[Federal Register Volume 70, Number 28 (Friday, February 11, 2005)]
[Rules and Regulations]
[Pages 7182-7189]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 05-2711]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 300

[FRL-7871-9]


National Priorities List for Uncontrolled Hazardous Waste Sites

AGENCY: Environmental Protection Agency.

ACTION: Final rule.

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SUMMARY: The Comprehensive Environmental Response, Compensation, and 
Liability Act of 1980 (``CERCLA'' or ``the Act''), as amended, requires 
that the National Oil and Hazardous Substances Pollution Contingency 
Plan (``NCP'') include a list of national priorities among the known 
releases or threatened releases of hazardous substances, pollutants, or 
contaminants throughout the United States. The National Priorities List 
(``NPL'') constitutes this list. The NPL is intended primarily to guide 
the Environmental Protection Agency (``EPA'' or ``the Agency'') in 
determining which sites warrant further investigation. These further 
investigations will allow EPA to assess the nature and extent of public 
health and environmental risks associated with the site and to 
determine what CERCLA-financed remedial action(s), if any, may be 
appropriate. This rule adds one new site to the NPL Federal Facilities 
Section.

EFFECTIVE DATE: The effective date for this amendment to the NCP shall 
be March 14, 2005.

ADDRESSES: For addresses for the Headquarters and Regional dockets, as 
well as further details on what these dockets contain, see section II, 
``Availability of Information to the Public'' in the SUPPLEMENTARY 
INFORMATION portion of this preamble.

FOR FURTHER INFORMATION CONTACT: Terry Jeng, phone (703) 603-8852, 
State, Tribal and Site Identification Branch, Assessment and 
Remediation Division, Office of Superfund Remediation and Technology 
Innovation (Mail Code 5204G), U.S. Environmental Protection Agency, 
1200 Pennsylvania Avenue, NW., Washington, DC 20460; or the Superfund 
Hotline, phone (800) 424-9346 or (703) 412-9810 in the Washington, DC, 
metropolitan area.

SUPPLEMENTARY INFORMATION:

Table of Contents

I. Background
    A. What Are CERCLA and SARA?
    B. What Is the NCP?
    C. What Is the National Priorities List (NPL)?
    D. How Are Sites Listed on the NPL?
    E. What Happens to Sites on the NPL?
    F. Does the NPL Define the Boundaries of Sites?
    G. How Are Sites Removed From the NPL?
    H. May EPA Delete Portions of Sites From the NPL as They Are 
Cleaned Up?
    I. What Is the Construction Completion List (CCL)?
II. Availability of Information to the Public
    A. May I Review the Documents Relevant to This Final Rule?
    B. What Documents Are Available for Review at the Headquarters 
and Region 2 Dockets?
    C. How Do I Access the Documents?
    D. How May I Obtain a Current List of NPL Sites?
III. Contents of This Final Rule
    A. Addition to the NPL
    B. Status of NPL
    C. What Did EPA Do With the Public Comments It Received?
IV. Statutory and Executive Order Reviews
    A. Executive Order 12866: Regulatory Planning and Review
    1. What Is Executive Order 12866?
    2. Is This Final Rule Subject to Executive Order 12866 Review?
    B. Paperwork Reduction Act
    1. What Is the Paperwork Reduction Act?
    2. Does the Paperwork Reduction Act Apply to This Final Rule?
    C. Regulatory Flexibility Act
    1. What Is the Regulatory Flexibility Act?
    2. How Has EPA Complied With the Regulatory Flexibility Act?
    D. Unfunded Mandates
    1. What Is the Unfunded Mandates Reform Act (UMRA)?
    2. Does UMRA Apply to This Final Rule?
    E. Executive Order 13132: Federalism
    What Is Executive Order 13132 and Is It Applicable to This Final 
Rule?
    F. Executive Order 13175: Consultation and Coordination With 
Indian Tribal Governments
    1. What Is Executive Order 13175?
    2. Does Executive Order 13175 Apply to This Final Rule?
    G. Executive Order 13045: Protection of Children From 
Environmental Health and Safety Risks
    1. What Is Executive Order 13045?
    2. Does Executive Order 13045 Apply to This Final Rule?
    H. Executive Order 13211
    1. What Is Executive Order 13211?
    2. Is this Rule Subject to Executive Order 13211?
    I. National Technology Transfer and Advancement Act
    1. What is the National Technology Transfer and Advancement Act?
    2. Does the National Technology Transfer and Advancement Act 
Apply to This Final Rule?
    J. Possible Changes to the Effective Date of the Rule
    1. Has EPA Submitted This Rule to Congress and the General 
Accounting Office?
    2. Could the Effective Date of This Final Rule Change?
    3. What Could Cause a Change in the Effective Date of This Rule?

[[Page 7183]]

I. Background

A. What Are CERCLA and SARA?

    In 1980, Congress enacted the Comprehensive Environmental Response, 
Compensation, and Liability Act, 42 U.S.C. 9601-9675 (``CERCLA'' or 
``the Act''), in response to the dangers of uncontrolled releases or 
threatened releases of hazardous substances and releases or substantial 
threats of releases into the environment of any pollutant or 
contaminant which may present an imminent or substantial danger to the 
public health or welfare. CERCLA was amended on October 17, 1986, by 
the Superfund Amendments and Reauthorization Act (``SARA''), Public Law 
99-499, 100 Stat. 1613 et seq. As part of SARA, Congress created the 
Defense Environmental Restoration Program (DERP), 10 U.S.C. 2701, et 
seq., which authorized the Secretary of Defense to carry out 
restoration activities on current and former military facilities. Under 
Executive Order 12580, the Secretary of Defense exercises the 
President's authority under sections 104(a), (b) and (c)(4), 113(k), 
117(a) and (c), 119, and 121 of CERCLA with respect to releases or 
threatened releases where either the release is on or the sole source 
of the release is from any facility or vessel under the jurisdiction, 
custody, or control of the Department of Defense (DoD). The Secretary 
of Defense has delegated this authority to the Secretary of the Navy 
for sites the Department of the Navy controlled after 1986, which 
includes both the eastern and western portions of Vieques. The U.S. 
Army, through the U.S. Army Corps of Engineers (USACE), executes DERP's 
Formerly Used Defense Sites (FUDS) Program in accordance with CERCLA 
and the National Contingency Plan (NCP), and is authorized under this 
program to conduct investigation and response actions relating to areas 
on Culebra that were once under Defense jurisdiction.

