   
                                                                                 subject to the New Source      
                                                                                 Review (NSR) program.          
                              Carbon dioxide (or blends     Acceptable........                                  
                               thereof).                                                                        
CFC-11 Polyurethane, rigid    HCFC-22 (or blends thereof).  Acceptable          ................................
 commercial.                                                                                                    
Refrigeration foams, spray    HCFC-123 (or blends thereof)  Acceptable........  Recent worker monitoring studies
 foams and sandwich panel                                                        indicate AEL for 123 (30 ppm)  
 foams.                                                                          can be achieved with use of    
                                                                                 increased ventilation, where   
                                                                                 needed. Easy to use as a       
                                                                                 retrofit; energy efficiency    
                                                                                 close to CFC-11. Availability  
                                                                                 is limited.                    
                              HCFC-141b (or blends          Acceptable........  HCFC-141b has an ODP of 0.11,   
                               thereof).                                         almost equivalent to that of   
                                                                                 methyl chloroform, a Class I   
                                                                                 substance. Fairly good energy  
                                                                                 efficiency properties.         
                              HCFC-142b (or blends          Acceptable          ................................
                               thereof).                                                                        
                              HFC-134a (or blends thereof)  Acceptable          ................................
                              HFC-152a (or blends thereof)  Acceptable........  Flammability may be an issue for
                                                                                 workers and consumers.         
                              Saturated light hydrocarbons  Acceptable........  Flammability may be an issue for
                               C3-C6 (or blends thereof).                        workers and consumers. Major   
                                                                                 sources of VOC emissions are   
                                                                                 subject to the New Source      
                                                                                 Review (NSR) program.          
                              Carbon dioxide (or blends     Acceptable          ................................
                               thereof).                                                                        
CFC-11 Polyurethane, rigid    HCFC-22 (or blends thereof).  Acceptable          ................................
 slabstock and other.                                                                                           
                              HCFC-141b (or blends          Acceptable........  HCFC-141b has an ODP of 0.11,   
                               thereof).                                         almost equivalent to that of   
                                                                                 methyl chloroform, a Class I   
                                                                                 substance.                     
                              HCFC-123 (or blends thereof)  Acceptable........  Recent worker monitoring studies
                                                                                 indicate AEL for 123 (30 ppm)  
                                                                                 can be achieved by increased   
                                                                                 ventilation, where needed.     
                                                                                 Availability is limited.       
                              HFC-134a (or blends thereof)  Acceptable          ................................
                              HFC-152a (or blends thereof)  Acceptable          ................................
                              Saturated light Hydrocarbons  Acceptable........  Flammability may be an issue for
                               C3-C6 (or blends thereof).                        workers and consumers. Major   
                                                                                 sources of VOC emissions are   
                                                                                 subject to the New Source      
                                                                                 Review (NSR) program.          
                              Carbon dioxide (or blends     Acceptable          ................................
                               thereof).                                                                        
CFC-12 Polystyrene, extruded  HCFC-22.....................  Acceptable          ................................
 boardstock and billet.                                                                                         
                              HCFC-142b...................  Acceptable          ................................
                              HCFC-22/142b blends.........  Acceptable          ................................
                              HFC-22/142b blends..........  Acceptable          ................................
                              HFC-134a....................  Acceptable          ................................
                              HFC-152a....................  Acceptable          Flammability may be an issue for
                                                                                 workers and consumers.         
                              Saturated light hydrocarbons  Acceptable........  Flammability may be an issue for
                               C3-C6.                                            workers and consumers. Major   
                                                                                 sources of VOC emissions are   
                                                                                 subject to the New Source      
                                                                                 Review (NSR) program.          
                              HCFC-22/Saturated light       Acceptable........  Flammability may be an issue for
                               hydrocarbons.                                     workers and consumers. Major   
                                                                                 sources of VOC emissions are   
                                                                                 subject to the New Source      
                                                                                 Review (NSR) program.          
                              Carbon dioxide..............  Acceptable........  High thermal conductivity       
                                                                                 compared to other acceptable   
                                                                                 substitutes in this end-use.   
CFC-11, CFC-113 Phenolic,     HCFC-141b...................  Acceptable........  HCFC-141b has an ODP of 0.11,   
 insulation board.                                                               almost equivalent to that of   
                                                                                 methyl chloroform, a Class I   
                                                                                 substance. Fairly good energy  
                                                                                 efficiency properties.         
                              HCFC-142b...................  Acceptable........                                  
                              HCFC-22.....................  Acceptable........                                  
                              HCFC-22/142b................  Acceptable........                                  
                              HCFC-22/Saturated light       Acceptable........  Flammability may be an issue for
                               hydrocarbons C3-C6.                               workers and consumers.         
                              Saturated light hydrocarbons  Acceptable........  Major sources of VOC emissions  
                               C3-C6.                                            are subject to the New Source  
                                                                                 Review (NSR) program.          
                                                                                 Flammability may be an issue   
                                                                                 for workers and consumers.     
                              HFC-143a....................  Acceptable........  Has relatively high global      
                                                                                 warming potential compared to  
                                                                                 other acceptable substitutes in
                                                                                 this end-use.                  
                              2-Chloropropane.............  Acceptable........  Proprietary technology.         
                                                                                 Flammability may be an issue   
                                                                                 for workers and consumers.     
                              Carbon dioxide..............  Acceptable........  High thermal conductivity       
                                                                                 relative to other acceptable   
                                                                                 substitutes in this end-use.   
CFC-11 Polyurethane,          HFC-134a (or blends thereof)  Acceptable                                          
 flexible.                                                                                                      
                              HFC-152a (or blends thereof)  Acceptable........  Flammability may be an issue for
                                                                                 workers and consumers.         
                              Methylene chloride (or        Acceptable........  Revised OSHA PELs have been     
                               blends thereof).                                  proposed at 25 ppm (TWA) for   
                                                                                 methylene chloride (Nov. 7,    
                                                                                 1991). Subject to meeting all  
                                                                                 future ambient air controls for
                                                                                 hazardous air pollutants under 
                                                                                 Title III section 112 of the   
                                                                                 1990 CAAA. RCRA standards must 
                                                                                 be met.                        
                              Acetone (or blends thereof).  Acceptable........  Regulated as a VOC under Title I
                                                                                 of the Clean Air Act. Major    
                                                                                 sources of VOC emissions are   
                                                                                 subject to the New Source      
                                                                                 Review (NSR) program.          
                                                                                 Flammability may be an issue   
                                                                                 for workers and consumers.     
                              AB technology...............  Acceptable........  AB generates more carbon        
                                                                                 monoxide (CO) than other       
                                                                                 blowing agents. OSHA has set a 
                                                                                 PEL for CO at 35 ppm TWA with a
                                                                                 ceiling of 200 ppm.            
                              Carbon dioxide (or blends     Acceptable                                          
                               thereof).                                                                        
CFC-11 Polyurethane,          HCFC-22 (or blends thereof).  Acceptable........  Use restricted by section 610   
 integral skin.                                                                  Non-Essential Use Ban to motor 
                                                                                 vehicle safety foams. See HCFC 
                                                                                 discussion in Preamble for     
                                                                                 detail.                        
                              HCFC-123 (or blends thereof)  Acceptable........  Use restricted by section 610   
                                                                                 Non-Essential Use Ban to motor 
                                                                                 vehicle safety foams. See HCFC 
                                                                                 discussion in Preamble for     
                                                                                 detail. Worker monitoring      
                                                                                 studies indicate AEL for HCFC- 
                                                                                 123 (30 ppm) can be achieved   
                                                                                 with increased ventilation,    
                                                                                 where needed. Very easy to use 
                                                                                 a retrofit; energy efficiency  
                                                                                 close to CFC-11. Supply is     
                                                                                 currently limited.             
                              HCFC-141b (or blends          Acceptable........  Use restricted by section 610   
                               thereof).                                         Non-Essential Use Ban to motor 
                                                                                 vehicle safety foams. See HCFC 
                                                                                 discussion in Preamble for     
                                                                                 detail. HCFC-141b has an ODP of
                                                                                 0.11, almost equivalent to that
                                                                                 of methyl chloroform, a class I
                                                                                 substance.                     
                              HFC-134a (or blends thereof)  Acceptable                                          
                              HFC-152a (or blends thereof)  Acceptable........  Flammability may be an issue for
                                                                                 workers and consumers.         
                              Saturated light hydrocarbons  Acceptable........  Major sources of VOC emissions  
                               C3-C6 (or blends thereof).                        are subject to the New Source  
                                                                                 Review (NSR) program.          
                                                                                 Flammability may be an issue   
                                                                                 for workers and consumers.     
                              Methylene chloride (or        Acceptable........  Revised OSHA PELs have been     
                               blends thereof).                                  proposed at 25 ppm (TWA) for   
                                                                                 methylene chloride (Nov. 7,    
                                                                                 1991). Subject to meeting all  
                                                                                 future ambient air controls for
                                                                                 hazardous air pollutant under  
                                                                                 Title III section 112 of the   
                                                                                 1990 CAA Amendments. RCRA      
                                                                                 standards must be met.         
                              Carbon dioxide (or blends     Acceptable                                          
                               thereof).                                                                        
CFC-12 Polystyrene, extruded  HFC-134a (or blends thereof)  Acceptable                                          
 sheet.                                                                                                         
                              HFC-152a (or blends thereof)  Acceptable........  Flammability may be an issue for
                                                                                 workers and consumers.         
                              Saturated light hydrocarbons  Acceptable........  Major sources of VOC emissions  
                               C3-C6 (or blends thereof).                        are subject to the New Source  
                                                                                 Review (NSR) program.          
                                                                                 Flammability may be an issue   
                                                                                 for workers and consumers.     
                              Carbon dioxide (or blends     Acceptable                                          
                               thereof).                                                                        
CFC-12, CFC-114, CFC-11       HCFC-22.....................  Acceptable........  Use restricted under section 610
 Polyolefin.                                                                     Non-Essential Use Ban to       
                                                                                 polyethylene thermal insulating
                                                                                 applications. See HCFC         
                                                                                 discussion in Preamble for     
                                                                                 detail.                        
                              HCFC-142b...................  Acceptable........  Use restricted under section 610
                                                                                 Non-Essential Use Ban to       
                                                                                 polyethylene thermal insulating
                                                                                 applications. See HCFC         
                                                                                 discussion in Preamble for     
                                                                                 detail.                        
                              HCFC-22/HCFC-142b...........  Acceptable........  Use restricted under section 610
                                                                                 Non-Essential Use Ban to       
                                                                                 polyethylene thermal insulating
                                                                                 applications. See HCFC         
                                                                                 discussion in Preamble for     
                                                                                 detail.                        
                              HCFC-22/Saturated light       Acceptable........  HCFC use restricted to thermal  
                               hydrocarbons C3-C6.                               insulating applications under  
                                                                                 section 610 Non-Essential Use  
                                                                                 Ban. Major sources of VOC      
                                                                                 emissions are subject to the   
                                                                                 New Source Review (NSR)        
                                                                                 program. Flammability may be an
                                                                                 issue for workers and          
                                                                                 consumers.                     
                              HFC-134a....................  Acceptable                                          
                              HFC-143a....................  Acceptable........  Has relatively high global      
                                                                                 warming potential compared to  
                                                                                 other acceptable substitutes in
                                                                                 this end-use.                  
                              HFC-152a....................  Acceptable........  Flammability may be an issue for
                                                                                 workers and consumers.         
                              Saturated light hydrocarbons  Acceptable........  Major sources of VOC emissions  
                               C3-C6.                                            are subject to the New Source  
                                                                                 Review (NSR) program.          
                                                                                 Flammability may be an issue   
                                                                                 for workers and consumers.     
                              Carbon dioxide..............  Acceptable                                          
----------------------------------------------------------------------------------------------------------------


                                                      Foams                                                     
                                            Unacceptable Substitutes                                            
----------------------------------------------------------------------------------------------------------------
          End-use                     Substitute                Decision                    Comments            
----------------------------------------------------------------------------------------------------------------
CFC-11 Polyolefin..........  HCFC-141b (or blends         Unacceptable........  HCFC-141b has an ODP of 0.11,   
                              thereof).                                          almost equivalent to that of   
                                                                                 methyl chloroform, a Class I   
                                                                                 substance. The Agency believes 
                                                                                 that non-ODP alternatives are  
                                                                                 sufficiently available to      
                                                                                 render the use of HCFC-141b    
                                                                                 unnecessary in polyolefin      
                                                                                 foams.                         
----------------------------------------------------------------------------------------------------------------


                                  Foams                                 
                          Pending Substitutes                           
------------------------------------------------------------------------
       End-use             Substitute                Comments           
------------------------------------------------------------------------
CFC-11, CFC-113       Alternative          Agency has not completed     
 Polyurethane and      products: expanded   review of data.             
 polyisocyanurate,     polystyrene,                                     
 rigid laminated       fiberboard,                                      
 boardstock.           fiberglass.                                      
CFC-11, CFC-113       Alternative          Agency has not completed     
 Rigid polyurethane,   products:            review of data.             
 appliance foams.      fiberglass, vacuum                               
                       panels.                                          
CFC-11 Polyurethane,  Alternative          Agency has not completed     
 rigid slabstock and   products:            review of data.             
 other.                fiberglass,                                      
                       expanded                                         
                       polystyrene.                                     
CFC-11 Polyurethane,  Alternative          Agency has not completed     
 rigid spray and       products:            review of data.             
 commercial            fiberglass,                                      
 refrigeration         expanded                                         
 foams, and sandwich   polystyrene.                                     
 panels.                                                                
CFC-11, CFC-113       Alternative          Agency has not completed     
 Phenolic.             products:            review of data.             
                       fiberglass,                                      
                       expanded                                         
                       polystyrene.                                     
CFC-11 Polyurethane,  Alternative          Agency has not completed     
 flexible.             processes: Enviro-   review of data.             
                       Cure process.                                    
                      Alternative          Agency has not completed     
                       products:            review of data.             
                       fiberfill, natural                               
                       latex foams,                                     
                       polyester batting.                               
                      2-Chloropropane....  .............................
Foams, alternative    Electroset process.  Insufficient data. Also need 
 process.                                   information on proposed end-
                                            use.                        
CFC-12, CFC-114       Alternative          Agency has not completed     
 Polystyrene,          products: expanded   review of data.             
 extruded boardstock   polystyrene,                                     
 and billet.           fiberboard.                                      
                      HCFC-124...........  Agency has not completed     
                                            review of data.             
                      HCFC-125...........  Agency has not completed     
                                            review of data.             
                      HFC-143a...........  Agency has not completed     
                                            review of data.             
CFC-11, Polyurethane  2-Chloropropane....  Agency has not completed     
 integral skin.                             review of data.             
CFC-12, CFC-114       Alternative          Agency has not completed     
 Polyolefin.           products: paper,     review of data.             
                       cardboard,                                       
                       expanded                                         
                       polystyrene.                                     
                      HFC-152a/Hydrocarbo  Agency has not completed     
                       ns.                  review of data.             
                      Methylene chloride.  Agency has not completed     
                                            review of data.             
Polyurethane, rigid.  HFC-356............  Insufficient data. Also need 
                                            information on proposed end-
                                            use(s).                     
------------------------------------------------------------------------


