[Federal Register Volume 59, Number 73 (Friday, April 15, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-8966]


[[Page Unknown]]

[Federal Register: April 15, 1994]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[Region II Docket No. 124, NJ9-1-6185; FRL-4858-7]

 

Approval and Promulgation of Implementation Plans; Revision to 
the New Jersey State Implementation Plan for Ozone

AGENCY: Environmental Protection Agency.

ACTION: Final rule.

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SUMMARY: The Environmental Protection Agency (EPA) is approving a 
request by New Jersey to revise its State Implementation Plan (SIP) as 
it relates to the control of volatile organic compounds. Under the 
Clean Air Act as amended in 1990, EPA is approving Subchapter 16 
``Control and Prohibition of Air Pollution by Volatile Organic 
Compounds,'' Subchapter 8 ``Permits and Certificates, Hearings, and 
Confidentiality,'' Subchapter 17 ``Control and Prohibition of Air 
Pollution by Toxic Substances,'' Subchapter 23 ``Prevention of Air 
Pollution by Architectural Coatings and Consumer Products,'' Subchapter 
25 ``Control and Prohibition of Air Pollution from Vehicular Fuels,'' 
and Subchapter 3 ``Air Test Method 3: Sampling and Analytic Procedures 
for the Determination of Volatile Organic Compounds from Source 
Operations.''
    New Jersey was required to make corrections to these regulations 
pursuant to an EPA call for a revised SIP on May 26, 1988, and pursuant 
to section 182(a)(2)(A) of the Clean Air Act. EPA finds that New 
Jersey's SIP revision satisfies four outstanding commitments made in 
its 1983 ozone SIP. These include the adoption of provisions regulating 
automobile refinishing, further industrial controls, and applying 
reasonably available control technology to small surface coating and 
industrial sources. New Jersey's SIP revision also regulates all of the 
Group III Control Techniques Guidelines source categories required by 
the Clean Air Act.

EFFECTIVE DATE: This final rule will be effective May 16, 1994.

ADDRESSES: Copies of the State submittal are available at the following 
addresses for inspection during normal business hours:

Environmental Protection Agency, Region II Office, Air Programs Branch, 
26 Federal Plaza, room 1034A, New York, New York 10278.
Environmental Protection Agency, Air Docket 6102, 401 M Street SW., 
Washington, DC 20460.
New Jersey Department of Environmental Protection and Energy, Office of 
Energy, Bureau of Air Pollution Control, 401 East State Street, CN027, 
Trenton, New Jersey 08625.

FOR FURTHER INFORMATION CONTACT: William S. Baker, Chief, Air Programs 
Branch, Environmental Protection Agency, 26 Federal Plaza, room 1034, 
New York, New York 10278 (212) 264-2517.

SUPPLEMENTARY INFORMATION: On July 16, 1993, the Environmental 
Protection Agency (EPA) published in the Federal Register (58 FR 38326) 
a notice of proposed rulemaking (NPR) concerning revisions to the New 
Jersey State Implementation Plan (SIP) for ozone. The New Jersey 
Department of Environmental Protection and Energy (NJDEPE), in order to 
fulfill the requirements of the May 26, 1988 SIP call, and the 
requirements of the Clean Air Act as amended in 1990 (the Act), made 
SIP revision submittals to EPA on March 31, 1987, December 7, 1989, and 
March 13, 1992. All three submittals contained adopted revisions to 
subchapter 16, ``Control and Prohibition of Air Pollution by Volatile 
Organic Compounds,'' of chapter 27, title 7 of the New Jersey 
Administrative Code. The March 13, 1992, submittal also included 
revisions to Subchapter 8, ``Permits and Certificates, Hearings, and 
Confidentiality''; Subchapter 17, ``Control and Prohibition of Air 
Pollution by Toxic Substances''; Subchapter 23, ``Prevention of Air 
Pollution by Architectural Coatings and Consumer Products''; Subchapter 
25, ``Control and Prohibition of Air Pollution from Vehicular Fuels''; 
and Subchapter 3, ``Air Test Method 3: Sampling and Analytic Procedures 
for the Determination of Volatile Organic Compounds from Source 
Operations.'' Revisions to these regulations were necessary to maintain 
consistency with the changes made to Subchapter 16, and primarily 
involve the incorporation of revised terms and definitions.
    With one exception, these revised regulations correct all of the 
reasonably available control technology (RACT) deficiencies in New 
Jersey's SIP which had been identified by EPA and were required to be 
corrected under the provisions of section 182 of the Act. These are 
referred to as ``RACT Fix-up'' deficiencies. The exception is the 
submittal of capture efficiency test methods, for which EPA has 
permitted states additional time so EPA can determine whether more cost 
effective alternate methods are available.
    The regulations also contain new provisions regulating automobile 
refinishing, further industrial controls, and the application of RACT 
to small surface coating and industrial sources. The rules also 
regulate all of the Group III Control Techniques Guidelines (CTG) 
source categories. These measures were committed to by New Jersey in 
its 1983 ozone and carbon monoxide SIP.
    The reader is referred to the NPR for further details on EPA's 
review and findings.

