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Standards of Performance for New Stationary Sources and Emission Guidelines for Existing Sources: Other Solid Waste Incineration Units: Reconsideration
Note: EPA no longer updates this information, but it may be useful as a reference or resource.
[Federal Register: June 28, 2006 (Volume 71, Number 124)]
[Proposed Rules]
[Page 36726-36730]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr28jn06-34]
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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 60
[EPA-HQ-OAR-2003-0156; FRL-8189-5]
Standards of Performance for New Stationary Sources and Emission
Guidelines for Existing Sources: Other Solid Waste Incineration Units:
Reconsideration
AGENCY: Environmental Protection Agency (EPA).
ACTION: Notice of reconsideration of final rule; request for public
comment; notice of public hearing.
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SUMMARY: On December 16, 2005, EPA published a final rule entitled,
``Standards of Performance for New Stationary Sources and Emission
Guidelines for Existing Sources: Other Solid Waste Incineration
Units.'' Following that final action, the Administrator received a
petition for reconsideration. In response to the petition, EPA is
announcing its reconsideration of and requesting comment on whether
sewage and sludge incinerators should be excluded from the other solid
waste incineration units (OSWI) rules.
DATES: Comments. Submit comments on or before August 14, 2006. Because
of the need to resolve the issues raised in this action in a timely
manner, EPA will not grant requests for extensions beyond this date.
Public Hearing. If anyone contacts EPA by July 5, 2006 requesting
to speak at a public hearing, EPA will hold a public hearing on July
12, 2006. If you are interested in attending the public hearing,
contact Dorothy Apple at (919) 541-4487 to verify that a hearing will
be held.
ADDRESSES: Comments. Submit your comments, identified by Docket ID No.
EPA-HQ-OAR-2003-0156, by one of the following methods:
Web site: http://www.regulations.gov. 
Follow the online
instructions for submitting comments.
E-mail: Send your comments via electronic mail to
a-and-r-docket@epa.gov, Attention Docket ID No. EPA-HQ-OAR-2003-0156.
Facsimile: Fax your comments to (202) 566-1741, Attention Docket ID
No. EPA-HQ-OAR-2003-0156.
Mail: Send your comments to: EPA Docket Center (EPA/DC), EPA,
Mailcode 6102T, 1200 Pennsylvania Ave., NW., Washington, DC 20460,
Attention Docket ID No. EPA-HQ-OAR-2003-0156.
Hand Delivery: Deliver your comments to: EPA Docket Center (EPA/
DC), EPA West Building, Room B108, 1301 Constitution Ave., NW.,
Washington, DC, 20460, Attention Docket ID No. EPA-HQ-OAR-2003-0156.
Such deliveries are accepted only during the normal hours of operation
(8:30 a.m. to 4:30 p.m., Monday through Friday, excluding legal
holidays), and special arrangements should be made for deliveries of
boxed information.
Instructions: Direct your comments to Docket ID No. EPA-HQ-OAR-
2003-0156. EPA's policy is that all comments received will be included
in the public docket without change and may be made available online at
http://www.regulations.gov, including any personal information
provided, unless the comment includes information claimed to be
Confidential Business Information (CBI) or other information whose
disclosure is restricted by statute. Do not submit information that you
consider to be CBI or otherwise protected through http://www.regulations.gov
or e-mail. The http://www.regulations.gov Web
site is an ``anonymous access'' system, which means EPA will not know your
identity or contact information unless you provide it in the body of
your comment. If you send an e-mail comment directly to EPA without
going through http://www.regulations.gov, your e-mail address
will be automatically captured and included as part of the comment that is
placed in the public docket and made available on the Internet. If you
submit an electronic comment, EPA recommends that you include your name
and other contact information in the body of your comment and with any
disk or CD-ROM you submit. If EPA
[[Page 36727]]
cannot read your comment due to technical difficulties and cannot
contact you for clarification, EPA may not be able to consider your
comment. Electronic files should avoid the use of special characters,
any form of encryption, and be free of any defects or viruses.