                                                Solvent Cleaning                                                
                                             Acceptable Substitutes                                             
----------------------------------------------------------------------------------------------------------------
          End-use                    Substitute                 Decision                    Comments            
----------------------------------------------------------------------------------------------------------------
Metals cleaning w/CFC-113,   Aqueous cleaners...........  Acceptable..........  EPA expects to issue effluent   
 MCF.                                                                            guidelines for this industry   
                                                                                 under the Clean Water Act by as
                                                                                 early as 1994.                 
                             Semi-aqueous cleaners......  Acceptable..........  EPA expects to issue effluent   
                                                                                 guidelines for this industry   
                                                                                 under the Clean Water Act by as
                                                                                 early as 1994.                 
                             Straight organic solvent     Acceptable..........  OSHA standards must be met, if  
                              cleaning (with terpenes,                           applicable.                    
                              C6-C20 petroleum                                                                  
                              hydrocarbons, oxygenated                                                          
                              organic solvents such as                                                          
                              ketones, esters, ethers,                                                          
                              alcohols, etc.).                                                                  
                             Trichloro-ethylene,          Acceptable..........  OSHA and RCRA standards must be 
                              perchloro-ethylene,                                met. EPA expects to issue      
                              methylene chloride.                                Maximum Achievable Control     
                                                                                 Technology requirements under  
                                                                                 the Clean Air Act for this     
                                                                                 application by 1994.           
                             Vanishing oils.............  Acceptable..........  Depending on geographic region, 
                                                                                 may be subject to VOC controls.
                             Supercritical fluids.......  Acceptable..........                                  
                             Volatile methyl siloxanes    Acceptable..........  Other siloxanes are being       
                              (dodecamethyl                                      examined for possible workplace
                              cyclohexasiloxane,                                 standards and will be listed   
                              hexamethyl disiloxane,                             under a separate rulemaking.   
                              octamethyltrisiloxane,                                                            
                              decamethyltetrasiloxane).                                                         
Electronics cleaning w/CFC-  Aqueous cleaners...........  Acceptable..........  EPA expects to issue effluent   
 113, MCF.                                                                       guidelines for this industry   
                                                                                 under the Clean Water Act by as
                                                                                 early as 1994.                 
                             Semi-aqueous cleaners......  Acceptable..........  EPA expects to issue effluent   
                                                                                 guidelines for this industry   
                                                                                 under the Clean Water Act by   
                                                                                 1994.                          
                             Straight organic solvent     Acceptable..........  OSHA standards must be met, if  
                              cleaning (with terpenes,                           applicable.                    
                              C6-C20 petroleum                                                                  
                              hydrocarbons, oxygenated                                                          
                              organic solvents such as                                                          
                              ketones, esters, ethers,                                                          
                              alcohols, etc.).                                                                  
                             Trichloro-ethylene,          Acceptable..........  OSHA and RCRA standards must be 
                              perchloro-ethylene,                                met. EPA expects to issue      
                              methylene chloride.                                Maximum Achievable Control     
                                                                                 Technology requirements under  
                                                                                 the Clean Air Act for this     
                                                                                 application by 1994.           
                             No-clean alternatives......  Acceptable..........  Substitutes found acceptable    
                                                                                 include low solids fluxes and  
                                                                                 inert gas soldering.           
                             Supercritical fluids,        Acceptable..........  OSHA standards for ozone must be
                              plasma cleaning, UV/Ozone                          met.                           
                              cleaning.                                                                         
                             Volatile methyl siloxanes    Acceptable..........  Other siloxanes are being       
                              (dodecamethyl                                      examined for possible workplace
                              cyclohexasiloxane,                                 standards and will be listed   
                              hexamethyl disiloxane,                             under a separate rulemaking.   
                              octamethyltrisiloxane,                                                            
                              decamethyltetrasiloxane).                                                         
Precision cleaning w/CFC-    Aqueous cleaners...........  Acceptable..........  EPA expects to issue effluent   
 113, MCF.                                                                       guidelines for this industry   
                                                                                 under the Clean Water Act by as
                                                                                 early as 1994.                 
                             Semi-aqueous cleaners......  Acceptable..........  EPA expects to issue effluent   
                                                                                 guidelines for this industry   
                                                                                 under the Clean Water Act by as
                                                                                 early as 1994.                 
                             Straight organic solvent     Acceptable..........  OSHA standards must be met, if  
                              cleaning (with terpenes,                           applicable.                    
                              C6-C20 petroleum                                                                  
                              hydrocarbons, oxygenated                                                          
                              organic solvents such as                                                          
                              ketones, esters, ethers,                                                          
                              alcohols, etc.).                                                                  
                             Trichloro-ethylene,          Acceptable..........  OSHA and RCRA standards must be 
                              perchloro-ethylene,                                met. EPA expects to issue      
                              methylene chloride.                                Maximum Achievable Control     
                                                                                 Technology requirements for    
                                                                                 this application by 1994.      
                             Supercritical fluids,        Acceptable..........  OSHA standards for ozone must be
                              plasma cleaning, UV/Ozone                          met.                           
                              cleaning.                                                                         
                             Volatile methyl siloxanes    Acceptable..........  Other siloxanes are being       
                              (dodecamethyl                                      examined for possible workplace
                              cyclohexasiloxane,                                 standards and will be listed   
                              hexamethyl disiloxane,                             under a separate rulemaking.   
                              octamethyltrisiloxane,                                                            
                              decamethyltetrasiloxane).                                                         
----------------------------------------------------------------------------------------------------------------


         Substitutes Acceptable Subject to Narrowed Use Limits          
------------------------------------------------------------------------
     End-use        Substitute         Decision           Comments      
------------------------------------------------------------------------
Electronics       Perfluoro        Acceptable for   The principal       
 cleaning w/CFC-   carbons          high             environmental      
 113, MCF.         (C5F12, C6F12,   performance,     characteristic of  
                   C6F14, C7F16,    precision-       concern for PFCs is
                   C8F18,           engineered       that they have long
                   C5F11NO,         applications     atmospheric        
                   C6F13NO,         only where       lifetimes and high 
                   C7F15NO, and     reasonable       global warming     
                   C8F16).          efforts have     potentials.        
                                    been made to     Although actual    
                                    ascertain that   contributions to   
                                    other            global warming     
                                    alternatives     depend upon the    
                                    are not          quantities of PFCs 
                                    technically      emitted, the       
                                    feasible due     effects are for    
                                    to performance   practical purposes 
                                    or safety        irreversible.      
                                    requirements.   Users must observe  
                                                     this limitation on 
                                                     PFC acceptability  
                                                     by conducting a    
                                                     reasonable         
                                                     evaluation of other
                                                     substitutes to     
                                                     determine that PFC 
                                                     use is necessary to
                                                     meet performance or
                                                     safety             
                                                     requirements.      
                                                     Documentation of   
                                                     this evaluation    
                                                     must be kept on    
                                                     file.              
                                                    For additional      
                                                     guidance regarding 
                                                     applications in    
                                                     which PFCs may be  
                                                     appropriate, users 
                                                     should consult the 
                                                     Preamble for this  
                                                     rulemaking.        
Precision         Perfluorocarbon  Acceptable for   The principal       
 cleaning w/CFC-   s (C5F12,        high             environmental      
 113, MCF.         C6F12, C6F14,    performance,     characteristic of  
                   C7F16, C8F18,    precision-       concern for PFCs is
                   C5F11NO,         engineered       that they have long
                   C6F13NO,         applications     atmospheric        
                   C7F15NO, and     only where       lifetimes and high 
                   C8F16).          reasonable       global warming     
                                    efforts have     potentials.        
                                    been made to     Although actual    
                                    ascertain that   contributions to   
                                    other            global warming     
                                    alternatives     depend upon the    
                                    are not          quantities of PFCs 
                                    technically      emitted, the       
                                    feasible due     effects are for    
                                    to performance   practical purposes 
                                    or safety        irreversible.      
                                    requirements.   Users must observe  
                                                     this limitation on 
                                                     PFC acceptability  
                                                     by conducting a    
                                                     reasonable         
                                                     evaluation of other
                                                     substitutes to     
                                                     determine that PFC 
                                                     use is necessary to
                                                     meet performance or
                                                     safety             
                                                     requirements.      
                                                     Documentation of   
                                                     this evaluation    
                                                     must be kept on    
                                                     file.              
                                                    For additional      
                                                     guidance regarding 
                                                     applications in    
                                                     which PFCs may be  
                                                     appropriate, users 
                                                     should consult the 
                                                     Preamble for this  
                                                     rulemaking.        
------------------------------------------------------------------------


                                            Unacceptable Substitutes                                            
----------------------------------------------------------------------------------------------------------------
          End use                     Substitute                Decision                    Comments            
----------------------------------------------------------------------------------------------------------------
Metals cleaning w/CFC-113..  HCFC 141b and its blends...  Unacceptable........  High ODP; other alternatives    
                                                                                 exist. Effective date: As of 30
                                                                                 days after final rule for uses 
                                                                                 in new equipment (including    
                                                                                 retrofits made after the       
                                                                                 effective date); as of January 
                                                                                 1, 1996 for uses in existing   
                                                                                 equipment. EPA will grant, if  
                                                                                 necessary, narrowed use        
                                                                                 acceptability listings for CFC-
                                                                                 113 past the effective date of 
                                                                                 the prohibition.               
Metals cleaning w/MCF......  HCFC 141b and its blends...  Unacceptable........  High ODP; other alternatives    
                                                                                 exist. Effective date: As of 30
                                                                                 days after final rule for uses 
                                                                                 in new equipment (including    
                                                                                 retrofits made after the       
                                                                                 effective date); as of January 
                                                                                 1, 1996 for uses in existing   
                                                                                 equipment.                     
Electronics cleaning w/CFC-  HCFC 141b and its blends...  Unacceptable........  High ODP; other alternatives    
 113.                                                                            exist. Effective date: As of 30
                                                                                 days after final rule for uses 
                                                                                 in new equipment (including    
                                                                                 retrofits made after the       
                                                                                 effective date); as of January 
                                                                                 1, 1996 for uses in existing   
                                                                                 equipment. EPA will grant, if  
                                                                                 necessary, narrowed use        
                                                                                 acceptability listings for CFC-
                                                                                 113 past the effective date of 
                                                                                 the prohibition.               
Electronics cleaning w/MCF.  HCFC 141b and its blends...  Unacceptable........  High ODP; other alternatives    
                                                                                 exist. Effective date: As of 30
                                                                                 days after final rule for uses 
                                                                                 in new equipment (including    
                                                                                 retrofits made after the       
                                                                                 effective date); as of January 
                                                                                 1, 1996 for uses in existing   
                                                                                 equipment.                     
Precision cleaning w/CFC-    HCFC 141b and its blends...  Unacceptable........  High ODP; other alternatives    
 113.                                                                            exist. Effective date: As of 30
                                                                                 days after final rule for uses 
                                                                                 in new equipment (including    
                                                                                 retrofits made after the       
                                                                                 effective date); as of January 
                                                                                 1, 1996 for uses in existing   
                                                                                 equipment. EPA will grant, if  
                                                                                 necessary, narrowed use        
                                                                                 acceptability listings for CFC-
                                                                                 113 past the effective date of 
                                                                                 the prohibition.               
Precision cleaning w/MCF...  HCFC 141b and its blends...  Unacceptable........  High ODP; other alternatives    
                                                                                 exist. Effective date: As of 30
                                                                                 days after final rule for uses 
                                                                                 in new equipment (including    
                                                                                 retrofits made after the       
                                                                                 effective date); as of January 
                                                                                 1, 1996 for uses in existing   
                                                                                 equipment.                     
----------------------------------------------------------------------------------------------------------------


                          Pending Substitutes                           
------------------------------------------------------------------------
      End use             Substitute                 Comments           
------------------------------------------------------------------------
Metals cleaning w/    Monochloro-toluene/  Agency has not completed     
 CFC-113, MCF.         benzotrifluorides.   review of data. Evaluation  
                                            of exposure and toxicity    
                                            data still ongoing.         
                      Dibromomethane.....  Agency has completed review  
                                            of data, and intends to     
                                            propose this chemical as an 
                                            unacceptable substitute     
                                            under a separate rule-      
                                            making.                     
                      Volatile methyl      Agency has completed review  
                       siloxanes            of data, and intends under  
                       (octamethylcyclote   separate rule-making to     
                       trasiloxane,         propose these chemicals as  
                       decamethylcyclopen   acceptable with the use     
                       tasiloxane).         condition that the company- 
                                            set exposure limits must be 
                                            met.                        
Electronics cleaning  Monochloro-toluene/  Agency has not completed     
 w/CFC-113, MCF.       benzotrifluorides.   review of data. Evaluation  
                                            of exposure and toxicity    
                                            data still ongoing.         
                      Dibromomethane.....  Agency has completed review  
                                            of data, and intends to     
                                            propose this chemical as an 
                                            unacceptable substitute     
                                            under a separate rule-      
                                            making.                     
                      Volatile methyl      Agency has completed review  
                       siloxanes            of data, and intends under  
                       (octamethylcyclote   separate rule-making to     
                       trasiloxane,         propose these chemicals as  
                       decamethylcyclopen   acceptable with the use     
                       tasiloxane).         condition that the company- 
                                            set exposure limits must be 
                                            met.                        
                      HFC-4310mee........  Agency has not completed     
                                            review of data.             
                                            Premanufacture Notice review
                                            under the Toxic Substances  
                                            Control Act not yet         
                                            completed.                  
Precision cleaning w/ Monochloro-toluene/  Agency has not completed     
 CFC-113, MCF.         benzotrifluorides.   review of data. Evaluation  
                                            of exposure and toxicity    
                                            data still ongoing.         
                      Dibromomethane.....  Agency has completed review  
                                            of data, and intends to     
                                            propose this chemical as an 
                                            unacceptable substitute     
                                            under a separate rule-      
                                            making.                     
                      Volatile methyl      Agency has completed review  
                       siloxanes            of data, and intends under  
                       (octamethylcyclote   separate rule-making to     
                       trasiloxane,         propose these chemicals as  
                       decamethylcyclopen   acceptable with the use     
                       tasiloxane).         condition that the company- 
                                            set exposure limits must be 
                                            met.                        
                      HCFC-123...........  New toxicity data has led to 
                                            an upward revision of the   
                                            company-set workplace       
                                            exposure limit. EPA intends 
                                            to propose under separate   
                                            rule-making this chemical as
                                            an acceptable substitute    
                                            subject to the new limit.   
                      HCFC-225...........  Toxicity data only recently  
                                            completed. HCFC-225ca isomer
                                            has comparatively low       
                                            company-set exposure limit; 
                                            EPA intends to propose HCFC-
                                            225 as acceptable subject to
                                            this limit under separate   
                                            rule-making. This limit     
                                            should be readily achievable
                                            since HCFC-225 is sold      
                                            commercially as a blend of  
                                            ca- and cb-isomers. In      
                                            addition, equipment where   
                                            HCFC-225 is used typically  
                                            has very low emissions.     
                      HFC-4310mee........  Agency has not completed     
                                            review of data.             
                                            Premanufacture Notice review
                                            under the Toxic Substances  
                                            Control Act not yet         
                                            completed.                  
------------------------------------------------------------------------


       Fire Suppression and Explosion Protection--Streaming Agents      
                         Acceptable Substitutes                         
------------------------------------------------------------------------
    End-use         Substitute        Decision            Comments      
------------------------------------------------------------------------
Halon 1211......  HCFC-123.......  Acceptable.....  See additional      
                                                     comments 1, 2.     
Streaming agents  ...............  ...............  Use of HCFCs in     
                                                     pressurized        
                                                     dispensers are     
                                                     controlled under   
                                                     CAA section 610(d).
                                                     EPA intends to     
                                                     publish a proposed 
                                                     rulemaking banning 
                                                     the use of this    
                                                     agent in           
                                                     residential        
                                                     applications.      
                  [HCFC Blend] B.  Acceptable.....  Contains small      
                                                     percentage of PFC  
                                                     which has an       
                                                     unusually long     
                                                     atmospheric        
                                                     lifetime, and could
                                                     potentially        
                                                     contribute to      
                                                     global climate     
                                                     change.            
                                                    See additional      
                                                     comments 1, 2.     
                                                    Use of HCFCs in     
                                                     pressurized        
                                                     dispensers are     
                                                     controlled under   
                                                     CAA section 610(d).
                                                     EPA intends to     
                                                     publish a proposed 
                                                     rulemaking banning 
                                                     the use of this    
                                                     agent in           
                                                     residential        
                                                     applications.      
                  [Surfactant      Acceptable.....  This blend is not a 
                   Blend] A.                         clean agent, but   
                                                     can reduce the     
                                                     quantity of water  
                                                     required to        
                                                     extinguish a fire. 
                                                    EPA recommends that 
                                                     the manufacturer   
                                                     label the canister 
                                                     cautioning the     
                                                     consumer about     
                                                     possible eye       
                                                     irritation.        
                  Carbon Dioxide.  Acceptable.....                      
                  Dry Chemical...  Acceptable.....                      
                  Water..........  Acceptable.....                      
                  Foam...........  Acceptable ....                      
------------------------------------------------------------------------
Additional Comments:                                                    
1--Discharge testing and training should be strictly limited only to    
  that which is essential to meet safety or performance requirements.   
2--The agent should be recovered from the fire protection system in     
  conjunction with testing or servicing and recycled for later use or   
  destroyed.                                                            


                           Fire Suppression and Explosion Protection--Streaming Agents                          
                             Substitutes Acceptable Subject to Narrowed Use Limits                              
----------------------------------------------------------------------------------------------------------------
        End-use            Substitute           Decision           Conditions                Comments           
----------------------------------------------------------------------------------------------------------------
Halon 1211............  [CFC Blend]....  Acceptable in          ...............  Use of CFCs are controlled     
                                          nonresidential uses                     under CAA section 610 which   
                                          only.                                   bans use of CFCs in           
                                                                                  pressurized dispensers, and   
                                                                                  therefore are not permitted   
                                                                                  for use in portable fire      
                                                                                  extinguishers. EPA will list  
                                                                                  this agent as proposed        
                                                                                  unacceptable in the next SNAP 
                                                                                  proposed rulemaking.          
Streaming agents......                                                           Because CFCs are a Class I     
                                                                                  substance, production will be 
                                                                                  phased out by January 1, 1996.
                                                                                 See additional comments 1, 2.  
                        HBFC-22B1......  Acceptable in          ...............  Proper procedures regarding the
                                          nonresidential uses                     operation of the extinguisher 
                                          only.                                   and ventilation following     
                                                                                  dispensing the extinguishant  
                                                                                  is recommended. Worker        
                                                                                  exposure may be a concern in  
                                                                                  small office areas.           
                                                                                 HBFC-22B1 is considered an     
                                                                                  interim substitute for Halon  
                                                                                  1211. Because the HBFC-22B1   
                                                                                  has an ODP of .74, production 
                                                                                  will be phased out (except for
                                                                                  essential uses) on January 1, 
                                                                                  1996.                         
                                                                                 This agent was submitted to the
                                                                                  Agency as a Premanufacture    
                                                                                  Notice (PMN) and is presently 
                                                                                  subject to requirements       
                                                                                  contained in a Toxic Substance
                                                                                  Control Act (TSCA) Consent    
                                                                                  Order.                        
                                                                                 See additional comments 1, 2.  
                        C6F14..........  Acceptable for         ...............  Users must observe the         
                                          nonresidential uses                     limitations on PFC            
                                          where other                             acceptability by making       
                                          alternatives are not                    reasonable effort to undertake
                                          technically feasible                    the following measures:       
                                          due to performance                     (i) conduct an evaluation of   
                                          or safety                               foreseeable conditions of end 
                                          requirements:                           use;                          
                                         a. due to the                           (ii) determine that the        
                                          physical or chemical                    physical or chemical          
                                          properties of the                       properties or other technical 
                                          agent, or.                              constraints of the other      
                                         b. where human                           available agents preclude     
                                          exposure to the                         their use; and                
                                          extinguishing agent                    (iii) determine that human     
                                          may approach                            exposure to the other         
                                          cardiosensitization                     alternative extinguishing     
                                          levels or result in                     agents may approach or result 
                                          other unacceptable                      in cardiosensitization or     
                                          health effects under                    other unacceptable toxicity   
                                          normal operating                        effects under normal operating
                                          conditions.                             conditions;                   
                                                                                 Documentation of such measures 
                                                                                  must be available for review  
                                                                                  upon request.                 
                                                                                 The principal environmental    
                                                                                  characteristic of concern for 
                                                                                  PFCs is that they have high   
                                                                                  GWPs and long atmospheric     
                                                                                  lifetimes. Actual             
                                                                                  contributions to global       
                                                                                  warming depend upon the       
                                                                                  quantities of PFCs emitted.   
                                                                                 For additional guidance        
                                                                                  regarding applications in     
                                                                                  which PFCs may be appropriate,
                                                                                  users should consult the      
                                                                                  description of potential uses 
                                                                                  which is included in the      
                                                                                  preamble to this rulemaking.  
                                                                                 See additional comments 1, 2.  
----------------------------------------------------------------------------------------------------------------
Additional Comments:                                                                                            
\1\--Discharge testing and training should be strictly limited only to that which is essential to meet safety or
  performance requirements.                                                                                     
\2\--The agent should be recovered from the fire protection system in conjunction with testing or servicing, and
  recycled for later use or destroyed.                                                                          


