[Federal Register Volume 61, Number 30 (Tuesday, February 13, 1996)]
[Rules and Regulations]
[Pages 5511-5513]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-3084]



=======================================================================
-----------------------------------------------------------------------

ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[IL106-1-6707a; FRL-5411-3]


Approval and Promulgation of Implementation Plans; Illinois

AGENCY: Environmental Protection Agency.

ACTION: Direct final rule.

-----------------------------------------------------------------------

SUMMARY: On May 5, 1995, and May 26, 1995, the State of Illinois 
submitted a State Implementation Plan (SIP) revision request to the 
United States Environmental Protection Agency (USEPA) tightening 
existing rules for certain surface coating operations, as part of the 
State's 15 percent (%) Rate of Progress (ROP) plan control measures for 
Volatile Organic Matter (VOM) emissions. VOM, as defined by the State 
of Illinois, is identical to ``volatile organic compounds'' (VOC), as 
defined by USEPA. VOC is one of the air pollutants which combine on hot 
summer days to form ground-level ozone, commonly known as smog. Ozone 
pollution is of particular concern because of its harmful effects upon 
lung tissue and breathing passages. ROP plans are intended to bring 
areas which have been exceeding the public health based Federal ozone 
air quality standard closer toward the goal of reaching and maintaining 
attainment with this standard. Illinois expects the control measures 
specified in this surface coating SIP revision will reduce VOM 
emissions by 10.16 tons per day (TPD) in the Chicago area and 0.39 TPD 
in the Metro-East St. Louis area. The tightened rules lower the VOM 
content limit for certain types of coatings used by industries to apply 
to cans, paper, coil, fabric, vinyl, metal furniture, large appliances, 
and miscellaneous parts and products. Compliance with the rules can be 
met through using compliant coatings, add-on control equipment, or 
through a new method known as cross-line averaging.

DATES: The ``direct final'' is effective on April 15, 1996, unless 
USEPA receives adverse or critical comments by March 14, 1996. If the 
effective date is delayed, timely notice will appear in the Federal 
Register.

ADDRESSES: Copies of the revision request and USEPA's analysis 
(Technical Support Document) are available for inspection at the 
following address:

U.S. Environmental Protection Agency, Region 5, Air and Radiation 
Division, 77 West Jackson Boulevard, Chicago, Illinois 60604. (It is 
recommended that you telephone Mark J. Palermo at (312) 886-6082 
before visiting the Region 5 Office.)

    Written comments should be sent 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.

FOR FURTHER INFORMATION CONTACT: Mark J. Palermo at (312) 886-6082.

SUPPLEMENTARY INFORMATION:

I. Background

    On September 9, 1994, the USEPA approved an Illinois SIP revision 
which was submitted on September 11, 1991, and March 15, 1993, in order 
to correct deficiencies in the State's VOM Reasonably Available Control 
Technology (RACT) rules. Part of this SIP revision included regulations 
found in subpart F of Parts 218 and 219 of the 35 Illinois 
Administrative Code (IAC), which established State VOM RACT 
requirements for surface coating operations in the Chicago and Metro-
East ozone nonattainment areas, and which replaced part of the Chicago 
Federal Implementation Plan (FIP).
    Section 182(b)(1) of the Clean Air Act (the Act) requires all 
moderate and above ozone nonattainment areas to achieve a 15% reduction 
of 1990 emissions of VOC (VOM) by 1996. In Illinois, the Chicago area 
is classified as ``severe'' nonattainment for ozone, while the Metro-
East area is classified as ``moderate'' nonattainment. As such, these 
areas are subject to the 15% ROP requirement.
    In order to meet this requirement, the State of Illinois has to 
adopt and submit as SIP revisions several post-1990 control measures to 
meet the 15% VOM reductions. One of the control measures Illinois has 
decided to implement is to tighten existing VOM emission limits 
contained in subpart F of Parts 218 and 219 for certain surface coating 
operations in the Chicago and Metro-East ozone nonattainment areas.
    On September 12, 1994, the Illinois Environmental Protection Agency 
(IEPA) filed the proposed revision to the surface coating rule with the 
Illinois Pollution Control Board (Board). A public hearing on the rule 
was held on November 4, December 2, and December 16, 1994, in Chicago, 
Illinois; on April 20, 1995, the Board adopted a Final Opinion and 
Order for the proposed amendment. The rule became effective on May 9, 
1995; it was published in the Illinois State Register on May 19, 1995. 
The IEPA formally submitted the coating rule to USEPA on May 5, 1995, 
and May 26, 1995, as a revision to the Illinois SIP for ozone. USEPA 
made a finding of completeness in a letter dated July 13, 1995.

