[Federal Register Volume 64, Number 16 (Tuesday, January 26, 1999)]
[Rules and Regulations]
[Pages 3852-3855]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-1762]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[MD079-3035a; FRL-6218-2]


Approval and Promulgation of Air Quality Implementation Plans; 
Maryland; Control of VOCs From the Manufacture of Explosives and 
Propellant

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 State of Maryland. This revision imposes reasonably 
available control technology (RACT) requirements for volatile organic 
compounds (VOCs) from sources that manufacture explosives and 
propellant. The intent of this action is to approve Maryland's request 
to amend its SIP to include RACT requirements to control VOCs from the 
manufacture of explosives and propellant.

DATES: This direct final rule is effective without further notice on 
March 29, 1999 unless by February 25, 1999, adverse or critical 
comments are received by EPA. If EPA receives such comments, it will 
publish a timely withdrawal of the direct final rule in the Federal 
Register informing the public that the rule will not take effect.

ADDRESSES: Comments may be mailed to David L. Arnold, Chief, Ozone and 
Mobile Sources Branch, Mailcode 3AP21, U.S. Environmental Protection 
Agency, Region III, 1650 Arch Street, Philadelphia, Pennsylvania 19103. 
Copies of the documents relevant to this action are available for 
public inspection during normal business hours at the Air Protection 
Division, U.S. Environmental Protection Agency, Region III, 1650 Arch 
Street, Philadelphia, Pennsylvania 19103; the Air and Radiation Docket 
and Information Center, U.S. Environmental Protection Agency, 401 M 
Street, SW, Washington, DC 20460; and the Maryland Department of the 
Environment, 2500 Broening Highway, Baltimore, Maryland 21224.

FOR FURTHER INFORMATION CONTACT: Paul T. Wentworth at (215) 814-2183, 
or by e-mail at [email protected]. While information may be 
requested via e-mail, comments must be submitted in writing to the 
above EPA Region III address.

SUPPLEMENTARY INFORMATION:

I. Background

    On August 28, 1998, the State of Maryland submitted a formal 
revision to its SIP, which consists of amendments to COMAR 26.11.19 
Control of Volatile Organic Compounds from Specific Processes. The 
revision consists of the addition of a new regulation at COMAR 
26.11.19.25 Control of Volatile Organic Compounds from Explosives and 
Propellant Manufacturing to establish RACT for VOCs from the 
manufacture of explosives and propellant. This revision was submitted 
to satisfy the requirements of sections 182 and 184 of the Clean Air 
Act to implement RACT on major sources of VOCs.

[[Page 3853]]

II. Summary of the SIP Revision

    The new regulation COMAR 26.11.19.25 Control of Volatile Organic 
Compounds from Explosives and Propellant Manufacturing applies to 
sources which manufacture explosives and propellant. The carrier for 
some of the raw materials used in the manufacture of explosives and 
propellant and the medium in which those raw materials are mixed 
contain VOCs. The majority of the VOC emissions are from the mixing and 
drying operations. The only currently known existing source of VOC 
emissions from the manufacture of explosives and propellant is located 
at the Naval Surface Warfare Center in Indian Head, Maryland.
    COMAR 26.11.19 Control of Volatile Organic Compounds from Specific 
Processes applies statewide as does COMAR 26.11.19.25. The specific 
provisions found in COMAR 26.11.19.25 Control of Volatile Organic 
Compounds from Explosives and Propellant Manufacturing are summarized 
below:

A. Applicability

    This regulation applies to a person who owns or operates existing 
equipment at a premise that has a potential to emit 25 tons or more of 
VOC per year from all explosives and propellant manufacturing equipment 
at the premises.
    It also applies to a person who constructs, owns, or operates new 
equipment that has or will have total actual VOC emissions of 50 pounds 
or more per day. It must be noted that the applicability provisions of 
COMAR 26.11.19.25 pertaining to new equipment are imposed in addition 
to any applicable new source review (NSR) permitting requirements of 
the Federal Clean Air Act and the Maryland SIP. These provisions of 
COMAR 26.11.19.25 do not replace any applicable NSR requirements.

B. Definitions

    COMAR 26.11.19.25 includes definitions of the following terms: 
Existing equipment, Explosives and propellant manufacturing equipment, 
New equipment, and Nitramine propellant manufacturing equipment.

C. General Requirements

    Pursuant to COMAR 26.11.19.25 (C)(1), a person who owns or operates 
existing explosives and propellant manufacturing equipment subject to 
this regulation shall: (a) Install a VOC control device, having a VOC 
destruction or removal efficiency of 85 percent or more overall, on all 
active nitramine propellant mixing equipment that has a capacity of 150 
gallons or more; (b) prepare and submit for approval by the Maryland 
Department of the Environment by not later than September 1, 1997, a 
good operating practices manual that when implemented will minimize VOC 
emissions from all other existing explosive, propellant, and nitramine 
propellant manufacturing equipment; and (c) implement the good 
operating practices within 30 days after approval by the Department.
    Pursuant to COMAR 26.11.19.25(C)(2), a person who constructs, owns, 
or operates new equipment subject to this regulation shall reduce 
emissions from the new equipment by 85% or more, overall. It must be 
noted that these provisions of COMAR 26.11.19.25 pertaining to new 
equipment are imposed in addition to any applicable new source review 
(NSR) permitting requirements of the Federal Clean Air Act and the 
Maryland SIP. These provisions of COMAR 26.11.19.25 do not replace any 
applicable NSR requirements.