                           Fire Suppression and Explosion Protection--Streaming Agents                          
                                            Unacceptable Substitutes                                            
----------------------------------------------------------------------------------------------------------------
          End-use                    Substitute                 Decision                    Comments            
----------------------------------------------------------------------------------------------------------------
Halon 1211.................  [CFC-11]...................  Unacceptable........  This agent has been suggested   
Streaming agents...........                                                      for use on large outdoor fires 
                                                                                 for which non-ozone-depleting  
                                                                                 alternatives are currently     
                                                                                 used.                          
----------------------------------------------------------------------------------------------------------------


       Fire Suppression and Explosion Protection--Streaming Agents      
                          Pending Substitutes                           
------------------------------------------------------------------------
       End-use            Substitute                 Comments           
------------------------------------------------------------------------
Halon 1211..........  HBFC-22B1/HFC-227ea  Cardiotoxicity, decomposition
Streaming agents....   Blend.               product, and personal       
                                            monitoring data required.   
                                           Because the HBFC-22B1 has an 
                                            ODP of .74, production will 
                                            be phased out (except for   
                                            essential uses) on January  
                                            1, 1996.                    
                      HCFC-124...........  Personal monitoring data     
                                            required.                   
                      HFC-134a...........  Personal monitoring data     
                                            required.                   
                      HFC-227ea..........  Personal monitoring data     
                                            required.                   
                      [Powdered Aerosol]   EPA has not completed the    
                       B.                   review of this agent.       
                      Water Mist.........  EPA is continuing to evaluate
                                            this new technology.        
------------------------------------------------------------------------


                        Fire Suppression and Explosion Protection--Total Flooding Agents                        
                                             Acceptable Substitutes                                             
----------------------------------------------------------------------------------------------------------------
          End-use                    Substitute                 Decision                    Comments            
----------------------------------------------------------------------------------------------------------------
Halon 1301.................  [Inert Gas Blend] B........  Acceptable in         Agency review for occupied areas
                                                           unoccupied areas.     is incomplete.                 
Total flooding agents......  [Powdered Aerosol] A.......  Acceptable in         For use in occupied areas,      
                                                           unoccupied areas.     additional decomposition       
                                                                                 product and health effect data 
                                                                                 are required.                  
                             [Powdered Aerosol] B.......  Acceptable in         Agency review for occupied areas
                                                           unoccupied areas.     is incomplete.                 
                             Carbon Dioxide.............  Acceptable            System design must adhere to    
                                                                                 OSHA 1910.162(b)5 and NFPA     
                                                                                 Standard 12.                   
                             Water......................  Acceptable .........                                  
----------------------------------------------------------------------------------------------------------------


                        Fire Suppression and Explosion Protection--Total Flooding Agents                        
                                Substitutes Acceptable Subject to Use Conditions                                
----------------------------------------------------------------------------------------------------------------
       End-use           Substitute          Decision                Conditions                 Comments        
----------------------------------------------------------------------------------------------------------------
Halon 1301..........  HBFC-22B1......  Acceptable..........  Until OSHA establishes     The comparative design  
Total flooding                                                applicable workplace       concentration based on 
 agents                                                       requirements:              cup burner values is   
                                                             Where egress from an area   approximately 5.3%,    
                                                              cannot be accomplished     while its cardiotoxic  
                                                              within one minute, the     LOAEL is 1%. Thus, it  
                                                              employer shall not use     is unlikely that this  
                                                              this agent in              agent will be used in  
                                                              concentrations exceeding   normally occupied      
                                                              its cardiotoxic NOAEL of   areas.                 
                                                              0.3%.                     HBFC-22B1 can be        
                                                                                         considered only an     
                                                                                         interim substitute for 
                                                                                         Halon 1301. HBFC-22B1  
                                                                                         has an ODP of .74;     
                                                                                         thus, production will  
                                                                                         be phased out January  
                                                                                         1, 1996.               
                                                             Where egress takes longer  This agent was submitted
                                                              than 30 seconds but less   to the Agency as a     
                                                              than one minute, the       Premanufacture Notice  
                                                              employer shall not use     (PMN) and is presently 
                                                              the agent in a             subject to requirements
                                                              concentration greater      contained in a Toxic   
                                                              than its cardiotoxic       Substance Control Act  
                                                              LOAEL of 1.0%.             (TSCA) Consent Order.  
                                                                                        See additional comments 
                                                                                         1, 2, 3, 4.            
                                                             HBFC-22B1 concentrations   ........................
                                                              greater than 1.0% are                             
                                                              only permitted in areas                           
                                                              not normally occupied by                          
                                                              employees provided that                           
                                                              any employee in the area                          
                                                              can escape within 30                              
                                                              seconds. The employer                             
                                                              shall assure that no                              
                                                              unprotected employees                             
                                                              enter the area during                             
                                                              agent discharge.                                  
                      HCFC-22........  Acceptable..........  Until OSHA establishes     The comparative design  
                                                              applicable workplace       concentration based on 
                                                              requirements:              cup burner values is   
                                                             Where egress from an area   approximately 13.9%    
                                                              cannot be accomplished     while its cardiotoxic  
                                                              within one minute, the     LOAEL is 5.0%. Thus, it
                                                              employer shall not use     is unlikely that this  
                                                              this agent in              agent will be used in  
                                                              concentrations exceeding   normally occupied      
                                                              its cardiotoxic NOAEL of   areas.                 
                                                              2.5%.                     See additional comments 
                                                                                         1, 2, 3, 4.            
                                                             Where egress takes longer  ........................
                                                              than 30 seconds but less                          
                                                              than one minute, the                              
                                                              employer shall not use                            
                                                              the agent in a                                    
                                                              concentration greater                             
                                                              than its cardiotoxic                              
                                                              LOAEL of 5.0%.                                    
                                                             HCFC-22 concentrations     ........................
                                                              greater than 5.0% are                             
                                                              only permitted in areas                           
                                                              not normally occupied by                          
                                                              employees provided that                           
                                                              any employee in the area                          
                                                              can escape within 30                              
                                                              seconds. The employer                             
                                                              shall assure that no                              
                                                              unprotected employees                             
                                                              enter the area during                             
                                                              agent discharge.                                  
                      HCFC-124.......  Acceptable..........  Until OSHA establishes     The comparative design  
                                                              applicable workplace       concentration based on 
                                                              requirements:              cup burner values is   
                                                             Where egress from an area   approximately 8.4%     
                                                              cannot be accomplished     while its cardiotoxic  
                                                              within one minute, the     LOAEL is 2.5%. Thus, it
                                                              employer shall not use     is unlikely that this  
                                                              this agent in              agent will be used in  
                                                              concentrations exceeding   normally occupied      
                                                              its cardiotoxic NOAEL of   areas.                 
                                                              1.0%.                     See additional comments 
                                                                                         1, 2, 3, 4.            
                                                             Where egress takes longer  ........................
                                                              than 30 seconds but less                          
                                                              than one minute, the                              
                                                              employer shall not use                            
                                                              the agent in a                                    
                                                              concentration greater                             
                                                              than its cardiotoxic                              
                                                              LOAEL of 2.5%.                                    
                                                             HCFC-123 concentrations    ........................
                                                              greater than 2.5% are                             
                                                              only permitted in areas                           
                                                              not normally occupied by                          
                                                              employees provided that                           
                                                              any employee in the area                          
                                                              can escape within 30                              
                                                              seconds. The employer                             
                                                              shall assure that no                              
                                                              unprotected employees                             
                                                              enter the area during                             
                                                              agent discharge.                                  
                      [HCFC Blend] A.  Acceptable..........  Until OSHA establishes     The comparative design  
                                                              applicable workplace       concentration based on 
                                                              requirements:              full scale testing is  
                                                             Where egress from an area   approximately 8.6%.    
                                                              cannot be accomplished    The agent should be     
                                                              within one minute, the     recovered from the fire
                                                              employer shall not use     protection system in   
                                                              [HCFC Blend] A in          conjunction with       
                                                              concentrations exceeding   testing or servicing,  
                                                              its cardiotoxic NOAEL of   and should be recycled 
                                                              10.0%.                     for later use or       
                                                              Where egress takes         destroyed.             
                                                              greater than 30 seconds   See additional comments 
                                                              but less than one          1, 2, 3, 4.            
                                                              minute, the employer                              
                                                              shall not use [HCFC                               
                                                              Blend] A in a                                     
                                                              concentration greater                             
                                                              than its cardiotoxic                              
                                                              LOAEL of 10.0%.                                   
                                                             [HCFC Blend] A                                     
                                                              concentrations greater                            
                                                              than 10 percent are only                          
                                                              permitted in areas not                            
                                                              normally occupied by                              
                                                              employees provided that                           
                                                              any employee in the area                          
                                                              can escape within 30                              
                                                              seconds. The employer                             
                                                              shall assure that no                              
                                                              unprotected employees                             
                                                              enter the area during                             
                                                              agent discharge.                                  
                      HFC-23.........  Acceptable..........  Until OSHA establishes     The comparative design  
                                                              applicable workplace       concentration based on 
                                                              requirements:              cup burner values is   
                                                             Where egress from an area   approximately 14.4%    
                                                              cannot be accomplished     while data indicates   
                                                              within one minute, the     that its cardiotoxicity
                                                              employer shall not use     NOAEL is 30% without   
                                                              HFC-23 in concentrations   added oxygen and 50%   
                                                              exceeding 30%.             with added oxygen. Its 
                                                                                         LOAEL is likely to     
                                                                                         exceed 50%.            
                                                                                        See additional comments 
                                                                                         1, 2, 3, 4.            
                                                             Where egress takes                                 
                                                              greater than 30 seconds                           
                                                              but less than one                                 
                                                              minute, the employer                              
                                                              shall not use HFC-23 in                           
                                                              a concentration greater                           
                                                              than 50.0%.                                       
                                                             HFC-23 concentrations                              
                                                              greater than 50 percent                           
                                                              are only permitted in                             
                                                              areas not normally                                
                                                              occupied by employees                             
                                                              provided that any                                 
                                                              employee in the area can                          
                                                              escape within 30                                  
                                                              seconds. The employer                             
                                                              shall assure that no                              
                                                              unprotected employees                             
                                                              enter the area during                             
                                                              agent discharge.                                  
                                                             The design concentration                           
                                                              must result in an oxygen                          
                                                              level of at least 16%.                            
                      HFC-125........  Acceptable..........  Until OSHA establishes     The comparative design  
                                                              applicable workplace       concentration based on 
                                                              requirements:              cup burner values is   
                                                             Where egress from an area   approximately 11.3%    
                                                              cannot be accomplished     while its cardiotoxic  
                                                              within one minute, the     LOAEL is 10.0%. Thus,  
                                                              employer shall not use     it is unlikely that    
                                                              this agent in              this agent will be used
                                                              concentrations exceeding   in normally occupied   
                                                              its cardiotoxic NOAEL of   areas.                 
                                                              7.5%.                     See additional comments 
                                                                                         1, 2, 3, 4.            
                                                             Where egress takes longer                          
                                                              than 30 seconds but less                          
                                                              than one minute, the                              
                                                              emploer shall not use                             
                                                              the agent in a                                    
                                                              concentration greater                             
                                                              than its cardiotoxic                              
                                                              LOAEL of 10.0%.                                   
                                                             HFC-125 concentrations                             
                                                              greater than 10.0% are                            
                                                              only permitted in areas                           
                                                              not normally occupied by                          
                                                              employees provided that                           
                                                              any employee in the area                          
                                                              can escape within 30                              
                                                              seconds. The employer                             
                                                              shall assure that no                              
                                                              unprotected employees                             
                                                              enter the area during                             
                                                              agent discharge.                                  
                      HFC-134a.......  Acceptable..........  Until OSHA establishes     The comparative design  
                                                              applicable workplace       concentration based on 
                                                              requirements:              cup burner values is   
                                                             Where egress from an area   approximately 12.6%    
                                                              cannot be accomplished     while its cardiotoxic  
                                                              within one minute, the     LOAEL is 8.0%. Thus, it
                                                              employer shall not use     is unlikely that this  
                                                              this agent in              agent will be used in  
                                                              concentrations exceeding   normally occupied      
                                                              its cardiotoxic NOAEL of   areas.                 
                                                              4.0%.                     See additional comments 
                                                                                         1, 2, 3, 4.            
                                                             Where egress takes longer                          
                                                              than 30 seconds but less                          
                                                              than one minute, the                              
                                                              employer shall not use                            
                                                              the agent in a                                    
                                                              concentration greater                             
                                                              than its cardiotoxic                              
                                                              LOAEL of 8.0%.                                    
                                                             HFC-134a concentrations                            
                                                              greater than 8.0% are                             
                                                              only permitted in areas                           
                                                              not normally occupied by                          
                                                              employees provided that                           
                                                              any employee in the area                          
                                                              can escape within 30                              
                                                              seconds. The employer                             
                                                              shall assure that no                              
                                                              unprotected employees                             
                                                              enter the area during                             
                                                              agent discharge.                                  
                      HFC-227ea......  Acceptable..........  Until OSHA establishes     The comparative design  
                                                              applicable workplace       concentration based on 
                                                              requirements:              cup burner values is   
                                                             Where egress from an area   approximately 7.0%     
                                                              cannot be accomplished     while data indicate    
                                                              within one minute, the     that its cardiotoxicity
                                                              employer shall not use     LOAEL is probably      
                                                              HFC-227ea in               greater than 10.5%. EPA
                                                              concentrations exceeding   is accepting 10.5% as  
                                                              its cardiotoxic NOAEL of   its LOAEL.             
                                                              9.0%.                     This agent was submitted
                                                             Where egress takes longer   to the Agency as a     
                                                              than 30 second but less    Premanufacture Notice  
                                                              than one minute, the       (PMN) agent and is     
                                                              employer shall not use     presently subject to   
                                                              the agent in a             requirements contained 
                                                              concentration greater      in a Toxic Substances  
                                                              than its cardiotoxic       Control Act (TSCA)     
                                                              LOAEL of 10.5%.            Significant New Use    
                                                                                         Rule (SNUR).           
                                                                                        See additional comments 
                                                                                         1, 2, 3, 4.            
                                                             HFC-227ea concentrations                           
                                                              greater than 10.5% are                            
                                                              only permitted in areas                           
                                                              not normally occupied by                          
                                                              employees provided that                           
                                                              any employee in the area                          
                                                              can escape within 30                              
                                                              seconds. The employer                             
                                                              shall assure that no                              
                                                              unprotected employees                             
                                                              enter the area during                             
                                                              agent discharge.                                  
                      C4F10..........  Acceptable..........  Until OSHA establishes     The comparative design  
                                       where other            applicable workplace       concentration based on 
                                        alternatives are      requirements:              cup burner values is   
                                        not technically      For occupied areas from     approximately 6.6%.    
                                        feasible due to       which personnel cannot    Users must observe the  
                                        performance or        be evacuated in one        limitations on PFC     
                                        safety                minute, use is permitted   acceptability by making
                                        requirements:         only up to                 reasonable efforts to  
                                       a. due to their        concentrations not         undertake the following
                                        physical or           exceeding the              measures:              
                                        chemical              cardiotoxicity NOAEL of   (i) conduct an          
                                        properties, or        40%.                       evaluation of          
                                       b. where human        Although no LOAEL has       foreseeable conditions 
                                        exposure to the       been established for       of end use;            
                                        extinguishing         this product, standard    (ii) determine that     
                                        agents may approach   OSHA requirements apply,   human exposure to the  
                                        cardiosensitization   i.e., for occupied areas   other alternative      
                                        levels or result in   from which personnel can   extinguishing agents   
                                        other unacceptable    be evacuated or egress     may approach or result 
                                        health effects        can occur between 30 and   in cardiosensitization 
                                        under normal          60 seconds, use is         or other unacceptable  
                                        operating             permitted up to a          toxicity effects under 
                                        conditions            concentration not          normal operating       
                                                              exceeding the LOAEL.       conditions; and        
                                                             All personnel must be      (iii) determine that the
                                                              evacuated before           physical or chemical   
                                                              concentration of C4F10     properties or other    
                                                              exceeds 40%.               technical constraints  
                                                             Design concentration must   of the other available 
                                                              result in oxygen levels    agents preclude their  
                                                              of at least 16%.           use.                   
                                                                                        Documentation of such   
                                                                                         measures must be       
                                                                                         available for review   
                                                                                         upon request.          
                                                                                        The principal           
                                                                                         environmental          
                                                                                         characteristic of      
                                                                                         concern for PFCs is    
                                                                                         that they have high    
                                                                                         GWPs and long          
                                                                                         atmospheric lifetimes. 
                                                                                         Actual contributions to
                                                                                         global warming depend  
                                                                                         upon the quantities of 
                                                                                         PFCs emitted.          
                                                                                        For additional guidance 
                                                                                         regarding applications 
                                                                                         in which PFCs may be   
                                                                                         appropriate, users     
                                                                                         should consult the     
                                                                                         description of         
                                                                                         potential uses which is
                                                                                         included in this       
                                                                                         rulemaking.            
                                                                                        See additional comments 
                                                                                         1, 2, 3, 4.            
                      [IG-541].......  Acceptable..........  Until OSHA establishes     Studies have shown that 
                                                              applicable workplace       healthy, young         
                                                              requirements:              individuals can remain 
                                                             The design concentration    in a 10% to 12% oxygen 
                                                              must result in at least    atmosphere for 30 to 40
                                                              10% oxygen and no more     minutes without        
                                                              than 5% CO2.               impairment. However, in
                                                             If the oxygen               a fire emergency, the  
                                                              concentration of the       oxygen level may be    
                                                              atmosphere falls below     reduced below safe     
                                                              10%, personnel must be     levels, and the        
                                                              evacuated and egress       combustion products    
                                                              must occur within 30       formed by the fire are 
                                                              seconds.                   likely to cause harm.  
                                                                                         Thus, the Agency does  
                                                                                         not contemplate        
                                                                                         personnel remaining in 
                                                                                         the space after system 
                                                                                         discharge during a fire
                                                                                         without Self Contained 
                                                                                         Breathing Apparatus    
                                                                                         (SCBA) as required by  
                                                                                         OSHA.                  
                                                                                        See additional comments 
                                                                                         1, 2.                  
----------------------------------------------------------------------------------------------------------------
Additional Comments                                                                                             
1--Must conform with OSHA 29 CFR 1910 Subpart L Section 1910.160 of the U.S. Code.                              
2--Per OSHA requirements, protective gear (SCBA) must be available in the event personnel must reenter the area.
3--Discharge testing should be strictly limited only to that which is essential to meet safety or performance   
  requirements.                                                                                                 
4--The agent should be recovered from the fire protection system in conjunction with testing or servicing, and  
  recycled for later use or destroyed.                                                                          