Public Hearing: If a public hearing is held, it will be held at
EPA's Campus located at 109 T.W. Alexander Drive in Research Triangle
Park, NC, or an alternate site nearby. Persons interested in presenting
oral testimony must contact Dorothy Apple at (919) 541-4487 at least 7
days in advance of the hearing. If no one contacts Dorothy Apple in
advance of the hearing with a request to present oral testimony at the
hearing, we will cancel the hearing. The public hearing will provide
interested parties the opportunity to present data, views, or arguments
concerning the reconsideration. The record for this action will remain
open for 30 days after the date of the hearing to accommodate submittal
of information related to the public hearing.
Docket: All documents in the docket are listed in the http://
www.regulations.gov index. Although listed in the index, some
information is not publicly available, e.g., CBI or other information
whose disclosure is restricted by statute. Certain other material, such
as copyrighted material, is not placed on the Internet and will be
publicly available only in hard copy form. Publicly available docket
materials are available either electronically at http://www.regulations.gov
or in hard copy at the EPA Docket Center (EPA/DC),
EPA West Building, Room B102, 1301 Constitution Ave., NW., Washington,
DC. The Public Reading Room is open from 8:30 a.m. to 4:30 p.m., Monday
through Friday, excluding legal holidays. The telephone number for the
Public Reading Room is (202) 566-1744, and the telephone number for the
EPA Docket Center is (202) 566-1742.
FOR FURTHER INFORMATION CONTACT: Ms. Martha Smith, Natural Resources
and Commerce Group, Sector Policies and Programs Division (E143-03),
U.S. EPA, Research Triangle Park, North Carolina 27711, (919) 541-2421,
e-mail smith.martha@epa.gov. For questions about the public hearing,
contact Dorothy Apple at (919) 541-4487.
SUPPLEMENTARY INFORMATION: Organization of This Document. The following
outline is provided to aid in locating information in this preamble.
I. General Information
A. Does the reconsideration notice apply to me?
B. How do I obtain a copy of this document and other related
information?
II. Background Information
III. Actions We Are Taking
IV. Discussion of Issue for Reconsideration
V. Statutory and Executive Order Reviews
A. Executive Order 12866: Regulatory Planning and Review
B. Paperwork Reduction Act
C. Regulatory Flexibility Act
D. Unfunded Mandates Reform Act
E. Executive Order 13132: Federalism
F. Executive Order 13175: Consultation and Coordination With
Indian Tribal Governments
G. Executive Order 13045: Protection of Children From
Environmental Health and Safety Risks
H. Executive Order 13211: Actions That Significantly Affect
Energy Supply, Distribution or Use
I. National Technology Transfer Advancement Act
I. General Information
A. Does the reconsideration notice apply to me?
Regulated Entities. This reconsideration proceeding potentially
affects sewage sludge incinerators. Although there is not a specific
North American Industrial Classification System (NAICS) code for sewage
sludge incinerators, these units may be operated by municipalities or
other entities and the following NAICS codes apply: Non-hazardous
incinerators (NAICS 562213); sludge disposal sites (NAICS 562212); and
sewage treatment facilities (NAICS 221320). The categories and entities
regulated by the final OSWI rules are very small municipal waste
combustion (VSMWC) units and institutional waste incineration (IWI)
units. The final OSWI emission guidelines and new source performance
standards (NSPS) affect the following categories of sources:
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Examples of potentially
Category NAICS code regulated entities
------------------------------------------------------------------------
Any State, local, or Tribal 562213, Solid waste combustion
government using a VSMWC unit as 92411 units burning municipal
defined in the regulations. waste collected from
the general public and
from residential,
commercial,
institutional, and
industrial sources.
Institutions using an IWI unit as 922, 6111, Correctional
defined in the regulations. 623, 7121 institutions, primary
and secondary schools,
camps and national
parks.
Any Federal government agency 928 Department of Defense
using an OSWI unit as defined in (labs, military bases,
the regulations. munition facilities).
Any college or university using 6113, 6112 Universities, colleges
an OSWI unit as defined in the and community colleges.
regulations.
