[Federal Register Volume 63, Number 238 (Friday, December 11, 1998)]
[Rules and Regulations]
[Pages 68397-68400]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-32991]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 63

[AD-FRL-6201-2]
RIN 2060-A104


National Emission Standards for Hazardous Air Pollutants: 
Halogenated Solvent Cleaning

AGENCY: Environmental Protection Agency (EPA).

ACTION: Final rule; compliance extension.

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SUMMARY: On December 2, 1994, the EPA issued the ``National Emission 
Standards for Hazardous Air Pollutants: Halogenated Solvent Cleaning'' 
(59 FR 61801). On May 5, 1998, the EPA announced an immediate 3-month 
stay of the effectiveness of that standard for continuous web cleaning 
machines using halogenated hazardous air pollutant (HAP) solvents for 
good cause pursuant to section 553(b)(3)(B) of the Administrative 
Procedures Act (63 FR 24768). In that same document, the EPA proposed a 
temporary extension of the applicable compliance date beyond the 3 
months of the stay for up to 1 year to complete analysis of equivalent 
methods of control for continuous web cleaning machines using 
halogenated HAP solvents.
    This document promulgates that compliance extension, and for 
reasons discussed in this notice, extends the compliance extension 
until December 2, 1999. This document also discusses the three comment 
letters received on the May 5, 1998 proposal notice.

DATES: The regulation is effective on December 11, 1998.

ADDRESSES: Docket. Interested parties may review items used to support 
this notice at: Air and Radiation Docket and Information Center (6102), 
Attention, Docket No. A-92-39, U.S. Environmental Protection Agency, 
401 M Street, SW, Washington, DC 20460.

FOR FURTHER INFORMATION CONTACT: For information concerning the 
standards and the proposed changes, contact Mr. Paul Almodovar, 
Coatings and Consumer Products Group, Emission Standards Division (MD-
13), U.S. Environmental Protection Agency, Research Triangle Park, NC 
27711; telephone (919) 541-0283. For information regarding the 
applicability of this action to a particular entity, contact Ms. Tracy 
Back, Manufacturing Branch, Office of Compliance (2223A), U.S. 
Environmental Protection Agency, 401 M Street, SW, Washington, DC 
20460; telephone (202) 564-7076.

SUPPLEMENTARY INFORMATION:

Regulated Entities

    Entities potentially regulated by this action are owners or 
operators of individual continuous web cleaning machines using any 
solvent containing methylene chloride, perchloroethylene, 
trichloroethylene, 1,1,1 trichloroethane, carbon tetrachloride, or 
chloroform, or any combination of these halogenated HAP solvents in a 
concentration greater than 5 percent by weight, as a cleaning or drying 
agent.
    Regulated categories include:

------------------------------------------------------------------------
                Category                  Examples of regulated entities
------------------------------------------------------------------------
Industry...............................  Facilities engaging in cleaning
                                          operations using halogenated
                                          solvent cleaning machines.
------------------------------------------------------------------------

    This table is not intended to be exhaustive, but rather provides a 
guide for readers regarding entities that the EPA is now aware 
potentially could be regulated by this action. Other types of entities 
not listed in the table also could be regulated. To determine whether 
your facility [company, business, organization, etc.] is regulated by 
this action, you should carefully examine the applicability criteria in 
Sec. 63.460 of the national emission standards for hazardous air 
pollutants (NESHAP) for halogenated solvent cleaning operations that 
was promulgated in the Federal Register on December 2, 1994 (59 FR 
61801) and codified at 40 CFR part 63, subpart T. If you have questions 
regarding the applicability of this action to a particular entity, 
consult Mrs. Tracy Back at the address listed in the preceding FOR 
FURTHER INFORMATION CONTACT section.
    The information presented below is organized as follows:

I. Background
II. Comments Received on Proposed Compliance Changes and EPA 
Response to Comments
III. Administrative Requirements
    A. Docket
    B. Paperwork Reduction Act
    C. Executive Order 12866 Review
    D. Regulatory Flexibility/Small Business Regulatory Enforcement 
Fairness Act of 1996
    E. Submission to Congress and the General Accounting Office
    F. Unfunded Mandates Reform Act
    G. National Technology Transfer and Advancement Act
    H. Executive Order 12875: Enhancing the Intergovernmental 
Partnership
    I. Executive Order 13045: Protection of Children from 
Environmental Health Risks and Safety Risks
    J. Executive Order 13084: Consultation and Coordination with 
Indian Tribal Governments

I. Background

    On December 2, 1994 (59 FR 61801), the EPA promulgated the NESHAP 
for halogenated solvent cleaning operations. These standards were 
codified as subpart T in 40 CFR part 63. These standards established 
equipment and work practice standards for individual batch vapor, in-
line vapor, in-line cold, and batch cold solvent cleaning machines 
using any solvent containing methylene chloride, perchloroethylene, 
trichloroethylene, 1,1,1 trichloroethane, carbon tetrachloride, or 
chloroform, or any combination of these halogenated HAP solvents in a 
concentration greater than 5 percent by weight, as a cleaning or drying 
agent.
    Under Sec. 63.469 of the halogenated solvent cleaning NESHAP, the 
Administrator may approve the use of equipment or procedures that have 
been demonstrated to be equivalent in terms of reducing emissions of 
methylene

[[Page 68398]]

chloride, perchloroethylene, trichloroethylene, 1,1,1 trichloroethane, 
carbon tetrachloride, or chloroform to the atmosphere, to those 
prescribed for compliance within a specified paragraph of the NESHAP.
    After the rule was promulgated, two owners and operators of 
affected halogenated solvent cleaning machines requested approval for 
equivalent methods of control determinations for their continuous web 
cleaning machines because the final rule did not address their 
situation. In addition, the EPA has become aware of several other 
continuous web cleaning machines experiencing difficulties in 
determining how to comply with the NESHAP. In each case, the emission 
control requirements specified by the NESHAP would be difficult or 
impossible to implement due to the operating and emission 
characteristics of these machines. Without any action by the EPA to the 
contrary, individual case-by-case equivalency determinations would be 
required to ensure that each machine is applying alternative control 
measures that achieve the same or better emission reductions as the 
NESHAP-required controls. Such a case-by-case approach would be unduly 
burdensome for both the affected sources and the EPA. Therefore, the 
EPA is conducting an evaluation of methods of control for all 
continuous web cleaning machines to determine which emission control 
measures would be equivalent to the NESHAP.
    As discussed below, the compliance extension promulgated today will 
allow sufficient time for the EPA to complete the evaluation of 
equivalent control technologies for continuous web cleaning machines, 
as well as time for industry to implement any required changes.