                                    Fire Suppression and Explosion Protection                                   
                                              Total Flooding Agents                                             
                             Substitutes Acceptable Subject To Narrowed Use Limits                              
----------------------------------------------------------------------------------------------------------------
    End use          Substitute           Decision                 Conditions                  Comments         
----------------------------------------------------------------------------------------------------------------
Halon 1301 Total  C4F10...........  Acceptable where       Until OSHA establishes      The comparative design   
 Flooding Agents.                    other alternatives     applicable workplace        concentration based on  
                                     are not technically    requirements:               cup burner values is    
                                     feasible due to       For occupied areas from      approximately 6.6%.     
                                     performance or         which personnel cannot be  Users must observe the   
                                     safety requirements:   evacuated in one minute,    limitations on PFC      
                                    a. Due to their         use is permitted only up    approval by undertaking 
                                     physical or chemical   to concentrations not       the following measures: 
                                     properties, or.        exceeding the              (i) Conduct an evaluation
                                    b. Where human          cardiotoxicity NOAEL of     of foreseeable          
                                     exposure to the        40%.                        conditions of end use;  
                                     extinguishing agents  Although no LOAEL has been  (ii) Determine that human
                                     may approach           established for this        exposure to the other   
                                     cardiosensitization    product, standard OSHA      alternative             
                                     levels or result in    requirements apply, i.e.    extinguishing agents may
                                     other unacceptable     for occupied areas from     approach or result in   
                                     health effects under   which personnel can be      cardiosensitization or  
                                     normal operating       evacuated or egress can     other unacceptable      
                                     conditions.            occur between 30 and 60     toxicity effects under  
                                                            seconds, use is permitted   normal operating        
                                                            up to a concentration not   conditions; and         
                                                            exceeding the LOAEL.       (iii) Determine that the 
                                                           All personnel must be        physical or chemical    
                                                            evacuated before            properties or other     
                                                            concentration of C4F10      technical constraints of
                                                            exceeds 40%.                the other available     
                                                           Design concentration must    agents preclude their   
                                                            result in oxygen levels     use;                    
                                                            of at least 16%.           Documentation of such    
                                                                                        measures must be        
                                                                                        available for review    
                                                                                        upon request.           
                                                                                       The principal            
                                                                                        environmental           
                                                                                        characteristic of       
                                                                                        concern for PFCs is that
                                                                                        they have high GWPs and 
                                                                                        long atmospheric        
                                                                                        lifetimes. Actual       
                                                                                        contributions to global 
                                                                                        warming depend upon the 
                                                                                        quantities of PFCs      
                                                                                        emitted.                
                                                                                       For additional guidance  
                                                                                        regarding applications  
                                                                                        in which PFCs may be    
                                                                                        appropriate, users      
                                                                                        should consult the      
                                                                                        description of potential
                                                                                        uses which is included  
                                                                                        in the preamble to this 
                                                                                        rulemaking.             
                                                                                       See additional comments  
                                                                                        1, 2, 3, 4.             
----------------------------------------------------------------------------------------------------------------
Additional Comments                                                                                             
1--Must conform with OSHA 29 CFR 1910 Subpart L Section 1910.160 of the U.S. Code.                              
2--Per OSHA requirements, protective gear (SCBA) must be available in the event personnel must reenter the area.
                                                                                                                
3--Discharge testing should be strictly limited only to that which is essential to meet safety or performance   
  requirements.                                                                                                 
4--The agent should be recovered from the fire protection system in conjunction with testing or servicing, and  
  recycled for later use or destroyed.                                                                          


                Fire Suppression and Explosion Protection               
                          Total Flooding Agents                         
                          Pending Substitutes                           
------------------------------------------------------------------------
       End-use              Substitute                 Comments         
------------------------------------------------------------------------
Halon 1301 Total       HBFC-22B1/HFC-227ea    Cardiotoxicity and        
 Flooding.              Blend.                 decomposition product    
                                               data required.           
                                              Because the HBFC-22B1 has 
                                               an ODP of .74, production
                                               will be phased out       
                                               (except for essential    
                                               uses) on January 1, 1996.
                       HCFC/HFC Blend.......  Pending submission.       
                       [Inert Gas Blend] B..  Pending development of    
                                               peer review on health    
                                               effects.                 
                       [Powdered Aerosol] A.  For use in occupied areas,
                                               additional decomposition 
                                               product and health effect
                                               data is required.        
                       [Powdered Aerosol] B.  For use in occupied areas,
                                               EPA review of submission 
                                               incomplete.              
                       [Water Mist System] A  EPA is continuing to      
                                               evaluate this new        
                                               technology.              
                       [Water Mist System] B  EPA is continuing to      
                                               evaluate this new        
                                               technology.              
                       SF6..................  This agent has been       
                                               proposed as an           
                                               alternative for discharge
                                               testing.                 
------------------------------------------------------------------------


                                                   Sterilants                                                   
                                             Acceptable Substitutes                                             
----------------------------------------------------------------------------------------------------------------
      Application             Substitute             Decision           Conditions             Comments         
----------------------------------------------------------------------------------------------------------------
12/88 Blend of EtO/CFC- CO2/ETO..............  Acceptable..........  ...............  CO2/EtO blends can serve  
 12 Sterilant.                                                                         as drop-in replacements  
                                                                                       to 12/88 in some but not 
                                                                                       in all existing equipment
                                                                                       because they require a   
                                                                                       higher operating         
                                                                                       pressure.                
                                                                                      As a HAP, use of EtO must 
                                                                                       comply with Title III of 
                                                                                       the CAA.                 
                        HCFC-124/ETO.........  Acceptable..........  ...............  In a blend with EtO, HCFC-
                                                                                       124 is the only available
                                                                                       drop-in replacement for  
                                                                                       about half of the        
                                                                                       equipment now using 12/  
                                                                                       88. However, HCFC-124 is 
                                                                                       an ozone depleting       
                                                                                       substance; it should be  
                                                                                       used to sterilize only   
                                                                                       that equipment that      
                                                                                       cannot be sterilized     
                                                                                       using other alternatives 
                                                                                       such as steam or CO2/EtO 
                                                                                       blends.                  
                                                                                      Because HCFC-124 is a     
                                                                                       Class II substance, its  
                                                                                       use may be subject to    
                                                                                       future regulation        
                                                                                       promulgated under Section
                                                                                       608 of the Clean Air Act 
                                                                                       Amendments of 1990.      
                                                                                      As a HAP, use of EtO must 
                                                                                       comply with Title III of 
                                                                                       the CAA.                 
12/88 Blend of EtO/CFC- Pure ETO.............  Acceptable..........  ...............  EtO is a toxic,           
 12 Sterilant.                                                                         carcinogenic substance   
                                                                                       and is considered a      
                                                                                       hazardous air pollutant. 
                                                                                       Potential exposures of   
                                                                                       the general population to
                                                                                       EtO releases can be      
                                                                                       limited either through   
                                                                                       the use of catalytic     
                                                                                       converters which convert 
                                                                                       waste EtO into CO2 and   
                                                                                       water, or through the use
                                                                                       of acid water scrubbers  
                                                                                       which convert waste EtO  
                                                                                       into ethylene glycol.    
                                                                                      Must be used in accordance
                                                                                       with manufacturer        
                                                                                       recommendations to       
                                                                                       address flammability     
                                                                                       concerns.                
                                                                                      Must be used in accordance
                                                                                       with OSHA standards to   
                                                                                       limit occupational       
                                                                                       exposures.               
                                                                                      As a HAP, use of EtO must 
                                                                                       comply with Title III of 
                                                                                       the CAA.                 
                        Steam................  Acceptable..........  ...............  Applicable only to devices
                                                                                       resistant to heat and    
                                                                                       moisture.                
----------------------------------------------------------------------------------------------------------------


                               Sterilants                               
                           Pending Decisions                            
------------------------------------------------------------------------
     Application          Substitute                 Comments           
------------------------------------------------------------------------
12/88 Blend of EtO/   [HCFC Blend] A.....  Decision pending completion  
 CFC-12 Sterilant.                          of FIFRA review.            
                      HFC-125/EtO........  Agency has not completed     
                                            review of data.             
                      HFC-227ea/EtO......  Need exposure data.          
------------------------------------------------------------------------


                                Aerosols                                
                         Acceptable Substitutes                         
------------------------------------------------------------------------
    End-use         Substitute        Decision            Comments      
------------------------------------------------------------------------
CFC-11, HCFC-    Saturated light  Acceptable......  Hydrocarbons are    
 22, HCFC-142b    hydrocarbons,                      flammable          
 as aerosol       C3-C6 (e.g.,                       materials. Use with
 propellants.     propane,                           the necessary      
                  isobutane, n-                      precautions.       
                  butane).                                              
                 Dimethyl ether.  Acceptable......  DME is flammable.   
                                                     Use with the       
                                                     necessary          
                                                     precautions. Blends
                                                     of DME with HCFCs  
                                                     are subject to     
                                                     section 610        
                                                     restrictions.      
                 HFC-152a, HFC-   Acceptable......  HFC-134a, HFC-125   
                  134a, HFC-125.                     and HFC-152a are   
                                                     potential          
                                                     greenhouse gases.  
                 Alternative      Acceptable......  ....................
                  processes                                             
                  (pumps,                                               
                  mechanical                                            
                  pressure                                              
                  dispensers,                                           
                  non-spray                                             
                  dispensers).                                          
                 Compressed       Acceptable......  ....................
                  Gases (Carbon                                         
                  dioxide, air,                                         
                  nitrogen,                                             
                  nitrous oxide).                                       
CFC-11 as        HCFC-22, HCFC-   Acceptable......  All aerosol         
 aerosol          142b.                              propellant uses of 
 propellant.                                         HCFC-22 and HCFC-  
                                                     142b are already   
                                                     prohibited as of   
                                                     January 1, 1994    
                                                     under Section 610  
                                                     (d) of the Clean   
                                                     Air Act. Only one  
                                                     exemption exists.  
                                                     It is described in 
                                                     the section on     
                                                     aerosol            
                                                     substitutes.       
CFC-11, CFC-     C6-C20           Acceptable......  Petroleum           
 113, MCF, HCFC-  Petroleum                          hydrocarbons are   
 141b as          hydrocarbons.                      flammable. Use with
 aerosol                                             the necessary      
 solvents.                                           precautions.       
                                                     Pesticide aerosols 
                                                     must adhere to     
                                                     FIFRA standards.   
                 Chlorinated      Acceptable......  Extensive           
                  solvents                           regulations under  
                  (trichloroethy                     other statutes     
                  lene,                              govern use of these
                  perchloroethyl                     chemicals,         
                  ene, methylene                     including VOC      
                  chloride).                         standards,         
                                                     workplace          
                                                     standards, waste   
                                                     management         
                                                     standards, and     
                                                     pesticide          
                                                     formulation and    
                                                     handling standards.
                                                     Should be used only
                                                     for products where 
                                                     nonflammability is 
                                                     a critical feature.
                 Oxygenated       Acceptable......  These substitutes   
                  organic                            are flammable. Use 
                  solvents                           with the necessary 
                  (esters,                           precautions.       
                  ethers,                                               
                  alcohols,                                             
                  ketones).                                             
                 Terpenes.......  Acceptable......  These substitutes   
                                                     are flammable. Use 
                                                     with the necessary 
                                                     precautions.       
                 Water-based      Acceptable......  ....................
                  formulations.                                         
CFC-11, CFC-     HCFC-141b and    Acceptable......  All aerosol solvent 
 113, MCF as      its blends.                        uses of HCFC-141b, 
 aerosol                                             either by itself or
 solvents.                                           blended with other 
                                                     compounds, are     
                                                     already prohibited 
                                                     as of January 1,   
                                                     1994 under Section 
                                                     610 (d) of the     
                                                     Clean Air Act.     
                                                     Limited exemptions 
                                                     exist. These are   
                                                     described in the   
                                                     section on aerosol 
                                                     substitutes.       
------------------------------------------------------------------------


                                Aerosols                                
                          Pending Substitutes                           
------------------------------------------------------------------------
      End-use             Substitute                  Comments          
------------------------------------------------------------------------
CFC-12 as aerosol     HFC-227............  FDA approval still required  
 propellant.                                in metered dose inhalers.   
                                            Likely to have low          
                                            environmental impacts.      
CFC-11, CFC-113,      Monochlorotoluene/b  Agency has not yet completed 
 MCF, HCFC-141b as     enzotrifluorides.    review of data.             
 aerosol solvents.                                                      
                      HFC-4310mee........  Agency has not completed     
                                            review of data.             
                                            Premanufacture Notice review
                                            under the Toxic Substances  
                                            Control Act not yet         
                                            completed.                  
                      Perfluorocarbons     Agency has not completed     
                       (C6F14).             review of data.             
------------------------------------------------------------------------


                                                Tobacco Expansion                                               
                                             Acceptable Substitutes                                             
----------------------------------------------------------------------------------------------------------------
      Application              Substitute            Decision         Conditions               Comments         
----------------------------------------------------------------------------------------------------------------
CFC-11.................  Carbon Dioxide.........  Acceptable.....  ................  Carbon dioxide cannot be   
Tobacco Expansion......                                                               used as a drop-in or a    
                                                                                      retrofit, but requires new
                                                                                      equipment.                
                         Propane................  Acceptable.....  ................  Propane tobacco expansion  
                                                                                      is a patented process.    
                                                                                      Flammability may be of    
                                                                                      concern for workers. Major
                                                                                      sources of VOC emissions  
                                                                                      are subject to the New    
                                                                                      Source Review (NSR)       
                                                                                      program under the CAA.    
----------------------------------------------------------------------------------------------------------------


                            Tobacco Expansion                           
                          Pending Substitutes                           
------------------------------------------------------------------------
       End-Use              Substitute                 Comments         
------------------------------------------------------------------------
CFC-11...............  HFC-227ea............  Agency has not completed  
Tobacco Expansion....                          review of data.          
------------------------------------------------------------------------


                      Adhesives, Coatings, and Inks                     
                         Acceptable Substitutes                         
------------------------------------------------------------------------
    End-use         Substitute        Decision            Comments      
------------------------------------------------------------------------
Methyl            Petroleum        Acceptable.....  OSHA standards exist
 Chloroform        Hydrocarbons.                     for many of these  
 Adhesives,                                          chemicals.         
 Coatings, and                                       Formulators should 
 Inks.                                               use chemicals with 
                                                     lowest toxicity,   
                                                     where possible.    
                  Oxygenated       Acceptable.....  OSHA standards exist
                   solvents                          for many of these  
                   (Alcohols,                        chemicals.         
                   Ketones,                          Formulators should 
                   Ethers, and                       use chemicals with 
                   Esters).                          lowest toxicity,   
                                                     where possible.    
                  Chlorinated      Acceptable       High inherent       
                   solvents                          toxicity. Use only 
                   (methylene                        when necessary.    
                   chloride,                         OSHA and RCRA      
                   trichloro-                        standards must be  
                   ethylene,                         met.               
                   perchloro-                                           
                   ethylene).                                           
                  Terpenes.......  Acceptable                           
                  Water-based      Acceptable                           
                   formulations.                                        
                  High-solid       Acceptable                           
                   formulations.                                        
                  Alternative      Acceptable       ....................
                   technologies                                         
                   (e.g., powder,                                       
                   hot melt,                                            
                   thermoplastic                                        
                   plasma spray,                                        
                   radiation-                                           
                   cured,                                               
                   moisture-                                            
                   cured,                                               
                   chemical-                                            
                   cured, and                                           
                   reactive                                             
                   liquid).                                             
------------------------------------------------------------------------


                      Adhesives, Coatings, and Inks                     
                           Pending Decisions                            
------------------------------------------------------------------------
     Application            Substitute                 Comments         
------------------------------------------------------------------------
Methyl Chloroform      Monochloro-toluene/    Agency has not completed  
 Adhesives, Coatings    benzo-trifluorides.    review of data.          
 and Inks.                                                              
------------------------------------------------------------------------

Appendix C to the Preamble

Data Confidentiality Claims

Data Confidentiality Claims

1. Special Requirements for Submitting Data to the Docket

    Data submissions must be provided in three copies. If information 
is claimed as confidential, all CBI must be deleted from the third copy 
which will become part of the public docket. If no claims of 
confidentiality are made for the submission, the third copy should be 
identical to the other two. When portions of the submission are claimed 
as CBI, the first two copies will include the CBI material as provided 
in section V of this notice, which shall be deleted from the third 
copy. For the third copy, the following special preparation is 
required:

--Remove the ``Supplemental Statement of Data Confidentiality Claims.''
--Excise from the body of the study any information you claim as 
confidential. Replace with generic information if it is available.
--Mark the third copy plainly on both its cover and its title page with 
the phrase ``Public Docket Material--contains no information claimed as 
confidential.''