Response to Public Comment

    One commenter, the National Refrigerants Incorporated, submitted a 
comment on EPA's proposed action.
    Comment: This commenter is concerned that New Jersey's definition 
of volatile organic compounds (VOCs) does not exempt some of the 
chlorofluorocarbon, hydrochlorofluorocarbon, or hydrofluorocarbon 
compounds which EPA classifies as negligibly photochemically reactive, 
and some of which have the benefit of replacing CFCs which destroy the 
upper atmosphere ozone layer. In addition, the commenter states that 
these compounds are regulated by the Act and, therefore, New Jersey 
does not need to regulate them.
    EPA Response: On August 2, 1993, NJDEPE proposed further revisions 
to Subchapter 16 to address additional requirements of the Act which is 
before EPA now and will be acted upon separately in the future. One of 
the revisions proposes changing its definition of VOC to be fully 
consistent with EPA's, thereby exempting these from regulation as 
VOC's. This would appear to address their concerns. However, the Act 
does not prohibit EPA from approving a State regulation that goes 
beyond the Act's requirements.

Final Action

    The revisions and the rationale for EPA's action are explained in 
EPA's July 16, 1993 NPR and will not be restated here because EPA's 
final action does not differ from that proposed in the NPR.
    In revising subchapter 16, New Jersey deleted the final compliance 
dates applicable to sources because the dates had passed, and sources 
are now expected to be in compliance. However, EPA requires the 
specification of an enforceable final compliance date should it be 
required to take federal enforcement action. Therefore, in the event 
EPA needs to take enforcement action, it will base the compliance 
penalties on the final compliance dates which were originally contained 
in subchapter 16 when a given requirement was first adopted by New 
Jersey. If EPA approved a subsequent revision which modified the final 
compliance date, that revised date would apply.
    EPA, in approving previous versions of subchapter 16, placed 
conditions on its approval of certain sections which permitted New 
Jersey to approve alternate requirements. EPA's previous approval 
specified that if New Jersey approved any mathematical combinations of 
emissions (old Sec. 16.6(c)(4) and (5)) or approved any variances from 
the State requirements (old Secs. 16.9 and 16.10), they became 
applicable only if approved by EPA as SIP revisions. The State has 
decided that mathematical combinations are no longer an acceptable 
method of compliance with Subchapter 16 requirements. In addition, 
subchapter 16 has been revised to state that any variances must be 
approved by EPA as a SIP revision. EPA views these provisions as giving 
the Commissioner the authority to permit alternative requirements once 
they have been submitted and approved by EPA as SIP revisions. EPA will 
not recognize any variance or alternate requirement until it is 
submitted to EPA by the State for approval as a source specific SIP 
revision. Approval of a variance request by EPA will be based on a 
case-by-case review and will involve the effect of the proposed 
variance on air quality and on the ability of a facility to comply with 
the existing regulation. Therefore, the comments currently in 40 CFR 
52.1605 pertaining to these sections in Subchapter 16 are no longer 
necessary.

SIP Deficiencies

    Today's action also addresses all of the deficiencies identified in 
a May 26, 1988 letter to Governor Kean and a January 30, 1991 letter to 
the NJDEPE Commissioner finding the SIP substantially inadequate to 
attain the ozone and carbon monoxide standards. The deficiencies 
corrected relate to the VOC definition, recordkeeping, bubbles, 
seasonal shutdowns, and compliance calculations. These corrections 
strengthen the SIP and remove these deficiencies as a cause for SIP 
inadequacy.

