[Federal Register Volume 75, Number 185 (Friday, September 24, 2010)]
[Notices]
[Pages 58377-58378]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2010-24025]


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ENVIRONMENTAL PROTECTION AGENCY

[EPA-HQ-OPPT-2010-0681; FRL-8847-5]


Lead in Ammunition and Fishing Sinkers; Disposition of TSCA 
Section 21 Petition

AGENCY: Environmental Protection Agency (EPA).

ACTION: Notice.

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SUMMARY: On August 3, 2010, several groups filed a petition under the 
Toxic Substances Control Act (TSCA) section 21 requesting that EPA 
prohibit under TSCA section 6(a) the manufacture, processing, and 
distribution in commerce of (1) lead bullets and shot; and (2) lead 
fishing sinkers. On August 27, 2010, EPA denied the first request due 
to a lack of authority to regulate lead in bullets and shot under TSCA. 
EPA's decision is based on the exclusion of shells and cartridges from 
the definition of ``chemical substance'' in TSCA section 3(2)(B)(v). 
EPA is still considering the second request and will respond to that 
portion of the petition within the 90-day period provided in section 21 
of TSCA. This notice explains EPA's reasons for the denial of the 
request specific to lead bullets and shot.

FOR FURTHER INFORMATION CONTACT: For technical information contact: 
Christina Wadlington, National Program Chemicals Division (7404T), 
Office of Pollution Prevention and Toxics, Environmental Protection 
Agency, 1200 Pennsylvania Ave., NW., Washington, DC 20460-0001; 
telephone number: (202) 566-1859; e-mail address: 
[email protected].
    For general information contact: The TSCA-Hotline, ABVI-Goodwill, 
422 South Clinton Ave., Rochester, NY 14620; telephone number: (202) 
554-1404; e-mail address: [email protected].

SUPPLEMENTARY INFORMATION: 

I. General Information

A. Does this action apply to me?

    This action is directed to the public in general. This action may, 
however, be of interest to you if you manufacture, process, import, or 
distribute in commerce lead shot or bullets. If you have any questions 
regarding this action, consult the technical person listed under FOR 
FURTHER INFORMATION CONTACT.

B. How can I get copies of this document and other related information?

    EPA has established a docket for this action under docket 
identification (ID)

[[Page 58378]]

number EPA-HQ-OPPT-2010-0681. All documents in the docket are listed in 
the docket index available at http://www.regulations.gov. Although 
listed in the index, some information is not publicly available, e.g., 
Confidential Business Information (CBI) or other information whose 
disclosure is restricted by statute. Certain other material, such as 
copyrighted material, will be publicly available only in hard copy. 
Publicly available docket materials are available electronically at 
http://www.regulations.gov, or, if only available in hard copy, at the 
OPPT Docket. The OPPT Docket is located in the EPA Docket Center (EPA/
DC) at Rm. 3334, EPA West Bldg., 1301 Constitution Ave., NW., 
Washington, DC. The EPA/DC Public Reading Room hours of operation are 
8:30 a.m. to 4:30 p.m., Monday through Friday, excluding legal 
holidays. The telephone number of the EPA/DC Public Reading Room is 
(202) 566-1744, and the telephone number for the OPPT Docket is (202) 
566-0280. Docket visitors are required to show photographic 
identification, pass through a metal detector, and sign the EPA visitor 
log. All visitor bags are processed through an X-ray machine and 
subject to search. Visitors will be provided an EPA/DC badge that must 
be visible at all times in the building and returned upon departure.

II. Background

A. What is a TSCA section 21 petition?

    Under section 21 of TSCA (15 U.S.C. 2042), any person can petition 
EPA to initiate a rulemaking proceeding for the issuance, amendment, or 
repeal of a rule under TSCA section 4, 6, or 8 or an order under TSCA 
section 5(e) or 6(b)(2). A TSCA section 21 petition must set forth the 
facts that are claimed to establish the necessity for the action 
requested. EPA is required to grant or deny the petition within 90 days 
of its filing. If EPA grants the petition, the Agency must promptly 
commence an appropriate proceeding. If EPA denies the petition, the 
Agency must publish its reasons for the denial in the Federal Register. 
A petitioner may commence a civil action in a U.S. district court to 
compel initiation of the requested rulemaking proceeding within 60 days 
of either a denial or, if the Agency does not resolve the petition, the 
expiration of the 90-day period.