2. Supplemental Statement of Data Confidentiality Claims

    For any portion of a submission that is claimed as confidential, 
the following information must be included within a Supplementary 
Statement of Data Confidentiality Claims:

--Identify specifically by page and line number(s) each portion of the 
study for which you claim confidentiality.
--Give the reasons why the cited passage qualifies for confidential 
treatment.
--Indicate the length of time--until a specific date or event, or 
permanently--for which the information should be treated as 
confidential.
--Identify the measures taken to guard against undesired disclosure of 
this information.
--Describe the extent to which the information has been disclosed, and 
what precautions have been taken in connection with these disclosures.
--Enclose copies of any determinations of confidentiality made by EPA, 
other Federal agencies, or courts concerning this information.
--If you assert that disclosure of this information would be likely to 
result in substantial harmful effects to you, describe those harmful 
effects and explain why they should be viewed as substantial.
--If you assert that the information is voluntarily submitted, indicate 
whether you believe disclosure of this information might tend to lessen 
the availability to EPA of similar information in the future, and if 
so, how.

If required substantiation is not provided along with the submission of 
information claimed as confidential, EPA may make the complete 
submitted information available to the public without further notice to 
the submitter.

List of Subjects

40 CFR Part 9

    Environmental protection, Reporting and recordkeeping requirements.

40 CFR Part 82

    Environmental protection, Administrative practice and procedure, 
Air pollution control, Reporting and recordkeeping requirements.

    Dated: February 15, 1994.
Carol M. Browner,
Administrator.
    For the reasons set out in the preamble, 40 CFR parts 9 and 82 are 
amended as follows:

PART 9--OMB APPROVALS UNDER THE PAPERWORK REDUCTION ACT

    1. The authority citation for part 9 continues to read as follows:

    Authority: 7 U.S.C. 135 et seq., 136-136y; 15 U.S.C. 2001, 2003, 
2005, 2006, 2601-2671; 21 U.S.C. 331j, 346a, 348; 31 U.S.C. 9701; 33 
U.S.C. 1251 et seq., 1311, 1313d, 1314, 1321, 1326, 1330, 1344, 1345 
(d) and (e), 1361; E.O. 11735, 38 FR 21243, 3 CFR, 1971-1975 Comp. 
p. 973; 42 U.S.C. 241, 242b, 243, 246, 300f, 300g, 300g-1, 300g-2, 
300g-3, 300g-4, 300g-5, 300g-6, 300j-1, 300j-2, 300j-3, 300j-4, 
300j-9, 1857 et seq., 6901-6992k, 7401-7671q, 7542, 9601-9657, 
11023, 11048.

    2. Section 9.1 is amended by adding the new entries to the table 
under the indicated heading to read as follows:


Sec. 9.1  OMB approvals under the Paperwork Reduction Act.

* * * * * 

------------------------------------------------------------------------
                                                             OMB control
                      40 CFR citation                            No.    
------------------------------------------------------------------------
                                                                        
                                                                        
                                  *****                                 
             Protection of Stratospheric Ozone                          
                                                                        
                                  *****                                 
82.176(a)..................................................    2060-0226
82.176(c)(3)...............................................    2060-0226
82.178.....................................................    2060-0226
82.180(a)(5)...............................................    2060-0226
82.180(b)(3)...............................................    2060-0226
82.184(c)..................................................    2060-0226
82.184(e)..................................................   2060-0226 
------------------------------------------------------------------------

* * * * *

PART 82--PROTECTION OF STRATOSPHERIC OZONE

    1. The authority citation for part 82 continues to read as follows:

    Authority: 42 U.S.C. 7414, 7601, 7671-7671q.

    2. Part 82 is amended by adding subpart G consisting of 
Secs. 82.170 through 82.184 to read as follows:

Subpart G--Significant New Alternatives Policy Program

Sec.
82.170  Purpose and scope.
82.172  Definitions.
82.174  Prohibitions.
82.176  Applicability.
82.178  Information required to be submitted.
82.180  Agency review of SNAP submissions.
82.182  Confidentiality of data.
82.184  Petitions.
    Appendix A to subpart G--Substitutes Subject to Use Restrictions 
and Unacceptable Substitutes

Subpart G--Significant New Alternatives Policy Program


Sec. 82.170  Purpose and scope.

    (a) The purpose of these regulations in this subpart is to 
implement section 612 of the Clean Air Act, as amended, regarding the 
safe alternatives policy on the acceptability of substitutes for ozone-
depleting compounds. This program will henceforth be referred to as the 
``Significant New Alternatives Policy'' (SNAP) program. The objectives 
of this program are to identify substitutes for ozone-depleting 
compounds, to evaluate the acceptability of those substitutes, to 
promote the use of those substitutes believed to present lower overall 
risks to human health and the environment, relative to the class I and 
class II compounds being replaced, as well as to other substitutes for 
the same end-use, and to prohibit the use of those substitutes found, 
based on the same comparisons, to increase overall risks.
    (b) The regulations in this subpart describe persons and 
substitutes subject to reporting requirements under the SNAP program 
and explain preparation and submission of notices and petitions on 
substitutes. The regulations also establish Agency procedures for 
reviewing and processing EPA's determinations regarding notices and 
petitions on substitutes. Finally, the regulations prohibit the use of 
alternatives which EPA has determined may have adverse effects on human 
health or the environment where EPA has identified alternatives in 
particular industrial use sectors that on an overall basis, reduce risk 
to human health and the environment and are currently or potentially 
available. EPA will only prohibit substitutes where it has identified 
other substitutes for a specific application that are acceptable and 
are currently or potentially available.
    (c) Notifications, petitions and other materials requested shall be 
sent to: SNAP Document Control Officer, U.S. Environmental Protection 
Agency (6205-J), 401 M Street, SW., Washington, DC 20460.


Sec. 82.172  Definitions.

    Act means the Clean Air Act, as amended, 42 U.S.C. 7401 et seq.
    Agency means the U.S. Environmental Protection Agency.
    Application means a specific use within a major industrial sector 
end-use.
    Class I or class II means the specific ozone-depleting compounds 
described in section 602 of the Act.
    Decision means any final determination made by the Agency under 
section 612 of the Act on the acceptability or unacceptability of a 
substitute for a class I or II compound.
    EPA means the U.S. Environmental Protection Agency.
    End-use means processes or classes of specific applications within 
major industrial sectors where a substitute is used to replace an 
ozone-depleting substance.
    Formulator means any person engaged in the preparation or 
formulation of a substitute, after chemical manufacture of the 
substitute or its components, for distribution or use in commerce.
    Health and safety study or study means any study of any effect of a 
substitute or its components on health and safety, or the environment 
or both, including underlying data and epidemiological studies, studies 
of occupational, ambient, and consumer exposure to a substitute, 
toxicological, clinical, and ecological, or other studies of a 
substitute and its components, and any other pertinent test. Chemical 
identity is always part of a health and safety study. Information which 
arises as a result of a formal, disciplined study is included in the 
definition. Also included is information relating to the effects of a 
substitute or its components on health or the environment. Any 
available data that bear on the effects of a substitute or its 
components on health or the environment would be included. Examples 
include:
    (1) Long- and short-term tests of mutagenicity, carcinogenicity, or 
teratogenicity; data on behavioral disorders; dermatoxicity; 
pharmacological effects; mammalian absorption, distribution, 
metabolism, and excretion; cumulative, additive, and synergistic 
effects; acute, subchronic, and chronic effects; and structure/activity 
analyses;
    (2) Tests for ecological or other environmental effects on 
invertebrates, fish, or other animals, and plants, including: Acute 
toxicity tests, chronic toxicity tests, critical life stage tests, 
behavioral tests, algal growth tests, seed germination tests, microbial 
function tests, bioconcentration or bioaccumulation tests, and model 
ecosystem (microcosm) studies;
    (3) Assessments of human and environmental exposure, including 
workplace exposure, and effects of a particular substitute on the 
environment, including surveys, tests, and studies of: Biological, 
photochemical, and chemical degradation; air, water and soil transport; 
biomagnification and bioconcentration; and chemical and physical 
properties, e.g., atmospheric lifetime, boiling point, vapor pressure, 
evaporation rates from soil and water, octanol/water partition 
coefficient, and water solubility;
    (4) Monitoring data, when they have been aggregated and analyzed to 
measure the exposure of humans or the environment to a substitute; and
    (5) Any assessments of risk to health or the environment resulting 
from the manufacture, processing, distribution in commerce, use, or 
disposal of the substitute or its components.
    Importer means any person who imports a chemical substitute into 
the United States. Importer includes the person primarily liable for 
the payment of any duties on the merchandise or an authorized agent 
acting on his or her behalf. The term also includes, as appropriate:
    (1) The consignee;
    (2) The importer of record;
    (3) The actual owner; and
    (4) The transferee, if the right to draw merchandise in a bonded 
warehouse has been transferred.
    Major Industrial Use Sector or Sector means an industrial category 
which EPA has reviewed under the SNAP program with historically high 
consumption patterns of ozone-depleting substances, including: 
Refrigeration and air conditioning; foam-blowing; fire suppression and 
explosion protection; solvents cleaning; aerosols; sterilants; tobacco 
expansion; pesticides; and adhesives, coatings and inks sectors.
    Manufacturer means any person engaged in the direct manufacture of 
a substitute.
    Mixture means any mixture or blend of two or more compounds.
    Person includes an individual, corporation, partnership, 
association, state, municipality, political subdivision of a state, and 
any agency, department, or instrumentality of the United States and any 
officer, agent, or employee of such entities.
    Pesticide has the meaning contained in the Federal Insecticide, 
Fungicide, and Rodenticide Act, 7 U.S.C. 136 et seq. and the 
regulations issued under it.
    Potentially available is defined as any alternative for which 
adequate health, safety, and environmental data, as required for the 
SNAP notification process, exist to make a determination of 
acceptability, and which the Agency reasonably believes to be 
technically feasible, even if not all testing has yet been completed 
and the alternative is not yet produced or sold.
    Premanufacture Notice (PMN) Program has the meaning described in 40 
CFR part 720, subpart A promulgated under the Toxic Substances Control 
Act, 15 U.S.C. 2601 et seq.
    Producer means any person who manufactures, formulates or otherwise 
creates a substitute in its final form for distribution or use in 
interstate commerce.
    Research and development means quantities of a substitute 
manufactured, imported, or processed or proposed to be manufactured, 
imported, or processed solely for research and development.
    Residential use means use by a private individual of a chemical 
substance or any product containing the chemical substance in or around 
a permanent or temporary household, during recreation, or for any 
personal use or enjoyment. Use within a household for commercial or 
medical applications is not included in this definition, nor is use in 
automobiles, watercraft, or aircraft.
    Significant new use means use of a new or existing substitute in a 
major industrial use sector as a result of the phaseout of ozone-
depleting compounds.
    Small uses means any use of a substitute in a sector other than a 
major industrial use sector, or production by any producer for use of a 
substitute in a major industrial sector of 10,000 lbs. or less per 
year.
    Substitute or alternative means any chemical, product substitute, 
or alternative manufacturing process, whether existing or new, intended 
for use as a replacement for a class I or II compound.
    Test marketing means the distribution in interstate commerce of a 
substitute to no more than a limited, defined number of potential 
customers to explore market viability in a competitive situation. 
Testing must be restricted to a defined testing period before the 
broader distribution of that substitute in interstate commerce.
    Use means any use of a substitute for a Class I or Class II ozone-
depleting compound, including but not limited to use in a manufacturing 
process or product, in consumption by the end-user, or in intermediate 
uses, such as formulation or packaging for other subsequent uses.
    Use Restrictions means restrictions on the use of a substitute 
imposing either conditions on how the substitute can be used across a 
sector end-use or limits on the end-uses or specific applications where 
it can be used within a sector.


Sec. 82.174  Prohibitions.

    (a) No person may introduce a new substitute into interstate 
commerce before the expiration of 90 days after a notice is initially 
submitted to EPA under Sec. 82.176(a).
    (b) No person may use a substitute which a person knows or has 
reason to know was manufactured, processed or imported in violation of 
the regulations in this subpart, or knows or has reason to know was 
manufactured, processed or imported in violation of any use restriction 
in the acceptability determination, after the effective date of any 
rulemaking imposing such restrictions.
    (c) No person may use a substitute without adhering to any use 
restrictions set by the acceptability decision, after the effective 
date of any rulemaking imposing such restrictions.
    (d) No person may use a substitute after the effective date of any 
rulemaking adding such substitute to the list of unacceptable 
substitutes.


Sec. 82.176  Applicability.

    (a) Any producer of a new substitute must submit a notice of intent 
to introduce a substitute into interstate commerce 90 days prior to 
such introduction. Any producer of an existing substitute already in 
interstate commerce must submit a notice as of July 18, 1994 if such 
substitute has not already been reviewed and approved by the Agency.
    (b) With respect to the following substitutes, producers are exempt 
from notification requirements: (1) Substitutes already listed as 
acceptable. Producers need not submit notices on substitutes that are 
already listed as acceptable under SNAP.
    (2) Small sectors. Persons using substitutes in sectors other than 
the nine principal sectors reviewed under this program are exempt from 
the notification requirements. This exemption shall not be construed to 
nullify an unacceptability determination or to allow use of an 
otherwise unacceptable substitute.
    (3) Small volume use within SNAP sectors. Within the nine principal 
SNAP sectors, persons introducing a substitute whose expected volume of 
use amounts to less than 10,000 lbs. per year within a SNAP sector are 
exempt from notification requirements. This exemption shall not be 
construed to allow use of an otherwise unacceptable substitute in any 
quantity. Persons taking advantage of this exemption for small uses 
must maintain documentation for each substitute describing how the 
substitute meets this small use definition. This documentation must 
include annual production and sales information by sector.
    (4) Research and development. Production of substitutes for the 
sole purpose of research and development is exempt from reporting 
requirements.
    (5) Test marketing. Use of substitutes for the sole purpose of test 
marketing is exempt from SNAP notification requirements until 90 days 
prior to the introduction of such substitutes for full-scale commercial 
sale in interstate commerce. Persons taking advantage of this exemption 
are, however, required to notify the Agency in writing that they are 
conducting test marketing 30 days prior to the commencement of such 
marketing. Notification shall include the name of the substitute, the 
volume used in the test marketing, intended sector end-uses, and 
expected duration of the test marketing period.
    (6) Formulation changes. In cases where replacement of class I or 
II compounds causes formulators to change other components in a 
product, formulators are exempt from reporting with respect to these 
auxiliary formulation changes. However, the SNAP submitter is required 
to notify the Agency if such changes are expected to significantly 
increase the environmental and human health risk associated with the 
use of any class I or class II substitute.
    (7) Substitutes used as feedstocks. Producers of substitutes used 
as feedstocks which are largely or entirely consumed, transformed or 
destroyed in the manufacturing or use process are exempt from reporting 
requirements concerning such substitutes.
    (c) Use of a substitute in the possession of an end-user as of 
March 18, 1994 listed as unacceptable or acceptable subject to narrowed 
use limits may continue until the individual end-users' existing 
supply, as of that date, of the substitute is exhausted. Use of 
substitutes purchased after March 18, 1994 is not permitted subsequent 
to April 18, 1994.


Sec. 82.178  Information required to be submitted.

