[Federal Register Volume 79, Number 143 (Friday, July 25, 2014)]
[Proposed Rules]
[Pages 43350-43357]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2014-17613]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 180

[EPA-HQ-OPP-2013-0821; FRL-9910-53]


Fragrance Components; Proposed Exemption From the Requirement of 
a Tolerance

AGENCY: Environmental Protection Agency (EPA).

ACTION: Proposed rule.

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SUMMARY: This document proposes to establishes an exemption from the 
requirement of a tolerance for residues of various fragrance component 
substances (when used as inert ingredients) in antimicrobial pesticide 
formulations for use on food contact surfaces in public eating places, 
dairy processing equipment, and food processing equipment and utensils.

DATES: Comments must be received on or before September 23, 2014.

ADDRESSES: Submit your comments, identified by docket identification 
(ID) number EPA-HQ-OPP-2013-0821, by one of the following methods:
     Federal eRulemaking Portal: http://www.regulations.gov. 
Follow the online instructions for submitting comments. Do not submit 
electronically any information you consider to be Confidential Business 
Information (CBI) or other information whose disclosure is restricted 
by statute.
     Mail: OPP Docket, Environmental Protection Agency Docket 
Center (EPA/DC), (28221T), 1200 Pennsylvania Ave. NW., Washington, DC 
20460-0001.
     Hand Delivery: To make special arrangements for hand 
delivery or delivery of boxed information, please follow the 
instructions at http://www.epa.gov/dockets/contacts.htm.
    Additional instructions on commenting or visiting the docket, along 
with more information about dockets generally, is available at http://www.epa.gov/dockets.

FOR FURTHER INFORMATION CONTACT: Lois Rossi, Registration Division 
(7505P), Office of Pesticide Programs, Environmental Protection Agency, 
1200 Pennsylvania Ave. NW., Washington, DC 20460-0001; telephone 
number: (703) 305-7090; email address: [email protected].

SUPPLEMENTARY INFORMATION: 

I. General Information

A. Does this action apply to me?

    You may be potentially affected by this action if you are an 
agricultural producer, food manufacturer, or pesticide manufacturer. 
The following list of North American Industrial Classification System 
(NAICS) codes is not intended to be exhaustive, but rather provides a 
guide to help readers determine whether this document applies to them. 
Potentially affected entities may include:
     Crop production (NAICS code 111).
     Animal production (NAICS code 112).
     Food manufacturing (NAICS code 311).
     Pesticide manufacturing (NAICS code 32532).

B. What should I consider as I prepare my comments for EPA?

    1. Submitting CBI. Do not submit this information to EPA through 
www.regulations.gov or email. Clearly mark the part or all of the 
information that you claim to be CBI. For CBI information in a disk or 
CD-ROM that you mail to EPA, mark the outside of the

[[Page 43351]]

disk or CD-ROM as CBI and then identify electronically within the disk 
or CD-ROM the specific information that is claimed as CBI. In addition 
to one complete version of the comment that includes information 
claimed as CBI, a copy of the comment that does not contain the 
information claimed as CBI must be submitted for inclusion in the 
public docket. Information so marked will not be disclosed except in 
accordance with procedures set forth in 40 CFR part 2.
    2. Tips for preparing your comments. When submitting comments, 
remember to:
    i. Identify the document by docket ID number and other identifying 
information (subject heading, Federal Register date and page number).
    ii. Follow directions. The Agency may ask you to respond to 
specific questions or organize comments by referencing a Code of 
Federal Regulations (CFR) part or section number.
    iii. Explain why you agree or disagree; suggest alternatives and 
substitute language for your requested changes.
    iv. Describe any assumptions and provide any technical information 
and/or data that you used.
    v. If you estimate potential costs or burdens, explain how you 
arrived at your estimate in sufficient detail to allow for it to be 
reproduced.
    vi. Provide specific examples to illustrate your concerns and 
suggest alternatives.
    vii. Explain your views as clearly as possible, avoiding the use of 
profanity or personal threats.
    viii. Make sure to submit your comments by the comment period 
deadline identified.

