[Federal Register Volume 63, Number 208 (Wednesday, October 28, 1998)]
[Notices]
[Pages 57682-57684]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-28866]


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ENVIRONMENTAL PROTECTION AGENCY

[PB-402404-UT; FRL-6037-5]


Lead-Based Paint Activities in Target Housing and Child-Occupied 
Facilities; State of Utah's Authorization Application

AGENCY: Environmental Protection Agency (EPA).

ACTION: Notice; request for comments and opportunity for public 
hearing.

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SUMMARY: On August 31, 1998, the State of Utah submitted an application 
for EPA approval to administer and enforce training and certification 
requirements, training program accreditation requirements, and work 
practice standards for lead-based paint activities in target housing 
and child-occupied facilities under section 402 of the Toxic Substances 
Control Act (TSCA). This notice announces the receipt of Utah's 
application, provides a 45-day public comment period and an opportunity 
to request a public hearing on the application. Utah has provided a 
certification that this program meets the requirements for approval of 
a State program under section 404 of TSCA. Therefore, pursuant to 
section 404, the program is deemed authorized as of the date of 
submission. If EPA finds that the program does not meet the 
requirements for approval of a State program, EPA will disapprove the 
program, at which time a notice will be issued in the Federal Register 
and the Federal program will be established.

DATES: Comments on the authorization application must be received on or 
before December 14, 1998.

ADDRESSES: Submit all written comments and/or requests for a public 
hearing identified by docket control number PB-402404-UT (in duplicate) 
to: Bruce Cooper, Environmental Protection Agency, Region VIII, 8P3-T, 
999 18th St., Suite 500, Denver, CO 80202-2466. Comments, data, and 
requests for a public hearing may also be submitted electronically to: 
[email protected]. Follow the instructions under Unit IV. of this 
document. No information claimed to be Confidential Business 
Information (CBI) should be submitted through e-mail.

FOR FURTHER INFORMATION CONTACT: Dave Combs, Regional Toxics Team 
Leader, 999 18th St., Suite 500, 8P3-T, Denver, CO 80202-2466; 
telephone: 303-312-6021; e-mail address: [email protected].

SUPPLEMENTARY INFORMATION:

I. Background

    On October 28, 1992, the Housing and Community Development Act of 
1992, Pub. L. 102-550, became law. Title X of that statute was the 
Residential Lead-Based Paint Hazard Reduction Act of 1992. That Act 
amended TSCA (15 U.S.C. 2601 et seq.) by adding Title IV (15 U.S.C. 
2681-92), entitled ``Lead Exposure Reduction.''
    Section 402 of TSCA authorizes and directs EPA to promulgate final 
regulations governing lead-based paint activities in target housing, 
public and commercial buildings, bridges and other structures. Those 
regulations are to ensure that individuals engaged in such activities 
are properly trained, that training programs are accredited, and that 
individuals engaged in these activities are certified and follow 
documented work practice standards. Under section 404, a State may seek 
authorization from EPA to administer and enforce its own lead-based 
paint activities program.
    On August 29, 1996 (61 FR 45777) (FRL-5389-9), EPA promulgated 
final TSCA section 402/404 regulations governing lead-based paint 
activities in target housing and child-occupied facilities (a subset of 
public buildings). Those regulations are codified at 40 CFR part 745, 
and allow both States and Indian Tribes to apply for program 
authorization. Pursuant to section 404(h) of TSCA, EPA is to establish 
the Federal program in any State or Tribal Nation without its own 
authorized program in place by August 31, 1998.
    States and Tribes that choose to apply for program authorization 
must submit a complete application to the appropriate Regional EPA 
Office for review. Those applications will be reviewed by EPA within 
180 days of receipt of the complete application. To receive EPA 
authorization, a State or Tribe must demonstrate that its program is at 
least as protective of human health and the environment as the Federal 
program, and provides for adequate enforcement (section 404(b) of TSCA, 
15 U.S.C. 2684(b)). EPA's regulations (40 CFR part 745, subpart Q) 
provide the detailed requirements a State or Tribal program must meet 
in order to obtain EPA authorization.
    A State may choose to certify that its lead-based paint activities 
program meets the requirements for EPA

