[Federal Register Volume 62, Number 13 (Tuesday, January 21, 1997)]
[Proposed Rules]
[Pages 2984-2987]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 97-1370]


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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52

[Region II Docket No. NJ26-1-161, FRL-5678-3]


Approval and Promulgation of Implementation Plans; New Jersey; 
Consumer and Commercial Products Rule

AGENCY: Environmental Protection Agency (EPA).

ACTION: Proposed rule.

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SUMMARY: The Environmental Protection Agency (EPA) is announcing the 
proposed approval of a revision to the New Jersey State Implementation 
Plan (SIP) for the attainment and maintenance of the national ambient 
air quality standards for Ozone. The SIP revision was submitted by the 
New Jersey Department of Environmental Protection and consists of the 
adopted new rule Subchapter 24, ``Control and Prohibition of Volatile 
Organic Compounds (VOCs) from Consumer and Commercial Products,'' which 
establishes limits on the amount of VOCs contained in certain consumer 
and commercial products. The intended effect is to reduce the emission 
of VOCs which will assist in attaining the health based ozone air 
quality standard.

DATES: Comments must be received on or before February 20, 1997.

ADDRESSES: All comments should be addressed to: Ronald J. Borsellino,

[[Page 2985]]

Chief, Air Programs Branch, Environmental Protection Agency, Region 2 
Office, 290 Broadway, New York, New York 10007-1866.
    Copies of the state submittal(s) are available at the following 
addresses for inspection during normal business hours: Environmental 
Protection Agency, Region 2 Office, Air Programs Branch, 290 Broadway, 
25th Floor, New York, New York 10007-1866.
    New Jersey Department of Environmental Protection, Office of Air 
Quality Management, Bureau of Air Quality Planning, 401 East State 
Street, CN418, Trenton, New Jersey 08625.

FOR FURTHER INFORMATION CONTACT: Kirk J. Wieber, Environmental 
Engineer, Air Programs Branch, Environmental Protection Agency, 290 
Broadway, 25th Floor, New York, New York 10007-1866, (212) 637-4249.

SUPPLEMENTARY INFORMATION:

Background

    On January 25, 1996, the New Jersey Department of Environmental 
Protection (NJDEP) submitted to EPA a revision to the New Jersey State 
Implementation Plan (SIP) for the attainment and maintenance of the 
national ambient air quality standards (NAAQS) for Ozone. The revisions 
to the New Jersey Ozone SIP reflect the adoption to New Jersey 
Administrative Code (N.J.A.C) of 7:27-24 entitled ``Control and 
Prohibition of Volatile Organic Compounds from Consumer and Commercial 
Products,'' (Subchapter 24). This new rule was adopted by New Jersey on 
October 3, 1995, and became effective upon publication in the New 
Jersey Register on November 6, 1995. This portion of New Jersey's Ozone 
SIP submittal was found to be complete on March 15, 1996, pursuant to 
EPA's completeness criteria that are set forth in 40 CFR Part 51 
Appendix V.

State Submittal

    New Jersey's January 25, 1996 SIP revision submittal consists of 
new rule Subchapter 24, which establishes limits on the amount of 
volatile organic compounds (VOC) or high volatility organic compounds 
(HVOC) contained in certain consumer and commercial products. Certain 
products manufactured after April 30, 1996, and sold for use in New 
Jersey are subject to these VOC content limits. The types of consumer 
and commercial products regulated by this new rule and the 
corresponding VOC content limits are listed in the table below.