B. What criteria apply to a decision on a TSCA section 21 petition?

    Section 21(b)(1) of TSCA requires that the petition ``set forth the 
facts which it is claimed establish that it is necessary'' to issue the 
rule or order requested. 15 U.S.C. 2620(b)(1). Thus, TSCA section 21 
implicitly incorporates the statutory standards that apply to the 
requested actions. In addition, TSCA section 21 establishes standards a 
court must use to decide whether to order EPA to initiate rulemaking in 
the event of a lawsuit filed by the petitioner after denial of a TSCA 
section 21 petition. 15 U.S.C. 2620(b)(4)(B). Accordingly, EPA 
generally relies on the standards in TSCA section 21 and in the 
provisions under which actions have been requested to evaluate 
petitions. However, because of the absence of legal authority under 
TSCA to grant the petitioners' first request, this request was resolved 
without reaching the factual argument set forth by the petitioners. The 
request was denied based on the scope of EPA's statutory authority.

C. Summary of TSCA Section 21 Petition Received

    On August 3, 2010, Center for Biological Diversity, American Bird 
Conservancy, Association of Avian Veterinarian, Project Gutpile and 
Public Employees for Environmental Responsibility filed a petition 
under TSCA section 21 requesting that EPA prohibit under TSCA section 
6(a) the manufacture, processing, and distribution in commerce of (1) 
lead bullets and shot; and (2) lead fishing sinkers. The petition 
asserts that EPA has the authority to regulate lead in bullets and shot 
because ``lead shot and bullets are properly classified as `chemical 
substances' subject to TSCA regulation.'' (Ref. 1, pp. 57-58).

III. Disposition of the Request With Respect to Lead in Bullets and 
Shot

    On August 27, 2010, EPA denied the first request due to a lack of 
authority to regulate lead in bullets and shot under TSCA. EPA's 
decision is based on the exclusion of firearms, shells and cartridges 
from the definition of ``chemical substance'' in TSCA section 
3(2)(B)(v). This exclusion functions to carve out a discrete set of 
substances from regulation under TSCA: those used in firearms and 
ammunition. This plain reading of the statute is consistent with EPA's 
longstanding interpretation of the six TSCA exclusions at TSCA section 
3(2)(B).
    The statutory definition of ``chemical substance'' excludes ``any 
article the sale of which is subject to the tax imposed by section 4181 
of the Internal Revenue Code of 1986 (26 U.S.C.A. 4181) (determined 
without regard to any exemptions from such tax provided by section 4182 
or 4221 or any other provision of such code).'' 15 U.S.C. 
2602(2)(B)(v). Section 4181 imposes a tax on firearms, shells and 
cartridges. 26 U.S.C. 4181. Bullets and shot, and any lead within them, 
are contained in shells and cartridges and are therefore excluded from 
the chemical substance definition. In addition, EPA's plain reading of 
TSCA is consistent with EPA's long-standing interpretation of TSCA's 
definition of ``chemical substance'' and with the purpose of the 
exemption.

V. Further Consideration of the Request With Respect to Lead in Fishing 
Sinkers

    EPA is still considering the second request contained in the August 
3, 2010 petition and will respond to that portion of the petition 
within the 90-day period provided in section 21 of TSCA.

VI. References

    1. American Bird Conservancy, Petition to the Environmental 
Protection Agency to Ban Lead Shot, Bullets and Fishing Sinkers 
under the Toxic Substances Control Act. August 3, 2010.

List of Subjects

    Environmental protection, Bird, Lead, Lead bullets, Lead fishing 
sinkers, Lead shot.

    Dated: September 21, 2001.
Steve A. Owens,
Assistant Administrator, Office of Chemical Safety and Pollution 
Prevention.
[FR Doc. 2010-24025 Filed 9-23-10; 8:45 am]
BILLING CODE 6560-50-P