[[Page 57683]]

authorization, by submitting a letter signed by the Governor or 
Attorney General stating that the program meets the requirements of 
section 404(b) of TSCA. Upon submission of such certification letter, 
the program is deemed authorized until such time as EPA disapproves the 
program application or withdraws the authorization.
    Section 404(b) of TSCA provides that EPA may approve a program 
application only after providing notice and an opportunity for a public 
hearing on the application. Therefore, by this notice EPA is soliciting 
public comment on whether Utah's application meets the requirements for 
EPA approval. This notice also provides an opportunity to request a 
public hearing on the application. Utah has provided a self-
certification letter from the Governor that its program meets the 
requirements for authorization of a State program under section 404 of 
TSCA. The State of Utah has requested interim approval of the 
compliance and enforcement program portion of the Utah Lead Program. 
Therefore, pursuant to section 404, the program is deemed authorized as 
of the date of submission (August 31, 1998). If EPA finds that the 
program does not meet the requirements for authorization of a state 
program, EPA will disapprove the program application, at which time a 
notice will be issued in the Federal Register and the Federal program 
will be established in Utah.

II. State Program Description Summary

    The following summary of Utah's program has been provided by the 
applicant:

A. Legislative Summary

    During the 1998 Utah legislative session, Senate Bill 118 (SB 118) 
was unanimously passed by both the House and the Senate. SB 118 amends 
section 19-2-104, Utah Code Annotated (UCA) of the Utah Air 
Conservation Act, which provides authority for the Utah Air Quality 
Board (Board) to make administrative rules for a Utah Lead-Based Paint 
(LBP) Program. The legislation specifically gives authority to the 
Board to make rules for training, certification, and performance 
requirements in accordance with the section 402 and 404 of subchapter 
IV of the Toxic Substances Control Act (TSCA). SB 118 also provides the 
Board with the authority to establish work practice, certification and 
clearance sampling requirements for persons who conduct LBP inspections 
in facilities subject to TSCA Title IV. The legislation also 
specifically gives the Board the authority to establish certification 
requirements for inspectors, risk assessors, supervisors, project 
designers or abatement workers when performing LBP activities subject 
to TSCA Title IV.
    The Utah Attorney General's Office reviewed the content of SB 118 
prior to enactment. It determined that SB 118 would provide the Board 
with the necessary legislative authority to develop a Utah LBP Program 
that is as protective as the Federal LBP Program (Title 40 Code of 
Federal Regulations (CFR) part 745, subpart L).