Conclusion

    Although some of New Jersey's submittals preceded the date of 
enactment of the 1990 Amendments to the Clean Air Act, EPA has 
evaluated all the revisions for consistency with the Act's provisions, 
EPA regulations and EPA policy. Therefore, EPA approves Subchapter 16 
and the related changes made to Subchapters 8, 17, 23, and 25. These 
changes have resulted in clearer, more enforceable regulations that 
strengthen the SIP.
    EPA also finds that these regulations address and correct all of 
the ``RACT Fix-up'' deficiencies previously identified in Subchapter 16 
by EPA in its letters of May 26, 1988, and January 31, 1992, with the 
exception of capture efficiency test methods, for which EPA has 
permitted states additional time so that EPA can determine if more cost 
effective alternate methods are available. With the approval of these 
regulations, it is no longer necessary for EPA to adopt a federal 
implementation plan to address the ``RACT Fix-up'' deficiencies.
    Nothing in this rule should be construed as permitting or allowing 
or establishing a precedent for any future request for revision to any 
SIP. Each request for revision to a SIP shall be considered separately 
in light of specific technical, economic, and environmental factors and 
in relation to relevant statutory and regulatory requirements.
    This rule has been classified as a Table 3 action by the Regional 
Administrator under the procedures published in the Federal Register on 
January 19, 1989 (54 FR 2214-2225), as revised by an October 4, 1993 
memorandum from Michael H. Shapiro, Acting Assistant Administrator for 
Air and Radiation. A future document will inform the general public of 
these tables. On January 6, 1989, the Office of Management and Budget 
waived Table 2 and 3 SIP revisions (54 FR 2222) from the requirements 
of section 3 of Executive Order 12291 for a period of two years. The 
EPA has submitted a request for a permanent waiver for Table 2 and 3 
SIP revisions. The OMB has agreed to continue the wavier until such 
time as it rules on EPA's request. This request continues in effect 
under Executive Order 12866 which superseded Executive Order 12291 on 
September 30, 1993.
    Under section 307(b)(1) of the Act, petitions for judicial review 
of this action must be filed in the United States Court of Appeals for 
the appropriate circuit within 60 days from date of publication. Filing 
a petition for reconsideration by the Administrator of this final rule 
does not affect the finality of this rule for the purposes of judicial 
review nor does it extend the time within which a petition for judicial 
review may be filed, and shall not postpone the effectiveness of such 
rule or action. This action may not be challenged later in proceedings 
to enforce its requirements. (See 307(b)(2)).

List of Subjects in 40 CFR Part 52

    Environmental protection, Air pollution control, Hydrocarbons, 
Incorporation by reference, Ozone, Volatile organic compounds.

    Dated: March 23, 1994.
William J. Muszynski,
Acting Regional Administrator.

    Part 52, chapter I, title 40 of the Code of Federal Regulations is 
amended as follows:

PART 52--[AMENDED]

    1. The authority citation for part 52 continues to read as follows:

    Authority: 42 U.S.C. 7401-7671q.

Subpart FF--New Jersey

    2. Section 52.1570 is amended by adding new paragraph (c)(51) to 
read as follows:


Sec. 52.1570  Identification of plan.