Any church or convent using an 8131 Churches and convents.
OSWI unit as defined in the
regulations.
Any civic or religious 8134 Civic associations and
organization using an OSWI unit fraternal associations.
as defined in the regulations.
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This table is not intended to be exhaustive, but rather provides a
guide for readers regarding entities that were regulated by the final
OSWI rules.
B. How do I obtain a copy of this document and other related information?
Docket. The docket number for this action and the final OSWI new
source performance standards (NSPS) (40 CFR part 60, subpart EEEE) and
emission guidelines (40 CFR part 60, subpart FFFF) is Docket ID No.
EPA-HQ-OAR-2003-0156.
Worldwide Web (WWW). In addition to being available in the docket,
electronic copies of the final rule and the notice of reconsideration
are available on the WWW through the Technology Transfer Network Web
site (TTN). Following signature, EPA posted a copy of the final rule on
the TTN's policy and guidance page for newly proposed or promulgated
rules at http://www.epa.gov/ttn/oarpg. The TTN provides information and
technology exchange in various areas of air pollution control.
II. Background Information
Section 129 of the Clean Air Act (CAA), entitled ``Solid Waste
Combustion,'' requires EPA to develop and adopt NSPS and emission
guidelines for solid waste incineration units pursuant to CAA section
111. Section 111(b) of the CAA requires EPA to establish NSPS for new
sources, and
[[Page 36728]]
CAA section 111(d) requires EPA to establish procedures for States to
submit plans for implementing emission guidelines for existing sources.
Congress specifically added section 129 to the CAA to address concerns
about emissions from solid waste combustion units. Section 129(a)(1) of
the CAA identifies five categories of solid waste incineration units:
(1) Units with a capacity of greater than 250 tons per day (tpd)
combusting municipal waste;
(2) Units with a capacity equal to or less than 250 tpd combusting
municipal waste;
(3) Units combusting hospital, medical and infectious waste;
(4) Units combusting commercial or industrial waste; and
(5) Unspecified--other categories of solid waste incineration units.
EPA previously developed regulations for each of the listed
categories of solid waste incineration units except for the undefined
``other categories of solid waste incineration units.'' On December 9,
2004 (69 FR 71472), EPA proposed NSPS and emission guidelines for OSWI
units. EPA received and considered public comments and promulgated
final regulations for OSWI units on December 16, 2005.
Following the promulgation of the final OSWI rule, EPA received a
petition for reconsideration from the Sierra Club. The purpose of this
notice is to initiate a process for responding to one issue raised in
the petition.
III. Actions We Are Taking
Today, we are granting reconsideration of and requesting comment on
the sewage sludge incinerator issue, an issue raised in the petition
for reconsideration. Generally, the Sierra Club contends that sewage
sludge incinerators should be regulated as a type of OSWI under CAA
section 129. Petitioner notes that the notice of proposal of the OSWI
rule did not mention sewage sludge incinerators, and claims that there
was no opportunity to comment on EPA's decision not to regulate sewage
sludge incinerators under OSWI. Moreover, they argue that EPA's
rationale was advanced for the first time in the final rule and
supporting documents.
EPA acknowledges that the OSWI proposal notice (69 FR 71472,
December 9, 2004) did not specifically mention or request comment on
whether sewage sludge incinerators should be regulated under the OSWI
rules. EPA did publish notices on April 24, 2000, (65 FR 23459-01) and
June 26, 2002, (67 FR 43113) in which EPA indicated that we had decided
not to regulate sewage sludge incinerators as a category under CAA
section 129 and listing it as an area source category to be regulated
under CAA section 112(c)(3) and 112(k)(3). These notices; however, did
not request public comment on whether sewage sludge incinerators should
be regulated under section 129 or section 112. We have decided to grant
reconsideration of this issue in the interest of ensuring full
opportunity for comment. The issue is described in further detail below.
Our final decision on reconsideration for all the other issues
raised by petitioners, and for which we are not granting
reconsideration today, will be issued no later than the date by which
we take final action on the sewage sludge incinerator issue discussed
in this notice. We are requesting public comment only on the sewage
sludge incinerator issue identified in this notice. We will not respond
to any comments addressing other aspects of the OSWI rule or any
related rulemakings.
