[Federal Register Volume 59, Number 123 (Tuesday, June 28, 1994)]
[Unknown Section]
[Page ]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-15676]


[Federal Register: June 28, 1994]


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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 763

[OPPTS-62114B; FRL-4776-7]


Technical Amendment in Response to Court Decision on Asbestos; 
Manufacture, Importation, Processing and Distribution Prohibitions

AGENCY: Environmental Protection Agency (EPA).

ACTION: Technical amendment.

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SUMMARY: EPA is revising the language of the Prohibition of the 
Manufacture, Importation, Processing, and Distribution in Commerce of 
Certain Asbestos-containing Products; Labeling Requirements Rule (also 
known as the Asbestos Ban and Phase Out or ABPO Rule) in the Code of 
Federal Regulations (CFR) to conform to a court decision that vacated 
and remanded part of the ABPO Rule and to an EPA factfinding conducted 
in accordance with the court's decision. The ABPO Rule prohibited the 
manufacture, importation, processing, and distribution in commerce of 
most asbestos-containing products in three stages over 7 years 
beginning in 1990. On October 18, 1991, the United States Court of 
Appeals for the Fifth Circuit (the court) vacated and remanded most of 
the ABPO Rule. In a subsequent clarification, the court said the rule 
continued to govern asbestos-containing products that were not being 
manufactured, imported, or processed on July 12, 1989. EPA conducted a 
factfinding and concluded that six asbestos-containing product 
categories in the ABPO Rule were not being manufactured, processed, or 
imported on July 12, 1989, and thus are still subject to the rule. This 
document revises the CFR to conform to the findings of EPA in 
accordance with the court decision, and requires no notice and public 
comment.

EFFECTIVE DATE: This document is effective on June 28, 1994.

FOR FURTHER INFORMATION CONTACT: Susan B. Hazen, Director, 
Environmental Assistance Division (7408), Office of Pollution 
Prevention and Toxics, Environmental Protection Agency, 401 M St., SW., 
Washington, DC 20460, Telephone: (202) 554-1404, TDD: (202) 554-0551.

SUPPLEMENTARY INFORMATION: In the Federal Register of July 12, 1989 (54 
FR 29460), EPA issued a final rule under section 6 of the Toxic 
Substances Control Act (TSCA)(15 U.S.C. 2605) that prohibited the 
manufacture, importation, processing, and distribution in commerce of 
most asbestos-containing products in three stages over 7 years (40 CFR 
763.160 through 763.179). Stage 1 of the ban went into effect in August 
1990. Stages 2 and 3 were scheduled to go into effect in 1993 and 1996 
respectively.
    On October 18, 1991, the United States Court of Appeals for the 
Fifth Circuit vacated and remanded most of the ABPO Rule. Corrosion 
Proof Fittings v. EPA, 947 F.2d 1201 (5th Cir., 1991). In a latter 
clarification, the court stated that product categories in the ABPO 
Rule that were no longer being manufactured, imported, or processed on 
July 12, 1989, when the ABPO Rule was issued were still subject to the 
rule. Id. at 1230. The court left it to EPA to resolve any factual 
disputes about which product categories in the ABPO Rule were no longer 
in commerce on July 12, 1989.
    As a result, in order to determine which product categories in the 
ABPO Rule were still subject to the rule, EPA published a document in 
the Federal Register of April 2, 1992 (57 FR 11364), that requested 
information on the commercial status on July 12, 1989, of 14 product 
categories in the rule that may no longer have been manufactured, 
processed, or imported when the rule was published on July 12, 1989. In 
addition, EPA solicited information on the commercial status of any 
other product category in the ABPO Rule that also may no longer have 
been manufactured, processed, or imported on July 12, 1989. EPA 
supplemented the original information in the RIA with the comments 
received in response to the Federal Register notice and with additional 
research.
    EPA published a document in the Federal Register of November 5, 
1993 (58 FR 58964), that announced its findings concerning the 
regulatory status of the product categories in the ABPO Rule. EPA 
concluded that six asbestos-containing product categories were not 
being manufactured, processed, or imported on July 12, 1989, and thus 
are still subject to the rule. The remaining product categories were 
being manufactured, processed, or imported on July 12, 1989, and are no 
longer subject to the rule.
    Accordingly, EPA is issuing this document to revise the language of 
the ABPO Rule in the CFR to conform to the October 1991 court decision 
that remanded the rule and to the November 1992 factual findings of 
EPA, in accordance with the court decision.

List of Subjects in 40 CFR Part 763

    Environmental protection, Asbestos, Hazardous substances.

