[Federal Register Volume 64, Number 73 (Friday, April 16, 1999)]
[Rules and Regulations]
[Pages 18821-18824]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-9462]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[PA129-4083a; FRL-6323-6]


Approval and Promulgation of Air Quality Implementation Plans; 
Pennsylvania; Approval of VOC RACT Determinations for Individual 
Sources

AGENCY: Environmental Protection Agency (EPA).

ACTION: Direct final rule.

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SUMMARY: EPA is taking direct final action to approve revisions to the 
Pennsylvania state implementation plan (SIP). The revisions impose 
reasonably available control technology (RACT) to reduce volatile 
organic compounds (VOC) emissions from six (6) major sources located in 
Pennsylvania. EPA is approving these revisions to establish RACT 
requirements in accordance with the Clean Air Act.

DATES: This rule is effective on June 15, 1999 without further notice, 
unless EPA receives adverse written comment by May 17, 1999. If EPA 
receives such comments, it will publish a timely withdrawal of the 
direct final rule in the Federal Register and inform the public that 
the rule will not take effect.

ADDRESSES: Comments may be mailed to Kathleen Henry, Air Protection 
Division, Mailcode 3AP11, 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; Pennsylvania Department of Environmental 
Protection, Bureau of Air Quality Control, P.O. Box 8468, 400 Market 
Street, Harrisburg, Pennsylvania 17105.

FOR FURTHER INFORMATION CONTACT: Linda Miller, (215) 814-2068, at the 
EPA Region III office or via e-mail at [email protected]. While 
information may be requested via e-mail, any comments must be submitted 
in writing to the above Region III address.

SUPPLEMENTARY INFORMATION:

I. Background

    On December 8, 1995, October 18, 1996, July 24, 1998 and October 2, 
1998, the Pennsylvania Department of Environmental Protection (PADEP) 
submitted formal revisions to its state implementation plan (SIP). Each 
submittal consisted of source-specific operating permits imposing RACT 
on individual sources. Each source covered by this rulemaking will be 
specifically identified and discussed below. Any additional operating 
permits for other individual sources submitted coincidentally with 
those being addressed in this document will addressed in a separate 
rulemaking action.
    Pursuant to sections 182(b)(2) and 182(f) of the Clean Air Act 
(CAA), Pennsylvania is required to implement RACT for all major VOC and 
nitrogen oxides (NOX) sources. The major source size is 
determined by its location, the classification of that area and whether 
it is located in the ozone transport region (OTR), which is established 
by the CAA. The entire State of Pennsylvania is located in the OTR. The 
Pennsylvania portion of the Philadelphia ozone nonattainment area 
consists of Bucks, Chester, Delaware, Montgomery, and Philadelphia 
Counties and is classified as severe. The remaining counties in 
Pennsylvania are classified as moderate or marginal nonattainment 
areas, were previously classified as marginal but are now areas where 
the one-hour ozone standard no longer applies, or are designated 
attainment for ozone. However, under section 184 of the CAA, at a 
minimum, moderate ozone nonattainment area requirements (including RACT 
as specified in sections 182(b)(2) and 182(f)) apply throughout the 
OTR. Therefore, RACT is applicable statewide in Pennsylvania. The 
Pennsylvania submittals that are the subject of this document are meant 
to satisfy the RACT requirements to reduce VOC emissions from six (6) 
sources in Pennsylvania.

II. Summary of SIP Revision

    The details of the RACT requirements imposed in each of the source-
specific operating permits can be found in the state submittals and in 
the accompanying technical support document (TSD) prepared by EPA to 
support of this rulemaking action. Copies of the TSD are available, 
upon request, from the EPA Regional Office listed in the ADDRESSES 
section of this document. Briefly, EPA is approving revisions to the 
Pennsylvania SIP pertaining to the determination of RACT for six (6) 
major sources of VOC. Several of the operating permits contain 
conditions irrelevant to the determination and imposition of RACT. 
Consequently, those provisions of the operating permits were not 
considered part of PADEP's SIP revision request to approve RACT for 
these six (6) sources.
    The following table identifies the individual operating permits EPA 
is approving. The specific emission limitations and other RACT 
requirements for these sources are summarized in the accompanying TSD 
prepared by EPA to support this rulemaking. As previously stated copies 
of the TSD are available, upon request, from the EPA Regional Office 
listed in the ADDRESSES section of this document.

[[Page 18822]]



                      Pennsylvania--VOC and NOX RACT Determinations for Individual Sources
----------------------------------------------------------------------------------------------------------------
                                                      Plan Approval (PA#),
                                                    Operating Perment (OP#),                         ``Major
             Source                    County         Compliance Permit (CP      Source type         source''
                                                               #)                                   pollutant
----------------------------------------------------------------------------------------------------------------
GKN Sinter Metals..............  Cameron..........  OP 12-0002                Powdered metal     VOC
                                                                               parts
                                                                               manufacturing.
Springs Window Fashions Div.,    Lycoming.........  OP 41-0014                Surface coating..  VOC
 Inc..
Cabinet Industries, Inc........  Montour..........  OP 47-0005                Surface coating..  VOC
Centennial Printing Corporation  Montgomery.......  OP 46-0068                Graphic arts.....  VOC
Strick Corporation.............  Montour..........  OP 47-0002                Surface coating..  VOC
Handy and Harmon Tube Company..  Montgomery.......  OP 46-0016                Tube               VOC
                                                                               manufacturing.
----------------------------------------------------------------------------------------------------------------

    EPA is publishing this rule without prior proposal because we view 
this as a noncontroversial amendment and anticipate no adverse comment. 
However, in the ``Proposed Rules'' section of today's Federal Register, 
EPA is publishing a separate document that will serve as the proposal 
to approve the SIP revision if adverse comments are filed. This rule 
will be effective on June 15, 1999 without further notice unless we 
receive adverse comment by May 17, 1999. If EPA receives adverse 
comment, EPA will publish a timely withdrawal in the Federal Register 
informing the public that the rule will not take effect. EPA will 
address all public comments in a subsequent final rule based on the 
proposed rule. EPA will not institute a second comment period on this 
action. Any parties interested in commenting must do so at this time.