B. What Is the NCP?

    To implement CERCLA, EPA promulgated the revised National Oil and 
Hazardous Substances Pollution Contingency Plan (``NCP''), 40 CFR part 
300, on July 16, 1982 (47 FR 31180), pursuant to CERCLA section 105 and 
Executive Order 12316 (46 FR 42237, August 20, 1981). The NCP sets 
guidelines and procedures for responding to releases and threatened 
releases of hazardous substances, or releases or substantial threats of 
releases into the environment of any pollutant or contaminant which may 
present an imminent or substantial danger to the public health or 
welfare. EPA has revised the NCP on several occasions. The most recent 
comprehensive revision was on March 8, 1990 (55 FR 8666).
    As required under section 105(a)(8)(A) of CERCLA, the NCP also 
includes ``criteria for determining priorities among releases or 
threatened releases throughout the United States for the purpose of 
taking remedial action and, to the extent practicable, taking into 
account the potential urgency of such action for the purpose of taking 
removal action.'' (``Removal'' actions are defined broadly and include 
a wide range of actions taken to study, clean up, prevent or otherwise 
address releases of hazardous substances, pollutants or contaminants 
(42 U.S.C. 9601(23)).

C. What Is the National Priorities List (NPL)?

    The NPL is a list of national priorities among the known or 
threatened releases of hazardous substances, pollutants, or 
contaminants throughout the United States. The list, which is appendix 
B of the NCP (40 CFR part 300), was required under section 105(a)(8)(B) 
of CERCLA, as amended by SARA. Section 105(a)(8)(B) defines the NPL as 
a list of ``releases'' and the highest priority ``facilities'' and 
requires that the NPL be revised at least annually. The NPL is intended 
primarily to guide EPA in determining which sites warrant further 
investigation to assess the nature and extent of public health and 
environmental risks associated with a release of hazardous substances, 
pollutants or contaminants. The NPL is only of limited significance, 
however, as it does not assign liability to any party or to the owner 
of any specific property. Neither does placing a site on the NPL mean 
that any remedial or removal action necessarily need be taken.
    For purposes of listing, the NPL includes two sections, one of 
sites that are generally evaluated and cleaned up by EPA (the ``General 
Superfund Section''), and one of sites that are owned or operated by 
other Federal agencies (the ``Federal Facilities Section''). With 
respect to sites in the Federal Facilities section, these sites are 
generally being addressed by other Federal agencies. Under Executive 
Order 12580 (52 FR 2923, January 29, 1987) and CERCLA section 120, each 
Federal agency is responsible for carrying out most response actions at 
facilities under its own jurisdiction, custody, or control, although 
EPA is responsible for preparing a Hazard Ranking System (HRS) score 
and determining whether the facility is placed on the NPL. EPA 
generally is not the lead agency at Federal Facilities Section sites, 
and its role at such sites is accordingly less extensive than at other 
sites.

D. How Are Sites Listed on the NPL?

    There are three mechanisms for placing sites on the NPL for 
possible remedial action (see 40 CFR 300.425(c) of the NCP): (1) A site 
may be included on the NPL if it scores sufficiently high on the Hazard 
Ranking System (``HRS''), which EPA promulgated as appendix A of the 
NCP (40 CFR part 300). The HRS serves as a screening device to evaluate 
the relative potential of uncontrolled hazardous substances to pose a 
threat to human health or the environment. On December 14, 1990 (55 FR 
51532), EPA promulgated revisions to the HRS partly in response to 
CERCLA section 105(c), added by SARA. The revised HRS evaluates four 
pathways: ground water, surface water, soil exposure, and air. As a 
matter of Agency policy, those sites that score 28.50 or greater on the 
HRS are eligible for the NPL. This listing proposal is not based on 
scoring pursuant to the HRS; (2) Pursuant to 42 U.S.C. 9605(a)(8)(B), 
each State may designate a single site as its top priority to be listed 
on the NPL, regardless of the HRS score. This mechanism, provided by 
the NCP at 40 CFR 300.425(c)(2) requires that, to the extent 
practicable, the NPL include within the 100 highest priorities, one 
facility designated by each State representing the greatest danger to 
public health, welfare, or the environment among known facilities in 
the State (see 42 U.S.C. 9605(a)(8)(B)). This is the option chosen by 
Puerto Rico for the Vieques and Culebra areas addressed in this listing 
proposal; (3) The third mechanism for listing, included in the NCP at 
40 CFR 300.425(c)(3), allows certain sites to be listed regardless of 
their HRS score, if all of the following conditions are met:
     The Agency for Toxic Substances and Disease Registry 
(ATSDR) of the U.S. Public Health Service has issued a health advisory 
that recommends dissociation of individuals from the release.
     EPA determines that the release poses a significant threat 
to public health.
     EPA anticipates that it will be more cost-effective to use 
its remedial authority than to use its removal authority to respond to 
the release.
    EPA promulgated an original NPL of 406 sites on September 8, 1983 
(48 FR 40658). The NPL has been expanded since then, most recently on 
September 23, 2004 (69 FR 56949).
    In addition, as a matter of policy, EPA may defer sites or portions 
of sites from the NPL. (See, e.g., 56 FR 5601-5602,

[[Page 7184]]

see also ``Guidance on Deferral of NPL Listing Determinations While 
States Oversee Response Actions,'' OSWER Directive 9375.6-11.)