    Dated: June 21, 1994.
Victor J. Kimm,
Acting Assistant Administrator for Prevention, Pesticides and Toxic 
Substances.
    Therefore, 40 CFR part 763 is amended as follows:

PART 763--[AMENDED]

    1. The authority citation for part 763 continues to read as 
follows:

    Authority: 15 U.S.C. 2605 and 2607(c).

    2. By revising Sec. 763.163 to read as follows.


Sec. 763.163  Definitions.

    For purposes of this subpart:
    Act means the Toxic Substances Control Act, 15 U.S.C. 2601 et seq.
    Agency means the United States Environmental Protection Agency.
    Asbestos means the asbestiform varieties of: chrysotile 
(serpentine); crocidolite (riebeckite); amosite (cummingtonite-
grunerite); tremolite; anthophyllite; and actinolite.
    Asbestos-containing product means any product to which asbestos is 
deliberately added in any concentration or which contains more than 1.0 
percent asbestos by weight or area.
    Chemical substance, has the same meaning as in section 3 of the 
Act.
    Commerce has the same meaning as in section 3 of the Act.
    Commercial paper means an asbestos-containing product which is made 
of paper intended for use as general insulation paper or muffler paper. 
Major applications of commercial papers are insulation against fire, 
heat transfer, and corrosion in circumstances that require a thin, but 
durable, barrier.
    Corrugated paper means an asbestos-containing product made of 
corrugated paper, which is often cemented to a flat backing, may be 
laminated with foils or other materials, and has a corrugated surface. 
Major applications of asbestos corrugated paper include: thermal 
insulation for pipe coverings; block insulation; panel insulation in 
elevators; insulation in appliances; and insulation in low-pressure 
steam, hot water, and process lines.
    Customs territory of the United States means the 50 States, Puerto 
Rico, and the District of Columbia.
    Distribute in commerce has the same meaning as in section 3 of the 
Act, but the term does not include actions taken with respect to an 
asbestos-containing product (to sell, resale, deliver, or hold) in 
connection with the end use of the product by persons who are users 
(persons who use the product for its intended purpose after it is 
manufactured or processed). The term also does not include distribution 
by manufacturers, importers, and processors, and other persons solely 
for purposes of disposal of an asbestos-containing product.
    Flooring felt means an asbestos-containing product which is made of 
paper felt intended for use as an underlayer for floor coverings, or to 
be bonded to the underside of vinyl sheet flooring.
    Import means to bring into the customs territory of the United 
States, except for: (1) Shipment through the customs territory of the 
United States for export without any use, processing, or disposal 
within the customs territory of the United States; or (2) entering the 
customs territory of the United States as a component of a product 
during normal personal or business activities involving use of the 
product.
    Importer means anyone who imports a chemical substance, including a 
chemical substance as part of a mixture or article, into the customs 
territory of 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 includes as 
appropriate:
    (1) The consignee.
    (2) The importer of record.
    (3) The actual owner if an actual owner's declaration and 
superseding bond has been filed in accordance with 19 CFR 141.20.
    (4) The transferee, if the right to withdraw merchandise in a 
bonded warehouse has been transferred in accordance with subpart C of 
19 CFR Part 144.
    Manufacture means to produce or manufacture in the United States.
    Manufacturer means a person who produces or manufactures in the 
United States.
    New uses of asbestos means commercial uses of asbestos not 
identified in Sec. 763.165 the manufacture, importation or processing 
of which would be initiated for the first time after August 25, 1989.
    Person means any natural person, firm, company, corporation, joint-
venture, partnership, sole proprietorship, association, or any other 
business entity; any State or political subdivision thereof, or any 
municipality; any interstate body and any department, agency, or 
instrumentality of the Federal Government.
    Process has the same meaning as in section 3 of the Act.
    Processor has the same meaning as in section 3 of the Act.
    Rollboard means an asbestos-containing product made of paper that 
is produced in a continuous sheet, is flexible, and is rolled to 
achieve a desired thickness. Asbestos rollboard consists of two sheets 
of asbestos paper laminated together. Major applications of this 
product include: office partitioning; garage paneling; linings for 
stoves and electric switch boxes; and fire-proofing agent for security 
boxes, safes, and files.
    Specialty paper means an asbestos-containing product that is made 
of paper intended for use as filters for beverages or other fluids or 
as paper fill for cooling towers. Cooling tower fill consists of 
asbestos paper that is used as a cooling agent for liquids from 
industrial processes and air conditioning systems.
    State has the same meaning as in section 3 of the Act.
    Stock-on-hand means the products which are in the possession, 
direction, or control of a person and are intended for distribution in 
commerce.
    United States has the same meaning as in section 3 of the Act.
    3. By revising Sec. 763.165 to read as follows:


Sec. 763.165  Manufacture and importation prohibitions.