II. This Proposal

    EPA on its own initiative, under FFDCA section 408(e), 21 U.S.C. 
346a(e), is proposing to establish an exemption from the requirement of 
a tolerance for residues of acetaldehyde (CAS Reg. No. 75-07-0), acetic 
acid (CAS Reg. No. 64-19-7), allyl cyclohexyl propionate (CAS Reg. No. 
2705-87-5), butryic acid (CAS Reg. No. 107-92-6), butyl alcohol (CAS 
Reg. No. 71-36-3), citral (CAS Reg. No. 5392-40-5), citronellol (CAS 
Reg. No. 106-22-9), citronellyl acetate (CAS Reg. No. 150-84-5), 
[beta]-damascone, (Z)- (CAS Reg. No. 23726-92-3), decanal (CAS Reg. No. 
112-31-2), (E)-4-decenal (CAS Reg. No. 65405-70-1), decanoic acid (CAS 
Reg. No. 334-48-5), 1-decanol (CAS Reg. No. 112-30-1), 2,6-dimethyl-5-
heptanal (CAS Reg. No. 106-72-9), 2-dodecanol, (2E)- (CAS Reg. No. 
20407-84-5), d-limonene (CAS Reg. No. 5989-27-5), ethyl 2-
methylbutyrate (CAS Reg. No. 452-79-1), (E)-geraniol (CAS Reg. No. 106-
24-1), (E)-geraniol acetate (CAS Reg. No. 105-87-3), heptanal (CAS Reg. 
No. 111-71-7), heptanoic acid (CAS Reg. No. 111-14-8), heptyl alcohol 
(CAS Reg. No. 111-70-6), hexanal (CAS Reg. No. 66-25-1), hexanoic acid 
(CAS Reg. No. 142-62-1), (Z)-3-hexenol (CAS Reg. No. 928-96-1), (Z)-3-
hexenol acetate (CAS Reg. No. 3681-71-8), hexyl acetate (CAS Reg. No. 
142-92-7), hexyl alcohol (CAS Reg. No. 111-27-3), lauric acid (CAS Reg. 
No. 143-07-7), lauric aldehyde (CAS Reg. No. 112-54-9), lauryl alcohol 
(CAS Reg. No. 112-53-8), methyl-[alpha]-ionone (CAS Reg. No. 127-42-4), 
3-methyl-2-butenyl acetate (CAS Reg. No. 1191-16-8), 2-methylundecanal 
(CAS Reg. No. 110-41-8), myristaldehyde (CAS Reg. No. 124-25-4), 
myristic acid (CAS Reg. No. 544-63-8), neryl acetate (CAS Reg. No. 141-
12-8), n-hexanol (CAS Reg. No. 111-27-3), nonanal (CAS Reg. No. 124-19-
6), nonanoic acid (CAS Reg. No. 112-05-0), nonyl alcohol (CAS Reg. No. 
143-08-8), octanal (CAS Reg. No. 124-13-0), octanoic acid (CAS Reg. No. 
124-07-2), 1-octanol (CAS Reg. No. 111-87-5), palmitic acid (CAS Reg. 
No. 57-10-3), propionic acid (CAS Reg. No. 79-09-4), stearic acid (CAS 
Reg. No. 57-11-4), 2-tridecanal (CAS Reg. No. 7774-82-5), 3,5,5-
trimethylhexanal (CAS Reg. No. 5435-64-3), undecanal (CAS Reg. No. 112-
44-7), undecyl alcohol (CAS Reg. No. 112-42-5), valeraldehyde (CAS Reg. 
No. 110-62-3), and valeric acid (CAS Reg. No. 109-52-4) when used as 
fragrance components (i.e., inert ingredients) in antimicrobial 
pesticide formulations for use on food contact surfaces in public 
eating places, dairy processing equipment, and food processing 
equipment and utensils at end-use concentrations not to exceed 100 
parts per million (ppm).

III. Aggregate Risk Assessment and Determination of Safety

    Section 408(b)(2)(A)(i) of FFDCA allows EPA to establish a 
tolerance (the legal limit for a pesticide chemical residue in or on a 
food) only if EPA determines that the tolerance is ``safe.'' Section 
408(b)(2)(A)(ii) of FFDCA defines ``safe'' to mean that ``there is a 
reasonable certainty that no harm will result from aggregate exposure 
to the pesticide chemical residue, including all anticipated dietary 
exposures and all other exposures for which there is reliable 
information.'' This includes exposure through drinking water and in 
residential settings, but does not include occupational exposure. 
Section 408(b)(2)(C) of FFDCA requires EPA to give special 
consideration to exposure of infants and children to the pesticide 
chemical residue in establishing a tolerance and to ``ensure that there 
is a reasonable certainty that no harm will result to infants and 
children from aggregate exposure to the pesticide chemical residue. . . 
.''
    EPA performs a number of analyses to determine the risks from 
aggregate exposure to pesticide residues. For further discussion of the 
regulatory requirements of FFDCA section 408 and a complete description 
of the risk assessment process, see http://www.epa.gov/fedrgstr/EPA-PEST/1997/November/Day-26/p30948.htm.
    Consistent with FFDCA section 408(b)(2)(D), EPA has reviewed the 
available scientific data and other relevant information in support of 
this action. EPA has sufficient data to assess the hazards of and to 
make a determination on aggregate exposure, consistent with FFDCA 
section 408(b)(2), for an exemption from tolerance for residues of 
fragrance components listed in Unit II. used as inert ingredients in 
antimicrobial pesticide formulations for use on food contact surfaces 
in public eating places, dairy processing equipment, and food 
processing equipment and utensils at end-use concentrations not to 
exceed 100 ppm. EPA's assessment of exposures and risks associated with 
establishing the exemptions from tolerance for the fragrance components 
listed in Unit II. follows:

A. Toxicological Profile

    In the case of the fragrance components listed in Unit II. above, 
each of these substances has been approved for use as a synthetic 
flavoring substance in food under 21 CFR 172.515 based on a substance-
specific evaluation conducted by the U.S. Food and Drug Administration 
(FDA). Additionally, the fragrance components listed in Unit II. above 
have been evaluated and approved for use as food flavoring agents by 
the Joint Food and Agricultural Organization of the United Nations/
World Health Organization Expert Committee on Food Additives (JECFA) 
and the European Food Safety Agency (EFSA) as part of their assessment 
of more than 2,800 food flavoring substances. The EFSA and JECFA food 
flavoring substance were conducted under an approach titled the 
Threshold of Toxicological Concern (TTC). Under this approach, generic 
human exposure threshold values for both non-cancer and cancer 
endpoints are set at a level below which there would be no appreciable 
risk to human health. These generic values allow for the safety 
assessment of substances even

