Agency Information Collection Activities: Proposed Collection; Comment Request; Spill Prevention, Control, and Countermeasure (SPCC) Plans

ENVIRONMENTAL PROTECTION AGENCY

[FRL-6432-4]

Agency Information Collection Activities: Proposed Collection;

Comment Request; Spill Prevention, Control, and Countermeasure (SPCC)

Plans

AGENCY: Environmental Protection Agency (EPA).

ACTION: Notice.

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SUMMARY: In compliance with the Paperwork Reduction Act (44 U.S.C. 3501

et seq.), this document announces that EPA is planning to submit the

following continuing Information Collection Request (ICR) to the Office

of Management and Budget (OMB): Spill Prevention, Control, and

Countermeasure (SPCC) Plans, EPA ICR No. 0328.08, OMB Control No. 2050-

0021, expiring December 31, 1999. Before submitting the ICR to OMB for

review and approval, EPA is soliciting comments on specific aspects of

the proposed information collection as described below.

DATES: Comments must be submitted on or before November 1, 1999.

ADDRESSES: Interested persons may obtain a copy of the ICR without

charge from the U.S. EPA, Oil Program Center, 401 M Street, SW (5203G),

Washington, D.C. 20460. Materials relevant to this ICR may be inspected

from 9 a.m. to 4 p.m., Monday through Friday (except holidays), by

visiting the Public Docket, located at 1235 Jefferson Davis Highway

(ground floor), Arlington, Virginia 22202. The docket number for this

notice is SPCC-11. The telephone number for the Public Docket is (703)

603-9232. A reasonable fee may be charged for copying docket material.

Comments on specific aspects of the proposed information collection

notice should be addressed to the Public Docket.

FOR FURTHER INFORMATION CONTACT: Hugo Paul Fleischman, (703) 603-8769.

Facsimile number: (703) 603-9116. Electronic address:

[email protected]. Note that questions concerning the notice, but

not comments will be accepted electronically. As noted above, comments

should be sent to the Public Docket.

SUPPLEMENTARY INFORMATION:

Affected Entities

The Spill Prevention, Control, and Countermeasure (SPCC)

regulation applies only to non-transportation-related facilities that

could reasonably be expected to discharge oil into or upon the

navigable waters of the U.S., or adjoining shorelines, and that have:

(1) A total underground buried oil storage capacity of more than 42,000

gallons; or (2) a total aboveground oil storage capacity of more than

660 gallons in a single container.

The specific private industry sectors expected to be affected by

this action include: (1) Petroleum and coal products manufacturing

(NAICS 324); (2) petroleum bulk stations and terminals (NAICS 42271);

(3) crude petroleum and natural gas extraction (NAICS 211111); (4)

transportation (including pipelines), warehousing, and marinas (NAICS

482-486/488112-48819/4883/4889/492-493/71393); (5) electric power

generation, transmission, and distribution (NAICS 2211); (6) other

manufacturing (NAICS 31-33); (7) gasoline stations/automotive rental

and leasing (NAICS 4471/5321); (8) heating oil dealers (NAICS 454311);

(9) coal mining, non-metallic mineral mining and quarrying (NAICS 2121/

2123/213114/213116); (10) heavy construction (NAICS 234); (11)

elementary and secondary schools, colleges (NAICS 6111-6113); (12)

hospitals/nursing and residential care facilities (NAICS 622-623); and

(13) crop and animal production (NAICS 111-112).

Title: ``Spill Prevention, Control, and Countermeasure (SPCC)

Plans,'' OMB Control Number 2050-0021. EPA Control Number 328.08.

Expiration date: December 31, 1999.