E. What Happens to Sites on the NPL?

    A site may undergo remedial action financed by the Trust Fund 
established under CERCLA (commonly referred to as the ``Superfund'') 
only after it is placed on the NPL, as provided in the NCP at 40 CFR 
300.425(b)(1). (``Remedial actions'' are those ``consistent with 
permanent remedy, taken instead of or in addition to removal actions * 
* *.'' 42 U.S.C. 9601(24).) However, under 40 CFR 300.425(b)(2) placing 
a site on the NPL ``does not imply that monies will be expended.'' EPA 
may pursue other appropriate authorities to respond to the releases, 
including enforcement action under CERCLA and other laws. Response 
activities undertaken by DoD components pursuant to DERP receive their 
funding from specific environmental restoration accounts under 10 
U.S.C. 2703, not from the Trust Fund.

F. Does the NPL Define Boundaries of Sites?

    The NPL does not describe releases in precise geographical terms; 
it would be neither feasible nor consistent with the limited purpose of 
the NPL (to identify releases that are priorities for further 
evaluation), for it to do so.
    Although a CERCLA ``facility'' is broadly defined to include any 
area where a hazardous substance has ``come to be located'' (CERCLA 
section 101(9)), the listing process itself is not intended to define 
or reflect the boundaries of such facilities or releases. Of course, 
HRS data (if the HRS is used to list a site) upon which the NPL 
placement was based will, to some extent, describe the release(s) at 
issue. That is, the NPL site would include all releases evaluated as 
part of that HRS analysis. Because Puerto Rico is adding certain areas 
on and around Vieques and Culebra as the Commonwealth's ``single 
highest priority facility'' pursuant to 42 U.S.C. 9605(a)(8)(B), no HRS 
analysis is applicable to this listing.
    When a site is listed, the approach generally used to describe the 
relevant release(s) is to delineate a geographical area (usually the 
area within an installation or plant boundaries) and identify the site 
by reference to that area. As a legal matter, the site is not 
coextensive with that area, and the boundaries of the installation or 
plant are not the ``boundaries'' of the site. Rather, the site consists 
of all contaminated areas within the area used to identify the site, as 
well as any other location to which that contamination has come to be 
located, or from which that contamination came.
    In other words, while geographic terms are often used to designate 
the site (e.g., the ``Jones Co. plant site'') in terms of the property 
owned by a particular party, the site properly understood is not 
limited to that property (e.g., it may extend beyond the property due 
to contaminant migration), and conversely may not occupy the full 
extent of the property (e.g., where there are uncontaminated parts of 
the identified property, they may not be, strictly speaking, part of 
the ``site''). The ``site'' is thus neither equal to nor confined by 
the boundaries of any specific property that may give the site its 
name, and the name itself should not be read to imply that this site is 
coextensive with the entire area within the property boundary of the 
installation or plant. The precise nature and extent of the site are 
typically not known at the time of listing. Also, the site name is 
merely used to help identify the geographic location of the 
contamination. For example, the name ``Jones Co. plant site,'' does not 
imply that the Jones company is responsible for the contamination 
located on the plant site.
    EPA regulations provide that the ``nature and extent of the problem 
presented by the release'' will be determined by a Remedial 
Investigation/Feasibility Study (RI/FS) as more information is 
developed on site contamination (40 CFR 300.5). During the RI/FS 
process, the release may be found to be larger or smaller than was 
originally thought, as more is learned about the source(s) and the 
migration of the contamination. However, this inquiry focuses on an 
evaluation of the threat posed; the boundaries of the release need not 
be exactly defined. Moreover, it generally is impossible to discover 
the full extent of where the contamination ``has come to be located'' 
before all necessary studies and remedial work are completed at a site. 
Indeed, the boundaries of the contamination can be expected to change 
over time. Thus, in most cases, it may be impossible to describe the 
boundaries of a release with absolute certainty.
    Further, as noted above, NPL listing does not assign liability to 
any party or to the owner of any specific property. Thus, if a party 
does not believe it is liable for releases on discrete parcels of 
property, supporting information can be submitted to the Agency at any 
time after a party receives notice it is a potentially responsible 
party.
    For these reasons, the NPL need not be amended as further research 
reveals more information about the location of the contamination or 
release.

G. How Are Sites Removed From the NPL?

    EPA may delete sites from the NPL where no further response is 
appropriate under Superfund, as explained in the NCP at 40 CFR 
300.425(e). This section also provides that EPA shall consult with 
states on proposed deletions and shall consider whether any of the 
following criteria have been met:
    (i) Responsible parties or other persons have implemented all 
appropriate response actions required;
    (ii) All appropriate Superfund-financed response has been 
implemented and no further response action is required; or
    (iii) The remedial investigation has shown the release poses no 
significant threat to public health or the environment, and taking of 
remedial measures is not appropriate. As of January 10, 2005, the 
Agency has deleted 292 sites from the NPL.