II. Comments Received on Proposed Compliance Changes and EPA 
Response to Comments

    Three comment letters were received on the proposed extension of 
the compliance date for continuous web cleaning machines. All of these 
comments were from industrial facilities who believed that their 
operations fit the definition of ``continuous web cleaning.'' These 
comments have been included in the docket to the Halogenated Solvent 
Cleaning NESHAP (Docket No. A-92-39) as Items VI-D-01 through VI-D-03.
    Each of these facilities commented on the proposed compliance 
extension, as well as provided additional information for consideration 
by the EPA during the review and analysis of continuous web cleaning 
machines. Because there were only three comment letters, no separate 
response to comment document has been prepared. This preamble serves as 
the only summary of the comments received on the proposed compliance 
extension.
    The data provided by the commenters supported the EPA's conclusion 
that the continuous web cleaning machines warrant further evaluation. 
The design and operation, and, therefore, the emissions characteristics 
of these machines are different from the solvent cleaning machines 
(e.g., batch cold cleaning machines, in-line cleaning machines) that 
the EPA evaluated during the NESHAP development process. The types of 
units discussed in the comment letters as potentially fitting the 
definition of continuous web cleaners include web crawlers, wire 
drawers, thin strip cleaning machines, and photographic film cleaning 
equipment. According to the commenters, none of these units can 
unambiguously be classified as either a ``batch cold cleaning machine'' 
or as an ``in-line cold cleaning machine.''
    All of the commenters supported the EPA's proposal to extend the 
comment period by 1 year. One commenter stated that a 1 year extension 
would not be sufficient to achieve compliance. As an alternative, the 
commenter recommended a minimum of 18 months after the promulgation of 
final standards applicable to continuous web cleaning machines. The 
commenter stated that the additional time would allow for the retrofit 
of existing equipment or the installation of new equipment if required 
by the revised rule.
    The EPA shares the concern of the commenter that a 1 year extension 
to August 3, 1999 may not be sufficient time to allow both the EPA's 
analysis and a facility's compliance with the new requirements for 
these type of solvent cleaning machines. However, the EPA does not 
believe at this time that 18 months after the promulgated equivalency 
determination will be required. The time required for compliance with 
the new requirements will largely depend on the types of modification 
or enhancements required by the affected sources. Since the EPA agrees 
that some additional time will be necessary, the EPA is promulgating a 
small extension to the proposed August 3, 1999 date. The EPA will 
review this date during development of requirements for continuous web 
cleaning machines and may revise the date, if warranted. In today's 
action, the EPA is extending the compliance extension until December 2, 
1999. The EPA currently believes that this will allow sufficient time 
for the EPA to conduct the technical analysis, propose and promulgate 
the equivalency determination for continuous web cleaners, and for 
industry to comply with such requirements. This date is also linked to 
the original compliance date of December 2, 1997, which should help to 
provide consistent dates for ongoing reports to the regulating 
agencies.

III. Administrative Requirements

A. Docket

    Docket A-92-39 is an organized and complete file of all of the 
information submitted to, or otherwise considered by, the EPA in the 
development of this rulemaking. The docket is a dynamic file, since 
material is added throughout the rulemaking development. The docketing 
system is intended to allow members of the public to readily identify 
and locate documents to enable them to participate effectively in the 
rulemaking process. The contents of the docket serves as the record in 
case of judicial review (except for interagency review materials) 
(section 307(d)(7)(A) of the Clean Air Act, 42 U.S.C. 7607(d)(7)(A)).

B. Paperwork Reduction Act

    There are no additional information collection requirements 
contained in this final action. Therefore, approval under the 
provisions of the Paperwork Reduction Act, 44 U.S.C. 3501, et seq., is 
not required.

C. Executive Order 12866 Review

    Under Executive Order 12866, the EPA must determine whether a 
regulatory action is ``significant'' and, therefore, subject to Office 
of Management and Budget (OMB) review and the requirements of the 
Executive Order. The Executive Order defines ``significant'' regulatory 
action as one that is likely to lead to a rule that may:
    (1) Have an annual effect on the economy of $100 million or more or 
adversely affect in a material way the economy, a sector of the 
economy, productivity, competition, jobs, the environment, public 
health or safety in State, local, or tribal governments or communities;
    (2) create a serious inconsistency or otherwise interfere with an 
action taken or planned by another agency;
    (3) materially alter the budgetary impact of entitlements, grants, 
user fees, or loan programs or the rights and obligations of recipients 
thereof; or
    (4) raise novel legal or policy issues arising out of legal 
mandates, the President's priorities, or the principles set forth in 
the Executive Order.

[[Page 68399]]

    Pursuant to the terms of the Executive Order, the EPA has 
determined that this final rule is not a ``significant regulatory 
action'' within the meaning of the Executive Order. The amendments 
issued today extend the compliance date for continuous web cleaning 
machines. These amendments do not add any new control requirements. 
Therefore, this regulatory action is considered ``not significant'' and 
OMB review is not required.