Abstract

Under section 311 of the Clean Water Act, EPA's SPCC regulation

requires facilities to prepare and implement SPCC Plans to help

``minimize the potential for oil discharges.'' This regulation is

codified at 40 CFR part 112. The SPCC Plan must be ``a carefully

thought-out plan, prepared in accordance with good engineering

practices.'' Preparation of the SPCC Plan requires that a facility's

staff analyze how the facility will prevent oil discharges, thereby

encouraging appropriate facility design and operations. The information

in the SPCC Plan also promotes efficient response in the event of a

discharge. Finally, proper maintenance of the SPCC Plan will promote

important spill-reducing measures, facilitate leak detection, and

generally ensure that the facility is at peak capability for deterring

discharges. The specific activities and reasons for the information

collection are described below.

[[Page 48158]]

New Plan

Preparation of the Plan, required under Sec. 112.3, involves

several tasks, mostly conducted by the facility's technical personnel.

These tasks include: field investigations to understand facility design

and possible failures and to predict the flow paths of spilled oil and

the potential harm that the spilled oil would have on navigable waters;

a regulatory review to ensure that personnel are fully aware of all

requirements and limitations imposed in the rule; an evaluation of

current spill prevention and control practices the facility employs;

preparation of the Plan according to the specification of Sec. 112.7,

and certification by a Registered Professional Engineer (P.E.)

Modification of Plan

Under Sec. 112.5(a) the SPCC Plan must be amended whenever there is

a change in the facility's design, construction, operation, and

maintenance that materially affects the facility's potential to

discharge oil into navigable waters or onto adjoining shorelines. The

amended Plan must also be certified by a P.E.

Triennial Review

Under Sec. 112.5(b), owners or operators of regulated facilities

must review and evaluate the Plan at least once every three years. This

involves review of spill prevention and control procedures being

implemented under the current Plan, as well as a regulatory review.

Facility owners/operators must amend the SPCC Plan within six months of

the review to include more effective prevention and control technology

if: (1) Such technology will significantly reduce the likelihood of a

spill event; and (2) such technology has been field-proven at the time

of the review. If amended, the Plan must also be certified by a P.E.

Oil Discharge

Under Sec. 112.4, in the event of certain oil discharges, facility

owner/operators must submit information to the Regional Administrator

within 60 days. Discharges of oil that trigger the reporting

requirements are: (1) A single spill event of more than 1,000 U.S.

gallons into navigable waters; or (2) two or more spills (in a twelve

month period) of harmful quantities as defined in 40 CFR part 110.

Submitting a Plan after a discharge involves time to collect the

required information, as well as time for review by management. The

facility must also submit a copy of this information to the appropriate

state agency in charge of water pollution control activities. After the

Regional Administrator and the appropriate state agency have reviewed

the Plan, the Regional Administrator may require amendment of the SPCC

Plan. The amended Plan must be certified by a P.E. prior to

implementation. Facilities may appeal a decision made by the Regional

Administrator requiring an amendment to an SPCC Plan.

Recordkeeping

Under Sec. 112.3, the facility owner/operator must maintain a copy

of the SPCC Plan at the facility, or under certain circumstances, at

the nearest field office. The Plan must be available for review during

normal working hours. In addition, facilities must maintain (and

update) records of Plan-specific inspections as outlined under

Sec. 112.7(e).

Purpose of Data Collection

EPA does not collect the information required by the Oil Pollution

Prevention regulation (i.e., the SPCC Plan) on a routine basis.

Preparation, implementation, and maintenance of the SPCC Plan by the

facility help prevent oil discharges, and mitigate environmental damage

caused by such discharges. Therefore, the primary user of the data is

the facility itself. For example:

(i) As facility staff accumulate the necessary data, they must

analyze the facility's capability to prevent oil discharges, facilitate

safety awareness, and promote appropriate modifications to facility

design and operations;

(ii) Because facility staff keep the required information in a

single document, they can respond efficiently in the event of a

discharge;

(iii) To implement the Plan according to the specifications of

Sec. 112.7, the facility must meet certain design and operational

standards that reduce the likelihood of an oil discharge;

(iv) Inspection records help facilities to promote important

maintenance, facilitate leak detection, and demonstrate compliance with

the SPCC requirements; and

(v) When facility staff review the Plan every three years, they

ensure implementation of more effective spill prevention control

technology.