H. May EPA Delete Portions of Sites From the NPL as They Are Cleaned 
Up?

    In November 1995, EPA initiated a new policy to delete portions of 
NPL sites where cleanup is complete (60 FR 55465, November 1, 1995). 
Total site cleanup may take many years, while portions of the site may 
have been cleaned up and available for productive use. As of January 
10, 2005, EPA has deleted 48 portions of 40 sites.

I. What Is the Construction Completion List (CCL)?

    EPA also has developed an NPL construction completion list 
(``CCL'') to simplify its system of categorizing sites and to better 
communicate the successful completion of cleanup activities (58 FR 
12142, March 2, 1993). Inclusion of a site on the CCL has no legal 
significance.
    Sites qualify for the CCL when: (1) Any necessary physical 
construction is complete, whether or not final cleanup levels or other 
requirements have been achieved; (2) EPA has determined that the 
response action should be limited to measures that do not involve 
construction (e.g., institutional controls); or (3) the site qualifies 
for deletion from the NPL.
    As of January 10, 2005, there are a total of 927 sites on the CCL. 
For the most up-to-date information on the CCL, see EPA's Internet site 
at http://www.epa.gov/superfund.

[[Page 7185]]

II. Availability of Information to the Public

A. May I Review the Documents Relevant to This Final Rule?

    Yes, documents that form the basis for evaluations by EPA 
concerning the site in this rule are contained in public dockets 
located both at EPA Headquarters in Washington, DC and in the Region 2 
office in New York City.
    An electronic version of the public docket is available through 
EPA's electronic public docket and comment system, EPA Dockets. You may 
use EPA Dockets at http://www.epa.gov/edocket/ to view public comments, 
access the index listing of the contents of the official public docket, 
and to access those documents in the public docket that are available 
electronically. Once in the system, select ``Quick Search,'' then key 
in the appropriate docket identification number; SFUND-2004-0011. 
(Although not all docket materials may be available electronically, you 
may still access any of the publicly available docket materials through 
the docket facilities identified below in section II. C.)

B. What Documents Are Available for Public Review at the Headquarters 
and Region 2 Dockets?

    The Headquarters and Region 2 dockets for this rule contain: The 
June 13, 2003 letter from Governor Sila M. Calderon of Puerto Rico 
designating certain areas on and around Vieques and Culebra, identified 
by the Governor as AFWTA, as her highest priority facility and 
requesting listing of AFWTA on the NPL; additional letters from Puerto 
Rico clarifying the June 13, 2003 letter; maps; ecological information 
for Vieques and Culebra; Corps of Engineers Archive search for Culebra; 
and Navy supporting material.
    The Headquarters and Region 2 dockets also contain comments 
received, and the Agency's responses to those comments. The Agency's 
responses are contained in the ``Support Document for the Revised 
National Priorities List Final Rule--February 2005''. An electronic 
version is available at http://www.epa.gov/edocket/ using the docket 
identification number SFUND-2004-0011.

C. How Do I Access the Documents?

    You may view the documents, by appointment only, after the 
publication of this rule. The hours of operation for the Headquarters 
docket are from 8:30 a.m. to 4:30 p.m., Monday through Friday, 
excluding Federal holidays.
    Following is the contact information for the EPA Headquarters: 
Docket Coordinator, Headquarters; U.S. Environmental Protection Agency; 
CERCLA Docket Office; 1301 Constitution Avenue; EPA West, Room B102, 
Washington, DC 20004; 202/566-0276.
    The contact information for the Region 2 docket is as follows: 
Dennis Munhall, U.S. EPA Region 2, 290 Broadway, New York, NY 10007-
1866; 212/637-4343; [email protected].

D. How May I Obtain a Current List of NPL Sites?

    You may obtain a current list of NPL sites via the Internet at 
http://www.epa.gov/superfund/ (look under the Superfund sites category) 
or by contacting the Superfund Docket (see contact information above).