    (a) Persons whose substitutes are subject to reporting requirements 
pursuant to Sec. 82.176 must provide the following information:
    (1) Name and description of the substitute. The substitute should 
be identified by its: Chemical name; trade name(s); identification 
numbers; chemical formula; and chemical structure.
    (2) Physical and chemical information. The substitute should be 
characterized by its key properties including but not limited to: 
Molecular weight; physical state; melting point; boiling point; 
density; taste and/or odor threshold; solubility; partition 
coefficients (Log Kow, Log Koc); atmospheric lifetime and 
vapor pressure.
    (3) Substitute applications. Identification of the applications 
within each sector end-use in which the substitutes are likely to be 
used.
    (4) Process description. For each application identified, 
descriptive data on processing, including in-place pollution controls.
    (5) Ozone depletion potential. The predicted 100-year ozone 
depletion potential (ODP) of substitute chemicals. The submitter must 
also provide supporting documentation or references.
    (6) Global warming impacts. Data on the total global warming 
potential of the substitute, including information on the GWP index and 
the indirect contributions to global warming caused by the production 
or use of the substitute (e.g., changes in energy efficiency). GWP must 
be calculated over a 100, 500 and 1000-year integrated time horizon.
    (7) Toxicity data. Health and safety studies on the effects of a 
substitute, its components, its impurities, and its degradation 
products on any organism (e.g., humans, mammals, fish, wildlife, and 
plants). For tests on mammals, the Agency requires a minimum submission 
of the following tests to characterize substitute risks: A range-
finding study that considers the appropriate exposure pathway for the 
specific use (e.g., oral ingestion, inhalation, etc.), and a 90-day 
subchronic repeated dose study in an appropriate rodent species. For 
certain substitutes, a cardiotoxicity study is also required. 
Additional mammalian toxicity tests may be identified based on the 
substitute and application in question. To sufficiently characterize 
aquatic toxicity concerns, both acute and chronic toxicity data for a 
variety of species are required. For this purpose, the Agency requires 
a minimum data set as described in ``Guidelines for Deriving Numerical 
National Water Quality Criteria for the Protection of Aquatic Organisms 
and their Uses,'' which is available through the National Technical 
Information Service (#PB 85-227049). Other relevant information and 
data summaries, such as the Material Safety Data Sheets (MSDS), should 
also be submitted. To assist in locating any studies previously 
submitted to EPA and referred to, but not included in a SNAP 
submission, the submitter must provide citations for the date, type of 
submission, and EPA Office to which they were submitted, to help EPA 
locate these quickly.
    (8) Environmental Fate and Transport. Where available, information 
must be submitted on the environmental fate and transport of 
substitutes. Such data shall include information on bioaccumulation, 
biodegradation, adsorption, volatility, transformation, and other data 
necessary to characterize movement and reaction of substitutes in the 
environment.
    (9) Flammability. Data on the flammability of a substitute chemical 
or mixture are required. Specifically, the flash point and flammability 
limits are needed, as well as information on the procedures used for 
determining the flammability limits. Testing of blends should identify 
the compositions for which the blend itself is flammable and include 
fractionation data on changes in the composition of the blend during 
various leak scenarios. For substitutes that will be used in consumer 
applications, documentation of testing results conducted by independent 
laboratories should be submitted, where available. If a substitute is 
flammable, the submitter must analyze the risk of fire resulting from 
the use of such a substitute and assess the effectiveness of measures 
to minimize such risk.
    (10) Exposure data. Available modeling or monitoring data on 
exposures associated with the manufacture, formulation, transport, use 
and disposal of a substitute. Descriptive process information for each 
substitute application, as described above, will be used to develop 
exposure estimates where exposure data are not readily available. 
Depending on the application, exposure profiles may be needed for 
workers, consumers, and the general population.
    (11) Environmental release data. Data on emissions from the 
substitute application and equipment, as well as on pollutant releases 
or discharge to all environmental media. Submitters should provide 
information on release locations, and data on the quantities, including 
volume, of anticipated waste associated with the use of the substitute. 
In addition, information on anticipated waste management practices 
associated with the use of the substitute. Any available information on 
any pollution controls used or that could be used in association with 
the substitute (e.g., emissions reduction technologies, wastewater 
treatment, treatment of hazardous waste) and the costs of such 
technology must also be submitted.
    (12) Replacement ratio for a chemical substitute. Information on 
the replacement ratio for a chemical substitute versus the class I or 
II substances being replaced. The term ``replacement ratio'' means how 
much of a substitute must be used to replace a given quantity of the 
class I or II substance being replaced.
    (13) Required changes in use technology. Detail on the changes in 
technology needed to use the alternative. Such information should 
include a description of whether the substitute can be used in existing 
equipment--with or without some retrofit--or only in new equipment. 
Data on the cost (capital and operating expenditures) and estimated 
life of any technology modifications should also be submitted.
    (14) Cost of substitute. Data on the expected average cost of the 
alternative. In addition, information is needed on the expected 
equipment lifetime for an alternative technology. Other critical cost 
considerations should be identified, as appropriate.
    (15) Availability of substitute. If the substitute is not currently 
available, the timing of availability of a substitute should be 
provided.
    (16) Anticipated market share. Data on the anticipated near-term 
and long-term nationwide substitute sales.
    (17) Applicable regulations under other environmental statutes. 
Information on whether the substitute is regulated under other 
statutory authorities, in particular the Clean Water Act, Safe Drinking 
Water Act, the Resource Conservation and Recovery Act, the Federal 
Insecticide, Fungicide, and Rodenticide Act, the Toxic Substances 
Control Act, the Comprehensive Environmental Response, Compensation and 
Liability Act, the Emergency Planning and Community Right-to-Know Act, 
or other titles under the Clean Air Act.
    (18) Information already submitted to the Agency. Information 
requested in the SNAP program notice that has been previously submitted 
to the Agency as part of past regulatory and information-gathering 
activities may be referenced rather than resubmitted. Submitters who 
cannot provide accurate references to data sent previously to the 
Agency should include all requested information in the SNAP notice.
    (19) Information already available in the literature. If any of the 
data needed to complete the SNAP program notice are available in the 
public literature, complete references for such information should be 
provided.
    (b) The Significant New Alternatives Policy (SNAP) Information 
Notice is designed to provide the Agency with the information necessary 
to reach a decision on the acceptability of a substitute. (1) 
Submitters requesting review under the SNAP program should send the 
completed SNAP notice to: SNAP Document Control Officer, U.S. 
Environmental Protection Agency (6205-J), 401 M Street, SW., 
Washington, DC 20460.
    (2) Submitters filing jointly under SNAP and the Premanufacture 
Notice Program (PMN) should send the SNAP addendum along with the PMN 
form to: PMN Document Control Officer, U.S. Environmental Protection 
Agency (7407), 401 M Street, SW., Washington, DC 20460. Submitters must 
also send both documents to the SNAP program, with a reference to 
indicate the notice has been furnished to the Agency under the PMN 
program. Submitters providing information on new chemicals for joint 
review under the TSCA and SNAP programs may be required to supply 
additional toxicity data under TSCA section 5.
    (3) Submitters filing jointly under SNAP and under the Federal 
Insecticide, Fungicide, and Rodenticide Act should send the SNAP form 
to the Office of Pesticide Programs, Registration Division, (7505C) 401 
M Street, SW., Washington, DC, 20460, as well as to the SNAP Document 
Control Officer.


Sec. 82.180  Agency review of SNAP submissions.

    (a) Processing of SNAP notices. (1) 90-day review process. The 90-
day review process will begin once EPA receives a submission and 
determines that such submission includes data on the substitute that 
are complete and adequate, as described in Sec. 82.178. The Agency may 
suspend or extend the review period to allow for submission of 
additional data needed to complete the review of the notice.
    (2) Initial review of notice. The SNAP Document Control Officer 
will review the notice to ensure that basic information necessary to 
process the submission is present (i.e., name of company, 
identification of substitute, etc.). The SNAP Document Control Officer 
will also review substantiation of any claim of confidentiality.
    (3) Determination of data adequacy. Upon receipt of the SNAP 
submission, the Agency will review the completeness of the information 
supporting the application. If additional data are needed, the 
submitter will be contacted following completion of this review. The 
90-day review period will not commence until EPA has received data it 
judges adequate to support analysis of the submission.
    (4) Letter of receipt. The SNAP Document Control Officer will send 
a letter of receipt to the submitter to confirm the date of 
notification and the beginning of EPA's 90-day review period. The SNAP 
Document Control Officer will also assign the SNAP notice a tracking 
number, which will be identified in the letter of receipt.
    (5) Availability of new information during review period. If 
critical new information becomes available during the review period 
that may influence the Agency's evaluation of a substitute, the 
submitter must notify the Agency about the existence of such 
information within 10 days of learning of such data. The submitter must 
also inform the Agency of new studies underway, even if the results 
will not be available within the 90-day review period. The Agency may 
contact the submitter to explore extending or suspending the review 
period depending on the type of information received and the stage of 
review.
    (6) Completion of detailed review. Once the initial data review, 
described in paragraphs (a)(2) and (3) of this section, has been 
completed, the Agency will complete a detailed evaluation of the 
notice. If during any time the Agency perceives a lack of information 
necessary to reach a SNAP determination, it will contact the submitter 
and request the missing data.
    (7) Criteria for review. To determine whether a substitute is 
acceptable or unacceptable as a replacement for class I or II 
compounds, the Agency will evaluate:
    (i) Atmospheric effects and related health and environmental 
impacts;
    (ii) General population risks from ambient exposure to compounds 
with direct toxicity and to increased ground-level ozone;
    (iii) Ecosystem risks;
    (iv) Occupational risks;
    (v) Consumer risks;
    (vi) Flammability; and
    (vii) Cost and availability of the substitute.
    (8) Communication of decision. (i) Communication of decision to the 
submitter. Once the SNAP program review has been completed, the Agency 
will notify the submitter in writing of the decision. Sale or 
manufacture of new substitutes may commence after the initial 90-day 
notification period expires even if the Agency fails to reach a 
decision within the 90-day review period or fails to communicate that 
decision or the need for additional data to the submitter. Sale or 
manufacture of existing substitutes may continue throughout the 
Agency's 90-day review.
    (ii) Communication of Decision to the Public. The Agency will 
publish in the Federal Register on a quarterly basis a complete list of 
the acceptable and unacceptable alternatives that have been reviewed to 
date. In the case of substitutes proposed as acceptable with use 
restrictions, proposed as unacceptable or proposed for removal from 
either list, a rulemaking process will ensue. Upon completion of such 
rulemaking, EPA will publish revised lists of substitutes acceptable 
subject to use conditions or narrowed use limits and unacceptable 
substitutes to be incorporated into the Code of Federal Regulations. 
(See appendix A of this subpart.)
    (b) Types of listing decisions. When reviewing substitutes, the 
Agency will list substitutes in one of five categories:
    (1) Acceptable. Where the Agency has reviewed a substitute and 
found no reason to prohibit its use, it will list the alternative as 
acceptable for the end-uses listed in the notice.
    (2) Acceptable subject to use conditions. After reviewing a notice, 
the Agency may make a determination that a substitute is acceptable 
only if conditions of use are met to minimize risks to human health and 
the environment. Where users intending to adopt a substitute acceptable 
subject to use conditions must make reasonable efforts to ascertain 
that other alternatives are not feasible due to safety, performance or 
technical reasons, documentation of this assessment must be retained on 
file for the purpose of demonstrating compliance. This documentation 
shall include descriptions of substitutes examined and rejected, 
processes or products in which the substitute is needed, reason for 
rejection of other alternatives, e.g., performance, technical or safety 
standards. Use of such substitutes in ways that are inconsistent with 
such use conditions renders them unacceptable.
    (3) Acceptable subject to narrowed use limits. Even though the 
Agency can restrict the use of a substitute based on the potential for 
adverse effects, it may be necessary to permit a narrowed range of use 
within a sector end-use because of the lack of alternatives for 
specialized applications. Users intending to adopt a substitute 
acceptable with narrowed use limits must ascertain that other 
alternatives are not technically feasible. Companies must document the 
results of their evaluation, and retain the results on file for the 
purpose of demonstrating compliance. This documentation shall include 
descriptions of substitutes examined and rejected, processes or 
products in which the substitute is needed, reason for rejection of 
other alternatives, e.g., performance, technical or safety standards, 
and the anticipated date other substitutes will be available and 
projected time for switching to other available substitutes. Use of 
such substitutes in applications and end-uses which are not specified 
as acceptable in the narrowed use limit renders them unacceptable.
    (4) Unacceptable. This designation will apply to substitutes where 
the Agency's review indicates that the substitute poses risk of adverse 
effects to human health and the environment and that other alternatives 
exist that reduce overall risk.
    (5) Pending. Submissions for which the Agency has not reached a 
determination will be described as pending. For all substitutes in this 
category, the Agency will work with the submitter to obtain any missing 
information and to determine a schedule for providing the missing 
information if the Agency wishes to extend the 90-day review period. 
EPA will use the authority under section 114 of the Clean Air Act to 
gather this information, if necessary. In some instances, the Agency 
may also explore using additional statutory provisions (e.g., section 5 
of TSCA) to collect the needed data.
    (c) Joint processing under SNAP and TSCA. The Agency will 
coordinate reviews of substitutes submitted for evaluation under both 
the TSCA PMN program and the CAA.
    (d) Joint processing under SNAP and FIFRA. The Agency will 
coordinate reviews of substitutes submitted for evaluation under both 
FIFRA and the CAA.


Sec. 82.182  Confidentiality of data.

    (a) Clean Air Act provisions. Anyone submitting information must 
assert a claim of confidentiality at the time of submission for any 
data they wish to have treated as confidential business information 
(CBI) under 40 CFR part 2, subpart B. Failure to assert a claim of 
confidentiality at the time of submission may result in disclosure of 
the information by the Agency without further notice to the submitter. 
The submitter should also be aware that under section 114(c), emissions 
data may not be claimed as confidential.
    (b) Substantiation of confidentiality claims. At the time of 
submission, EPA requires substantiation of any confidentiality claims 
made. Failure to provide any substantiation may result in disclosure of 
information without further notice by the Agency. All submissions must 
include adequate substantiation in order for an acceptability 
determination on a substitute to be published. Moreover, under 40 CFR 
part 2, subpart B, there are further instances in which confidentiality 
assertions may later be reviewed even when confidentiality claims are 
initially received. The submitter will also be contacted as part of 
such an evaluation process.
    (c) Confidentiality provisions for toxicity data. In the event that 
toxicity or health and safety studies are listed as confidential, this 
information cannot be maintained as confidential where such data are 
also submitted under TSCA or FIFRA, to the extent that confidential 
treatment is prohibited under those statutes. However, information 
contained in a toxicity study that is not health and safety data and is 
not relevant to the effects of a substance on human health and the 
environment (e.g., discussion of process information, proprietary 
blends) can be maintained as confidential subject to 40 CFR part 2, 
subpart B.
    (d) Joint submissions under other statutes. Information submitted 
as part of a joint submission to either SNAP/TSCA or SNAP/FIFRA must 
adhere to the security provisions of the program offices implementing 
these statutes. For such submissions, the SNAP handling of such notices 
will follow the security provisions under these statutes.


Sec. 82.184  Petitions.

    (a) Who may petition. Any person may petition the Agency to amend 
existing listing decisions under the SNAP program, or to add a new 
substance to any of the SNAP lists.
    (b) Types of petitions. Five types of petitions exist: (1) 
Petitions to add a substitute not previously reviewed under the SNAP 
program to the acceptable list. This type of petition is comparable to 
the 90-day notifications, except that it would generally be initiated 
by entities other than the companies that manufacture, formulate, or 
otherwise use the substitute. Companies that manufacture, formulate, or 
use substitutes that want to have their substitutes added to the 
acceptable list should submit information on the substitute under the 
90-day review program;
    (2) Petitions to add a substitute not previously reviewed under the 
SNAP program to the unacceptable list;
    (3) Petitions to delete a substitute from the acceptable list and 
add it to the unacceptable list or to delete a substitute from the 
unacceptable and add it to the acceptable list;
    (4) Petitions to add or delete use restrictions on an acceptability 
listing.
    (5) Petitions to grandfather use of a substitute listed as 
unacceptable or acceptable subject to use restrictions.
    (c) Content of the petition. The Agency requires that the 
petitioner submit information on the type of action requested and the 
rationale for the petition. Petitions in paragraphs (b)(1) and (2) of 
this section must contain the information described in Sec. 82.178, 
which lists the items to be submitted in a 90-day notification. For 
petitions that request the re-examination of a substitute previously 
reviewed under the SNAP program, the submitter must also reference the 
prior submittal or existing listing. Petitions to grandfather use of an 
unacceptable substitute must describe the applicability of the test to 
judge the appropriateness of Agency grandfathering as established by 
the United States District Court for the District of Columbia Circuit 
(see Sierra Club v. EPA, 719 F.2d 436 (D.C. Cir. 1983)). This test 
includes whether the new rule represents an abrupt departure from 
previously established practice, the extent to which a party relied on 
the previous rule, the degree of burden which application of the new 
rule would impose on the party, and the statutory interest in applying 
the new rule immediately.
    (d) Petition process. (1) Notification of Affected Companies. If 
the petition concerns a substitute previously either approved or 
restricted under the SNAP program, the Agency will contact the original 
submitter of that substitute.
    (2) Review for data adequacy. The Agency will review the petition 
for adequacy of data. As with a 90-day notice, the Agency may suspend 
review until the petitioner submits the information necessary to 
evaluate the petition. To reach a timely decision on substitutes, EPA 
may use collection authorities such as those contained in section 114 
of the Clean Air Act as amended, as well as information collection 
provisions of other environmental statutes.
    (3) Review procedures. To evaluate the petition, the Agency may 
submit the petition for review to appropriate experts inside and 
outside the Agency.
    (4) Timing of determinations. If data are adequate, as described in 
Sec. 82.180, the Agency will respond to the petition within 90 days of 
receiving a complete petition. If the petition is inadequately 
supported, the Agency will query the petitioner to fill any data gaps 
before the 90-day review period begins, or may deny the petition 
because data are inadequate.
    (5) Rulemaking procedures. EPA will initiate rulemaking whenever 
EPA grants a petition to add a substance to the list of unacceptable 
substitutes, remove a substance from any list, or change or create an 
acceptable listing by imposing or deleting use conditions or use 
limits.
    (6) Communication of decision. The Agency will inform petitioners 
within 90 days of receiving a complete petition whether their request 
has been granted or denied. If a petition is denied, the Agency will 
publish in the Federal Register an explanation of the determination. If 
a petition is granted, the Agency will publish the revised SNAP list 
incorporating the final petition decision within 6 months of reaching a 
determination or in the next scheduled update, if sooner, provided any 
required rulemaking has been completed within the shorter period.