Although the facility is the primary data user, EPA also uses the

data in certain situations. EPA primarily uses SPCC plan data to ensure

that facilities comply with the regulation, including design and

operation specifications and inspection requirements. EPA reviews SPCC

Plans: (1) When facilities submit the Plans because of oil discharges,

and (2) as part of EPA's inspection program. State and local

governments also use the data, which is not necessarily available

elsewhere and can greatly assist local emergency preparedness planning

efforts. Coordination with state governments is facilitated when, after

certain spill events, a facility sends a copy of the SPCC Plan and

additional information on the spill to the relevant state agency.

As part of the Agency's efforts to reduce the overall paperwork

burden on regulated facilities, EPA would like to solicit comments on

how the Agency could best reduce the total paperwork burden hours for

this rule while maintaining an effective level of environmental

protection.

An agency may not conduct or sponsor, and a person is not required

to respond to, a collection of information unless it displays a

currently valid OMB control number. The OMB control numbers for EPA's

regulations are listed in 40 CFR part 9 and 48 CFR Chapter 15.

EPA would also like to solicit public comments to:

(i) Evaluate whether the proposed collection of information is

necessary for the proper performance of the functions of the Agency,

including whether the information will have practical utility;

(ii) Evaluate the accuracy of the Agency's estimate of the burden

of the proposed collection of information, including the validity of

the methodology and assumptions used;

(iii) Enhance the quality, utility, and clarity of the information

to be collected; and

(iv) Minimize the burden of the collection of information on those

who are to respond, including through the use of appropriate automated

electronic, mechanical, or other technological collection techniques,

or other forms of information technology, e.g., permitting electronic

submission of responses.

Additionally, the Agency has recently proposed revisions to the

SPCC rule to reduce the burden imposed on regulated facilities

(December 2, 1997, 62 FR 63812). Proposed revisions would: (1) Give

facility owners or operators flexibility to use alternative formats for

SPCC Plans; (2) allow the use of certain records maintained pursuant to

usual and customary business practices, or pursuant to the National

Pollutant Discharge Elimination System (NPDES) program, to be used in

lieu of records mandated by the SPCC requirements; (3) reduce the

information required to be submitted after certain spill events; and

(4) extend the period in which SPCC Plans must be reviewed and

evaluated. EPA is now working to finalize the 1997 proposal, as well as

two earlier

[[Page 48159]]

proposals affecting SPCC requirements, specifically, a proposal from

October 22, 1991 (56 FR 54612), and one from February 17, 1993 (58 FR

8824).

Burden Statement

Burden means the total time, effort, or financial resources

expended by persons to generate, maintain, retain, or disclose or

provide information to or for a Federal agency. This includes the time

needed to review instructions; develop, acquire, install, and utilize

technology and systems for the purposes of collecting, validating, and

verifying information, processing and maintaining information, and

disclosing and providing information; adjust the existing ways to

comply with any previously applicable instructions and requirements;

train personnel to be able to respond to a collection of information;

search data sources; complete and review the collection of information;

and transmit or otherwise disclose the information.

This document first presents the estimated number of existing and

new storage and production facilities regulated under the Oil Pollution

Prevention Regulation. Next, the estimated burden hours and costs to

facilities to perform required actions are presented. Costs are

composed of facility labor costs and any associated capital and

operation and maintenance (O&M) expenditures. Finally, the estimated

total annual burden hours and costs for all facilities to comply with

the requirements of this regulation are presented. The burden hours

shown for each action represent the hours in both the existing ICR and

the corresponding hours in the ICR renewal, where there are

differences. Costs have been updated to June 1999 dollars.