    (a) After August 27, 1990, no person shall manufacture or import 
the following asbestos-containing products, either for use in the 
United States or for export: flooring felt and new uses of asbestos.
    (b) After August 26, 1996, no person shall manufacture or import 
the following asbestos-containing products, either for use in the 
United States or for export: commercial paper, corrugated paper, 
rollboard, and specialty paper.
    (c) The import prohibitions of this subpart do not prohibit:
    (1) The import into the customs territory of the United States of 
products imported solely for shipment outside the customs territory of 
the United States, unless further repackaging or processing of the 
product is performed in the United States; or
    (2) Activities involving purchases or acquisitions of small 
quantities of products made outside the customs territory of the United 
States for personal use in the United States.
    4. By revising Sec. 763.167 to read as follows:


Sec. 763.167  Processing prohibitions.

    (a) After August 27, 1990, no person shall process for any use, 
either in the United States or for export, any of the asbestos-
containing products listed at Sec. 763.165(a).
    (b) After August 26, 1996, no person shall process for any use, 
either in the United States or for export, any of the asbestos-
containing products listed at Sec. 763.165(b).
    5. By revising Sec. 763.169 to read as follows:


Sec. 763.169  Distribution in commerce prohibitions.

    (a) After August 25, 1992, no person shall distribute in commerce, 
either for use in the United States or for export, any of the asbestos-
containing products listed at Sec. 763.165(a).
    (b) After August 25, 1997, no person shall distribute in commerce, 
either for use in the United States or for export, any of the asbestos-
containing products listed at Sec. 763.165(b).
    (c) A manufacturer, importer, processor, or any other person who is 
subject to a ban on distribution in commerce in paragraph (a) or (b) of 
this section must, within 6 months of the effective date of the ban of 
a specific asbestos-containing product from distribution in commerce, 
dispose of all their remaining stock-on-hand of that product, by means 
that are in compliance with applicable local, State, and Federal 
restrictions which are current at that time.
    6. By revising Sec. 763.171 to read as follows:


Sec. 763.171  Labeling requirements.

    (a) After August 27, 1990, manufacturers, importers, and processors 
of all asbestos-containing products that are identified in 
Sec. 763.165(a) shall label the products as specified in this subpart 
at the time of manufacture, import, or processing. This requirement 
includes labeling all manufacturers', importers', and processors' 
stock-on-hand as of August 27, 1990.
    (b) After August 25, 1995, manufacturers, importers, and processors 
of all asbestos-containing products that are identified in 
Sec. 763.165(b), shall label the products as specified in this subpart 
at the time of manufacture, import, or processing. This requirement 
includes labeling all manufacturers', importers', and processors' 
stock-on-hand as of August 25, 1995.
    (c) The label shall be placed directly on the visible exterior of 
the wrappings and packaging in which the product is placed for sale, 
shipment, or storage. If the product has more than one layer of 
external wrapping or packaging, the label must be attached to the 
innermost layer adjacent to the product. If the innermost layer of 
product wrapping or packaging does not have a visible exterior surface 
larger than 5 square inches, either a tag meeting the requirements of 
paragraph (d) of this section must be securely attached to the 
product's innermost layer of product wrapping or packaging, or a label 
must be attached to the next outer layer of product packaging or 
wrapping. Any products that are distributed in commerce to someone 
other than the end user, shipped, or stored without packaging or 
wrapping must be labeled or tagged directly on a visible exterior 
surface of the product as described in paragraph (d) of this section.
    (d)(1) Labels must be either printed directly on product packaging 
or in the form of a sticker or tag made of plastic, paper, metal, or 
other durable substances. Labels must be attached in such a manner that 
they cannot be removed without defacing or destroying them. Product 
labels shall appear as in paragraph (d)(2) of this section and consist 
of block letters and numerals of color that contrasts with the 
background of the label or tag. Labels shall be sufficiently durable to 
equal or exceed the life, including storage and disposal, of the 
product packaging or wrapping. The size of the label or tag must be at 
least 15.25 cm (6 inches) on each side. If the product packaging is too 
small to accommodate a label of this size, the label may be reduced in 
size proportionately to the size of the product packaging or wrapping 
down to a minimum 2.5 cm (1 inch) on each side if the product wrapping 
or packaging has a visible exterior surface larger than 5 square 
inches.
    (2) Products subject to this subpart shall be labeled in English as 
follows:

NOTICE

    This product contains ASBESTOS. The U.S. Environmental 
Protection Agency has banned the distribution in U.S. commerce of 
this product under section 6 of the Toxic Substances Control Act (15 
U.S.C. 2605) as of (insert effective date of ban on distribution in 
commerce). Distribution of this product in commerce after this date 
and intentionally removing or tampering with this label are 
violations of Federal law.