* * * * *
    (c) * * *
    (51) Revisions to the New Jersey State Implementation Plan (SIP) 
for ozone concerning the control of volatile organic compounds from 
stationary sources, dated March 31, 1987, December 7, 1989, and March 
13, 1992 submitted by the New Jersey State Department of Environmental 
Protection and Energy (NJDEPE).
    (i) Incorporation by reference.
    (A) Amendments to Chapter 27, Title 7 of the New Jersey 
Administrative Code Subchapter 16, ``Control and Prohibition of Air 
Pollution by Volatile Organic Substances,'' effective September 22, 
1986,
    (B) Amendments to Chapter 27, Title 7 of the New Jersey 
Administrative Code Subchapter 16, ``Control and Prohibition of Air 
Pollution by Volatile Organic Substances,'' effective June 19, 1989,
    (C) Amendments to Chapter 27, Title 7 of the New Jersey 
Administrative Code: Subchapter 8, ``Permits and Certificates, 
Hearings, and Confidentiality,'' effective March 2, 1992; Subchapter 
16, ``Control and Prohibition of Air Pollution by Volatile Organic 
Compounds,'' effective March 2, 1992, Subchapter 17, ``Control and 
Prohibition of Air Pollution by Toxic Substances,'' effective March 2, 
1992; Subchapter 23, ``Prevention of Air Pollution by Architectural 
Coatings and Consumer Products,'' effective March 2, 1992; Subchapter 
25, ``Control and Prohibition of Air Pollution from Vehicular Fuels,'' 
effective March 2, 1992; and Subchapter 3, ``Air Test Method 3: 
Sampling and Analytic Procedures for the Determination of Volatile 
Organic Compounds from Source Operations,'' effective March 2, 1992.
    (ii) Additional material.
    (A) March 31, 1987, letter from Jorge Berkowitz, NJDEP, to Conrad 
Simon, EPA requesting EPA approval of the amendments to Subchapter 16.
    (B) December 7, 1989, letter from Anthony McMahon, NJDEP, to Conrad 
Simon, EPA requesting EPA approval of the amendments to Subchapter 16.
    (C) March 13, 1992, letter from Nancy Wittenberg, NJDEPE, to Conrad 
Simon, EPA requesting EPA approval of the amendments to Subchapter 16.
    3. Section 52.1605 is amended by revising the entries, for Title 7, 
Chapter 27: Subchapters 8, 16, 17, 23 and 25, and for Title 7, Chapter 
27B: Subchapter 3 to the table in numerical order as follows:


Sec. 52.1605  EPA--approved New Jersey State regulations. 

------------------------------------------------------------------------
                    State effective     EPA approved                    
State regulation         date               date            Comments    
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                              * * * * * * *                             
Title 7, Chapter                                                        
       27                                                               
                                                                        
                              * * * * * * *                             
Subchapter 8,     Apr. 5, 1985......  Nov. 25, 1986,                    
 ``Permits and                         51 FR 42573.                     
 Certificates,                                                          
 Hearings, and                                                          
 Confidentiality                                                        
 ;''.                                                                   
Sections 8.1,     Mar. 2, 1992......  [date and                         
 8.2, and 8.11.                        citation of                      
                                       this notice]                     
                                                                        
                              * * * * * * *                             
Subchapter 16,    Mar. 2, 1992......  [date and         Earlier versions
 ``Control and                         citation of       of Subchapter  
 Prohibition of                        this notice]      16 remain part 
 Air Pollution                                           of the SIP only
 by Volatile                                             to the extent  
 Organic                                                 of determining 
 Compounds''.                                            compliance     
                                                         dates which    
                                                         have since     
                                                         passed.        
Subchapter 17,    Mar. 2, 1992......  [date and         Subchapter 17 is
 ``Control and                         citation of       included in the
 Prohibition of                        this notice]      SIP only as it 
 Air Pollution                                           relates to the 
 by Toxic                                                control of     
 Substances;''.                                          perchloroethyle
                                                         ne.            
                                                                        
                              * * * * * * *                             
Subchapter 23,    Mar. 2, 1992......  [date and                         
 ``Prevention of                       citation of                      
 Air Pollution                         this notice]                     
 by                                                                     
 Architectural                                                          
 Coatings and                                                           
 Consumer                                                               
 Products;''.                                                           
                                                                        
                              * * * * * * *                             
Subchapter 25,    Mar. 2, 1992......  [date and                         
 ``Control and                         citation of                      
 Prohibition of                        this notice]                     
 Air Pollution                                                          
 from Vehicular                                                         
 Fuels;''.                                                              
                                                                        
Title 7, Chapter                                                        
       27B                                                              
                                                                        
Subchapter 3,     Mar. 2, 1992......  [date and                         
 ``Air Test                            citation of                      
 Method 3:                             this notice]                     
 Sampling and                                                           
 Analytic                                                               
 Procedures for                                                         
 the                                                                    
 Determination                                                          
 of Volatile                                                            
 Organic                                                                
 Compounds from                                                         
 Source                                                                 
 Operations''.                                                          
                                                                        
                              * * * * * * *                             
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[FR Doc. 94-8966 Filed 4-14-94; 8:45 am]
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