As of January 2000, approximately 460,027 existing facilities are

assumed to be regulated under the SPCC program with approximately 4,600

new facilities joining the program in 2000. These numbers are based on

the previous ICR estimate of approximately 460,027 existing and new

facilities as of January 1999. A one percent annual growth in the

number of facilities is assumed. For purposes of this ICR, all

facilities were grouped into two distinct categories: production

facilities (facilities whose operations and oil storage activities are

exclusively limited to oil production) and storage facilities (all

other SPCC-regulated facilities whose operations do not include oil

production). This categorization of facilities reflects differences in

the estimated burden of compliance activities depending on the nature

of the facility's operations.

The current ICR assumes that storage facilities make up 65 percent

of small facilities, 69 percent of medium facilities, and 98 percent of

large facilities. Production facilities make up 35 percent of small

facilities, 31 percent of medium facilities, and two percent of large

facilities. These ratios, as well as the Agency's estimate concerning

the number of regulated facilities, are based on the results of a 1995

survey of SPCC regulated facilities conducted by EPA. The results of

this survey are available for public review at the Public Docket. The

definitions of small, medium, and large facility are based on oil

storage capacity and are defined as follows, based on the Agency's

January 1991 ``SPCC Facilities Study'':

(i) Small facility--a facility that has aboveground storage

capacity greater than 1,320 gallons (or 660 gallons in a single

container), but less than or equal to 42,000 gallons;

(ii) Medium facility--a facility that has total (aboveground or

underground) storage capacity greater than 42,000 gallons but less than

or equal to one million gallons; and

(iii) Large facility--a facility that has total storage capacity

greater than one million gallons.

An estimate of the number of existing and new storage and

production facilities in 2000 are shown in Exhibits 1 and 2.

Exhibit 1.--Estimated Number of Existing Facilities

(2000)

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Small Medium Large Total

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Storage......................................... 236,057 58,857 13,453 308,366

Production...................................... 125,280 26,065 315 51,661

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Total....................................... 361,337 84,922 13,768 460,027

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Exhibit 2.--Estimated Number of New Facilities

(2000)

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Small Medium Large Total

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Storage......................................... 2,361 589 135 3,084

Production...................................... 1,253 261 3 1,517

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Total....................................... 3,613 849 138 4,600

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The facility cost estimates for each category of activities are

based on June 1999 hourly wage rates for managerial ($41.68), technical

($30.96), and clerical ($19.41) work. These wage rates include wages

and salaries, benefit costs, and overhead costs and reflect private

industry averages, which were estimated by the U.S. Bureau of Labor

Statistics. The Agency recognizes that these wage rates may

underestimate the actual wages received by some SPCC personnel but

overestimate the actual wage rate received by other facility personnel.

Each exhibit represents separate burden estimates for small,

medium, and large storage and production facilities. Exhibits 3 through

8 summarize the estimated facility burden associated with performing

each separate task associated with an SPCC Plan. Not all of the

activities will be performed on an annual basis by all facilities.

New Plan

Exhibit 3 presents the estimated burden and costs for a facility to

perform the activities associated with preparing an SPCC Plan. All new

facilities must prepare and implement an SPCC Plan.

[[Page 48160]]

Exhibit 3.--Estimated Burden Hours and Costs-Preparation of New Plan

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Burden hours Cost

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Type of facility Managerial Technical Clerical

$41.68 $30.96 $19.41 Total burden Capital O&M Total \1\

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Storage:

Small............................... 6.0 25.0 4.0 35.0 $0 $0 $1,102

Medium.............................. 6.0 44.0 6.0 56.0 0 0 1,729

Large............................... 6.0 76.0 8.0 90.0 0 0 2,758

Production:

Small............................... 6.0 28.0 4.0 38.0 0 0 1,195

Medium.............................. 6.0 46.0 6.0 58.0 0 0 1,791

Large............................... 6.0 77.0 8.0 91.0 0 0 2,789

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\1\ Total cost includes the cost of facility labor, capital, and O&M costs.

Modification of Plan

Exhibit 4 presents the burden hours and costs for a facility to

revise an SPCC Plan after any modification that materially affects the

facility's potential to discharge oil into navigable waters. An

estimated ten percent of facilities will need to modify their SPCC

Plans each year.

