[Federal Register Volume 60, Number 243 (Tuesday, December 19, 1995)]
[Rules and Regulations]
[Pages 65240-65243]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-30797]



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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[MA44-1-7167a; A-1-FRL-5314-6]


Approval and Promulgation of Air Quality Implementation Plans; 
Massachusetts; Best Available Controls for Consumer and Commercial 
Products (Including Architectural and Industrial Maintenance Coatings)

AGENCY: Environmental Protection Agency (EPA).

ACTION: Direct final rule.

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SUMMARY: EPA is approving a State Implementation Plan (SIP) revision 
submitted by the Commonwealth of Massachusetts. This revision 
establishes and requires VOC emission standards for architectural and 
industrial maintenance coatings and 10 categories of consumer products. 
The intended effect of this action is to approve a revision to 
Massachusetts SIP which reduces VOC emissions from architectural and 
industrial maintenance coatings and 10 categories of consumer products. 
This action is being taken in accordance with Section 183(e) of the 
Clean Air Act.

DATES: This action is effective February 20, 1996, unless notice is 
received by January 18, 1996, that adverse or critical comments will be 
submitted. If the effective date is delayed, timely notice will be 
published in the Federal Register.

ADDRESSES: Comments may be mailed to Susan Studlien, Acting Director, 
Air, Pesticides and Toxics Management Division, U.S. Environmental 
Protection Agency, Region I, JFK Federal Building, Boston, MA 02203. 
Copies of the documents relevant to this action are available for 
public inspection during normal business hours, by appointment at the 
Air, Pesticides and Toxics Management Division, U.S. Environmental 
Protection Agency, Region I, One Congress Street, 10th floor, Boston, 
MA; Air and Radiation Docket and Information Center, U.S. Environmental 
Protection Agency, 401 M Street, S.W., (LE-131), Washington, D.C. 
20460; and the Division of Air Quality Control, Department of 
Environmental Protection, One Winter Street, 8th Floor, Boston, MA 
02108.

FOR FURTHER INFORMATION CONTACT: Jeanne Cosgrove, (617) 565-3246.

SUPPLEMENTARY INFORMATION: Under the Clean Air Act, EPA is required to 
(1) study emissions of VOCs from consumer and commercial products; (2) 
list those categories of products that account for at least 80 percent 
of the total VOC emissions from consumer and commercial products in 
areas of the country that fail to meet the national air quality 
standards set for ground-level ozone; and (3) divide the list into four 
groups, and regulate one group every two years using best available 
controls, as defined by the Clean Air Act.
    In March 1995, EPA issued a report to Congress, Study of Volatile 
Organic Compound Emissions from Consumer and Commercial Products, which 
evaluated the contribution of VOC emissions from consumer and 
commercial products on ground-level ozone levels, and established 
criteria and a schedule for regulating these products under the Clean 
Air Act. Architectural coatings and consumer and commercial products 
(24 categories of household products) are in the first 

[[Page 65241]]
group of products to be regulated by EPA no later than March 1997. 
Massachusetts decided to adopt rules for consumer and commercial 
products in advance of a federal rule, to get credit for reductions 
from this category in its 15% plan.
    Massachusetts was required to submit, by November 15, 1993, a SIP 
revision for Reasonable Further Progress (RFP) for 15% reduction of 
VOCs as necessary for moderate areas and above. The entire state of 
Massachusetts is classified as serious nonattainment area, therefore 
the 15% plan must cover the entire state.
    On May 6, 1994, the Massachusetts DEP submitted to EPA for comment, 
proposed amendments to the SIP to address the RFP requirements 
including new air pollution control regulations entitled ``Control of 
Volatile Organic Compounds from Consumer and Commercial Products'' and 
``Control of VOCs from Architectural and Industrial Maintenance 
Coating.'' Massachusetts held a public hearings on May 6, 10, 11, and 
13, 1994 throughout the State for its proposed architectural and 
industrial maintenance coatings rule. Public hearings were held June 22 
and 24 for Massachusetts' proposed consumer and commercial products 
rule. EPA submitted written comments regarding the proposed regulations 
on May 19, 1994 and June 22, 1994. Subsequent to the public hearings, 
Massachusetts decided to consolidate the architectural and industrial 
maintenance coatings rule and the consumer and commercial products rule 
into a single rule. The consolidated rule was effective on November 18, 
1994, upon publication in the Massachusetts Register.
    On January 9, 1995, the Commonwealth Massachusetts submitted a 
formal revision to its State Implementation Plan (SIP). The SIP 
revision amends 310 CMR 7.00 by adding Section 310 CMR 7.25, Best 
Available Controls for Consumer and Commercial Products .
    The adopted regulation 310 CMR 7.25, ``Best Available Controls for 
Consumer and Commercial Products,'' regulates the VOC content of 
consumer and commercial products. The regulation applies to any person 
who sells, offers for sale, or manufactures for sale within 
Massachusetts consumer and commercial products and architectural or 
industrial maintenance coatings specified in 310 CMR 7.25.

