[Federal Register Volume 63, Number 162 (Friday, August 21, 1998)]
[Rules and Regulations]
[Pages 44792-44794]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-22335]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[CA 126-0082a FRL-6140-6]


Approval and Promulgation of Implementation Plans; California 
State Implementation Plan Revision, South Coast Air Quality Management 
District, Yolo-Solano Air Quality Management District, and Ventura 
County Air Pollution Control District

AGENCY: Environmental Protection Agency (EPA).

ACTION: Direct final rule.

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SUMMARY: EPA is taking direct final action on revisions to the 
California State Implementation Plan. The revisions concern rules from 
the following Districts: South Coast Air Quality Management District 
(SCAQMD), Yolo-Solano Air Quality Management District (YSAQMD), and 
Ventura County Air Pollution Control District (VCAPCD). This approval 
action will incorporate these rules into the federally approved SIP. 
The intended effect of approving these rules is to regulate emissions 
of volatile organic compounds (VOCs) in accordance with the 
requirements of the Clean Air Act, as amended in 1990 (CAA or the Act). 
The revised rules control VOCs from screen printing and graphic arts 
operations. Thus, EPA is finalizing the approval of these revisions 
into the California SIP under provisions of the CAA regarding EPA 
action on SIP submittals, SIPs for national primary and secondary 
ambient air quality standards and plan requirements for nonattainment 
areas.

DATES: This rule is effective on October 20, 1998 without further 
notice, unless EPA receives adverse comments by September 21, 1998. If 
EPA received such comments, then it will publish a timely withdrawal in 
the Federal Register informing the public that this rule will not take 
effect.

ADDRESSES: Comments must be submitted to Andrew Steckel at the Region 
IX office listed below. Copies of the rule revisions and EPA's 
evaluation report for each rule are available for public inspection at 
EPA's Region IX office during normal business hours. Copies of the 
submitted rule revisions are available for inspection at the following 
locations:

Rulemaking Office (AIR-4), Air Division, U.S. Environmental Protection 
Agency, Region IX, 75 Hawthorne Street, San Francisco, CA 94105
Environmental Protection Agency, Air Docket (6102), 401 ``M'' Street, 
SW, Washington, DC 20460
California Air Resources Board, Stationary Source Division, Rule 
Evaluation Section, 2020 ``L'' Street, Sacramento, CA 92123-1095
South Coast Air Quality Management District, 21865 E. Copley Drive, 
Diamond Bar, CA 91765-4182
Yolo-Solano Air Quality Management District, 1947 Galileo Court, Suite 
103, Davis, CA 95616.
Ventura County Air Pollution Control District, 669 County Square Drive, 
Ventura, CA 93003.

FOR FURTHER INFORMATION CONTACT: Andrew Steckel, Rulemaking Office, 
AIR-4, Air Division, U.S. Environmental Protection Agency, Region IX, 
75 Hawthorne Street, San Francisco, CA 94105, Telephone: (415) 744-
1185.

SUPPLEMENTARY INFORMATION:

I. Applicability

    The rules being approved into the California SIP include: SCAQMD 
Rule 1130.1, Screen Printing Operations, YSAQMD Rule 2.29, Graphic Arts 
Printing Operations, and VCAPCD Rule 74.19.1, Screen Printing 
Operations. These rules were submitted by the California Air Resources 
Board (CARB) to EPA on March 3, 1997 (1130.1), November 30, 1994 
(2.29), and October 18, 1996 (74.19.1).

II. Background

    On March 3, 1978, EPA promulgated a list of ozone nonattainment 
areas under the provisions of the Clean Air Act, as amended in 1977 
(1977 Act or pre-amended Act), that included the South Coast Air Basin, 
the Sacramento Metro Area, and Ventura County. 43 FR 8964, 40 CFR 
81.305. On May 26, 1988, EPA notified the Governor of California, 
pursuant to section 110(a)(2)(H) of the 1977 Act, that the above 
districts' portions of the California SIP were inadequate to attain and 
maintain the ozone standard and requested that deficiencies in the 
existing SIP be corrected (EPA's SIP-Call). On November 15, 1990, the 
Clean Air Act Amendments of 1990 were enacted. Pub. L. 101-549, 104 
Stat. 2399, codified at 42 U.S.C. 7401-7671q. In amended section 
182(a)(2)(A) of the CAA, Congress statutorily adopted the requirement 
that nonattainment areas fix their deficient reasonably available 
control technology (RACT) rules for ozone and established a deadline of 
May 15, 1991 for states to submit corrections of those deficiencies.
    Section 182(a)(2)(A) applies to areas designated as nonattainment 
prior to enactment of the amendments and classified as marginal or 
above as of the date of enactment. It requires such areas to adopt and 
correct RACT rules pursuant to pre-amended section 172(b) as 
interpreted in pre-amendment guidance.1 EPA's SIP-Call used 
that guidance to indicate the necessary corrections for specific 
nonattainment areas. The South Coast Air Basin is classified as 
extreme, the Sacramento

[[Page 44793]]