IV. Discussion of Issue for Reconsideration
EPA acknowledges that earlier notices indicated that sewage sludge
incinerators would be considered OSWI units (62 FR 1868, January 14,
1997; 63 FR 66087, December 1, 1998). However, as we discussed in the
preamble to the final OSWI rules and the response to comment document,
later notices conveyed the fact we intended to regulate sewage sludge
incinerators under section 112 of the CAA, not under section 129. As
early as April 2000, EPA indicated that it no longer intended to
regulate sewage sludge incinerators under CAA section 129:
The Agency has decided not to regulate sewage sludge
incinerators as a category under section 129 of the Clean Air Act. *
* * The Agency believes that sewage sludge generated by publicly-
owned treatment works (POTWs) and combusted in SSI is ``solid
waste.'' However, this sludge is from a municipal source, and not
from ``commercial or industrial establishments or the general
public.'' Therefore, SSIs that combust this sludge are not ``solid
waste incineration units'' and section 129 does not apply to them.
Virtually all of the SSIs that would be candidates for regulation
combust sludge from POTWs and, thus are not covered under section 129.
Unified Agenda, (65 FR 23459-01, April 24, 2000).
EPA's intent to regulate these sources under CAA section 112 was
also made clear when sewage sludge incinerators were included as an
additional area source category listed pursuant to CAA sections
112(c)(3) and 112(k)(3)(B)(ii) (67 FR 43113, June 26, 2002). In
addition, in previous regulatory activities, EPA was unable to identify
any sewage sludge incinerators that were major sources (see 67 FR 6521,
February 12, 2002). As discussed fully in the preamble to the final
OSWI rules and the supporting response to comment document, the
language of CAA section 129(h) makes clear the Congressional intent for
CAA regulations under section 129 or section 112 to be mutually
exclusive. Accordingly, source categories regulated by CAA section 112
may not also be subject to a CAA section 129 regulation.
However, we acknowledge that neither the April 2000 nor the June
2002 notice was a final regulatory action, and that no opportunity for
public comment was available following either publication. Furthermore,
as we did not discuss our intent to regulate sewage sludge incinerators
under CAA section 112 in the proposed OSWI rules notice, we accept that
we have not offered opportunity for comment on this issue. Therefore,
we are granting reconsideration of, and requesting comment on, the
issue of excluding sewage sludge incinerators from regulation under CAA
section 129 under the OSWI rules.
V. Statutory and Executive Order Reviews
A. Executive Order 12866: Regulatory Planning and Review
Under Executive Order 12866 (58 FR 51735, October 4, 1993), EPA
must determine whether the regulatory action is ``significant'' and;
therefore, subject to review by OMB and the requirements of the
Executive Order. The Executive Order defines ``significant regulatory
action'' as one that is likely to result in a rule that may:
(1) Have an annual effect on the economy of $100 million or more or
adversely affect in a material way the economy, a sector of the
economy, productivity, competition, jobs, the environment, public
health or safety, or State, local, or Tribal governments or communities;
(2) Create a serious inconsistency or otherwise interfere with an
action taken or planned by another agency;
(3) Materially alter the budgetary impact of entitlements, grants,
user fees, or loan programs, or the rights and obligations of
recipients thereof; or
(4) Raise novel legal or policy issues arising out of legal
mandates, the President's priorities, or the principles set forth in
the Executive Order.
It has been determined that this notice of reconsideration is not a
``significant regulatory action'' under the terms of
[[Page 36729]]
Executive Order 12866 and is therefore not subject to OMB review.
B. Paperwork Reduction Act
This action does not impose any new information collection burden.