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in the absence of substance-specific hazard data.
    The derivation of TTC human exposure threshold values for non-
cancer endpoints is based on an extensive reference database compiled 
by Munro, (Ref. 1) which included data on chronic, subchronic, 
reproductive and developmental toxicity studies primarily derived from 
the reports of the US National Toxicology Program (NTP), the 
toxicological monographs of JECFA, the EPA Integrated Risk Information 
System (IRIS), and the Developmental and Reproductive Toxicology (DART) 
database compiled by the US National Library of Medicine. These sources 
were considered to contain well-validated toxicological data for well-
defined chemical structures, covering pesticides, food additives, 
industrial and other types of chemicals. Only studies using the oral 
route of administration (gavage, diet, drinking water, or capsule) were 
included. In all, the reference database contained 2941 no-observed-
adverse-effect levels (NOAELs) from studies conducted on 613 
substances, and from these the most conservative (lowest) NOAEL for 
each substance was entered on the published database. The NOAELs in the 
reference database were those selected by the original authors of each 
study, apart from the studies in the IRIS database, for which the 
NOAELs were selected by the EPA. Munro commented that some authors were 
highly conservative in their selection of a NOAEL, but such NOAELs were 
still used for the database to maintain a conservative approach. Munro 
also stated that, in the calculation of the TTC values, NOAELs from 
subchronic studies were divided by a factor of 3 to approximate the 
NOAELs that are likely to be derived from a chronic study.
    The chemicals in the Munro database were divided into three 
structural classes, based on a ``decision tree'' developed earlier by 
Cramer et al. (Ref. 2) Cramer Class I are chemicals of simple 
structure, with efficient modes of metabolism, suggesting low oral 
toxicity; Cramer Class III are chemicals with structures suggesting 
significant toxicity or which did not permit any strong initial 
presumption of safety, and Cramer Class II are chemicals with 
structures that were less innocuous than Cramer Class I but without 
features suggesting significant toxicity. Human exposure threshold 
values were derived by taking the lower 5th percentile value of the 
distribution of NOAELs for the substances in each of the three Cramer 
structural classes, multiplying by 60 to convert the values expressed 
as milligrams/kilograms (mg/kg) of body weight (bw) per day into mg/
person per day, and then dividing by a factor of 100 to ensure a margin 
of safety.
    For substances without structural alerts for cancer, the TTC human 
exposure values for non-cancer risks are considered protective of any 
potential cancer risk. For substances with a structural alert for 
cancer, a separate TTC value has been derived. Originally, FDA 
developed human exposure threshold values to protect against all 
chronic risks, including the endpoint of cancer, without regard to 
whether the substance had a structural alert for carcinogenicity (Ref. 
3, 4, 5). FDA derived these threshold values using mathematical 
modeling of risks from animal bioassay data on over 500 known genotoxic 
and non-genotoxic carcinogens, based on their carcinogenic potency. In 
1995, FDA incorporated the threshold value in its threshold of 
regulation (TOR) policy for substances present in food contact 
materials. (Ref 6). Under the TOR, substances used in food contact 
materials that are present in the diet at concentrations below the 
threshold level are exempted from regulation as food additives. 
Subsequently, FDA modified this approach by adopting lower threshold 
values for substances with a structural alert for carcinogenicity. 
Kroes et al. (Ref. 7) This FDA approach as to substances with 
structural alerts for carcinogenicity was further refined and adopted 
by EFSA and JEFCA for use in the TTC approach.
    The TTC approach has been incorporated in the evaluations made by 
JECFA and EFSA in which the organizations both concluded that the each 
of the substances listed in Unit II. were safe for use as flavoring 
agents in foods. Under 21 CFR 170.39 Threshold of regulation for 
substances used in food-contact articles, FDA has issued exemptions 
from regulation as food additives for a number of substances based on 
human exposure threshold values.

B. Toxicological Points of Departure/Levels of Concern

    The human exposure threshold value for threshold (i.e., noncancer) 
risks is based upon Cramer structural class. In the case of the 
fragrance components listed in Unit II., all of the substances are 
included in the Cramer Class I category, which is defined as chemicals 
of simple structure and efficient modes of metabolism, suggesting low 
oral toxicity. An EFSA Scientific Committee critical evaluation of the 
human threshold values for threshold risks concluded that ``the use of 
the 5th percentile No-observed-adverse-effect-level (NOAEL) and an 
uncertainty factor of 100 to derive the TTC value gives a very low 
probability (somewhere between 0-5%) of any appreciable non-cancer risk 
to human health from exposures to substances below the Cramer Class I 
TTC value of 30 [mu]g/kg/day'' (Ref. 8)
    Use of TTC values for risk assessment of the fragrance components 
listed in Unit II. is a more conservative alternative to the chemical-
specific Population Adjusted Dose (PAD) or Reference Dose (RfD) 
approach typically used in Agency risk assessments. For example, in the 
case of substances having chemical structures described by Cramer Class 
I for which chemical-specific risk assessments have been performed, 
these substances have PAD/RfD values which are often orders of 
magnitude greater than the corresponding TTC values (Ref 9). A summary 
of the safe exposure levels corresponding to each of the exposure 
scenarios considered the aggregate exposure assessment of the fragrance 
components listed in Unit II. is given below:
    1. Acute dietary (all populations). There were no effects that 
could be attributed to a single dose in the database. Therefore, a 
quantitative acute dietary assessment is not necessary.
    2. Chronic dietary (all populations). Concerns for chronic dietary 
exposures exceeding the TTC value of 30 [micro]g/kg/day.
    3. Incidental oral short-term (1 to 30 days). Concerns for 
incidental oral short-term exposures exceeding the TTC value of 30 
[micro]g/kg/day.
    4. Dermal short-term (1 to 30 days) and intermediate-term (1 to 6 
months). Concern for dermal exposures exceeding the TTC value of 30 
[micro]g/kg/day based on oral toxicity data and conservative assumption 
of 100% dermal absorption.
    5. Inhalation short-term (1 to 30 days) and intermediate-term (1 to 
6 months). Concern for inhalation exposures exceeding the TTC value of 
30 [micro]g/kg/day based on oral toxicity data. Based on subchronic 
inhalation data for a number of fragrance substances, including some of 
fragrance components listed in Unit II., in which no adverse effects 
were noted at exposure levels up to 1% of ambient air (Ref. 10), it is 
reasonable to assume that in the case of the fragrance components 
listed in Unit II. inhalation toxicity would not be observed at doses 
below which oral toxicity is observed.
    6. Cancer (Oral, dermal, inhalation). The Agency used a qualitative 
structure activity relationship (SAR) database, DEREK11, to determine 
if there were structural alerts for potential genotoxicity/
carcinogenicity for any of