III. Contents of This Final Rule

A. Addition to the NPL

    This final rule adds the Vieques portion of the Atlantic Fleet 
Weapons Training Area (AFWTA) to the Federal Facilities section of the 
NPL.
    Pursuant to section 105(a)(8)(B) of CERCLA, Puerto Rico requested 
that EPA list certain areas on and around Vieques and Culebra, 
identified by the Governor as the AFWTA, on the NPL. The AFWTA includes 
certain land areas, waters and keys in and around the islands of 
Vieques and Culebra where military exercises carried out primarily by 
the Department of Defense have potentially left CERCLA hazardous 
substances, pollutants or contaminants.
    Section 105(a)(8)(B) of CERCLA provides that the NPL ``to the 
extent practicable, shall include among the one hundred highest 
priority facilities one such facility from each State which shall be 
the facility designated by the State as presenting the greatest danger 
to public health or welfare or the environment among the known 
facilities in such State. A State shall be allowed to designate its 
highest priority facility only once.'' In a letter from Governor Sila 
M. Calderon to former EPA Administrator Christine Todd Whitman, dated 
June 13, 2003, Puerto Rico designated the AFWTA, comprising certain 
areas of concern in and around Vieques and Culebra as the 
Commonwealth's single highest priority facility (``State pick'') and 
requested that EPA list the AFWTA on the NPL. Puerto Rico clarified its 
designation in letters dated October 21, 2003, and July 28, 2004, with 
respect to both Vieques and Culebra, and May 26, 2004, with respect to 
Vieques. On August 13, 2004, EPA proposed to add AFWTA to the NPL which 
initiated a 60 day public comment period. During this time, EPA and the 
Government of Puerto Rico held four public information sessions in 
Puerto Rico, including sessions on the islands of Vieques and Culebra. 
In the Rule proposing AFWTA to the NPL, EPA sought comment on treating 
the noncontiguous islands of Vieques and Culebra as one facility 
considering court decisions such as Mead Corp. v. Browner, 100 F.3d. 
152 (D.C. Cir. 1996). The Mead court rejected EPA's attempt to treat 
non-contiguous sites as one NPL site in a case in which one of the 
sites qualified for listing on the basis of an ATSDR advisory. The only 
rationale presented for combining the two sites for the purposes of the 
listing was that there were joint operations carried out at the two 
sites. In the Mead case, EPA had relied on a 1984 aggregation policy 
(49 FR 37070 (September 21, 1984)) that was premised on language in 
section 104(d)(4) of CERCLA which authorizes EPA to treat non-
contiguous facilities as one for purposes of section 104. EPA no longer 
relies on the 1984 aggregation policy in the listing context.
    EPA also solicited comment on an approach that would separate the 
final listing decision for Culebra from the final listing decision for 
Vieques. Under such an approach, EPA would go forward with a final rule 
listing on Vieques and postpone the final listing decision of Culebra 
to allow the completion of a Memorandum of Agreement between Puerto 
Rico and Army. The Memorandum of Agreement would govern the response 
actions necessary to protect Culebra's human health and environment. 
The terms or progress under such agreement may determine the point at 
which it may be appropriate to withdraw the proposal to list the 
Culebra areas.
    The Culebra portions of the proposal consist of land and water 
areas identified by Puerto Rico that were owned by, leased to, or 
otherwise utilized by the United States and under the jurisdiction of 
the Secretary of Defense that potentially contain CERCLA hazardous 
substances, pollutants or contaminants left from past military 
activities. These land areas and associated water areas include, but 
are not limited to, the following: The Flamenco Peninsula (Northwest 
Peninsula), Alcarraza Cay (Fungy Bowl), Los Gemelos (Twin Rocks), Cayo 
del Agua, Culebrita, Cayos Geniqui (Palada Cays), Cayo Tiburon (Shark 
Cay), Cayo Botella (Ladrone Cay), and a former mortar range Area in 
Culebra's Cerro Balcon region. Vieques includes all areas agreed to by 
Puerto Rico and the Navy in a May 26, 2004, letter to EPA, and that 
potentially contain CERCLA

[[Page 7186]]

hazardous substances, pollutants or contaminants left from past 
military activities. For more detailed information on the Vieques 
portions, please refer to the May 26, 2004, letter with attached maps 
in the Docket (Docket ID No. SFUND-2004-0011). The description of the 
facility may change as more information is gathered on the nature and 
extent of contamination.
    This Rule adds the Vieques portions of AFWTA to the NPL. At this 
time, due to the pending negotiations between the Commonwealth of 
Puerto Rico and the Army, EPA has elected to take no action on the 
final listing decision for Culebra, including on whether Vieques and 
Culebra can be treated as one facility in light of court decisions such 
as Mead. On October 28, 2004, Raymond J. Fatz, Deputy Assistant 
Secretary of the Army, and Esteban Mujica-Cotto, President of the 
Environmental Quality Board of the Commonwealth of Puerto Rico, signed 
a Preliminary Points of Agreement document to facilitate current and 
future discussions regarding environmental activities on Culebra that 
were included in the AFWTA proposal. This preliminary agreement is 
anticipated to result in a Memorandum of Agreement (MOA) between the 
Commonwealth and the Department of the Army which will govern the 
process for further investigation and cleanup of the Culebra. The 
foregoing approach was described in the NPL proposed Federal Register 
document (69 FR 50115).

B. Status of NPL

    With today's addition, the NPL now contains 1,237 sites; 1,079 in 
the General Superfund Section and 158 in the Federal Facilities 
Section. In addition, there are now 68 sites proposed and awaiting 
final agency action, 61 in the General Superfund Section and seven in 
the Federal Facilities Section. Final and proposed sites now total 
1,305. (These numbers reflect the status of sites as of January 10, 
2005. Site deletions occurring after this date may affect these numbers 
at time of publication in the Federal Register.)

C. What Did EPA Do With the Public Comments It Received?

    The Atlantic Fleet Weapons Training Area (AFWTA) was proposed to 
the NPL on August 13, 2004 (69 FR 50115). EPA received over 2,400 
comments relating to the proposal of AFWTA to the NPL. Of these 
comments, approximately 99% were in favor of the NPL designation for 
AFWTA.
    EPA responded to all relevant comments received on this site and 
EPA's responses to the site-specific comments are addressed in the 
``Support Document for the Revised National Priorities List Final 
Rule--February 2005.'' The comments and the support document are 
contained in the Headquarters and Region 2 Dockets and are also listed 
in EPA's electronic public docket and comment system at http:/
www.epa.gov/edocket/ using the SFUND-2004-0011 identification number. 
This information is also available in repositories in San Juan, 
Vieques, and Culebra Puerto Rico.

IV. Statutory and Executive Order Reviews

A. Executive Order 12866: Regulatory Planning and Review

1. What Is Executive Order 12866?
    Under Executive Order 12866, (58 FR 51735 (October 4, 1993)) the 
Agency must determine whether a regulatory action is ``significant'' 
and therefore subject to Office of Management and Budget (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 
communities; (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.
2. Is This Final Rule Subject to Executive Order 12866 Review?
    No. The listing of sites on the NPL does not impose any obligations 
on any entities. The listing does not set standards or a regulatory 
regime and imposes no liability or costs. Any liability under CERCLA 
exists irrespective of whether a site is listed. It has been determined 
that this action is not a ``significant regulatory action'' under the 
terms of Executive Order 12866 and is therefore not subject to OMB 
review.