D. Reporting and Testing Requirements

    A person who is subject to this regulation shall:
    (1) By no later than October 1, 1997, submit to the Department:
    (a) A VOC emissions inventory for calendar year 1990 and for each 
subsequent year through calendar year 1996 for all explosive and 
propellant manufacturing equipment at the premises, and
    (b) Complete permit to construct application for the control device 
required in subsection C(1)(a) of the regulation;
    (2) Not later than 90 days after the control device required in 
section C(1)(a) of this regulation has been installed must perform a 
stack test to demonstrate compliance with the requirements of 
subsection C of this regulation; and
    (3) Submit to the Department a stack test report within 60 days 
after completing the test.
    EPA has determined that the control requirements contained in these 
revisions to the subject rule constitutes an acceptable level of RACT 
on major sources manufacture explosives and propellants. EPA is 
approving 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 adverse or 
critical comments be filed. This rule will be effective March 29, 1999 
without further notice unless by February 25, 1999, adverse or critical 
comments are received. If EPA receives 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. EPA will not institute a second comment period on this rule. Only 
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 
rule will be effective on March 29, 1999 and no further action will be 
taken on the proposed rule.

III. Final Action

    EPA is approving the addition of COMAR 26.11.19.25 Control of 
Volatile Organic Compounds from Explosives and Propellant Manufacturing 
submitted by the State of Maryland on August 28, 1998 as a revision to 
the Maryland SIP.

IV. Administrative Requirements

A. Executive Order 12866

    The Office of Management and Budget (OMB) has exempted this 
regulatory action from review under E.O. 12866, entitled ``Regulatory 
Planning and Review.''

B. Executive Order 12875

    Under E.O. 12875, 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. If EPA complies by consulting, E.O. requires EPA to 
provide to the Office of Management and Budget a description of the 
extent of EPA's prior consultation with representatives of affected 
state, local, and tribal governments, the nature of their concerns, 
copies of written communications from the governments, and a statement 
supporting the need to issue the regulation. In addition, E.O. 12875 
requires 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 rule does not create a mandate on state, local or tribal 
governments. The rule does not impose any enforceable duties on these 
entities.

[[Page 3854]]

Accordingly, the requirements of section 1(a) of E.O. 12875 do not 
apply to this rule.

C. Executive Order 13045

    E.O. 13045, entitled ``Protection of Children from Environmental 
Health Risks and Safety Risks'' (62 FR 19885, April 23, 1997), applies 
to any rule that the EPA determines (1) is ``economically 
significant,'' as defined under E.O. 12866, and (2) the environmental 
health or safety risk addressed by the rule has a disproportionate 
effect on children. If the regulatory action meets both criteria, the 
Agency 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. This final rule is not subject 
to E.O. 13045 because it is not an economically significant regulatory 
action as defined by E.O. 12866, and it does not address an 
environmental health or safety risk that would have a disproportionate 
effect on children.

D. Executive Order 13084

    Under E.O. 13084, EPA may not issue a regulation that is not 
required by statute, that significantly affects 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. If EPA complies by 
consulting, Executive Order 13084 requires EPA to provide to the Office 
of Management and Budget, in a separately identified section of the 
preamble to the rule, a description of the extent of 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 EPA to develop an effective process permitting elected 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 rule does not significantly or uniquely affect the communities 
of Indian tribal governments. This action does not involve or impose 
any requirements that affect Indian Tribes. Accordingly, the 
requirements of section 3(b) of E.O. 13084 do not apply to this rule.

E. Regulatory Flexibility Act

    The Regulatory Flexibility Act (RFA) generally requires an agency 
to conduct a regulatory flexibility analysis of any rule subject to 
notice and comment rulemaking requirements unless the agency certifies 
that the rule 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 governmental 
jurisdictions. This final rule will not have a significant impact on a 
substantial number of small entities because 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 
create any new requirements, I certify that this action will not have a 
significant economic impact on a substantial number of small entities. 
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).

F. 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 promulgated 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.

G. Submission to Congress and the Comptroller General

    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).

H. Petitions for Judicial Review

    Under section 307(b)(1) of the Clean Air Act, petitions for 
judicial review of this action to approve COMAR 26.11.19.25 Control of 
Volatile Organic Compounds from Explosives and Propellant Manufacturing 
as a revision to the Maryland SIP must be filed in the United States 
Court of Appeals for the appropriate circuit by March 29, 1999. 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, Ozone, Reporting and recordkeeping 
requirements.

    Dated: December 30, 1998.
Thomas Voltaggio,
Acting Regional Administrator, Region III.

    40 CFR part 52 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 V--Maryland

    2. Section 52.1070 is amended by adding paragraph (c)(141) to read 
as follows:

[[Page 3855]]

Sec. 52.1070  Identification of plan.

* * * * *
    (c)* * *
    (141) Revisions to the Maryland State Implementation Plan submitted 
on August 28, 1998 by the Maryland Department of the Environment.
    (i) Incorporation by reference.
    (A) Letter of August 28, 1998 from the Maryland Department of the 
Environment transmitting revisions to COMAR 26.11.19 pertaining to the 
control of VOCs from special processes. The revision adds a new 
regulation at COMAR 26.11.19.25 for the control of VOC compounds from 
explosives and propellant manufacturing adopted by the Secretary of the 
Environment on July 15, 1997 and effective August 11, 1997.
    (B) Revisions to COMAR 26.11.19 entitled Volatile Organic Compounds 
from Specific Processes: The addition of new regulation COMAR 
26.11.19.25 Control of Volatile Organic Compounds from Explosives and 
Propellant Manufacturing.
    (ii) Additional Material: Remainder of August 28, 1998 Maryland 
State submittal pertaining to COMAR 26.11.19.25 to control VOCs from 
sources that manufacture explosives and propellants.

[FR Doc. 99-1762 Filed 1-25-99; 8:45 am]
BILLING CODE 6560-50-P