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the fragrance components. No structural alerts for genotoxicity/
carcinogenicity relevant to human exposure to these substances as 
flavoring agents/fragrance components were identified, therefore the 
use of the TTC human exposure threshold for non-threshold risks for 
these fragrance components is not applicable. In these circumstances, 
assessment under the TTC value for non-cancer risks is protective for 
all risks, including carcinogenicity.
    The risk assessment and use of human threshold values for 
evaluation of food flavoring agents by JECFA and EFSA has focused on 
oral toxicity and dietary exposure to substances via food and feed. 
However, the applicability of the TTC approach to substance exposure by 
routes other than the oral route has been considered by the ESFA 
Scientific Committee. The Scientific Committee determined that when 
several routes of exposure are to be taken into account they should be 
reflected in the exposure assessment used in the application of the TTC 
approach and that ``the application of the TTC approach to routes of 
exposure other than oral can be done via route-to-route extrapolation, 
as is often done in conventional risk assessment in cases where only 
oral toxicity data are available.''

C. Exposure Assessment

    1. Dietary exposure from food and feed uses. In evaluating dietary 
exposure to the fragrance components listed in Unit II., EPA considered 
exposure under the proposed tolerance exemptions at a concentration not 
to exceed 100 ppm for each of the fragrance components listed in Unit 
II. as well as any other sources of dietary exposure. The use 
limitation of 100 ppm was incorporated by the Agency to reflect maximum 
concentrations of these fragrance components in antimicrobial pesticide 
formulations as well as to ensure that exposures to these fragrance 
components will be below levels of concern. In conducting the dietary 
exposure assessment for the fragrance components listed in Unit II., 
EPA considered dietary exposure from potential residues in or on food 
resulting from the use as inert ingredients in antimicrobial pesticide 
product formulations from treated food contact surfaces; and from food 
that contains the fragrance components as flavoring agents. As to the 
residue levels in or food resulting from the inert ingredient uses, in 
the absence of actual dietary exposure data resulting from this use, 
the EPA has utilized a conservative, health-protective method of 
estimating dietary intake that is based upon conservative assumptions 
related to the amount of residues that can be transferred to foods as a 
result of the proposed use of the fragrance components in food contact 
sanitizing antimicrobial pesticide products. This same methodology has 
been utilized by EPA in estimating dietary exposures to antimicrobial 
pesticides used in food-handling settings. A complete description of 
the approach used to assess dietary exposures resulting from food 
contact sanitizing solution uses of the fragrance components can be 
found at http://www.regulations.gov in document; ``Various Fragrance 
Components: Human Health Risk Assessment and Ecological Effects 
Assessment to Support Proposed Exemption from the Requirement of a 
Tolerance When Used as Inert Ingredients in Pesticide Formulations,'' 
pp. 5-8 in docket ID number EPA-HQ-OPP-2013-0821.
    i. Acute exposure. Quantitative acute dietary exposure and risk 
assessments are performed for a food-use pesticide, if a toxicological 
study has indicated the possibility of an effect of concern occurring 
as a result of a 1-day or single exposure. No such effects were 
identified in the toxicity database for the fragrance components listed 
in Unit II., therefore a quantitative acute dietary exposure assessment 
is unnecessary.
    ii. Chronic exposure. In conducting the chronic dietary exposure 
assessment, the Agency believes the assumptions used to estimate 
chronic dietary exposures lead to an extremely conservative assessment 
of chronic dietary risk due to a series of compounded conservatisms. 
First, when a surface is treated with a disinfectant, a quantity of the 
disinfectant remains on the surface (residual solution). In the absence 
of any other data, EPA has used an estimated worst-case concentration 
of 1 mg of solution per square centimeter (cm) of treated surface area 
for this quantity. Second, the conservatism of this methodology is 
compounded by EPA's decision to assume a worst case scenario that all 
food that an individual consumes will come into contact with 4,000 cm 
\2\ of sanitized non-porous food-contact surfaces. This contact area 
represents all the surface area from silverware, china, and glass used 
by a person who regularly eats three meals per day at an institutional 
or public facility. The surface area of counter tops that comes in 
contact with food is expected to be smaller than the surface area for 
food utensils. As a conservative estimate, EPA assumed that 2,000 cm 
\2\ of treated counter top surface area, comes into contact with an 
individual's food per day. Third, EPA assumes that 100% of the material 
present on food contact surfaces will migrate to food (Ref 11).
    iii. Cancer. Based on the data summarized in Unit III. A., EPA has 
concluded that the fragrance components listed in Unit II. are not 
expected to be carcinogenic to humans. Therefore, a dietary exposure 
assessment for the purpose of assessing cancer risk is unnecessary.
    2. Dietary exposure from drinking water. The proposed use of the 
fragrance components listed in Unit II. in antimicrobial pesticide 
products has only a limited opportunity to result in contamination of 
drinking water because these types of products are used inside of 
structures. There is the possibility of exposure to drinking water 
sources via down-the-drain releases and discharges to waste water 
treatment plants; however, based on the extremely low concentrations of 
the fragrance components in pesticide formulations, combined with the 
biodegradability of the fragrance components, there would be at most a 
negligible exposure to surface water or ground water. Therefore, the 
use of these fragrance components as inert ingredients is not expected 
to contribute to dietary exposure from drinking water.
    3. From non-dietary exposure. The term ``residential exposure'' is 
used in this document to refer to non-occupational, non-dietary 
exposure (e.g., for lawn and garden pest control, indoor pest control, 
termiticide, and flea and tick control on pets).
    The use of the fragrance components in food contact surface 
antimicrobial pesticide products could result in short- and 
intermediate-term residential exposures, adult handler dermal and 
inhalation exposure; post-application dermal and inhalation exposure 
and child's post- application dermal and incidental oral exposure. In 
addition, non pesticidal uses of these substances as fragrance 
components in consumer products may also result in residential dermal 
and inhalation exposure. However, these pesticidal and non pesticidal 
non-dietary exposures would be negligible in comparison to the highly 
conservative estimates of dietary exposure as discussed in Unit 
III.C.1. above. Further information regarding EPA standard assumptions 
and generic inputs for residential exposures may be found at http://www.epa.gov/pesticides/trac/science/trac6a05.pdf.
    4. Cumulative effects from substances with a common mechanism of 
toxicity. Section 408(b)(2)(D)(v) of FFDCA requires that, when 
considering whether to establish, modify, or revoke a tolerance, the 
Agency consider ``available information'' concerning the