                                                                        
                VOC Content Limits for Consumer Products                
------------------------------------------------------------------------
                                          Maximum allowable VOC content 
       Consumer product category               (percent by weight)      
------------------------------------------------------------------------
Air Fresheners:                                                         
  Single phase aerosol.................  70                             
  Double-phase aerosol.................  30                             
  Liquid/pump..........................  18                             
  Solid/gel............................  3                              
Antiperspirants:                                                        
  Aerosol..............................  HVOC 60                        
  Non-aerosol..........................  HVOC 0                         
Bathroom and tile cleaners:                                             
  Aerosols.............................  7                              
  All other forms......................  5                              
Carburetor choke cleaners..............  75                             
Cooking sprays, aerosol................  18                             
Deodorants:                                                             
  Aerosol..............................  HVOC 20                        
  Non-aerosol..........................  HVOC 0                         
Dusting aids:                                                           
  Aerosol..............................  35                             
  All other forms......................  7                              
Engine degreasers......................  75                             
Fabric protectants.....................  75                             
Floor polishes/waxes:                                                   
  Products for flexible flooring         7                              
   material.                                                            
  Products for nonresilient flooring...  10                             
  Wood floor wax.......................  90                             
Furniture maintenance products, aerosol  25                             
General purposes cleaners..............  10                             
Glass cleaners:                                                         
  Aerosols.............................  12                             
  All other forms......................  8                              
Hair mousses...........................  16                             
Hair sprays............................  80                             
Hair styling gels......................  6                              
Household adhesives:                                                    
  Aerosol..............................  75                             
  Contact..............................  80                             
  Construction and panel...............  40                             
  General purpose......................  10                             
  Structural waterproof................  (\1\)                          
Insecticides:                                                           
  Crawling bug.........................  40                             
  Flea and tick........................  25                             
  Flying bug...........................  35                             
  Foggers..............................  45                             
  Lawn and garden......................  20                             
Laundry prewash:                                                        
  Aerosol/solids.......................  22                             
  All other forms......................  5                              
Laundry starch products................  5                              
Nail polish removers...................  85                             
Oven Cleaners:                                                          
  Aerosol/pump sprays..................  8                              
  Liquids..............................  5                              
Shaving creams.........................  5                              
------------------------------------------------------------------------
\1\ Reserved.                                                           

    In March 1995, EPA published a Report to Congress entitled ``Study 
of Volatile Organic Compound Emissions from Consumer and Commercial 
Products,'' (EPA-453/R-94-066-A). Based on the information provided in 
this report, the NJDEP expects to achieve VOC emission reductions of 
7.9 tons per day from the 1990 baseline emissions. This level of 
emission reductions when achieved, constitutes a 18 percent reduction 
from the 1990 baseline emissions for the categories regulated in 
Subchapter 24. These emission reductions reflect a per capita VOC 
emission reduction of 0.75 pounds of VOC per person per year.

Applicability

    Subchapter 24 applies to any person who sells, offers for sale, 
holds for sale, distributes, supplies, or manufactures any consumer 
product listed in the table above for use in New Jersey. Consumer 
products that are sold in New Jersey for shipment and use outside of 
the State of New Jersey are exempt from the VOC content limits, and 
administrative and testing requirements of Subchapter 24. This 
exemption reflects the intent to regulate only the manufacture and 
distribution of consumer products that are actually used in New Jersey 
and not to interfere in the transportation of goods that are destined 
for outside of the State.
    The VOC content limits included in Subchapter 24, do not apply to 
consumer products manufactured prior to April 30, 1996 provided such 
consumer products have a date of manufacture code on the container or 
packaging. This provision allows the manufacturers and distributors 
sufficient notice and a reasonable amount of time, from the state 
effective date of the rule, to comply with VOC content limits contained 
in Subchapter 24.
    Subchapter 24 excludes certain products from the applicable VOC 
content limits. The rationale for these exclusions is that the products 
do not emit VOCs, or there are no existing acceptable alternatives, or 
because the active ingredient is present in concentrated form resulting 
in less VOC emissions. Such products that are exempt are: bait station 
insecticides that contain bait weighing more than 0.5 ounces; household 
adhesives sold in a container of one fluid ounce or less or a container 
of more than one United States gallon (128 fluid ounces); air 
fresheners or insecticides which contain at least 98 percent by weight 
para-dichlorobenzene; air fresheners consisting entirely of fragrance, 
inorganic compounds, or compounds excluded from the definition of VOC 
in Subchapter 24. Generally, these exclusions are consistent with 
similar regulations in other states and have been approved by EPA.