II. Analysis of State Submittal

    The May 5, 1995, and May 26, 1995, submittals include the following 
new or revised rules:
Part 218: Organic Material Emission Standards and Limitations for the 
Chicago Area

Subpart F: Coating Operations

218.204  Emission Limitations
218.205  Daily-Weighted Average Limitations
218.207  Alternative Emission Limitations
218.208  Exemptions From Emission Limitations
218.210  Compliance Schedule
218.212  Cross-line Averaging to Establish Compliance for Coating Lines
218.213  Recordkeeping and Reporting for Cross-line Averaging 
Participating Coating Lines
218.214  Changing Compliance Methods
218.App.H  Baseline VOM Content Limitations for Subpart F, Section 
218.212 Cross-Line Averaging
Part 219: Organic Material Emission Standards and Limitations for the 
Metro-East St. Louis Area

Subpart F: Coating Operations

219.204  Emission Limitations
219.205  Daily-Weighted Average Limitations
219.207  Alternative Emission Limitations
219.208  Exemptions From Emission Limitations
219.210  Compliance Schedule
219.212  Cross-line Averaging to Establish Compliance for Coating Lines
219.213  Recordkeeping and Reporting for Cross-line Averaging 
Participating Coating Lines
219.214  Changing Compliance Methods
219.App.H  Baseline VOM Content Limitations for Subpart F, Section 
219.212 Cross-line Averaging

    The tightened VOM content limits established in revisions to 
sections 218/

[[Page 5512]]

219.204 are specified below. The values not marked by an asterisk were 
the limits previous to this revision, whereas the values marked by an 
asterisk are the new limits. Subject sources will need to meet these 
new limits beginning March 15, 1996, while the limits not marked by an 
asterisk must be met until March 15, 1996. The limits are expressed in 
units of VOM per volume of coating (minus water and any compounds which 
are specifically exempted from the definition of VOM).

------------------------------------------------------------------------
                                                        kg/l     lb/gal 
------------------------------------------------------------------------
Can Coating                                                             
(1) Sheet basecoat and overvarnish:                                     
  (A) Sheet basecoat................................      0.34       2.8
                                                         *0.26      *2.2
  (B) Overvarnish...................................      0.34       2.8
                                                         *0.34      *2.8
(2) Exterior basecoat and overvarnish...............      0.34       2.8
                                                         *0.25      *2.1
(3) Interior body spray coat:                                           
  (A) Two Piece.....................................      0.51       4.2
                                                         *0.44      *3.7
  (B) Three Piece...................................      0.51       4.2
                                                         *0.51      *4.2
(4) Exterior end coat...............................      0.51       4.2
                                                         *0.51      *4.2
(5) Side seam spray coat............................      0.66       5.5
                                                         *0.66      *5.5
(6) End sealing compound coat.......................      0.44       3.7
                                                         *0.44      *3.7
Paper Coating.......................................      0.35       2.9
                                                         *0.28      *2.3
Coil Coating........................................      0.31       2.6
                                                         *0.20      *1.7
Fabric Coating......................................      0.35       2.9
                                                         *0.28      *2.3
Vinyl Coating.......................................      0.45       3.8
                                                         *0.28      *2.3
Metal furniture coating:                                                
  (1) Air dried.....................................      0.36       3.0
                                                         *0.34      *2.8
  (2) Baked.........................................      0.36       3.0
                                                         *0.28      *2.3
Large appliance coating:                                                
  (1) Air dried.....................................      0.34       2.8
                                                         *0.34      *2.8
  (2) Baked.........................................      0.34       2.8
                                                         *0.28      *2.3
Miscellaneous metal parts and products coating:                         
  (1) Clear coating.................................      0.52       4.3
                                                         *0.52      *4.3
(2) Extreme performance coating:                                        
  (A) Air dried.....................................      0.42       3.5
                                                         *0.42      *3.5
  (B) Baked.........................................      0.42       3.5
                                                         *0.40      *3.3
(3) Steel pail and drum interior coating............      0.52       4.3
                                                         *0.52      *4.3
(4) All other coatings:                                                 
  (A) Air dried.....................................      0.42       3.5
                                                         *0.40      *3.3
  (B) Baked.........................................      0.36       3.0
                                                         *0.34      *2.8
(5) Marine engine coating:                                              
  (A) Air Dried.....................................      0.42       3.5
                                                         *0.42      *3.5
  (B) Baked:                                                            
    (i) Primer/Topcoat..............................      0.42       3.5
                                                         *0.42      *3.5
    (ii) Corrosion resistant basecoat...............      0.42       3.5
                                                         *0.28      *2.3
  (C) Clear Coating.................................      0.52       4.3
                                                         *0.52      *4.3
(6) Metallic Coating:                                                   
  (A) Air Dried.....................................      0.42       3.5
                                                         *0.42      *3.5
  (B) Baked.........................................      0.36       3.0
                                                         *0.36      *3.0
------------------------------------------------------------------------