D. Regulatory Flexibility/Small Business Regulatory Enforcement 
Fairness Act of 1996

    The Regulatory Flexibility Act of 1980 (5 U.S.C. 601, et seq.), as 
amended by the Small Business Regulatory Enforcement Fairness Act 
(SBREFA) of 1996, requires the EPA to give special consideration to the 
effect of Federal regulations on small entities and to consider 
regulatory options that might mitigate any such impacts. The EPA is 
required to prepare a regulatory flexibility analysis and coordinate 
with small entity stakeholders if the Agency determines that a rule 
will have a significant economic impact on a substantial number of 
small entities.
    The EPA has determined that it is not necessary to prepare a 
regulatory flexibility analysis in connection with this final amendment 
to the rule because the compliance extension for continuous web 
cleaning machines 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 small government 
jurisdictions. See the April 22, 1994 Federal Register (59 FR 19449) 
for the basis for this determination. The changes to the rule merely 
extend the compliance date for continuous web cleaning machines and, 
therefore, do not create any additional burden for any of the regulated 
entities.

E. Submission to Congress and the General Accounting Office

    The Congressional Review Act, 5 U.S.C. 801, et seq., as added by 
the SBREFA 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. The EPA will submit a 
report containing this rule and other required information to the 
United States Senate, the United States House of Representatives, and 
the Comptroller General of the United States prior to publication of 
the rule in the Federal Register. A major rule cannot take effect until 
60 days after it is published in the Federal Register. This action is 
not a ``major rule'' as defined by 5 U.S.C. 804(2). This rule will be 
effective December 11, 1998.

F. Unfunded Mandates Reform Act

    Under section 202 of the Unfunded Mandates Reform Act of 1995 
(``Unfunded Mandates Act''), signed into law on March 22, 1995, the 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 
the private sector, of $100 million or more in any one year. Under 
section 205, the EPA must select the least costly, most cost-effective, 
or least burdensome alternative that achieves the objectives of the 
rule and is consistent with statutory requirements. Section 203 
requires the EPA to establish a plan for informing and advising any 
small governments that may be significantly or uniquely impacted by the 
rule.
    The EPA has determined that the action promulgated today 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 in any one year. Therefore, the 
requirements of sections 202 and 205 of the Unfunded Mandates Act do 
not apply to this action. The EPA has likewise determined that the 
action promulgated today does not include any regulatory requirements 
that might significantly or uniquely affect small governments. Thus, 
today's action is not subject to the requirements of section 203 of the 
Unfunded Mandates Act.

G. National Technology Transfer and Advancement Act

    Section 12(d) of the National Technology Transfer and Advancement 
Act (the NTTAA) of 1995, Public Law 104-113, section 12(d) (15 U.S.C. 
272 note), directs the EPA to use voluntary consensus standards in its 
regulatory activities unless to do so would be inconsistent with 
applicable law or otherwise impractical. Voluntary consensus standards 
are technical standards (e.g., materials specifications, test methods, 
sampling procedures, business practices, etc.) that are developed or 
adopted by voluntary consensus standard bodies. The NTTAA requires the 
EPA to provide Congress, through OMB, explanations when the Agency 
decides not to use available and applicable voluntary consensus 
standards.
    This regulatory action extends the compliance date for continuous 
web cleaning machines. Thus, this action does not involve any technical 
standards that would require the EPA to consider voluntary consensus 
standards pursuant to section 12(d) of the NTTAA.

H. Executive Order 12875: Enhancing Intergovernmental Partnership

    Under Executive Order 12875, the EPA may not issue a regulation 
that is not required by statute and that creates a mandate upon a 
State, local, or tribal government, unless the Federal government 
provides the funds necessary to pay the direct compliance costs 
incurred by those governments, or EPA consults with those governments. 
If the EPA complies by consulting, Executive Order 12875 requires the 
EPA to provide to the OMB a description of the extent of the EPA's 
prior consultation with representatives of affected State, local, and 
tribal governments, the nature of their concerns, copies of any written 
communications from the governments, and a statement supporting the 
need to issue the regulation. In addition, Executive Order 12875 
requires the EPA to develop an effective process permitting elected 
officials and other representatives of State, local, and tribal 
governments ``to provide meaningful and timely input in the development 
of regulatory proposals containing significant unfunded mandates.''
    Today's amendments to the rule do not create a mandate on State, 
local, or tribal governments. The amendments do not impose any 
enforceable duties on these entities. Accordingly, the requirements of 
section 1(a) of Executive Order 12875 do not apply to this rule.