Exhibit 4.--Estimated Annual Burden Hours and Costs--Modification of Plan

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Burden hours Cost

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Type of facility Managerial Technical Clerical Total

$41.68 $30.96 $19.41 burden Capital O&M Total \1\

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Storage:

Small.................................................... 0.0 4.5 1.0 5.5 $0 $0 $159

Medium................................................... 0.0 4.5 1.0 5.5 0 0 159

Large.................................................... 0.0 4.5 1.0 5.5 0 0 159

Production:

Small.................................................... 0.0 4.5 1.0 5.5 0 0 159

Medium................................................... 0.0 4.5 1.0 5.5 0 0 159

Large.................................................... 0.0 4.5 1.0 5.5 0 0 159

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\1\ Total cost includes the cost of facility labor, capital, and O&M costs.

Triennial Review

Exhibits 5 and 6 present the estimated burden hours and costs for a

facility to complete a triennial review, with and without amendment. As

a result of the review process, the facility may need to amend its

Plan, incurring additional costs. Annual burdens and costs per facility

are one-third of the values in Exhibits 5 and 6. An estimated three

percent of all existing facilities will need to amend their Plans each

year.

Exhibit 5.--Estimated Annual Burden Hours and Costs--Triennial Review--No Amendment

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Burden hours Cost

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Type of facility Managerial Technical Clerical Total

$41.68 $30.96 $19.41 burden Capital O&M Total \1\

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Storage:

Small.................................................... 1.0 2.4 0.5 4.0 $0 $0 $129

Medium................................................... 1.0 4.5 1.0 6.5 0 0 200

Large.................................................... 1.0 8.0 1.0 10.0 0 0 309

Production:

Small.................................................... 1.0 3.5 0.5 5.0 0 0 160

Medium................................................... 1.0 5.5 1.0 7.5 0 0 231

Large.................................................... 1.0 9.0 1.0 11.0 0 0 340

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\1\ Total cost includes the cost of facility labor, capital, and O&M costs.

Exhibit 6.--Estimated Annual Burden Hours and Costs--Triennial Review--Amendment

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Burden hours Cost

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Type of facility Managerial Technical Clerical Total

$41.68 $30.96 $19.41 burden Capital O&M Total \1\

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Storage:

Small.................................................... 1.0 7.0 2.0 10.0 $0 $0 $297

Medium................................................... 1.0 9.0 2.0 12.0 0 0 359

Large.................................................... 1.0 12.5 2.0 15.5 0 0 468

[[Page 48161]]

Production:

Small.................................................... 1.0 8.0 2.0 11.0 0 0 328

Medium................................................... 1.0 10.0 2.0 13.0 0 0 390

Large.................................................... 1.0 13.5 2.0 16.5 0 0 498

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\1\ Total cost includes the cost of facility labor, capital, and O&M costs.

Oil Discharge

Exhibit 7 presents estimated burden hours and costs for a facility

to submit information to the Regional Administrator in the event of

certain discharges of oil into navigable waters. It is assumed that the

probability of a facility having such a spill in any given year is 0.15

percent.

Exhibit 7.--Estimated Burden hours and Costs--Oil Discharge

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Burden hours Cost

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Type of facility Managerial Technical Clerical Total

$41.68 $30.96 $19.41 burden Capital O&M Total \1\

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Storage:

Small.................................................... 1.0 1.0 0.0 2.0 $8 $0 $81

Medium................................................... 1.0 1.0 0.0 2.0 10 0 83

Large.................................................... 1.0 1.0 0.0 2.0 14 0 87

Production:

Small.................................................... 1.0 1.0 0.0 2.0 8 0 81

Medium................................................... 1.0 1.0 0.0 2.0 10 0 83

Large.................................................... 1.0 1.0 0.0 2.0 14 0 87

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\1\ Total cost includes the cost of facility labor, capital, and O&M costs.