Appendix A to Subpart G--Substitutes Subject to Use Restrictions 
and Unacceptable Substitutes

                                                  Refrigerants                                                  
                                            Unacceptable Substitutes                                            
----------------------------------------------------------------------------------------------------------------
           End-use                     Substitute                Decision                   Comments            
----------------------------------------------------------------------------------------------------------------
CFC-11 centrifugal chillers   HCFC-141b...................  Unacceptable......  Has a high ODP relative to other
 (retrofit).                                                                     alternatives.                  
CFC-12 centrifugal chillers   HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 (retrofit).                                                                     Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 used safely in this end-use.   
CFC-11, CFC-12, CFC-113, CFC- HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 114, R-500 centrifugal                                                          Class II substances, it has a  
 chillers (new equipment/                                                        higher ODP than use of Class II
 NIKs).                                                                          substances.                    
                              Hydrocabon blend A..........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
                              HCFC-141b...................  Unacceptable......  Has a high ODP relative to other
                                                                                 alternatives.                  
CFC-12 reciprocating          HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 chillers (retrofit).                                                            Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12 reciprocating          HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 chillers (new equipment/                                                        Class II substances, it has a  
 NIKs).                                                                          higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-11, CFC-12, R-502         HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 industrial process                                                              Class II substances, it has a  
 refrigeration (retrofit).                                                       higher ODP than use of Class II
                                                                                 substances.                    
CFC-11, CFC-12, R-502         HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 industrial process                                                              Class II substances, it has a  
 refrigeration (new                                                              higher ODP than use of Class II
 equipment/NIKs).                                                                substances.                    
CFC-12, R-502 ice skating     HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 rinks (retrofit).                                                               Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12, R-502 ice skating     HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 rinks (new equipment/NIKs).                                                     Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12, R-502 cold storage    HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 warehouses (retrofit).                                                          Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12, R-502 cold storage    HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 warehouses (new equipment/                                                      Class II substances, it has a  
 NIKs).                                                                          higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12, R-500, R-502          HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 refrigerated transport                                                          Class II substances, it has a  
 (retrofit).                                                                     higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12, R-500, R-502          HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 refrigerated transport (new                                                     Class II substances, it has a  
 equipment/NIKs).                                                                higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12, R-502 retail food     HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 refrigeration (retrofit).                                                       Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12, R-502 retail food     HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 refrigeration (new                                                              Class II substances, it has a  
 equipment/NIKs).                                                                higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12, R-502 commercial ice  HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 machines (retrofit).                                                            Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12, R-502 commercial ice  HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 machines (new equipment/                                                        Class II substances, it has a  
 NIKs).                                                                          higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12 vending machines       HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 (retrofit).                                                                     Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFC-12 vending machines (new  HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 equipment/NIKs).                                                                Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFR-12, water coolers         HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 (retrofit).                                                                     Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFR-12, water coolers (New    HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 equipment/NIKs).                                                                Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFR-12, household             HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 refrigerators (retrofit).                                                       Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFR-12, household             HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 refrigerators (new                                                              Class II substances, it has a  
 equipment/NIKs).                                                                higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFR-12, R-502 household       HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 freezers (retrofit).                                                            Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFR-12, 502 household         HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 freezers (new equipment/                                                        Class II substances, it has a  
 NIKs).                                                                          higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFR-12, R-500 residential     HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 dehumidifiers (retrofit).                                                       Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFR-12, R-500 residential     HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 dehumidifiers (new                                                              Class II substances, it has a  
 equipment/NIKs).                                                                higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFR-12, motor vehicle air     HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 conditioners (retrofit).                                                        Class II substances, it has a  
                                                                                 higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be used safely in this end-use.
CFR-12, motor vehicle air     HCFC-22/HFC-142b/CFC-12.....  Unacceptable......  As a blend of both Class I and  
 conditioners (new equipment/                                                    Class II substances, it has a  
 NIKs).                                                                          higher ODP than use of Class II
                                                                                 substances.                    
                              Hydrocarbon blend A.........  Unacceptable......  Flammability is a serious       
                                                                                 concern. Data have not been    
                                                                                 submitted to demonstrate it can
                                                                                 be sued safely in this end-use.
----------------------------------------------------------------------------------------------------------------


                                                      Foams                                                     
                                            Unacceptable Substitutes                                            
----------------------------------------------------------------------------------------------------------------
          End-use                     Substitute                Decision                    Comments            
----------------------------------------------------------------------------------------------------------------
CFC-11 Polyolefin..........  HCFC-141b (or blends         Unacceptable........  HCFC-141b has an ODP of 0.11,   
                              thereof).                                          almost equivalent to that of   
                                                                                 methyl chloroform, a Class I   
                                                                                 substance. The Agency believes 
                                                                                 that non-ODP alternatives are  
                                                                                 sufficiently available to      
                                                                                 render the use of HCFC-141b    
                                                                                 unnecessary in polyolefin      
                                                                                 foams.                         
----------------------------------------------------------------------------------------------------------------


         Substitutes Acceptable Subject to Narrowed Use Limits          
------------------------------------------------------------------------
     End-use        Substitute         Decision           Comments      
------------------------------------------------------------------------
Electronics       Perfluoro-       Acceptable for   The principal       
 cleaning w/CFC-   carbons          high-            environmental      
 113, MCF.         (C5F12, C6F12,   performance,     characteristic of  
                   C6F14, C7F16,    precision-       concern for PFCs is
                   C8F18,           engineered       that they have long
                   C5F11NO,         applications     atmospheric        
                   C6F13NO,         only where       lifetimes and high 
                   C7F15NO, and     reasonable       global warming     
                   C8F16).          efforts have     potentials.        
                                    been made to     Although actual    
                                    ascertain that   contributions to   
                                    other            global warming     
                                    alternatives     depend upon the    
                                    are not          quantities of PFCs 
                                    technically      emitted, the       
                                    feasible due     effects are for    
                                    to performance   practical purposes 
                                    or safety        irreversible.      
                                    requirements.   Users must observe  
                                                     this limitation on 
                                                     PFC acceptability  
                                                     by conducting a    
                                                     reasonable         
                                                     evaluation of other
                                                     substitutes to     
                                                     determine that PFC 
                                                     use is necessary to
                                                     meet performance or
                                                     safety             
                                                     requirements.      
                                                     Documentation of   
                                                     this evaluation    
                                                     must be kept on    
                                                     file.              
                                                    For additional      
                                                     guidance regarding 
                                                     applications in    
                                                     which PFCs may be  
                                                     appropriate, users 
                                                     should consult the 
                                                     Preamble for this  
                                                     rulemaking.        
Precision         Perfluoro-       Acceptable for   The principal       
 cleaning w/CFC-   carbons          high-            environmental      
 113, MCF.         (C5F12, C6F12,   performance,     characteristic of  
                   C6F14, C7F16,    precision-       concern for PFCs is
                   C8F18,           engineered       that they have long
                   C5F11NO,         applications     atmospheric        
                   C6F13NO,         only where       lifetimes and high 
                   C7F15NO, and     reasonable       global warming     
                   C8F16).          efforts have     potentials.        
                                    been made to     Although actual    
                                    ascertain that   contributions to   
                                    other            global warming     
                                    alternatives     depend upon the    
                                    are not          quantities of PFCs 
                                    technically      emitted, the       
                                    feasible due     effects are for    
                                    to performance   practical purposes 
                                    or safety        irreversible.      
                                    requirements.   Users must observe  
                                                     this limitation on 
                                                     PFC acceptability  
                                                     by conducting a    
                                                     reasonable         
                                                     evaluation of other
                                                     substitutes to     
                                                     determine that PFC 
                                                     use is necessary to
                                                     meet performance or
                                                     safety             
                                                     requirements.      
                                                     Documentation of   
                                                     this evaluation    
                                                     must be kept on    
                                                     file.              
                                                    For additional      
                                                     guidance regarding 
                                                     applications in    
                                                     which PFCs may be  
                                                     appropriate, users 
                                                     should consult the 
                                                     Preamble for this  
                                                     rulemaking.        
------------------------------------------------------------------------


                                            Unacceptable Substitutes                                            
----------------------------------------------------------------------------------------------------------------
          End-use                    Substitute                 Decision                    Comments            
----------------------------------------------------------------------------------------------------------------
Metals cleaning w/CFC-113..  HCFC 141b and its blends...  Unacceptable........  High ODP; other alternatives    
                                                                                 exist. Effective date: As of 30
                                                                                 days after final rule for uses 
                                                                                 in new equipment (including    
                                                                                 retrofits made after the       
                                                                                 effective date); as of January 
                                                                                 1, 1996 for uses in existing   
                                                                                 equipment. EPA will grant, if  
                                                                                 necessary, narrowed use        
                                                                                 acceptability listings for CFC-
                                                                                 113 past the effective date of 
                                                                                 the prohibition.               
Metals cleaning w/MCF......  HCFC 141b and its blends...  Unacceptable........  High ODP; other alternatives    
                                                                                 exist. Effective date: As of 30
                                                                                 days after final rule for uses 
                                                                                 in new equipment (including    
                                                                                 retrofits made after the       
                                                                                 effective date); as of January 
                                                                                 1, 1996 for uses in existing   
                                                                                 equipment.                     
Electronics cleaning w/CFC-  HCFC 141b and its blends...  Unacceptable........  High ODP; other alternatives    
 113.                                                                            exist. Effective date: As of 30
                                                                                 days after final rule for uses 
                                                                                 in new equipment (including    
                                                                                 retrofits made after the       
                                                                                 effective date); as of January 
                                                                                 1, 1996 for uses in existing   
                                                                                 equipment. EPA will grant, if  
                                                                                 necessary, narrowed use        
                                                                                 acceptability listings for CFC-
                                                                                 113 past the effective date of 
                                                                                 the prohibition.               
Electronics cleaning w/MCF.  HCFC 141b and its blends...  Unacceptable........  High ODP; other alternatives    
                                                                                 exist. Effective date: As of 30
                                                                                 days after final rule for uses 
                                                                                 in new equipment (including    
                                                                                 retrofits made after the       
                                                                                 effective date); as of January 
                                                                                 1, 1996 for uses in existing   
                                                                                 equipment.                     
Precision cleaning w/CFC-    HCFC 141b and its blends...  Unacceptable........  High ODP; other alternatives    
 113.                                                                            exist. Effective date: As of 30
                                                                                 days after final rule for uses 
                                                                                 in new equipment (including    
                                                                                 retrofits made after the       
                                                                                 effective date); as of January 
                                                                                 1, 1996 for uses in existing   
                                                                                 equipment. EPA will grant, if  
                                                                                 necessary, narrowed use        
                                                                                 acceptability listings for CFC-
                                                                                 113 past the effective date of 
                                                                                 the prohibition.               
Precision cleaning w/MCF...  HCFC 141b and its blends...  Unacceptable........  High ODP; other alternatives    
                                                                                 exist. Effective date: As of 30
                                                                                 days after final rule for uses 
                                                                                 in new equipment (including    
                                                                                 retrofits made after the       
                                                                                 effective date); as of January 
                                                                                 1, 1996 for uses in existing   
                                                                                 equipment.                     
----------------------------------------------------------------------------------------------------------------


                           Fire Suppression and Explosion Protection Streaming Agents                           
                             Substitutes Acceptable Subject to Narrowed Use Limits                              
----------------------------------------------------------------------------------------------------------------
       End-use              Substitute              Decision           Conditions              Comments         
----------------------------------------------------------------------------------------------------------------
Halon 1211 Streaming   [CFC Blend].........  Acceptable in          ................  Use of CFCs are controlled
 Agents.                                      nonresidential uses                      under CAA section 610    
                                              only.                                    which bans use of CFCs in
                                                                                       pressurized dispensers,  
                                                                                       and therefore are not    
                                                                                       permitted for use in     
                                                                                       portable fire            
                                                                                       extinguishers. EPA will  
                                                                                       list this agent as       
                                                                                       proposed unacceptable in 
                                                                                       the next SNAP proposed   
                                                                                       rulemaking.              
                                                                                      Because CFCs are a Class I
                                                                                       substance, production    
                                                                                       will be phased out by    
                                                                                       January 1, 1996.         
                                                                                      See additional comments 1,
                                                                                       2.                       
                       HBFC-22B1...........  .....................  Acceptable in     Proper procedures         
                                                                     nonresidential    regarding the operation  
                                                                     uses only.        of the extinguisher and  
                                                                                       ventilation following    
                                                                                       dispensing the           
                                                                                       extinguishant is         
                                                                                       recommended. Worker      
                                                                                       exposure may be a concern
                                                                                       in small office areas.   
                                                                                      HBFC-22B1 is considered an
                                                                                       interim substitute for   
                                                                                       Halon 1211. Because the  
                                                                                       HBFC-22B1 has an ODP of  
                                                                                       .74, production will be  
                                                                                       phased out (except for   
                                                                                       essential uses) on       
                                                                                       January 1, 1996.         
                                                                                      This agent was submitted  
                                                                                       to the Agency as a       
                                                                                       Premanufacture Notice    
                                                                                       (PMN) and is presently   
                                                                                       subject to requirements  
                                                                                       contained in a Toxic     
                                                                                       Substance Control Act    
                                                                                       (TSCA) Consent Order.    
                                                                                      See additional comments 1,
                                                                                       2.                       
                       C6F14...............  Acceptable for         ................  Users must observe the    
                                              nonresidential uses                      limitations on PFC       
                                              where other                              acceptability by making  
                                              alternatives are not                     reasonable effort to     
                                              technically feasible                     undertake the following  
                                              due to performance                       measures:                
                                              or safety                               (i) conduct an evaluation 
                                              requirements:                            of foreseeable conditions
                                                                                       of end use;              
                                                                                      (ii) determine that the   
                                                                                       physical or chemical     
                                                                                       properties or other      
                                                                                       technical constraints of 
                                                                                       the other available      
                                                                                       agents preclude their    
                                                                                       use; and                 
                                             a. due to the          ................  (iii) determine that human
                                              physical or chemical                     exposure to the other    
                                              properties of the                        alternative extinguishing
                                              agent, or.                               agents may approach or   
                                                                                       result in                
                                                                                       cardiosensitization or   
                                                                                       other unacceptable       
                                                                                       toxicity effects under   
                                                                                       normal operating         
                                                                                       conditions;              
                                                                                      Documentation of such     
                                                                                       measures must be         
                                                                                       available for review upon
                                                                                       request.                 
                                             b. where human         ................  The principal             
                                              exposure to the                          environmental            
                                              extinguishing agent                      characteristic of concern
                                              may approach                             for PFCs is that they    
                                              cardiosensitization                      have high GWPs and long  
                                              levels or result in                      atmospheric lifetimes.   
                                              other unacceptable                       Actual contributions to  
                                              health effects under                     global warming depend    
                                              normal operating                         upon the quantities of   
                                              conditions.                              PFCs emitted.            
                                                                                      For additional guidance   
                                                                                       regarding applications in
                                                                                       which PFCs may be        
                                                                                       appropriate, users should
                                                                                       consult the description  
                                                                                       of potential uses which  
                                                                                       is included in the       
                                                                                       preamble to this         
                                                                                       rulemaking.              
                                                                                      See additional comments 1,
                                                                                       2.                       
----------------------------------------------------------------------------------------------------------------
Additional Comments:                                                                                            
1--Discharge testing and training should be strictly limited only to that which is essential to meet safety or  
  performance requirements.                                                                                     
2--The agent should be recovered from the fire protection system in conjunction with testing or servicing, and  
  recycled for later use or destroyed.                                                                          


                           Fire Suppression and Explosion Protection Streaming Agents                           
                                            Unacceptable Substitutes                                            
----------------------------------------------------------------------------------------------------------------
          End-use                     Substitute                Decision                    Comments            
----------------------------------------------------------------------------------------------------------------
Halon 1211 Streaming Agents  [CFC-11]...................  Unacceptable........  This agent has been suggested   
                                                                                 for use on large outdoor fires 
                                                                                 for which non-ozone depleting  
                                                                                 alternatives are currently     
                                                                                 used.                          
----------------------------------------------------------------------------------------------------------------