Summary of SIP Revision

    ``Consumer product'' is defined by Massachusetts as: ``A chemically 
formulated product used by household, commercial, and institutional 
consumers including, but not limited to, detergents; cleaning 
compounds; polishes; floor finishes; cosmetics; personal care products; 
home, lawn, and garden products; disinfectants; sanitizers; and 
automotive specialty products. This definition of ``consumer product'' 
excludes architectural coatings.''
    ``Architectural Coating'' is defined as: ``Any coating which is 
applied to stationary structures or their appurtenances, mobile homes, 
pavements, or curbs.''
    The consumer products portion of the rule, section 7.25(12), 
contains limits that specify the maximum allowed VOC content (%VOC by 
weight) for the following categories of commercial and consumer 
products: air fresheners, cleaners, engine degreasers, floor polishes/
waxes, furniture maintenance products, general purpose cleaners, glass 
cleaners, hair spray, insecticides, laundry prewash, antiperspirants 
and deodorants. Manufacturers must comply with these limits by October 
1, 1995.
    The Architectural and Industrial Maintenance portion of the rule, 
section 7.25(11), requires manufacturers to comply with VOC limits 
(grams VOC/liter or lbs VOC/gal) by October 1, 1995, for the following 
categories of Architectural coatings: flat coatings, non-flat coatings, 
anti-graffiti coating, bituminous pavement sealer, bond breakers, 
calcimine recoating product, concrete curing compound, concrete/masonry 
conditioner, dry fog coating, fire retardant coating, form release 
compound, graphic arts coating (sign paint), high temperature 
industrial maintenance coating, industrial maintenance coating, 
lacquer, magnesite cement coating, mastic texture coating, metallic 
pigmented coating, multicolor coating, pretreatment wash primer, 
primer/sealer/undercoat, quick dry primer/sealer/undercoat, roof 
coating, sanding sealer, shellac, stains, opaque, swimming pool 
coating, tile-like glaze, traffic coating, varnish, waterproofing 
sealer, wood preservative, and any other architectural coating not 
otherwise specified.
    EPA's evaluation is detailed in a memorandum, entitled ``Technical 
Support Document for Massachusetts Air Pollution Control Regulation , 
310 CMR 7.25, Best Available Controls for Consumer and Commercial 
Products (including Architectural and Industrial Maintenance 
Coatings).''
    EPA is publishing this action without prior proposal because the 
Agency views this as a noncontroversial amendment and anticipates no 
adverse comments. However, in a separate document in this Federal 
Register publication, EPA is proposing to approve the SIP revision 
should adverse or critical comments be filed. This action will be 
effective February 20, 1996 unless adverse or critical comments are 
received by January 18, 1996.
    If the EPA receives such comments, this action will be withdrawn 
before the effective date by simultaneously publishing a subsequent 
notice that will withdraw the final action. All public comments 
received will then be addressed in a subsequent final rule based on 
this action serving as a proposed rule. The EPA will not institute a 
second comment period on this action. Any parties interested in 
commenting on this action should do so at this time. If no such 
comments are received, the public is advised that this action will be 
effective on February 20, 1996.