    A coating line can comply with the rule through (a) the use of 
coatings which meet the applicable VOM content limits specified in the 
rule; (b) demonstration that the daily-weighted average VOM content of 
all coatings used on the coating line meet the VOM content limit for 
those coatings; (c) use of a capture system and control device which 
either reduces the overall emissions of VOM from the coating line by 81 
percent, or achieves VOM emission reduction greater than or equal to 
that which could be achieved through meeting applicable VOM content 
limits, or (d) through cross-line averaging.
    Cross-line averaging is a new method established by this rule as an 
alternative to complying with the tightened VOM content limits. For 
those sources operating coating lines which were in existence prior to 
January 1, 1991, but have been replaced with lines using a lower VOM 
coating for the same purpose as the pre-existing lines, cross-line 
averaging can be used to take VOM reduction credit for such operational 
changes in order to offset those pre-existing lines which cannot, for 
one reason or another, meet the tightened emission limitations. Sources 
using cross-line averaging must demonstrate that the calculated actual 
daily VOM emissions from all participating coating lines are less than 
the calculated daily allowable VOM emissions from the same group of 
coating lines. Use of cross-line averaging is for complying with 
tightened VOM content limits only; VOM content limits established in 
the surface coating rule prior to this revision must still be met by 
all applicable coating lines.
    Also established in this rule revision is an exemption for ``touch-
up and repair coatings'' used by can, coil, vinyl, metal furniture, 
magnet wire, miscellaneous metal parts and products, and plastic parts 
coating operations from meeting VOM content limitations. This exemption 
holds provided that the source-wide volume of such coatings used does 
not exceed 0.95 l (1 quart) per eight-hour period or 209 l/yr (55 gal/
yr) for any rolling twelve month period. The surface coating rule 
defines touch-up and repair coatings as any coating used to cover minor 
scratches and nicks that occur during manufacturing and assembly 
processes.
    In addition to meeting these control requirements, sources will 
have to meet applicable provisions for coating analysis and capture 
efficiency and control device efficiency test methods under sections 
218/219.105, as well as applicable recordkeeping and recording 
requirements under sections 218/219.211. Also included in sections 218/
219.105 are monitoring requirements for sources using add-on control 
equipment. Sections 218/219.105 and 218/219.211 were approved and 
incorporated in the Illinois SIP on September 9, 1994 (See 59 FR at 
46562). Finally, 218/219.213 has been added to provide additional 
recordkeeping and recording requirements for sources complying with the 
rule through cross-line averaging.

III. Final Rulemaking Action

    The USEPA has undertaken its analysis of the SIP revision request, 
and is approving this SIP revision because it tightens the stringency 
of the Illinois SIP. Although the SIP revision does add an exemption 
for touch-up and repair coatings from control requirements, this type 
of exemption is acceptable under USEPA VOC policy. The surface coating 
rule contains all the appropriate test methods and recordkeeping/
recording requirements necessary to be an enforceable SIP.
    The USEPA is publishing this action without prior proposal because 
USEPA views this action as a noncontroversial revision 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 
April 15, 1996, unless USEPA receives adverse or critical comments by 
March 14, 1996. 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 