We are not proposing any new paperwork as part of today's notice. With
this action, we are seeking public comments on an issue raised in a
petition for reconsideration of the OSWI rule. The Office of Management
and Budget has previously approved the information collection
requirements contained in the existing regulations (40 CFR part 60,
subparts EEEE and FFFF) under the provisions of the Paperwork Reduction
Act, 44 U.S.C. 3501 et seq. and has assigned OMB control number 2060-
0563 and EPA ICR No. 2163.02 for subpart EEEE, and OMB control number
2060-0562 and EPA ICR No. 2164.02 for subpart FFFF. A copy of the OMB
approved Information Collection Requests (ICR), may be obtained from
Susan Auby, Collection Strategies Division, U.S. EPA (2822T), 1200
Pennsylvania Avenue, NW., Washington, DC 20460, by e-mail at
auby.susan@epa.gov, or by calling (202) 566-1672.
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.
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 in 40 CFR are listed in 40 CFR part 9.
C. Regulatory Flexibility Act
The Regulatory Flexibility Act generally requires an agency to
prepare a regulatory flexibility analysis of any rule subject to notice
and comment rulemaking requirements under the Administrative Procedure
Act or any other statute unless the agency certifies that the rule will
not have a significant economic impact on a substantial number of small
entities. Small entities include small businesses, small organizations,
and small governmental jurisdictions.
For purposes of assessing the impacts of the final rules on small
entities, small entity is defined as follows:
1. A small business that is an ultimate parent entity in the
regulated industry that has a gross annual revenue less than $6.0
million (this varies by industry category, ranging up to $10.5 million
for North American Industrial Classification System (NAICS) code 562213
(very small municipal waste combustors)), based on Small Business
Administration's size standards;
2. A small governmental jurisdiction that is a government of a
city, county, town, school district or special district with a
population of less than 50,000; or
3. A small organization that is any not-for-profit enterprise that
is independently owned and operated and is not dominant in its field.
After considering the economic impact of today's notice of
reconsideration on small entities, I certify that this action will not
have a significant economic impact on a substantial number of small
entities. This action does not propose any changes to the final OSWI
rule and will not impose any requirements on small entities. EPA has
determined that it is not necessary to prepare a regulatory flexibility
analysis in connection with this reconsideration notice.
D. Unfunded Mandates Reform Act
Title II of the Unfunded Mandates Reform Act (UMRA) of 1995, Public
Law 104-4, establishes requirements for Federal Agencies to assess the
effects of their regulatory actions on State, local, and Tribal
governments and the private sector. Under section 202 of the UMRA, EPA
generally must prepare a written statement, including a cost-benefit
analysis, for proposed and final rules with ``Federal mandates'' that
may result in expenditures by State, local, and Tribal governments, in
the aggregate, or by the private sector, of $100 million or more in any
one year. Before promulgating an EPA rule for which a written statement
is needed, section 205 of the UMRA generally requires EPA to identify
and consider a reasonable number of regulatory alternatives and adopt
the least costly, most cost-effective, or least burdensome alternative
that achieves the objectives of the rule. The provisions of section 205
do not apply when they are inconsistent with applicable law. Moreover,
section 205 allows EPA to adopt an alternative other than the least
costly, most cost-effective, or least burdensome alternative if EPA
publishes with the final rule an explanation why that alternative was
not adopted.
Before EPA establishes any regulatory requirements that may
significantly or uniquely affect small governments, including Tribal
governments, EPA must have developed, under section 203 of the UMRA, a
small government agency plan. The plan must provide for notifying
potentially affected small governments, enabling officials of affected
small governments to have meaningful and timely input in the
development of EPA's regulatory proposals with significant Federal
intergovernmental mandates, and informing, educating, and advising
small governments on compliance with the regulatory requirements.
EPA has determined that this notice of reconsideration does not
contain a Federal mandate that may result in expenditures of $100
million or more for State, local, and Tribal governments, in the
aggregate, or the private sector in any one year. We are not proposing
to change the final OSWI rule. Thus, today's notice of reconsideration
is not subject to the requirements of section 202 and 205 of the UMRA.
In addition, EPA has determined that the notice of reconsideration
contains no regulatory requirements that might significantly or
uniquely affect small governments. Therefore, the notice of
reconsideration is not subject to the requirements of section 203 of
the UMRA.