    (e) No one may intentionally remove, deface, cover, or otherwise 
obscure or tamper with a label or sticker that has been applied in 
compliance with this section, except when the product is used or 
disposed of.
    7. In Sec. 763.173 by revising the section heading and paragraphs 
(a), (b), (c), and (g) to read as follows:


Sec. 763.173  Exemptions.

    (a) Persons who are subject to the prohibitions imposed by 
Secs. 763.165, 763.167, or 763.169 may file an application for an 
exemption. Persons whose exemption applications are approved by the 
Agency may manufacture, import, process, or distribute in commerce the 
banned product as specified in the Agency's approval of the 
application. No applicant for an exemption may continue the banned 
activity that is the subject of an exemption application after the 
effective date of the ban unless the Agency has granted the exemption 
or the applicant receives an extension under paragraph (b)(4) or (5) of 
this section.
    (b) Application filing dates. (1) Applications for products 
affected by the prohibitions under Secs. 763.165(a) and 763.167(a) may 
be submitted at any time and will be either granted or denied by EPA as 
soon as is feasible.
    (2) Applications for products affected by the ban under 
Sec. 763.169(a) may be submitted at any time and will be either granted 
or denied by EPA as soon as is feasible.
    (3) Applications for products affected by the ban under 
Secs. 763.165(b) and 763.167(b) may not be submitted prior to February 
27, 1995. Complete applications received after that date, but before 
August 25, 1995, will be either granted or denied by the Agency prior 
to the effective date of the ban for the product. Applications received 
after August 25, 1995, will be either granted or denied by EPA as soon 
as is feasible.
    (4) Applications for products affected by the ban under 
Sec. 763.169(b) may not be submitted prior to February 26, 1996. 
Complete applications received after that date, but before August 26, 
1996, will be either granted or denied by the Agency prior to the 
effective date of the ban for the product. Applications received after 
August 26, 1996, will be either granted or denied by EPA as soon as is 
feasible.
    (5) The Agency will consider an application for an exemption from a 
ban under Sec. 763.169 for a product at the same time the applicant 
submits an application for an exemption from a ban under Sec. 763.165 
or Sec. 763.167 for that product. EPA will grant an exemption at that 
time from a ban under Sec. 763.169 if the Agency determines it 
appropriate to do so.
    (6) If the Agency denies an application less than 30 days before 
the effective date of a ban for a product, the applicant can continue 
the activity for 30 days after receipt of the denial from the Agency.
    (7) If the Agency fails to meet the deadlines stated in paragraphs 
(b)(3) and (b)(4) of this section for granting or denying a complete 
application in instances in which the deadline is before the effective 
date of the ban to which the application applies, the applicant will be 
granted an extension of 1 year from the Agency's deadline date. During 
this extension period the applicant may continue the activity that is 
the subject of the exemption application. The Agency will either grant 
or deny the application during the extension period. The extension 
period will terminate either on the date the Agency grants the 
application or 30 days after the applicant receives the Agency's denial 
of the application. However, no extension will be granted if the Agency 
is scheduled to grant or deny an application at some date after the 
effective date of the ban, pursuant to the deadlines stated in 
paragraphs (b)(3) and (b)(4) of this section.
    (c) Where to file. All applications must be submitted to the 
following location: TSCA Docket Receipts Office (7407), Office of 
Pollution Prevention and Toxics, U.S. Environmental Protection Agency, 
Rm E-G99, 401 M St., SW., Washington, DC 20460, ATTENTION: Asbestos 
Exemption. For information regarding the submission of exemptions 
containing information claimed as confidential business information 
(CBI), see Sec. 763.179.
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    (g) If the application does not include all of the information 
required in paragraph (d) of this section, the Agency will return it to 
the applicant as incomplete and any resubmission of the application 
will be considered a new application for purposes of the availability 
of any extension period. If the application is substantially inadequate 
to allow the Agency to make a reasoned judgment on any of the 
information required in paragraph (d) of this section and the Agency 
chooses to request additional information from the applicant, the 
Agency may also determine that an extension period provided for in 
paragraph (b)(5) of this section is unavailable to the applicant.
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[FR Doc. 94-15676 Filed 6-27-94; 8:45 am]
BILLING CODE 6560-50-F