[Federal Register Volume 60, Number 63 (Monday, April 3, 1995)]
[Rules and Regulations]
[Pages 16803-16806]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-8038]
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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52
[IL91-1-6279a; FRL-5169-4]
Approval and Promulgation of Implementation Plans; Illinois
AGENCY: United States Environmental Protection Agency (USEPA).
ACTION: Direct final rule.
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SUMMARY: The USEPA approves the site-specific State Implementation Plan
(SIP) revision request submitted by the State of Illinois on January
25, 1994, for Quantum Chemical Corporation's (Quantum) facility located
in Morris, Illinois. This site-specific SIP revision alters certain
Reasonably Available Control Technology (RACT) regulations contained
within 35 Illinois Administrative Code (IAC) Part 218 as they apply to
specific units or plants within this facility. This approval is based
upon sufficient demonstration that factors relating to this facility
are substantially and significantly different from those relied upon in
adopting 35 IAC Part 218, and that these factors warrant a
corresponding adjustment of this facility's RACT requirements. The
submittal was reviewed for completeness, and was found to be complete
on March 21, 1994. The rationale for this approval is set forth in this
final rule; additional information is available at the address
indicated below. In the proposed rules section of this Federal
Register, USEPA is proposing approval of and soliciting public comment
on this requested SIP revision. If adverse comments are received on
this direct final rule, USEPA will withdraw this direct final rule and
address the comments received in a subsequent final rule on the related
proposed rule which is being published in the proposed rules section of
this Federal Register. No additional opportunity for public comment
will be provided. Unless this direct final rule is withdrawn no further
rulemaking will occur on this requested SIP revision.
DATES: This final rule is effective June 2, 1995 unless notice is
received by May 3, 1995 that someone wishes to submit adverse comments.
If the effective date is delayed, timely notice will be published in
the Federal Register.
ADDRESSES: Copies of the USEPA's technical analysis are available for
inspection at the following address: (It is recommended that you
telephone Mark J. Palermo at (312) 886-6082 before visiting the Region
5 Office.)
U.S. Environmental Protection Agency, Region 5, Air and Radiation
Division, 77 West Jackson Boulevard, Chicago, Illinois 60604.
Written comments should be mailed to: J. Elmer Bortzer, Chief,
Regulation Development Section, Regulation Development Branch (AR-18J),
U.S. Environmental Protection Agency, 77 West Jackson Boulevard,
Chicago, Illinois 60604.
A copy of this SIP revision is also available for inspection at: Office
of Air and Radiation (OAR), Docket and Information Center (Air Docket
6102), room 1500, U.S. Environmental [[Page 16804]] Protection Agency,
401 M Street, SW., Washington, DC 20460.
FOR FURTHER INFORMATION CONTACT: Mark J. Palermo (312) 886-6036.
SUPPLEMENTARY INFORMATION:
I. Background/Summary of Submittal
On January 25, 1994, the Illinois Environmental Protection Agency
(IEPA) submitted a site-specific SIP revision request for Quantum's
Morris, Illinois facility. This site-specific SIP revision would relax
the Volatile Organic Material (VOM) emission reduction requirements for
the polymer manufacturing units and cooling water towers at this
facility.
The Quantum facility is located in Aux Sable Township, Grundy
County. Aux Sable Township was added to the Chicago ozone nonattainment
area, with an effective date of January 6, 1992. The Chicago ozone
nonattainment area is covered by the RACT requirements contained within
35 IAC Part 218. The site-specific SIP revision submitted on January
25, 1994, seeks relaxation of these requirements as they apply to
specific units or plants within the Quantum facility.