III. Final Action

    EPA is approving six (6) source-specific operating permits imposing 
RACT to reduce VOC emissions from GKN Sinter Metals, Inc. (Cameron 
County), Springs Window Fashions Division, Inc. (Lycoming County), 
Cabinet Industries Inc. (Montour County), Centennial Printing Corp., 
Strick Corporation (Montour County), and Handy and Harmon Tubing Co. 
(Montgomery County).

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

C. Executive Order 13045

    Executive Order 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 Executive Order 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 Executive Order 13045 because it 
is not an economically significant regulatory action as defined by 
Executive Order 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, E.O. 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, E.O. 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

[[Page 18823]]

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. Section 804, however, exempts from section 801 the 
following types of rules: rules of particular applicability; rules 
relating to agency management or personnel; and rules of agency 
organization, procedure, or practice that do not substantially affect 
the rights or obligations of non-agency parties. 5 U.S.C. 804(3). EPA 
is not required to submit a rule report regarding today's action under 
section 801 because this is a rule of particular applicability 
approving six source-specific operating permits which impose RACT to 
reduce VOC from GKN Sinter Metals, Inc. (Cameron County), Springs 
Window Fashions Division, Inc. (Lycoming County), Cabinet Industries 
Inc. (Montour County), Centennial Printing Corp., Strick Corporation 
(Montour County), and Handy and Harmon Tubing Co. (Montgomery County).

H. Petitions for Judicial Review

    Under section 307(b)(1) of the Clean Air Act, petitions for 
judicial review of this action to approve the RACT determinations to 
reduce VOC from GKN Sinter Metals, Inc. (Cameron County), Springs 
Window Fashions Division, Inc. (Lycoming County), Cabinet Industries 
Inc. (Montour County), Centennial Printing Corp., Strick Corporation 
(Montour County), and Handy and Harmon Tubing Co. (Montgomery County) 
must be filed in the United States Court of Appeals for the appropriate 
circuit by June 15, 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 to 
approve VOC RACT determinations for six individual sources in 
Pennsylvania as a revision to the Commonwealth's SIP 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.

    Dated: April 5, 1999.
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 NN--Pennsylvania

    2. Section 52.2020 is amended by adding paragraph (c)(138) to read 
as follows:


Sec. 52.2020  Identification of plan.

* * * * *
    (c) * * *
    (138) Revisions to the Pennsylvania Regulations, Chapter 129.91 
pertaining to VOC RACT, submitted on December 8, 1995, September 13, 
1996, October 18, 1996, July 24, 1998, and October 2, 1998 by the 
Pennsylvania Department of Environmental Protection.
    (i) Incorporation by reference.
    (A) Five (5) letters submitted by the Pennsylvania Department of 
Environmental Protection transmitting source-specific VOC 
determinations in the form of operating permits on the following dates: 
December 8, 1995, September 13, 1996, October 18, 1996, July 24, 1998, 
and October 2, 1998.
    (B) Operating permits (OP):
    (1) GKN Sinter Metals, Inc. (Cameron County), OP-12-0002, effective 
September 30, 1998, except for the expiration date and conditions Nos. 
14-20 relating to non-RACT provisions.
    (2) Springs Window Fashions Division, Inc. (Lycoming County), OP-
41-0014, effective September 29, 1998, except for the expiration date 
and conditions Nos. 9-10 relating to non-RACT provisions.
    (3) Cabinet Industries, Inc. (Montour County), OP-47-0005, 
effective September 21, 1998, except for the expiration date and 
conditions Nos. 5-8 relating to non-RACT provisions.
    (4) Centennial Printing Corp. (Montgomery County), OP-46-0068, 
effective October 31, 1996, as revised on May 11, 1998 except for the 
expiration date and conditions Nos. 13-15 and 17-20 pertaining to non-
RACT provisions.
    (5) Strick Corporation (Montour County), OP-47-0002, effective 
August 28, 1996, except for the expiration date and conditions Nos. 10-
11 and 21-22 relating to non-RACT provisions.
    (6) Handy and Harmon Tube Co. (Montgomery County), OP-46-0016 
effective September 25, 1995, except for the expiration dates and 
conditions No. 11 relating to non-RACT provisions.
    (ii) Additional Materials--Remainder of the Commonwealth of 
Pennsylvania's September 13, 1996, December 18, 1996, October 18, 1996, 
July 24, 1998 and October 2, 1998 submittals pertaining to

[[Page 18824]]

the VOC RACT requirements for GKN Sinter Metals, Inc. (Cameron County), 
Springs Window Fashions Division, Inc. (Lycoming County), Cabinet 
Industries Inc. (Montour County), Centennial Printing Corp., Strick 
Corporation (Montour County), and Handy and Harmon Tubing Co. 
(Montgomery County).

[FR Doc. 99-9462 Filed 4-15-99; 8:45 am]
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