[[Page 2986]]

    Certain substances for the purposes of determining the VOC content 
on consumer products are excluded from the requirements of Subchapter 
24, specifically, VOCs with known low vapor pressures of less than 0.1 
millimeters of mercury at 20 degrees Celsius, VOCs with unknown vapor 
pressures consisting of more than 12 carbon atoms per molecule, and 
VOCs with unknown vapor pressures that have melting points higher than 
20 degrees Celsius and do not sublime. Examples of such compounds 
include high molecular weight resins used in hair sprays and the heavy 
oils used in furniture polishes. Subsection 24 also excludes fragrances 
up to a combined two percent by weight contained in any consumer 
product.
    Subchapter 24 also provides for granting exemptions for products 
that reduce VOC emissions using non-traditional methods, referred to as 
``innovative products.'' The concept behind an innovative product 
provision is to provide an alternative to complying with the specified 
content standard found in the rule. A product may be exempted from VOC 
content standards if the manufacturer demonstrates that due to some 
characteristics of the formulation, design, delivery system or other 
factor, VOC emissions resulting from the use of the innovative product 
would be less than the emissions resulting from the use of a 
representative product that meets the VOC content standard.
    If a manufacturer was granted an innovative product exemption 
pursuant to the California Air Resource Board (CARB) consumer products 
regulations (Title 17, Subchapter 8.5, article 1, section 94503.5 or 
article 2, section 94511 of the California Code of Regulations), the 
manufacturer may also claim this exclusion by submitting a copy of the 
CARB exemption decision and CARB's statement of the conditions on its 
approval of the exemption to the NJDEP.
    As stated in their response to comments, New Jersey commits to 
forwarding all innovative product exemptions that New Jersey accepts to 
EPA, Region 2, in order for EPA to be able to determine compliance with 
the New Jersey SIP, once it is approved. SIP revisions would not be 
necessary for such innovative products excluded from complying with the 
VOC content limits of Subchapter 24, because the VOC emissions from 
such products have been demonstrated to be less than those from a 
complying product and because an appropriate level of opportunity for 
public comment regarding the mechanisms and criteria for such 
exclusions has been made during New Jersey's proposal of new rule 
Subchapter 24.
    In addition, CARB's rules, measures and procedures for their 
consumer products regulation have been approved by EPA as part of the 
California SIP. CARB's consumer products rule includes a ``federal 
enforceability'' provision which requires that those innovative product 
exemptions approved by CARB be submitted to EPA Region 9 as SIP 
revisions after adhering to a specific procedure or mechanism. Since 
New Jersey is recognizing only those innovative product exemptions 
approved by CARB, and which are required to be federally enforceable 
through CARB's rule, it would be redundant to have New Jersey submit 
those exemptions to EPA Region 2 for EPA approval.
    In addition, Subchapter 24 provides relief due to extraordinary 
reasons that are beyond the reasonable control of the manufacturers of 
regulated consumer products. The maximum allowable VOC content limits 
do not apply to any consumer product if an agency of another state, 
which has an adopted consumer product variance provision in its rules 
as of December 2, 1995, has granted to the manufacturer of that product 
a variance. This exclusion shall be effective in New Jersey until the 
other state agency's approved variance expires or is revoked, at which 
time the exclusion from the requirements of Subchapter 24 shall 
automatically expire. This exclusion shall be effective in New Jersey 
provided that the manufacturer claiming this exclusion submits a copy 
of the state agency's exemption decision and statement of the 
conditions of the state agency's approval of the exemption to the 
NJDEP.
    As stated in their response to comments, New Jersey commits to 
forwarding all variances pursuant to Subchapter 24 to EPA, Region 2, in 
order for EPA to be able to determine compliance with the New Jersey 
SIP, once it is approved. Since there is already a specific procedure 
or mechanism established for making the variances federally 
enforceable, it is not necessary to go through the process again.

Administrative Requirements

    Subchapter 24 requires manufacturers of consumer products subject 
to Subchapter 24, to submit a registration report to the NJDEP by 
October 1, 1996 which identifies the categories of products they 
manufacture and the specific products affected by the rule.
    Each manufacturer of a consumer product subject to Subchapter 24 is 
required to clearly display on each consumer product container or 
packaging the month and year in which the product was manufactured (or 
a code indicating such date). This will allow the verification of 
whether the product was required to meet the VOC content limits 
specified in Subchapter 24.
    Subchapter 24 also requires manufacturers of consumer products to 
keep records demonstrating compliance with the VOC content limits. 
These records are required to be kept for a period of at least three 
years and shall be made available within 30 days upon request. In 
addition, manufacturers of consumer products are required to submit 
within 90 days upon request, estimations of the product quantities sold 
in New Jersey. This provision enables the NJDEP to conduct an emission 
estimation survey at a future date. Any person who submits information 
to the NJDEP pursuant to Subchapter 24 may assert a confidentiality 
claim in accordance with the procedures specified in N.J.A.C. 7:27-1.6.