[[Page 43354]]

cumulative effects of a particular pesticide's residues and ``other 
substances that have a common mechanism of toxicity.''
    EPA has not found the fragrance components listed in Unit II. to 
share a common mechanism of toxicity with any other substances, and 
these fragrance components do not appear to produce a toxic metabolite 
produced by other substances. For the purposes of this tolerance 
action, therefore, EPA has assumed that these fragrance components do 
not have a common mechanism of toxicity with other substances. For 
information regarding EPA's efforts to determine which chemicals have a 
common mechanism of toxicity and to evaluate the cumulative effects of 
such chemicals, see EPA's Web site at http://www.epa.gov/pesticides/cumulative.

D. Safety Factor for Infants and Children

    1. In general. Section 408(b)(2)(C) of FFDCA provides that EPA 
shall apply an additional tenfold (10X) margin of safety for infants 
and children in the case of threshold effects to account for prenatal 
and postnatal toxicity and the completeness of the database on toxicity 
and exposure unless EPA determines based on reliable data that a 
different margin of safety will be safe for infants and children. This 
additional margin of safety is commonly referred to as the FQPA Safety 
Factor (SF). In applying this provision, EPA either retains the default 
value of 10X, or uses a different additional safety factor when 
reliable data available to EPA support the choice of a different 
factor.
    The use of a threshold exposure level as described in Unit II. 
above is health protective of any toxicity to infants and children and 
the exposure assumptions utilized in the risk assessment of the 
fragrance components are highly conservative (protective). These 
assessments will not underestimate the exposure and risks posed by 
these fragrance components and no additional safety factor is needed 
for assessing risk to infants and

