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Why does EPA recommend submitting a list for EPCRA 311?

Why does EPA recommend submitting a list rather than Material Safety Data Sheets (MSDS) to meet the requirements of Section 311?

Lists will minimize the paperwork burden for state and local governments and local fire departments.  In addition, the list can be used as an index to inventory forms required under Section 312, since the information on both forms is grouped in terms of hazard categories.  Local government officials and fire departments can request individual MSDSs for hazardous chemicals if it is a priority for their community.