Final Action

    EPA is approving Section 310 CMR 7.25, Best Available Controls for 
Consumer and Commercial Products.
    Under the Regulatory Flexibility Act, 5 U.S.C. 600 et seq., EPA 
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, EPA may certify that the rule will not have a 
significant 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.
    Under Sections 202, 203, and 205 of the Unfunded Mandates Reform 
Act of 1995 (``Unfunded Madates Act''), signed into law on March 22, 
1995, EPA must undertake various actions in association with proposed 
or final rules that include a Federal mandate that may result in 
estimated costs of $100 million or more to the private sector, or to 
State, local, or tribal governments in the aggregate.
    Through submission of this state implementation plan or plan 
revision, the State and any affected local or tribal governments have 
elected to adopt the program provided for under Section 183(e) of the 
Clean Air Act. These rules may bind State, local and tribal governments 
to perform certain actions and also require the private sector to 
perform certain duties. To the extent that the rules being approved by 
this action will impose no new requirements; such sources are already 
subject to these regulations under State law. Accordingly, no 
additional costs to State, local, or tribal governments, or to the 
private sector, result from this action. EPA has also determined that 

[[Page 65242]]
this final action does not include a mandate that may result in 
estimated costs of $100 million or more to State, local, or tribal 
governments in the aggregate or to the private sector.
    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. A future notice will inform the general public of 
these tables.
    The OMB has exempted this action from review under Executive Order 
12866.
    SIP approvals under section 110 and subchapter I, Part D of the CAA 
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 any small entities affected. Moreover, 
due to the nature of the federal-state relationship under the CAA, 
preparation of a regulatory flexibility analysis would constitute 
federal inquiry into the economic reasonableness of state action. The 
CAA forbids EPA 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).
    On January 6, 1989, the Office of Management and Budget (OMB) 
waived Table 2 and Table 3 revisions (54 FR 2222) from the requirements 
of Section 3 of Executive Order 12291 for a period of two years. EPA 
has submitted a request for a permanent waiver for Table 2 and Table 3 
SIP revisions. OMB has agreed to continue the temporary waiver until 
such time as it rules on EPA's request.
    Nothing in this action should be construed as permitting or 
allowing or establishing a precedent for any future request for 
revision to any State implementation plan. Each request for revision to 
the State implementation plan shall be considered separately in light 
of specific technical, economic, and environmental factors and in 
relation to relevant statutory and regulatory requirements.
    Under section 307(b)(1) of the Clean Air Act, petitions for 
judicial review of this action must be filed in the United States Court 
of Appeals for the appropriate circuit by February 20, 1996. 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 section 307(b)(2).)

List of Subjects in 40 CFR Part 52

    Environmental protection, Air pollution control, Hydrocarbons, 
Incorporation by reference, Intergovernmental relations, Ozone, 
Reporting and recordkeeping requirements.

    Note: Incorporation by reference of the State Implementation 
Plan for the Commonwealth of Massachusett was approved by the 
Director of the Federal Register on July 1, 1982.

    Dated: September 21, 1995.
John P. DeVillars,
Regional Administrator, EPA New England.

    Part 52 of 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 W--Massachusetts

    2. Section 52.1120 is amended by adding paragraph (c)(108) to read 
as follows:


Sec. 52.1120  Identification of plan.

* * * * *
    (c) * * *
    (108) Revisions to the State Implementation Plan submitted by the 
Massachusetts Department of Environmental Protection on January 9, 
1995.
    (i) Incorporation by reference.
    (A) Letter from the Massachusetts Department of Environmental 
Protection dated January 9, 1995 submitting a revision to the 
Massachusetts State Implementation Plan.
    (B) The following portions of the Rules Governing the Control of 
Air Pollution for the Commonwealth of Massachusetts effective on 
November 18, 1994: 310 Code of Massachusetts Regulations Section 7.25 U 
Best Available Controls for Consumer and Commercial Products.
    3. In Sec. 52.1167, Table 52.1167 is amended by adding a new entry 
for 310 CMR 7.25 in numerical order to read as follows:


Sec. 52.1167  EPA-approved Massachussetts State regulations.

* * * * *

                                                   Table 52.1167.--EPA-Approved Rules and Regulations                                                   
                                                               [See Notes at end of table]                                                              
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                                                 Date                                                                                      Comments/    
     State citation         Title/subject     submitted       Date approved by EPA          Federal Register citation      52.1120(c)      unapproved   
                                               by State                                                                                     sections    
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                   *                  *                  *                  *                  *                  *                  *                  
310 CMR 7.25...........  Best available         11/18/94  December 19, 1995...........  60 FR 65242.....................          108  Includes         
                          controls for                                                                                                  architectural & 
                          consumer and                                                                                                  industrial      
                          commercial                                                                                                    maintenance     
                          products.                                                                                                     coatings.       
                                                                                                                                                        
                   *                  *                  *                  *                  *                  *                  *                  
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[FR Doc. 95-30797 Filed 12-18-95; 8:45 am]
BILLING CODE 6560-50-P