E. Aggregate Risks and Determination of Safety

    EPA determines whether acute and chronic dietary pesticide 
exposures are safe by comparing aggregate exposure estimates to the 
acute PAD (aPAD) and chronic PAD (cPAD). For linear cancer risks, EPA 
calculates the lifetime probability of acquiring cancer given the 
estimated aggregate exposure. Short-, intermediate-, and chronic-term 
risks are evaluated by comparing the estimated aggregate food, water, 
and residential exposure to the appropriate PODs to ensure that an 
adequate MOE exists.
    1. Acute risk. An acute aggregate risk assessment takes into 
account acute exposure estimates from dietary consumption of food and 
drinking water. No adverse effect resulting from a single oral exposure 
was identified and no acute dietary endpoint was selected. Therefore, 
the fragrance components are not expected to pose an acute risk.
    2. Chronic risk. Using the exposure assumptions described in this 
unit for chronic exposure, EPA has concluded that chronic exposure to 
each of the fragrance components listed in Unit II. from food and water 
will utilize 23% of the safe exposure level for the U.S. population and 
all subpopulations.
    3. From non-dietary exposure. The fragrance components listed in 
Unit II. may be utilized in antimicrobial pesticide products with uses 
that could result in residential exposure such as hard surface cleaning 
products. For residential handler exposure, the Agency assumed that 
most residential use will result in short-term (1 to 30 days) dermal 
and inhalation exposures.
    The Agency assumed that post-application exposure in residential 
settings is expected to be short-term in duration only but 
antimicrobial products used as cleaning agents may be used in 
facilities where cleaning activities can occur on an intermediate-term 
basis. Therefore, these post-application scenarios were included in the 
intermediate-term aggregate assessment. The scenarios evaluated were 
short- and intermediate term post-application dermal and inhalation 
(indoor), short- and intermediate-term incidental oral ingestion from 
treated indoor surfaces (hand-to-mouth vinyl/hard surfaces).
    Further information regarding EPA standard assumptions and generic 
inputs for residential exposures may be found at http://www.epa.gov/pesticides/science/residential-exposure-sop.html.
    4. Short-term risk. Short-term aggregate exposure takes into 
account short-term residential exposure plus chronic exposure to food 
and water (considered to be a background exposure level).
    These fragrance components may be utilized as inert ingredients in 
pesticide formulations registered for uses that could result in short-
term residential exposure, and the Agency has determined that it is 
appropriate to aggregate chronic exposure through food and water with 
short-term residential exposures to the fragrance components listed in 
Unit II.
    Using the exposure assumptions described in this unit for short-
term exposures, EPA has concluded the combined short-term food, water, 
and residential exposures result in aggregate exposures for each of the 
individual fragrance components listed in Unit II. do not exceed 24% of 
the safe exposure level (i.e., a level equivalent to a PAD or RfD) and 
therefore are not of concern.
    5. Intermediate-term risk. Intermediate-term aggregate exposure 
takes into account intermediate-term residential exposure plus chronic 
exposure to food and water (considered to be a background exposure 
level).
    Using the exposure assumptions described in this unit for 
intermediate-term exposures, EPA has concluded that the combined 
intermediate-term food, water, and residential exposures result in 
aggregate exposures that do not exceed 24% of the safe exposure level 
for each of the fragrance components listed in Unit II. and not of 
concern.
    6. Aggregate cancer risk for U.S. population. Based on the lack of 
structural alerts for carcinogenicity and the lack of exceedance of the 
chronic TTC value, the fragrance components listed in Unit II. are not 
expected to pose a cancer risk to humans.
    7. Determination of safety. Based on these risk assessments, EPA 
concludes that there is a reasonable certainty that no harm will result 
to the general population, or to infants and children from aggregate 
exposure to residues of each of the fragrance components listed in Unit 
II. Therefore EPA is proposing to exempt from the requirement of a 
tolerance under 40 CFR 180.940(a) the residues of acetaldehyde, acetic 
acid, allyl cyclohexyl propionate, butryic acid, butyl alcohol, citral, 
citronellol, citronellyl acetate, [beta]-damascone, (Z)-, decanal, (E)-
4-decenal, decanoic acid, 1-decanol, 2,6-dimethyl-5-heptanal, 2-
dodecanol, (2E)-, d-limonene, ethyl 2-methylbutyrate, (E)-geraniol, 
(E)-geraniol acetate, heptanal), heptanoic acid, heptyl alcohol, 
hexanal, hexanoic acid, (Z)-3-hexenol, (Z)-3-hexenol acetate, hexyl 
acetate, hexyl alcohol, lauric acid, lauric aldehyde, lauryl alcohol), 
methyl-[alpha]-ionone, 3-methyl-2-butenyl acetate, 2-methylundecanal, 
myristaldehyde, myristic acid, neryl acetate, n-hexanol, nonanal, 
nonanoic acid, nonyl alcohol, octanal, octanoic acid, 1-octanol, 
palmitic acid, propionic acid, stearic acid, 2-tridecanal, 3,5,5-
trimethylhexanal, undecanal, undecyl alcohol, valeraldehyde, and 
valeric acid.

[[Page 43355]]

IV. Other Considerations

A. Analytical Enforcement Methodology

    An analytical method is not required for enforcement purposes since 
the Agency is establishing an exemption from the requirement of a 
tolerance without any numerical limitation. The use limitation of 100 
ppm will be enforced through the pesticide registration process under 
the FIFRA, 7 U.S.C. 136 et seq. EPA will not register any food-contact 
use antimicrobial pesticide for sale or distribution containing any of 
the fragrance components listed in Unit II. at concentrations exceeding 
100 ppm.

V. Conclusion

    An exemption from the requirement for a tolerance is proposed for 
residues of acetaldehyde, acetic acid, allyl cyclohexyl propionate, 
butryic acid, butyl alcohol, citral, citronellol, citronellyl acetate, 
[beta]-damascone, (Z)-, decanal, (E)-4-decenal, decanoic acid, 1-
decanol, 2,6-dimethyl-5-heptanal, 2-dodecanol, (2E)-, d-limonene, ethyl 
2-methylbutyrate, (E)-geraniol, (E)-geraniol acetate, heptanal), 
heptanoic acid, heptyl alcohol, hexanal, hexanoic acid, (Z)-3-hexenol, 
(Z)-3-hexenol acetate, hexyl acetate, hexyl alcohol, lauric acid, 
lauric aldehyde, lauryl alcohol), methyl-[alpha]-ionone, 3-methyl-2-
butenyl acetate, 2-methylundecanal, myristaldehyde, myristic acid, 
neryl acetate, n-hexanol, nonanal, nonanoic acid, nonyl alcohol, 
octanal, octanoic acid, 1-octanol, palmitic acid, propionic acid, 
stearic acid, 2-tridecanal, 3,5,5-trimethylhexanal, undecanal, undecyl 
alcohol, valeraldehyde, and valeric acid when used as inert ingredients 
(fragrance components) in antimicrobial pesticide formulations for use 
on food contact surfaces in public eating places, dairy processing 
equipment, and food processing equipment and utensils at end-use 
concentrations not to exceed 100 ppm.