Metro Area and Ventura County are classified as severe,2 and 
therefore, these areas were subject to the RACT fix-up requirement and 
the May 15, 1991 deadline.
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    \1\ Among other things, the pre-amendment guidance consists of 
those portions of the proposed post-1987 ozone and carbon monoxide 
policy that concern RACT, 52 FR 45044 (November 24, 1987); ``Issues 
Relating to VOC Regulation Cutpoints, Deficiencies, and Deviations, 
Clarification to Appendix D of November 24, 1987 Federal Register 
Notice'' (Blue Book) (notice of availability was published in the 
Federal Register on May 25, 1988); and the existing control 
technique guidelines (CTGs).
    \2\ The South Coast Air Basin, the Sacramento Metro Area, and 
Ventura County retained their designation of nonattainment and were 
classified by operation of law pursuant to sections 107(d) and 
181(a) upon the date of enactment of the CAA. On April 25, 1995, EPA 
published a final Rule granting the State's request to reclassify 
the Sacramento Metro Area to severe from serious. 60 CFR 20237. This 
reclassification became effective on June 1, 1995.
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    The State of California submitted many revised RACT rules for 
incorporation into its SIP on March 3, 1997, November 30, 1994, and 
October 18, 1996, including the rules being acted on in this document. 
This document addresses EPA's direct-final action for SCAQMD Rule 
1130.1, Screen Printing Operations, YSAQMD Rule 2.29, Graphic Arts 
Printing Operations, and VCAPCD Rule 74.19.1, Screen Printing 
Operations. SCAQMD amended Rule 1130.1 on December 13, 1996, YSAQMD 
adapted Rule 2.29 on May 25, 1994, and VCAPCD adopted Rule 74.19.1 on 
June 11, 1996. These submitted rules were found to be complete on 
August 12, 1997 (1130.1), January 30, 1995 (2.29), and December 19, 
1996 (74.19.1) pursuant to EPA's completeness criteria that are set 
forth in 40 CFR part 51 Appendix V 3 and are being finalized 
for approval into the SIP.
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    \3\ EPA adopted the completeness criteria on February 16, 1990 
(55 FR 5830) and, pursuant to section 110(k)(1)(A) of the CAA, 
revised the criteria on August 26, 1991 (56 FR 42216).
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    SCAQMD's Rule 1130.1 and VCAPCD's Rule 74.19.1 regulate emissions 
of volatile organic compounds (VOCs) emanating from screen printing 
operations, and YSAQMD's Rule 2.29 limits emissions of VOCs from 
graphic arts facilities. VOCs contribute to the production of ground 
level ozone and smog. These rules were originally adopted as part of 
the above districts' efforts to achieve the National Ambient Air 
Quality Standard (NAAQS) for ozone and in response to EPA's SIP-Call 
and the section 182(a)(2)(A) CAA requirement. The following is EPA's 
evaluation and final action for these rules.

III. EPA Evaluation and Action

    In determining the approvability of a VOC rule, EPA must evaluate 
the rule for consistency with the requirements of the CAA and EPA 
regulations, as found in section 110 and part D of the CAA and 40 CFR 
part 51 (Requirements for Preparation, Adoption, and Submittal of 
Implementation Plans). The EPA interpretation of these requirements, 
which forms the basis for today's action, appears in the various EPA 
policy guidance documents listed in footnote 1. Among those provisions 
is the requirement that a VOC rule must, at a minimum, provide for the 
implementation of RACT for stationary sources of VOC emissions. This 
requirement was carried forth from the pre-amended Act.
    For the purpose of assisting state and local agencies in developing 
RACT rules, EPA prepared a series of Control Technique Guideline (CTG) 
documents. The CTGs are based on the underlying requirements of the Act 
and specify the presumptive norms for what is RACT for specific source 
categories. Under the CAA, Congress ratified EPA's use of these 
documents, as well as other Agency policy, for requiring States to 
``fix-up'' their RACT rules. See section 182(a)(2)(A). The CTG 
applicable to YSAQMD Rule 2.29 is entitled, Control of Volatile Organic 
Emissions from Existing Stationary Sources--Volume VIII: Graphic Arts--
Rotogravure and Flexography--EPA-450/2-78-033. SCAQMD Rule 1130.1 and 
VCAPCD Rule 74.19.1 cover source categories for which EPA has not 
published a CTG. Accordingly, these rules were evaluated for 
consistency with the general RACT requirement of the Clean Air Act (CAA 
Section 110 and part D). Further interpretations of EPA policy are 
found in the Blue Book, referred to in footnote 1. In general, these 
guidance documents have been set forth to ensure that VOC rules are 
fully enforceable and strengthen or maintain the SIP.
    There is currently no version of SCAQMD Rule 1130.1, Screen 
Printing Operations in the SIP. The submitted rule includes the 
following provisions:
     Applicability section including a statement of the rule's 
purpose;
     Reference to Rule 102 for the exempt compound listing;
     Option of using emission control equipment or using 
reduced VOC content inks and coatings;
     Test methods for VOC contents of coatings and inks;
     Test methods for metal contents of inks;
     Test methods for determining capture and control 
efficiency of an emission control device;
     Rule exemptions for firms emitting small quantities of 
VOCs.
    There is currently no version of YSAQMD's Rule 2.29, Graphic Arts 
in the SIP. The submitted rule includes the following provisions:
     Statement of applicability;
     Exemptions for firms emitting small quantities of VOCs;
     Operation specific standards limiting the VOC content of 
inks and coatings;
     Option of using an emission control system, or reduced VOC 
content inks and coatings;
     Test methods for determining the VOC content of inks and 
coatings;
     Test methods for determining the capture and control 
efficiency of an emission control system;
     Record keeping requirements.
    There is currently no version of VCAPCD's Rule 74.19.1, Screen 
Printing Operations in the SIP. The submitted rule includes the 
following provisions:
     Statement of applicability;
     Reactive organic compound (ROC) limits for specific end-
use products and substrates;
     Option to use an emission control system in lieu of using 
low ROC coatings;
     Cleaning methods and storage conditions of ROC containing 
materials;
     Record keeping requirements;
     Exemption for firms using small quantities of ROC 
containing material;
     Test methods for measurement of ROC content of inks, 
coatings, adhesives, resists, and solvents;
     Test method to determine the metal content of metallic 
ink;
     Test method to measure capture and control efficiency of 
an emission control system.
    EPA has evaluated the submitted rules and has determined that they 
are consistent with the CAA, EPA regulations, and EPA policy. 
Therefore, SCAQMD Rule 1130.1, Screen Printing Operations, YSAQMD Rule 
2.29, Graphic Arts Printing Operations, and VCAPCD Rule 74.19.1, Screen 
Printing Operations are being approved under section 110(k)(3) of the 
CAA as meeting the requirements of section 110(a) and part D.
    Nothing in this action should be construed as permitting or 
allowing or establishing a precedent for any future 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.
    EPA is publishing this rule without prior proposal because the 
Agency views this as a noncontroversial amendment and anticipates no 
adverse comments. However, in the proposed rules section of this 
Federal Register publication, EPA is publishing a separate document 
that will serve as the proposal to approve the SIP revision should 
relevant adverse comments be filed. This rule will be effective October