[[Page 5513]]
document. 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 April 15, 1996.
    This action has been classified as a Table 3 action for signature 
by the Regional Administrator under the procedures published in the 
Federal Register on January 19, 1989 (54 FR 2214-2225), as revised by a 
July 10, 1995, memorandum from Mary D. Nichols, Assistant Administrator 
for Air and Radiation. The Office of Management and Budget (OMB) has 
exempted this regulatory action from Executive Order 12866 review.
    Nothing in this action should be construed as permitting, allowing 
or establishing a precedent for any future request for revision to any 
SIP. USEPA shall consider each request for revision to the SIP in light 
of specific technical, economic, and environmental factors and in 
relation to relevant statutory and regulatory requirements.
    Section 202 of the Unfunded Mandates Reform Act of 1995 (``Unfunded 
Mandates Act'') (signed into law on March 22, 1995) requires that the 
USEPA prepare a budgetary impact statement before promulgating a rule 
that includes a Federal mandate that may result in expenditure by 
State, local, and tribal governments, in aggregate, or by the private 
sector, of $100 million or more in any one year. Section 203 requires 
the USEPA to establish a plan for obtaining input from and informing, 
educating, and advising any small governments that may be significantly 
or uniquely affected by the rule.
    Under section 205 of the Unfunded Mandates Act, the USEPA must 
identify and consider a reasonable number of regulatory alternatives 
before promulgating a rule for which a budgetary impact statement must 
be prepared. The USEPA must select from those alternatives the least 
costly, most cost-effective, or least burdensome alternative that 
achieves the objectives of the rule, unless the USEPA explains why this 
alternative is not selected or the selection of this alternative is 
inconsistent with law.
    Because this final rule is estimated to result in the expenditure 
by State, local, and tribal governments or the private sector of less 
then $100 million in any one year, the USEPA has not prepared a 
budgetary impact statement or specifically addressed the selection of 
the least costly, most cost-effective, or least burdensome alternative. 
Because small governments will not be significantly or uniquely 
affected by this rule, the USEPA is not required to develop a plan with 
regard to small governments. This rule only approves the incorporation 
of existing state rules into the SIP. It imposes no additional 
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 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.
    SIP approvals under section 110 and subchapter I, part D of the 
Clean Air 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 any small entities 
affected. 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 the 
State action. The Clean Air Act forbids USEPA to base its actions 
concerning SIPs on such grounds. Union Electric Co. v. USEPA., 427 U.S. 
246, 256-66 (S.Ct. 1976); 42 U.S.C. 7410(a)(2).
    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 April 15, 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, Incorporation by 
reference.

    Dated: January 12, 1996.
Valdas V. Adamkus,
Regional Administrator.

    For the reasons stated in the preamble, 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)(119) to read 
as follows:


Sec. 52.720  Identification of plan.

* * * * *
    (c) * * *
    (119) On May 5, 1995, and May 26, 1995, the State submitted a 
revised rule tightening volatile organic compound emission limitations 
for certain surface coating operations in the Chicago and Metro-East 
St. Louis areas.
    (i) Incorporation by reference. Illinois Administrative Code, Title 
35: Environmental Protection, Subtitle B: Air Pollution, Chapter I: 
Pollution Control Board, Subchapter c: Emissions Standards and 
Limitations for Stationary Sources.
    (A) Part 218: Organic Material Emission Standards and Limitations 
for the Chicago Area, Subpart F; Coating Operations, Sections 218.204 
Emission Limitations, 218.205 Daily-Weighted Average Limitations, 
218.207 Alternative Emission Limitations, 218.208 Exemptions From 
Emission Limitations, 218.210 Compliance Schedule, 218.212 Cross-line 
Averaging to Establish Compliance for Coating Lines, 218.213 
Recordkeeping and Reporting for Cross-line Averaging Participating 
Coating Lines, 218.214 Changing Compliance Methods, 218 Appendix H 
Baseline VOM Content Limitations for Subpart F, Section 218.212 Cross-
Line Averaging, amended at 19 Ill. 6848, effective May 9, 1995.
    (B) Part 219: Organic Material Emissions Standards and Limitations 
for the Metro-East Area, Subpart F; Coating Operations, Sections 
219.204 Emission Limitations, 219.205 Daily-Weighted Average 
Limitations, 219.207 Alternative Emission Limitations, 219.208 
Exemptions From Emission Limitations, 219.210 Compliance Schedule, 
219.212 Cross-line Averaging to Establish Compliance for Coating Lines, 
219.213 Recordkeeping and Reporting for Cross-line Averaging 
Participating Coating Lines, 219.214 Changing Compliance Methods, 219 
Appendix H Baseline VOM Content Limitations for Subpart F, Section 
219.212 Cross-line Averaging, amended at 19 Ill. Reg. 6958, effective 
May 9, 1995.

[FR Doc. 96-3084 Filed 2-12-96; 8:45 am]
BILLING CODE 6560-50-P