VI. Statutory and Executive Order Reviews

    This document proposes to establish exemptions from tolerances 
under FFDCA section 408(d). The Office of Management and Budget (OMB) 
has exempted these types of actions from review under Executive Order 
12866, entitled ``Regulatory Planning and Review'' (58 FR 51735, 
October 4, 1993). Because this proposed rule has been exempted from 
review under Executive Order 12866 due to its lack of significance, 
this proposed rule is not subject to Executive Order 13211, entitled 
``Actions Concerning Regulations That Significantly Affect Energy 
Supply, Distribution, or Use'' (66 FR 28355, May 22, 2001). This 
proposed rule does not contain any information collections subject to 
OMB approval under the Paperwork Reduction Act (PRA) (44 U.S.C. 3501 et 
seq.), or impose any enforceable duty or contain any unfunded mandate 
as described under Title II. of the Unfunded Mandates Reform Act of 
1995 (UMRA) (2 U.S.C. 1501 et seq.). Nor does it require any special 
considerations under Executive Order 12898, entitled ``Federal Actions 
to Address Environmental Justice in Minority Populations and Low-Income 
Populations'' (59 FR 7629, February 16, 1994); or OMB review or any 
Agency action under Executive Order 13045, entitled ``Protection of 
Children from Environmental Health Risks and Safety Risks'' (62 FR 
19885, April 23, 1997). This action does not involve any technical 
standards that would require Agency consideration of voluntary 
consensus standards pursuant to section 12(d) of the National 
Technology Transfer and Advancement Act of 1995 (NTTAA) (15 U.S.C. 272 
note). The Agency hereby certifies under the Regulatory Flexibility Act 
(RFA) (5 U.S.C. 601 et seq.) that this proposed action will not have 
significant negative economic impact on a substantial number of small 
entities. Establishing an a pesticide tolerance or an exemption from 
the requirement of a pesticide tolerance is, in effect, the removal of 
a regulatory restriction on pesticide residues in food and thus such an 
action will not have any negative economic impact on any entities, 
including small entities.
    In addition, the Agency has determined that this action will not 
have a substantial direct effect on 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, as 
specified in Executive Order 13132, entitled ``Federalism'' (64 FR 
43255, August 10, 1999). Executive Order 13132 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.'' This proposed rule directly regulates growers, food 
processors, food handlers, and food retailers, not States. This action 
does not alter the relationships or distribution of power and 
responsibilities established by Congress in the preemption provisions 
of FFDCA section 408(n)(4). For these same reasons, the Agency has 
determined that this proposed rule does not have any ``tribal 
implications'' as described in Executive Order 13175, entitled 
``Consultation and Coordination with Indian Tribal Governments'' (65 FR 
67249, November 9, 2000). Executive Order 13175, 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.'' This proposed rule 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 proposed rule.

VII. References

1. Munro, I.C. A Procedure for the Safety Evaluation of Flavouring 
Substances. Toxicological evaluation of certain food additives and 
contaminants. Joint FAO/WHO Expert Committee on Food Additives. WHO 
Food Additive Series 35, Annex 5. 1996. http://www.inchem.org/documents/jecfa/jecmono/v35je21.htm.
2. Cramer, G. M., Ford, R. A., Hall, R. L. Estimation of Toxic 
Hazard--A Decision Tree Approach. Food and Cosmetic Toxicology. Vol. 
16 pp. 255-276. 1978
3. Rulis, A.M. De minimis and the Threshold of Regulation. Food 
Protection Technology Proceedings of the 1986 Conference for Food 
Protection. Eds Felix, C.W. Lewis Publishing, Inc. Chelsea, 
Michigan. pp. 29-37. 1986.
4. Rulis, A.M. Establishing a Threshold of Regulation. Risk 
Assessment in Setting National Priorities. Eds Bonin, J.J., 
Stevenson, D.E. Plenum Publishing Corporation, New York. pp. 271-
278. 1989.
5. Rulis, AM. Threshold of Regulation: Options for Handling Minimal 
Risk Situations. Food Safety Assessment, Chapter 14, Eds Finlay, 
J.W., Robinson, S.F., Armstrong, D.J. American Chemical Society 
Symposium Series No. 484.

[[Page 43356]]

American Chemical Society, Washington, DC. pp 132-139. 1992.
6. U.S. Food and Drug Administration (FDA). Food Additives: 
Threshold of Regulation for Substances Used in Food-Contact 
Articles. Federal Register (60 FR 36582-36596, Monday, July 17, 
1995).
7. Kroes, R., Renwick, A. G., Cheeseman, et al. Structure-based 
Thresholds of Toxicological Concern (TTC): Guidance for Application 
to Substances Present at Low Levels in the Diet. Food and Chemical 
Toxicology. Vol. 42 pp. 65-83. 2004.
8. EFSA Scientific Committee. Scientific Opinion on Exploring 
Options for Providing Advice About Possible Human Health Risks Based 
on the Concept of Threshold of Toxicological Concern (TTC). EFSA 
Journal 2012;10 (7):2750 103 pp. doi:10.2903/j.efsa.2012.2750. 
www.efsa.europa.eu/efsajournal.
9. European Food Safety Authority. Scientific Opinion on Flavouring 
Group Evaluation 95 (FGE.95): Consideration of aliphatic, linear or 
branched-chain saturated and unsaturated alcohols, aldehydes, acids 
and related esters evaluated by JECFA (69th meeting) structurally 
related to esters of branched- and straight-chain aliphatic 
saturated primary alcohols and of one secondary alcohol, and 
branched- and straight-chain unsaturated carboxylic acids evaluated 
by EFSA in FGE.05Rev1 (2008). EFSA Journal 2010; 8(11):1207. 51 pp. 
doi:10.2903/j.efsa.2010.1207. http://www.efsa.europa.eu/en/efsajournal/doc/1207.pdf.
10. Fukayama, M.Y., Easterday, O.D., Serafino, P.A., et al. 
Subchronic Inhalation Studies of Complex Fragrance Mixtures in Rats 
and Hamsters. Toxicol Lett. 20;111(1-2). pp. 175-187. 1999.
11. U.S. Environmental Protection Agency. Reregistration Eligibility 
Decision for Alkyl Dimethyl Benzyl Ammonium Chloride (ADBAC). pp. 
15-16. 2006. http://www.epa.gov/pesticides/reregistration/REDs/adbac_red.pdf.