[[Page 44794]]

20, 1998 without further notice unless the Agency receives relevant 
adverse comments by September 21, 1998.
    If the EPA received such comments, then EPA will publish a timely 
withdrawal of the direct final rule and informing the public that the 
rule will not take effect. All public comments received will then be 
addressed in a subsequent final rule based on the proposed rule. The 
EPA will not institute a second comment period on this rule. Any 
parties interested in commenting on this rule should do so at this 
time. If no such comments are received, the public is advised that this 
rule will be effective on October 20, 1998 and no further action will 
be taken on the proposed rule.

IV. Administrative Requirements

A. Executive Orders 12866 and 13045

    The Office of Management and Budget (OMB) has exempted this 
regulatory action from E.O. 12866 review.
    The final rule is not subject to E.O. 13045, entitled ``Protection 
of Children from Environmental Health Risks and Safety Risks,'' because 
it is not an ``economically significant'' action under E.O. 12866.

B. 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, the 
Administrator certifies 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 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).

C. 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 
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 promulgated does not 
include a Federal mandate that may result in estimated 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 
Federal requirements. Accordingly, no additional costs to State, local, 
or tribal governments, or to the private sector, result from this 
action.

D. Submission to Congress and the General Accounting Office

    The Congressional Review Act, 5 U.S.C. 801 et seq., as added by the 
Small Business Regulatory Enforcement Fairness Act of 1996, generally 
provides that before a rule may take effect, the agency promulgating 
the rule must submit a rule report, which includes a copy of the rule, 
to each House of the Congress and to the Comptroller General of the 
United States. EPA will submit a report containing this rule and other 
required information to the U.S. Senate, the U.S. House of 
Representatives, and the Comptroller General of the United States prior 
to publication of the rule in the Federal Register. This rule is not a 
``major'' rule as defined by 5 U.S.C. 804(2).

E. Petitions for Judicial Review

    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 October 20, 1998. 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, Volatile organic compounds.

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

    Dated: July 28, 1998.
Sally Seymour,
Acting Regional Administrator, Region IX.
    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 et seq.

Subpart F--California

    2. Section 52.220 is amended by adding paragraphs 
(c)(207)(i)(C)(6),(241)(i)(C) and (244)(i)(D), to read as follows:


Sec. 52.220  Identification of plan.

* * * * *
    (c) * * *
    (207) * * *
    (i) * * *
    (C) * * *
    (6) Rule 2.29, adopted on May 25, 1994.
* * * * *
    (241) * * *
    (i) * * *
    (C) Ventura County Air Pollution Control District.
    (1) Rule 74.19.1, adopted on June 11, 1996.
* * * * *
    (244) * * *
    (i) * * *
    (D) South Coast Air Quality Management District.
    (1) Rule 1130.1, adopted on August 2, 1991 and amended on December 
13, 1996.
* * * * *
[FR Doc. 98-22335 Filed 8-20-98; 8:45 am]
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