B. Administrative Rule Summary

    On April 25, 1998, the Utah Department of Environmental Quality/
Division of Air Quality (UDEQ/DAQ) provided the Board with a proposed 
administrative rule (R307-840--Lead-Based Paint Accreditation, 
Certification and Work Practice Standards) for the Utah LBP Program. 
R307-840, adopts substantially all of 40 CFR part 745, subpart L by 
reference as the administrative rule regulating LBP activities in 
target housing and child-occupied facilities. The UDEQ/DAQ also 
proposed to add a new subsection to the Utah Air Conservation Rules 
(R307-1-2.5.1.f, Utah Administrative Code (UAC)) that allows any 
hearings or other proceedings pertaining to R307-840, to be conducted 
informally.
    On August 12, 1998, the UDEQ/DAQ reported back to the Board with 
the comments received during the public hearing. The Board reviewed 
those comments and subsequently adopted the UDEQ/DAQ proposed 
administrative rules R307-840, UAC (appendix 4) and R307-1-2.5.1.f, UAC 
(appendix 5) with an effective date of August 13, 1998.
    R307-840, UAC incorporates the Federal regulation with a few 
modifications to facilitate LBP program implementation by the State of 
Utah. The UDEQ/DAQ considers these modifications necessary to implement 
an effective LBP program and also considers these modifications to be 
as protective as the Federal LBP program. The following paragraphs 
provide a brief summary of the four sections of State Administrative 
Rule R307-840, UAC. Each section will identify which parts of the 
Federal regulations in 40 CFR part 745, subpart L are adopted by 
reference and give a brief overview of the contents of each section.
    Throughout R307-840, UAC, references to ``EPA'' (Environmental 
Protection Agency) have been replaced with ``Executive Secretary'' 
(meaning Executive Secretary of the Utah Air Quality Board) when 
``EPA'' is used for LBP program administrative activities.
    1. R307-840-1--Purpose and applicability. This section uses the 
regulatory language found in 40 CFR 745.220 and modifies that language 
to facilitate LBP program implementation in Utah. These modifications 
to the Federal regulations in this and following sections are 
considered nonsubstantive by the UDEQ/DAQ and are considered as 
protective as the Federal LBP regulations.
    2. R307-840-2--Definitions. This section substantially adopts 40 
CFR 745.223 by reference. The only significant change to Federal 
definitions are those that reference ``TSCA Section 403.'' EPA has not 
yet promulgated final rules pursuant to TSCA section 403. The UDEQ/DAQ 
could not propose administrative rules to the Board which included a 
reference for a regulation which was not yet final. The UDEQ/DAQ chose 
to substitute an existing document (EPA Guidance on Identification of 
LBP Hazards - 60 FR 47248-57) which has been used by EPA as interim 
guidance during the TSCA section 403 rulemaking process.
    3. R307-840-3--Accreditation, certification and work standards: 
target housing and child-occupied facilities. This section adopts 40 
CFR 745.225(a)-(g), 745.225(i), 745.226(a)-(h), 745.227, and 745.233 
from the Federal LBP regulations by reference. This section of the Utah 
LBP rule outlines the requirements for course accreditation, 
certification of individuals and firms as well as establishing the Utah 
LBP work practice standards.
    Section R307-840-3, UAC creates some minor modifications to the 
Federal LBP regulations to facilitate program implementation in Utah. 
The Utah rules provide additional flexibility during the course 
accreditation process by allowing instructors to use experience from 
Utah accredited courses as relevant training experience, as well as 
allowing training experience from EPA-accredited and EPA-authorized 
State and Indian Tribe accredited courses. The Utah LBP rules require 
course providers to submit all course materials for approval when 
seeking course accreditation even if the course has been previously 
approved by another State, Indian Tribe, or the EPA. The Utah rules 
also require that LBP activities performed in the State of Utah must be 
performed according to the work practice standards of 40 CFR 745.227, 
which are adopted by reference. However, documented methodologies for 
the sampling of paint, dust and soil that are found in the regulations, 
guidance, methods or protocols used by other States, Indian Tribes, or 
EPA may not be considered appropriate methodologies in Utah.

[[Page 57684]]

    4. R307-840-4--Lead-based paint fees. This section adopts a fee 
schedule for the Utah LBP Program during the first year of program 
implementation as allowed by section 63-38-3.2(5)(a) UAC. In subsequent 
years, LBP fees will be incorporated into the UDEQ Fee Schedule which 
is approved by the Utah Legislature annually.

III. Federal Overfiling

    TSCA section 404(b) makes it unlawful for any person to violate, or 
fail or refuse to comply with, any requirement of an approved State or 
Tribal program. Therefore, EPA reserves the right to exercise its 
enforcement authority under TSCA against a violation of, or a failure 
or refusal to comply with, any requirement of an authorized State or 
Tribal program.

IV. Public Record and Electronic Submissions

    The official record for this action, as well as the public version, 
has been established under docket control number PB-404404-UT. Copies 
of this notice, the State of Utah's authorization application, and all 
comments received on the application are available for inspection in 
the Region VIII office, from 8 a.m. to 4 p.m. , Monday through Friday, 
excluding legal holidays. The docket is located at EPA, Region VIII, 
8P3-T, 999 18th St., Suite 500, Denver, CO 80202.
    Commenters are encouraged to structure their comments so as not to 
contain information for which CBI claims would be made. However, any 
information claimed as CBI must be marked ``confidential,'' ``CBI,'' or 
with some other appropriate designation, and a commenter submitting 
such information must also prepare a non-confidential version (in 
duplicate) that can be placed in the public record. Any information so 
marked will be handled in accordance with the procedures contained in 
40 CFR part 2. Comments and information not claimed as CBI at the time 
of submission will be placed in the public record.