List of Subjects in 40 CFR Part 180

    Environmental protection, Administrative practice and procedure, 
Agricultural commodities, Pesticides and pests, Reporting and 
recordkeeping requirements.

    Dated: July 14, 2014.
Jack Housenger,
Director, Office of Pesticide Programs.
    Therefore, it is proposed that 40 CFR chapter I be amended as 
follows:

PART 180--[AMENDED]

0
1. The authority citation for part 180 continues to read as follows:

    Authority: 21 U.S.C. 321(q), 346a and 371.

0
2. In Sec.  180.940, add alphabetically the following inert ingredients 
to the table in paragraph (a) to read as follows:


Sec.  180.940  Tolerance exemptions for active and inert ingredients 
for use in antimicrobial formulations (Food-contact surface sanitizing 
solutions).

    (a) * * *

------------------------------------------------------------------------
       Pesticide chemical         CAS Reg. No.            Limits
------------------------------------------------------------------------
Acetaldehyde...................         75-07-0  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
Acetic acid....................         64-19-7  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
 
                              * * * * * * *
Allyl cyclohexyl propionate....       2705-87-5  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
 
                              * * * * * * *
Butryic acid...................        107-92-6  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
Butyl alcohol..................         71-36-3  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
Citral.........................       5392-40-5  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
Citronellol....................        106-22-9  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
Citronellyl acetate............        150-84-5  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
 
                              * * * * * * *
[beta]-Damascone, (Z)-.........      23726-92-3  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
Decanal........................        112-31-2  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
(E)-4-Decenal..................      65405-70-1  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
Decanoic acid..................        334-48-5  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
1-Decanol......................        112-30-1  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
 
                              * * * * * * *
2,6-Dimethyl-5-heptanal........        106-72-9  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
2-Dodecanol, (2E)-.............      20407-84-5  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
 
                              * * * * * * *
Ethyl 2-methylbutyrate.........        452-79-1  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
 
                              * * * * * * *
(E)-Geraniol...................        106-24-1  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
(E)-Geraniol acetate...........        105-87-3  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
Heptanal.......................        111-71-7  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
Heptanoic acid.................        111-14-8  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
Heptyl alcohol.................        111-70-6  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
Hexanal........................         66-25-1  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
Hexanoic acid..................        142-62-1  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
n-Hexanol......................        111-27-3  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
(Z)-3-Hexenol..................        928-96-1  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
(Z)-3-Hexenol acetate..........       3681-71-8  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
Hexyl acetate..................        142-92-7  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
Hexyl alcohol..................        111-27-3  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.

[[Page 43357]]

 
 
                              * * * * * * *
Lauric acid....................        143-07-7  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
Lauric aldehyde................        112-54-9  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
Lauryl alcohol.................        112-53-8  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
d-Limonene.....................       5989-27-5  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
 
                              * * * * * * *
Methyl-[alpha]-ionone..........        127-42-4  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
3-Methyl-2-butenyl acetate.....       1191-16-8  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
 
                              * * * * * * *
2-Methylundecanal..............        110-41-8  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
 
                              * * * * * * *
Myristaldehyde.................        124-25-4  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
Myristic acid..................        544-63-8  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
Neryl acetate..................        141-12-8  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
 
                              * * * * * * *
Nonanal........................        124-19-6  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
Nonanoic acid..................        112-05-0  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
Nonyl alcohol..................        143-08-8  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
 
                              * * * * * * *
Octanal........................        124-13-0  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
 
                              * * * * * * *
Octanoic acid..................        124-07-2  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
1-Octanol......................        111-87-5  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
 
                              * * * * * * *
Palmitic acid..................         57-10-3  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
 
                              * * * * * * *
Propionic acid.................         79-09-4  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
 
                              * * * * * * *
Stearic acid...................         57-11-4  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
 
                              * * * * * * *
2-Tridecanal...................       7774-82-5  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
3,5,5-Trimethylhexanal.........       5435-64-3  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
Undecanal......................        112-44-7  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
Undecyl alcohol................        112-42-5  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
Valeraldehyde..................        110-62-3  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
Valeric acid...................        109-52-4  When ready for use, the
                                                  end-use concentration
                                                  is not to exceed 100
                                                  ppm.
 
                              * * * * * * *
------------------------------------------------------------------------

* * * * *
[FR Doc. 2014-17613 Filed 7-24-14; 8:45 am]
BILLING CODE 6560-50-P