                         Fire Suppression and Explosion Protection Total Flooding Agents                        
                                Substitutes Acceptable Subject To Use Conditions                                
----------------------------------------------------------------------------------------------------------------
      End-use             Substitute           Decision              Conditions                 Comments        
----------------------------------------------------------------------------------------------------------------
Halon 1301 Total     HBFC-22B1..........  Acceptable........   Until OSHA establishes   The comparative design  
 Flooding Agents.                                              applicable workplace      concentration based on 
                                                               requirements:             cup burner values is   
                                                              Where egress from an       approximately 5.3%,    
                                                               area cannot be            while its cardiotoxic  
                                                               accomplished within one   LOAEL is 1%. Thus, it  
                                                               minute, the employer      is unlikely that this  
                                                               shall not use this        agent will be used in  
                                                               agent in concentrations   normally occupied      
                                                               exceeding its             areas.                 
                                                               cardiotoxic NOAEL of     HBFC-22B1 can be        
                                                               0.3%.                     considered only an     
                                                                                         interim substitute for 
                                                                                         Halon 1301. HBFC-22B1  
                                                                                         has an ODP of .74;     
                                                                                         thus, production will  
                                                                                         be phased out January  
                                                                                         1, 1996.               
                                                              Where egress takes        This agent was submitted
                                                               longer than 30 seconds    to the Agency as a     
                                                               but less than one         Premanufacture Notice  
                                                               minute, the employer      (PMN) and is presently 
                                                               shall not use the agent   subject to requirements
                                                               in a concentration        contained in a Toxic   
                                                               greater than its          Substance Control Act  
                                                               cardiotoxic LOAEL of      (TSCA) Consent Order.  
                                                               1.0%.                                            
                                                              HBFC-22B1 concentrations  See additional comments 
                                                               greater than 1.0% are     1, 2, 3, 4.            
                                                               only permitted in areas                          
                                                               not normally occupied                            
                                                               by employees provided                            
                                                               that any employee in                             
                                                               the area can escape                              
                                                               within 30 seconds. The                           
                                                               employer shall assure                            
                                                               that no unprotected                              
                                                               employees enter the                              
                                                               area during agent                                
                                                               discharge.                                       
                     HCFC-22............  Acceptable........  Until OSHA establishes    The comparative design  
                                                               applicable workplace      concentration based on 
                                                               requirements:             cup burner values is   
                                                                                         approximately 13.9%    
                                                                                         while its cardiotoxic  
                                                                                         LOAEL is 5.0%. Thus, it
                                                                                         is unlikely that this  
                                                                                         agent will be used in  
                                                                                         normally occupied      
                                                                                         areas.                 
                                                              Where egress from an      See additional comments 
                                                               area cannot be            1, 2, 3, 4.            
                                                               accomplished within one                          
                                                               minute, the employer                             
                                                               shall not use this                               
                                                               agent in concentrations                          
                                                               exceeding its                                    
                                                               cardiotoxic NOAEL of                             
                                                               2.5%.                                            
                                                              Where egress takes        ........................
                                                               longer than 30 seconds                           
                                                               but less than one                                
                                                               minute, the employer                             
                                                               shall not use the agent                          
                                                               in a concentration                               
                                                               greater than its                                 
                                                               cardiotoxic LOAEL of                             
                                                               5.0%.                                            
                                                              HCFC-22 concentrations    ........................
                                                               greater than 5.0% are                            
                                                               only permitted in areas                          
                                                               not normally occupied                            
                                                               by employees provided                            
                                                               that any employee in                             
                                                               the area can escape                              
                                                               within 30 seconds. The                           
                                                               employer shall assure                            
                                                               that no unprotected                              
                                                               employees enter the                              
                                                               area during agent                                
                                                               discharge.                                       
                     HCFC-124...........  Acceptable........  Until OSHA establishes    The comparative design  
                                                               applicable workplace      concentration based on 
                                                               requirements:             cup burner values is   
                                                              Where egress from an       approximately 8.4%     
                                                               area cannot be            while its cardiotoxic  
                                                               accomplished within one   LOAEL is 2.5%. Thus, it
                                                               minute, the employer      is unlikely that this  
                                                               shall not use this        agent will be used in  
                                                               agent in concentrations   normally occupied      
                                                               exceeding its             areas.                 
                                                               cardiotoxic NOAEL of     See additional comments 
                                                               1.0%.                     1, 2, 3, 4.            
                                                              Where egress takes                                
                                                               longer than 30 seconds                           
                                                               but less than one                                
                                                               minute, the employer                             
                                                               shall not use the agent                          
                                                               in a concentration                               
                                                               greater than its                                 
                                                               cardiotoxic LOAEL OF                             
                                                               2.5%.                                            
                                                              HCFC-123 concentrations                           
                                                               greater than 2.5% are                            
                                                               only permitted in areas                          
                                                               not normally occupied                            
                                                               by employees provided                            
                                                               that any employee in                             
                                                               the area can escape                              
                                                               within 30 seconds. The                           
                                                               employer shall assure                            
                                                               that no unprotected                              
                                                               employees enter the                              
                                                               area during agent                                
                                                               discharge.                                       
                     [HCFC BLEND] A.....  Acceptable........  Until OSHA establishes    The comparative design  
                                                               applicable workplace      concentration based on 
                                                               requirements:             full-scale testing is  
                                                              Where egress from an       approximately 8.6%.    
                                                               area cannot be           The agent should be     
                                                               accomplished within one   recovered from the fire
                                                               minute, the employer      protection system in   
                                                               shall not use [HCFC       conjunction with       
                                                               Blend] A in               testing or servicing,  
                                                               concentrations            and should be recycled 
                                                               exceeding its             for later use or       
                                                               cardiotoxic NOAEL of      destroyed.             
                                                               10.0%.                   See additional comments 
                                                                                         1, 2, 3, 4.            
                                                              Where egress takes                                
                                                               greater than 30 seconds                          
                                                               but less than one                                
                                                               minute, the employer                             
                                                               shall not use [HCFC                              
                                                               Blend] A in a                                    
                                                               concentration greater                            
                                                               than its cardiotoxic                             
                                                               LOAEL of 10.0%.                                  
                                                              [HCFC Blend] A                                    
                                                               concentrations greater                           
                                                               than 10 percent are                              
                                                               only permitted in areas                          
                                                               not normally occupied                            
                                                               by employees provided                            
                                                               that any employee in                             
                                                               the area can escape                              
                                                               within 30 seconds. The                           
                                                               employer shall assure                            
                                                               that no unprotected                              
                                                               employees enter the                              
                                                               area during agent                                
                                                               discharge.                                       
                     HFC-23.............  Acceptable........  Until OSHA establishes    The comparative design  
                                                               applicable workplace      concentration based on 
                                                               requirements:             cup burner values is   
                                                              Where egress from an       approximately 14.4%    
                                                               area cannot be            while data indicates   
                                                               accomplished within one   that its cardiotoxicity
                                                               minute, the employer      NOAEL is 30% without   
                                                               shall not use HFC-23 in   added oxygen and 50%   
                                                               concentrations            with added oxygen. Its 
                                                               exceeding 30%.            LOAEL is likely to     
                                                                                         exceed 50%.            
                                                                                        See additional comments 
                                                                                         1, 2, 3, 4.            
                                                              Where egress takes        ........................
                                                               greater than 30 seconds                          
                                                               but less than one                                
                                                               minute, the employer                             
                                                               shall not use HFC-23 in                          
                                                               a concentration greater                          
                                                               than 50.0%.                                      
                                                              HFC-23 concentrations                             
                                                               greater than 50 percent                          
                                                               are only permitted in                            
                                                               areas not normally                               
                                                               occupied by employees                            
                                                               provided that any                                
                                                               employee in the area                             
                                                               can escape within 30                             
                                                               seconds. The employer                            
                                                               shall assure that no                             
                                                               unprotected employees                            
                                                               enter the area during                            
                                                               agent discharge.                                 
                                                              The design concentration                          
                                                               must result in an                                
                                                               oxygen level of at                               
                                                               least 16%.                                       
                     HFC-125............  Acceptable........  Until OSHA establishes    The comparative design  
                                                               applicable workplace      concentration based on 
                                                               requirements:             cup burner values is   
                                                              Where egress from an       approximately 11.3%    
                                                               area cannot be            while its cardiotoxic  
                                                               accomplished within one   LOAEL is 10.0%. Thus,  
                                                               minute, the employer      it is unlikely that    
                                                               shall not use this        this agent will be used
                                                               agent in concentrations   in normally occupied   
                                                               exceeding its             areas.                 
                                                               cardiotoxic NOAEL of     See additional comments 
                                                               7.5%.                     1, 2, 3, 4.            
                                                              Where egress takes                                
                                                               longer than 30 seconds                           
                                                               but less than one                                
                                                               minute, the employer                             
                                                               shall not use the agent                          
                                                               in a concentration                               
                                                               greater than its                                 
                                                               cadiotoxic LOAEL of                              
                                                               10.0%.                                           
                                                              HFC-125 concentrations                            
                                                               greater than 10.0% are                           
                                                               only permitted in areas                          
                                                               not normally occupied                            
                                                               by employees provided                            
                                                               that any employee in                             
                                                               the area can escape                              
                                                               within 30 seconds. The                           
                                                               employer shall assure                            
                                                               that no unprotected                              
                                                               employees enter the                              
                                                               area during agent                                
                                                               discharge.                                       
                     HFC-134a...........  Acceptable........  Until OSHA establishes    The comparative design  
                                                               applicable workplace      concentration based on 
                                                               requirements:             cup burner values is   
                                                              Where egress from an       approximately 12.6%    
                                                               area cannot be            while its cardiotoxic  
                                                               accomplished within one   LOAEL is 8.0%. Thus, it
                                                               minute, the employer      is unlikely that this  
                                                               shall not use this        agent will be used in  
                                                               agent in concentrations   normally occupied      
                                                               exceeding its             areas.                 
                                                               cardiotoxic NOAEL of     See additional comments 
                                                               4.0%.                     1, 2, 3, 4.            
                                                              Where egress takes                                
                                                               longer than 30 seconds                           
                                                               but less than one                                
                                                               minute, the employer                             
                                                               shall not use the agent                          
                                                               in a concentration                               
                                                               greater than its                                 
                                                               cardiotoxic LOAEL of                             
                                                               8.0%.                                            
                                                              HFC-134a concentrations   ........................
                                                               greater than 8.0% are                            
                                                               only permitted in areas                          
                                                               not normally occupied                            
                                                               by employees provided                            
                                                               that any employee in                             
                                                               the area can escape                              
                                                               within 30 seconds. The                           
                                                               employer shall assure                            
                                                               that no unprotected                              
                                                               employees enter the                              
                                                               area during agent                                
                                                               discharge.                                       
                     HFC-227ea..........  Acceptable........  Until OSHA establishes    The comparative design  
                                                               applicable workplace      concentration based on 
                                                               requirements:.            cup burner values is   
                                                              Where egress from an       approximately 7.0%     
                                                               area cannot be            while data indicate    
                                                               accomplished within one   that its cardiotoxicity
                                                               minute, the employer      LOAEL is probably      
                                                               shall not use HFC-227ea   greater than 10.5%. EPA
                                                               in concentrations         is accepting 10.5% as  
                                                               exceeding its             its LOAEL.             
                                                               cardiotoxic NOAEL of     This agent was submitted
                                                               9.0%.                     to the Agency as a     
                                                              Where egress takes         Premanufacture Notice  
                                                               longer than 30 seconds    (PMN) agent and is     
                                                               but less than one         presently subject to   
                                                               minute, the employer      requirements contained 
                                                               shall not use the agent   in a Toxic Substances  
                                                               in a concentration        Control Act (TSCA)     
                                                               greater than its          Significant New Use    
                                                               cardiotoxic LOAEL of      Rule (SNUR).           
                                                               10.5%.                   See additional comments 
                                                                                         1, 2, 3, 4.            
                                                              HFC-227ea concentrations  ........................
                                                               greater than 10.5% are                           
                                                               only permitted in areas                          
                                                               not normally occupied                            
                                                               by employees provided                            
                                                               that any employee in                             
                                                               the area can escape                              
                                                               within 30 seconds. The                           
                                                               employer shall assure                            
                                                               that no unprotected                              
                                                               employees enter the                              
                                                               area during agent                                
                                                               discharge.                                       
                     C4F10..............  Acceptable........  Until OSHA establishes    The comparative design  
                                                               applicable workplace      concentration based on 
                                                               requirements:             cup burner values is   
                                                                                         approximately 6.6%.    
                                          where other         For occupied areas from   Users must observe the  
                                           alternatives are    which personnel cannot    limitations on PFC     
                                           not technically     be evacuated in one       acceptability by making
                                           feasible due to     minute, use is            reasonable efforts to  
                                           performance or      permitted only up to      undertake the following
                                           safety              concentrations not        measures:              
                                           requirements:       exceeding the            (i) conduct an          
                                                               cardiotoxicity NOAEL of   evaluation of          
                                                               40%.                      foreseeable conditions 
                                                                                         of end use;            
                                          a. due to their     Although no LOAEL has     (ii) determine that     
                                           physical or         been established for      human exposure to the  
                                           chemical            this product, standard    other alternative      
                                           properties, or      OSHA requirements         extinguishing agents   
                                                               apply, i.e., for          may approach or result 
                                                               occupied areas from       in cardiosensitization 
                                                               which personnel can be    or other unacceptable  
                                                               evacuated or egress can   toxicity effects under 
                                                               occur between 30 and 60   normal operating       
                                                               seconds, use is           conditions; and        
                                                               permitted up to a        (iii) determine that the
                                                               concentration not         physical or chemical   
                                                               exceeding the LOAEL.      properties or other    
                                                                                         technical constraints  
                                                                                         of the other available 
                                                                                         agents preclude their  
                                                                                         use.                   
                                          b. where human                                                        
                                           exposure to the                                                      
                                           extinguishing                                                        
                                           agents may                                                           
                                           approach                                                             
                                           cardiosensitizati                                                    
                                           on levels or                                                         
                                           result in other                                                      
                                           unacceptable                                                         
                                           health effects                                                       
                                           under normal                                                         
                                           operating                                                            
                                           conditions.                                                          
                                                              All personnel must be     The principal           
                                                               evacuated before          environmental          
                                                               concentration of C4F10    characteristic of      
                                                               exceeds 40%.              concern for PFCs is    
                                                              Design concentration       that they have high    
                                                               must result in oxygen     GWPs and long          
                                                               levels of at least 16%.   atmospheric lifetimes. 
                                                              Documentation of such      Actual contributions to
                                                               measures must be          global warming depend  
                                                               available for review      upon the quantities of 
                                                               upon request.             PFCs emitted.          
                                                                                        For additional guidance 
                                                                                         regarding applications 
                                                                                         in which PFCs may be   
                                                                                         appropriate, users     
                                                                                         should consult the     
                                                                                         description of         
                                                                                         potential uses which is
                                                                                         included in this       
                                                                                         rulemaking.            
                                                                                        See additional comments 
                                                                                         1, 2, 3, 4.            
                     [IG-541]...........  Acceptable........  Until OSHA establishes    Studies have shown that 
                                                               applicable workplace      healthy, young         
                                                               requirements:             individuals can remain 
                                                              The design concentration   in a 10% to 12% oxygen 
                                                               must result in at least   atmosphere for 30 to 40
                                                               10% oxygen and no more    minutes without        
                                                               than 5% CO2.              impairment. However, in
                                                              If the oxygen              a fire emergency, the  
                                                               concentration of the      oxygen level may be    
                                                               atmosphere falls below    reduced below safe     
                                                               10%, personnel must be    levels, and the        
                                                               evacuated and egress      combustion products    
                                                               must occur within 30      formed by the fire are 
                                                               seconds.                  likely to cause harm.  
                                                                                         Thus, the Agency does  
                                                                                         not contemplate        
                                                                                         personnel remaining in 
                                                                                         the space after system 
                                                                                         discharge during a fire
                                                                                         without Self Contained 
                                                                                         Breathing Apparatus    
                                                                                         (SCBA) as required by  
                                                                                         OSHA.                  
                                                                                        See additional comments 
                                                                                         1, 2.                  
----------------------------------------------------------------------------------------------------------------
Additional Comments:                                                                                            
1--Must conform with OSHA 29 CFR 1910 Subpart L Section 1910.160 of the U.S. Code.                              
2--Per OSHA requirements, protective gear (SCBA) must be available in the event personnel must reenter the area.
3--Discharge testing should be strictly limited only to that which is essential to meet safety or performance   
  requirements.                                                                                                 
4--The agent should be recovered from the fire protection system in conjunction with testing or servicing, and  
  recycled for later use or destroyed.                                                                          


                         Fire Suppression and Explosion Protection Total Flooding Agents                        
                             Substitutes Acceptable Subject to Narrowed Use Limits                              
----------------------------------------------------------------------------------------------------------------
       End-use             Substitute           Decision             Conditions                 Comments        
----------------------------------------------------------------------------------------------------------------
Halon 1301 Total      C4F10...............  Acceptable       Until OSHA establishes     The comparative design  
 Flooding Agents.                            where other      applicable workplace       concentration based on 
                                             alternatives     requirements:              cup burner values is   
                                             are not         For occupied areas from     approximately 6.6%.    
                                             technically      which personnel cannot    Users must observe the  
                                             feasible due     be evacuated in one        limitations on PFC     
                                             to performance   minute, use is permitted   approval by undertaking
                                             or safety        only up to                 the following measures:
                                             requirements:.   concentrations not        (i) Conduct an          
                                                              exceeding the              evaluation of          
                                                              cardiotoxicity NOAEL of    foreseeable conditions 
                                                              40%.                       of end use;            
                                                                                        (ii) Determine that     
                                                                                         human exposure to the  
                                                                                         other alternative      
                                                                                         extinguishing agents   
                                                                                         may approach or result 
                                                                                         in cardiosensitization 
                                                                                         or other unacceptable  
                                                                                         toxicity effects under 
                                                                                         normal operating       
                                                                                         conditions; and        
                                            a. Due to their  Although no LOAEL has      (iii) Determine that the
                                             physical or      been established for       physical or chemical   
                                             chemical         this product, standard     properties or other    
                                             properties, or   OSHA requirements apply,   technical constraints  
                                            b. Where human    i.e. for occupied areas    of the other available 
                                             exposure to      from which personnel can   agents preclude their  
                                             the              be evacuated or egress     use;                   
                                             extinguishing    can occur between 30 and  Documentation of such   
                                             agents may       60 seconds, use is         measures must be       
                                             approach         permitted up to a          available for review   
                                             cardiosensitiz   concentration not          upon request.          
                                             ation levels     exceeding the LOAEL.      The principal           
                                             or result in    All personnel must be       environmental          
                                             other            evacuated before           characteristic of      
                                             unacceptable     concentration of C4F10     concern for PFCs is    
                                             health effects   exceeds 40%.               that they have high    
                                             under normal    Design concentration must   GWPs and long          
                                             operating        result in oxygen levels    atmospheric lifetimes. 
                                             conditions..     of at least 16%            Actual contributions to
                                                                                         global warming depend  
                                                                                         upon the quantities of 
                                                                                         PFCs emitted.          
                                                                                        For additional guidance 
                                                                                         regarding applications 
                                                                                         in which PFCs may be   
                                                                                         appropriate, users     
                                                                                         should consult the     
                                                                                         description of         
                                                                                         potential uses which is
                                                                                         included in the        
                                                                                         preamble to this       
                                                                                         rulemaking.            
                                                                                        See additional comments 
                                                                                         1, 2, 3, 4.            
----------------------------------------------------------------------------------------------------------------
Additional Comments                                                                                             
1--Must conform with OSHA 29 CFR 1910 Subpart L Section 1910.160 of the U.S. Code.                              
2--Per OSHA requirements, protective gear (SCBA) must be available in the event personnel must reenter the area.
                                                                                                                
3--Discharge testing should be strictly limited only to that which is essential to meet safety or performance   
  requirements.                                                                                                 
4--The agent should be recovered from the fire protection system in conjunction with testing or servicing, and  
  recycled for later use or destroyed.                                                                          

[FR Doc. 94-4753 Filed 3-17-94; 8:45 am]
BILLING CODE 6560-50-P