The Quantum facility in Morris, Illinois is an integrated petroleum
manufacturing complex that includes manufacturing operations classified
as organic chemical manufacturing (Standard Industrial Code [SIC] 2869)
and polymer manufacturing (SIC 2821). The site-specific SIP revision is
confined to VOM (VOM, as defined by the State of Illinois is identical
to ``volatile organic compounds'' [VOC], as defined by the USEPA)
emission sources associated with polymer manufacturing and water
cooling. In the polymer manufacturing processes, plastic resins are
synthesized in closed, high pressure reactor units from feed stocks of
ethane, propane, and butane. During the synthesis process, some of the
VOM are entrained within the polymer resins. These entrained gases are
emitted to the atmosphere with the conveying air at numerous exhaust
points.
The site-specific SIP revision seeks an adjusted standard for three
plants at the Quantum facility: the Low Density Polyethylene (LDPE)
Plant; the Linear Low Density Polyethylene (LLDPE) Plant; and the
Polypropylene Plant. The site-specific SIP revision also seeks an
adjusted standard for six water cooling towers at the facility.
The site-specific SIP revision would alter application of
regulations found within two sections of the Chicago area RACT rules.
These are sections 218.966 and 218.986 of the 35 IAC. The rules in
section 218.966 address miscellaneous organic chemical manufacturing
processes (35 IAC: Subpart RR), and the rules in section 218.986
address ``other'' VOM emission sources (35 IAC: Subpart TT). The
request for an adjusted standard from section 218.966 deals solely with
the requirements found in subsections (a) and (b), which require a
reduction of VOM emissions of at least 81 percent or an alternative
control plan which has been approved by the IEPA and the USEPA. The
request for an adjusted standard from section 218.986 deals with the
requirements found in subsections (a), (b), and (c), which require an
81 percent reduction in uncontrolled VOM emissions, an independent
requirement for coating lines (not applicable in this case), or an
alternative control plan which has been approved by the IEPA and the
USEPA.
The adjusted standard would pertain to VOM emission sources from
Quantum's polymer plants' finishing and storage units with the affected
units defined as follows:
(1) LDPE Plant:
(a) Spin Driers--total of 4 spin driers, one for each line;
(b) Blenders--total of 18 blenders, BL-1 through BL-18, and associated
bagfilters;
(c) Storage and Car Loading--total of 17 silos, car loading facilities,
and associated bagfilters;
(2) LLDPE Plant:
(a) Pellet Driers--total of 2 spin dryers, one for each line;
(b) Blenders--total of 12 blenders, 4 for line #5 (BL-13 through BL-16)
and 8 for line #6 (BL-30 through BL-37), and associated bagfilters;
(c) Multipass Separators--total of 4 multipass separators, 2 at the
booster blower and 2 at car loading facilities, and associated
bagfilters;
(d) Scalperators and Hopper Cars--total of 4 scalperators and 2
bagfilters at car loading facilities;
(3) Polypropylene Plant:
(a) Pellet Driers--total of 4 spin dryers, one for each line;
(b) Blenders--total of 7 blenders and associated bagfilters; and
(c) Storage and Car Loading--total of 24 silos, car loading facilities,
and associated bagfilters.
In addition, the adjusted standard would pertain to the following:
(1) Non-contact cooling water towers at the Ethylene Plant, LDPE Plant,
Polypropylene Plant, Utilities Area, and Process Research Area; and
(2) Process cooling water tower at the Ethylene Oxide/Ethylene Glycol
Plant.
The SIP revision defines the current operations at the sources
listed above to be RACT with no additional VOM emission reduction
needed to meet the requirements of 35 IAC sections 218.966 and 219.986.
In addition to the above, the SIP revision requires Quantum to
comply with the following at the LDPE Plant:
(1) VOM concentrations from the LDPE finishing operations, measured
at the discharge of the fabric filters (during normal operation in
which two production lines are running through one bagfilter), may not
exceed 250 parts per million by weight;
(2) VOM concentrations from LDPE spin dryers may not exceed 500
parts per million by weight;
(3) Quantum shall conduct testing in accordance with 35 IAC section
218.105 to determine VOM concentrations from the LDPE finishing
operation and spin dryers upon written request by the IEPA or upon a
significant change in LDPE product or operation that may increase VOM
emissions; and
(4) Quantum shall maintain operation records, as specified in an
operating permit, that identify any significant changes in LDPE product
or operation that may increase VOM emissions.