E. Executive Order 13132: Federalism
Executive Order 13132 (64 FR 43255, August 10, 1999), requires EPA
to develop an accountable process to ensure ``meaningful and timely
input by State and local officials in the development of regulatory
policies that have Federalism implications.'' ``Policies that have
Federalism implications'' is defined in the Executive Order to include
regulations that have ``substantial direct effects on States, on the
relationship between the national government and the States, or on the
distribution of power and responsibilities among various levels of
government.''
This notice of reconsideration does not have Federalism
implications. It will not 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, as specified in Executive Order 13132.
The notice of reconsideration will not impose direct compliance costs
on State or local governments, and will not
[[Page 36730]]
preempt State law. Thus, Executive Order 13132 does not apply to
today's notice of reconsideration.
F. Executive Order 13175: Consultation and Coordination With Indian
Tribal Governments
Executive Order 13175, entitled ``Consultation and Coordination
with Indian Tribal Governments'' (59 FR 22951, November 9, 2000),
requires EPA to develop an accountable process to ensure ``meaningful
and timely input by Tribal officials in the development of regulatory
policies that have Tribal implications.'' ``Policies that have Tribal
implications'' is defined in the Executive Order to include regulations
that have ``substantial direct effects on 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 notice of reconsideration does not have Tribal implications,
as specified in Executive Order 13175. It will not have substantial
direct effects on Tribal governments, on the relationship between the
Federal Government and Indian tribes, or on the distribution of power
and responsibilities between the Federal Government and Indian tribes,
as specified in Executive Order 13175. Thus, Executive Order 13175 does
not apply to this notice of reconsideration.
G. Executive Order 13045: Protection of Children From Environmental
Health and Safety Risks
Executive Order 13045 (62 FR 19885, April 23, 1997), applies to any
rule that: (1) Is determined to be ``economically significant'' as
defined under Executive Order 12866, and (2) concerns an environmental
health or safety risk that EPA has reason to believe may have a
disproportionate effect on children. If the regulatory action meets
both criteria, EPA must evaluate the environmental health or safety
effects of the planned rule on children, and explain why the planned
regulation is preferable to other potentially effective and reasonably
feasible alternatives EPA considered.
EPA interprets Executive Order 13045 as applying only to those
regulatory actions that are based on health or safety risks, such that
the analysis required under section 5-501 of the Executive Order has
the potential to influence the regulation. This notice of
reconsideration is not subject to Executive Order 13045 because it is
not economically significant, and the original OSWI rules were based on
technology performance and not on health and safety risks.
H. Executive Order 13211: Actions That Significantly Affect Energy
Supply, Distribution or Use
This notice of reconsideration is not subject to Executive Order
13211, ``Actions Concerning Regulations That Significantly Affect
Energy Supply, Distribution, and Use'' (66 FR 28355, May 22, 2001)
because it is not a significant regulatory action under Executive Order
12866.
I. National Technology Transfer Advancement Act
CAA section 12(d) of the National Technology Transfer and
Advancement Act (NTTAA) of 1995 (Pub. L. 104-113; 15 U.S.C. 272 note)
directs EPA to use voluntary consensus standards in their regulatory
activities unless to do so would be inconsistent with applicable law or
otherwise impractical. Voluntary consensus standards are technical
standards (e.g., materials specifications, test methods, sampling
procedures, business practices) developed or adopted by one or more
voluntary consensus bodies. The NTTAA directs EPA to provide Congress,
through annual reports to OMB, with explanations when an agency does
not use available and applicable voluntary consensus standards.
This notice of reconsideration does not involve technical
standards. EPA's compliance with section 12(d) of the NTTAA has been
addressed in the preamble of the underlying final OSWI rule. (70 FR
74891, December 16, 2005)
List of Subjects in 40 CFR Part 60
Environmental protection, Administrative practice and procedure,
Air pollution control, Intergovernmental relations, Reporting and
recordkeeping requirements.
Dated: June 20, 2006.
Stephen L. Johnson,
Administrator.
[FR Doc. E6-10095 Filed 6-27-06; 8:45 am]
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