I. Executive Order 13045: Protection of Children From Environmental 
Health Risks and Safety Risks

    Executive Order 13045, ``Protection of Children from Environmental 
Health Risks and Safety Risks'' (62 FR 19885, April 23, 1997), applies 
to any rule that: (1) is determined to be ``economically significant'' 
as defined under Executive Order 12866, and (2) concerns an 
environmental health or safety risk that the EPA has reason to believe 
may have a disproportionate effect on children. If the regulatory 
action meets both criteria, the EPA must evaluate the environmental 
health or safety effects of the planned rule on children, and explain 
why the planned regulation is preferable to other potentially effective 
and reasonably feasible alternatives considered by the Agency.

[[Page 68400]]

    This final rule is considered not ``economically significant'' as 
defined under Executive Order 12866 and, therefore, is not subject to 
Executive Order 13045.

J. Executive Order 13084: Consultation and Coordination With Indian 
Tribal Governments

    Under Executive Order 13084, the EPA may not issue a regulation 
that is not required by statute, that significantly or uniquely affects 
the communities of Indian tribal governments, and that imposes 
substantial direct compliance costs on those communities, unless the 
Federal government provides the funds necessary to pay the direct 
compliance costs incurred by the tribal governments, or the EPA 
consults with those governments. If the EPA complies by consulting, 
Executive Order 13084 requires the EPA to provide to the OMB, in a 
separately identified section of the preamble to the rule, a 
description of the extent of the EPA's prior consultation with 
representatives of affected tribal governments, a summary of the nature 
of their concerns, and a statement supporting the need to issue the 
regulation. In addition, Executive Order 13084 requires the EPA to 
develop an effective process permitting elected officials and other 
representatives of Indian tribal governments ``to provide meaningful 
and timely input in the development of regulatory policies on matters 
that significantly or uniquely affect their communities.''
    Today's amendments to the rule do not significantly or uniquely 
affect the communities of Indian tribal governments. The amendments 
issued today extend the compliance date for continuous web cleaning 
machines, and do not add any new requirements. Accordingly, the 
requirements of section 3(b) of Executive Order 13084 do not apply to 
this rule.

List of Subjects in 40 CFR Part 63

    Environmental protection, Air pollution control, Continuous web 
cleaning machines, Halogenated solvent cleaning machines, Hazardous 
substances, Reporting and recordkeeping requirements.

    Dated: December 4, 1998.
Carol M. Browner,
Administrator.

    For the reasons set out in the preamble, title 40, chapter I of the 
Code of Federal Regulations is amended as follows:

PART 63--[AMENDED]

    1. The authority citation for part 63 continues to read as follows:

    Authority: 42 U.S.C. 7401, et seq.

Subpart T--National Emission Standards for Halogenated Solvent 
Cleaning

    2. Section 63.460 is amended by revising paragraphs (c) and (d), 
and adding paragraph (g) to read as follows:


Sec. 63.460  Applicability and designation of source.

* * * * *
    (c) Except as provided in paragraph (g) of this section, each 
solvent cleaning machine subject to this subpart that commences 
construction or reconstruction after November 29, 1993 shall achieve 
compliance with the provisions of this subpart immediately upon start-
up or by December 2, 1994, whichever is later.
    (d) Except as provided in paragraph (g) of this section, each 
solvent cleaning machine subject to this subpart that commenced 
construction or reconstruction on or before November 29, 1993 shall 
achieve compliance with the provisions of this subpart no later than 
December 2, 1997.
* * * * *
    (g) Each continuous web cleaning machine subject to this subpart 
shall achieve compliance with the provisions of this subpart no later 
than December 2, 1999.
* * * * *


Sec. 63.470  [Removed and reserved].

    3. Part 63 is amended by removing and reserving section 63.470.
[FR Doc. 98-32991 Filed 12-10-98; 8:45 am]
BILLING CODE 6560-50-P