The adjusted standards described above were adopted by the Illinois
Pollution Control Board on October 7, 1993, and effective on October 7,
1993.
In support of the SIP revision and adjusted standard, Quantum and
IEPA note that the particular type of polymer manufacturing employed at
the Morris, Illinois facility was not considered during the
promulgation of Part 218 of 35 IAC and was not reviewed by the USEPA in
the preparation of the Control Technology Guideline (CTG) upon which
RACT for the polymer manufacturing industry was based. It is noted,
however, that the USEPA did review this type of polymer manufacturing
during the development of the New Source Performance Standard (NSPS)
for this source category. The NSPS for this source category exempts (40
CFR Part 60.560(g)) vent streams from controls where VOM concentrations
are less than 0.1 percent by weight. The emission sources for which
Quantum has requested an adjusted standard have vent stream VOM
concentrations below 0.1 percent by weight.
Quantum commissioned a study to review possible emission control
strategies and costs for the low-VOM concentration emission sources
associated with the polymer manufacturing units. This study considered
nine possible control technologies, including carbon adsorption,
absorption, condensation, thermal incineration, catalytic
[[Page 16805]] incineration, regenerative thermal incineration,
flaring, and use of a low pressure product separator or degassing
extruder. The carbon adsorption, absorption, and condensation
technologies were found to be technically infeasible. The remaining
control technologies, although considered to be technically feasible,
were found to be economically unacceptable, with costs ranging from
$7,270 per VOM ton reduction for regenerative thermal incineration to
$183,110 per VOM ton reduction for flaring. An additional drawback to
the incineration technologies is the increased emission of oxides of
nitrogen, which Quantum and the IEPA believe may add to the formation
of downwind ozone.
Quantum and the IEPA agree that, under normal operating procedures,
little or no VOM should be emitted from the non-contact cooling towers.
In the case of the single contact cooling tower, which cools process
water, the VOM emissions are contended to be negligible due to the high
solubility and low vapor pressure (less than 1 millimeter Hg at ambient
temperatures) of ethylene glycol, which is the primary VOM to be
included in the cooled water. Water sampling has also shown a small
concentration of ethylene oxide, with an expected emission rate of 3.4
tons per year under normal operating conditions. Therefore, total VOM
emissions from the contact cooling tower are expected to be minimal.
II. USEPA Analysis of Submittal
Review of the emissions data provided in Attachment A and Exhibit E
(``Economic Analysis and Technology Review For Control of VOM Emissions
From Polyolefin Finishing and Storage Units'') of the SIP revision
submittal shows that the majority of the VOM emissions occur at the
LDPE Plant. This plant accounts for 94.1 percent of the annual VOM
emissions from the polymer manufacturing operations at this facility.
At the LDPE Plant, nearly all VOM emissions are associated with vent
emissions from spin dryer and blending operations, with the emissions
from the blending operations dominating.
The IEPA and Quantum have correctly interpreted the implications of
the emission limits specified for vent streams in the NSPS standard.
Review of process flow and emissions data contained in Attachment A,
Exhibit E, and Exhibit C (``LDPE Synthesis Simplified Process Flow
Diagram'') of the submittal show that most of the VOM emissions from
the LDPE Plant occur at vent streams. Given the low density of VOM in
the vent streams, less than 0.1 percent by weight, these emissions
would be exempted if the NSPS is assumed to equivalent to RACT for this
facility. It is the opinion of the USEPA that this is the case given
the current nature of the NSPS for this source type and the lack of
other VOM control analyses specificly representing RACT. It should be
noted that the VOM emission limits adopted by the State for this source
would limit emissions to levels below the NSPS cutoffs specified for
vent streams.
The remaining emissions from storage and loading operations and
from water cooling towers can not be exempted under the NSPS exemption
specified by Quantum and the State. It is noted, however, that these
emissions are expected to total to less than 10 tons VOM per year.