B. Paperwork Reduction Act

1. What Is the Paperwork Reduction Act?
    According to the Paperwork Reduction Act (PRA), 44 U.S.C. 3501 et 
seq., an agency may not conduct or sponsor, and a person is not 
required to respond to a collection of information that requires OMB 
approval under the PRA, unless it has been approved by OMB and displays 
a currently valid OMB control number. The OMB control numbers for EPA's 
regulations, after initial display in the preamble of the final rules, 
are listed in 40 CFR part 9. The information collection requirements 
related to this action have already been approved by OMB pursuant to 
the PRA under OMB control number 2070-0012 (EPA ICR No. 574).
2. Does the Paperwork Reduction Act Apply to This Final Rule?
    No. EPA has determined that the PRA does not apply because this 
rule does not contain any information collection requirements that 
require approval of the OMB.

C. Regulatory Flexibility Act

1. What Is the Regulatory Flexibility Act?
    Pursuant to the Regulatory Flexibility Act (5 U.S.C. 601 et seq., 
as amended by the Small Business Regulatory Enforcement Fairness Act 
(SBREFA) of 1996) whenever an agency is required to publish a notice of 
rulemaking for any proposed or final rule, it must prepare and make 
available for public comment a regulatory flexibility analysis that 
describes the effect of the rule on small entities (i.e., small 
businesses, small organizations, and small governmental jurisdictions). 
However, no regulatory flexibility analysis is required if the head of 
an agency certifies the rule will not have a significant economic 
impact on a substantial number of small entities. SBREFA amended the 
Regulatory Flexibility Act to require Federal agencies to provide a 
statement of the factual basis for certifying that a rule will not have 
a significant economic impact on a substantial number of small 
entities.
2. How Has EPA Complied With the Regulatory Flexibility Act?
    This rule which adds a site to the NPL, does not impose any 
obligations on any group, including small entities. This rule also 
establishes no standards or requirements that any small entity must 
meet, and imposes no direct costs on any small entity. Whether an 
entity, small or otherwise, is liable for response costs for a release 
or threatened release

[[Page 7187]]

of hazardous substances and releases or substantial threats of releases 
into the environment of any pollutant or contaminant which may present 
an imminent or substantial danger to the public health or welfare 
depends on whether that entity is liable under CERCLA 107(a). Any such 
liability exists regardless of whether the site is listed on the NPL 
through this rulemaking. Thus, this rule does not impose any 
requirements on any small entities. For the foregoing reasons, I 
certify that this final rule does not have a significant economic 
impact on a substantial number of small entities.

D. Unfunded Mandates Reform Act

1. What Is the Unfunded Mandates Reform Act (UMRA)?
    Title II of the Unfunded Mandates Reform Act of 1995 (UMRA), Public 
Law 104-4, establishes requirements for Federal agencies to assess the 
effects of their regulatory actions on State, local, and tribal 
governments and the private sector. Under section 202 of the UMRA, EPA 
generally must prepare a written statement, including a cost-benefit 
analysis, for proposed and final rules with ``Federal mandates'' that 
may result in expenditures by State, local, and tribal governments, in 
the aggregate, or by the private sector, of $100 million or more in any 
one year. Before EPA promulgates a rule for which a written statement 
is needed, section 205 of the UMRA generally requires EPA to identify 
and consider a reasonable number of regulatory alternatives and adopt 
the least costly, most cost-effective, or least burdensome alternative 
that achieves the objectives of the rule. The provisions of section 205 
do not apply when they are inconsistent with applicable law. Moreover, 
section 205 allows EPA to adopt an alternative other than the least 
costly, most cost-effective, or least burdensome alternative if the 
Administrator publishes with the final rule an explanation why that 
alternative was not adopted. Before EPA establishes any regulatory 
requirements that may significantly or uniquely affect small 
governments, including tribal governments, it must have developed under 
section 203 of the UMRA a small government agency plan. The plan must 
provide for notifying potentially affected small governments, enabling 
officials of affected small governments to have meaningful and timely 
input in the development of EPA regulatory proposals with significant 
Federal intergovernmental mandates, and informing, educating, and 
advising small governments on compliance with the regulatory 
requirements.
2. Does UMRA Apply to This Final Rule?
    No, EPA has determined that this rule does not contain a Federal 
mandate that may result in expenditures of $100 million or more for 
State, local, and tribal governments in the aggregate, or by the 
private sector in any one year. This rule will not impose any Federal 
intergovernmental mandate because it imposes no enforceable duty upon 
State, tribal or local governments. Listing a site on the NPL does not 
itself impose any costs. Listing does not mean that EPA or other 
Federal agencies or private parties will undertake remedial action. Nor 
does listing require any action by a private party or determine 
liability for response costs. Costs that arise out of site responses 
result from site-specific decisions regarding what actions to take, not 
directly from the act of listing a site on the NPL.
    For the same reasons, EPA also has determined that this rule 
contains no regulatory requirements that might significantly or 
uniquely affect small governments. In addition, as discussed above, the 
private sector is not expected to incur costs exceeding $100 million. 
EPA has fulfilled the requirement for analysis under the Unfunded 
Mandates Reform Act.

