On November 14, 1997, after nearly five years of effort, EPA released its final Pulp and Paper Cluster Rule, the first that addresses both air and water pollution. The rule sets national emission standards for hazardous air pollutants based on maximum achievable control technology. A total reduction of 59% is anticipated for all hazardous air pollutants, 50% for volatile organic compounds, and 40% for particulate matter. Other expected reductions are as follows: wastewater discharges of dioxins cut by 96%; adsorbable organic halides cut by 70%, chloroform discharges reduced by 99%, and chlorinated phenolics, including dioxins and furans, reduced by 96%. Once the rule is implemented, some 73 rivers and streams will become cleaner, resulting in the eventual elimination of all dioxin fish consumption advisories associated with effluent discharge from specific mills.

Most of the air pollution emissions result from the pulping process at a paper mill. The water pollution releases occur during the washing and bleaching phases. The rule requires mills to use elemental chlorine-free bleaching, which will result in the largest reduction of chlorinated pollutants in the wastewater. Other compliance options include pollution prevention techniques and thermal oxidizers.

Many environmental groups remain unsatisfied with the decision to use elemental chlorine-free bleaching. They pushed EPA to require totally chlorine-free bleaching, but this option was rejected due to the costs associated with the technology.

The American Forest and Paper Association estimates that the costs of the rule will be high. The capital costs have been estimated to be $2.6 billion, with annual operating costs of $273 million. The Association estimated that the capital costs associated with totally chlorine-free bleaching would have been $3.7 billion.

EPA estimated the costs of the elemental chlorine-free approach at $1.8 billion, with $277 million in annual operating costs. The imposition of totally chlorine-free bleaching, according to EPA, would have added an additional $1.1 billion for a total of $2.9 billion. Copies of fact sheets and the rule itself are available at http://www.epa.gov/OST/pulppaper.

Author: Gary A. Jones, PNEAC
GATF, Manager, Environmental, Health, and Safety Affairs