    Electronic comments can be sent directly to EPA at:
    [email protected]

    Electronic comments must be submitted as an ASCII file avoiding the 
use of special characters and any form of encryption. Comments and data 
will also be accepted on disks in Wordperfect 5.1/6.1 or ASCII file 
format. All comments and data in electronic form must be identified by 
the docket control number PB-402404-UT. Electronic comments on this 
document may be filed online at many Federal Depository Libraries. 
Information claimed as CBI should not be submitted electronically.

V. Regulatory Assessment Requirements

A. Certain Acts and Executive Orders

    EPA's actions on State or Tribal lead-based paint activities 
program applications are informal adjudications, not rules. Therefore, 
the requirements of the Regulatory Flexibility Act (RFA, 5 U.S.C. 601 
et seq.), the Congressional Review Act (5 U.S.C. 801 et seq.), 
Executive Order 12866 (``Regulatory Planning and Review,'' 58 FR 51735, 
October 4, 1993), and Executive Order 13045 (``Protection of Children 
from Environmental Health Risks and Safety Risks,'' 62 FR 1985, April 
23, 1997), do not apply to this action. This action does not contain 
any Federal mandates, and therefore is not subject to the requirements 
of the Unfunded Mandates Reform Act (2 U.S.C. 1531-1538). In addition, 
this action does not contain any information collection requirements 
and therefore does not require review or approval by the Office of 
Management and Budget (OMB) under the Paperwork Reduction Act (44 
U.S.C. 3501 et seq.).

B. Executive Order 12875

    Under Executive Order 12875, entitled ``Enhancing Intergovernmental 
Partnerships'' (58 FR 58093, October 28, 1993), EPA may not issue a 
regulation that is not required by statute and that creates a mandate 
upon a State, local or Tribal government, unless the Federal government 
provides the funds necessary to pay the direct compliance costs 
incurred by those governments. If the mandate is unfunded, EPA must 
provide to OMB a description of the extent of EPA's prior consultation 
with representatives of affected State, local, and Tribal governments, 
the nature of their concerns, copies of any written communications from 
the governments, and a statement supporting the need to issue the 
regulation. In addition, Executive Order 12875 requires EPA to develop 
an effective process permitting elected officials and other 
representatives of State, local, and Tribal governments ``to provide 
meaningful and timely input in the development of regulatory proposals 
containing significant unfunded mandates.''
    Today's action does not create an unfunded Federal mandate on 
State, local, or Tribal governments. This action does not impose any 
enforceable duties on these entities. Accordingly, the requirements of 
section 1(a) of Executive Order 12875 do not apply to this action.

C. Executive Order 13084

    Under Executive Order 13084, entitled ``Consultation and 
Coordination with Indian Tribal Governments'' (63 FR 27655, May 19, 
1998), EPA may not issue a regulation that is not required by statute, 
that significantly or uniquely affects the communities of Indian tribal 
governments, and that imposes substantial direct compliance costs on 
those communities, unless the Federal government provides the funds 
necessary to pay the direct compliance costs incurred by the Tribal 
governments. If the mandate is unfunded, EPA must provide OMB, in a 
separately identified section of the preamble to the rule, a 
description of the extent of EPA's prior consultation with 
representatives of affected Tribal governments, a summary of the nature 
of their concerns, and a statement supporting the need to issue the 
regulation. In addition, Executive Order 13084 requires EPA to develop 
an effective process permitting elected and other representatives of 
Indian tribal governments ``to provide meaningful and timely input in 
the development of regulatory policies on matters that significantly or 
uniquely affect their communities.''
    Today's action does not significantly or uniquely affect the 
communities of Indian tribal governments. This action does not involve 
or impose any requirements that affect Indian Tribes. Accordingly, the 
requirements of section 3(b) of Executive Order 13084 do not apply to 
this action.

    Authority: 15 U.S.C. 2682, 2684.

List of Subjects

    Environmental protection, Hazardous substances, Lead, Reporting and 
recordkeeping requirements.

    Dated: October 21, 1998.
William Yellowtail,
Regional Administrator, Region VIII.
[FR Doc. 98-28866 Filed 10-27-98; 8:45 am]
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