E. Executive Order 13132: Federalism

What Is Executive Order 13132 and Is It Applicable to This Final Rule?
    Executive Order 13132, entitled ``Federalism'' (64 FR 43255, August 
10, 1999), requires EPA to develop an accountable process to ensure 
``meaningful and timely input by State and local officials in the 
development of regulatory policies that have federalism implications.'' 
``Policies that have federalism implications'' is defined in the 
Executive Order to include regulations that have ``substantial direct 
effects on the States, on the relationship between the national 
government and the States, or on the distribution of power and 
responsibilities among the various levels of government.''
    Under section 6 of Executive Order 13132, EPA may not issue a 
regulation that has federalism implications, that imposes substantial 
direct compliance costs, and that is not required by statute, unless 
the Federal government provides the funds necessary to pay the direct 
compliance costs incurred by State and local governments, or EPA 
consults with State and local officials early in the process of 
developing the proposed regulation. EPA also may not issue a regulation 
that has federalism implications and that preempts State law, unless 
the Agency consults with State and local officials early in the process 
of developing the proposed regulation.
    This rule does not have federalism implications. It will not have 
substantial direct effects on the States (including the Commonwealth of 
Puerto Rico), on the relationship between the Federal government and 
the States and the Commonwealth, or on the distribution of power and 
responsibilities among the various levels of government, as specified 
in Executive Order 13132. Thus, the requirements of section 6 of the 
Executive Order do not apply to this rule.

F. Executive Order 13175: Consultation and Coordination With Indian 
Tribal Governments

1. What Is Executive Order 13175?
    Executive Order 13175, entitled ``Consultation and Coordination 
with Indian Tribal Governments'' (65 FR 67249, November 6, 2000), 
requires EPA to develop an accountable process to ensure ``meaningful 
and timely input by tribal officials in the development of regulatory 
policies that have tribal implications.'' ``Policies that have tribal 
implications'' is defined in the Executive Order to include regulations 
that have ``substantial direct effects on one or more Indian tribes, on 
the relationship between the Federal government and the Indian tribes, 
or on the distribution of power and responsibilities between the 
Federal government and Indian tribes.''
2. Does Executive Order 13175 Apply to This Final Rule?
    This rule does not have tribal implications. It will not have 
substantial direct effects on tribal governments, on the relationship 
between the Federal government and Indian tribes, or on the 
distribution of power and responsibilities between the Federal 
government and Indian tribes, as specified in Executive Order 13175. 
Thus, Executive Order 13175 does not apply to this rule.

G. Executive Order 13045: Protection of Children From Environmental 
Health and Safety Risks

1. What Is Executive Order 13045?
    Executive Order 13045: ``Protection of Children from Environmental 
Health Risks and Safety Risks'' (62 FR 19885, April 23, 1997) applies 
to any rule that: (1) Is determined to be ``economically significant'' 
as defined under Executive Order 12866, and (2) concerns an

[[Page 7188]]

environmental health or safety risk that EPA has reason to believe may 
have a disproportionate effect on children. If the regulatory action 
meets both criteria, the Agency must evaluate the environmental health 
or safety effects of the planned rule on children, and explain why the 
planned regulation is preferable to other potentially effective and 
reasonably feasible alternatives considered by the Agency.
2. Does Executive Order 13045 Apply to This Final Rule?
    This final rule is not subject to Executive Order 13045 because it 
is not an economically significant rule as defined by Executive Order 
12866, and because the Agency does not have reason to believe the 
environmental health or safety risks addressed by this rule present a 
disproportionate risk to children.

H. Executive Order 13211

1. What Is Executive Order 13211?
    Executive Order 13211, ``Actions Concerning Regulations That 
Significantly Affect Energy Supply, Distribution, or Use'' (66 FR 28355 
(May 22, 2001), requires EPA to prepare and submit a Statement of 
Energy Effects to the Administrator of the Office of Information and 
Regulatory Affairs, Office of Management and Budget, for certain 
actions identified as ``significant energy actions.'' Section 4(b) of 
Executive Order 13211 defines ``significant energy actions'' as ``any 
action by an agency (normally published in the Federal Register) that 
promulgates or is expected to lead to the promulgation of a final rule 
or regulation, including notices of inquiry, advance notices of 
proposed rulemaking, and notices of proposed rulemaking: (1)(i) That is 
a significant regulatory action under Executive Order 12866 or any 
successor order, and (ii) is likely to have a significant adverse 
effect on the supply, distribution, or use of energy; or (2) that is 
designated by the Administrator of the Office of Information and 
Regulatory Affairs as a significant energy action.''
2. Is This Rule Subject to Executive Order 13211?
    This final rule is not subject to Executive Order 13211, ``Actions 
Concerning Regulations That Significantly Affect Energy Supply, 
Distribution, or Use'' (66 FR 28355 (May 22, 2001)) because it is not a 
significant regulatory action under Executive Order 12866. (See 
discussion of Executive Order 12866 above.)

I. National Technology Transfer and Advancement Act

1. What Is the National Technology Transfer and Advancement Act?
    Section 12(d) of the National Technology Transfer and Advancement 
Act of 1995 (NTTAA), Public Law 104-113, section 12(d) (15 U.S.C. 272 
note), directs EPA to use voluntary consensus standards in its 
regulatory activities unless to do so would be inconsistent with 
applicable law or otherwise impractical. Voluntary consensus standards 
are technical standards (e.g., materials specifications, test methods, 
sampling procedures, and business practices) that are developed or 
adopted by voluntary consensus standards bodies. The NTTAA directs EPA 
to provide Congress, through OMB, explanations when the Agency decides 
not to use available and applicable voluntary consensus standards.
2. Does the National Technology Transfer and Advancement Act Apply to 
This Final Rule?
    No. This final rulemaking does not involve technical standards. 
Therefore, EPA did not consider the use of any voluntary consensus 
standards.