Recordkeeping

Exhibit 8 presents the burden hours and costs for a facility to

perform Plan maintenance and Plan-specific recordkeeping activities.

All regulated facilities are subject to these requirements.

Exhibit 8.--Estimated Burden Hours and Costs--Recordkeeping

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Burden hours Cost

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Type of facility Managerial Technical Clerical Total

$41.68 $30.96 $19.41 burden Capital O&M Total \1\

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Storage:

Small.................................................... 0.0 2.0 0.5 2.5 $0 $0 $72

Medium................................................... 0.0 4.5 0.5 5.0 0 0 149

Large.................................................... 0.0 9.5 0.5 10.0 0 0 304

Production:

Small.................................................... 0.0 3.0 0.5 3.5 0 0 103

Medium................................................... 0.0 3.0 0.5 3.5 0 0 103

Large.................................................... 0.0 3.0 0.5 3.5 0 0 103

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\1\ Total cost includes the cost of facility labor, capital, and O&M costs.

Annual Expected Facility Burden

The total annual burden per facility reflects the sum of the annual

burdens incurred by the facility for each category of activities

outlined above. The estimated annual burden for an existing and new

facility is shown in Exhibit 9. These estimates were computed by

estimating the annual burden for both storage and production facilities

and weighting each estimate by the percentage of storage and production

facilities to compute an overall model facility estimate.

[[Page 48162]]

Exhibit 9.--Estimated Annual Burden Hours and Costs Per Facility

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Burden hours Cost

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Type of facility Managerial Technical Clerical Total

$41.68 $30.96 $19.41 burden Capital O&M Total

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Existing:

Small.................................................... 0.3 3.8 0.8 4.9 $0 $0 $147

Medium................................................... 0.3 6.1 0.9 7.4 0 0 222

Large.................................................... 0.3 12.5 0.9 13.8 0 0 419

New:

Small.................................................... 6.0 28.8 4.6 39.4 67 0 1,232

Medium................................................... 6.0 49.1 6.6 61.7 67 0 1,899

Large.................................................... 6.0 85.8 8.6 100.4 67 0 3,074

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Total Annual Expected Facility Burdens

The total annual burdens for all existing facilities and all new

facilities are shown in Exhibit 10. The approximately 460,027 existing

facilities will incur a combined burden of about 2.6 million hours and

$42.0 million. In addition, around 4,600 new facilities will incur a

combined burden of about 208,740 hours at a cost of $6.5 million. The

total annual reporting and recordkeeping burden to the regulated

community as a result of the SPCC Program is estimated to be

approximately 2.8 million hours at a cost of about $48.5 million.

Exhibit 10.--Estimated Annual Burden Hours and Costs-All Facilities

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Burden hours Cost

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Type of facility Managerial Technical Clerical

$41.68 $30.96 $19.41 Total burden Capital O&M Total

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Existing:

Small............................... 120,987 1,370,233 282,445 1,773,666 $4,333 0 $17,413,617

Medium.............................. 28,434 519,585 80,109 628,129 1,195 0 18,828,671

Large............................... 4,610 171,923 12,988 189,521 287 0 5,767,959

New:

Small............................... 21,686 104,204 16,622 142,511 240,935 0 4,452,849

Medium.............................. 5,097 41,701 5,605 52,402 56,626 0 1,612,362

Large............................... 826 11,817 1,184 13,827 9,182 0 423,298

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No person is required to respond to a collection of information

unless it displays a currently valid OMB control number. The OMB

control numbers for EPA's regulations are displayed at 40 CFR part 9.

Send comments regarding these matters, or any other aspects of

information collection, including suggestions for reducing the burden,

to the address listed above under ADDRESSES near the top of this

document.

Dated: August 24, 1999.

Elaine F. Davies,

Deputy Director, Office of Emergency and Remedial Response.

[FR Doc. 99-22934 Filed 9-1-99; 8:45 am]

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