Test Methods

    Compliance is determined using mass balance based on manufacturers' 
formation data and records of raw material purchase. Further analysis 
could make use of methods which are shown to accurately determine the 
concentration of VOCs in a product. Such methods shall include any 
methods issued by EPA or CARB which have been established for the 
measurement of VOCs in consumer products. Subchapter 24 does not cite 
any specific analytical method for determining the VOC content of 
consumer products as such methods are currently being developed by CARB 
and EPA. Until specific analytical methods become available, compliance 
with Subchapter 24 will rely heavily upon manufacturer's records of the 
constituents used to produce the consumer products.

Federal Supersession

    Subchapter 24 includes a provision which addresses any potential 
conflicts between New Jersey's Subchapter 24 and any national consumer 
products rule EPA may issue. Generally, Subchapter 24 provides that 
where a Federal rule establishes a VOC content limit or product 
applicability criteria that differs from New Jersey's requirement, the 
Federal rule shall supersede New Jersey's regulation. However, where 
the Federal rule does not regulate the VOC content of a product 
category for which Subchapter

[[Page 2987]]

24 has established a limit, New Jersey's regulation shall remain in 
effect. On April 2, 1996, EPA proposed national VOC emission standards 
for consumer products, 61 FR 14531, which includes similar consumer 
products and VOC content limits as those approved by New Jersey. It is 
anticipated that the national rule will be promulgated in 1997.

Conclusion

    EPA has evaluated the revisions to the New Jersey Ozone SIP which 
consists of the adoption of a new rule Subchapter 24, ``Control and 
Prohibition of Volatile Organic Compounds from Consumer and Commercial 
Products,'' and has determined that all of the provisions contained in 
Subchapter 24 are consistent with EPA policy and guidance and are 
approvable. Therefore, EPA is proposing approval of Subchapter 24.
    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 the SIP shall be 
considered separately in light of specific technical, economic, and 
environmental factors and in relation to relevant statutory and 
regulatory requirements.

Administrative Requirements

Executive Order 12866

    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 Nichols, Assistant Administrator for 
Air and Radiation. The Office of Management and Budget (OMB) has 
exempted this regulatory action from E.O. 12866 review.

Regulatory Flexibility Act

    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.
    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 Clean Air Act, preparation of a flexibility analysis would 
constitute federal inquiry into the economic reasonableness of state 
action. The Clean Air Act forbids EPA to base its actions concerning 
SIPs on such grounds. Union Electric Co. v. U.S. EPA, 427 U.S. 246, 
255-66 (1976); 42 U.S.C. 7410(a)(2).

Unfunded Mandates

    Under section 202 of the Unfunded Mandates Reform Act of 1995 
(``Unfunded Mandates Act''), signed into law on March 22, 1995, EPA 
must prepare a budgetary impact statement to accompany any proposed or 
final rule that includes a federal mandate that may result in estimated 
annual costs to State, local, or tribal governments in the aggregate; 
or to private sector, of $100 million or more. Under section 205, EPA 
must select the most cost-effective and least burdensome alternative 
that achieves the objectives of the rule and is consistent with 
statutory requirements. Section 203 requires EPA to establish a plan 
for informing and advising any small governments that may be 
significantly or uniquely impacted by the rule.
    EPA has determined that the approval action proposed does not 
include a federal mandate that may result in estimated annual costs of 
$100 million or more to either State, local, or tribal governments in 
the aggregate, or to the private sector. This federal action approves 
pre-existing requirements under State or local law, and imposes no new 
requirements. Accordingly, no additional costs to State, local, or 
tribal governments, or to the private sector, result from this action.
    The Administrator's decision to approve or disapprove the SIP 
revision will be based on whether it meets the requirements of section 
110(a)(2)(A)-(K) and part D of the Clean Air Act, as amended, and EPA 
regulations in 40 CFR Part 51.

List of Subjects in 40 CFR Part 52

    Environmental protection, Air pollution control, Hydrocarbons, 
Incorporation by reference, Ozone, Reporting and recordkeeping 
requirements, Volatile organic compounds.

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

    Dated: December 30, 1996.
William J. Muszynski,
Acting Regional Administrator.
[FR Doc. 97-1370 Filed 1-17-97; 8:45 am]
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