J. Possible Changes to the Effective Date of the Rule

1. Has EPA Submitted This Rule to Congress and the General Accounting 
Office?
    The Congressional Review Act, 5 U.S.C. 801 et seq., as added by the 
Small Business Regulatory Enforcement Fairness Act of 1996, generally 
provides that before a rule may take effect, the agency promulgating 
the rule must submit a rule report, which includes a copy of the rule, 
to each House of the Congress and to the Comptroller General of the 
United States. EPA has submitted a report containing this rule and 
other required information to the U.S. Senate, the U.S. House of 
Representatives, and the Comptroller General of the United States prior 
to publication of the rule in the Federal Register. A ``major rule'' 
cannot take effect until 60 days after it is published in the Federal 
Register. This rule is not a ``major rule'' as defined by 5 U.S.C. 
804(2).
2. Could the Effective Date of This Final Rule Change?
    Provisions of the Congressional Review Act (CRA) or section 305 of 
CERCLA may alter the effective date of this regulation. Under the CRA, 
5 U.S.C. 801(a), before a rule can take effect the Federal agency 
promulgating the rule must submit a report to each House of the 
Congress and to the Comptroller General. This report must contain a 
copy of the rule, a concise general statement relating to the rule 
(including whether it is a major rule), a copy of the cost-benefit 
analysis of the rule (if any), the agency's actions relevant to 
provisions of the Regulatory Flexibility Act (affecting small 
businesses) and the Unfunded Mandates Reform Act of 1995 (describing 
unfunded Federal requirements imposed on State and local governments 
and the private sector), and any other relevant information or 
requirements and any relevant Executive Orders.
    EPA has submitted a report under the CRA for this rule. The rule 
will take effect, as provided by law, within 30 days of publication of 
this document, since it is not a major rule. Section 804(2) defines a 
major rule as any rule that the Administrator of the Office of 
Information and Regulatory Affairs (OIRA) of the Office of Management 
and Budget (OMB) finds has resulted in or is likely to result in: an 
annual effect on the economy of $100,000,000 or more; a major increase 
in costs or prices for consumers, individual industries, Federal, 
State, or local government agencies, or geographic regions; or 
significant adverse effects on competition, employment, investment, 
productivity, innovation, or on the ability of United States-based 
enterprises to compete with foreign-based enterprises in domestic and 
export markets. NPL listing is not a major rule because, as explained 
above, the listing, itself, imposes no monetary costs on any person. It 
establishes no enforceable duties, does not establish that EPA 
necessarily will undertake remedial action, nor does it require any 
action by any party or determine its liability for site response costs. 
Costs that arise out of site responses result from site-by-site 
decisions about what actions to take, not directly from the act of 
listing itself. Section 801(a)(3) provides for a delay in the effective 
date of major rules after this report is submitted.
3. What Could Cause a Change in the Effective Date of This Rule?
    Under 5 U.S.C. 801(b)(1) a rule shall not take effect, or continue 
in effect, if Congress enacts (and the President signs) a joint 
resolution of disapproval, described under section 802.
    Another statutory provision that may affect this rule is CERCLA 
section 305, which provides for a legislative veto of regulations 
promulgated under CERCLA. Although INS v. Chadha, 462 U.S. 919,103 S. 
Ct. 2764 (1983) and Bd. of Regents of the University of Washington v. 
EPA, 86 F.3d 1214, 1222

[[Page 7189]]

(D.C. Cir. 1996) cast the validity of the legislative veto into 
question, EPA has transmitted a copy of this regulation to the 
Secretary of the Senate and the Clerk of the House of Representatives. 
If action by Congress under either the CRA or CERCLA section 305 calls 
the effective date of this regulation into question, EPA will publish a 
document of clarification in the Federal Register.

List of Subjects in 40 CFR Part 300

    Environmental protection, Air pollution control, Chemicals, 
Hazardous substances, Hazardous waste, Intergovernmental relations, 
Natural resources, Oil pollution, Penalties, Reporting and 
recordkeeping requirements, Superfund, Water pollution control, Water 
supply.

    Dated: February 7, 2005.
Barry N. Breen,
Principal Deputy Assistant Administrator, Office of Solid Waste and 
Emergency Response.

0
40 CFR part 300 is amended as follows:

PART 300--[AMENDED]

0
1. The authority citation for part 300 continues to read as follows:

    Authority: 33 U.S.C. 1321(c)(2); 42 U.S.C. 9601-9657; E.O. 
12777, 56 FR 54757, 3 CFR, 1991 Comp., p. 351; E.O. 12580, 52 FR 
2923, 3 CFR, 1987 Comp., p. 193.

0
2. Table 2 of Appendix B to part 300 is amended by adding the following 
facility to read as follows:

Appendix B to Part 300--National Priorities List

                                                          TABLE 2.--Federal Facilities Section
--------------------------------------------------------------------------------------------------------------------------------------------------------
               State                                   Site name                               City/County                          Notes(a)
--------------------------------------------------------------------------------------------------------------------------------------------------------
 
                                                                      * * * * * * *
PR................................  Atlantic Fleet Weapons Training Area--Vieques.  Island of Vieques\1\.............  S
 
                                                                     * * * * * * *
--------------------------------------------------------------------------------------------------------------------------------------------------------
\1\ Only the Vieques portions of the AFWTA are included in Appendix B to Part 300, the National Priorities List. The Culebra portions of the AFWTA (that
  were included in the NPL proposal AFWTA on August 13, 2004) are not included at this time due to ongoing negotiations between the Commonwealth of
  Puerto Rico and the Department of the Army.
Notes:
A = Based on issuance of health advisory by Agency for Toxic Substance and Disease Registry (if scored, HRS score need not be 28.50).
C = Sites on Construction Completion list.
S = State top priority (included among the 100 top priority sites regardless of score).
P = Sites with partial deletion(s).

* * * * *

[FR Doc. 05-2711 Filed 2-10-05; 8:45 am]
BILLING CODE 6560-50-P