Given the small total of these emissions and the high cost of control,
in excess of $7,500 per ton of VOM controlled, the USEPA agrees that
the current operations at this facility may be assumed to be RACT.
Based on the State's submittal, the USEPA approves this site-
specific revision to the Illinois SIP.
Procedural Background
The USEPA is publishing this action without prior proposal because
USEPA views this action as a noncontroversial action and anticipates no
adverse comments. However, USEPA is publishing a separate document in
this Federal Register publication, which constitutes a ``proposed
approval'' of the requested SIP revision and clarifies that the
rulemaking will not be deemed final if timely adverse or critical
comments are filed. The ``direct final'' approval shall be effective on
June 2, 1995, unless USEPA receives adverse or critical comments by May
3, 1995.
If USEPA receives comments adverse to or critical of the approval
discussed above, USEPA will withdraw this approval before its effective
date by publishing a subsequent Federal Register document which
withdraws this final action. All public comments received will then be
addressed in a subsequent rulemaking notice. Please be aware that USEPA
will institute another comment period on this action only if warranted
by significant revision to the rulemaking based on any comments
received in response to today's action.
Any parties interested in commenting on this action should do so at
this time. If no such comments are received, USEPA hereby advises the
public that this action will be effective on June 2, 1995.
This action 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. The Office of Management and Budget has exempted
this regulatory action from Executive Order 12866 review.
Nothing in this action 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 any SIP shall be
considered separately in light of specific technical, economic, and
environmental factors and in relation to relevant statutory and
regulatory requirements.
Under the Regulatory Flexibility Act, 5 U.S.C. 600 et seq., USEPA
must prepare a regulatory flexibility analysis assessing the impact of
any proposed or final rule on small entities. 5 U.S.C. 603 and 604.
Alternatively, USEPA may certify that the rule will not have a
significant economic impact on a substantial number of small entities.
Small entities include small businesses, small not-for-profit
enterprises, and government entities with jurisdiction over populations
of less than 50,000.
The SIP approvals under section 110 and subchapter I, part D, of
the Act do not create any new requirements, but simply approve
requirements that the State is already imposing. Therefore, because the
Federal SIP approval does not impose any new requirements, I certify
that it does not have a significant impact on small entities. Moreover,
due to the nature of the Federal-State relationship under the Act,
preparation of a regulatory flexibility analysis would constitute
Federal inquiry into the economic reasonableness of State action. The
Act forbids the USEPA to base its actions concerning SIPs on such
grounds. Union Electric Co. v. U.S. E.P.A., 427 U.S. 246, 256-66 (S.Ct.
1976); 42 U.S.C. 7410(a)(2).
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 by June 2, 1995. Filing a petition for
reconsideration by the Administrator of this final rule does not affect
the finality of this rule for the purpose 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 section 307(b)(2)). [[Page 16806]]
List of Subjects in 40 CFR Part 52
Environmental protection, Air pollution control, Hydrocarbons,
Incorporation by reference, Ozone, Volatile organic compounds.
Dated: February 23, 1995.
Robert Springer,
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 O--Illinois
2. Section 52.720 is amended by adding paragraph (c)(108) to read
as follows:
Sec. 52.720 Identification of plan.
(c)* * *
(108) On January 25, 1994, the State submitted a revision to its
ozone State Implementation Plan (SIP) for Quantum Chemical
Corporation's facility located in Morris, Aux Sable Township, Grundy
County, Illinois. It grants an adjusted standard from Parts 35 Illinois
Administration Code (IAC) 218.966 and 218.986 as they apply to specific
units or plants within this facility.
(i) Incorporation by reference.
(A) Illinois Pollution Control Board Final Opinion and Order, AS
92-14, adopted on October 7, 1993, and effective on October 7, 1993.
[FR Doc. 95-8038 Filed 3-31-95; 8:45 am]
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